Provisional and Emergency Licensure: Maine
Hiring Policy
Analysis of Maine's policies
Emergency License(s) Availability: Maine offers a conditional certificate to teachers who have not met certain requirements, including passing state licensing tests. The state also offers a special Targeted Needs Certificate. Holders of this certificate must
pass all required assessments prior to the issuance of the third
certificate, meaning that individuals teaching under this certificate
may teach for two full years without passing all required tests.
Emergency License Validity Period:
Maine's conditional certificate is valid for one year. This certificate can be renewed twice, and a passing score on all obligatory tests is required only during the third and final review
period.
The Targeted Needs Certificate is valid for one year and may also be renewed twice for individuals who are teaching in a designated shortage area. Holders of this certificate must pass all required assessments prior to the issuance of the third certificate, meaning that individuals teaching under this certificate may teach for two full years without passing all required tests.
Recommendations for Maine
Ensure that all teachers pass required subject-matter licensing tests before they enter the classroom.
All students are entitled to teachers who know the subject matter they are teaching.
Permitting individuals who have not yet passed state licensing tests to teach
neglects the needs of students, because it enables adults who may not
be able to meet minimal state standards to earn teaching licenses. Maine should
ensure that all teachers are required to pass licensing tests — an important
minimum benchmark for entering the profession —before entering the classroom as
the teacher of record.
Limit exceptions to one year.
Although suboptimal, there may be limited and exceptional circumstances under which
conditional or emergency licenses are necessary. In these instances, it is
reasonable for a state to give teachers up to one year to pass required
licensing tests. However, Maine's current policy puts students at risk by allowing the issuance of conditional certificates that are valid for one year but can be renewed for a second year before teachers are required to pass required licensing tests.
State response to our analysis
Maine indicated that Chapter 180 addresses professional educator effectiveness, and that local control allows for individual districts to make changes.
Updated: December 2017
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General Teacher Preparation
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Alternate Routes
Hiring
- Requirements for Out-of-State Teachers
- Provisional and Emergency Licensure
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Teacher and Principal Evaluation
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Retaining Effective Teachers
Early Childhood Preparation
How we graded
6B: Provisional and Emergency Licensure
- Content knowledge: The state:
- Should not, under any circumstance, award a license to a teacher who has not passed all required content licensing tests.
- If it finds it necessary to confer emergency or provisional licenses to teachers who have not passed the required licensing tests, should do so only under limited and exceptional circumstances and ensure that all requirements are met within one year.
The total goal score is earned based on the following:
- Full credit: The state will earn full credit if all new teachers are required to pass each required content test as a condition of receiving emergency or provisional licensure.
- Three-quarters credit: The state will earn three-quarters of a point if it grants emergency or provisional licenses to teachers who have not passed the required content tests, but such licenses are granted for no more than one year and are not renewable.
- One-half credit: The state will earn up to one-half of a point if it allows for emergency or provisional licenses to be granted for longer than one year, but the state has strong requirements for applicants (e.g., content area major or preparation program completion without requiring a content test). The state may also be eligible for one-half of a point if it offers emergency or provisional licenses to teachers under "extenuating circumstances."
- One-quarter credit: The state will earn one-quarter of a point if it maintains minimum requirements that fall short of the requirements listed above.
Research rationale
Teachers who have not passed content licensing tests place students at risk. While states may need a regulatory basis for filling classroom positions with a few people who do not hold full teaching credentials, many of the regulations permitting this put the instructional needs of children at risk, often year after year.[1] For example, schools can make liberal use of provisional certificates or waivers provided by the state if they fill classroom positions with instructors who have completed a teacher preparation program but have not passed their state licensing tests. These allowances are permitted for up to three years in some states. The unfortunate consequence is that students' needs are neglected in an effort to extend personal consideration to adults who cannot meet minimum state standards.[2]
While some flexibility may be necessary because licensing tests are not always administered with the needed frequency, making provisional certificates and waivers available year after year could signal that the state does not put much value on its licensing standards or what they represent. States accordingly need to ensure that all persons given full charge of children's learning are required to pass the relevant licensing tests in their first year of teaching, ideally before they enter the classroom. Licensing tests are an important minimum benchmark in the profession, and states that allow teachers to postpone passing these tests are abandoning one of the basic responsibilities of licensure.
[1] Research often finds a correlation between teachers' content knowledge and their effectiveness. For how this effect can play out in elementary ELA, see: Carlisle, J. F., Correnti, R., Phelps, G., & Zeng, J. (2009). Exploration of the contribution of teachers' knowledge about reading to their students' improvement in reading. Reading and Writing, 22(4), 457-486.; For how this effect can occur in secondary STEM subjects, see: Monk, D. (1994). Subject-area preparation of secondary mathematics and science teachers and student achievement. Economics of Education Review, 13(2), 125-145; For broader information about teacher qualities and student achievement, see: Goldhaber, D. D., & Brewer, D. J. (1997). Why don't schools and teachers seem to matter? Assessing the impact of unobservables on educational productivity. Journal of Human Research, 32(3), 505-523.; National Council on Teacher Quality. (2010). The all-purpose science teacher: An analysis of loopholes in state requirements for high school science teachers. Retrieved from http://www.nctq.org/p/publications/docs/NCTQ_All_Purpose_Science_Teacher.pdf.
[2] Research has shown that "the difference in student performance in a single academic year from having a good as opposed to a bad teacher can be more than one full year of standardized achievement." See: Hanushek, E. A. (1992). The trade-off between child quantity and quality. Journal of Political Economy, 100(1), 84-117.; Hanushek has also found that highly effective teachers can improve future student earnings by more than $400,000, assuming a class size of 20. Hanushek, E. A. (2011). The economic value of higher teacher quality. Economics of Education Review, 30(3), 466-479. Retrieved from http://www.nber.org/papers/w16606