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Service Scholarships as a Means to Address Teacher Retention

Steven D. Carlson

Central Michigan University

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Problem Statement

Much attention in the United States and in Michigan has been given to what is termed as

a teacher shortage. Data exists that questions whether or not a teacher shortage exists. (Startz,

2015) However, the ability of the nation, the state of Michigan, and individual school to retain

teachers in the profession is of importance to the quality of education provided to students.

(Carver-Thomas & Darling-Hammond, 2017) Researchers have identified various reasons that

teachers leave their schools or leave careers in education entirely. A review of available research

and interviews with educational policy practitioners yields suggestions for actionable district

policies that would increase a district’s ability to retain its teachers. Similarly, there are policy

suggestions that federal and state governments can enact to address teacher retention on a more

global scale.

Policy Research: Literature Review

Startz examined nationwide data from 1985 to 2012 and found that the number of people

receiving either a bachelor’s or master’s degree in education was as much as two to three times

the number of new teacher hires. Taken at first glance, this data would seem to indicate a surplus

of teachers nationwide as opposed to a shortage. However, when examining the data more

closely, Starz notes that many of the people receiving a master’s degree in education already

possessed a bachelor’s degree in education, making the master’s degree redundant for the

purposes of this study. When accounting for what he calls redundant master’s degrees, Startz

notes that the supply and demand for new teachers from 1985 to 2012 was roughly equal.

Further, Startz points out that some teaching positions, such as those in STEM, are more difficult

to fill. Also, since these numbers represent nationwide trends, an individual school district is still

likely to feel local impacts of a scarcity of qualified teachers. Startz also expresses concern for
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the practice that some states, like Oklahoma, have employed to lower the standards for certifying

teachers, as this reduces the quality of educators in classrooms. (2017)

The National Association of Secondary School Principals (NASSP) issued a position

statement on teacher shortage on July 7, 2017. NASSP notes in their position statement that the

data on whether a shortage exists is “unsettled” but that it is undeniable that many schools face

challenges in hiring qualified candidates for their classrooms. This problem is exacerbated for

urban schools, schools with high levels of poverty, schools with higher populations of minority

students, and in low-achieving schools. While NASSP notes that fewer college students are

entering teacher preparatory programs, their greater concern is with the number of teachers that

leave the profession. NASSP cites 2016 data from the Learning Policy Institute indicating that

19% - 30% of teachers leave the profession in their first five years, with a disproportionate

number of them leaving “high-need schools”. NASSP proposes several policy recommendations

for the federal government, state government, teacher preparation programs, school districts, and

building principals. Among the recommendation for principals is to share leadership with their

teachers and to increase teacher collaboration.

Carver-Thomas and Darling-Hammond write that nearly 90% of annual nationwide

demand for new teachers is created by teachers leaving the profession, with only about one-third

of that total coming from teachers who retire. They state that teacher turnover not only reduces

the expected outcomes for the students in classes they leave behind but also for other students in

the school they left. Carver-Thomas and Darling-Hammond arrive at three distinct

recommendations to reduce teacher turnover: increased compensation, better preparation and

support, and improved school leadership (2016).

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Pogodzinski, et al, studied what they termed administrative climate to ascertain if this

climate had an effect on the decision of novice teachers to stay in a particular school. Their

research suggests that novice teachers’ perceptions of administrative climate did impact their

decision on staying in a career in education or leaving. The negative factors examined in

determining administrative climate that were found to have an impact on the decision to stay in

teaching included level of agreement on building/district policies, teacher evaluation, willingness

of teachers to work beyond the obligations of their contract, and “ongoing quiet discussion”

among teachers about their perception of how they are treated by their administrator. (2012)

Patton and Kritsonis looked at reasons that teachers reported leaving the profession and

developed five “laws” for school principals to follow. Patton and Kritsonis argue that adherence

to these laws will both increase the productivity of teachers and help retain teachers in the

profession. These laws include: recruiting teachers who are passionate about students; providing

new teachers highly qualified mentors; supporting teachers with classroom concerns; training

teachers in curricular and pedagogical strategies; and empowering teachers in the decision-

making process. Patton and Kritsonis further recommend that school districts train their

principals to ensure they are providing new teachers with the supports for which their five laws

call. (2006)

Kersaint, et al examined factors that encourage or discourage teachers’ likelihood of

remaining in a school or resigning, as well as the factors that encourage or discourage a teacher

who has resigned to return to the classroom. In addition to identifying such factors, the

researchers sought to quantify the factors in terms of importance. Kersaint, et al identified two

factors that are out of a district’s control as being the most significant in terms of teachers

leaving a school or the profession: time with family and family responsibility. However, the next
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three factors, in order of importance a found by their research, are well within a district’s control:

administrative support, financial benefits, and paperwork and assessment concerns. (2007)

Ingersoll, Merrill, and May studied the type and amount of pre-service education that

beginning teachers received to determine if any patterns existed indicating who was more likely

to stay in or leave teaching. They looked at factors such as how selective the teacher’s university

was, whether or not they had a graduate degree, the number of methods courses taken, the

amount of student-teaching completed, whether or not the teacher had an education degree, and

whether or not the teacher entered the profession through an alternative certification program.

The researchers found that the amount of pedagogy a teacher received in his/her pre-service

training was related to the likeliness of a teacher leaving; those with more pedagogical

background were more likely to remain in education. Their research also showed that teachers

who did not have full certificates were more likely to leave the profession after their first year

than teachers that entered the profession with their full certification. (2014)

Current Politics

In Michigan, issues with teacher retention (as well as teacher shortage) are starting to get

more attention in the media and, to some degree, from lawmakers. However, there are many

obstacles to change within the Michigan legislative climate as well as the Michigan Department

of Education.

In an interview with the executive director of a Michigan educational leadership

organization, the executive director mentioned a number of bills in the Michigan House of

Representatives that address teacher preparation. House Bills 5598-5605 address the content of

teacher preparation programs, continuing education for college faculty, the student teaching
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experience, the mentor teacher system, and also “degree warranty” programs. These degree

warranties would allow teachers, under specific conditions, to return to a Michigan university for

additional course work free of charge if they have not been successful in their early years of

professional teaching. These bills have passed through the House Education Reform Committee

but have not been voted on by the full House, nor is there a set of companion bills currently in

the Michigan Senate. These two factors suggest that a long road would wait ahead of any

possible new legislation being enacted as a result of these bills. (Personal Communication,

March 27, 2018)

In that same interview, this educational leader cites recent School Finance Research

Collaborative in Michigan as a positive step towards identifying the financial resources needed

to better education Michigan’s students, which would in turn lead to less teacher stress and

burnout. (Personal Communication, March 27, 2018)

The director of government relations for one of Michigan’s educational leadership

organizations notes that there is conflicting data and, thus, considerable debate, about whether or

not a true shortage of teachers exists in Michigan or in the United States. However, this

individual states that for an individual district that is struggling to attract high-quality teachers,

the true impact is that of a teacher shortage. According to research he has reviewed, this

individual feels that the larger issue for Michigan than an actual shortage is a tendency for

teachers to leave districts that they considerable less desirable for districts that they consider

more desirable. These reasons frequently deal with compensation, how well the district is

performing, and how well they feel their administrators support them. (Personal Communication,

March 27, 2018)

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This same director of government relations feels that a major barrier to legislative action

to address teacher retention is the bureaucratic structure of the Michigan Department of

Education, the State Board of Education, the State Superintendent, as well as the Michigan

Legislature. This individual argues that term-limited legislators want quick-fixes to problems to

help leave a legacy. This, he believes, has in part led to an erosion of power of the Department of

Education, which he feels need to be stronger and less prone to political whims to enact

meaningful reform. Further, he advocates that the State Superintendent should be a political

appointee of the Governor, which would make the Governor less prone to usurp educational

authority out of the Department of Education. (Personal Communication, March 27, 2018)

In an interview with the executive director of a different educational leadership

organization, the topic of opportunities for change was discussed. In addition to the School

Finance Reform Collaborative mentioned by his colleague, the individual mentioned that he feels

the topic of teacher shortage and teacher retention is finally being addressed in conversations he

hears about educational reform plans. With an increased emphasis on this issue, he feels that

some action is likely to take place to address teacher retention on some level simply because

policy makers are feeling a call to action. (Personal Communication, March 27, 2018)

In summary, while issues that surround teacher shortage and teacher retention are getting

more attention in Michigan’s political landscape, there has yet to be a single policy enacted that

will address this issue within the research-validated areas of compensation, preparation, or

school leadership. While the political organizational structure in Michigan makes new policies

an arduous task to lead to implementation, the cost of doing nothing to address teacher retention

is high for Michigan’s students.

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Possible Solutions

From the literature review, and especially from Carver-Thomas and Darling-Hammond’s

research, there are at least three avenues to pursue to positively impact teacher retention. Two of

these avenues would require legislative action: teacher preparation and teacher compensation.

The other avenue suggested by the research, school leadership efforts, would not necessarily

require legislative action but it would require funding sources for appropriate training.

Teacher Preparation

Teacher preparation should be rigorous with an emphasis on pedagogical strategies

(including those for struggling learners), classroom management skills, data analysis, and the

methods by which teachers are evaluated. States should look to adopt residency-based models of

teacher preparation that mirror those in the medical professions, particularly in struggling

districts. Great scrutiny should be placed on alternative paths to teacher certification since

research suggests these programs lead to a higher attrition rate.

Compensation

Federal and state governments should create compensation packages for teachers that are

commensurate with other careers that require similar levels of education. Where local funding

sources do not make this possible, the state and federal government should implement salary

stipends to increase compensation. Higher wages and better benefits would not only entice more

young adults into education, they would also increase retention rates for teachers who may leave

education for higher-paying opportunities.

Another compensation-based policy that would entice more young adults into education

careers would be increased scholarship opportunities and student-loan forgiveness programs.

These programs could also be targeted towards high-demand positions (science, mathematics,
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special education to name a few) and toward prospective teachers who will work in struggling

districts (such as urban, high poverty, and high concentrations of English-language learners).

School Leadership

Research suggests that building principals can influence many factors that cause teachers

to leave schools or to leave teaching altogether. These factors include assigning master teachers

to as mentors to new teachers, establishing shared leadership models with their teachers,

prioritizing manageable workloads for teachers in their first three years, allocating resources to

support new teachers, and creating workplace structures that increase teacher collegiality.

As such, states should ensure the principal certification programs include robust research

and application of these factors. New principals should likewise be assigned veteran mentors

(from outside the district if needed) and school districts should support principals in establishing

the type of culture that promotes the retention of teachers. To that end, principal evaluations

should include measures that take this into account.

Implications for Democratic Values, Equity, and Diversity

As noted by NASSP (2016), problems with teacher retention are most great in schools in

urban settings, schools with high populations of minority students, and schools with other

relevant at-risk characteristics. Research from Carver-Thomas and Darling-Hammond (2016)

shows that the students left behind by teachers who leave suffer in terms of academic progress,

and that these negative effects can extend to all students in the school that the teacher left. As

such, students in poverty, minority students, and students with disabilities are more likely to feel

the negative affect of teacher attrition. Improving teacher retention would lead to more equitable

outcomes. Further, scholarship programs and loan forgiveness programs would likely entice
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more minorities to go into education careers, which would increase diversity among the teaching

ranks.

Policy Report and Recommendations

The proposal that brings about best policy deals with teacher compensation. Teacher

compensation commonly brings to mind teachers’ salaries and benefits but another

compensation-based policy focuses on scholarships and loan forgiveness that should be available

to college students who choose a career in education. The purpose of these financial incentives

would be to recruit more talent into teacher preparation programs and then give them financial

incentives to stay in the profession. Policy makers need to take steps to make professions in

education seem more prestigious. Though much work needs to be done on this front, a great first

step would be financial incentives to both enter and remain in a career in teaching.

Policies to enhance teacher preparation are being considered in Michigan. These policies,

if enacted into law by statute, would start to address the concerns of school leaders (and novice

teachers themselves) that they enter the teaching profession ill-prepared for many demands of the

job. While Michigan’s proposed policies are an appropriate step toward a better-prepared

teaching force, these policies alone will not entice more high-skilled adults into teaching careers.

School leadership is a significant factor into whether or not a novice teacher will remain

teaching in a particular school or will remain in the teaching profession at all. There are many

research-based strategies that district and school leaders can employ to both appropriately

support novice teachers in the skills they need to be successful as well as to make them feel

empowered and appreciated as professionals. However, as noted by the government relations

director of a Michigan educational organization, local districts simply competing against each

other to be perceived as the best place to teach is currently part of the problem in Michigan, as
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teachers frequently leave schools that they feel are less-desirable to work in than the one to

which they move. (Personal Communication, March 27, 2018) School districts and school

buildings should absolutely work to make teachers want to stay working with them but this

solution will not entice more high-quality teachers into the profession.

Policy Recommendation: Teacher Loan Forgiveness and Service Scholarships

The best policy will address teacher retention but it will also aim to increase teacher

recruitment. A policy that seeks positive affect on both fronts will increase the number of high-

skilled teachers in Michigan schools, particularly in high-demand subjects and in areas that

traditionally struggle to recruit and retain teachers. Areas that struggle to recruit and retain

teachers are frequently areas in urban settings and/or with high concentrations of minority

students. (National Association of Secondary School Principals, 2017) As such, this policy will

address both equity and diversity.

Podolsky and Kini (2016) note that loan forgiveness and service scholarship programs

have been found to be effective at recruiting/retaining both health care professionals and

educators into high-need areas, though such programs are much more prevalent for health care

professionals. They note that to be successful for recruiting/retaining educators, the loans or

service scholarships need to cover “a significant portion” of the costs of tuition and other

expenses. It is my belief that Michigan needs to adopt a program similar to North Carolina’s

Teaching Fellows Program. This programs recruits “high-ability high school students” into

teacher preparation programs by offering scholarships of $8,250 annually (renewal for four

years). In return for accepting this scholarship, recipients are required to work in North

Carolina’s public schools for four years. Scholarship recipients who do not meet these conditions

have their scholarship convert into a loan with a 10% interest rate. North Carolina has found
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teachers that participate in this program have higher rates of retention than teachers who do not.

Also, teachers that participate in this fellowship have higher effectiveness ratings than peers who

did not. (Podolsky & Kini, 2016)

Michigan’s program should be available only to high-achieving high school students. It

should have a monetary value large enough to offset significant portions of public university

tuition and it should have additional incentives for teachers in high-demand subjects and for

teachers in high-need schools. It should require scholarship recipients to work in a Michigan

public school for one year for each year they were awarded the scholarship. Those who do not

meet the service requirements should have the scholarship convert to a student loan.

Policy Instruments

Utilizing loan forgiveness and service scholarships to increase teacher recruitment and

teacher retention rely upon two policy instruments. These are inducements and capacity building.

Inducements

Inducements are a transfer of money in exchange for goods and services. (Fowler, 2013)

Inducements include the specific amount of money being exchanged for which specific goods

and services as well as the means by which this exchange shall take place. In the instance of my

policy proposal, high-achieving high school students will be enticed to enter into a career in

education by the promise to have much of their tuition covered by a scholarship. The Michigan

legislature should establish a baseline of not less than $8,250 in annual awards, renewable for

four years, with 25% incentives for high-demand subjects and 25% incentives for teaching in

high-need areas. As tuition costs rise, the baseline value of this award should arise at an equal

rate.
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Capacity Building

Capacity building speaks to investment into resources to be used for a specific purpose.

(Fowler, 2013). With my policy proposal, the Michigan state legislature would be investing

money, in the form of scholarships, to high-achieving Michigan high school students. This

money will pay for rigorous teacher preparation at any public Michigan university that grants

teaching certification. Once certified as a Michigan teacher, the recipient of these scholarships

would commit to a minimum of four years of work in Michigan public schools, putting highly

qualified educators into classrooms with Michigan students with assurances that they will stay in

the profession for a number of years. This builds the capacity of Michigan teachers by giving

financial incentives for high-achieving high school students to pursue careers in education. By

increasing the skill level of new teachers, Michigan would be increasing the capacity of K-12

students by providing them with high-quality teachers who, without the scholarship program,

may have entered into different career fields that promised higher salaries.

Criticisms

One criticism of a policy of proving scholarships to Michigan students to pursue and

remain in careers in teaching is that some feel that no teacher shortage exists, be it in Michigan

or nationwide. Some acknowledge that fewer Michigan teacher certificates are being awarded

annually but that this corresponds to a reduction in teaching positions in the state over the same

period of time. Gantert (2017) cites an estimate of the Michigan Department of Education that

over 100,000 people in Michigan hold a teaching certificate but do not work as a teacher, while

only about 70,000 people are actually employed as a Michigan public school teacher. However,

these statistics do not account for several factors. First, a number of those still holding teaching

certificates are retirees, many of whom hold permanent, non-expiring teaching certificates. Still
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others who hold teaching certificates are those who have moved into school administration roles

but opt to keep their teaching certificates. Some of these people would also include those who

left teaching for family reasons, such as child care or to care for another family member. Without

a true accounting for the intentions of these approximately 100,000 people it is misleading to

suggest that Michigan has so many teachers simply waiting for a job opening.

Another criticism would be the funding source(s) required to fund these scholarships. The

program proposed for Michigan to model, North Carolina’s Teaching Fellows Program, is

designed to be competitive and thus only 11,000 people have earned the award over

approximately 30 years. Using simple averages, and North Carolina’s current rate of $8,250 per

year, Michigan would need to allocate $3,000,000 - $3,500,000 annually to fund a similar

program. Governor Rick Snyder’s proposed 2018 fiscal year budget calls for over $56 billion

dollars in gross spending with over $16 billion being spent on education. (Michigan.gov, 2018)

Even at the upper end of my estimates, this proposal would add an incredibly small percentage to

the state budget.

Implementation

Michigan’s Legislature should set lofty academic eligibility requirements for high school

students who wish to apply for this service scholarship. To attract top high school talent,

applicants should possess a GPA of at least 3.25 and SAT scores of at least 1150. Such criteria

will ensure Michigan is actively recruiting some of the best high school students without limiting

the recruitment to only those with elite GPAs or test scores. Applicants who meet the application

criteria should submit an essay expressing their desire to become an educator. These should be

reviewed by a committee established by the Department of Education. Those whose essays are

deemed to be acceptable should be granted interviews with the college of education at a

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university to which they have been accepted as a student. These colleges should have the final

authority to grant the service scholarship, which will be paid with allocated state funds.

To effectively entice high-achieving high school students into teaching careers, the value

of the service scholarships needs to be large enough to offset a significant portion of the cost of

tuition. North Carolina’s current scholarship amount is $8,250, renewable for up to four years

and Michigan should seek to adopt the same baseline amount for this program’s award.

Additionally, to attract high-school students into high-demand teaching positions (mathematics,

science, world language, Special Education, and ELL) the scholarship amount should be

increased by 25% for students who graduate with those certifications. Further, to incentivize new

teachers to work in high-need districts, the scholarship amount should be increased by 25%

above the base level. Those who teach high-demand subjects in high-need districts, therefore,

would see a 50% larger scholarship than the base level.

The promise of these scholarships will attract new talent into the Michigan education

pipeline. To address teacher retention, the scholarships would actually have the effect of loan

forgiveness. Under this policy, the base level of the scholarship would be applied to a student’s

financial aid each year he/she is eligible. Upon graduation, those teaching in high-demand

subjects would be awarded an additional 25%, first to be applied to any student loans and then

available as a cash stipend if no student loans exist. Those who work in districts designated as

high-need would be awarded the additional 25% upon hiring. However, to guarantee the

scholarship award, a teacher from this program would need to teach in a Michigan public school

for one year for each year they were awarded the scholarship. If a scholarship recipient does not

meet these employment terms, the remaining value of the scholarship would revert to a student

loan to be repaid at 10% interest over 10 years.

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As a new scholarship program that is aimed at college freshmen, the Michigan State

Legislature needs to make a long-term commitment to this program to be able to evaluate its

effectiveness. With college taking four years (or more) and with the commitment on the

scholarship recipients’ end to work in a Michigan public school for four years to keep the

scholarship from transitioning into a loan, I would propose that this program be ensured to exist

for at least ten years. A ten year commitment would give Michigan five-to-six years of data to

measure the effectiveness of the program. As noted already, North Carolina finds that teachers

that go through this program have retention rates greater than those who do not (even beyond the

four year commitment) and it finds that, on average, teachers that go through this program have

higher effectiveness ratings than teachers that do not. As with any policy, Michigan will want to

review the effectiveness of this program to see if it warrants continuing, if changes (subtle or

sweeping) need to be made, or if it needs to be discontinued for not achieving its intended goals.

But to effectively review this program, Michigan needs to make a strong long-term commitment

to be able to measure its true impact. The success of the North Carolina program as well as other

similar programs offered by other states should give Michigan legislators the confidence to make

a ten-year commitment.

Conclusion

The problem of teacher retention will not be fully solved with any one policy. This fact

should not prevent Michigan from taking small, yet research-based, steps to increase the

attractiveness of a career in teaching and to increase the retention rate for those who enter into

the profession. A service scholarship program for prospective Michigan teachers, such as the one

being proposed, will need to be buffeted by strong teacher preparation programs and school

leadership that effectively supports novice teachers. And a larger issue of overall teacher
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compensation, compared to professions with similar levels of education, needs to be addressed.

But for relatively small amounts of money Michigan can use the model set by North Carolina to

attract top talent into teaching and to keep them in the profession once they begin.
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References

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