Extended Emergency Licenses: Florida

Exiting Ineffective Teachers Policy


The state should close loopholes that allow teachers who have not met licensure requirements to continue teaching.

Does not meet goal
Suggested Citation:
National Council on Teacher Quality. (2013). Extended Emergency Licenses: Florida results. State Teacher Policy Database. [Data set].
Retrieved from: https://www.nctq.org/yearbook/state/FL-Extended-Emergency-Licenses-24

Analysis of Florida's policies

Florida allows new teachers who have not passed required state licensing tests to teach for up to three years on a temporary certificate. Although the state requires teachers to pass its general knowledge test in the first year of teaching, it allows teachers to practice for up to three years without passing its required content test. 


Recommendations for Florida

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, instead extending personal consideration to adults who may not be able to meet minimal state standards. Florida should ensure that all teachers have passed their licensing tests—an important minimum benchmark for entering the profession—prior to entering the classroom.

Limit exceptions to one year.

There might be limited and exceptional circumstances under which conditional licenses need to be granted. In these instances, it is reasonable for a state to give teachers up to one year to pass required licensure tests. However, Florida's current policy puts students at risk by allowing teachers to teach on emergency certificates for three years without passing required subject-matter tests.

State response to our analysis

Florida noted that to be issued the Florida Temporary Certificate valid for three years, a teacher candidate must complete the subject-area content requirements specified in state board rule or demonstrate mastery of subject-area knowledge by passing the Florida subject-area exam. The subject-area content requirements outline acceptance of specific degree majors or itemized content-area course credits necessary to ensure minimum subject-area specialization. 

Last word

NCTQ holds that showing a subject-area specialization through coursework is only a half measure, and that Florida should mandate that teacher candidates prove their mastery of the subject area through a subject-matter examination. Even a content major is only indicative of a general background in a particular subject area; only a subject-matter test ensures that candidates know the specific content they will need to teach.

Research rationale

Teachers who have not passed licensing subject-matter 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. 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 minimal state standards.

While some flexibility may be necessary because licensing tests are not always administered with the needed frequency, the availability of provisional certificates and waivers year after year signals that even 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.

Extended Emergency Licenses: Supporting Research

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 E. Hanushek, "The Trade-Off between Child Quantity and Quality," The Journal of Political Economy, Volume 100, No. 1, February 1992, pp. 84-117. Hanushek has also found that highly effective teachers can improve future student earnings by more than $400,000, assuming a class of 20.  "The Economic Value of Higher Teacher Quality", National Bureau of Economic Research, Working Paper 16606, December 2010.