Provisional and Emergency Licensure:
Minnesota

Hiring Policy

Goal

The state should close loopholes that allow teachers who have not met licensure requirements to continue teaching. This goal was reorganized in 2021.

Does not meet
Suggested Citation:
National Council on Teacher Quality. (2021). Provisional and Emergency Licensure: Minnesota results. State Teacher Policy Database. [Data set].
Retrieved from: https://www.nctq.org/yearbook/state/MN-Provisional-and-Emergency-Licensure-94

Analysis of Minnesota's policies

Emergency License(s) Availability: Minnesota offers the Tier 1 license to districts unable to fill a position with a teacher holding a Tier 2, 3, or 4 license. An applicant for a Tier 1 license must have one of the following in the the content area to be taught: a bachelor's degree, an associate degree, professional certification, or five years of relevant work experience.

The state also offers the Tier 2 license. This license allows teacher candidates enrolled in a teacher preparation program to teach in their licensure area while they complete their program requirements. This license is also available to an applicant holding a master's degree or the equivalent in the assignment area. In addition to the content knowledge requirements required by the Tier 1 license, a candidate for a Tier 2 has several options for meeting a coursework requirement, one of which is passage of the applicable content knowledge exam.

Emergency License Validity Period: Minnesota's Tier 1 license is valid for one year and may be renewed. For the first renewal, the district must demonstrate there is an ongoing need and the applicant must demonstrate that they have "attempted the board-approved content examination aligned to the assignment." The applicant must also have an evaluation based on the state's evaluation system. Second and third renewals have similar requirements except attempting the content examination.  Additional renewals require the district to demonstrate that the Tier 1 teacher is teaching in: a career and technical education field, licensure field shortages, economic development region shortages, and in "regions where there is a shortage of licensed teachers who reflect the racial or ethnic diversity of students in the region."

The Tier 2 license is valid for two years and may be renewed three times. In order to be renewed, the applicant must participate in cultural competency training. For renewals greater than three years, requirements must be established by the Professional Educator Licensing and Standards Board (PELSB).

COVID-19 State Policy: Minnesota has implemented the following changes to its rules regarding Provisional and Emergency Licensure. Teacher preparation candidates unable to take Minnesota licensure exams who have a current job offer in their licensure area can be issued a Tier 2 teaching license. Candidates without a current job offer can apply for a short call substitute teaching license. COVID-19 policies do not affect the state's grade in Provisional and Emergency Licensure.

Requirements for Out-of-State Teachers: Because licensure requirements for out-of-state teachers are scored in Requirements for Out-of-State Teachers, only the state's policies regarding emergency/provisional license(s) are considered as part of this goal.

Citation

Recommendations for Minnesota

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. Minnesota 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. Minnesota's current policy puts students at risk by allowing teachers to teach on a license for three years or more without passing required licensing tests, especially since the state's policy acknowledges that some of these teachers are permitted to continue teaching despite having failed all or some sections of the required examinations.

State response to our analysis

Minnesota did not respond to NCTQ's request to review this analysis for accuracy.


Updated: March 2021

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.
Content Knowledge
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 provisional or emergency licensure, or the state does not issue emergency or provisional licenses. A state cannot get full credit in this goal if content tests are not required as part of its initial licensure policy.
  • 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. OR The state will earn three-quarters of a point if it grants an emergency or provisional license to a licensed teacher to teach out-of-field for no more than one-year without passing the applicable content test.
  • 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 will also earn one-half of a point if the state does not issue emergency/provisional licenses, or issues emergency/provisional licenses with strong requirements, but content tests are not required as part of the state's overall initial licensure policy.
  • 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 or only offers emergency or provisional licenses to teachers under "extenuating circumstances."

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