National Education Association
A Report and Recommendations to Professionalize Substitute Teaching
Center for Great Public Schools
Teacher Quality Department
May, 2012
NEA | A Report and Recommendations to Professionalize Substitute Teaching / 1The National Education Association (NEA), the nation's largest professional employee organization, is committed to advancing the cause of public education. NEA's 3 million members work at every level of education—from pre-school to university graduate programs. NEA has affiliate organizations in every state and in more than 14,000 communities across the United States.
NEA Executive Committee Members
Dennis Van Roekel, President
Lily Eskelsen, Vice-President
Rebecca Pringle, Secretary-Treasurer
Greg Johnson
Christy Levings
Paula Monroe
Princess Moss
Joyce Powell
Earl Wiman
John C. Stocks, Executive Director
While every attempt was made to ensure the accuracy of the data in this report, it is possible that errors have occurred. Please communicate reports of any errors or comments you may have about the report, as well as any updated information to: Linda Davin, NEA Teacher Quality Department, at .
NEA | A Report and Recommendations to Professionalize Substitute Teaching / 1Becoming a substitute teacher is not very hard. In fact, you don't actually have to have a degree in order to do it, but you should probably be out of high school before you try to apply. You're going to probably get paid about minimum wage to do this substitute teacher job, so it's almost like volunteering. If you're trying to substitute in order to find out if you want to be a teacher, know that this class belongs to another teacher, so it's going to be harder for you to sort of teach them anything…. you're going to be more of a stand in, and it's really not going to feel completely like having your own class.
So the best way, the best route, to becoming a teacher is going to be actually going to get your teaching degree and doing some student teaching because subbing is a lot more like, well frankly, babysitting in many cases. But it's a good thing to do in your spare time, if you enjoy doing that kind of thing, and you need a little part time job, so good luck subbing.
“How to become a substitute teacher” from the eHow site
While significant time and attention has been spent on improving teaching and learning in America’s public schools over the past 25 years, there is one part of the education equation that is rarely addressed: the important role that substitute teachers play in America’s public schools.
No one can say with certainty the number of hours substitute teachers spend in America’s classrooms, but the number is substantial. Classroom teachers are absent from the workplace for all of the usual reasons employees use leave: illness or medical appointments for themselves or family members, personal leave, and even short-term military service. Plus, in many districts, teachers are scheduled to be out of the classroom for professional development activities or because they have taken on roles related to school improvement or reform, such as curriculum development, mentoring responsibilities, or peer assistance and review.
Substitute teachers serve as educational bridges
The Association recognizes that effective substitute teachers make a significant contribution to the school program. They serve as educational bridges when regular classroom educators are absent. Short-term substitutes, who are called early in the morning, take over lessons with short notice and ensure that quality education is maintained in our classrooms. Those who are replacing the regular teacher for long-term assignments take on more responsibility for lesson planning and the many responsibilities that go along with instruction and classroom management. But no matter whether the teaching assignment lasts a single day or several months, the professional substitute aims to make sure that classroom time is productive and that students continue learning. It is in everyone’s interest—students, parents, regular teachers, and the community—that school districts hire qualified individuals as substitute teachers and support them in their work with students. As part of its commitment to helping build a qualified,diverse teacher workforce so that all students have access to great public schools, the Association urges school districts to employ highly qualified individuals to fulfill the critical role of substitute teachers.
What are the qualifications needed to become a substitute teacher?
The reality is that it depends on where you live. A few states set high standards for substitute teaching—but most do not. Some states specify minimum credentials and training, while others leave the issue entirely to the discretion of local districts or counties. Requirements vary greatly from district to district, although some may require significantly higher credentials than a state’s meager guidelines, which may require only that substitutes be at least 18 years of age and have the equivalent of a high school diploma. Even those states with professional standards for substitute teachers often allow schools or districts facing a substitute shortage to waive requirements.
A summary of state requirements for substitute teachers, published in 2010 by the Substitute Teaching Institute at Utah State University, confirms the lack of consistency on this issue (http://stedi.org/common/documents/state-requirements-for-substitute-teachers-2010.pdf). Some states issue certificates or licenses or permits for substitute teachers, while others do not. Alaska, for example, does not issue substitute teacher certificates, although it deems retired teachers to be qualified as substitute teachers. At least two states—Kentucky and Nebraska—make a distinction between a state license and one that is authorized by the local district. Nebraska issues a state substitute teacher certificate for those with a BA in education, but local districts issue their own certificates for individuals with at least 60 hours of college credit.
The variability in policy continues across other issues related to employment of substitute teachers. Some states set limits on the number of days that a substitute educator may be in a single assignment; many require background checks; some make a distinction between long- and short-term teaching assignments. Few specify any pre-employment training, and fewer still even raise the issue of evaluation. It is important to note that districts may set higher standards for the employment of substitute teachers than what is required by the state.
According to the Substitute Teaching Institute:
· 27 states (Ala., Ariz., Colo., Del., Hawaii, Ill., Ind., Iowa, Kans., Ky., Mich., Minn., Miss., Mo., Neb., Nev., N.M., N.D., Ohio, Okla., Ore., Pa., R.I., Wash., W. Va., Wis., and Wyo.) and D.C. offer some sort of license, permit, authorization, or certificate for substitute teachers. A few states offer more than a single type of substitute permit, which varies according to the minimum education requirements.
· 19 states (Ariz., Calif., Conn., Del., Hawaii, Iowa, Kan., Ky., Minn., Miss., Neb., N.D., Ohio, Ore., Pa., R.I., Wash., W.Va., and Wis.) and D.C. note that a bachelor’s degree is needed—but also offer waivers or ways to get around the requirement. States that do not require a college degree sometimes specify a minimum number of college credits hours.
· 6 states (Ala., Colo., N.M., Utah, Vt., and Va.) specifically note that a high school diploma (or its equivalent) is required.
· 17 states (Ala., Ariz., Calif., Hawaii, Idaho, Ind., Maine, Mich., Mo., Neb., Nev., N.M., N.D., Pa., Va., W.Va., and Wyo.) plus D.C. mandate that applicants pass a criminal background and/or fingerprint check
· 4 states (Hawaii, Va., W.Va., and Wis.) require some minimal training or orientation
· Rhode Island requires districts to advertise for certified substitute teachers
· Wyoming says those wishing to earn a substitute teacher permit must take a U.S./Wyoming constitution or equivalency test
· New Mexico says substitute teachers must be 18 years of age to work in a K-8 environment and 21 years of age for grades 9-12; Virginia says that 18 is the minimum age but that age 21 is preferred.
With such a hodgepodge of state policies and district procedures, it’s clear that drawing more qualified individuals into substitute teaching will require action on several levels. Districts need to place a higher priority on finding and employing qualified substitute teachers as well as on managing and supporting them. Some districts, for example, assign substitute teachers to regular positions for extended periods of time because that is less costly than employing licensed teachers. Others pull resource teachers from their regular assignments and use them as substitutes. Some districts use ESPs to replace the regular classroom teacher. The bottom line is that students deserve to be taught every day by a qualified teacher, even when the regular classroom teacher is absent.
In order to professionalize substitute teaching and make it more appealing to those with at least a college degree, these issues must be addressed:
· Salaries and benefits. In many places, rural districts especially, salaries are low, hovering just above minimum wage. In urban areas, the rates tend to be somewhat higher.
Some districts pay substitute teachers based on qualifications. In Carroll County, Maryland, for example, the pay rate for substitute teachers for 2011-2012 looks like this:
o Certificated: $105 per day (hourly rate is $15)
o Degreed: $85 per day (hourly rate is $12.14)
o Non-degreed: $78 per day (hourly rate is $11.14)
o Long-term degreed: $95 per day (10-20 consecutive days in the same assignment, retroactive to the first day).
o Extended long term: $100 per day (21 or more consecutive days in the same assignment, not retroactive).
· Professional training and development. Substitute educators need more opportunities to build their instructional practice and classroom management skills.
· Support from principals and others in the school. Substitutes can do a better job when they are considered part of the educational team rather than being isolated or invisible in the school.
· Communication between substitutes and administrators, as well as the regular classroom teacher.
· Full, unbiased consideration for contractual employment.
Association recommendations to professionalize substitute teaching
Strengthen state policies on substitute teaching
Every state should have policies in place on the employment of substitute teachers. States should give priority to those holding a teaching credential, although all substitutes should be required to hold a bachelor’s degree. Districts should be required to provide pre-employment training to all substitute teachers. See the appendix for sample state language on these and other issues related to substitute teaching.
Find ways to draw more qualified individuals into substitute teaching
· Encourage school systems to review existing substitute programs and protocols and develop practical plans to draw more qualified substitutes into the schools.
· Create incentives for retired teachers or non-working certified teachers to serve as substitute teachers.
For example: Indianapolis Public Schools (IPS) pays substitute with a teaching license more than those with a college degree and those who have retired from IPS more than other retired teachers. Here is the pay scale for the 2012-13 school year:
o BS+ Degree: $100 per day
o Valid (Current) Indiana Teacher License: $125 per day
o Retired Teacher (Non IPS): $125 per day
o Retired Teacher (IPS): $150 per day
For example: The Rockwood School District in Eureka, Mo., says retired teachers may teach 550 hours as substitutes without being penalized by the Retirement Board.
· Encourage districts to recruit candidates with preferred qualifications, giving them status as permanent substitutes or building substitutes so that they can develop relationships with students and staff.
For example: Anne Arundel County Public Schools in Maryland hires permanent substitutes, who are defined as “permanent employees with benefits who are assigned to one school for the purpose of filling in for a teacher on leave.”
Improve compensation and benefits
· Raise pay for all substitutes and offer bonuses (longevity pay) after a certain number of days as a substitute.
Montgomery County (Md.) Education Association contract language on salaries (2010-2014):
Long-term substitutes having worked 45 days in the same assignment shall be paid 10 percent higher than the regular long-term rate for the remainder of the assignment.
Any substitute teacher who works a minimum of 45 days (315 hours) during a semester shall receive a bonus of $450 at the conclusion of the semester.
· United Educators of San Francisco contract language on salaries (2010-2012):
Each year substitutes shall begin with the “1-70” day rate of pay, provided that upon reaching 71 days the first seventy days become retroactively paid at the “71 or more” rate of pay.
K-12 substitute teachers who serve ten (10) or more consecutive days in the same class for the same absent teacher shall be paid a daily bonus. The bonus shall be retroactive to the first day of the assignment.
· Health care and other benefits should be offered to permanent or long-term substitute teachers once they have taught a certain number of days in the district.
Cambridge (Mass.) Teachers Association contract language on health benefits (2009-2012):
A building substitute, while employed in that capacity, shall be eligible for health insurance benefits in accordance with the standard plans provided by the employer. The employer shall pay 70% of the premium cost of health insurance benefits, and the employee shall pay 30% of the cost.
· Place substitute teachers who hold a license in the subject area in which they will be substituting on the appropriate place on the salary schedule. If the person holds a teaching license in another area, the person should be paid at least the beginning rate on the salary schedule. A person who holds a substitute license should be paid at the substitute rate.
For example: In Oregon, the daily minimum salary for substitute teachers is set by the legislature at 85 percent of the average beginning teacher. A substitute cannot be paid for less than a half day; work beyond a half day becomes a whole day. After 10 days in one assignment, the substitute teacher is paid the daily salary of a beginning teacher in the district.
Provide pre-employment training to substitute teachers
· States should require pre-employment training. One example is the Wisconsin Education Association Council’s online training course, “Foundations in Effective Substitute Teaching” (http://weaacademy.org/catalog_view.cfm?crid=25).
The WEAC course includes these modules: 1) welcome to substitute teaching; 2) the work of a substitute teacher; 3) the school environment; 4) the students; 5) classroom management; 6) getting ready: putting it all together. Specific topics include professionalism, responsibilities of a substitute, legal and ethical considerations, health and safety information, age-appropriate learning strategies, lesson plans, behavior management, and more. The course includes video clips, a quiz, self-reflection activities, and a forum for discussion with other participants. An instructor is available by email to answer questions, review assignments, and monitor the person’s progress.