Sec. 2. Findings

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Congress finds the following: Decades of research have shown that teachers are the single most important school-based factor in student achievement, and an analysis by the Brookings Institution indicates that a high level of teacher turnover is negatively associated with student achievement, and is higher in urban schools and schools with more economically disadvantaged students. A report by the National Commission on Teaching and America’s Future estimated that districts spend between $10,000 and $17,000 for each teacher who leaves the district, making teacher turnover and attrition a costly issue for school systems.

The United States education system is experiencing an ongoing teacher recruitment, retention, and shortage crisis. According to a National Education Association survey in January of 2022, 55 percent of all teachers, 62 percent of Black teachers, and 59 percent of Hispanic or Latino educators said they were more likely to retire early or leave the profession. In the same survey, 74 percent of teachers report having to fill in for colleagues or take on other duties due to staff shortages, while 90 percent of respondents pointed out that teacher burnout is becoming a very serious issue.

As a Nation, we face the possibilities of vacancies and educator burnout being exacerbated by educator shortages. An analysis by the Economic Policy Institute of teacher turnover data suggests that low salaries, lack of professional development opportunities, and a difficult school climate, including lack of teacher input into school policy, are common factors behind teachers leaving the workforce. According to a report by Teach Plus and the Education Trust, teachers of color, who, on average experience higher turnover rates, report that they have considered leaving the profession because they lack agency, autonomy in decision making, and opportunities for leadership.

Studies show that all students benefit from having racially diverse teachers. These benefits are magnified for students of color, who experience improved academic performance, higher graduation rates, and increased interest in pursuing higher education. Teachers of color are underrepresented in schools, with only 20 percent of the teacher workforce identifying as people of color versus over 50 percent of public school students. Teachers of color are also more likely to teach in schools that serve a high proportion of students of color, in schools that are underresourced, and in schools that have higher overall teacher turnover rates.

Studies show that there is a positive link between professional leadership opportunities, job satisfaction, and retention of classroom teachers, and that compensation for teachers’ added leadership responsibilities increases teacher retention. In a Gates Foundation Survey, only 12 percent of all teachers surveyed reported receiving consistent job-embedded mentorship and professional development from veteran teachers, despite multiple studies showing that consistent mentorship improves student learning.

The New Teacher Project found that only 26 percent of high-performing teachers agreed that their school leadership identified opportunities or clear paths for teacher leadership roles. According to a report by Teach Plus and the Education Trust, teachers' investment in their schools and their likelihood of retention is greater where opportunities exist to innovate and advocate on behalf of students, especially when a teacher acts in partnership with school and district administration to address student and teacher needs.

Structured leadership programs are an effective way to help combat the nationwide teacher shortage and improve teacher retention by empowering teachers and establishing formal peer mentorships between effective and experienced teachers and those just entering the profession, which also leads to academic and socio-emotional benefits for students. Federal policies are needed to encourage and fund the establishment of structured leadership programs at public schools, especially in high-need schools and school districts.