Minnesota Teacher Licensure
O L A OFFICE OF THE LEGISLATIVE AUDITOR STATE OF MINNESOTA
EVALUATION REPORT
Minnesota Teacher Licensure
MARCH 2016
PROGRAM EVALUATION DIVISION Centennial Building ? Suite 140 658 Cedar Street ? St. Paul, MN 55155 Telephone: 651-296-4708 Fax: 651-296-4712 E-mail: legislative.auditor@state.mn.us Website: auditor.leg.state.mn.us Through Minnesota Relay: 1-800-627-3529 or 7-1-1
Program Evaluation Division
Evaluation Staff
The Program Evaluation Division was created within the Office of the Legislative Auditor (OLA) in 1975. The division's mission, as set forth in law, is to determine the degree to which state agencies and programs are accomplishing their goals and objectives and utilizing resources efficiently.
Topics for evaluations are approved by the Legislative Audit Commission (LAC), which has equal representation from the House and Senate and the two major political parties. However, evaluations by the office are independently researched by the Legislative Auditor's professional staff, and reports are issued without prior review by the commission or any other legislators. Findings, conclusions, and recommendations do not necessarily reflect the views of the LAC or any of its members.
OLA also has a Financial Audit Division that annually audits the financial statements of the State of Minnesota and, on a rotating schedule, audits state agencies and various other entities. Financial audits of local units of government are the responsibility of the State Auditor, an elected office established in the Minnesota Constitution.
OLA also conducts special reviews in response to allegations and other concerns brought to the attention of the Legislative Auditor. The Legislative Auditor conducts a preliminary assessment in response to each request for a special review and decides what additional action will be taken by OLA.
James Nobles, Legislative Auditor Judy Randall, Deputy Legislative Auditor
Joel Alter Caitlin Badger Valerie Bombach Ellen Dehmer Sarah Delacueva Will Harrison Jody Hauer David Kirchner Laura Logsdon Carrie Meyerhoff Ryan Moltz Judy Randall Catherine Reed Jodi Munson Rodriguez Laura Schwartz KJ Starr Katherine Theisen Jo Vos
To obtain reports in electronic ASCII text, Braille, large print, or audio, call 651-296-4708. People with hearing or speech disabilities may call through Minnesota Relay by dialing 7-1-1 or 1-800-627-3529.
To offer comments about our work or suggest an audit, investigation, or evaluation, call 651-296-4708 or e-mail legislative.auditor@state.mn.us.
Printed on Recycled Paper
For more information about OLA and to access its reports, go to: auditor.leg.state.mn.us.
O L A OFFICE OF THE LEGISLATIVE AUDITOR STATE OF MINNESOTA ? James Nobles, Legislative Auditor
March 2016 Members of the Legislative Audit Commission: At your request, the Office of the Legislative Auditor evaluated teacher licensure in Minnesota. This report presents the results of our evaluation. We found that teacher licensure laws are complex, unclear, and confusing. We also found that because the Minnesota Board of Teaching and the Minnesota Department of Education share responsibility for licensing teachers in Minnesota, accountability is diffuse and decision making is not always transparent. We make a number of recommendations for the Legislature to consider that would clarify teacher-licensure requirements and more clearly assign responsibility for licensing teachers in the state. Our evaluation was conducted by Judy Randall (evaluation manager), Sarah Delacueva, and Katie Reed. The Minnesota Board of Teaching and the Minnesota Department of Education cooperated fully with our evaluation. Sincerely,
James Nobles Legislative Auditor
Room 140 Centennial Building, 658 Cedar Street, St. Paul, Minnesota 55155-1603 ? Phone: 651-296-4708 ? Fax: 651-296-4712 E-mail: legislative.auditor@state.mn.us ? Website: auditor.leg.state.mn.us ? Minnesota Relay: 1-800-627-3529 or 7-1-1
Table of Contents
Page
SUMMARY
ix
INTRODUCTION
1
1. BACKGROUND
3
Overview
3
Teacher-Licensure Regulation
4
Teacher-Preparation Programs
7
Concerns
12
2. TEACHER LICENSES AND LICENSURE REQUIREMENTS
15
Types of Teacher Licenses
15
Special Permissions
19
Licensure Requirements for Educators Trained in Minnesota
21
Licensure Requirements for Educators Trained or Licensed in Other States
26
3. TEACHER-LICENSURE PROCESS
35
Overview
35
Traditional Application Process
35
Areas of Concern
41
Licensure by Portfolio
51
Special Permissions Requests
53
Licensure Denials and Appeals
59
4. TEACHER-LICENSURE LAWS
67
Multiple Changes to Laws
67
Undefined and Duplicative Terms
70
Inconsistent Statutes and Rules
72
Unclear Laws
72
Exceptions
74
Recommendations
75
5. GOVERNANCE STRUCTURE
81
Board of Teaching
81
Minnesota Department of Education
84
Licensure Governance Structure
85
Other States' Oversight of Teacher Licensure
89
Licensing Other Professions in Minnesota
90
Recommendations
93
LIST OF RECOMMENDATIONS
99
AGENCIES' RESPONSES
101
Board of Teaching
101
Minnesota Department of Education
103
RECENT PROGRAM EVALUATIONS
107
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