The Florida Senate
BILL ANALYSIS AND FISCAL IMPACT STATEMENT
(This document is based on the provisions contained in the legislation as of the latest date listed below.)
Prepared By: The Professional Staff of the Committee on Education
BILL: CS/SB 896
INTRODUCER: Education Committee and Senator Burgess
SUBJECT: Educator Certification Pathways for Veterans
DATE: February 2, 2022
ANALYST STAFF DIRECTOR REFERENCE ACTION
1. Lloyd Caldwell MS Favorable
2. Brick Bouck ED Fav/CS
3. RC
Please see Section IX. for Additional Information:
COMMITTEE SUBSTITUTE - Substantial Changes
I. Summary:
CS/SB 896 creates an additional pathway for veterans to qualify for educator certification. The
bill removes the requirement that an applicant for a temporary educator certificate hold a
baccalaureate degree if the applicant has completed:
At least 48 months of active-duty military service with an honorable discharge or medical
separation; and
At least 60 college credits with a minimum cumulative grade point average of 2.5 on a 4.0
scale, as provided by one or more accredited institutions of higher learning or a
nonaccredited institution of higher learning that the Department of Education has identified
as having a quality program resulting in a bachelor’s degree or higher.
The exception in the bill authorizing a temporary certificate for less than a baccalaureate degree
applies only to subject area specializations requiring only a bachelor’s degree. The bill provides
that a temporary certificate issued under this pathway is valid for five school fiscal years and is
nonrenewable.
The bill also removes the requirement for an honorably discharged veteran to have served on
active duty to qualify for the waiver of initial general knowledge, professional education, and
subject area examination fees and certification fees.
The bill takes effect July 1, 2022.
REVISED: BILL: CS/SB 896 Page 2
II. Present Situation:
Florida’s public school system enrolls approximately 2.8 million students annually across 67
school districts in grades pre-Kindergarten through 12.
1
During the 2020-2021 school year, these
students were supported by almost 340,000 personnel in administrative, instructional, and
support positions, with 60 percent identified as instructional staff.
2
Teachers represent 87 percent
of instructional personnel.
3
Instructional staff also include other personnel who interact with
students outside of the traditional classroom setting, such as guidance counselors, librarians,
social workers, and school psychologists.
Educator Certification Requirements
Educational personnel in public schools must possess appropriate skills in reading, writing, and
mathematics; adequate pedagogical knowledge; and relevant subject matter competence so as to
demonstrate an acceptable level of professional performance.
4
The State Board of Education (SBE) designates the certification subject areas, establishes
competencies, and adopts rules in accordance with which education certificates are issued by the
Department of Education (DOE) to applicants who meet the requirements.
5
Initial Eligibility
In order to seek educator certification, a person must attest to uphold the principles of the United
States (U.S.) and meet other general eligibility requirements, which include receipt of a
bachelor’s or higher degree from an approved postsecondary institution and minimum age,
background screening, moral character, and competence requirements.
6
Professional Educator Certificate
A professional certificate is awarded to an applicant who meets the basic eligibility requirements
for certification and demonstrates mastery of:
7
General knowledge, only if serving as a classroom teacher;
Subject area knowledge; and
Professional preparation and education competence.
Mastery of general knowledge may be demonstrated through several methods, including the
passing of one of several different examinations identified by the SBE, having a teacher
1
Florida Department of Education, About Us, https://www.fldoe.org/about-us/ (last visited Jan. 28, 2022).
2
Florida Department of Education, Staff in Florida Public Schools – Full Time Staff Summary, 2020-21, Final Summary 2,
State/District Level Report, https://www.fldoe.org/accountability/data-sys/edu-info-accountability-services/pk-12-public-
school-data-pubs-reports/staff.stml (last visited Jan. 28, 2022).
3
Florida Department of Education, Staff in Florida’s Public Schools, Full-Time Instructional Staff Summary, 2020-2021,
Final Survey 2, State/District Report, https://www.fldoe.org/accountability/data-sys/edu-info-accountability-services/pk-12-
public-school-data-pubs-reports/staff.stml (last visited Jan. 28, 2022).
4
Section 1012.54, F.S.
5
Section 1012.55(1)(a), F.S.
6
Section 1012.56(2), F.S., and Rule 6A-4.003, F.A.C.
7
Section 1012.56(2)(g)-(i), F.S. BILL: CS/SB 896 Page 3
education certification from another state, or teaching at a state college or university or private
college level for a minimum of two semesters in either full-time or part-time status.
8
Acceptable means of demonstrating mastery of subject area knowledge are specified in law and
include passing a subject area or other alternative examination as approved by the SBE, a valid
teaching certificate from another state, a valid certificate from the National Board for
Professional Teaching Standards (NBPTS), or a passing score or program completion of a
specified defense language proficiency test or program.
9
A candidate for a professional certificate may demonstrate professional preparation and
education competence through completion of a teacher preparation program and a passing score
on the corresponding professional education competency exam required by the SBE.
10
Other
means include:
11
Documentation of a valid professional standard teaching certificate issued by another state,
the NBPTS, or a national educator credentialing board approved by the SBE.
Passing the professional education competency examination and documentation of two
semesters of successful, full-time or part-time teaching in a state college or university or a
private college or university approved by the DOE.
Successful completion of professional preparation courses, successful completion of a
professional preparation and education competence program, and achievement of a passing
score on the professional education competency examination;
Successful completion of a professional development certification and education competency
program.
Successful completion of a competency-based certification program and achievement of a
passing score on the professional education competency.
Teacher Preparation Programs
Teacher preparation programs are accountable for producing individuals with the competencies
and skills necessary to achieve state education goals.
12
Each teacher preparation program must be
approved by the DOE based on criteria specified in law.
13
Teacher preparation programs result in
qualification for an initial Florida Professional Educator’s Certificate and include:
14
Initial teacher preparation programs, which are offered by Florida postsecondary institutions
to prepare instructional personnel.
Educator preparation institutes, which are offered by Florida postsecondary or qualified
private providers that provide instruction for non-education baccalaureate or higher degree
holders.
8
Section 1012.56(3), F.S.; and Fla Admin. Code. R. 6A-4.004(2020).
9
Section 1012.56(5), F.S.
10
Florida Department of Education, Competencies and Skills Required for Teacher Certification in Florida (Oct. 1, 2020),
incorporated by reference in rule 6A-4.0021, F.A.C., available at http://www.flrules.org/Gateway/reference.asp?No=Ref-
10344.
11
Section 1012.56(6), F.S.
12
Section 1004.04(1)(b), F.S.
13
Section 1004.04(3), F.S.
14
Section 1004.04, F.S.; Rule 6A-5.066(1)(k), (r), and (y), F.A.C. BILL: CS/SB 896 Page 4
Professional development certification programs, in which a school district, charter school, or
charter management organization may provide instruction for members of its instructional
staff who are non-education baccalaureate or higher degree holders.
Before program completion, each candidate must demonstrate his or her ability to positively
impact student learning growth in the candidate's area or areas of program concentration during a
prekindergarten through grade 12 field experience and must pass each portion of the Florida
Teacher Certification Examination required for a professional certificate in the area or areas of
program concentration.
15
Temporary Educator Certificate
A temporary teaching certificate is valid for 3 school fiscal years and is nonrenewable.
16
The
DOE is required by law to issue a temporary certificate to any applicant who:
17
Completes applicable subject area content requirements or demonstrates mastery of subject
area knowledge by, for example, successful completion of an approved exam; and
Holds an accredited degree or a degree approved by the DOE at the level required for the
subject area specialization in state board rule.
The DOE offers a variety of pathways to transition from a temporary to professional teaching
certification, including certification programs, professional training programs, and professional
preparation college courses.
18
A professional education competence program allows instructional personnel with a temporary
certificate may demonstrate mastery of professional preparation and education competence
through classroom application of Florida’s core standards for effective educators and
instructional performance.
19
Additions to Certificates
Once an educator holds a valid Florida Temporary or Professional Certificate, the educator may
be eligible to add another subject coverage according to subject specialization requirements in
the SBE rule.
20
Add-on programs are offered by colleges, universities, and school districts and
must be approved by the department. Currently, 34 school districts operate their own
certification add-on programs.
21
15
Section 1004.04(2)(d), F.S.
16
Section 1012.56(7), F.S.
17
Section 1012.56(7)(b), F.S.
18
Florida Department of Education, Certification Pathways and Routes, Pathways to Upgrade from a Temporary to a
Professional Certificate, https://www.fldoe.org/teaching/certification/pathways-routes/ (last visited Jan. 3, 2022).
19
Rule 6A-5.066(1)(u), F.A.C.
20
Florida Department of Education, Certificate Additions, https://www.fldoe.org/teaching/certification/additions/ (last visited
December 10, 2021).
21
Florida Department of Education, Professional Development Certification Programs,
https://www.fldoe.org/teaching/preparation/pdcp.stml (last visited Jan. 28, 2022). BILL: CS/SB 896 Page 5
Non-certificated Personnel
District school boards are authorized to employ selected non-certificated personnel to provide
instructional services in the individuals' fields of specialty or assist instructional staff members as
education paraprofessionals.
22
School board and charter school governing board policies for non-
certificated instructional are required to include specified provisions to create parity with
certificated personnel. For example, policies are required to assure that non-certificated
personnel possess the necessary relevant knowledge and a clear understanding of all relevant
instructional practices and policies.
23
Out-of-Field Instructors
An instructor may be approved by the district school board or charter school governing board to
teach a field in which the instructor lacks certification after a determination that a teacher with
appropriate certification coverage is not available. While employed, approved out-of-field
instructors must satisfy specified college credit or equivalent inservice training in an approved
district add-on program or district approved subject content professional development program.
24
Out of 644,437 courses in public schools that received a school grade in 2018-19, 6.79 percent
were taught by an out-of-field instructor.
25
Adjunct Teachers
District school boards are also authorized to issue an adjunct teaching certificate to any applicant
who satisfies general eligibility requirements for certification and has expertise in the subject
area to be taught. An applicant is considered to have expertise in the subject area if the applicant
demonstrates sufficient subject area mastery through passage of a subject area test.
26
Non-Degreed Teachers of Career Education
Qualifications for part-time and full-time non-degreed teachers of career and technical education
programs are based primarily on successful occupational experience rather than academic
training.
27
A holder of a certificate based on nonacademic preparation which entitled him or her
to employment to teach classes in career or adult education may not be assigned to teach in a
regular academic field of the kindergarten through grade 12 school program.
28
22
Section 1012.55(1)(c), F.S.
23
Rule 6A-1.0502, F.A.C.
24
Rule 6A-1.0503(3), F.A.C.
25
Florida Department of Education, Identification of Critical Teacher Shortage Areas for 2021-2022, available at
https://www.fldoe.org/core/fileparse.php/7766/urlt/CTSA2122.pdf, at 9.
26
Section 1012.57(1), F.S.
27
Section 1012.43, F.S.
28
Section 1012.43(2), F.S. BILL: CS/SB 896 Page 6
Military Personnel, Veterans, and Spouses
Fee Waivers
The SBE is required to waive initial general knowledge, professional education, and subject area
examination fees and certification fees for:
29
A member of the U.S. Armed Forces or a reserve component thereof who is serving or has
served on active duty or the spouse of such a member.
The surviving spouse of a member of the U.S. Armed Forces or a reserve component thereof
who was serving on active duty at the time of death.
An honorably discharged veteran of the U.S. Armed Forces or a veteran of a reserve
component thereof who served on active duty and the spouse or surviving spouse of such a
veteran.
A fee waiver is valid for up to five years after the veteran or his or her spouse is determined
eligible and can be requested online.
30
Military Extensions to Certificates
If an educator with a temporary certificate is called to active duty or volunteers, whether in
wartime or peacetime, the educator may request an extension of time to his or her temporary
certificate equal to the amount of time spent in service. A spouse of an active duty service
member or reserve unit may also request a two-year military extension to a temporary certificate
to complete the requirements for a Professional Certificate.
31
Federal Troops to Teachers Program
In 1993, the Department of Defense (DOD) established the Troops to Teachers (TTT) program
to assist transitioning service members and veterans in beginning careers as school teachers. The
program provided counseling and referral services to assist members and veterans in meeting
education and licensing requirements to secure a teaching position.
32
Within the program, the DOD provided assistance of up to $5,000 to eligible members to obtain
certification or licensing as educators, and up to $10,000 in bonuses to participants who agree to
teach in high-poverty schools.
33
Members of the armed forces who wish to receive the program’s assistance for placement are
required to have a bachelor’s or advanced degree, and priority is given to those members who
29
Section 1012.59(3), F.S.
30
Rule 6A-4.0012(8)(e), F.A.C.
31
Section 1012.56(7)(c), F.S.
32
United States Army, Troops to Teachers (TTT), https://myarmybenefits.us.army.mil/Benefit-Library/Federal-
Benefits/Troops-to-Teachers-(TTT)?serv=122 (last visited Jan. 28, 2022).
33
U.S. Department of Education, Troops to Teachers Program, https://www2.ed.gov/programs/troops/index.html (last visited
Jan. 12, 2022). BILL: CS/SB 896 Page 7
have educational or military experience in science, mathematics, special education, or
vocational/technical subjects.
34
To receive the stipend, participants are required to:
35
Be enrolled in an accredited institution that would result in licensure as a full-time teacher;
Commit to full-time teaching in an eligible or high need school for three years; and
If not retired or discharged due to service-connected physical disability, commit to serving
three years in reserves.
The program’s goals include reducing veteran unemployment, increasing the number of male
and minority teachers in classrooms, and addressing the teacher shortage issues in schools that
serve low-income families and in the critical subject areas including math, science, special
education, foreign language, and career and technical education. Since the program’s launch in
1993, more than 100,000 veterans have transitioned to a career in education.
36
The TTT program was extended through July 1, 2025, in the National Defense Authorization Act
for Fiscal Year 2022.
37
III. Effect of Proposed Changes:
CS/SB 896 creates an additional pathway for veterans to qualify for educator certification. The
bill removes the requirement that an applicant for a temporary educator certificate hold a
baccalaureate degree if the applicant has completed:
At least 48 months of active-duty military service with an honorable discharge or medical
separation; and
At least 60 college credits with a minimum cumulative grade point average of 2.5 on a 4.0
scale, as provided by one or more accredited institutions of higher learning or a
nonaccredited institution of higher learning that the Department of Education has identified
as having a quality program resulting in a bachelor’s degree or higher.
The exception in the bill authorizing a temporary certificate for less than a baccalaureate degree
applies only to subject area specializations requiring only a bachelor’s degree. A temporary
certificate issued under this pathway is valid for five school fiscal years and is nonrenewable.
The bill requires that temporary certificate holders be assigned a teacher mentor during their first
two years of employment. The teacher mentor must hold a valid professional teaching
certification, have at least three years of teaching experience, and have earned an effective or
highly effective rating on the prior year’s performance evaluation.
The bill also removes the requirement for an honorably discharged veteran to have served on
active duty to qualify for the waiver of initial general knowledge, professional education, and
subject area examination fees and certification fees.
34
U.S. Department of Education, Troops to Teachers Program, https://www2.ed.gov/programs/troops/index.html (last visited
Jan. 12, 2022).
35
United States Army, Troops to Teachers (TTT), https://myarmybenefits.us.army.mil/Benefit-Library/Federal-
Benefits/Troops-to-Teachers-(TTT)?serv=122 (last visited Jan. 28, 2022).
36
United States Army, Troops to Teachers (TTT), https://myarmybenefits.us.army.mil/Benefit-Library/Federal-
Benefits/Troops-to-Teachers-(TTT)?serv=122 (last visited Jan. 28, 2022).
37
Pub. L. No. 117-81, s. 1605 (Dec. 27, 2021). BILL: CS/SB 896 Page 8
The potential availability of additional educators, especially as Florida faces a teacher shortage in
certain regions and in specific instructional subject matters could provide district school board
with enhanced options and expanded personnel choices. Experienced military leaders who have
mentored and educated military service members for years may have skills and experiences that
can translate easily to the classroom and would be a ready-made workforce for Florida’s public
and charter schools and could address short and long-term workforce needs.
The bill takes effect July 1, 2022.
IV. Constitutional Issues:
A. Municipality/County Mandates Restrictions:
None.
B. Public Records/Open Meetings Issues:
None.
C. Trust Funds Restrictions:
None.
D. State Tax or Fee Increases:
None.
E. Other Constitutional Issues:
None.
V. Fiscal Impact Statement:
A. Tax/Fee Issues:
None.
B. Private Sector Impact:
None
C. Government Sector Impact:
None.
VI. Technical Deficiencies:
None. BILL: CS/SB 896 Page 9
VII. Related Issues:
None.
VIII. Statutes Affected:
This bill substantially amends sections 1012.56 and 1012.59 of the Florida Statutes.
IX. Additional Information:
A. Committee Substitute – Statement of Substantial Changes:
(Summarizing differences between the Committee Substitute and the prior version of the bill.)
CS by Education on February 1, 2022:
The committee substitute:
Clarifies that the provision in the bill that provides a waiver of the requirement that an
applicant for an educator certificate possess a baccalaureate degree applies only to a
temporary certificate.
Requires veterans that are issued a temporary certificate without a baccalaureate
degree under the bill to be assigned a teacher mentor for a minimum of 2 school years
commencing employment.
B. Amendments:
None.
This Senate Bill Analysis does not reflect the intent or official position of the bill’s introducer or the Florida Senate.