California has faced persistent teacher shortages for much of the past 25 years. As a result, the state is increasingly reliant on teachers who are not fully prepared to teach, and the number of substandard credentials issued each year has tripled since 2012–13. This study draws on administrative data from the California Department of Education and the California Commission on Teacher Credentialing to analyze the supply- and demand-side factors shaping teacher staffing challenges in California over time.
Despite declining enrollment across the state, demand for teachers remains high, driven by persistent teacher turnover, increasing student needs, expanded program offerings, and the need to lower pupil-teacher ratios. Teacher attrition accounts for over 85% of new teacher hires each year, and turnover rates are highest among beginning teachers; teachers holding emergency-style permits; Black, Multiracial, and American Indian/Alaska Native teachers; and special education teachers. Meanwhile, teacher preparation remains at roughly half of the levels observed over two decades ago. Teacher shortages are detrimental to students, as districts must resort to hiring teachers who are less qualified to teach or combine or cancel classes altogether, negatively impacting students’ opportunities to learn. Importantly, the consequences of teacher shortages are disproportionately borne by students of color and students from low-income families, who are more likely to attend schools contending with high turnover rates and chronic difficulties filling positions.
In recent years, California has made large-scale investments in the teacher workforce to increase access to preservice preparation and to incentivize experienced and effective teachers to work and remain in high-need schools. These investments are beginning to pay off. The number of new preliminary credentials issued to California-prepared individuals increased by 40% from 2022–23 to 2024–25, with growing racial diversity among teacher candidates and beginning teachers. After more than a decade, pupil-teacher ratios are also finally returning to their pre-Great Recession levels. However, while these targeted investments have supported improved teacher recruitment and retention, especially in high-need schools, many of these programs have ended or will sunset soon. Our report findings point to the need for sustained, coordinated, multi-pronged policy action to stabilize the teacher workforce and address persistent shortages across the state, building on recent progress the state has made.
