Access Without Compromise: Workforce Solution or Policy Risk?

Date of Award

8-15-2026

Degree Name

Ed.D. in Leadership for Organizations

Department

Department of Educational Administration

Advisor/Chair

Davin Carr-Chellman

Abstract

The ongoing teacher shortage has led to the implementation of expedited licensure policies designed to ensure classrooms remain adequately staffed. One such initiative is the Interim Resident Educator License (IREL), which allows candidates who have completed an approved educator preparation program and passed the state applied knowledge assessment to obtain a state-issued teaching license even if they have not yet passed the required content licensure examination. While the IREL addresses immediate staffing needs, it was implemented without empirical evidence regarding its effects on teacher readiness, instructional quality, or retention. The Problem of Practice guiding this Dissertation in Practice is the lack of evidence-informed guidance to improve the design, implementation, and oversight of the IREL so that it functions as a coherent and responsible workforce strategy rather than a permanent exception. The literature highlights persistent challenges in recruiting, preparing, and retaining teachers, particularly in high-need contexts. Research on alternative licensure pathways has yielded mixed findings, with outcomes closely associated with the quality of preparation, mentoring, and organizational support provided to candidates. However, limited research examines pathways in which candidates assume full instructional responsibility before demonstrating content mastery. This gap constrains policymakers’ ability to determine whether short-term staffing solutions strengthen or undermine professional standards, equity, and student learning. This study employed an explanatory sequential mixed-methods design to examine the implementation, experiences, and perceptions associated with the IREL. Quantitative data were collected through a survey of IREL holders (N = 11) to assess candidate characteristics, preparation pathways, perceptions of readiness, licensure testing experiences, and access to support structures. Qualitative data were gathered through semi-structured interviews with workforce administrators, educator preparation program faculty, licensure assessment personnel, and policy leaders involved in educator credentialing and hiring. The integration of quantitative and qualitative data enabled triangulation of candidate-level experiences and system-level perspectives, providing a more comprehensive understanding of policy implementation and system coherence. Findings indicate that the IREL functions as an access-oriented staffing mechanism that expands entry into the teaching profession, particularly in high-need areas. However, results also reveal considerable variability in implementation and candidate experiences. Although participants generally reported feeling instructionally prepared through their educator preparation programs, perceptions of readiness for full-time teaching varied, as did access to licensure examination support and clarity regarding program requirements. Most participants identified the content licensure examination as a significant barrier, raising concerns about potential misalignment between preparation and assessment. Qualitative findings further revealed inconsistent mentoring and onboarding practices, misalignment among preparation programs, licensure requirements, and hiring timelines, as well as concerns regarding policy ambiguity and the gradual normalization of a temporary licensure pathway. This study provides early exploratory evidence to inform the refinement of the IREL as a workforce policy strategy. Recommendations include strengthening candidate support structures, improving alignment between educator preparation and licensure assessments, clarifying implementation expectations, and enhancing cross-sector collaboration. The findings also underscore the importance of ongoing data monitoring and continuous feedback mechanisms to evaluate long-term outcomes related to teacher effectiveness and retention. By grounding licensure policy decisions in practitioner and system-level evidence, this study positions licensure policy as a potential lever for workforce stability when aligned with coherent systems of preparation, assessment, and support.

Keywords

Education, Education Policy, Educational Leadership

Rights Statement

Copyright 2026, author

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