Legislative Analysis
Phone: (517) 373-8080
USE OF NONCERTIFICATED, NONENDORSED http://www.house.mi.gov/hfa
STUDENT TEACHERS
Analysis available at
House Bill 5685 as introduced http://www.legislature.mi.gov
Sponsor: Rep. Pamela Hornberger
Committee: Education
Complete to 1-31-22
SUMMARY:
House Bill 5685 would add a section to the Revised School Code that would allow the
board of a school district or intermediate school district (ISD) or the board of directors of
a public school academy (PSA, or charter school) to employ directly, employ through a
contract, or contract for a full-time or part-time noncertificated, nonendorsed student
teacher without permit to teach in a school operated by the board for up to one year.
MCL 380.1231 and proposed MCL 380.1233d
BACKGROUND:
Of note, an August 2020 memorandum1 from the Michigan Department of Education
(MDE) stated that students enrolled in teacher preparation programs have long been
underutilized in filling vacancies when districts struggle to find fully certified teachers. The
memo notes that, while “this approach should not be used to circumvent the hiring of fully
credentialed staff, or be implemented in a widespread manner, hiring student teachers does
provide a choice that is better than hiring an individual with no training or no experience.”
The memo goes on to say that districts may hire student teachers for a teaching assignment
by utilizing the full-year basic substitute permit,2 which requires at least 60 semester hours
of satisfactory credit from a qualifying college or university; a relevant major, 30 hours in
the content area, or passing scores on the state-approved discipline area test if the
assignment is in a core discipline; and that a mentor teacher be assigned. The permit can
be renewed for subsequent years if certain conditions are met.
Additionally, a November 2021 appeal3 by MDE identified the teacher shortage as the
greatest issue facing Michigan schools and school children. Among its recommendations
to address the shortage was a stipend for student teachers willing to relocate to high-needs
school districts. The proposed stipend would pay for relocation and housing and would last
for up to one year.
1
https://www.michigan.gov/documents/mde/Teaching_Candidates_698430_7.pdf
2
https://www.michigan.gov/documents/mde/Permit_Options_534628_7.PDF
3
https://content.govdelivery.com/attachments/MIMDE/2021/12/08/file_attachments/2016378/Teacher%20Recruitm
ent%20and%20Retention%20Letter%20November%202021.pdf
House Fiscal Agency Page 1 of 2
FISCAL IMPACT:
The bill could increase costs for the state and could reduce costs for local school districts,
ISDs, and PSAs.
MDE could incur administrative costs to provide guidance to districts, ISDs, and PSAs on
the bill's allowance for noncertificated, nonendorsed student teachers to be employed
without a permit for up to one year. This cost would likely be absorbed using existing staff
time.
The bill could reduce costs for districts, ISDs, and PSAs by increasing the supply of
teachers. A district, ISD, or PSA may also see a cost savings to the extent that they would
have hired the student teacher through a full-year basic substitute permit, which costs $45
per application.
Legislative Analyst: Jenny McInerney
Fiscal Analysts: Jacqueline Mullen
Emily Hatch
■ This analysis was prepared by nonpartisan House Fiscal Agency staff for use by House members in their
deliberations and does not constitute an official statement of legislative intent.
House Fiscal Agency HB 5685 as introduced Page 2 of 2


Statutes affected:
House Introduced Bill: 380.1231