Background
Like the majority of OECD education systems, Iceland is facing teacher shortages, particularly in rural areas, where recruitment and retention of qualified teachers over past decades have been challenging. This issue became more pronounced following the implementation of a five-year teacher education programme in the early 2000s (from three years), which required prospective teachers to complete a master’s degree. The addition of two years of teacher education was considered by some to have exacerbated teacher shortages more significantly than had originally been anticipated, with those enrolled experiencing slow progress and numerous dropouts before the completion of the degrees.
It was in this context that the Icelandic government launched a five-year action plan in 2019 (Government of Iceland, n.d.[1]), aimed at improving the recruitment and retention of teachers. The plan sets out clear goals to increase enrolment in teacher education programmes and to raise the number of qualified teachers graduating from universities, as well as preventing early career teacher attrition. As part of this plan, a new act came into force at the beginning of 2020, which impacted the organisation of teacher education (The Act on Education, Qualifications and Employment of Teachers and School Administrators in Preschool, Primary and Secondary Schools). Iceland’s approach to teacher recruitment and retention, while sharing commonalities with other countries in terms of financial incentives (United States) and mentoring programmes (Finland, Canada and Singapore), distinguishes itself through its unique flexibility in certification across school levels.
The following elements were implemented:
Increasing enrolment and supporting completion: Efforts were made to boost enrolment in teacher education programmes, including the option to replace a master's thesis with coursework. This flexibility is intended to make it easier for students from various educational backgrounds to complete their degrees.
Strengthening in-school professional development through paid internships: Final-year students in teaching programmes are offered a 50% paid internship at preschools or primary schools. The goal is to strengthen student teachers' readiness for the profession by aligning initial teacher education more closely with practical, on-the job-experience, support their transitions into teaching roles, and increase their likelihood of remaining in it.
Reducing early career attrition through mentorship support: The plan also places a strong emphasis on mentoring. Highly qualified teachers receive financial incentives to mentor novice teachers during their first two to three years in the profession.
Simplifying teacher certification: By making a Master’s thesis optional (with the possibility of replacing this with coursework), Iceland has made it easier for students to qualify as teachers through the avenue that is most relevant to their individual aspirations. This has been described as a movement from “research-based to practice-oriented teacher education” (Sigurðsson, Björnsdóttir and Jóhannsdóttir, 2023[2]).
Adopting one license for all school levels: The new act allows licensed teachers to move more easily between school levels, such as primary and secondary schools, and removes special positions for specific subjects like sports and arts, creating a more flexible and accessible certification system.
Implementation Process
The design and implementation of Iceland’s action plan involved extensive stakeholder engagement, bringing together government ministries, teacher unions, universities and parents. This stakeholder engagement and collaboration is key to ensuring buy-in and is designed to meet the various needs of actors within the education system.
Evaluative Knowledge
The number of new teachers enrolling in, graduating from teacher education programmes, and entering the system has increased significantly since the plan's implementation. For example, the number of students graduating from teacher programmes rose from 45 in 2019 to 164 in 2021 (Sigurðsson, Björnsdóttir and Jóhannsdóttir, 2023[2]).
Despite promising signs, the long-term impact of the changes is still uncertain. The policy’s full effects on teacher retention and student outcomes will only become clear over time.
Looking Ahead
A key lesson from Iceland’s strategy for attracting teachers is the importance of flexibility in teacher education and certification. By reducing barriers to entry and providing practical, paid professional development experiences, Iceland has been able to significantly increase the number of teacher graduates in a short time. This approach offers a valuable next practice for other countries facing similar shortages.
However, moving forward, Iceland must continue to refine its policies to ensure equal access to internships and mentoring opportunities, particularly in rural areas. Additionally, more rigorous evaluation of the programme’s long-term impacts will be critical to its success, including through longitudinal evaluation that follow new teachers over the course of their careers to better understand how the reforms affect retention, job satisfaction and teaching quality.
Another potential blindspot is the sustainability of the financial incentives provided to mentors and interns. While effective in the short term, reliance on these incentives may not be feasible in the long run without secure, consistent funding.