More Texas students need special education, but fewer certified teachers remain

Written By Madilyn Coyne

Across Texas, more students than ever qualify for special education services. However, as enrollment climbs, the number of certified teachers equipped to serve them continues to fall, leaving schools to balance federal mandates with limited staffing.

According to the Texas Education Agency’s 2024–25 data, 852,472 students in Texas public schools receive special education services, representing 15.4 percent of the state’s total enrollment of 5.5 million students. That share has increased steadily since the state removed its 8.5 percent identification cap in 2017, prompting districts to re-evaluate eligibility and expand supports.

Left Chart: Types of disabilities and numbers across the state of Texas in 2024 - 2025. Right Chart: Number of total teachers and uncertified teachers in Texas.

Both charts received from TEA’s website.

At the same time, the certified teacher workforce has declined. TEA data show 12 percent of teachers statewide are uncertified, compared with 3.8 percent in 2019 to 2020. Roughly 31 percent of new hires entered classrooms without a Texas teaching certificate, while the teacher-attrition rate remains near 13 percent.

For special education programs, the imbalance means more students and fewer qualified staff. Many districts now rely on uncertified or alternatively certified teachers, paraprofessionals, and substitutes - stopgaps that make it harder to maintain consistency in Individualized Education Programs, or IEPs.

Smaller districts face some of the toughest challenges. Limited budgets and geographic isolation make it difficult to attract certified teachers and specialists. In Jefferson ISD, about 23 percent of students receive special education services, well above the state average.

“Students depend on structure,” said Michelle Morales, Jefferson ISD’s special education director. “When staffing changes or there aren’t enough certified teachers, it can really affect how well they respond in class or on tests.”


Texas will soon pilot a redesigned State of Texas Assessments of Academic Readiness, or STAAR, beginning in 2025–26. The new model divides the exam into three shorter tests across the year. While the Texas Education Agency says the change will better track academic growth, educators worry it could add logistical pressure - especially for students who need routine and extended time.

Each testing cycle requires updated ARD paperwork, certified proctors, and schedule adjustments. Morales said she plans additional staff training next semester to prepare for what she called “a learning curve for everyone.”


Federal rules under the Every Student Succeeds Act limit how many students can take the STAAR Alternate 2, the version designed for students with significant cognitive disabilities. Only 1 percent of a district’s total population may participate. 


Texas once offered STAAR Modified for students in resource settings, but that option was discontinued, meaning most now test on grade level with their general education peers.


Districts often share specialists or work with regional service centers to fill gaps. But as special-education enrollment rises and teacher shortages persist, administrators say the margin for flexibility keeps shrinking.


For now, schools are focused on retaining the teachers they have, providing ongoing training, and preparing for another wave of state policy changes.


Source Sheet:


Primary data (TEA)

Special education & assessment (TEA)

Federal authority for the 1% cap

Interviews 

  • Morales, Michelle — Special Education Director, Jefferson ISD. Interview: Nov. 7, 2025.

Madilyn Coyne
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