2 Teacher Shortages

Germany faces an acute shortage of teachers, particularly in schools catering to children aged 6 to 16, who are within the compulsory education age. Estimates suggest that up to 40,000 teaching positions remain unfilled nationwide.^*1 This shortfall has resulted in widespread disruptions, including canceled lessons, reduced instructional hours, and the deployment of unqualified individuals, such as parents or volunteers, to manage classrooms.

In a Gymnasium which the author's child attends, classes have been canceled quite often, at least one class per week even at the 9th-grade level. These disruptions have raised concerns about declining educational quality. For instance, approximately 40% of 4th-grade students nationwide fail to meet national educational standards^* in German and mathematics.^*2

Similarly, Japan is also experiencing a teacher shortage, albeit on a smaller scale. A 2021 survey revealed that public elementary, junior, and senior high schools nationwide lacked approximately 2,500 teachers. This represents a shortage affecting roughly 1 in 20 public elementary and junior high schools.^*4 While the numerical deficit appears smaller than in Germany, discrepancies between reported data and actual conditions suggest the problem may be more severe.

Elementary schools are particularly affected, with some schools relying on subject-specific teachers or vice principals to serve as homeroom teachers due to the unavailability of regular staff.^*5 In junior high schools, additional responsibilities such as lifestyle guidance counseling, career counseling, and club activities can place a greater burden on teachers, even though the teaching hours are fewer than in elementary schools.

However, unlike schools in Germany, where parents or individuals without teaching credentials may stand in as substitutes, this is not an option in Japan. Nor is cancelling classes a feasible solution. Instead, teachers within the same school must cover for each another. Consequently, the burden on teachers becomes immense.

In such circumstances, teachers have less time to devote to essential tasks such as preparing lessons and engaging with students. As a result, the quality of education may decline, a situation comparable to that seen in German schools. Moreover, increased working hours can deteriorate teachers' physical and mental well-being. Negative media coverage labeling the profession as "exploitative" further worsens the issue, potentially discouraging new candidates and accelerating the teacher shortage.

Unfortunately, the situation in Japan is becoming increasingly severe. Compared to the previous year, 42.6% of municipalities report a worsening teacher shortage.
What has caused this pressing issue then?

3 Causes of Teacher Shortages

Several factors contribute to the teacher shortage in Germany, including a rising birthrate, increased immigration, and the lengthy and demanding process required to qualify as a teacher. Unlike Japan's centralized system, Germany operates under a federal system, where education policies vary by state. As a result, the requirements and criteria for teacher recruitment may differ slightly from one state to another. However, the process typically involves two phases as follows:

1. University Education: Prospective teachers must complete a five-year university program, specializing in at least two subjects. Upon earning a master's degree, candidates must pass a national examination to proceed.
2. Practical Training: A subsequent 18-month internship requires candidates to gain hands-on experience. Only after passing a second national examination can they officially become teachers.^*6

This seven-year path, often extended further by the challenging nature of the internship phase, discourages many students from completing their training. For instance, only half of the freshman at the University of Potsdam graduate, and in some subjects, such as physics and mathematics, the graduation rate is even lower.^*7

Of the 42 students who began studying to become mathematics teachers in 2015, only 9 had earned their teaching degrees by 2021. In physics, the situation was even more severe, with only 2 out of 17 students completing their programs during the same period.^*7

Thus, STEM (science, technology, engineering and mathematics) subjects face particularly severe shortages. In one federal state, only 10 out of 1,200 newly hired teachers had a background in computer science and had passed the required state exams.^*7 These figures indicate the gravity of the problem.

Another challenge lies in the perceived lack of flexibility in working places or time and career growth in teaching. Conflicts with difficult parents are also frequently reported. Many young people today prefer exploring new career opportunities to returning to the school environment they experienced as students.

In Japan, a teaching license can be obtained through coursework at a four-year university or a two-year junior college. In recent years, the number of new graduates taking teaching certification exams and entering the teaching profession has been on the rise. This is in contrast to Germany, where obtaining a teaching license requires a lengthy process, and the number of aspiring teachers has been declining.

Why, then, is Japan experiencing a teacher shortage? Unlike Germany's federal system, Japan operates under a centralized structure, with the Ministry of Education, Culture, Sports, Science and Technology (MEXT) overseeing educational policies. According to MEXT, the three primary factors contributing to the teacher shortage in Japan are:

1. An increase in the number of teachers taking maternity or childcare leave.
2. Growth in the number of special education classes.
3. A rise in the number of teachers on medical leave.^*5

Let us examine these factors in detail.

(1) Increase in Maternity and Childcare Leave and Municipal Budget Constraints
In recent years, a significant number of teachers from the baby boomer generation have retired, prompting local governments to actively recruit younger teachers in their 20s and 30s. However, this age group also overlaps with the child-rearing generation. When these teachers take maternity or childcare leave, schools previously compensated by temporarily hiring non-regular teachers. Currently, however, there is a shortage not only of full-time teachers but also of non-regular substitutes.^*5

This shortage is the result of limited budgets of the municipal government. These constraints prevent schools from hiring an adequate number of teachers, including substitutes, to prepare for such contingencies. As a result, schools are often left understaffed, with no immediate means of replacement when teachers go on leave. Until new personnel are recruited, other teachers within the school must cover for their absent colleagues.^*4

(2) Increase in Special Education Classes and Smaller Class Sizes
Despite the growing overall teacher shortage, the number of teachers in public elementary schools and special education schools has increased.^*5 This is largely due to efforts to provide more tailored and detailed education, such as expanding special education classes and reducing the number of students per class to 35.

However, as the number of classes increases, so does the demand for teachers. In practice, nearly one-quarter of special education class teachers are non-regular, temporary hires.^*5 This indicates that the demand for special education classes is outpacing the hiring of full-time teachers, highlighting a structural issue that contributes to the overall teacher shortage.

(3) Increase in Medical Leave Due to Mental Health Issues
The rise in the number of teachers taking medical leave due to mental health issues is another major factor contributing to the teacher shortage. As noted earlier, the workload for teachers continues to increase, with little progress in addressing their long working hours. This has led to increasingly demanding working conditions. In the 2022 academic year, the percentage of teachers who took medical leave for mental health reasons marked a record high. Among those, over 30% had been away for over a year, indicating that this is a long-term issue. ^*5

4 Measures

In response to this critical situation, Germany's federal states have implemented various measures to increase the number of teachers.^*8 In Germany, some states do not recognize teachers as civil servants due to budgetary constraints. However, in Bavaria, teachers have already been treated as civil servants, and obtained improvements in their salary. Additionally, substantial relocation allowances are being offered to teachers moving in from other states as part of efforts to secure their retention.

In Brandenburg, the qualification requirements for teachers are being lowered from a master's degree to a bachelor's degree, making it easier to enter the teaching profession. Saxony-Anhalt is experimenting with a four-day school week, currently under trial implementation.

Berlin has resumed hiring teachers as civil servants for the first time in approximately 18 years, seeking to improve working conditions. Many other states are rehiring retired teachers or offering bonuses to those who delay retirement.

Furthermore, 12 out of Germany's 16 states have adopted a "career changer" system to recruit professionals from other fields.^*1 Although the specific methods vary, this typically involves allowing individuals without a formal teaching degree to begin working in schools while completing the necessary training and obtaining teaching qualifications. In Brandenburg, this process is the shortest in the country, enabling candidates to qualify within three years.

Across Germany, approximately 15% of teachers have not undergone formal teacher training, with the proportion being particularly high in states experiencing severe teacher shortages. For instance, Saxony and Berlin, which face significant teacher shortages--1,500 and approximately 900 positions, respectively--also have the highest rates of career changer teachers. In 2018, these groups accounted for 50.6% in Saxony and 40.1% in Berlin.^*3

Japan is also addressing its teacher shortage through measures implemented by the national and local governments.

- National Initiatives
The Ministry of Education, Culture, Sports, Science, and Technology (MEXT) has decided to move up the schedule for teacher recruitment exams for public schools by one month starting in 2024.^*5 This decision aims to secure talented candidates by aligning the recruitment timeline in line with private-sector hiring practices, which are typically completed earlier.

MEXT is also expanding a system that shortens the time required to obtain a teaching license to as little as two years. Under the current system, individuals can earn a Type 1 license after graduating from a four-year university or a Type 2 license after graduating from a two-year college. The former allows teaching at all school levels, while the latter applies to kindergarten through junior high school. From 2025, four-year universities will also offer Type 2 licenses, and students in departments such as psychology, child welfare, language education, and programming--not previously eligible--will be able to earn primary school teaching licenses.^*9

However, the lengthy process of obtaining teaching qualifications remains an issue. The more pressing challenge is the immediate "teacher shortage crisis." To address this, schools are beginning to accept term-limited professionals from the private sector. As of 2022, these hires constituted only 3.0% in elementary schools and 3.5% in junior high schools, but this number is expected to grow.^*5

Workstyle reforms for teachers are also underway. For example, school support staff funded by national budgets are being deployed nationwide. These staff members assist with labor-intensive tasks such as copying and assembling worksheets or preparing teaching materials, aiming to decrease the burden on teachers.

- Local Government Initiatives
At the local level, municipalities are focusing on re-employing former teachers who hold valid teaching licenses but are no longer in the profession. Other efforts include raising salaries for new teachers who have just graduated from schools and hosting teacher training programs for university students.^*4

To allow teachers to focus on their core responsibilities, some municipalities are strengthening the presence of specialized staff such as school counselors, social workers, administrative assistants, and afterschool club activity supervisors. While these roles are standard in German schools, they have not historically been a given in Japan.

- School-Level Measures
On the school level, efforts are being made to reduce workload by streamlining events and cutting back on meetings. In Japan, schools typically have more after school extracurricular activities and events than in Germany. Examples of streamlining include shortening sports day to half a day and replacing elaborate cultural festivals with simpler academic showcases to reduce preparation time.^*4

5 Prospect in both countries

In Germany, despite the measures being taken by each state, unfortunately, it is anticipated that this issue will persist in the future. This is because the number of children is predicted to increase by approximately one million by 2035. Moreover, this projection does not include refugees from Ukraine, which means that the number of children is expected to rise even further in the long term.

In contrast, a shortage of 127,100 certificated teachers is forecasted by 2035. Including the need for three major political reform projects--full-day schooling, inclusive education, and support for children in difficult social circumstances--the teacher shortage could reach 158,700 by 2035. Specifically, in terms of inclusive education, Germany is expected to welcome up to 400,000 Ukrainian refugee children, for whom an additional 24,000 teachers will be required.^*6

It would be ideal if teachers from Ukraine could be employed, but since you need a German teaching license in order to work in Germany, this creates a significant barrier. The state of Brandenburg has launched a certification project to help Ukrainian teachers resume their careers in Germany more quickly, but the process remains long and demanding. Therefore, many participants from Ukraine have not yet completed the certification.^*6

On the other hand, in Japan, where the birthrate is declining, there is a growing belief that the teacher shortage issue will naturally resolve itself in the coming years.^*5 The progress of depopulation, particularly during the COVID-19 pandemic, has been rapid, with the number of births in 2022 falling below 800,000 for the first time. In the future, the number of classes will inevitably decrease, and as a result, the number of teachers required will also decline.

Additionally, because the mandatory retirement age for teachers at public schools has gradually been extended since 2023, the teacher shortage is increasingly seen as a temporary issue in Japan.

6 Conclusion

Both Japan and Germany face significant challenges in addressing teacher shortages, albeit with differing causes. Germany's rigorous teacher training process has created barriers to entry, while Japan struggles with overburdened teachers and systemic inefficiencies.

To mitigate these shortages, Germany may need to streamline its teacher training process and introduce incentives to attract candidates, especially in STEM fields. Japan, on the other hand, must address workload concerns, provide better support for teachers, and improve public perceptions of the profession.

Based on my own experiences, in German schools, teachers generally focus solely on teaching subjects, while specialized staff such as school counselors, school social workers, secretaries, and administrative staff do their jobs supporting children. This division of labor in Germany seems to result in a less overwhelming workload for teachers compared to their counterparts in Japan.

On the other hand, in Japanese schools, teachers not only handle classes but are also responsible for organizing various events, daily student guidance, and, in junior high schools, after school club activities, leading to a significant increase in non-teaching duties. Given the already heavy workload, the teacher shortage has worsened the situation. This has led to an increase in teachers suffering from mental health issues, which is understandable.

Furthermore, in Germany, there is a common understanding that it is inevitable for teachers to take sick leave, and class cancellations are a regular occurrence. In contrast, in Japan, unless there are exceptional circumstances, teachers are usually not allowed to miss classes. Additionally, in Germany, sick leave is separate from annual paid vacation, which makes it easier for German teachers to take time off and refresh compared to their Japanese counterparts. In Japan, it is also rare to use up all your paid holidays.

As for solutions, it appears that both countries agree on several approaches: securing adequate budgets for education, reflecting this in teacher salaries, ensuring a sufficient number of teachers, simplifying the process for obtaining teaching licenses, accepting career changers from other fields, and providing support for the reintegration of former teachers. In Japan, there is also a focus on reducing teachers' workloads.

Looking ahead, in Germany, the increasing number of children from immigrant backgrounds suggests that this issue will continue for some time. On the other hand, in Japan, with the ongoing depopulation, it is expected that this problem will naturally resolve itself in a few years.

However, this does not mean we can just sit and wait at this moment. The Japanese Minister of Education has stated, "Children grow and progress each year, and for them, this is an irreplaceable year. Ensuring a proper educational framework is our responsibility as adults. In regions or countries where the educational environment for children is being neglected, a bright future is not likely to emerge." I wholeheartedly agree with this opinion.

Whether in Japan or Germany, providing quality education for future generations is essential for the development of the nation. Education is an investment in the country, so both nations should first secure adequate budgets for education, provide teachers with appropriate treatment, and ensure a diverse range of teachers to meet the demand.

References

• *1　Tagesschau. "Bundesweit fehlen mehr als 12.000 Lehrkräfte." Tagesschau.de, January 16, 2023. https://web.archive.org/web/20230125085110/https://www.tagesschau.de/inland/bildung-schulen-lehrermangel-101.html
• *2　Institut zur Qualitätsentwicklung im Bildungswesen (IQB). "IQB-Bildungstrend 2021." Humboldt-Universität zu Berlin, October 17, 2022. https://www.iqb.hu-berlin.de/bt/BT2021/Bericht/
• *3　Deutschlandfunk Kultur. "Berlin bekämpft mit Quereinsteigern den Lehrermangel." Deutschlandfunk Kultur, November, 28, 2017. https://www.deutschlandfunkkultur.de/begehrte-anfaenger-berlin-bekaempft-mit-quereinsteigern-den-100.html
• *4　Benesse Educational Research & Development Institute. "Kyouin busoku nogenjou wa? Sono genin to kaiketsusaku wo moto-kyouyu ga kaisetsu [What is the current situation regarding the teacher shortage? A former teacher explains the causes and solutions]" Benesse Kyouiku Jouhou, July 25, 2024. https://benesse.jp/educational_terms/27.html#:~:text=%E4%B8%BB%E3%81%AA%E7%90%86%E7%94%B1%E3%81%AF%E3%80%81%E6%95%99%E5%93%A1,%E3%81%AA%E3%81%A9%E3%81%8C%E6%8C%99%E3%81%92%E3%82%89%E3%82%8C%E3%81%BE%E3%81%99%E3%80%82
• *5　Sano, Ryo. "Kyouin busoku wa dorekurai shinkoku ka kihon deta kara kouzoumondai made yomitoku [Current state of teacher shortage and solutions explained by education media]" Kyōiku Shinbun, February 12, 2024. https://www.kyobun.co.jp/article/2024021291
• *6　Senatsverwaltung für Bildung, Jugend und Familie. "Lehrerin oder Lehrer werden." accessed on January 21, 2025. https://web.archive.org/web/20250113035754/https://www.berlin.de/sen/bildung/fachkraefte/lehrerausbildung/
• *7　Lehrermangel in Deutschland: Warum der Lehrerberuf für viele unattraktiv ist." Tagesschau.de, April 19, 2022. https://www.tagesschau.de/inland/lehrermangel-schulen-101.html
• *8　Tageschau. "Wie die Länder Lehrkräfte locken" Tagesschau.de, January 27, 2023. https://web.archive.org/web/20230127182037/https://www.tagesschau.de/inland/innenpolitik/lehrermangel-bundeslaender-101.html
• *9　Yomiuri Shimbun. "Kyouinmenkyo, 4nensei daigaku demo saitan 2nen de shutoku kanouni...tandai muke "nishu-menkyo" no kyoushokukatei wo shinsetsu e [Teaching licenses can now be obtained in as little as two years...New teaching course 'type 2' license to be newly established even at four-year universities]." Yomiuri Online, February 6, 2023. " Yomiuri Online 2023.02.06. https://www.yomiuri.co.jp/kyoiku/kyoiku/news/20230206-OYT1T50132/