IES Blog

Institute of Education Sciences

Women’s Equality Day: The Gender Wage Gap Continues

Today, on Women’s Equality Day, we honor the many women who fuel the education sector with their dedication to our nation’s students! But, let’s also remember the many ways women are still striving to overcome inequalities in the workplace.

Women made up the majority of public school teachers (77 percent) and public school principals (54 percent) in 2017–18. While overrepresented in terms of public school positions, women were paid significantly less than their male counterparts.

Background Demographics

Compared to 30 years ago, women made up higher proportions of public school teachers and principals in 2017–18 than in 1987–88. According to data from the 1987–88 Schools and Staffing Survey (SASS), 71 percent of all public school teachers were women. By 2017–18, data from the National Teacher and Principal Survey (NTPS) showed the rate had increased to 77 percent. The percentage of female public school principals more than doubled during the same period, from 25 percent in 1987–88 to 54 percent in 2017–18. 

Historically, U.S. school buildings weren’t heavily populated by women. Nearly all teachers were men before “Common Schools”—the precursor to today’s public school system—were introduced in the late 1820s. As the education landscape shifted, so did the composition of the teaching workforce. By the 1890s, more than two-thirds (68 percent) of all public school teachers were women.1 

New Depression-era laws in the 1930s—which limited the number of adults in a family who were allowed to work in certain occupations—made it more difficult for married women to stay in the workforce, since a husband often earned more than his wife, even in the same position. Since female public school teachers were the most immediately recognizable example of this law at the local level, married women in education were direct targets of employment discrimination.2 Consequently, the percentage of female teachers dropped from 81 percent in 1930 to 76 percent in 1940.3 Throughout history, this percentage continued to fluctuate as laws readjusted more equitably and more diverse jobs became available to women, although women have always represented more than 50 percent of the teacher workforce. 

The Gender Wage Gap: Teachers and Principals (2017–18 NTPS)

According to Bureau of Labor Statistics data, women are paid less than men in nearly all occupations. While the gap for public elementary and secondary teachers is smaller than the average, it still exists.  

History tells us that the gender wage gap in elementary and secondary education wasn’t accidental. In fact, it was specifically created to expand the reach of the public education system by Common School reformers who argued that the United States could afford to staff the proposed new schools by adding more female teachers, since schools could pay them less than male teachers.4

Patterns in teacher compensation from the 2017–18 school year show that the average base teaching salary of female public school teachers is less than that of their male counterparts ($55,490 vs. $57,453).5 Comparably, female public school principals also had a lower average salary in 2017–18 than did male principals ($96,300 vs. $100,600).

How does average annual salary vary based on teacher, principal, or school characteristics? (201718 NTPS)

Public school teacher and principal salaries are known to vary by several individual- or school-related characteristics (see figures 1 and 2).

For instance, there are fluctuations in teachers’ and principals’ average annual salary by age, years of experience, and highest degree earned. Salary increases often follow a predictable pattern: older, more experienced, or more highly educated teachers and principals generally earn higher salaries than their younger, less experienced, or less educated counterparts.

Educators are also paid differently based on where they work. Certain school characteristics, such as community type, school level, and school size, can influence teachers’ and principals’ average salaries. In 2017–18, the educators with the highest average annual salary worked in either suburban schools, high schools, or large schools with more than 1,000 enrolled students.


Figure 1. Average annual base teaching salary of regular, full-time public school teachers, by selected school or teacher characteristics: 201718

[click figure image to enlarge]

Horizontal bar chart showing average annual base teaching salary of regular, full-time public school teachers, by selected school or teacher characteristics (community type, school level, student enrollment, years of experience, and highest degree earned) in 2017–18


Figure 2. Average annual salary of public school principals, by selected school or principal characteristics: 2017–18

[click figure image to enlarge]

Horizontal bar chart showing average annual salary of public school principals, by selected school or principal characteristics (community type, school level, student enrollment, years of experience, and highest degree earned) in 2017–18


Do teacher, principal, or school characteristics close the gender wage gap? (201718 NTPS)

We know that gender differences in average salary can be correlated with other related factors. For example, higher percentages of public primary school teachers (89 percent) and principals (67 percent) than of public middle or high school educators are female. Notably, figures 1 and 2 show that primary school educators earn less on average than their counterparts in middle or high schools. But these other related factors don’t entirely explain the male-female wage gap.

Teachers

Comparing male and female public school teachers who have the same characteristics can, in some situations, narrow the wage gap (see figure 3).


Figure 3. Average base teaching salary of regular, full-time public school teachers, by sex and selected school and teacher characteristics: 2017–18

[click figure image to enlarge]

Line graph showing average base teaching salary of regular, full-time public school teachers, by sex and selected school and teacher characteristics (years of experience, highest degree earned, community type, school level, and student enrollment) in 2017–18


Among teachers who have the same years of experience, salaries among newer teachers are more similar than among more experienced teachers. There is no significant difference in the average base teaching salary between male and female teachers with less than 4 years or 4–9 years of experience. However, the wage gap remains for the most experienced teachers. Female teachers with 10–14 years or 15 or more years of experience had lower average salaries ($56,990 and $66,600, respectively) than their male counterparts with the same amount of experience ($58,300 and $69,100, respectively).

Similarly, female teachers whose highest degree is bachelor’s degree or less or whose highest degree is a master’s degree earn less on average per year ($49,600 and $62,700, respectively) than male teachers with the same amount of education ($52,300 and $64,300, respectively).6 There is no significant difference between the average salaries of male and female teachers who have higher than a master’s degree.   

When looking at the data by key school characteristics, the wage gap also shrinks for at least some teachers. As discussed before, average base teaching salaries vary by school level and by school size. When comparing male and female teachers at the same school level, female primary school teachers earn less ($56,800) than male primary school teachers ($59,000). But there is no significant difference in average salaries between male and female middle and high school teachers, nor between male and female teachers who work at the same size schools.  

However, gender differences in average base teaching salary remain when school location is the same. In all four community types, female teachers have lower average salaries than their male colleagues: $62,300 vs. $64,400 in suburbs, $59,000 vs. $60,800 in cities, $50,200 vs. $52,600 in rural areas, and $50,100 vs. $52,000 in towns.

Principals

Female principals consistently have lower average annual salaries than male principals, even when controlling for other related factors (see figure 4).


Figure 4. Average annual salary of public school principals, by sex and selected school and principal characteristics: 2017–18

[click figure image to enlarge] 

Line graph showing average annual salary of public school principals, by sex and selected school and teacher characteristics (years of experience, highest degree earned, community type, school level, and student enrollment) in 2017–18


Both the newest and the most experienced female principals are paid significantly less on average than their male peers with the same amount of experience. Similarly, when considering highest degree earned, the data show that female principals are consistently paid less on average than male principals. For example, female principals with a doctorate or first professional degree are paid less on average than male principals with the same education ($102,800 vs. $111,900).

For the most part, principal salaries by gender also remain significantly different when accounting for school characteristics. For example, when considering school location, the data show that female principals have lower average salaries than their male colleagues in all four community types: $105,200 vs. $112,700 in suburbs, $101,400 vs. $106,000 in cities, $85,800 vs. $92,000 in towns, and $82,200 vs. $87,500 in rural areas.

Although there is a lot more to learn about the complex levers that guide educator salaries, the data show that the male-female wage gap is still affecting female educators in many situations.  

Because of the NTPS, researchers, policymakers, and other decisionmakers can continue to analyze relationships that may influence the gender salary gap, including state-by-state differences, turnover rates, self-rated evaluation and job satisfaction scales, and data on the self-reported amount of influence an educator has over various school or classroom decisions. Results from the 2020–21 NTPS will be released in fall 2022 and will include information on the impact of the coronavirus pandemic on public and private schools. Whether the gender wage gap changed over the last two school years is to be determined.

Be sure to follow NCES on Twitter, Facebook, LinkedIn, and YouTube and subscribe to the NCES News Flash to receive notifications when these new data are released.

 

Facts and figures in this blog come from the National Teacher and Principal Survey (NTPS) and its predecessor, the Schools and Staffing Survey (SASS). The NTPS is a primary source of information about K12 schools and educators across the United States and a great resource for understanding the characteristics and experiences of public and private school teachers and principals.

 

By Julia Merlin, NCES


[1] The Fifty-Second Congress. (1893). The executive documents of the House of Representatives for the second session of the Fifty-second Congress (Vol. 1). Washington, DC: U.S. Government Printing Office. 

[2] Blackwelder, J.K. (1998). Women of the Depression: Caste and Culture in San Antonio, 1929–1939. Texas A&M University Press.

[3] Adams, K.H., and Kenne, M.L. (2015). Women, Art, and the New Deal. McFarland.

[4] Kaestle, C. F. (1983). Pillars of the Republic: Common Schools and American Society: 1780–1860. Macmillan.

[5] For the purpose of this blog post, only regular, full-time teachers are included in any salary calculations. A regular full-time teacher is any teacher whose primary position in a school is not an itinerant teacher, a long-term substitute, a short-term substitute, a student teacher, a teacher aide, an administrator, a library media or librarian, another type of professional staff (e.g., counselor, curriculum coordinator, social worker) or support staff (e.g., secretary), or a part-time teacher. For average base salary, teachers who reported zero are excluded from analysis. Summer earnings are not included.

[6] Notably, most teachers have earned a bachelor’s (39 percent) or a master’s (49 percent) degree as their highest level of education. The percentage distribution of teachers whose highest degree earned is a bachelor’s or a master’s degree does not meaningfully differ by gender.

New Data on Public and Private School Teacher Characteristics, Experiences, and Training

Teachers and principals have a critical impact on the education experience of students in the United States. The National Teacher and Principal Survey (NTPS) collects data from public and private school principals and teachers in order to better understand their characteristics and experiences. Using data collected during the 2017–18 school year, reports describing these findings for schools and principals were released in August 2019, and a new report about teachers was released in April 2020. During the 2015–16 school year, NTPS collected data about only public schools, principals, and teachers. The data collection for the 2017–18 school year included data about private schools, principals, and teachers as well.

Among the findings from the recently released teacher report are the following:

  • Race and ethnicity. Seventy-nine percent of all public school teachers in the 2017–18 school year were non-Hispanic White, 7 percent were non-Hispanic Black, and 9 percent were Hispanic. Among private school teachers, 85 percent were non-Hispanic White, 3 percent were non-Hispanic Black, and 7 percent were Hispanic.
     
  • Salary. Regular full-time teachers in public schools had a higher average base salary ($57,900) than regular full-time teachers in private schools ($45,300) in the 2017–18 school year.
     
  • Work outside of school. In the 2017–18 school year, 18 percent of public school teachers and 21 percent of private school teachers held jobs outside their school system during the school year.
     
  • Evaluation. In the 2017–18 school year, 78 percent of public school teachers and 69 percent of private school teachers were evaluated during the last school year.
     
    • ​Among teachers who were evaluated, higher percentages of private school teachers than public school teachers agreed with statements about the positive impact of evaluations on their teaching. Eighty-three percent of private school teachers agreed that the evaluation process helped them determine their success with students, 84 percent agreed that the evaluation process positively affected their teaching, and 81 percent agreed that the evaluation process led to improved student learning (figure 1). Comparable estimates for public school teachers were 72 percent, 73 percent, and 69 percent, respectively.

 


Figure 1. Percentage of teachers who agreed with different statements about the positive impact of evaluations, by school type: 2017–18


 

More information about these and other topics (including teachers’ years of experience, class size, and professional development) are available in the full report.

NTPS is a nationally representative survey of teachers and principals from public and private schools. For the public sector (but not the private sector), NTPS includes state representative data as well. NTPS uses scientifically proven methods to select a small sample of school faculty to provide information about major education issues related to school and staffing characteristics while minimizing the burden on teacher and principal communities. Without the cooperation and participation of districts and their teachers and principals, reports such as these could not be produced.

Data files for the 2017–18 NTPS will be released later this year. In order to protect the identities of respondents, researchers must apply for a restricted-use license to access the full restricted-use data files. Data will also be available through NCES’s online data tool, DataLab, where users can create custom tables and regressions without a restricted-use license.

 

By Maura Spiegelman, NCES

New International Data Highlight Experiences of Teachers and Principals

The Teaching and Learning International Survey (TALIS) 2018 surveyed lower secondary teachers and principals in the United States and 48 other education systems (in the United States, lower secondary is equivalent to grades 7–9). Following the release of volume 1 of the TALIS 2018 U.S. highlights web report in 2019, volume 2 provides new data comparing teachers’ and principals’ opinions about job satisfaction, stress, salary, and autonomy.

According to the survey results, nearly a quarter of U.S. lower secondary teachers (26 percent) reported they had “a lot” of stress in their work. This was higher than the average across countries participating in TALIS (16 percent) (figure 1). The U.S. percentage was higher than the percentage in 35 education systems, lower than the percentage in 3 education systems, and not measurably different from the percentage in 10 education systems. Across educations systems, the percentage of teachers who reported experiencing “a lot” of stress in their work ranged from 1 percent in the country of Georgia to 38 percent in England (see figure 8T in the TALIS 2018 U.S. highlights web report, volume 2).


Figure 1. Percentage of lower secondary teachers in the United States and across TALIS education systems reporting that they experience “a lot” of stress in their work: 2018


Less than half of U.S. lower secondary teachers (41 percent) “agree” or “strongly agree” that they are satisfied with their salary, which was not measurably different from the TALIS average (39 percent) (figure 2). The U.S. percentage was higher than the percentage in 22 education systems, lower than the percentage in 17 education systems, and not measurably different from the percentage in 9 education systems. The percentage of teachers who “agree” or “strongly agree” that they are satisfied with their salary ranged widely across education systems, from 6 percent in Iceland to 76 percent in Alberta–Canada (see figure 10T in the TALIS 2018 U.S. highlights web report, volume 2).

About half of U.S. lower secondary principals (56 percent) “agree” or “strongly agree” that they are satisfied with their salary, which was not measurably different from the TALIS average (47 percent) (figure 2). The U.S. percentage was higher than the percentage in 15 education systems, lower than the percentage in 3 education systems, and not measurably different from the percentage in 29 education systems. As with teachers, the percentage of principals who “agree” or “strongly agree” that they are satisfied with their salary ranged widely across education systems, from 17 percent in Italy to 86 percent in Singapore (see figure 10P in the TALIS U.S. highlights web report, volume 2).


Figure 2. Percentage of lower secondary teachers and principals in the United States and across TALIS education systems who “agree” or “strongly agree” that they are satisfied with the salary they receive for their work: 2018


TALIS is conducted in the United States by the National Center for Education Statistics (NCES) and is sponsored by the Organization for Economic Cooperation and Development (OECD), an intergovernmental organization of industrialized countries. Further information about TALIS can be found in the technical notes, questionnaires, list of participating OECD and non-OECD countries, and FAQs for the study. In addition, the two volumes of the OECD international reports are available on the OECD TALIS website.

 

By Tom Snyder, AIR; Ebru Erberber, AIR; and Mary Coleman, NCES

Collecting School-Level Finance Data: An Evaluation From the Pilot School-Level Finance Survey (SLFS)

Policymakers, researchers, and the public have long voiced concerns about the equitable distribution of school funding within and across school districts. More recently, the Every Student Succeeds Act (ESSA) requires that states and school districts add per pupil expenditures, disaggregated by source of funds, to their annual report cards for each local education agency (LEA) (e.g., school district) and school. In response to this these requirements, the National Center for Education Statistics (NCES) developed a new collection of finance data at the school level—the School-Level Finance Survey (SLFS).

The SLFS collects at the school level many of the same expenditure variables currently being collected at the district level on the School District Finance Survey. The pilot SLFS was designed to evaluate whether the survey is a viable, efficient, and cost-effective method to gather school-level finance data. Findings from the pilot survey were recently released in an NCES report titled The Feasibility of Collecting School-Level Finance Data: An Evaluation of Data From the School-Level Finance Survey (SLFS) School Year 2014–15.

Here’s some of what we learned:

 

Many states participating in the SLFS were able to report complete personnel and/or nonpersonnel expenditure data for a high percentage of their schools.

Of the 15 states that participated in the SLFS in school year 2014–15, 9 states were able to report school-level finance data for greater than 95 percent of their operational schools (figure 1). Other than Colorado and New Jersey,[1] all states were able to report SLFS data for at least 84 percent of their schools, ranging from 85 percent in Kentucky to nearly 100 percent in Maine. Just over one-half of reporting states (8 of 15) reported all personnel items (i.e., dollars spent on salaries and wages for teachers, aides, administrators, and support staff) for at least 95 percent of their schools. Seven of 15 states reported all nonpersonnel items (i.e., dollars spent on purchased services, supplies, and other costs not directly related to school employees) for at least 95 percent of their schools.  
 


Figure 1. Percentage of operational schools with fiscal data reported in the SLFS, by participating state: 2014–15

NOTE: This figure includes operational schools only (i.e., excludes closed, inactive, or future LEAs). The count of schools reported includes schools that can be matched to the Common Core of Data (CCD) School Universe files and for which at least one data item is reported in the SLFS.

SOURCE: U.S. Department of Education, National Center for Education Statistics, Common Core of Data (CCD), “School-Level Finance Survey (SLFS),” fiscal year 2015, Preliminary Version 1a; “Local Education Agency Universe Survey,” 2014–15, Provisional Version 1a.



SLFS data are generally comparable and consistent with other sources of school finance data.

A substantial majority of personnel expenditures can be reported at the school level. Personnel expenditures reported for the SLFS were reasonably comparable with the district-level and state-level data.[2] For common personnel expenditures, the absolute percentage difference between the SLFS and the district survey was less than 9 percent in 8 of 10 states (figure 2). The absolute percentage difference between the SLFS and the state-level survey for common personnel expenditures was less than 9 percent in 6 of 10 states.
 


Figure 2. School-Level Finance Survey (SLFS), School District Finance Survey (F-33), and National Public Education Financial Survey (NPEFS), by participating state: 2014–15

NOTE: Total personnel salaries include instructional staff salaries, student support services salaries, instructional staff support services salaries, and school administration salaries. This figure includes all schools in the SLFS and all LEAs in the F-33. Only states where reporting standards are met are included.

SOURCE: U.S. Department of Education, National Center for Education Statistics, Common Core of Data (CCD), “School-Level Finance Survey (SLFS),” fiscal year 2015, Preliminary Version 1a; “National Public Education Financial Survey (NPEFS),” fiscal year 2015, Final Version 2a; and “School District Finance Survey (F-33),” fiscal year 2015, Provisional Version 1a.



There are numerous inherent challenges in collecting school-level finance data: 

  • Communicating the vision of why reporting school-level finance data is important to school finance practitioners.
  • The pilot SLFS did not collect all types of current expenditures.
  • Some states had not fully developed standardized protocols or procedures for reporting finance data at the school level. 
  • There are varying legal requirements for the types of schools that are required to report finance data and the types of expenditures schools and districts are required to report.
  • The survey’s data item definitions were not consistent with states’ internal accounting for some items.

During the pilot survey, NCES and Census Bureau staff took action to address these challenges. 

 

Evidence suggests that it is feasible to collect accurate and informative school-level financial data.

States participating in the SLFS are improving internal data systems and protocols, which will allow them to report complete and comparable school-level finance data. The SLFS promotes efficiency by incorporating long-established NCES standards for school district financial accounting. The results of the pilot SLFS survey demonstrate that it is feasible to collect accurate and informative school-level finance data. The informational and analytical value will increase as response rates improve and as states improve their capabilities to collect complete, accurate, and comparable finance data at the school level.

 

By Stephen Q. Cornman, NCES; Malia Howell, Stephen Wheeler, and Osei Ampadu, U.S. Census Bureau; and Lei Zhou, Activate Research


[1] In 2014–15, Colorado did not require all school districts to report finance data at the school level; thus, data is reported for only 26 of Colorado’s 262 LEAs. In New Jersey, school-level finance reporting is required only for its “Abbott” districts, which make up only 31 of the state’s 702 districts.

[2] NCES’s Common Core of Data (CCD) program collects school finance data through three annual surveys: the school-level SLFS, the LEA-level School District Finance Survey (F-33), and the state-level National Public Education Financial Survey (NPEFS). Five data items are common to all three fiscal surveys (i.e., are collected at the school level for the SLFS, at the LEA level for the F-33, and at the state level for the NPEFS): instructional staff salaries, student support services salaries, instructional staff support services salaries, school administration salaries, and teacher salaries.

 

 

 

How variable are teachers' salaries?

By Lauren Musu-Gillette and Tom Snyder

Teachers play the primary role in the delivery of elementary and secondary instruction. About half of all public school staff were teachers and an additional 12 percent of staff were instructional aides in 2012. NCES collects a wide range of information related to teaching and teachers. One topic of high interest to current and potential teachers, as well as school officials, is the average salary for teachers. In fact, some of the most frequently visited tables on the Digest of Education Statistics webpage are those tables that present data on teachers’ salaries.

Data on teacher compensation and salaries are available from the Schools and Staffing Survey (SASS), collected by NCES. Salary data from this survey can be presented by teachers’ characteristics, such as sex, race/ethnicity, and years of full-time teaching experience. For example, in 2011-12 the average base salary for full-time teachers was $53,070. In addition, about 42 percent of full time teachers received supplemental pay for activities such as coaching, student activity sponsorship, or teaching evening classes, with an average value of $2,530. Some teachers had additional earnings from bonuses and summer employment.  

Teachers with more years of experience or higher levels of education received higher salaries on average. For teachers with one year or less of full-time teaching experience, the base salary for full-time teachers in 2011-12 was $40,540 compared to $64,820 for teachers with 30 or more years of experience. Data are also presented on base salary by highest degree earned. Teachers with a master’s degree and 30 to 34 years of experience had an average salary of $69,420 compared to an average of $58,510 for those teachers with a bachelor’s degree and the same amount of experience.  Overall, teachers with a bachelor’s degree or a master’s degree earned less in 2011-12 than in 1990-91, after adjusting for inflation. Average salaries are also available by state for teachers with a bachelor’s degree as their highest degree, or a master’s degree as their highest degree.

More recent information using estimated salaries show salary trends over a longer time period for teachers at both the state and national level in current and constant dollars. For example, the estimated average teacher salary at the national level in constant 2012-13 dollars was $39,329 in 1959-60, $57,152 in 1989-90, and $56,383 in 2012-13.