Education
Classroom Size Isn’t The Real Issue
From the Frontier Centre for Public Policy
The real challenge is managing classrooms with wide-ranging student needs, from special education to language barriers
Teachers’ unions have long pushed for smaller class sizes, but the real challenge in schools isn’t how many students are in the room—it’s how complex those classrooms have become. A class with a high proportion of special needs students, a wide range of academic levels or several students learning English as a second language can be far more difficult to teach than a larger class where students are functioning at a similar level.
Earlier this year, for example, the Elementary Teachers’ Federation of Ontario announced that smaller class sizes would be its top bargaining priority in this fall’s negotiations.
It’s not hard to see why unions want smaller classes. Teaching fewer students is generally easier than teaching more students, which reduces the workload of teachers. In addition, smaller classes require hiring more teachers, and this amounts to a significant financial gain for teachers’ unions. Each teacher pays union dues as part of membership.
However, there are good reasons to question the emphasis on class size. To begin with, reducing class size is prohibitively expensive. Teacher salaries make up the largest percentage of education spending, and hiring more teachers will significantly increase the amount of money spent on salaries.
Now, this money could be well spent if it led to a dramatic increase in student learning. But it likely wouldn’t. That’s because while research shows that smaller class sizes have a moderately beneficial impact on the academic performance of early years students, there is little evidence of a similar benefit for older students. Plus, to get a significant academic benefit, class sizes need to be reduced to 17 students or fewer, and this is simply not financially feasible.
In addition, reducing class sizes means spending more money on teacher compensation (including salaries, pensions and benefits). Also, it leads to a decline in average teacher experience and qualifications, particularly during teacher shortages.
As a case in point, when the state of California implemented a K-3 class-size reduction program in 1996, inexperienced or uncertified teachers were hired to fill many of the new teaching positions. In the end, California spent a large amount of money for little measurable improvement in academic performance. Ontario, or any other province, would risk repeating California’s costly experience.
Besides, anyone with a reasonable amount of teaching experience knows that classroom complexity is a much more important issue than class size. Smaller classes with a high percentage of special needs students are considerably more difficult to teach than larger classes where students all function at a similar academic level.
The good news is that some teachers’ unions have shifted their focus from class size to classroom complexity. For example, during the recent labour dispute between the Saskatchewan Teachers’ Federation (STF) and the Saskatchewan government, the STF demanded that a classroom complexity article be included in the provincial collective agreement. After the dispute went to binding arbitration, the arbitrator agreed with the STF’s request.
Consequently, Saskatchewan’s new collective agreement states, among other things, that schools with 150 or more students will receive an additional full-time teacher who can provide extra support to students with complex needs. This means that an extra 500 teachers will be hired across Saskatchewan.
While this is obviously a significant expenditure, it is considerably more affordable than arbitrarily reducing class sizes across the province. By making classroom complexity its primary focus, the STF has taken an important first step because the issue of classroom complexity isn’t going away.
Obviously, Saskatchewan’s new collective agreement is far from a panacea, because there is no guarantee that principals will make the most efficient use of these additional teachers.
Nevertheless, there are potential benefits that could come from this new collective agreement. By getting classroom complexity into the collective agreement, the STF has ensured that this issue will be on the table for the next round of bargaining. This could lead to policy changes that go beyond hiring a few additional teachers.
Specifically, it might be time to re-examine the wholesale adoption of placing most students, including those with special needs, in regular classrooms, since this policy is largely driving the increase in diverse student needs. While every child has the right to an education, there’s no need for this education to look the same for everyone. Although most students benefit from being part of regular academic classes, some students would learn better in a different setting that considers their individual needs.
Teachers across Canada should be grateful that the STF has taken a step in the right direction by moving beyond the simplistic demand for smaller class sizes by focusing instead on the more important issue of diverse student needs.
Michael Zwaagstra is a senior fellow with the Frontier Centre for Public Policy.
A new Class Size and Complexity Cabinet Committee has been struck to address classroom challenges.
Taking action on class size and complexity
Classrooms in Alberta continue to grow and are becoming increasingly complex, and immediate action is needed to address these issues in the public education system. To meet these issues head on, the Class Size and Complexity Cabinet Committee has been created. The cabinet committee will help guide government policy and deploy resources to deal with class sizes and classroom complexity.
“We are committed to providing world-class education, and we’re building schools and funding education at a rate unprecedented in this province. This committee will help us address the concerns of teachers, parents and students around class sizes and complexity.”
Throughout November, Alberta’s government will continue work with school boards to collect data on class sizes and classroom composition. The cabinet committee will use this data to direct resources to the classrooms that need it the most. Starting in January, this data will be made available and released annually.
The Class Size and Complexity Cabinet Committee will be co-chaired by the Premier of Alberta and the Minister of Education and Childcare. It will also include non-voting members representing school boards, administrators and a teacher representative of the ATA. The committee will also hear from school boards, academic experts, teachers, educational assistants, complex needs specialists and parents to inform its decisions and guide this vital work.
“We heard teacher concerns, and we are providing solutions. The Class Size and Complexity Cabinet Committee will help us take immediate action and ensure teachers and students are given the support they need to succeed.”
In June 2025, Alberta’s government established the Aggression and Complexity in Schools Action Team to provide advice on addressing classroom complexity. The report has been received and will be released soon. Over the coming months, the cabinet committee will start rolling out solutions informed by the action team’s recommendations. In addition, the committee will guide the creation of a new inclusive education policy framework.
“The work of this committee will support teachers in responding to the growing complexity in our classrooms. We will ensure that the voices of the contributors to the initial work guide
solutions that truly improve the educational experience for students and the educators who serve them.”
“I appreciate the government’s recognition of the impact of classroom complexity and their commitment to working collaboratively for improvement. Supporting teachers ultimately improves classroom conditions and student outcomes.”
Using data collected, this cabinet committee will also guide Alberta’s government in executing its commitment to hire 3,000 new teachers and 1,500 new educational assistants over the next three years. They will also assist in identifying and prioritizing where new schools and modulars should be built, advancing the government’s commitment to invest $8.6 billion to build 130 new schools, and provide 109 modular classrooms in the growing communities that need them urgently.
Quick facts
- Members of the Class Size and Complexity Cabinet Committee include:
- Danielle Smith, Premier of Alberta
- Demetrios Nicolaides, Minister of Education and Childcare
- Jason Nixon, Minister of Assisted Living and Social Services
- Rick Wilson, Minister of Mental Health and Addiction
- Searle Turton, Minister of Child and Family Services
- Lynnette Anderson, chief superintendent, Edmonton Catholic Schools
- Nicole Buchanan, chair, Red Deer Public Schools
- Marilyn Dennis, former president of Alberta School Boards Association
- Mike McMann, superintendent, Fort Vermilion Schools and President, College of Alberta School Superintendents
- Joanne Pitman, chief superintendent, Calgary Board of Education
- Dr. Elissa Corsi, Alberta Teachers’ Association
- Only Cabinet members are voting members. Additional guests will be invited to attend and share their expertise at the discretion of the chairs.
- School boards will be required to submit data on Alberta classrooms by Nov. 24.
Better data, better outcomes for Alberta students |
To help schools address classroom complexity, Alberta’s government will begin collecting annual data on class size and composition.
Over the past three years, Alberta has welcomed more than 80,000 new students. With this unprecedented growth, classroom complexity and class sizes are among the biggest issues facing schools and teachers across the province.
To meet this challenge head on, Alberta’s government will work with school boards to gather yearly data on class sizes and composition. This information will be used to better understand staffing, student needs and classroom complexity. School boards will be required to submit data on Alberta classrooms by Nov. 24, and by January, this data will be made publicly available and will then be released annually.
Data collected on classroom complexity will help the province understand and address issues in schools, including class sizes, and support strategic investments in classrooms. Over the next three years, school boards will be provided with funding to hire 3,000 teachers and 1,500 new education assistants to support students with complex needs.
“We are ready to work with school boards and teachers to address classroom complexity and class sizes. We have heard them loud and clear and we are taking bold action to address these issues.”
Alberta’s government is establishing a Class Size and Complexity Task Force to begin work immediately on identifying solutions to the challenges facing Alberta classrooms. Alongside new annual data collection, the task force will ensure every student gets the attention and support they need to succeed. Details about the task force will be shared in the coming weeks.
“This data will provide essential insight into classroom realities, guiding evidence-based decisions and advocating for sustainable funding to address complexity, ensuring every student and educator in Alberta has the support to thrive.”
Quick facts
To inform decisions on addressing classroom complexity, data will be collected on total numbers of:
- all staff, per school, including roles
- substitute teachers
- district staff, listed by job title
- students, per classroom, per school
- severe, mild/moderate, and gifted/talented students, per classroom, per school
- English as an additional language (EAL) students, per classroom, per school
- refugee students, per classroom, per school
- First Nations, Métis and Inuit students, per classroom, per school
- Individualized Program Plans, per classroom, per school
- students waitlisted for assessment, per classroom, per school
- incidents of aggression and violence
- $55 million was provided in Budget 2025 to address classroom complexity.
- 8.6 billion is being invested to build and renovate more than 130 schools across the province.
- Budget 2025 is investing $1.6 billion in learning support funding to help meet students’ specialized learning needs.
- Budget 2025 is investing $1.1 billion to hire more than 4,000 teachers and educational staff.
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