A comprehensive teacher demand, supply, and shortage (TDSS) model is proposed as a conceptual framework for analyzing and determining the teaching force in bilingual and English-as-a-Second-Language (ESL) education. Available data on the shortage of bilingual education teachers are reviewed, and new national data on their characteristics are presented. Information needs and policy issues are discussed with respect to TDSS in bilingual education. It is suggested that there is a need to consider alternative means to increase the supply of ESL and bilingual teachers in order to improve the retention of qualified experienced teachers and to improve the yield and retention of newly graduated teachers. Appended materials include information on databases relevant to TDSS research; Schools and Staffing Survey (SASS) technical notes; and tables of standard errors for average number of years of teaching in current school of ESL and bilingual education by sector, level, and selected characteristics, 1987-88. Contains 19 references. (LB)