School leadership
2.1. Leadership standards and roles
2.2. Selection and working conditions
2.3. Leadership preparation and training
3. Teachers, parents and students
3.1. School management committees and boards
4.1. Autonomy of school leaders
4.2. Assessment and accountability of school leaders
4.3. Teacher assessment by school leaders
1. Terminology
The 2017 World Bank: Results of the Afghanistan SABER Service Delivery Survey mentions that the primary school leadership comprises principals, deputy principals, and head teachers, with most of public schools led by principals, and some by deputy principals or head teachers, the latter two positions more prevalent in rural areas.
The School Management Training (SMT) Manuals refer to school principal ﻣﺪﻳﺮ ﻣکﺗﺐ and school principals ﻣﺪﻳﺮان ﻣکﺎﺗﺐThe 2018 Guideline for the Experts of the General Directorate of Academic Supervision of the Ministry of Education refers to the terms “high school administrations”, آمریت های لیسه ها, and “head teachers”, سر معلمان.
The Bill for Academic Supervision of Public Education refers to the ‘’headmaster/manager’’ of the educational institution, ‘’head teacher’’, ‘’department head’’ and “teachers”, but does not outline their roles nor definitions.
The 2017-2022 National Education Sector Plan refers to the term “principals” and states that “Heads of education centres/schools/institutes are responsible for the daily management of education service delivery and accountable to both the District Education Office and School Shura” (Shura meaning Council).
2. School principals
2.1. Leadership standards and roles
Competency standards and leadership frameworks and guidelines
The 2017 World Bank: Results of the Afghanistan SABER Service Delivery Survey mentions that the primary school leadership comprises principals, deputy principals, and head teachers, with most of public schools led by principals, and some by deputy principals or head teachers, the latter two positions more prevalent in rural areas.
The School Management Training (SMT) Manuals refer to school principal ﻣﺪﻳﺮ ﻣکﺗﺐ and school principals ﻣﺪﻳﺮان ﻣکﺎﺗﺐThe 2018 Guideline for the Experts of the General Directorate of Academic Supervision of the Ministry of Education refers to the terms “high school administrations”, آمریت های لیسه ها, and “head teachers”, سر معلمان.
The Bill for Academic Supervision of Public Education refers to the ‘’headmaster/manager’’ of the educational institution, ‘’head teacher’’, ‘’department head’’ and “teachers”, but does not outline their roles nor definitions.
The 2017-2022 National Education Sector Plan refers to the term “principals” and states that “Heads of education centres/schools/institutes are responsible for the daily management of education service delivery and accountable to both the District Education Office and School Shura” (Shura meaning Council).
Roles
Setting expectations/objectives: The 2017-2022 National Education Sector Plan mentions that school principals play a crucial role in collecting, updating, and utilizing data, particularly in identifying out-of-school children and facilitating policy decision-making, thereby contributing to the planning and expansion of learning opportunities at the district and provincial levels. The local school mapping process of school principals helps them track the residences of all school-age children in their area, aiding in follow-ups on absenteeism, fostering community involvement, and informing education planning at different administrative levels.
The 2017 World Bank: Results of the Afghanistan SABER Service Delivery Survey highlights that principals report to the District Education Office and to the School Council.
The Bill for Academic Supervision of Public Education states that it is the role of an academic supervisor to ensure the presence of an educational plan.
Developing teaching and learning: The 2017-2022 National Education Sector Plan highlights that school principals assume responsibility for implementing the curriculum framework and ensuring its compliance with the educational law. The plan indicates that teachers, school principals, and academic supervisors will receive training or guidance on the features of the revised curriculum and how to implement it effectively.
Promoting collaboration: The 2017-2022 National Education Sector Plan mentions that the school principal’s responsibility “to engage with parents and community leaders and act as the link between local interests and government authorities” as “principals ensure the school is inclusive, safe and conducive to learning and positive social relations with the participation of stakeholders”. They collaborate with the community to address the physical facilities of the school, such as boundary walls, water availability, and toilet facilities, as well as ensuring safety within and on the way to school, with the overarching goal of designating schools and learning centers as "safe havens" devoid of any barriers to learning.
Supporting staff development: The 2017-2022 National Education Sector Plan underscores that the principal’s influence on classroom practice is determined by the extent of their support and supervision of teachers, which is informed by their comprehension of the processes and motivations behind student learning, encompassing the aspects of how, what, when, and why students learn. “Support to teachers will be provided by school principals as a major component of their leadership role”. However, the Bill for Academic Supervision of Public Education mentions that an academic supervisor ensures the availability of teacher training and proper implementation of capacity-building programmes for teachers and other staff of the educational institution.
Acting in accordance with the ethical principles of the profession: The 2017-2022 National Education Sector Plan states that school principals are to follow the code of conduct that will be developed and disseminated by the Ministry of Education.
Others: The 2017 World Bank: Results of the Afghanistan SABER Service Delivery Survey states that school principals use 17% of their working time to teach classes in addition to their non-teaching functions. However, principals in urban areas tend to spend one and a half hours more in non-teaching activities compared to principals in rural areas.
2.2. Selection and working conditions
Degree requirements and prior teaching experience
According to the 2017 World Bank: Results of the Afghanistan SABER Service Delivery Survey, the majority of primary school principals meet the minimum education requirement for teachers, with only 3% holding advanced diplomas or higher degrees. In general education, there is no distinct career path for principals, it is rather often a result of promotion from senior teaching roles, leading to an older workforce nearing retirement age. “A teacher in Afghanistan needs on average 12 years of experience in the education sector to acquire the position of principal. However, a rural teacher may become principal much sooner than an urban teacher”.
The 2017-2022 National Education Sector Plan emphasizes that “teacher professional development and certification through the new competency-based training curriculum and standards will be a requirement for principals” and that the plan for the certification of qualifications for School Administrators is still under development.
Article 45 of the 2009 Education Law No.56 states that individuals seeking employment as teachers must hold the employment qualification outlined in the 2008 Civil Service Law and must pass the National Teaching Skill Examination.
Appointment decision
According to the Procedure of Recruitment of Employees of the Department of Education in the Set of 38 Laws and Procedures of the Ministry of Education, the General Directorate of Human Resources, the Directorate of International Relations and Cultural Affairs, and the Appointments Committee organize and prioritize the vacant positions, review and revise duties according to the laws governing civil service employees (art.5). The General Directorate of Human Resources then promptly announces vacant positions in educational institutions through public media, the relevant website, and other available means. The content of the announcement includes the title and location of the position, the name of the ministry or managing authority, a condensed version of the duties, qualifications, required skills, and other necessary information for candidates, along with the address of the reference, the application form submission date, and the form's submission date (art.6).
The Appointments Committee for positions is composed of several members, including the Head of the Ministry's Office serving as the committee head, the Head of International Relations and Cultural Affairs as a member, a representative appointed by the General Directorate of Public Education, another representative designated for financial and administrative matters, the Head of Employment, a gender unit representative, and an observer from the Independent Administrative Reforms and Civil Service Commission. Additionally, the committee includes the Employment officer or director of the General Directorate of Human Resources, who acts as the secretary (art.9).
Employment equity measures
The 2017-2022 National Education Sector Plan aimed to increase “the number of qualified females in administrative and leadership roles” with strategies to increase their placement and ensure their success. “Women interested in the role of principal will be given special training in educational leadership principles and practice”.
Working conditions
The 2019 Guidelines for the Implementation of Salaries, Overtime and Fees ensure that all salary implementation offices of the Ministry of Education at both the central and provincial levels are well-informed about all laws, regulations, and procedures related to salary implementation. The document also defines the salary scale to all civil servants in the Ministry of Education but does not specify to which grade/scale school principals belong.
The 2017 World Bank: Results of the Afghanistan SABER Service Delivery Survey found that principals typically work about 8.63 hours daily and earn an average salary of approximately 183 USD per month, which is twice the average teacher's salary. However, there's a wide range in principal salaries, from 58 USD to 570 USD, including allowances, with urban principals generally earning more than their rural counterparts.
2.3. Leadership preparation and training
Pre-service training
The 2017-2022 National Education Sector Plan includes strategies to improve preparing and deploying principals trained in leadership roles in management, administration, school improvement and supervision of teachers.
Induction and in-service training
The 2017-2022 National Education Sector Plan highlights the importance of capacity-development and aims to “develop leadership skills so principals are able to lead the pedagogical, organizational, educational and environmental development of schools with the participation of stakeholders”. School principals are provided training to perfect the School Administrator Competency Framework as well as the School Management (SMT) manuals and are also trained on safety routines, including response strategies for violence, attacks, natural disasters, and emergencies. The SMT-trained principals ensure that the professional quality of teachers improve student achievement. The 2021 Annual Operational Plan confirms that school principals are provided management, administration, SMT professional development programmes and safety training.
The 2017 World Bank: Results of the Afghanistan SABER Service Delivery Survey affirms that most principals have received school management training of short duration (1 to 4 weeks) and some principals received training that lasted more than one month. Almost half of principals received training in HR and administrative skills.
3. Teachers, parents and students
3.1. School management committees and boards
Article 48 of the 2009 Education Law No.56 outlines the establishment of the School Council shura consisting of parents, students, teachers, and local community members in both public and private schools and educational institutions. The primary objectives of this council include fostering active participation of parents, teachers, and local residents in the education and training process. These councils, as outlined in the 2017 World Bank: Results of the Afghanistan SABER Service Delivery Survey, serve as community-based management committees involved in activities such as student enrollment campaigns, school protection, construction and maintenance assistance, and monitoring education quality and delivery.
Based on Article 48 of the 2009 Education Law No.56, the 2021 School Council Bill was established. The School Council is established with a membership of 15 individuals, as proposed by the school director. This composition includes two teachers elected through institution-wide elections, six parents of students elected by all present parents, and seven representatives from the local community. The community representatives consist of one member from the mosque committee, two from elders and influential figures, and two from educational figures. The school director takes on the responsibility of the secretarial role, and the council includes an advisory member chosen from outstanding students. Decision-making within the School Council is conducted through a majority vote among the elected representatives of teachers and parents. This carefully structured formation aims to create a representative and effective School Council, promoting collaboration between the school and the local community for the improvement of education.
In addition, several school committees include the Quality Education Oversight Committee, Communications and Social Mobilization Committee, Material and Spiritual Collaboration Committee, Provisions Committee, and Financial Committee; each committee ensures diverse representation. For instance, the Quality Education Oversight Committee is comprised of four members, including the deputy, two council education committee members, and a secretary. Similarly, other committees such as Material and Spiritual Collaboration, Communications and Social Mobilization, Provisions, Financial, and Gender Committees have their unique compositions with representatives from different stakeholders. The 2021 School Council Bill provides detailed description of the roles of the aforementioned school committees.
3.2. Middle leaders
The SMT 3 Manual highlights teachers’ participation in the Parent-Teacher Associations and the 2021 School Council Bill includes them as active members of the school council.
3.3. Parents
Article 48 of the 2009 Education Law No.56 highlights the participation of parents in the school council which allows parents to actively participate in resolving educational challenges and contributing to the improvement of the education system. Parents will have a voice in addressing issues related to their children's education, such as ensuring educational quality, preventing misconduct, and promoting a safe learning environment. The 2021 School Council Bill mentions that six parents of students elected by all present parents take part in the school council. The Provisions Committee and the Financial Committee also include a parent representative.
According to the 2017 World Bank: Results of the Afghanistan SABER Service Delivery Survey, community participation in parent-teacher associations is widespread in public schools.
The Parent-Teacher Association Regulation “قانون ﺍﺳﺎﺳﻰ انجمن معلم والدين ” found in the SMT 3 Manual conditions members to be teachers, parents, or guardians of a student in the same school. The regulation outlines the responsibilities of the Association, which includes holding meetings at least once a month, with prioritized duties considered weekly. These duties involve consultation and planning for achieving association goals, providing suggestions for improving educational quality, establishing agreements with the school principal, and organizing parent involvement in meetings. The regulation emphasizes coordination for celebration days, increasing parental interest in association meetings, organizing educational and sports competitions, and fostering relationships with external organizations. The methods for selecting members and establishing the association are in the hands with the school principal who invites parents and students to a general meeting within 30 days of the school year's start, though exceptions allow for final association elections up to 45 days after the start of the school year.
3.4. Students
According to the 2009 Education Law No.56 and 2021 School Council Bill, students are represented in the school council. The Parent-Teacher Association Regulation in the SMT 3 Manual mentions that students are involved in the general meetings.
4. Governance
4.1. Autonomy of school leaders
According to the Procedure of Recruitment of Employees of the Department of Education, the Ministry of Education's Appointments Committee is responsible for the employment of civil service employees (art.5). The Bill for Academic Supervision of Public Education mentions that it is academic supervisors that ensure the employment of professional teachers according to the field, taking into account the ratio between students and teachers and ensures the appropriate assignment of teachers to relevant classes, adhering to the principles of teaching and active learning, and oversees the implementation of the curriculum in accordance with the established plan and the progression of education. It does not refer to the role of school principals in this process.
The 2017 World Bank: Results of the Afghanistan SABER Service Delivery Survey highlights that the “Ministry of Education in Afghanistan is twice as likely to be the decision-maker on most of the school management issues than principals”. The governance of schools in Afghanistan is therefore primarily centralized under the Ministry of Education, responsible for various aspects of school management such as procurement of resources, teacher allocation, promotion, transfers, salaries, hiring, firing, and approval of school operating budgets. The findings adds that principals feel they have decision-making power mainly in administrative tasks, like appointing teachers for training, school maintenance, teacher allocation to grades, hiring of non-teaching staff, and developing course content for non-core curricula.
4.2. Assessment and accountability of school leaders
The 2017-2022 National Education Sector Plan states that school principals are held accountable by academic supervisors, faculty members of science centers, and other educational authorities through continuous on-the-job support, mentoring, regular observation, and feedback on school management.
The Bill for Academic Supervision of Public Education states that an academic supervisor ensures that the headmaster/manager of the educational institution, head teacher, department head and teachers fulfill their duties in accordance with their job descriptions. The 2018 Guideline for the Experts of the General Directorate of Academic Supervision outlines the standards and methods to which academic supervisors must adhere.
The 2017 World Bank: Results of the Afghanistan SABER Service Delivery Survey mentions that supervision visits, conducted by the District Education Office, involve providing recommendations to schools, sometimes in written feedback. Most principals indicate that they share these recommendations with their school staff.
4.3. Teacher assessment by school leaders
The 2017-2022 National Education Sector Plan states teachers are held accountable for the success of their teaching through credentialing, performance assessment, review, and evaluation, with a revised framework for academic supervision and faculty members of science centers developed to establish competencies, credentialing, revised scope of work, and supervision methodology. Principals and district staff are tasked with increasing their focus on classroom observation and monitoring the teaching staff.
The 2018 Guideline for the Experts of the General Directorate of Academic Supervision mentions that assessing the level of knowledge and skills of teachers is done by the academic supervisor, considering evaluation principles designed to measure the professional knowledge and teaching skills of teachers.
To enhance the coherence of the supervision process and teaching observation, the General Directorate of Educational Supervision has designed and implemented a set of forms for practical application in schools. The Observation Form for Teacher is used for observing and documenting teacher performance during classes.
The 2018-2019 Guidelines for using Observation Form for Teachers mention that the goal of teacher observation is to identify the level of remaining knowledge, teaching methods, classroom management, and the teacher's interaction with students to support quality and impactful teaching for student learning.
It adds that the actions of the supervision team in school administration involve several key steps. First, they introduce and explain the purpose of the visit and the execution plan for the school, reviewing past opinions recorded in the school observation book. Additionally, they ensure clear definitions of classes and teaching hours, studying the allocated time divisions for teachers. The team assigns a working group led by the team leader and includes head teachers to observe pre-scheduled classes in the school. Administrative oversight is conducted in group supervision, covering fundamental books, three-piece boards, and delivering administrative books to homes. Individual or cluster supervision ensures that the team oversees administrative affairs in schools within their jurisdiction. The team also ensures teachers are assigned according to their subjects and guides them to read regulations and rules, providing necessary explanations. These actions contribute to effective educational supervision at the school level.
The 2018 Guideline for the Experts of the General Directorate of Academic Supervision mentions that there is a subject-oriented educational supervision that acts as a pivotal link between different educational sectors. It is designed to strengthen educational objectives, conduct research, address textbook issues, identify teachers' challenges in teaching, enhance teacher capacities, specialize the education system, evaluate students regularly in various subjects, reform administrative systems, limit unnecessary curriculum content, and standardize educational programmes. The structural design of subject-oriented educational supervision focuses on subject-based expertise, fostering competence in the teaching field, and aligning educational plans with societal and contemporary needs.
The Academic Supervision Reporting System operates cyclically, with observations and reports at various levels. School-level reports on teacher performance are submitted to the Provincial Directorate, while district-level teams compile subject-specific reports. These are compared for improvement, and monthly evaluations are consolidated and submitted. The Provincial Directorate reviews and submits reports to the Ministry of Education, which prepares quarterly feedback for continuous improvement. Copies are sent to enhance provincial reporting, with provincial authorities coordinating with central directorates for informed decision-making.
The 2017 World Bank: Results of the Afghanistan SABER Service Delivery Survey notes that most school principals meet with at least half of their teachers to assess their performance, while about 85% of principals regularly observe classroom teaching.
This profile was reviewed by Hazrat Shah Kayen, Educational Researcher.
