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 1996 Law on National Education Guidelines and Framework (last amended in 2023) uses the term “Diretor da Escola” which may be translated as the “director of the school”. The 2014 Law, that approves the National Education Plan, uses “Diretores e diretoras de escolas” and “gestores escolares”, which can be translated as “directors of schools” and “school managers”, respectively, interchangeably. These terms are not defined within these laws.
Law 14.817, of January 16, 2024, establishes guidelines for valuing professionals in public schools. According to that law, educational professionals of public schools “are those who, having the training required by law, perform the teaching function or pedagogical support functions for teaching, that is, school management and administration, planning, inspection, supervision and educational guidance, or even technical and administrative support functions that require technical or higher education in pedagogical or similar area (article 2). Thus, the director of the school is defined by this law as an education professional who performs pedagogical support functions for teaching.
2. School principals
2.1. Leadership standards and roles
Competency standards and leadership frameworks and guidelines
The National Common Competencies of the School Director is used as a set of parameters for the action of school directors in line with the demands established by the national educational standards. The competencies help to define the national, state, and municipality policies; monitor and evaluate the work of school directors, as well as their qualifications; and support the initial and continued training of school directors. Currently, the document functions through a Resolution of the National Council of Education and is awaiting approval from the Ministry of Educational to become mandatory.
Roles
Setting expectations/objectives: One of the skills (Skill A.1) of the National Common Competencies of the School Director is “lead school management.” Under this skill, the school director collectively develops, reinforces, reviews and strengthens the school's values, principles and goals. The director uses a variety of data management methods and technologies to ensure that school resources and workers are organized and directed efficiently, appropriately, and with quality to provide an effective learning and safe developmental environment.
Developing teaching and learning: The director has the fundamental responsibility for developing an efficient and effective teaching-learning culture. They encourage pedagogical practices linked to improving learning in the stages and teaching modalities offered, as well as their dissemination. According to the National Common Competencies of the School Director, the director and the technical-pedagogical team coordinate the general implementation of the Curricular Bases and study programs and monitor student learning.
Promoting collaboration: Educational institutions, in accordance with the 1996 Law on National Education Guidelines and Framework, are expected to build a safe school environment and communicate with families and the community. In the National Common Competencies of the School Director, school directors are expected to lead the creation of an internal and external interaction communication network which reflects a collaborative school climate. They encourage participation and coexistence with the local community, involving families and the community in meaningful, reciprocal, and mutually beneficial ways. This may be through educational, social, and cultural initiatives with community institutions. School directors must also encourage and support the school committees such as the school council and parent (and teacher) associations, involving them in planning and monitoring school activities, and maintaining a permanent interface of informed and transparent dialogue with everyone involved. Directors are requested to provide parents or guardians with information about school management and student learning and development. https://www.undime-sp.org.br/wp-content/uploads/2017/09/regimentoef_modelo_marilia0509.pdfIn many contexts, this includes information about students' attendance and performance, as well as about the implementation of the pedagogical proposal.
Supporting staff development: According to the National Common Competencies of the School Director, directors ensure, in the school routine, moments of exchange, planning, and evaluation among teachers. They coordinate and articulate teachers and staff in work teams with common commitments, objectives, and goals. The director conducts team performance evaluations. It is up to them to encourage the continued evaluation of teaching activities and their possible training needs. They enable the continued training of professionals from the school. The continuing teacher training program is included in the school’s political pedagogical project plan which is developed and executed by the director.
Acting in accordance with the ethical principles of the profession: The director is expected to expand their knowledge about inclusion, equity, lifelong learning and strategies. Currently, a national code of ethics for school directors does not exist. However, some states do discuss ethics for teachers. The State of Paraná, in Law No. 755 of November 20, 2001, outlines ethical precepts. These include precepts such as “respect the dignity and rights of the human persons” and “refrain from acts incompatible with professional dignity.” In the case of Marilia, schools are expected to establish a “Standards and Coexistence Committee” which guides the professional and interpersonal relationships in the school based on principles of solidarity, responsibility, ethics, cultural plurality, autonomy, democratic management, and respect for diversity. As such, there are coexistence standards for faculty which function similarly to a “code of ethics.”
Others: School directors also are expected know how to use new information and communication technologies as important resources for school management. They also supervise the provision of school meals, school transport and other services provided by the school. This includes the development of guidelines on school spaces, equipment and materials.
2.2. Selection and working conditions
Degree requirements and prior teaching experience
The 1996 Law on National Education Guidelines and Framework considers as educational professionals “teachers qualified at secondary or higher level to teach in early childhood education and in elementary and secondary education”, as well as “education workers with a diploma in pedagogy, with qualifications in administration, planning, supervision, inspection, and educational guidance, as well as master's or doctoral degrees in the same areas”, in which directors may be included. Teaching experience is a prerequisite for the professional practice of any other teaching function. Teachers, according to the 1996 Law on National Education Guidelines and Framework, must have graduated from recognized courses. Goal 15 of the 2014 National Education Plan called for the development of a national policy for the training of education professionals and ensure that all teachers of basic education have specific training at a higher level, obtained in a degree course in the area of knowledge in which they work.
Regarding the recruitment of directors, each state varies in the details. 19 of the 26 states and seven of the 11 capitals report that they have standards for selecting directors. When listing them, the majority only mention functional prerequisites, such as length of service, professional qualifications and teaching experience. The majority require a degree and experience as a teacher.
Appointment decision
Brazil’s 1996 Law on National Education Guidelines and Framework emphasizes that it is up to education systems to define the norms of democratic management of public education in basic education. Thus, the selection of school directors varies depending on state laws and regulations. Research by the Victor Civita Foundation in 2011 shows that direct elections are the only form of selection in six states. In ten, it is combined with other methodologies such as certification and nomination by local bodies. Four states only use direct nomination as their way to hire school directors. In these states, the Department of Education designates directors for the schools, often according to political-partisan criteria. One state uses open competition. Most states appoint/select teachers to play the role of director during their careers.
Goal 19 of the 2014 National Education Plan seeks to ensure the implementation of the democratic management of education, associated with technical criteria of merit and performance and public consultation with the school community, within the scope of public schools. Federated entities are required to approve specific legislation that regulates the appointment of school directors with requirements of technical criteria of merit and performance, as well as the participation of the school community. Strategy 19.8 in particular, asks that educational entities develop training programs for school directors and managers, as well as apply a specific national test, in order to support the definition of objective criteria for filling positions, the results of which can be used by adherence. As of 2020, 12.9% of state education networks have adopted selection processes and elections as mechanisms for choosing school directors. The National Education Plan 2024-2034, in its Goal 17 (Ensure social participation in educational planning and management), is aimed to ensure that all school directors are selected based on technical criteria and in consultation with the school community.
In Ceará, school directors in regular schools are selected through open competition. Candidates receive points based on qualification. The first stage is the review of the candidate's CVs: A doctorate receives 15 points, a master’s degree receives 12 points, a certification of completion of specialization is 10 points, a certificate of graduation is 8 points, work experience receives one point per year up to 5 points. The next stage is an interview also worth 50 points total. During the interview, candidates' knowledge is tested, and points are assigned based on their competency. They are assigned as follows: knowledge about management instruments (10 points); basic understanding of the National and State Curricular Guidelines (10 points); mastery of management strategies for results (10 points); knowledge about the State’s Educational Programs and Projects (15 points); and leadership, communicability, and creativity (05 points). Candidates must receive at least 60 points to be eligible for the position. The one who receives the highest score is hired.
Law 14.817, of January 16, 2024, establishes guidelines for valuing professionals in public schools. It aims to guarantee an organization of the career that takes into account “effective possibility of periodic functional progression throughout the professional's active service time”, as well as “requirements for progression that stimulate permanent professional development”. However, according to a survey conducted in 2022, more than half of public school principals were chosen by nomination for the position and not by election with the participation of the school community.
Employment equity measures
In Indigenous schools in Ceará, Indigenous people must be represented in the process of selecting the school director.
Working conditions
Once in office, school directors spend two to three years in their position with a chance of re-election. The salary and work contracts vary by state and municipality. For example, in Ceará, candidates nominated for the position of school director must work 8 hours per day. School staff, including the director, are considered state servants. In the public network, 77% of acting directors are civil servants. Directors may be a part of the National Confederation of Education Workers (CNTE).
2.3. Leadership preparation and training
Pre-service training
According to the 1996 Law on National Education Guidelines and Framework, training of education professionals for administration, planning, inspection, supervision and educational guidance for basic education, will be carried out in undergraduate courses in pedagogy or at the graduate level. According to research conducted by the Victor Civita Foundation in 2011, some states offer initial training for school directors to gain an overview of the school as a whole, the role of a leader, and the new challenges the position offers. For example, in the state of Amazonas, candidates need to have a postgraduate degree or participate in the Distance Training Program for School Managers offered by the Department of Education, in partnership with the National Council of Secretaries of Education. The course lasts around 300 hours and is predominantly done remotely. In the state of Mato Grosso do Sul interested parties undergo 40 hours of preliminary training and pass a knowledge test. Strategy 19.8 of the 2014 National Education Plan aims for the development of training programs for school directors.
Induction and in-service training
The 1996 Law on National Education Guidelines and Framework provides for the training of education professionals, to meet the needs of the specificities of the exercise of its activities, as well as the objectives of the different stages and modalities of basic education. This includes continuous professional development. Law 14.817, of January 16, 2024 mentions that the valorization of public basic school education professionals shall include “continuing education that promotes the permanent updating of professionals” ( article 3). Research by the Victor Civita Foundation in 2011 found that most states offer training programs for school directors. They are often taught by either internal professionals from the Department of Education or institutions hired specifically for this purpose.
Recently, the Federal Government established, through Ordinance 481, the Continuous Training Program for School Principals and Technical Staff of Education Departments - Proditec, with the purpose of contributing to the improvement of administrative, financial, and pedagogical management of public schools in basic education and education departments, by supporting continuous training. The program aims to enhance the administrative, financial, and pedagogical management of public schools at all levels of basic education and, consequently, improve students' learning outcomes. Proditec intends to "strengthen the professionalization of those involved in the management of schools and central education bodies, fostering collaborative work, integrated planning, and the exchange of successful experiences in the training process for building increasingly inclusive and democratic schools." The Ministry of Education (MEC) will be responsible for providing technical and financial support for the training to take place. Thus, SEB will coordinate the training activities developed by public higher education institutions and training centers for education professionals from state and municipal education departments or equivalent bodies, in addition to supporting self-instructional courses available on MEC's Virtual Learning Environment (Avamec).
3. Teachers, parents and students
3.1. School management committees and boards
The 1996 Law on National Education Guidelines and Framework provides for the training of education professionals, to meet the needs of the specificities of the exercise of its activities, as well as the objectives of the different stages and modalities of basic education. This includes continuous professional development. Law 14.817, of January 16, 2024 mentions that the valorization of public basic school education professionals shall include “continuing education that promotes the permanent updating of professionals” ( article 3). Research by the Victor Civita Foundation in 2011 found that most states offer training programs for school directors. They are often taught by either internal professionals from the Department of Education or institutions hired specifically for this purpose.
Recently, the Federal Government established, through Ordinance 481, the Continuous Training Program for School Principals and Technical Staff of Education Departments - Proditec, with the purpose of contributing to the improvement of administrative, financial, and pedagogical management of public schools in basic education and education departments, by supporting continuous training. The program aims to enhance the administrative, financial, and pedagogical management of public schools at all levels of basic education and, consequently, improve students' learning outcomes. Proditec intends to "strengthen the professionalization of those involved in the management of schools and central education bodies, fostering collaborative work, integrated planning, and the exchange of successful experiences in the training process for building increasingly inclusive and democratic schools." The Ministry of Education (MEC) will be responsible for providing technical and financial support for the training to take place. Thus, SEB will coordinate the training activities developed by public higher education institutions and training centers for education professionals from state and municipal education departments or equivalent bodies, in addition to supporting self-instructional courses available on MEC's Virtual Learning Environment (Avamec).
3.2. Middle leaders
According to the Teaching Career Plan of Federal Educational Institutions, teachers are able to progress from class I to class V. To progress to higher classes, teachers must have higher qualifications, have work experience, and by approved in the performance evaluation process. To progress to class II, one must obtain a Masters. To progress to class 3, one must obtain a Doctorate. A class V teacher must have a doctorate, be approved in the performance evaluation process, and obtain approval with the consideration of the teaching activities, research, extension, academic management and relevant professional production, thesis defense, or unpublished academic research of the applicant. This ranking is only available to 20% of teaching staff. Teachers at higher levels receive higher salaries and more teaching responsibilities. There is also the position of pedagogical supervisor/coordinator.
3.3. Parents
Strategy 19.4 of the 2014 National Education Plan encourages all basic education networks to develop constitutions and strengthening of parents’ associations, ensuring them adequate spaces and operating conditions in schools. However, there is no federal legislation that specifically deals with the creation and management of Parent Teacher Associations (APMs) in Brazil. The existence of these associations is mandatory only in the event that the school receives funds from the federal government from the Direct Money at School Program (PDDE). In these schools, APMs must be legal entities under private law registered in a notary's office and have a bylaw. Members are elected at general meetings by secret ballot on competing slates for two-year terms. APMs work to assist the school board, pedagogical advisors and educators in fulfilling the school's political-pedagogical project. They represent the interests of parents and family members in the school community and have social and educational purposes as a non-profit representative of the school community.
Some states may have their own legislation. For example, in São Paulo, Decree No. 12,983 of December 15, 1978, establishes the standard statute of the APMs of the state schools in the network. The school management team is responsible for coordinating the parents and teachers association with the school council. In Marilia, APMS aim to guarantee the participation of the school community in the search for autonomy in the management of financial, human and material resources of educational units.
3.4. Students
Strategy 19.4 of the 2014 National Education Plan encourages all basic education networks to develop constitutions and strengthening of student councils, ensuring them adequate spaces and operating conditions in schools as well as fostering their presence in school councils through their representatives.
There are no laws or policies that mandate the creation of student councils. However, the Union of secondary education students (UBES) represents secondary students across the nation, alongside the National Student Union (UNE). The UNE outlines the process of creating ones own student union entity. It is up to the management unit of the school to create conditions for the organization of students. In Marilia, the Student Union is defined as “a collegiate body representing the interests of students at the school unit, with educational, cultural, civic, sporting and social purposes.” The organization, functioning and activities of the council are established in their statutes. Representatives are voted on. Meetings are held on school premises with consent from the school unit’s management team.
4. Governance
4.1. Autonomy of school leaders
According to the 1996 Law on National Education Guidelines and Framework (amended in 2023), educational establishments are responsible for managing their personnel and their material and financial resources. Strategy 19.7 of the 2014 National Education Plan similarly states that educational establishments should have pedagogical, administrative and financial management autonomy. The National Common Competencies of the School Director states that the director is responsible for financial administration and accountability for material and financial resources received. They are unable to remove teachers who are considered public servants.
4.2. Assessment and accountability of school leaders
Research by the Victor Civita Foundation shows that there are “no defined criteria for monitoring school management.” Assessment and accountability vary by state and municipality. In Ceará, Decree No. 32,426 of November 21, 2017 states that school directors’ performances are evaluated annually, through an institutional procedure. Members of the management core, which includes directors, are subject to dismissal if they do not meet the minimum required evaluation criteria. The evaluation process is regulated through an Ordinance of the Head of the Department of Education.
4.3. Teacher assessment by school leaders
Article 12 of the 1996 Law on National Education Guidelines and Framework (amended in 2023) states that the school must accompany the teacher to verify that his work plan is being fulfilled. However, it does not define how it should be evaluated.
The National Common Competencies of the School Director, which is not yet mandatory, establishes as a competency of the director (C.3) the conduction of the evaluation of the team's performance, giving feedback to those evaluated and discussing the collective aspects in participatory instances, such as the school council.
This profile was reviewed by Jaana Flávia Fernandes Nogueira, Professor and Researcher (Fundação Getulio Vargas), and Michelle Barbosa Muniz Jordão, Coordinator of Multilateral Affairs at the Office for International Affairs of the Ministry of Education, with the support of the Permanent Delegation of Brazil to UNESCO.
