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 2013 Education Act consistently uses the term “Principal Teacher,” which is defined as, “the teacher in charge of the school.” The document also uses the term “Head Teacher” interchangeably with the term Principal Teacher in several instances, but does not explicitly define the term. In other documents, such as Tonga’s Minimum Service Standards for Schools and the 2004-2019 Tonga Education Policy Framework, the term “Principal” is primarily used.
2. School principals
2.1. Leadership standards and roles
Competency standards and leadership frameworks and guidelines
Tonga’s Minimum Service Standards for Schools establishes minimum standards that schools must achieve in specified areas while also serving as a framework for accountability. The standards are organized into key areas, including Teaching Methods, Teaching and Management Capacity, Learning Environment, and Students Achievement. The Teaching and Management Capacity standard emphasizes the importance of administrative staff, including school leaders, in managing finances, facilities, resources, staff and learning.
The Ministry of Education and Training’s 2012 Guide to Improving Tongan Leadership includes five Key Dimensions further split into sub-dimensions. The key dimensions include ethical leadership, visionary leadership, organisational leadership, instructional leadership, and community connectedness.
Roles
Setting expectations/objectives: Principals work with teachers, parents, and community members to develop and implement School Improvement Plans (SIP). According to Tonga’s Minimum Service Standards for Schools, Principals establish policies and procedures in their school that ensure the effective, efficient and safe operation of the school. They plan strategically, working collaboratively with staff and the community to identify weaknesses and strengths and prioritise needs against the standards. Finally, they ensure that accurate records are kept and that data is collected and used to inform school-based planning, teaching and learning, with the clear aim of improving educational outcomes and the quality of education. The principal must be able to demonstrate the skills necessary to lead a continuous school improvement process focused on increasing student achievement. They develop, implement, and review annual school plans and strategic plans as well as school policies. The 2012 Guide to Improving Tongan Leadership further states that the principal must know the organisation’s plans and set directions accordingly; directions are usually associated with student achievement and the school’s mission statement. The school plan reflects the school context, is in alignment with the organizational plan and responds carefully to the changing needs of the education sector and community
Developing teaching and learning: According to the Minimum Service Standards for Schools, school principals are responsible for ensuring that all staff receive appropriate curriculum and instructional materials and that they are provided with the necessary professional development and training to effectively use the curricular and learning materials. The indicator for Standard 2.6 outlines the need for principals to ensure that “professional development is conducted on a regular basis and focuses on a range of aspects including pedagogy, curriculum, learning, assessment.” Furthermore, Standard 3.1 requires learning environments to be safe, supportive, orderly and promote student learning; stating, “healthy school culture promotes social skills, conflict management so that students are prepared and ready to learn.”
According to the 2012 Guide to Improving Tongan Leadership, “the school leader ensures that the school plan delivers a student learning program that follows the prescribed curriculum with complementary programs that suit the learning needs of students and meets the expectations of parents.” The learning programme should be comprehensive, relevant and of quality, reflecting a range of programs (cultural, religious, academic, sporting, the arts, technical, music etc). The student learning program should be regularly reviewed and adjusted to suit the changing needs of students, the expectations of the community and plans of the education system.
Promoting collaboration: According to Tonga’s Minimum Service Standards for Schools, an effective administrator builds strong relationships with staff, students, parents, and the wider community. Indicators include “engagement with students, staff, and other stakeholders in frequent conversations about student learning and achievement” and “encourages parents and community involvement through a range of strategies – including PTA meetings, parent-teacher interviews and reporting.”
The 2012 Guide to Improving Tongan Leadership emphasizes community connectedness as one of its five key domains. Community connectedness includes the sub-dimensions: 1. Parents (PTA) & ex-students; 2. Churches, education committees, advisory boards & other stakeholders; and 3. Cultural competency. At a high achievement level, this means that principals encourage collaboration with parents and the community on school plans while also having input within the community, such as at church councils. The principal knows how to build & sustain culturally appropriate relationships with the community (language, presentation, cultural responsibilities etc) and is seen as a leader in the community as well. School culture is also mentioned as one of the sub-domains, stating, “the principal and school leadership team develop & sustain a school culture that promotes learning, development and leadership amongst students, staff and those associated with the school.” The principal must also ensure that staff, students, parents, and the wider community are kept informed.
Supporting staff development: Principals conduct observations and reviews of teachers in their schools. According to the Minimum Service Standards for Schools, they also must ensure that the teachers are provided with the professional development and training necessary to effectively use curricular and learning materials. Professional development should be conducted on a regular basis and should focus on a range of aspects including pedagogy, curriculum, learning, and assessment. The Minimum Service Standards for Schools also states that principals encourage their staff to share research, instructional strategies, and learning experiences. According to the 2012 Guide to Improving Tongan Leadership, the principal and school leadership team take responsibility for seeking opportunities for teachers to take professional development courses and programmes. This means developing a school plan for teacher professional development based on a consultative process which is both achievable and specifically targets the training needs of teachers.
Acting in accordance with the ethical principles of the profession: The Chief Executive Officer must ensure that the person is of good character; considering whether or not the person satisfies a standard of behaviour generally expected of a teacher or is otherwise disgraceful or improper. Ethical leadership is a critical dimension of school leadership in the 2012 Guide to Improving Tongan Leadership. The behaviour of a leader is judged based on four core values: faka`apa`apa (respect), mamahi`i me`a (loyalty), feveitokai`aki (mutual reciprocity) and lototō (humility). The guide states that “a leader is ethical when he/she demonstrates aspired principles through their processes for solving problems, decision making and through their relationships.”
Others: Principals are expected to keep up with policy and legislation, as well as current Ministry of Education decisions. They are also expected to be culturally competent and adaptive to the context of the community. The 2020 Revised Edition of the Education Act states that Principals are also responsible to immediately notify the Chief Executive Officer of the occurrence of a notifiable disease, natural disaster, or health and safety issue within the school.
2.2. Selection and working conditions
Degree requirements and prior teaching experience
Any person who functions as Principal Teacher or assists in the management of a school or group of schools must be registered as Principal Teacher. While it is not explicitly stated that Principal Teachers must have a degree, Standard 2.1 of the Minimum Service Standards for Schools states that, “teachers must possess a diploma of education.” Further qualifications for teachers are determined through the 2010 Tongan National Qualifications and Accreditation Regulations and the 2018 Tonga Qualifications Framework. The qualifications framework includes “education administration” as a sub-field of the education section.
Appointment decision
For government schools, teaching positions, including the principal, are generally determined centrally by the Ministry of Education, and approved by the Minister. For non-governmental schools, the “Managing Authority,” who is responsible for the management and organisation of all the schools under its control, appoints a Principal Teacher for every school or group of schools under its control to assist the Managing Authority in the fulfilment of its duties and responsibilities.
Employment equity measures
The 2013 Education Act includes measures that address equity. It states, “Staff development activities and assistance shall be provided and allocated on an equitable basis, and where appropriate, should accommodate specific needs of under-represented groups.” However, the legislation does not elaborate on what constitutes "under-represented groups" or provide specific examples of how this principle of equity is to be put into practice.
Working conditions
According to the 2013 Education Act, the period of registration for teachers is three years starting on 31 January of the year when the application for registration is granted and ending on 30 January in the third year. All educators must then re-certify. The 2016 Second Remuneration Report mentions the suggested salaries for all civil servant employees. It recommends a basic salary of $28,987 for a Grade III school principal.
2.3. Leadership preparation and training
Pre-service training
The 2004-2019 Tonga Education Policy Framework states that “Prior training of personnel (especially Principals) must also be undertaken ... so that an adequate skill base of competent and committed people is available.” Leadership training was initiated through the Tonga Institutional Strengthening Project (TISP) project during 1998-2001 and further expanded through the 2004-2019 Tonga Education Policy Framework.
Induction and in-service training
According to the 2013 Education Act, the Ministry shall support and encourage staff members to attain formal qualifications related to enhancing performance in current or future roles. The 2004-2019 Tonga Education Policy Framework does mention continued emphasis in professional development programmes on fostering school-based management practices for school principals. The framework calls for a survey of training needs and professional development aimed towards principals. The principal should seek opportunities for their own professional development so that they are able to give technical advice to their teachers.
3. Teachers, parents and students
3.1. School management committees and boards
According to the 2013 Education Act, the Minister of Education has control over government schools and may establish a Board of Governors or an Advisory Committee for any government school or group of schools. The Minister determines the membership, powers, duties and functions of these boards or committees. In non-government schools, the school’s management is vested in a “Managing Authority” that is registered with the Minister. The Managing Authority is responsible for the school or schools under its control, including student and staff matters, school establishment, organization, and discontinuance.
3.2. Middle leaders
Different senior positions are mentioned in the 2021 Education (Teachers' Registration) Regulations as “Head Tutor, Senior Tutor, Head of Department, Senior Mistress.” Further details regarding their responsibilities and qualification requirements could not be found, though they are also mentioned in the 2016 Second Remuneration Report with higher pay.
3.3. Parents
The 2004-2019 Tonga Education Policy Framework calls for more parent involvement in schools, stating, “Greater involvement of communities (including parents) in education will lead to improved educational achievement. The Ministry of Education places a high value on the contribution of parents to schools, and the good working relationships between schools, parents and people in local communities.” Tonga’s Minimum Service Standards for Schools mentions PTAs by providing examples of forms of support such as financial support, conducting repairs around the school, caring for grounds, and providing support at home in helping their children with schoolwork.
The 2012 Guide to Improving Tongan Leadership mentions PTAs as one of the stakeholders who prepare the school plan. It also includes PTAs as a sub-division of the leadership framework. The PTA is comprised of members which includes the Principal, school leadership team, parents, teachers and ex-Students’ representative. The PTA helps co-develop school plans that include school, home and community programs. They also have a reporting system put in place for the school which is open for review on a regular basis and reflects best practices including accountability and transparency. The system includes details of finance and school progress and is provided to the PTA by school leadership.
3.4. Students
Although information about student councils comprised of current students could not be found, the 2012 Guide to Improving Tongan Leadership does encourage school leaders to help establish ex-student associations. These ex-student associations have similar functions as the school PTA. They may be consulted during the development of school plans, student learning programs, and other key programs. They also are a part of the school's reporting and communication systems.
4. Governance
4.1. Autonomy of school leaders
School principals were provided more school autonomy through the 2004-2019 Tonga Education Policy Framework, which gave schools the freedom to plan and manage their own annual budgets. Schools were also encouraged to undertake more responsibility for their own management. Principals are also instrumental in negotiating teachers for their schools, working together with Heads of Ministry of Education Divisions to undertake an annual staffing allocation exercise. Although Principals in Government schools may indicate whom they wish to have on their staff, they do not finally decide who is appointed. According to Tonga’s Minimum Service Standards for Schools, responsibilities include ensuring all staff have agreed and signed Job descriptions.
The principal ensures financial resources are used for the effective operation of the school and to meet prioritised needs. The 2012 Guide to Improving Tongan Leadership states that the principal and school leadership team are able to influence the Ministry of Education/Main Education Office when the school budget is being allocated as long as they use all received funding in an accountable and transparent manner. The principal and school leadership team have a detailed budget for the school with clearly marked sources of funding and anticipated expenditure as allocated by the Ministry of Education/Main Education Office.
The 2004-2019 Tonga Education Policy Framework indicated that the Ministry of Education would explore the possibility of giving more autonomy to school leaders in the future, stating that they would consider “how delegation of further authority to Principals, by enabling them to exercise more autonomy, would improve the delivery of education.” The text specifically refers to the possibility of greater autonomy in staffing and resource management.
4.2. Assessment and accountability of school leaders
Principals work together with District Inspectors to help them determine their level of achievement. Once the level of attainment has been identified and agreed upon by both the Principal and Inspector, the Inspector will sign off on this agreement. The 2012 Guide to Improving Tongan Leadership also includes resources for professional development such as a self-reflection profile based on the key dimensions. The use of profiles can be beneficial as a starting point for the professional development of school leadership.
4.3. Teacher assessment by school leaders
According to the 2012 Guide to Improving Tongan Leadership, principals and school leadership teams can set in place mechanisms to monitor, review and upgrade teachers’ professional plans.
