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
As per the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023), the terms ‘school director’ and ‘school principal’ refer to the head of a school and are used interchangeably at pre-primary, primary and secondary education levels. The principal or director is defined as the executive and professional leader of the school institution.
2. School principals
2.1. Leadership standards and roles
Competency standards and leadership frameworks and guidelines
The 2020 Occupational Standards for Directors of Educational Institutions, developed by the Ministry of Science and Education of Croatia, highlight the competencies and responsibilities required of school principals. They state that the principal has a range of responsibilities ranging from strategic management to ensuring the well-being and professional development of all employees. The 9 competencies include the ability to plan, organize, and strategically manage educational processes; fostering cooperation with the environment; quality assurance of educational institutions; decision-making abilities, crisis management, and the use of technology for a safe educational environment; advisory work requires counselling skills with students, parents, teachers, and staff; communication and presentation skills; human resources management involves selection, integration, and development of employees, stress reduction, and team organization; and possessing legal and financial for ensuring compliance to laws and efficient financial planning.
The 2020 Qualification Standards for School Principals have additionally been proposed by the Education and Teacher Training Agency, the public agency for the regulation of educational affairs and policy. The Qualification Standards consist of competencies which need to be possessed by a fully qualified principal of an education institution.
Additional roles and responsibilities of school principals are defined in the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023).
Roles
Setting expectations/objectives: As per Article 125 of the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023), the school principal prepares the annual work plan and program. The 2020 Occupational Standards for Directors of Educational Institutions highlight that the director is tasked with creating and implementing a vision for the institution, collaborating with stakeholders, and overseeing educational processes. The 2020 Qualification Standards for School Principals similarly state that the school principal is responsible for creating the vision and mission of the school, as well as developing the institution’s strategic document.
Developing teaching and learning: Article 125 of the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023) also states that the school principals are required to visit classes, analyze the work and performance of teachers as well as convene and lead sessions of the teachers’ council. The school principal also works with the teaching council to prepare the school curriculum that is related to the development of teaching, for example through instructional supervision, the provision of teaching resources and materials and their alignment with teaching objectives, the planning, coordination and evaluation of the curriculum, and the monitoring of students' progress. The 2020 Occupational Standards for Directors of Educational Institutions describes the role of the principal in improving teaching and learning process through planning the educational work, interacting with students, teachers and parents as well as by introducing innovative approaches to education.
Promoting collaboration: School principals are required to work with teachers’ councils. They are responsible for managing the safety rights and interests of and employees of the school. According to the 2020 Occupational Standards for Directors of Educational Institutions, the director serves as the representative of the school in external environments. The principal is also responsible for collaborating with students, parents, founders, state administration bodies, institutions, and other bodies. Cooperation with parents and the external environment is specifically listed as one of the key roles of the school principal. Principals are expected to prepare and conduct counselling work with children, pupils and parents. The 2020 Qualification Standards for School Principals similarly highlight that principals are responsible for developing a climate of cooperation and trust; cooperating with the stakeholders of the educational institution at the national, local and international level; as well as preparing and conducting advisory work with children, students and parents.
Supporting staff development: This school principal is responsible for monitoring teachers' professional development needs and ensuring that their professional support and improvement. According to the 2020 Occupational Standards for Directors of Educational Institutions, the director plays a crucial role in the selection, employment, and continuous development of staff, acting as a role model for employees. The 2020 Qualification Standards for School Principals similarly state that the principal is expected to organize and monitor the professional development of employees/educational workers.
Acting in accordance with the ethical principles of the profession: According to the 2020 Occupational Standards for Directors of Educational Institutions, the director must navigate the increasing complexity of the role, demonstrating a high level of professional competence.
Others: Some other duties of the principals are mentioned in Article 125 of the Act such as supervising the timely and accurate entry of administrative data in the electronic register. According to the 2020 Qualification Standards for School Principals, principals are further responsible for identifying sources of stress and implementing activities aimed at reducing stress in the educational process. . Teaching is not necessarily a part of the responsibilities of school principals.
2.2. Selection and working conditions
Degree requirements and prior teaching experience
The 2008 Law on Education in Primary and Secondary Schools (last amended in 2023) and 2020 Qualification Standards for School Principals provide the eligibility criteria for the post of school director/principal. Candidates must meet all the educational qualifications required to be a teacher, educator, or professional associate within the respective school. These qualifications include university graduate studies (300 ECTS, including 55 ECTS acquired in pedagogical competencies); integrated undergraduate and graduate university studies; specialist graduate professional studies, or successfully passing the professional exam for becoming a teacher/professional associate. The Law additionally provides for licensing to work in an education institution, which proves the necessary professional competence levels of teachers, professional associates, and principals (Article 117).
In terms of experience, the director of a primary and secondary school must possess a minimum of 5 years of work experience as a teacher/educator in an educational institution. According to the Ministry of Science, Education and Youth, the 2020 Qualification Standards for School Principals also aim to be evaluated when a teacher applies to become a school principal.
Additional competencies that are evaluated include knowledge of a foreign language, digital skills, and experience working on projects, as regulated in the school statute. The framework for the digital competencies of school principals was further developed as an output of the EU-funded e-Škole (e-Schools) project by the Croatian Academic and Research Network (CARNET).
Alternatively, to become headmasters of elementary schools, one can complete a professional four-year study program for teachers. There exists an exception wherein an individual not meeting the specified educational criteria may still serve as the principal of an elementary school, if, during the application for the principal position, they are in their second consecutive term of performing principal duties and have fulfilled the principal requirements according to the Law on Elementary Education.
In pre-primary education, school heads are required to have 5 years of work experience and meet the prerequisites for a pre-school teacher or expert associate to be appointed as pre-school principal.
Appointment decision
As per Article 127 of the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023), the principal is appointed for 5 years based on an open competition announced by the school board which is published in the "Narodne novine" (daily newspaper) and on the website of the school institution.
During the principal selection process, the members of the school board chosen or elected by the teachers'/teaching/educators' council, the parents' council, and the workers' council/workers are obligated to advocate for and express the perspectives of the entity that designated or elected them to the school board.
The school board, with the minister's approval, appoints the principal. If the minister does not withhold consent within 15 days from the submission date of the request for consent, it is considered that the consent has been given. The exact manner and process of appointing the school principal are elaborated in the school statute.
School boards are additionally responsible for relieving principals of their duties.
At the pre-school level, principals are appointed and suspended by the pre-school institution founder, following a proposal by the governing council. Pre-schools whose founder is the Republic of Croatia are appointed and suspended by the minister of education.
Employment equity measures
There is no information available on the measures to address the under-representation of minority groups in school leadership positions.
Working conditions
As per the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023), a person appointed as a director in a school institution enters a five-year full-time employment contract with the school board, which is renewable.
As per the 2018 Collective agreement for employees in primary schools and 2018 Collective agreement for employees in secondary schools school heads are provided with a basic salary that is supplemented by multiple allowances. For example, further formal qualifications lead to an 8% increase in the basic statutory salary at the master’s level and a 15% increase at the doctorate level. School principals working in disadvantaged or remote areas receive a 10% increase in their basic statutory salary.
As per the 2021 Ordinance amending the Ordinance on the advancement of teachers, professional associates and principals in primary and secondary schools and student dormitories and the 2019 Ordinance on rewarding teachers, professional associates and principals in primary and secondary schools and student dormitories, there are two professional positions for the professional development of a school principal. To advance to the position of mentor, a principal, in addition to having the appropriate level and type of education, must pass the professional exam for teachers, instructors, or professional associates; have at least five years of experience working as a principal; completed at least 100 hours of continuous professional development of at least 100 hours over the past five years; and fulfilled all obligations related to the title as prescribed by regulation. To advance to the position of advisor, the principal must have also passed the professional exam for teachers, instructors, or professional associates; completed at least 120 hours of continuous professional development over the past 5 years; at least 5 years spent in the position of mentor; and fulfilled all obligations related to the title as prescribed by regulation.
Principal employment contracts may be terminated upon the expiration of a temporary employment contract; at the end of the school year when the principal turns 65 years of age and 15 years of pensionable service; based on a consensual termination agreement between the principal and the school; notice of termination issued by the school; or upon the principal’s death. The school board may additionally terminate the school principal’s employment contract if they violate any contractual obligations or neglect to meet their professional duties (Article 130).
The 2018 Collective agreement for employees in primary schools and the 2018 Collective agreement for employees in secondary schools include principals, teachers, professional associates and other employees working in the primary or secondary school institution who are considered parties to these agreements which are developed by their respective trade unions.
2.3. Leadership preparation and training
Pre-service training
As per the 2006 Law on the Education and Teacher Training Agency, the agency, a public body, is responsible for the development and implementation of the national curriculum and for providing professional assistance to school directors and educators in the implementation of educational activities. The agency organizes and conducts professional training of educational workers and directors and conducts the required professional exams.
Induction and in-service training
As per Article 115 of the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023), directors of school institutions have the right and obligation to undergo permanent professional training and improvement through programs approved by the Ministry. Training content includes pedagogy, educational psychology, ICT, management, and education policies. The Minister prescribes how the professional training and development of teachers, teachers, professional associates and directors is to be carried out.
The Education and Teacher Training Agency is responsible for the organization and implementation of continuous professional development programs for school principals, in addition to professional advancement procedures. There are subsidiaries of the Agency in all major cities, with its advisors in constant contact with the schools.
Assessment and accountability measures of school principals
School principals are held accountable through school inspections conducted as part of the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023). As per the 2011 Law on Educational Inspection, the school inspector shall carry out inspection supervision related to the application of laws and other regulations governing the organization and operation of preschool and school system institutions, establishing and terminating employment and exercising rights and obligations arising from employment, resolving the rights and legal interests of students and their parents and realizing the publicity of the work of these institutions. In Croatia, the school board may dismiss the school principal on the recommendation of the education inspector.
3. Teachers, parents and students
3.1. School management committees and boards
Article 119 of the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023) details the composition of the school board which is supposed to include seven members, one of whom is elected and dismissed by the council of workers or as per the manner prescribed by the Labor Law. The other six members include two representatives of the teacher's council, from the ranks of teachers, teachers, and professional associates’ one representative of the parents' council and three other founding members appointed by the founder of the educational institution. Moreover, the members of the school board are appointed for a period of four years and may be re-appointed, and the term of office of the members starts from the date of the constitution of the school board.
The Article encourages that the appointment of the members of the school board in schools where classes are conducted in the language and script of national minorities should include a proportional representation of members of national minorities. This will be done according to the proportional share of students from national minorities in the total number of students of that school.
Article 118 of the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023) highlights that the school is managed by the school board. The school board assumes a range of responsibilities, including the appointment and dismissal of the director and adopting the statute and other general acts based on the director's recommendations. Also, the board plays a key role in approving the school curriculum proposed by the teacher's or teacher's council and the director and endorsing the annual work plan and program, overseeing their execution. The board is also in charge of financial matters, such as approving the financial plan, semi-annual, and annual calculations. The board is also supposed to work with the school's director or principal. Furthermore, the board acts as a decision-making body on matters pertaining to workers' requests for rights protection within the employment contract and makes suggestions to the founder for changes in activity and other decisions related to founding rights.
3.2. Middle leaders
Middle leaders such as class teachers are mentioned in the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023). The class teacher is the expert leader of the class department and the class council. Moreover, the law specifies the role of an Acting director (a temporary position which may be held for up to 1 year), who may be appointed in cases prescribed by the 1993 Law on Institutions and in other cases when the institution does not have a director.
The educational advisers foster the development of kindergartens and schools. They are employees at the Education and Teacher Training Agency and the Agency for Vocational Education and Training. Expert associates in school institutions include pedagogues, psychologists, librarians, and experts in special education and rehabilitation. The job of an expert associate may be performed by a person who has completed the corresponding graduate university study programme and has pedagogical competences.
3.3. Parents
Article 137 of the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023) sets out the composition and role of the parents’ council in the school. Each class in the school has one parent representative. The Council of Parents elects a president and a deputy president from among themselves.
The parents' council’s roles include providing feedback on the school curriculum, the annual work plan and program and discussing the principal's reports on the implementation of the school curriculum, the annual plan and work program of the school. The parent council is also supposed to consider the complaints of parents in connection with the educational work, propose measures to improve the education, nominate a member of the school board and perform other tasks in accordance with the school's statute.
The teachers’ council consists of all teachers and professional associates of the school.
3.4. Students
As per Article 71 of the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023), a student council is established in the school, which consists of representatives of students from each class. The student council representative participates in the school body's work when decisions are made about the students' rights and obligations. However, they do not have any decision-making rights. The method of election and scope of work of the student council is determined by the school's statute.
4. Governance
4.1. Autonomy of school leaders
As per Article 125 of the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023), the school principals have the autonomy/authority to develop the school curriculum (passed by the school board); formulate a financial plan for the school board and be in-charge of maintaining the annual accounts. The school principal has the ability to appoint teachers but requires the consent of the school council. The employment contract of an employee of a school institution is terminated in accordance with the general labour regulations.
4.2. Assessment and accountability of school leaders
The supervision of school principals is conducted by expert and pedagogical supervisors, as well as other specialized experts. This falls within the scope of the activities and responsibilities of the Ministry of Science, Education and Sports. These supervising personnel are usually senior advisers in the Education and Training Agency and are authorised to conduct such supervision by the minister of education. The Act on Expert and Pedagogical Supervision (Official Gazette 73/97), Act on Education and Training Agency (Official Gazette 85/06), and Act on Education Inspection define how the supervision is to be carried out in schools. This includes whether the school principal fulfils their duties and obligations and complies with regulations.
4.3. Teacher assessment by school leaders
The school principal is responsible for the general supervision and professional development of teachers, as set in the 2008 Law on Education in Primary and Secondary Schools (last amended in 2023). This includes attending classes, analyzing the teachers’ work, ensuring their professional development, and taking measures as defined by law when teachers fail to perform their duties. The 2020 Qualification Standards for School Principals and 2020 Occupational Standards for Directors of Educational Institutions additionally state that the principal is responsible for monitoring and analyzing the work of employees.
The Ministry of Education, Science and Sports, through certain supervising personnel, is officially responsible for the expert and pedagogical supervision of the work of teachers.
This profile was reviewed by Prof. Nikša Alfirević of the University of Split.
