School leadership

1. Terminology

2. School principals

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

3.2. Middle leaders

3.3. Parents

3.4. Students

4. Governance

4.1. Autonomy of school leaders

4.2. Assessment and accountability of school leaders

4.3. Teacher assessment by school leaders

1. Terminology

The 1998 Basic Education Act (amended in 2010) incorporates the term “headteacher”. In the context of the 1998 Decree on the Eligibility Requirements for Teaching Personnel, the terms “principal” and “headmaster” are used. The 2017 Act on Vocational Education and Training refers to the terms “principal” and “director of an educational institution”. The 2018 Act on General Upper Secondary Education mentions the term “principal”. The 2018 Act on Early Childhood Education and Care uses the term “head of the institution”. Nevertheless, these legislative documents notably lack explicit definitions for the aforementioned terms.

There is no separate document or standardized framework for leadership competencies and defined roles for school principals. National education laws define the roles and responsibilities of school leaders as mentioned below.

Roles

Setting expectations/objectives: According to the 2018 Act on General Upper Secondary Education, each school providing education shall have a principal responsible for the activities. However, the Act does not explicitly mention the type of activities. According to the 2017 Act on Vocational Education and Training, the principal of an educational institution and each operating unit of a VET provider is responsible for its overall operations. Similarly, according to the 2018 Act on Early Childhood Education and Care, the head of an early education centre is responsible for the overall operations of the centre.

Developing teaching and learning: The 1992 Act on the Administration of the Municipality's Educational Activities does not explicitly mention the responsibility of school principals. However, according to the Act, personnel involved in school healthcare and other student care, along with officeholders and teachers within educational institutions, bear the responsibility of supplying one another and the administrative bodies of the municipality with the requisite information essential for the effective organization of students' school attendance.

Promoting collaboration: According to the 2017 Act on Vocational Education and Training, the principal or director of an educational is responsible for the security of the educational institution in collaboration with other staff to ensure a safe learning environment.

Supporting staff development: No explicit information is provided regarding the key practices of school principals that relate to monitoring teachers' professional development needs, providing individualized professional support and mentoring opportunities for teachers.

Acting in accordance with the ethical principles of the profession: No explicit information is provided regarding the key practices of school principals that relate to integrity, respect, trust, fairness, transparency and honesty.

Others: According to the 2018 Act on General Upper Secondary Education, education providers are responsible for levying a fee upon the commissioning party to provide commissioned education, ensuring coverage of the associated costs. This fee is additionally mandated to encompass the costs of providing students with social benefits. Regarding teaching duties, according to the 2020-2022 Collective Agreement, the prescribed teaching obligation for the principal of an elementary school is set within the range of 2 to 11 hours per week. Similarly, the teaching obligation for the principal of an upper secondary school is specified within the range of 2 to 9 hours per week.

2.2. Selection and working conditions

Degree requirements and prior teaching experience

The 1998 Decree on the Eligibility Requirements for Teaching Personnel delineates the prerequisites for individuals aspiring to assume the principal role. These prerequisites include possessing a Master’s degree, meeting the qualifications of a teacher stipulated for the respective form of education, acquiring adequate teaching experience, obtaining a certificate in educational administration as per criteria sanctioned by the Finnish National Agency for Education, completing educational administration studies of at least 25 credits or 15 study weeks at a university, or demonstrating sufficient knowledge of educational administration through alternative means. Furthermore, the Decree specifies that if an educational institution organizes education within multiple forms of education or if a principal oversees the operations of two or more such institutions with diverse academic forms, the principal must qualify as a teacher for one of them. The Finnish National Agency for Education can issue supplementary regulations to complement the Decree. Under exceptional circumstances, the Regional State Administrative Agency can grant exemptions from the stipulated qualification requirements.

Similarly, as outlined in the 2018 Act on General Upper Secondary Education, provisions detailing the qualifications expected of principals and teachers are delineated in a government decree. The Regional State Administrative Agency retains the discretion to provide exemptions from these qualification requirements under justified circumstances.

In accordance with the 2017 Act on Vocational Education and Training, the principal is mandated to possess exemplary oral and written proficiency in the language of instruction within the educational institution or the language stipulated in the organization license. If the language of instruction is specified in the license for education preparatory to degree training, the principal must also exhibit superior oral and written proficiency in that designated language of instruction.

In early childhood education and care (ECEC), for individuals aspiring to assume the role of the head overseeing centre-based early education, the 2018 Act on Early Childhood Education and Care mandates possession of a qualification as a teacher in early childhood education and care or as a social pedagogue, coupled with a minimum requirement of a Master's degree in Education. Furthermore, the candidate is expected to demonstrate adequate leadership skills as a pivotal aspect of their qualifications.

For early childhood education and care teachers, the stipulated qualification criterion entails a minimum of a Bachelor's degree in Education. This degree program is specifically required to encompass studies that equip the teacher with professional skills tailored for tasks within the domain of early childhood education and care. Similarly, for individuals aspiring to the role of a social pedagogue in early childhood education and care, the Act prescribes a minimum qualification of a Bachelor's degree in healthcare and social services. This degree program should include a substantive component of at least 60 credits dedicated to studies oriented towards early childhood education and care and social pedagogy.

Additionally, individuals with a Bachelor's degree in healthcare and social services (for social pedagogues) or a Bachelor's degree in Education (for teachers) can supplement their qualifications with the specified studies to meet the stipulated criteria.

Appointment decision

According to the 1998 Act on Adminstration of State and Privately Organized Schools, a state educational institution's executive board is tasked with selecting a principal for the educational institution. In instances where education is provided by a registered community or foundation, the selection of the principal falls within the purview of the provider. The principal is appointed for a specified term, which may be either finite or indefinite.

In early childhood education and care (ECEC), in accordance with the provisions outlined in the 2018 Act on Early Childhood Education and Care, it is mandated that municipalities, joint municipal authorities, and private service providers assume the responsibility of guaranteeing an adequate staffing level. This necessitates compliance with the stipulated qualification requirements delineated in the respective chapter of the Act. The objective of ensuring a sufficient number of qualified staff is to ensure high quality early childhood education and care, to facilitate the attainment of the established goals for early childhood education and care, and to enable the provision of support to children with special educational needs or disabilities.

Heads of ECEC centres are recruited through an open process, and vacant posts are advertised publicly. The education providers set the criteria to be observed as part of each selection procedure.

Employment equity measures

In the 2002 Act on Public Employment Service, it is mandated that concerted efforts must be undertaken to actively foster and promote equality between men and women in the processes of offering, developing, and disseminating information about the public employment service.

The 1986 Act on the Equality Between Women and Men obliges authorities, education providers and employers to promote gender equality in all relevant activities, including gender equality plans, assessments, and quotas. The Act requires educational institutions to have gender equality plans which address the following issues: decision-making, employment (salary, segregation, working conditions), reconciliation, studies and teaching, as well as discrimination and harassment. However, there is no explicit measure for ensuring female representation in school leadership positions. The 2020-23 Government’s Action Plan for Gender Equality similarly has no explicit measures on the representation of female school principals.

Working conditions

According to the 1998 Act on Adminstration of State and Privately Organized Schools, the principal is elected for a limited period or indefinitely.

According to the 2018 Act on Early Childhood Education and Care, for ECEC centres, salaries are agreed on in a collective bargaining process with a year’s interval. The salaries of heads of ECEC centres and principals vary according to the type and size of the institution. Salaries may also be affected by merits such as a higher academic degree i.e. licentiate or a doctor’s degree.

According to the 2020-2022 Collective Agreement, the remuneration structure for school principals is categorized based on the Cost-of-living classification. For elementary school principals, in Cost-of-living category I, the salary range varies from Euros 3,906.00 to Euros 4,650.12, whereas in Cost-of-living category II, it spans from Euros 3,798.43 to Euros 4,522.04. For upper secondary school principals in Cost-of-living category I, the salary range is specified as Euros 4,071.52 to Euros 5,106.64, while in Cost-of-living category II, it is delineated as Euros 3,959.42 to Euros 4,966.14. School managers (elementary and upper secondary) receive a salary of Euros 3,403.40 in Cost-of-living category I and Euros 3,309.82 in Cost-of-living category II. Similarly, school vice-managers (elementary and upper secondary) receive Euros 2,614.43 in Cost-of-living category I and Euros 2,542.63 in Cost-of-living category II. These salaries are tied to experience, with a 5% supplement after 3 years, consistent 5% supplements at 5 and 8 years, a notable increase to 9% at 13 years, and a subsequent adjustment to 6% at the 20-year mark.

Furthermore, the 2020-2022 Collective Agreement also includes provisions on ‘associations at the workplace’. And school principals are also part of the Finnish Association of Principals.

A degree supplement is also stipulated for principals, provided they possess a doctoral degree. The quantum of this supplement is established at 4% of the foundational salary as mentioned previously. Furthermore, regarding examinations associated with a degree and assessments of compulsory education progress as specified in the 1998 Basic Education Act (amended in 2010), a principal is entitled to remuneration amounting to EUR 37.01 and EUR 37.42 per examination, respectively.

2.3. Leadership preparation and training

Pre-service training

National laws, policies and plans do not explicitly govern the initial training of school principals.

Induction and in-service training

According to the 2018 Act on Early Childhood Education and Care, early childhood education and care centres are obligated to guarantee the active participation of staff members in in-service training programs that sustain and enhance their professional competencies. Additionally, the Ministry of Education and Culture holds the authority to issue further regulations through a decree delineating specific provisions regarding the content, extent, organization, monitoring, and evaluation parameters of in-service training within the early childhood education and care framework.

The 2020-2022 Comprehensive School Education Programme for Quality and Equality, while not explicitly addressing pre-service and in-service training for school principals, is oriented towards enhancing the knowledge and skills of teachers, school principals, and other staff. The overarching objective is to support teachers in effectively implementing the prescribed curricula.

One of the objectives of the 2022-2026 Teacher Education Development Programme is to develop leadership skills and management competencies for directors of schools and educational institutions as well as directors of units in early childhood education and care.

The Ministry of Education and Culture, in cooperation with the Ministry of Justice, the Ministry of Interior and the Ministry of Social Affairs and Health, has prepared a comprehensive action plan to prevent bullying, teasing, violence and harassment in schools and educational institutions. One of the plan's measures is to train principals in early childhood education, preschool and basic education, upper secondary education and basic art education, vocational education, and adult education.

3. Teachers, parents and students

3.1. School management committees and boards

According to the 1992 Act on the Administration of the Municipality's Educational Activities, multiple schools or educational institutions within the municipality's educational activities may establish a collective management board. The joint management board is comprised of one teacher member and one student member from each school under its jurisdiction. Nevertheless, the board must consistently include a minimum of two student members. Additionally, the joint executive board is required to have one member representing non-teaching staff.

In accordance with the 1998 Act on the Administration of State and Privately Organized Schools, the board of directors, comprising a minimum of three members, assumes responsibility for the organization, development, and administration of education. The pertinent ministry is tasked with determining the procedural guidelines for appointing the executive board of a state educational institution and establishing the criteria governing the composition of said executive board. In instances where a registered association or foundation conducts training, the board of directors' appointment lies within the association or foundation's purview. Moreover, a community or foundation board is eligible to function as the board of directors, and multiple educational institutions may jointly share it.

Additionally, in accordance with the Act, the board of directors may include elected representatives from among students, teachers, and other personnel. Student representatives, elected from individuals aged 15 years and older, may have a term of office distinct from that of other board members.

Notably, the 2030 National Literacy Strategy does not explicitly reference school management committees and boards. Nevertheless, the Strategy stipulates the establishment of a literacy team within each school, comprising the principal, the individual responsible for the library, subject-representing teachers, special needs teachers, and representatives from pupils' and parents' associations.

3.2. Middle leaders

As mentioned in Subsection 3.1, teachers are eligible to serve as representatives on the board of directors of educational institutions and the joint management board.

According to the 1997 Decree on General Committees of Vocational Education and Training Committees, Teachers are eligible for appointment as members of the General Education Committee, which is comprised of 14 members. Additionally, they may be appointed alternate members of the Education Committee, a body of 10 members.

In accordance with the 1998 Basic Education Act, as amended in 2010, every educational institution entrusted with the provision of education is mandated to have a headteacher who bears responsibility for its operational oversight.

Pursuant to the 1998 Decree on the Eligibility Requirements for Teaching Personnel, within a school operating in a school home, it is stipulated that an individual possessing the requisite qualifications of a primary education teacher may also offer student counselling.

According to the 2003 Decree on Education Evaluation, the Ministry of Education and Culture invites a maximum of 14 members to serve on the evaluation council for a four-year term. Teachers are mandated to be members of the council.

According to the 2018 Act on Early Childhood Education and Care, a special education teacher is mandated to actively engage, as deemed necessary, in the evaluation of a child's requirement for support. This involvement extends to the assessment of the support measures essential for the child, as well as oversight of their implementation.

3.3. Parents

The 2018 Act on Early Childhood Education and Care does not explicitly reference parent-teacher associations; nonetheless, it provides multiple avenues for active engagement by a child's parents or legal guardians. The Act underscores the imperative for regular on-site opportunities, fostering active participation of children and their parents in planning and evaluating early childhood education and care initiatives. This dynamic involvement is instrumental in ensuring a comprehensive and collaborative approach to formulating the child's education and care plan, a process delineated in alignment with the national core curriculum for early childhood education and care. The collaborative development of the education and care plan involves a concerted effort between the educational staff and the child's parent or custodian.

In addition to the participatory aspect, the Act establishes a framework for accountability and recourse. Parents or custodians' discontent with the quality of early childhood education and care or any associated treatment are accorded the right to articulate their concerns by submitting objections. The avenues for such objections include communication with the head of the early education centre overseeing operations, the designated person in charge at a specific site, or a senior officeholder within the early childhood education and care domain.

Finland also has a Parents' Association that encompasses over 1,200 registered parent associations operating across early education centres, schools, and secondary education institutions. Among these associations, some are specific to particular municipalities. The Ministry of Social Affairs and Health and the Ministry of Education and Culture support the association's work.

3.4. Students

As mentioned in Subsection 3.1, students are eligible to serve as representatives on the board of directors of educational institutions and the joint management board.

According to the 2003 Decree on Education Evaluation, the Ministry of Education and Culture invites a maximum of 14 members to serve on the evaluation council for a four-year term. Students are mandated to be members of the council.

According to the 2018 Act on General Upper Secondary Education, each educational institution falling within the purview of the Act is mandated to establish a student association comprising the students enrolled in said institution. Furthermore, individual educational institutions under the umbrella of a common education provider may collectively form a shared student association. The primary mandate of the student association is to foster collaboration among students, enhance their capacity for engagement and influence, and cultivate cooperative ties between the student body and the education provider. Additionally, it is incumbent upon student associations to prepare students for active and critical citizenship.

While the 2018 Act on Early Childhood Education and Care does not explicitly mention student councils, it emphasises the imperative to ascertain and consider the child's opinion while formulating the early childhood education and care plan.

4. Governance

4.1. Autonomy of school leaders

According to the 1992 Act on the Administration of the Municipality's Educational Activities, the municipal authority can obtain statistical data and other pertinent information from state and municipal authorities necessary to plan and organise educational activities. Upon solicitation, the municipal authority is obligated to furnish the state education administration authorities with the requisite information essential for national and regional development, statistical analyses, and monitoring of educational activities as specified by the latter.

Section 42 of the 2018 Act on Early Childhood Education and Care stipulates about the right to obtain information needed to plan and organize the provision of ECEC. Similar stipulations are also present in the 1998 Basic Education Act (amended in 2010) and the 2018 Act on General Upper Secondary Education.

The 1998 Basic Education Act (amended in 2010), the 2018 Act on General Upper Secondary Education, and the 2017 Act on Vocational Education and Training delineate the following authority and decision-making powers for school administrators in managing student behaviour, assessments, and disciplinary actions:

Use of Force (1998 Basic Education Act, 2017 Act on Vocational Education and Training, 2018 Act on General Upper Secondary Education): The school principal and teacher are endowed with the authority to remove a student from the classroom or school premises for disobedience. They retain the right to use justifiable force if a student resists removal, considering factors like age, the immediacy of the threat, and the severity of resistance.
Collaborative Assessment and Dispute Resolution (2018 Act on General Upper Secondary Education): The principal collaboratively determines the learning assessment in consultation with students' teachers. Students can contest academic decisions by submitting a review request to the principal within two months, and the principal determines subsequent assessments in consultation with teachers.
Delegation of Disciplinary Decisions (2017 Act on Vocational Education and Training and 2018 Act on General Upper Secondary Education): Decisions on suspension, denial of access to student accommodation, written warnings, or expulsion from a school function are delegated to multi-member bodies or, if determined by the education or VET provider, to the principal. Similarly, the decision to expel a student from attending instruction is within the purview of the principal.
Confiscation of Prohibited Items (1998 Basic Education Act, 2017 Act on Vocational Education and Training and 2018 Act on General Upper Secondary Education): The school principal or teacher, acting jointly or independently, possesses the prerogative to confiscate prohibited items from students during the school day. The process involves examining items in the student's possession, inspecting lockers, and visually inspecting clothing to effect confiscation.
Re-evaluation and Disciplinary Measures (2017 Act on Vocational Education and Training): The principal has the authority to mandate re-evaluation in cases of flawed assessments, potentially appointing a new assessor. The principal and teachers can remove students for non-compliance, with the authority to expel them if persistent after being banned, including reasonable coercive measures based on age and circumstances.

Personnel management: According to the 2022 Joint Eurydice-OECD data collection on salaries of teachers and school heads, principals are responsible for appointing temporary and short-term substitute teachers.

4.2. Assessment and accountability of school leaders

According to legal mandates, educational institutions are required to conduct both internal and external evaluations to assess the effectiveness of their educational programs, which indirectly impact school heads'/principals' performance. Each school form has its own set of evaluation principles outlined in legislation. While education providers and schools are expected to have evaluation and development plans, they retain the autonomy to establish their objectives. There are no standardized national directives regarding internal evaluation methods, allowing education providers to adopt their procedures or enlist external evaluators as needed. Administrative and teaching staff typically contribute to the development and execution of these evaluation systems.

At the national level, the Finnish Education Evaluation Centre (FINEEC) conducts sample-based evaluations of learning outcomes in pre-primary and primary education, according to the 2013 Act on the Finnish Education Evaluation Centre. The aim of national evaluation is to produce information based on evaluation to promote the achievement of the objectives of the education system and to further improve education and ECEC. These assessments encompass direct evaluations and feedback from principals, teachers, and students on various aspects of the educational process, including teaching methodologies, available resources, student assessments, and study habits. The assessment model is based on self-evaluation, external evaluations, sample testing and legality control based on complaints received by the Regional State Administrative Agencies (AVI). Education providers have a legal obligation not only to conduct self-evaluation on their operations, but also an obligation to take part in external evaluations (by FINEEC). According to legislation, the findings of evaluations shall be published. For example, according to the 2018 Act on Early Childhood Education and Care, organisers and providers of ECEC shall participate in external evaluations. Similar provision is stipulated in the 1998 Basic Education Act (amended in 2010).