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 terminology employed across various legislative acts pertinent to school leaders remains notably diverse. The 2022 Education Act uses the designations “haridusasutuse juht,” “direktor,” and “rektor,” or head of the institution, director, and rector, respectively. While the 2010 Basic Schools and Upper Secondary Act, which is directly translated into English, and the 2018 Act on the amendment of the Basic School and Upper Secondary Schools Act and other related laws use the term “the director”. The 2018 Pre School Childcare Institutions Act, also in English, on the other hand, uses the singular term “the director of school.” Diverging from this terminology, the 2020 Lifelong Learning Strategy uses the terms “the head of an educational institution” and “school headmasters,” while the 2021–2035 Education Strategy uses the terms “school heads and school managers.”
2. School principals
2.1. Leadership standards and roles
Competency standards and leadership frameworks and guidelines
The Basic and Upper Secondary School Act lists the management competencies of school principals. These encompass management of organizational development, design of the learning environment, human resources management, resource management and self-management.
In pursuit of the overarching goal of cultivating a new generation of qualified school and university teachers, school heads, and school administrators, the 2021–2035 Education Strategy aims to develop a competency model for school leaders. As such, it lists several roles and competencies for school leaders to follow.
The competency model for educational leaders developed by the Ministry of Education and Research emphasizes the key competencies required for effective leadership in education. These include strategic planning and organizational development, financial management, team leadership, and self-management. The model encourages systemic thinking, collaboration, and a commitment to continuous improvement. It is intended for self-assessment, professional development, and use by institutions in leader selection and development processes, ensuring alignment with broader educational strategies and fostering innovation in the educational sector.
Roles
Setting expectations/objectives: According to Section 4 and Section 32 of the 2022 Education Act, the head of the educational institution is responsible for the organisational activities and overall management of the educational institution. According to the 2020 Lifelong Learning Strategy, the head of an educational institution provides the strategic vision and leadership for the institution.
Developing teaching and learning: According to Section 4 of the 2022 Education Act, the head of the educational institution is responsible for the effectiveness of teaching. According to the 2020 Lifelong Learning Strategy, the head of an educational institution creates an organizational culture that supports students' learning. According to the 2021–2035 Education Strategy, heads of schools are responsible for creating a learning culture and environment that supports learning and well-being. According to the competency model for educational leaders developed by the Ministry of Education and Research, leaders are required to use systematic thinking and innovation in educational methods.
Promoting collaboration: According to the 2021–2035 Education Strategy, it is the responsibility of school heads to upgrade the role of support specialists and their cooperation with teachers. Furthermore, it aims to facilitate collaborative endeavours among school heads. This collaboration is intended to facilitate the sharing and dissemination of best practices grounded in empirical evidence, ultimately fostering the more efficient allocation and utilization of educational resources. According to the competency model for educational leaders developed by the Ministry of Education and Research, effective communication and teamwork of leaders are highly emphasized.
Supporting staff development: According to the 2020 Lifelong Learning Strategy, the head of an educational institution supports teachers' professional development. Furthermore, according to the strategy, the school head is responsible for motivating teachers to adopt an individualized approach in their interactions with each student, encouraging active participation in the school's developmental initiatives and engaging them in diverse forms of teacher training. According to the competency model for educational leaders developed by the Ministry of Education and Research, education leaders are expected to empower and mentor teams.
Acting in accordance with the ethical principles of the profession: The 2021–2035 Education Strategy does not provide any reference to the key practices of school principals that relate to integrity, respect, trust, fairness, transparency and honesty. According to the competency model for educational leaders developed by the Ministry of Education and Research, Ethical leadership and adherence to professional principles are foundational.
2.2. Selection and working conditions
Degree requirements and prior teaching experience
According to Basic Schools and Upper Secondary Schools Act § 74¹ the qualification requirements for the head of school of basic schools and upper secondary schools are a master’s degree or equivalent qualifications, management competencies and Estonian language proficiency in accordance with the requirements established in the Language Act and on the basis thereof., The management competencies involve management of organizational development, learning environment design, human resources management, resource management and self-management.
Appointment decision
According to Section 6 of the 2022 Education Act, the Ministry of Education and Research appoints and dismisses the head of state educational institutions.
According to Section 7 of the 2022 Education Act, municipality appoint and dismiss the head of the educational institution subordinate to them. Furthermore, municipalities are also responsible for forecasting the need of teachers and assist educational institutions in finding employees.
According to the 2020 Lifelong Learning Strategy, the Ministry of Education and Research is responsible for launching a training programme for future school leaders, from which the best candidates are chosen through open competition.
The 2021–2035 Education Strategy lacks explicit reference to a framework for appointing school principals. However, it aims to enhance the capacity of school owners to recruit heads of schools.
Employment equity measures
Both the 2020 Lifelong Learning Strategy and the 2021–2035 Education Strategy lack explicit reference to measures to address the under-representation of minority groups in school leadership positions.
Working conditions
According to the 2010 Basic Schools and Upper Secondary Act, the director organizes a public competition to fill the positions of headteacher, teachers, support specialists and other persons working in education and training. The procedure for conducting the competition is established by the school's board of trustees at the director's proposal.
According to the 2009 Employment Contract Act, the heads of schools are entitled to an annual holiday of 56 days.
According to the 2018 Conditions and Procedure for Awarding State Education Awards, the heads of schools and preschool childcare institutions are eligible to contend for the prestigious title of "Head of an Educational Institution of the Year." This accolade comes with a substantial monetary reward of 10,000 Euros. Alternatively, these leaders also have the chance to be recognized with the esteemed "Lifetime Achievement Award in Education," which carries a noteworthy prize of 65,000 Euros.
According the 2022 Joint Eurydice-OECD data collection on salaries of teachers and school heads, the average annual gross salary of school heads aged 25-64 in public schools varies across different ISCED levels. At the ISCED 02 level, it stands at EUR 22,606; at ISCED 01, ISCED 24 and ISCED 24 levels, it is EUR 25,927.
According to the 2022 Education Act, the employment contracts entered into with directors of preschool childcare institutions and heads of schools do not possess a predetermined termination date.
The 2021–2035 Education Strategy does not provide any reference to the type of contracts and the salary scale of school principals. However, the strategy underscores pivotal actions in pursuit of the overarching goal of cultivating a new generation of qualified school and university teachers, heads of schools, and school administrators. These actions ensure the recruitment of school heads based on the competence model and the establishment of career pathways for individuals displaying substantial management and leadership aptitude within the education sector, coupled with the proactive promotion of the profession beyond the confines of the education sector.
2.3. Leadership preparation and training
Pre-service training
The 2022 Education Act does not make any reference to the initial training of school heads/directors. Actually, universities are running initial school heads training courses for years and municipalities often consider it as an additional requirement to be an eligible candidate for the position. The qualification requirements are set in the Basic Schools and Upper Secondary School Act. Principals should have master´s degree.
Induction and in-service training
According to the 2010 Basic Schools and Upper Secondary Act, in-service training of municipal schools' teachers, directors and head teachers is organized and a subsidy from the state education budget is provided to municipalities to organize the same.
A strategic initiative of the 2020 Lifelong Learning Strategy entails establishing an in-service education system specifically tailored for teachers and heads affiliated with basic schools, kindergartens, and vocational institutions. The content of in-service courses for school leadership emphasizes the proficient management of learning and developmental processes in alignment with the principles underpinning the new pedagogical approach to learning. Furthermore, to ensure the impeccable quality of in-service education and retraining endeavours, the strategy dictates the formulation of stringent quality standards designed for training providers. In strict adherence to these standards, the disbursement of state funds shall be contingent solely upon fulfilling these quality requisites.
In pursuit of the overarching goal of cultivating a new generation of qualified school and university teachers, heads of schools, and school administrators, the 2021–2035 Education Strategy aims to support school heads' professional development and offer high-quality and effective continuing training at the beginner, intermediate and advanced levels throughout their career and to ensure that their competencies are up to date.
3. Teachers, parents and students
3.1. School management committees and boards
According to the 2010 Law on Duties and Work Order of the School Education Council (revised in 2021), the educational institution is governed by a school education council entrusted with the responsibility of analysing, evaluating, and making decisions regarding educational matters within the scope of its authority. The annual activities of the council are meticulously planned for each academic year and are incorporated into the school's comprehensive work plan before the commencement of the academic session. The council comprises the school director, head teacher, teaching faculty, support specialists, and individuals designated by the director. Additionally, to ensure student representation and engagement, a student council member actively participates in the proceedings of the education council.
Similarly, the 2022 Education Act does not make any reference to the school management committee and board. However, according to Section 32 of the 2022 Education Act, the board of trustees, study or research council of an educational institution shall operate on the basis of its statutes or the statutes of the educational institution.
The 2010 Basic Schools and Upper Secondary Schools Act defines the formal composition and structure of the board of trustees across various educational institutions, ensuring representation from different stakeholders while maintaining specific considerations for each institution's unique characteristics:
- Basic School: The board of trustees of a basic school is comprised of several key constituents, including the school owner, the teachers' council, representatives of parents, graduates, and organizations that support the school. Notably, most board members represent parents, graduates, and supporting organizations. Additionally, if a student council exists within the primary school, one of its representatives is included in the board of trustees.
- Upper Secondary School: The board of trustees of an upper secondary school includes a representative of students. Apart from this, the provisions regarding the composition of the board of trustees of an upper secondary school are similar to those of a basic school.
- Joint Basic School and Upper Secondary School Institution: When a basic school and an upper secondary school operate as a single institution, the board of trustees includes at least two representatives from the teachers' council - one representing the basic school teachers and the other representing the upper secondary school teachers. Furthermore, representatives of parents of students in both the basic school and upper secondary school are included on the board. In all other respects, the provisions regarding the composition of the upper secondary school board of trustees are applied.
- Basic School and Child Care Institution: In cases where a basic school and a child care institution function as a single institution, the board of trustees includes at least two representatives from the teachers' council - one for the school and one for the child care institution. Additionally, representatives of parents of students in the school and parents of children in the childcare institution are part of the board. The composition of this board follows the provisions applicable to the board of trustees of a basic school or an upper secondary school.
- Non-Stationary Studies School: In schools exclusively offering non-stationary studies, there are no representatives of parents on the board of trustees. The provisions related to the composition of the board of trustees of an upper secondary school or a joint basic school and upper secondary school institution are applicable in all other respects.
- Upper Secondary School and/or Basic School and Hobby School Joint Institution: In institutions where a school and a hobby school operate together, the board of trustees includes a representative of the teachers' council who represents the hobby school teachers. If there is student council in this school, a representative from it also becomes a board member. Moreover, if minors study in the hobby school, a representative of their parents is included on the board.
The Act also describes restrictions on board membership. Notably, the school must not employ the representatives of parents, graduates, and supporting organizations who serve on the board of trustees. The board of trustees oversees various aspects of the school's operation and development. Their responsibilities include providing input on the school's development plan, expressing opinions on statutes and curriculum changes, granting exceptions for class size increases, reviewing admission conditions, and approving internal rules. They also establish procedures for hiring staff, evaluate budget proposals, and assess the needs of various school facilities and activities. Furthermore, the board offers opinions on school closure and proposes solutions to address school-related issues following relevant laws and regulations.
3.2. Middle leaders
According to the 2010 Basic Schools and Upper Secondary Schools Act, a teachers' council is mandated within the educational framework to conduct comprehensive analyses and evaluations of teaching and educational practices. This body possesses the authority to deliberate upon and make decisions regarding teaching and education, all within the boundaries of its jurisdiction. Membership in the council encompasses the school head, head teacher, teaching faculty, support specialists, and other individuals designated by the school head. Furthermore, the active participation of a representative from the Student Council is integral to the proceedings of the teachers' Council. Establishing the council's functions and procedural regulations falls under the purview of the minister responsible for the respective field. This delineation ensures the standardization and effective operation of the council within the educational sphere.
3.3. Parents
The 2022 Education Act does not make any reference to the parent-teacher association. Similarly, the 2021–2035 Education Strategy does not make explicit reference to parent-teacher association. However, the strategy recognizes the active role of parents in supporting minor learners and creating conditions that are conducive to learning.
3.4. Students
The 2010 Law on Duties and Work Order of the School Education Council (revised in 2021) refers to a student council and its active involvement in establishing a school education council, as already mentioned in Section 3.1. However, it does not set the rules and compositions of a student council.
The 2022 Education Act does not make any reference to the student council. However, according to Section 32 of the 2022 Education Act, students' council shall be involved in solving the problems of the educational institution in accordance with the procedure prescribed in the statute of the educational institution.
The 2010 Basic Schools and Upper Secondary Schools Act outlines the rights and responsibilities of a school's student body and student council. It emphasizes that the student body has the autonomy to manage student life independently, form unions or collaborations with other student bodies, and make decisions within the framework of the 2014 Non-Profit Associations Act and the 2015 Foundations Act. The student body is also entitled to elect a student council to represent their interests within the school and in interactions with external entities. The procedures and rules for the student council's formation and operation are defined in its statutes, which must comply with relevant laws and principles of democracy. Additionally, the school may allocate funds to support the student council's activities based on student needs and priorities.
4. Governance
4.1. Autonomy of school leaders
The 2018 Act on the amendment of the Basic School and Gymnasium Act and other related laws grants the director a degree of autonomy and authority. For instance, the director possesses the prerogative to temporarily increase student enrolment in a specific class for a single school year, under duly substantiated circumstances, at the school director's recommendation and subject to the board of trustees' approval. Furthermore, at the discretion of the school head, the basic school may extend supplementary education in line with simplified, coping, and support-oriented pedagogical approaches to basic school graduates and individuals adhering to the national primary school curriculum. This provision caters to those with special educational requirements necessitating additional preparation and support for a seamless academic progression or transition to the labour market.
According to the 2018 Act on the amendment of the Basic School and Gymnasium Act and other related laws, school directors have greater autonomy and authority than school heads. For instance,
- determining student enrolment in learning support groups, level groups, and classes for students with special education needs (SEN) is entrusted to the school director. This decision is guided by considerations of the specific educational needs of students, the input of the school's special pedagogue, and the guidance provided by the student's study coordinator, the extracurricular counselling team, or both. Students may be provided with a speech therapist, special pedagogue, or other support services when necessary. The establishment and coordination of these services fall under the purview of the children's institution's head, organized by the director;
- admission decisions for student assistants, level groups, or classes catering to students with SEN rest with the director, contingent upon parental consent for minors or students with limited legal capacity;
- the director appoints a study coordinator for students with special educational needs, tasked with orchestrating collaborative efforts within the school, essential for facilitating learning and development and coordinating external networking opportunities;
- the school director assumes responsibility for formulating the conditions and procedures governing the organization of school development discussions. Before their implementation, these guidelines are submitted to the Education and Youth Board and the Board of trustees for their input;
- to implement enhanced and special support, the school director and the study coordinator for students with SEN are authorized to access and process data contained within the education information system of other schools or childcare institutions and data from extracurricular counselling teams. This access is limited to the scope and extent necessary for the execution of enhanced and special support initiatives.
- to fill the positions of the head teacher, teachers, support specialists and other employees working in the field of teaching and education, the head of school organises a public competition, unless otherwise provided for in an international agreement. Based on a proposal of the head of the school, the board of trustees of the school establishes the procedure for organising the competition.
- The head of the school signs employment contracts with school employees.
According to the 2021–2035 Education Strategy, school heads have a high degree of autonomy in performing their tasks, including allocating resources.
4.2. Assessment and accountability of school leaders
Competency and Career Model for School Leaders describes the most critical leadership competencies and supports the schools leaders in planning their development and career. School owners can use the model as assessment tool.
According to the 2020 Lifelong Learning Strategy, the Ministry of Education and Research is committed to crafting an external assessment mechanism designated for school leaders in collaboration with school owners. This system serves as a conduit for the systematic receipt of professional feedback on their administrative endeavours and the correlation with the overall outcomes of their respective educational institutions. These quality indicators form the basis for assessing the efficacy and impact of the heads of educational institutions.
Furthermore, the 2020 Lifelong Learning Strategy aspires to bolster the proficiency of school managers in overseeing and appraising the performance of school heads. The strategy also aims to create and implement assessment models for digital competencies for school leaders, including establishing a grading system to recognize achievement.
The 2021–2035 Education Strategy does not provide explicit reference to a structured framework for the assessment of school principals or to measures of accountability related to the quality of teaching and learning. However, it is worth noting that the strategy is steadfast in its commitment to ensuring that the evaluations of teachers and headmasters, inclusive of considerations such as remuneration, align harmoniously with the prerequisites for their respective roles and their professional performance within the sphere of education.
School owners can use the competency model for educational leaders developed by the Ministry of Education and Research as one of the assessment tools.
4.3. Teacher assessment by school leaders
As delineated in one of the strategic measures of the 2020 Lifelong Learning Strategy, school leaders are pivotal in assessing a teacher's professional contributions. Their mandate encompasses facilitating discussions and the judicious application of regulations governing work hours and compensation with the teaching staff. School leaders are entrusted with providing teachers with regular and constructive feedback on their pedagogical efficacy and overall competence. Additionally, their purview extends to supporting teachers in their professional and individual growth trajectories.
The 2020 Lifelong Learning Strategy also aims to mitigate substantial disparities in evaluating teachers' efficacy and remuneration within the country. To this end, associations representing school leaders, including those leading vocational and general education institutions, formulate comprehensive assessment models. These models shall serve as benchmarks for gauging the contributions and effectiveness of teachers. Subsequently, they enact and implement these models, considering their respective educational establishments' unique attributes and specificities.
The Teacher Competence Model ("Õpetaja kompetentsimudel") is a framework designed to support teachers in analyzing and developing their professional skills, but it is also used by school principals and other educational leaders for performance assessments. The model defines key competencies and roles for teachers, such as being a role model in values, supporting each student’s development, creating an engaging learning environment, and fostering collaboration within the school community. It is complemented by the 360-degree feedback method, where teachers receive evaluations from peers, students, parents, and school leaders based on observable behaviours tied to these competencies. Principals utilize this model not just for assessment but also as a tool for fostering teacher growth. Through structured feedback mechanisms, it enables school leaders to identify strengths and areas for improvement, thus supporting continuous professional development. The focus is not solely on evaluating past performance but on guiding teachers toward reflective practice and lifelong learning.
This profile was reviewed by Sandra Haugas, analyst, Praxisl Eneken Juurmann, advisor, Ministry of Education and Research; Hasso Kukemelk, school head and associate professor emeritus of educational management, and the Government of Estonia.
