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 Organic Law of Education 2/2006 (Ley Orgánica de Educación – LOE), amended by Law 3/2020 (LOMLOE), refers to principals or head teachers as “directors” of “educational centers,” which include educational institutions or schools.
The 2007 OECD Country Background Report “School Leadership in Spain” uses the term “school leaders” to refer to individuals in leadership positions within schools. It also refers to specific roles within the school leadership team, such as the director or head teacher (principal), the head of studies, and the secretary (school administrator). The distribution of leadership tasks within schools is normally as follows: the head of studies focuses on academic processes, organization, and disciplinary matters; the school administrator on administrative and financial processes; and the head teacher on institutional and external relations and the coordination of the leadership team.
2. School principals
2.1. Leadership standards and roles
Competency standards and leadership frameworks and guidelines
The Organic Law of Education 2/2006 (LOE), amended by the Organic Law on Education 3/2020 (LOMLOE), is the main legal text outlining the duties and responsibilities of directors.
Article 131 states that the management of educational centers must combine administrative management, resource management, and leadership and pedagogy from a collaborative approach, seeking a balance between administrative and pedagogical tasks. Article 132 highlights the competencies of school directors.
There are no official and mandatory leadership standards promoted by the government, but the 2016 Framework for Good School Principalship, “Marco Español para una Buena Dirección” (MEBD), was developed by directors themselves and their regional associations: Federations of Associations of Secondary Directors (FEDADi), Early Childhood and Primary Directors (FEDEIP), and the European Forum of Education Administrators (FEAE). The framework highlights five primary competencies for directors: management, organization, and operation of the school; setting strategic goals and interventions; providing pedagogical leadership; promoting participation and collaboration to manage the institutional climate; and upholding ethical and professional standards.
Roles
Setting expectations/objectives: The Organic Law of Education 2/2006 (LOE) states that the director is responsible for managing and coordinating all activities of the center, promoting innovation, and encouraging steps to achieve “the objectives of the educational project of the center.”
Developing teaching and learning: The Organic Law of Education 2/2006 (LOE) mentions that the director exercises pedagogic management to promote innovation and encourage steps to achieve educational objectives. The 2007 OECD Country Background Report “School Leadership in Spain” highlights that school directors are tasked with overseeing the development of curricular aspects, educational content, timetables, working methods, teaching materials, and evaluation within the school.
Promoting collaboration: The Organic Law of Education 2/2006 (LOE) highlights that the director is required to promote collaboration with families, institutions, and other organizations to foster relations with the community at large and create a school climate that promotes study and activities for students’ all-round development. According to the 2007 OECD Country Background Report “School Leadership in Spain”, school directors are expected to coordinate actions to provide expert support for the collaborative work of teachers, promote parent participation, and manage conflicts of interest that may arise.
Supporting staff development: The Organic Law of Education 2/2006 (LOE) underscores the role of the director in “fostering the qualification and training of the teaching staff.”
Acting in accordance with the ethical principles of the profession: Article 132f of the Organic Law of Education 2/2006 (LOE) indicates that the director is responsible for guaranteeing mediation in the fulfillment of regulations, promoting the community spirit of the school, and ensuring compliance with current regulations to solve conflicts in schools.
Others: The Organic Law of Education 2/2006 (LOE) emphasizes that directors’ responsibilities include representing the school and the education community, exercising leadership over all school staff, facilitating conflict resolution in schools, promoting equal opportunities, and preparing individuals for a knowledge-based society. School management is generally combined with reduced teaching hours. Only in some cases do principals not teach classes to students.
2.2. Selection and working conditions
Degree requirements and prior teaching experience
In Spain, any school teacher can apply to be a school principal. In order to apply for the position of public school director, candidates must have held public service teacher status for a minimum of five years, having worked as a teacher during that period in one of the courses of the center they are applying for, and submit a management project outlining objectives, action plans, and project evaluation, among other components (art. 134 of the Organic Law of Education 2/2006 (LOE)). A Management Training Course is a requirement before the appointment.
The directors (principals) are teachers, meaning that their previous initial training is similar to that of the rest of the teachers. Teachers for early childhood or primary education must be university graduates in early childhood or primary education. For secondary and high school education, teachers require a university degree, along with a Master’s degree in Secondary Education that provides postgraduate pedagogical training, with other qualifications designated by the Government for certain areas (art. 92-99 of the Organic Law of Education 2/2006 (LOE)).
Appointment decision
The selection process for directors involves administrative authorities and school community members. Candidates go through a competition of merits, including (i) the presentation of a project focusing on academic success and addressing issues such as gender equality, non-discrimination, and prevention of gender violence; and (ii) the completion of a Management Training Course. A commission comprising representatives from the educational administration and the educational center conducts the selection and appointment. The representatives from the educational center are elected by the educational center itself, ensuring representation from teachers and School Council members (art. 135 of the Organic Law of Education 2/2006 (LOE)). In addition, among the commission members, at least one director must be active in centers that provide similar teachings. In the selection process, preference is given to candidates from the educational center's teaching staff (art. 135 of the Organic Law of Education 2/2006 (LOE)).
Employment equity measures
The Organic Law 3/2007 for effective equality between women and men establishes that there should be equal opportunities in hiring, promotions, and leadership roles, aiming to reduce gender imbalances in public institutions. It states that “in order to facilitate the professional promotion of female public employees and their access to managerial positions in the general state administration and in the public bodies linked to or dependent on it, in the corresponding training courses, at least 40% of the places shall be reserved for allocation to those who meet the established requirements.”
Working conditions
The educational administration appoints directors for four-year terms, renewable upon positive evaluation, with public criteria and procedures for evaluation. In cases of no candidates or newly created centers, the administration appoints a director for up to four years after consulting the School Council, contingent upon completion of the compulsory requirements and the managerial training programme (art. 136 of the Organic Law of Education 2/2006 (LOE)).
The director leaves the post in these cases: at the end of the term or terms of office; if she/he resigns with a motive accepted by the Education Administration; due to unforeseen physical or mental incapacity; or if dismissed by the Education Administration either on their initiative or as proposed by the School Council for serious failure to carry out their duties, following investigation proceedings and evidence from the School Council (art. 138 of the Organic Law of Education 2/2006 (LOE)).
In addition to their teaching salary, directors receive a salary supplement that varies according to the Autonomous Community and the type and size of the center. Directors who have been positively evaluated and remain active as public service teaching officials consolidate the salary supplement (art. 139 of the Organic Law of Education 2/2006 (LOE)).
The 2024 OECD: Education at a Glance (Annex D3) mentions that salaries of both teachers and school heads are determined by the Central Government and the education authorities of the 17 Autonomous Communities. The Central Government sets the basic salary, seniority bonuses, and allowances related to civil servant positions, while the Autonomous Communities establish additional allowances for teaching profession-related activities and in-service training. The extra payments for school heads amount to one month's basic salary twice a year plus bonuses linked to the length of service and part of the allowance linked to their civil servant position. Extra payments for school heads may include allowances for supporting school transport and educational attention in the school canteen. These payments are based on specific criteria such as successful completion of professional development activities and outstanding performance evaluations. Additionally, school heads working in disadvantaged, remote, or high-cost areas receive location allowances.
The 2021/2022 Teachers' and School Heads' Salaries and Allowances in Europe mentions that the basic statutory salary for school heads varies depending on the school level and classification, with different ranges observed across primary and secondary education. For primary schools, the minimum salary is €37,369 and the maximum is €43,616.In compulsory secondary school (ISCED 02), the salary ranges from €45,025 to €49,269.
The Eurydice Teachers' and School Heads’ Salaries and Allowances Portal demonstrates that by 2022 school heads were paid a basic salary with a minimum of €36,869 and a maximum of €65,737 depending on the qualifications of the principals and the size of the school. Eurydice also states that “salary progression of school heads depends on seniority (salary increases every 3 years of service) and a salary supplement, every 6-year period, related to in-service training (sexenios) corresponding to continuing professional development (CPD).”
2.3. Leadership preparation and training
Pre-service training
According to the Organic Law of Education 2/2006 (LOE), successful candidates are required to undergo initial training on the “development of the management function” prior to their appointment, with exceptions for those with relevant prior training or experience (art.135). Teachers acquire eligibility to become school heads by completing a specific training course that leads to credentials, with a minimum duration of 120 hours. The 2014 Royal Decree No. 894 develops the characteristics of the training course on the development of the management function, as well as the corresponding courses to update management skills (“cursos de actualización de competencias directivas”).
Induction and in-service training
Educational administrations may require directors to complete refresher modules during their tenure (art. 135 of the Organic Law of Education 2/2006 (LOE)). The 2024 OECD: Education at a Glance (Annex D3) outlines the requirements for updating skills and continuing professional development (CPD) for school heads in Spain based on the 894/2014 Royal Decree. Every eight years, school heads must update their competencies through management training (at least 60 hours of training). Courses offered by educational authorities are fully subsidized, but school heads can also participate in other activities or courses outside the official program. However, funding for these activities may be partial or absent. Additionally, school heads can apply for study grants for these other activities.
Regarding management training, the responsibility lies with the Ministry of Education and the Education Councils (Consejerías) of each Autonomous Community. Universities or institutions authorized by the Councils may also intervene.
3. Teachers, parents and students
3.1. School management committees and boards
According to the Organic Law of Education 2/2006 (LOE), schools and educational centers have a management team and two collegiate governing bodies: the School Council (Consejo Escolar) and the Teachers’ Council (Claustro de Profesores).
The management team in educational centers combines institutional, administrative, and pedagogical tasks and is composed of the director, head of studies, secretary, and other positions determined by educational administrations, operating under the director's guidance. “Educational administrations will promote the exercise of the management function in educational centers by adopting measures that allow improving the performance of management teams in relation to personnel and material resources and by organizing training programs and courses” (art. 131 of the Organic Law of Education 2/2006 (LOE)).
The School Council approves and evaluates projects, reviews the annual programming, participates in the selection process of directors, decides on student admissions, and proposes measures for various aspects, including healthy lifestyles and gender equality. It also oversees compliance with coexistence regulations, promotes facility conservation, collaborates with local administrations, evaluates center functioning and academic performance, prepares reports for improvement, approves the budget project, and exercises any other powers delegated by the educational administration.
The School Council consists of the director, who serves as the Chairperson, the head of studies, a representative of the City Council, a portion of teachers elected by the Teachers Council (at least one-third of the total School Council members), a portion of parents and students elected respectively by themselves (at least one-third of the total School Council members), a representative from the school administration and services staff, and the school secretary, who acts as the secretary of the Council without voting rights. Once established, the School Council appoints someone to promote educational measures aimed at fostering equality between men and women. Students may be elected as members of the School Council from the first year of compulsory secondary education. However, students in the first two years of compulsory secondary education will not participate in the selection or dismissal of the director. Primary education students will participate in the School Council of the center under the terms established by the educational authorities (art. 126 & 127 of the Organic Law of Education 2/2006 (LOE)).
The Teachers’ Council is the body for teachers' participation in the government of the center and is responsible for planning, coordinating, reporting, and, where appropriate, deciding on all educational aspects of the center. The Council will be chaired by the director and will be made up of all the teachers who work at the center (art. 128 of the Organic Law of Education 2/2006 (LOE)). They propose school projects and the annual general program, approve curriculum details, set student guidance criteria, promote pedagogic research, and elect representatives for the School Council. They also take part in assessing candidates for the director position and their management plans, analyzing school functioning and student performance, informing about school organization, overseeing disciplinary conflicts and sanctions, proposing initiatives to enhance the school community, and other tasks assigned by educational administrations or relevant norms (art. 129 of the Organic Law of Education 2/2006 (LOE)).
3.2. Middle leaders
In addition to the governing bodies, the Organic Law of Education 2/2006 (LOE) includes teaching coordination bodies (art. 130). At the head of these bodies are teachers who assume this responsibility and can be considered intermediate leaders, such as the school counselor, the heads of the teaching department in secondary school, or other positions that may be created (heads of cycle, heads of level, etc.). The functions of these intermediate leaders are not defined in the LOMLOE but are described in the annual rules for the organization of educational centers.
3.3. Parents
According to the Organic Law of Education 2/2006 (LOE), Educational Administrations support and encourage the creation of parent associations or AFAs (“asociaciones de familias de alumnos”) and also support the creation of larger groups such as federations and confederations formed by these associations. As amended by Organic Law of Education 8/2013, it is stated that one of the parents' representatives on the school council shall be appointed by the most representative parents' association in the school. The 1533/1986 Royal Decree regulates parents' associations and presents its roles, namely: to submit to the school council proposals for the preparation of the educational project and the general annual program; to inform parents of their activity; to prepare reports for the school council on its own initiative or at its request; to prepare proposals for modification of the internal regulations; to formulate proposals for the implementation of complementary activities; or to encourage collaboration between parents and teachers. The Organic Law of Education 2/2006 (LOE) includes the need for families to participate in activities to improve the academic performance of their children (art. 121.5), to encourage family-school collaboration (art. 118.4), or to participate in the operation of the centers through their associations (art. 119.4).
3.4. Students
In Spain, the participation of students varies by level of education. The 1532/1986 Royal Decree and Organic Law 1/2002 regulate student associations ("asociaciones de alumnos"). Student associations can be established in public and private centers that teach ESO, Bachillerato and Vocational Training. All students of these centers can establish them, except those who study Early Childhood Education and Primary Education.
Student associations aim to represent student views, support educational activities, foster student participation in school governance, organize cultural and sports events, and facilitate student representation in school councils and educational planning. Upon formation, associations submit documentation for inclusion in a registry overseen by provincial education authorities. They may hold meetings in school facilities with the director's approval and appoint unpaid managers to oversee finances and ensure compliance with decisions. Additionally, associations can federate or confederate to enhance their influence and representation at both local and national levels.
4. Governance
4.1. Autonomy of school leaders
The Organic Law of Education 2/2006 (LOE) establishes that the autonomy of the centers will be favored so that their economic, material, and human resources can respond and make viable educational projects and organizational proposals (Eurydice, 2024). The LOMLOE states that “the management team will work in a coordinated manner in the performance of its functions, in accordance with the instructions of the director and the specific functions established by law.” The director directs and coordinates all the activities of the school, without prejudice to the powers attributed to the teaching staff and the School Council. The director exercises pedagogical direction, promotes educational innovation, and plans for the achievement of the aims of the educational project. In addition, he or she shall authorize expenditures in accordance with the school’s budget. However, he or she shall “guarantee compliance with the laws and other provisions in force” (art. 131 & 132).
According to the Organic Law of Education 2/2006 (LOE), school directors can propose to the educational administration their management project and the appointment and dismissal of the management team, after “informing the Teaching Staff Council and the School Council.” In acquiescence with the regulations stipulated by educational administrations, the director is empowered to execute contracts for various tasks, services, and provisions, authorize expenditures aligned with the center's budget, initiate payments, and validate certifications. The hiring or dismissing of teachers, or the formulation of the school budget by the directors, are not contemplated in the LOMLOE.
4.2. Assessment and accountability of school leaders
The Organic Law of Education 2/2006 (LOE) states that educational administrations support and facilitate the self-assessment of educational centers and develop plans to evaluate their management functions, which are carried out by the educational inspectorate (art. 146). The evaluation of principals is the responsibility of the educational inspectorate. The Inspectorate will supervise the management function and collaborate in its continuous improvement (art. 151 b).
4.3. Teacher assessment by school leaders
The Organic Law of Education 2/2006 (LOE) highlights the role of directors in promoting internal evaluations of educational institutions, collaborating in external evaluations, and evaluating teachers (art. 132 h). It also states that inspectors supervise teaching practices and that educational inspections are carried out on all elements and aspects of the educational system (art. 141). These inspections ensure compliance with laws, guarantee rights, observe the duties of all participants in the teaching and learning processes, and aim to improve the educational system and the quality and equity of teaching (art. 148).
This profile was reviewed by Francisco López Rupérez, Professor at UCJC; Mireia Tintoré, Professor and Researcher at the Faculty of Education, Universitat Internacional de Catalunya; and Elisa Sánchez Caballero, Technical Education Advisor.
