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 2008 Decree on Education (Law No. 75) mentions the terms “director” (director) and “deputy director” (subdirector). The 1986 Basic Law of the Educational System (Law No. 46) uses the term “management of educational institutions”.
2. School principals
2.1. Leadership standards and roles
Competency standards and leadership frameworks and guidelines
Order No. 266/2012, which regulates the evaluation of the performance of directors, mentions the existence of a “mission charter” (carta de missão) defined at the beginning of the mandate, which clearly explains the commitments that are intended to be implemented during the term of the mandate, namely, the results to be achieved within the framework of the implementation of the educational project, the annual plan of activities, as well as the management of the school’s human, financial and material resources.
National education laws define the roles and responsibilities of school leaders. After 30 years of collective management of Portuguese public schools, the 2008 Decree On Education (Law No. 75), which regulates the autonomy, administration and management regime of schools, introduced a shift towards a management model basd on individual leadership. This change was aimed at to strengthening the leadership' of schools, for which the position of director (diretor) is created. The director is entrusted with administrative, financial and pedagogical management, assuming, for this purpose, the presidency of the pedagogical council. The director has the power to designate those responsible by the curricular departments.
Roles
Setting expectations/objectives: According to the 2008 Decree on Education (Law No. 75), the director is responsible for submitting to the approval of the General Council: the educational project prepared by the Pedagogic Council; amendments to the internal regulations; the annual and multi-annual plans of activities; the annual activity report; as well as proposals for the conclusion of autonomy contracts.
Developing teaching and learning: According to the 2008 Decree on Education (Law No. 75), the director oversees the development of class structures and timetables, as well as coordinates the schedules for both teaching and non-teaching staff.
Promoting collaboration: According to the 2008 Decree on Education (Law No. 75), the director is responsible for fostering collaborative partnerships by establishing protocols and formalizing agreements with various stakeholders, including other educational institutions, local authorities, and collective bodies.
Furthermore, according to Order No. 181/2019, the school must ensure the participation of students in the design and development of the plans, defining regular instances of consultation, as well as the involvement of parents and, in dual certification courses, of socio-professional partners.
Supporting staff development: According to the 2008 Decree on Education (Law No. 75), the director is responsible for approving the plan for training for the teaching and non-teaching staff.
Acting in accordance with the ethical principles of the profession: According to the 2008 Decree on Education (Law No. 75) (article 5), school leaders are exclusively at the service of the public interest, and must observe in the exercise of their functions, the fundamental values and principles of the administrative activity enshrined in the Constitution and in the law, namely those of legality, justice and impartiality, competence, responsibility, proportionality and transparency.
Others: According to the 2008 Decree on Education (Law No. 75), the director assumes the following other roles and responsibilities that contribute significantly to the operational and strategic management of the school:
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They are responsible for drafting the prospective budget, a process requiring careful consideration and alignment with the fiscal directives outlined by the general council. This entails a thorough analysis of the school's financial needs, allocation of resources, and adherence to budgetary constraints set forth by governing authorities.
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The director is charged with the intricate task of planning and overseeing activities related to school welfare. This encompasses a broad spectrum of initiatives to enhance the well-being and development of students, faculty, and staff within the educational community. These activities must be planned and executed by the welfare guidelines established by the general council, ensuring the effective utilization of resources and the attainment of welfare objectives.
2.2. Selection and working conditions
Degree requirements and prior teaching experience
According to the 2008 Decree on Education (Law No. 75), prospective candidates for the director position must hold tenured positions as teachers in public schools, for which they are hired as civil servants, or be duly qualified tenured teachers in private and cooperative schools. They may come from a different school than the one they are applying to lead. Additionally, a minimum of five years of teaching experience is necessary, irrespective of the school type. Furthermore, candidates must possess qualifications to undertake administrative and managerial duties, such as, courses in school or educational administration at a higher education institution (HEI) or hold a master's degree in school or educational administration or a doctorate. In the event of a lack of candidates with specialized training, eligibility may also extend to teachers with leadership experience, including serving in roles such as head teacher, deputy head, or similar positions for at least one full term or having a minimum of three years of experience as a head teacher or pedagogic head in private or cooperative schools. Moreover, candidates with relevant experience in school administration and management may also be considered.
The director is relieved of classroom teaching duties; however, if they choose to do so, they may teach a subject or curriculum area for which they are appropriately qualified.
Appointment decision
According to the 2008 Decree on Education (Law No. 75), the selection process for the director involves several steps overseen by the general council. Initially, a committee nominated by the general council is tasked with compiling an evaluation report for each candidate. This report encompasses an in-depth analysis of the candidate's curriculum vitae, evaluating its relevance to the role of director, as well as an assessment of any intervention projects undertaken within the school. Additionally, the candidate's performance during the interview is thoroughly reviewed. Subsequently, following deliberations, consideration of the evaluation report, and interactions with the candidates, the general council elects the director. The winning candidate must secure the majority of the general council's members' votes. Finally, the election outcome undergoes ratification by the Director-General for School Administration, completing the formal process of appointing the director.
Employment equity measures
Official documents do not explicitly include measures to address the under-representation of minority groups in school leadership positions.
Working conditions
According to the 2022 Joint Eurydice-OECD data collection on salaries of teachers and school heads, the average annual gross minimum and maximum salary of directors in public schools varies across different ISCED levels. At ISCED 01, ISCED 02, ISCED 24 and ISCED 34 levels, the minimum salary is EUR 27,647. At ISCED 01, ISCED 02, ISCED 24 and ISCED 34 levels, the maximum salary is EUR 51,021.
According to the 2008 Decree on Education (Law No. 75), the director’s role is full-time and exclusive, barring any other paid or unpaid employment, except under circumstances specified by law. The director operates without a fixed timetable, with no additional compensation for exceeding regular working hours, yet they are expected to maintain an entire workday and punctuality. Their duties are performed on a service commission basis, ensuring their original position and associated benefits remain intact. The director, deputy-director, and assistant mandates span four years each. Afterward, the general council deliberates on the reappointment of the director or the initiation of the selection process with a view to holding a new election. Election for a fifth term is not allowed consecutive or during the immediately following four-year period at the end of the fourth consecutive term. Therefore, of the four possible terms, only two can be through reappointment, provided they are not consecutive (election - reappointment - election - reappointment). The director’s career is safeguarded during their tenure as director, preserving their length of service in their original role.
2.3. Leadership preparation and training
Pre-service training
Directors must hold specific qualifications, in accordance with the Teaching Career Statute (paragraphs b) and c) of Article 56, no. 1). It requires completing specialized training, consisting of a minimum of 250 effective teaching hours, delivered over at least 22 weeks. This training must be accredited by the Scientific-Pedagogical Council for Continuing Education (CCPFC) (Article 8, No. 2).
Induction and in-service training
The 2008 Decree on Education (Law No. 75) guarantees that the director, deputy-director and assistants shall enjoy the right to specific training for their functions.
The training initiatives for school principals have been diversified. Through partnerships, for example, the Ministry of Education, in collaboration with Microsoft Portugal, within the framework of the “Partners in Learning” Collaboration Protocol, developed the "Innovative Leaders" training program (2011-2016). Similarly, there has been training associated with programs aimed at tackling school failure: 2016 National Programme to Promote Educational Success (Programa Nacional de Promoção do Sucesso Escolar (PNPSE), established through the 2016 Resolution of the Council of Ministers (No. 23). The training emphasizes on key areas: methodological instruction, organizational pedagogy, ethical considerations, civic engagement, and the use of information and communication technologies in school management.
Another important part of the training for directors was also developed within the framework of policy implementation, with a focus on the school's pedagogical leadership. For example, under the Policy of Autonomy and Curriculum Flexibility (organized by the Directorate-General for Education), large-scale training was developed for all directors across the country on "Pedagogical Leadership in a Process of Autonomy and Curriculum Flexibility" (involving Higher Education Institutions - HEIs) (2018-2019)
Training for school principals has also been developed by the DGAE (Directorate-General for School Administration), such as, Conference Series - DGAE Shares Knowledge – 2nd Cycle: Leaders for a New School Governance.
Likewise, there has been a significant focus on building capacity for teachers and directors through the School Association Training Centers (Centros de Formação de Associação de Escolas (CFAE)), established through the 2014 Decree (Law No. 22) and the 2015 Decree (Law No. 127), which provide training to teachers and directors.
According to the 2014 Decree (Law No. 22), the minimum duration of training is 12 hours. For short-term actions, the minimum duration is 3 hours, and the maximum is 6 hours.
3. Teachers, parents and students
3.1. School management committees and boards
According to the 2008 Decree on Education (Law No. 75), the school's organizational structure revolves around three key bodies, in addition to the executive body (director): the general council, the pedagogic council, and the administrative council.
The general council is the overarching strategic leadership entity that delineates the school's operational directives. Its role extends to ensuring inclusive representation and participation within the educational community alongside municipal authorities. Comprising teachers, non-teaching staff, parents/guardians, students, municipal representatives, and local community members, the general council operates on four-year terms, except for parent/guardian and student representatives, who serve for two years. The general council has the capacity to elect and dismiss the director.
Meanwhile, the pedagogic council assumes responsibility for coordinating and overseeing pedagogical affairs, including educational guidance and student support. This council, exclusively comprising teachers, also directs the professional development of teaching and non-teaching staff through initial and ongoing training initiatives.
Lastly, the administrative council holds authority over administrative and financial decisions. Led by the director and including the deputy head, two appointed assistants, and the head of the school's executive department or their delegate, this council is responsible for finalizing matters about the school's administrative and financial realms.
3.2. Middle leaders
As mentioned in Subsection 3.1, teachers are members of the general council and the pedagogical council. Furthermore, according to the 2008 Decree on Education (Law No. 75), tenured teachers with a minimum of five years of teaching experience serve as the deputy-director and assistants.
According to the 2014 Decree (Law No. 22), teachers can be accredited by the Scientific-Pedagogical Council for Continuing Training (Conselho Científico-Pedagógico da Formação Contínua (CCPFC)) and affiliated with the School Association Training Centers (Centros de Formação de Associação de Escolas (CFAE)). Associated schools provide training to other teachers as part of their continuous professional development programs. Teachers who have received an exemption from teaching duties due to being granted a status equivalent to a research fellow are obligated to become part of the trainers' cadre within CFAEs for a minimum duration of three academic years upon the expiration of their research grant. Additionally, CFAEs have the option to enlist the services of external trainers.
3.3. Parents
Decree-Law No. 372/90 establishes the regime of the constitution, rights and of parents/guardians associations. Article 4 establishes parents' associations autonomy in the preparation and approval of their statutes and other internal rules, the election of their governing bodies, the management and administration of their assets, the preparation of activity plans, and the effective pursuit of their objectives.
As mentioned in Subsection 3.1, parents/guardians are members of the general council. The 2008 Decree on Education (Law No. 75), which established the creation of the general council, mentions that it is aimed to reinforce the participation of families and communities in the strategic direction of schools, in order to promote the opening of schools to the outside world and their integration into the local communities.
3.4. Students
As mentioned in Subsection 3.1, the 2008 Decree on Education (Law No. 75) establishes student’sparticipation as members of the general council. The right of students to participate in the school’s management is provided in the 1986 Basic Law of the Educational System (Law No. 46). Besides the participation in the general council, students participation also takes place through the class delegates or the student’s assemplies. Law No. 23/2006 defines the legal status of youth associations, including student associations.
4. Governance
4.1. Autonomy of school leaders
The 2008 Decree on Education (Law No. 75) on the autonomy, administration and management of schools grants different levels of authority and autonomy to the director. This includes organizing the work schedules of both teaching and non-teaching staff, appointing school or pre-primary institution coordinators, vice-coordinators and assistants from among tenured teachers, suggesting nominees for department curriculum coordinator positions (who are then elected by department members from a pool of three candidates), assigning class tutors, hiring teaching personnel, and exercising disciplinary jurisdiction over students.
Moreover, within the framework of the new curriculum policy of basic and secondary education (Decree-Law No. 55/2018), Parte superior do formulário
Parte inferior do formulário
following a trial period of this policy (Order No. 5908/2017), it was established (through Order No. 181/2019) the terms and conditions under which schools, within the scope of curricular autonomy and flexibility, may manage more than 25% of the basic curriculum matrices for educational and training offers in basic and secondary education. The aim of this legislation is “to support schools in an autonomous and flexible management of the curriculum as an instrument that they can develop locally, in dialogue with students, families and the community”. Consequently, school directors who wish to manage the curriculum with greater flexibility and autonomy are required to elaborate an “Innovation Plan”. Upon the analysis of the plan and authorization of the Ministry of Education, schools have the autonomy to adopt different measures, such as a different distribution of subjects throughout each cycle, the creation of new disciplines, a different organization of classes, a different organization of the academic calendar, amongst others.
4.2. Assessment and accountability of school leaders
Order No. 266/2012 regulates the evaluation of the performance of directors, which is both internal and external. The evaluation of the performance of the directors depends on three main parameters: commitments made (50%), demonstrated management skills (30%) and in-service training (20%).
The internal evaluation is made following the elaboration of a self-evaluation report by the director, which shall be evaluated by the general council. The external evaluation is conducted by the Inspectorate-General of Education and Science (Inspeção-Geral da Educação e Ciência (IGEC)). An evaluation coordinating council is established, being responsible for validating and harmonizing the proposals for attribution of the final classification, comprising of the Director-General of School Administration, who presides; the Inspector General of Education and Science; and the respective director of Regional Education services. The performance evaluation is done at the end of the individual's current career stage.
4.3. Teacher assessment by school leaders
According to the 2008 Decree on Education (Law No. 75), the director plays a crucial role in establishing conducive conditions for assessing teacher performance. This involves implementing mechanisms and frameworks for evaluating teaching methods, classroom management, and overall educational outcomes. Moreover, the directoroversees establishing similar conditions for evaluating the performance of non-teaching staff, recognizing the integral role they play in supporting the school's mission and operations.
Furthermore, according to the 2012 Regulatory Decree (Law No. 26), which regulates the teaching staff performance assessment system in preschool education,primary and upper secondary education, the directoris a stakeholder in evaluating teaching performance. Other stakeholders include the president of the general council, the pedagogical council, the teaching evaluation section of the pedagogical council, external and internal evaluators, and teachers whose performance has been already evaluated. As evaluators, directorsare responsible for reviewing and resolving complaints. Upon notification, a complaint must be lodged by the assessed teacher within 10 working days, and the decision is made by either the director or the teaching performance evaluation section of the pedagogical council, depending on the circumstances. The decision-making process involves careful consideration of the arguments put forth by the assessed individual and the evaluator, along with thoroughly examining all relevant documents about the evaluation.
This profile was reviewed by Estela Costa, Associate Professor at the University of Lisbon.
