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
According to the Article 26:3 of the 2012 Federal Law No. FZ-273 on Education in the Russian Federation (hereinafter referred to as the Law on Education (2012)), the sole executive body of the educational institution shall be the head of the educational institution who carries out the current management of the activities of the educational organization. Education institution heads include the titles of rector (ректор), director (директор), superintendent (заведующий), chief (начальник) or other leaders (иной руководитель).
The 2021 Professional Standards for Head of Educational Institution (preschool and general education) use the terms “rector” (ректор)”, “director” (директор) and “chief” (начальник) when it comes to principals of educational institutions, without specific definition.
The 2010 Unified Qualification Directory of Positions for Managers, Specialists and Employees uses the term “Руководитель” for the leader of school, also mentioning “rector” (ректор) and “director” (директор) without definition.
2. School principals
2.1. Leadership standards and roles
Competency standards and leadership frameworks and guidelines
The 2021 Professional Standards for Head of Educational Institutions were published by the Ministry of Labour and Social Protection of the Russian Federation, as guidelines to ensure the activity and development of educational institutions. They provide the framework for nationally accepted requirements of school leader competencies in terms of experience, knowledge, skills, ethics, and values. They identify five main functions for the head of preschool and general education institutions: a) Management of educational activities of educational institutions; b) Management of activities of educational institutions; c) Management of the development of educational institutions; d) Management of the interaction of educational institutions with participants in the field of education and social partners; e) Organize childcare and supervision (for preschool education institutions).
The 2010 Unified Qualification Directory of Positions for Managers, Specialists and Employees, section "Qualification Characteristics for Educators" published by the Ministry of Health of the Russian Federation and modified by the Ministry of Labour and Social Protection of the Russian Federation in 2023, further outlines the position responsibilities, expertise and qualification requirements of head principal (director, chief), deputy head (vice-director, vice-principal) and teaching staff.
Roles
According to Article 51:8 of the Law on Education (2012), the head of the educational institution is responsible for the management of educational, scientific, pedagogical practices, and organizational and economic activities of the educational institution, as well as for the implementation of the development programme of educational institution. The head of the educational institution is also obliged to take measures within the competence of the educational institution to protect the rights of students.
Setting expectations/objectives: According to the 2021 Professional Standards for Head of Educational Institutions, the principal assumes the responsibility of formulating the educational institution's mission and strategy, defining its developmental objectives, and overseeing the implementation of educational plans alongside general development strategies. This encompasses ensuring the coherence between preschool and primary education, as well as across all levels of general education, regarding educational aims, objectives, and content. Additionally, the principal is tasked with monitoring and evaluating the efficiency and effectiveness of educational development plans through systematic analysis of plans, projects, and anticipated outcomes. Furthermore, it falls upon the principal to prepare public reports that articulate the institution's current status and future development prospects.
Developing teaching and learning: The 2021 Professional Standards for Head of Educational Institutions require the principal to manage the methods, structures, and support systems formed to implement educational activities, organizing and adjusting the educational curriculum. The principal plays a pivotal role in shaping the educational environment, particularly in advancing digital learning initiatives to facilitate electronic and distance education. Additionally, they establish a framework for identifying, supporting, and nurturing students' talents and abilities, while promoting autonomy and self-directed learning. Responsibility also extends to organizing and overseeing an internal system for assessing education quality and supervising student outcomes. Moreover, the principal is tasked with monitoring, analysing, and evaluating educational activities' effectiveness, making managerial decisions to address any shortcomings. Principals must take into account educational needs, the abilities of children, and the ethno-cultural situation of their development. They also ensure the availibility of educational programs for children with disabilities. However, there's no specific mention of providing feedback to teachers based on classroom observations.
Promoting collaboration: According to the 2021 Professional Standards for Head of Educational Institutions, the principal is responsible for overseeing and supporting consensus governance bodies within the educational institution, ensuring the active participation of representatives from educational stakeholders. This includes safeguarding the rights of students and other stakeholders while determining objectives, directions, forms, and expected outcomes of interactions with educational stakeholders and societal partners. The principal facilitates interactions between the educational institution and various stakeholders, including parents (legal representatives), national authorities, local governments (including regulatory bodies), the institution's founders (owners), public organizations, other educational and non-educational entities, trade unions, and media representatives. Furthermore, the head of the educational institution is tasked with creating conditions conducive to the development and implementation of educational initiatives and innovations. They are also responsible for coordinating the activities of educational institution staff. Within the school, the principal must organize consultative activities with sutdents, parents, and teaching staff; supporting the formation of their respective management bodies.
Supporting staff development: An important responsibility of the principal is to establish incentive and support systems to foster the professional development of teachers and other staff within the educational institution. The head of the preschool and general education institution is also tasked with organizing selection, recruitment, and admission processes, as well as determining personnel allocation and division of work responsibilities. The 2021 Professional Standards for Head of Educationalasks principals to form a system of motivation and conditions for the professional development of teachers and other employees of a general education organization, including additional professional education. They should also organize for the certification of employees to comply with the position held.
Acting in accordance with the ethical principles of the profession: Article 48 of the Law on Education (2012) stipulates that educational faculty members have an obligation to adhere to legal, moral, and ethical standards, and to comply with the requirements of professional ethics, while respecting the honour and dignity of students and other participants in educational relationships. The Ministry of Education of Russia, together with the Trade Union of Education, has developed an Exemplary Regulation on the Norms of Professional Ethics of Teachers (Letter of the Ministry of Education of Russia and the Trade Union of Public Education and Science Workers of the Russian Federation dated August 20, 2019 No IP-941/06/484). Additionally, each municipality or school may utilize its own Code of Professional Ethics for Teachers.
Others: According to the 2021 Professional Standards for Head of Educational Institutions, the school leader is mandated to ensure the transparency and accessibility of educational institution information and to oversee the management of its information resources, including official websites. Additionally, the principal is entrusted with overseeing risk management and implementing anti-corruption measures.
2.2. Selection and working conditions
Degree requirements and prior teaching experience
According to Article 51:2 and 51:3 of the Law on Education (2012), candidates for the position of head of the educational institution must hold a higher education degree and meet the qualification requirements and/or professional standards as outlined in the qualification reference books for educational institution heads. It is prohibited for individuals who are not permitted to engage in pedagogical practices due to reasons established by labour legislation from assuming the role of head of the educational institution.
The 2021 Professional Standards for Head of Educational Institutions define the specific qualifications for heads of preschool and general education institution. School heads must have one of the following:
- Higher education - associate, master's degree within the consolidated group of disciplines and training orientations ‘education and pedagogical sciences’, and additional vocational education (vocational retraining programme) in one of the following areas: ‘economics’, ‘management’, ‘human resources management’, and ‘public and municipal administration’; or
- Higher education - bachelor's degree within the consolidated group of disciplines and training orientations ‘education and pedagogical sciences’, and master's degree within the consolidated group of disciplines and training orientations ‘economics and management’; or
- Higher education - bachelor's degree within the consolidated group of disciplines and training orientations ‘economics and management’, and master's degree within the consolidated group of disciplines and training orientations ‘education and pedagogical sciences’; or
- Higher education - associate, master's degree, and additional vocational education (vocational retraining programme) in the field of education and pedagogical sciences, and additional vocational education (vocational retraining programme) in one of the following areas: ‘economics’, ‘management’, ‘human resources management’, and ‘public and municipal administration’.
Additionally, school heads must have at least five years of working experience in leadership and(or) teaching positions in preschool or general education institutions are also required.
According to both Article 51 of the Law on Education (2012) and Article 331 of the Labor Code of the Russian Federation (2002), individuals with teaching qualifications are eligible to engage in educational activities, and individuals who are not permitted to engage in teaching activities are prohibited to be the head of the educational institution. According to the 2021 Professional Standards for Head of Educational Institutions, which outline job requirements and teaching experience, the criterion of "5 years of working experience in leadership and/or teaching positions" indicates that teaching experience may not always be necessary.
Additional eligibility requires fulfilling several conditions: no restrictions on employment in education, especially involving minors' development; completing mandatory medical exams, and obtaining compliance certification.
Appointment decision
Article 51 of the Law on Education (2012) states the head of the educational institution: a) is elected by the general meeting, conference of employees (and students) of the educational institution with subsequent approval by the founder of the educational institution; b) is appointed by the founder of the educational institution; c) is appointed by the President of the Russian Federation in cases established by federal laws. The election, appointment, and status of the head of the private educational institution are determined by the constitution of the private educational institution in accordance with labour regulations.
Employment equity measures
According to Article 3 of the Labor Code of the Russian Federation (2002), everyone has equal opportunities to exercise their labour rights. No one can be restricted in their labour rights and freedoms or receive any advantages based on gender, race, skin colour, nationality, language, origin, property, family, social, or official status, age, place of residence, religion, beliefs, affiliation or non-affiliation with public associations or any social groups, as well as other circumstances unrelated to the employee's business qualities. However, there are no specific equitable measures for school leadership positions included in national laws, policies, strategies, or binding frameworks.
Working conditions
In Russia, school principals are considered civil servants. They are appointed by the state and their roles are governed by federal and regional regulations. This means they are part of the public administration system and are subject to certain rules and responsibilities that come with civil service status. They typically receive salaries and benefits from the government, similar to other civil servants in Russia.
The Proposal for Establishing Unified Systems of Remuneration for Employees (2019) stipulates the maximum share of expenditure on the remuneration of administrative and managerial staff, as well as support personnel, should not exceed 40 percent of the wage fund of the educational institution. In parallel, “Approval of the model regulation on remuneration of employees of federal state budgetary and autonomous institutions subordinate to the Ministry of Education of the Russian Federation (2023)” suggests that the salary of the principal of the educational institution is established by the Ministry of Education of the Russian Federation upon the recommendation from the head of the institution, in an amount up to 30% lower than the official salary of the head of the institution, and is determined by the employment contract or by an additional agreement to the employment contract with the principal of the institution.
The Ministry of Education of the Russian Federation establishes and disburses bonuses for the head of the educational institution: a) for working intensity and outstanding achievements; b) based on performance results.
The Constitution of the Education and Science Employees' Union of Russia (ESEUR) (Chapter 3, Article 7) stipulates that members of the union can be employees of educational institutions, among others, but does not specify whether principals are eligible for membership in the union.
2.3. Leadership preparation and training
Pre-service training
Although no pre-service education details were uncovered, candidates aspiring to the head of the educational institution role must fulfil specific qualification prerequisites (See section 2.2). There are optional courses prepared by non-profit organizations and universities which are not partnered with the Ministry of Education.
Induction and in-service training
Due to the lack of a coordinated system for developing managerial staff in educational institutions, two initiatives were launched: "The Unified Federal System for Scientific and Methodological Support of Pedagogical Personnel and Managerial Staff (EFS)" and "Centres for Continuous Professional Development." These aim to enhance the skills of managerial staff, including heads and deputy heads of institutions and their branches. The EFS responds to staff needs by offering training programmes, and collaborating with Russian executive authorities to optimize human resource potential.
In parallel, part of the “Modern School Project” aims at providing the opportunity for professional development and training throughout the entire professional career with pedagogical workers, and increasing the proportion of faculty members in the general education institution who have undergone qualification improvement and advanced vocational training.
3. Teachers, parents and students
3.1. School management committees and boards
According to Article 26 of the Law on Education (2012), educational institutions are managed based on a combination of unified command and consensus governance. Within these institutions, various collegial governing bodies are established, such as the general conference of employees and/or students, pedagogical council, board of trustees, supervisory board, and management board. The structure, formation process, term limits, responsibilities, decision-making procedures, and representation of the institution by the board of trustees are determined by the institution's constitution in compliance with Russian Federation laws. Although the members of the school board are not specifically mentioned, the institution's constitution ensures involvement of parents and students in management. The authority to create this constitution lies with the educational institution itself.
3.2. Middle leaders
The 2010 Unified Qualification Reference Book of Managers, Specialists and Employees outlines various titles for middle leaders, such as director (head, manager) of a structural sub-unit, director (chief, leader) of a cultural center for students, and head of a department. Additionally, according to the 2021 Regulations on Position Naming in Educational Institutions, institutions offering basic general or secondary vocational education programs can establish the position of "Consultant to the Director on Interaction with Children's Public Association."
3.3. Parents
As stated in Article 48 of the Model Regulations for General Education Institutions, the rights and responsibilities of parents are defined by the institution's constitution and local regulations. Moreover, Article 26 of the Law on Education (2012) mandates that educational institutions, when drafting regulations impacting the legitimate rights and interests of stakeholders, must take into account the views of parents or legal guardians of minors. This feedback is gathered through parent councils and boards, enabling them to contribute to the development of educational plans and schedules outlined in the institution's constitution.
3.4. Students
According to Article 49 of the Model Regulations for General Education Institutions, students' rights and obligations are defined by the institution's constitution and local regulations. As per Article 26 of the Law on Education (2012), when formulating regulations impacting stakeholders' rights, educational institutions must consider students' opinions, facilitated by student councils and representative bodies. These councils have the right to participate in shaping educational plans and schedules as outlined in the institution's constitution.
4. Governance
4.1. Autonomy of school leaders
According to Article 28 of the Law on Education (2012), educational institutions possess autonomy, granting them independence in conducting educational, scientific, administrative, financial, and economic activities. This autonomy includes the following:
- Independently determining the content, methodologies, technologies, and supportive measures for educational programs, unless specified otherwise by federal law.
- Developing and implementing internal regulations for students, encompassing discipline in classes, rules of conduct within the institution, internal labour regulations, and other guidelines.
- Establishing personnel allocation, unless stipulated otherwise by Russian Federation regulatory law.
- Handling the hiring process, entering into and terminating employment contracts with staff, assigning job responsibilities, and organizing additional professional education for employees, unless specified otherwise by federal law.
- Managing the admission process for students.
- Conducting self-assessment and maintaining an internal system for assessing educational quality.
School leaders, within the 2021 Professional Standards for Head of Educational, are expected to plan the distribution of financial, economic, material, personnel, methodological, information resources of a general education organization.
4.2. Assessment and accountability of school leaders
According to Article 95 of the Law on Education (2012), the independent assessment of education quality encompasses: a) the independent assessment of students' output quality; and b) the independent assessment of the quality of conditions for educational activities provided by the educational institution. Article 89:3 adds that the public governance and supervision in the field of education is conducted by federal authorities of state and bodies of state power of the Russian Federation. At the municipal level, public governance and supervision in the field of education are conducted by local government agencies.
A public council is formed to conduct the independent assessment of the quality of conditions for educational activities provided by the educational institution, which is composed of representatives from public organizations established to protect the rights and legitimate interests of students and/or parents (legal guardians) of minor students, as well as public associations of disabled individuals, etc. The public council for independent quality assessment is approved for a term of three years, and the number of members shall not be less than five people. The public council conducts assessment of the same educational institution no more than once a year, and at least once every three years. This public council is responsible for conducting independent assessments of educational activities funded by budgetary allocations from the federal budget, as well as the quality of conditions for educational activities provided by institutions following general education programmes, vocational education programmes, additional general education programmes, vocational training programmes, and higher education programmes. The head of the educational institution should take responsibility for the results of the independent assessment, and the plan and implementation of the measures to rectify deficiencies.
At the local level, both in Irkutsk Oblast and Saint Petersburg, the assessment criteria for evaluating the performance of the Head of the Municipal Educational Institution are outlined. These include gauging the effectiveness and efficiency of educational activities and programs, ensuring compliance with legislation and regulations, maintaining information disclosure, and promoting public satisfaction with educational services. Additionally, factors such as measures to safeguard children's health and safety, the provision of a conducive learning environment, and the management of infrastructure play significant roles. Furthermore, attention is given to the implementation of individualized education plans, monitoring students' educational outcomes, fostering innovation in pedagogy and organizational structures, and enhancing material and technological resources for educational development. Other aspects considered include disciplinary measures and incentives, students' achievements in competitions, information security, involvement of the student council, parent interaction, initiatives for teacher development, and overall educational performance ratings.
4.3. Teacher assessment by school leaders
According to the 2023 Certification Process for Pedagogical Staff in the Educational Institution, the attestation commission assumes the duty of verifying pedagogical staff's alignment with their respective positions through the evaluation of their professional performance and fulfilment of assigned job responsibilities outlined in their employment contracts. Notably, the head of the educational institution is prohibited from serving as a member of the attestation commission.
This profile was drafted by Huiwen Men (Université Paris 1 Panthéon-Sorbonne).
