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 2020 Law on Preschool and School Education in Bulgaria uses the term “director” or директорите to describe school leaders. Article 257 (1) states that the “authority for management and control of state and municipal institutions in the preschool and school education system is the director. The director... manages and represents the relevant institution.”
The law uses the term “pedagogical specialists” to refer to teachers, educators, school directors, and deputy directors. The school director may be assisted by one or more deputy directors in the management and control of teaching, learning, and administrative activities.
2. School principals
2.1. Leadership standards and roles
Competency standards and leadership frameworks and guidelines
The functions, professional profiles, positions and professional qualifications necessary for school directors, as well as the conditions and procedure for raising the qualification, for their career development and for the attestation of pedagogical specialists, including the attestation criteria and the composition of the attestation commission, are determined by the 2019 State Educational Standard on the Status and Professional Development of Teachers, Directors and other Pedagogical Specialists (here forth referred to as the 2019 State Educational Standards). Annex 3 of the standards contains the professional profile of Directors which defines the competencies necessary for occupying and performing the position.
Roles
Setting expectations/objectives: The director is responsible for the development and implementation of the institution’s regulations, rules, strategies, programs, plans, and mechanisms. The 2019 State Educational Standards further state that the director builds a clear picture of the desired outcome of the school staff working together to achieve goals. To do this, they determine the guidelines, goals, and tasks for the development of the educational institution and prepare an adequate plan for their implementation. The director possesses knowledge and skills for strategic and operational planning, effectively implementing policies for the development of the institution. They are expected to implement the institutional policy within the context of the wider framework of the socio-economic and cultural environment of the educational institution.
Developing teaching and learning: According to the 2020 Law on Preschool and School Education, school directors are obliged to provide the necessary conditions for increasing the qualification of pedagogical specialists. The 2019 State Educational Standards state that the director of a state and municipal school plans, organizes, controls, and is responsible for the educational process and the overall activity of the institution. They analyze the results of the institution’s activities and identify measures to increase the quality and efficiency of the work.
Directors provide a healthy, safe, and positive environment for training, education, and work. They effectively plan, allocate, and manage human, material, financial, and information resources.
Promoting collaboration: The director of the educational institution works closely with the institution's various self-governing organizations such as the public council and student organizations, while also serving as the chairman of the pedagogical council. According to the 2019 State Educational Standards, the director interacts with parents and representatives of organizations and communities as well as social partners and stakeholders. They have the skills to build sustainable relationships with stakeholders, exchange information and achieve mutual understanding and coordination of actions. Directors are expected to build partnership relationships with parents and hold joint activities with social partners, local governing bodies, NGOs, and HEIs to create an effective educational environment.
Supporting staff development: The director of the educational institution is expected to manage and develop the staff effectively. The 2019 State Educational Standards state that the director must provide conditions for the improvement of the qualification and for the career development of pedagogical specialists. Furthermore, the director is responsible for organizing the certification of pedagogical specialists. They also control the implementation of the teacher training plans as well as the participation of pedagogical specialists. Directors assign mentors to newly appointed teachers and motivate all team members to participate in professional development.
Acting in accordance with the ethical principles of the profession: Every school has a school Code of Ethics which is accepted by all members of the school community including those in the pedagogical council, the community council, the board of trustees, and the student body.
Others: Other practices of directors include deciding on sanctions and disciplinary penalties for students and pedagogical specialists; keeping the school seal; and conducting or participating in research activities in the field of preschool and school education. Knowledge of digital technologies and effectively applying them in the educational process is also a pedagogical competency of directors.
Based on the number of classes and the type of school, directors may also have compulsory teaching activities. However, due to their numerous functions as directors of the school, their compulsory teaching activities are lower than those of teachers and determined according to the number of classes and the type of school or kindergarten.
2.2. Selection and working conditions
Degree requirements and prior teaching experience
According to the 2020 Law on Preschool and School Education, at least five years of teaching experience is necessary to occupy the position of “director.” The 2019 State Educational Standards states that directors must have a master’s degree. Candidates must additionally have acquired the professional teacher qualification, in accordance with the 2022 Regulation on Conducting Competitions for the Position of "Director" in State and Municipal Institutions in the Preschool and School Education System. Required competencies include pedagogical, management, administrative, planning, organization, resource management, and social and civic competence.
Pedagogical specialists, which include both teachers and school leaders, must have obtained higher education in the professional direction corresponding to the position. This must be in accordance with the national classifier of higher education, professional fields, and professional qualifications. After graduation, the aspiring teacher must obtain further training and pass a state examination upon which they will be certified with a certificate. The state certifications for the acquisition of the professional qualifications is determined by an ordinance of the Council of Ministers.
Appointment decision
According to the 2020 Law on Preschool and School Education, directors of state schools are hired and terminated by the Minister of Education and Science. The head of the regional administration of education hires and terminates the employment contract of municipal schools. Directors are selected through a competition (which includes a written examination and interview) managed by a special commission with the participation of the school’s public council. This commission includes representatives of the regional management of education (designated by the head of the regional management of education), a representative of the municipal administration (designated by the mayor of the municipality), as well as a representative of the public council.
The 2022 Regulation on Conducting Competitions for the Position of "Director" in State and Municipal Institutions in the Preschool and School Education System aims to guarantee an open and transparent competition procedure for the selection of school directors based on a unified system of evaluation and ranking.
Employment equity measures
The 2016 Equality between Women and Men Act provides for the balanced representation of women and men in all decision-making bodies, aiming to ensure the balanced participation of women in politics, governance and decision-making. However, there is no specific reference to school leaders. The 2023-24 National Action Plan for Promotion of Equality of Women and Men includes similar objectives, aiming to conduct systematic and targeted measures to improve the balance between women and men in managerial positions – with no explicit reference to school leadership positions.
Working conditions
School directors are hired under labor contracts. Both school directors and teachers are considered civil servants with amendments to the People's Law Education (PDO) and the Civil Service Act. The position is permanent. Pedagogical workers may be awarded honors and awards for exemplary performance of their duties. Directors also have a career development ladder in which they can be promoted to the second stage with at least five years of experience as a director, a fourth or fifth professional degree, and at least a “compliant” grade during the last attestation.
According to Eurydice, “the basic salary of principals is determined according to the category of the school (schools are divided into categories according to the number of classes, the principal of first-category schools receive the highest salary), higher personal qualification /having a qualification or scientific degree, the length of service, and the quotient to the minimal working salary. The average salary for heads of pre-primary and primary schools on an annual basis is 4,270 EUR.” Additional allowances may be provided for the organization, management and monitoring of professional training (up to 2 basic salaries per year); extra hours over the obligatory teaching minimum; organizing extracurricular activities; or organizing and monitoring national external evaluations.
2.3. Leadership preparation and training
Pre-service training
The professional qualifications and conditions and the order of their acquisition are determined by the 2019 State Educational Standard on the Status and Professional Development of Teachers, Directors and other Pedagogical Specialists. Competencies achieved are reflected in the professional portfolio of the pedagogical specialist. The professional portfolio consists of developed materials that prove the person’s active participation in the implementation of the policy of the school, their professional appearances, their professional improvement and their career growth, as well as their achieved results with children and students. This portfolio supports the certification and self-assessment of pedagogical specialists.
The Minister of Education and Science organizes the creation and maintenance of an information register of the approved training programmes for pedagogical specialists.
Induction and in-service training
The 2020 Law on Preschool and School Education states that pedagogical specialists have the right to receive professional support in the process of performance of official duties, and to improve their qualifications. Pedagogical specialists are expected to maintain and improve their qualifications accordingly. They are obliged to annually increase their qualifications in order to improve the quality of their work and increase the results and quality of training children and students. Training is carried out by specialized service units and training organizations whose training programmes are approved.
According to the 2019 State Educational Standards, once the pedagogical specialist, including those in management positions, enter their work for the first they, they may undertake the introductory qualification where they are provided with a mentor to assist them methodogically and/or administratively. Continuing qualifications include courses, seminars, training, schools, workshops, lectures, and webinars. Per certification period, pedagogical specialists are obliged to improve their qualifications and participate in at least 48 hours of professional development from specialized service units or training organizations; and 16 hours of internal training from within their schools.
3. Teachers, parents and students
3.1. School management committees and boards
Article 262 of the 2020 Law on Preschool and School Education states that the “specialized body for examination and decision-making on basic pedagogical issues in schools is the pedagogical council.” The pedagogical council includes all pedagogical specialists and deputy directors without teaching work. The director of the school is the chairman of the council. In the meetings, representatives of the public council, the board of trustees, the medical person who serves the school, kindergarten or personal support centre development, students, and others may join. These representatives have the right to an advisory vote. The director invites these representatives in writing and in advance provides them with information on the issues to be discussed.
The pedagogical council is responsible for a multitude of tasks. The council adopts a strategy for the development of the school for the next 4 years with an action and financing plan attached to it. They also adopt regulations for the school’s activities; accept the school curriculum; accept the forms of training; adopt the annual plan for the school’s activities; adopt study plans for individual forms of training; adopt measures to increase the quality of education; adopt a program for the prevention of early leaving of the school; and adopt an equal opportunity programme for the inclusion of children and students from vulnerable groups. The council discloses to the director their activities and makes proposals to the director for awarding and punishing students. Furthermore, the council defines school symbols, determines school uniforms, and participates in the creation of the school community’s code of ethics. At least three times during an academic year, the council meets to monitor and discuss the level of mastery of competencies of students and brainstorms joint measures between teachers to improve educational outcomes.
3.2. Middle leaders
Bulgaria has a system of qualifications for pedagogical specialists. Teaching and educational positions are: 1. teacher; 2. senior teacher; 3. head teacher. Senior teachers and head teachers serve as middle leaders in their schools. Senior teachers, in addition to the functions of regular teachers, are expected to analyze education results for the age group or subject; support newly appointed teachers and regular teachers; and support in the development of the school curricula. Head teachers, in addition to the functions of regular teachers, are additionally asked to analyze the institutional qualifications; coordinate participation in professional communities; mentor newly appointed teachers; support teachers and senior teachers; develop school curricula; and analyze the results of assessments and exams in the school.
To become a middle leader, one must have the appropriate higher education and professional qualifications. There are five levels of professional qualifications described in the 2019 State Educational Standards. Teachers can be promoted with a set number of training hours, with level one being the highest level. Senior teachers should have at least ten years of teaching experience and a fifth or fourth professional qualification degree OR regardless of teaching experience, have a third, second, or first professional qualification degree and received an “outstanding performance” or “exceeds requirement” rating on the last attestation. To apply for the position of head teacher, the senior teacher must have a third, second, or first professional qualification, have an “outstanding performance rating” on the last attestation, and a master’s degree. Head teachers are selected by the pedagogical council and a commission appointed by the director of the institution. The director approves a selected number of head teachers for the school.
Other positions are the Head of Information and Communications Technologies (ICT) and pedagogical advisors. Also included are teachers of theoretical training or practical training. These teachers are responsible for organizing and developing curricula for advanced professional training of all staff. All middle leaders can continue to be promoted to high degrees of career development.
3.3. Parents
The rights of the parents, as listed in the 2020 Law on Preschool and School Education includes the right to be present if they wish to be heard when deciding issues that affect the rights and interests of their child or student. Parents have the freedom to express an opinion and make proposals for the development of the school. They may also be elected to the public council of the school.
The public council, discussed in chapter fourteen of the law, is a development support body of the school for the community. Members include one representative of the funding body and at least three representatives of parents of children and students from the relevant institution. Parents’ representatives decided and announced in a parent's meeting, convened by the director of the school. At the meeting, the number of representatives is determined, and the members and reserve members are elected. The chairman is elected by its members. Members are appointed for a term of no longer than three years. Student representatives from the student self-governing body are allowed to attend meetings and have an advisory vote. Other attendees who may be invited include representatives from the board of trustees, employees of the institution, representatives from the regional management of education, experts, representatives from trade unions, or those from non-profit legal entities and other interested parties. The director of the school also has the right to attend meetings and express their opinions. They must also provide all information and documents necessary for the public council.
The council meets at least four times a year. Responsibilities include approving the school’s development strategy; participating in the work of the pedagogical council; proposing policies and measures to improve the quality of the educational process; giving an opinion on the allocation of the budget; approving the director’s proposal for the distribution of funds; approving the school curriculum; participating in the attestation of directors; approving textbooks and study sets; notifying competent authorities of found violations; giving opinions on the school admission plan; and participating in the creation and adoption of the school community’s Code of Ethics.
3.4. Students
The basic rights of students enshrined in the 2020 Law on Preschool and School Education include the right to be respected as active participants in the educational process and to give opinions and suggestions about school activities. Through the forms of student self-government, students have the right to participate in the discussion in deciding questions affecting school life and the school community, including the school curriculum. Students also receive assistance from the school and the local self-governing unit when expressing their opinions on matters that directly affect them, as well as when participating in the life of the community.
Students participate in school life and in the organizational development of the school through various forms of student self-governance at class and school level. These self-governing groups are defined with the rules of the school at the suggestion of the students.
4. Governance
4.1. Autonomy of school leaders
School directors at public schools do have the power to conclude and terminate labor contracts with pedagogical specialists. Directors are responsible for the lawful, expedient, effective and transparent spending of budget funds. They are preparing a proposal for the distribution of funds from what was established at the end of the previous year. The proposal must then be accepted by the public council. The director is also expected to submit quarterly reports on the implementation of the budget to the general assembly of workers and employees and the public council. According to the 2019 State Educational Standards, directors are responsible for the development and implementation of the school curricula.
4.2. Assessment and accountability of school leaders
According to the 2020 Law on Preschool and School Education, teachers, school directors, and other pedagogical specialists are evaluated through attestation. Their professional profile is analyzed alongside the requirements for the performance of the position and their managerial development competence. These profiles, as explained in the 2019 State Educational Standards, consist of materials that prove the dynamics of the professional performances of the pedagogical specialists; the results achieved and the acquisition of competencies by the students; participation in implementing the policies of the institution; and professional improvement and career development. Teachers and school directors are recertified every four years from an attestation commission determined by the employer (either the state or municipal education management bodies), in accordance with the pedagogic council. The attestation commission includes a representative of the employer or funding body, a representative from the pedagogical council, a representative from the regional board of education, and a parent representative from the public council. The highest grade is “exceptional performance.” In case of a low grade, the attestation commission, together with the school director, must analyze the reasons that led to the low assessment and develop a methodical and organizational plan to help. A mentor or mentors may be assigned to carry out methodological and organizational support. The school director must submit to the regional administration of education documents to ensure they are on track for improvement. Re-attestation will be performed one year after taking these measures. If the school director receives a low grade again, the person is released from office. The assessment card for directors can be found in Appendix No. 23 in the 2019 State Educational Standards.
Furthermore, the administrative acts of the directors of institutions in the preschool and school education system can be challenged administratively before the Minister of Education and Science.
4.3. Teacher assessment by school leaders
Teachers are also evaluated through attestation every four years. Their professional profile is analyzed alongside the requirements for the performance of the position, as well as the school’s development strategy. The attestation committee is comprised of the director of the school as well as representatives from the regional management of education and the pedagogical council. According to the 2019 State Educational Standards, the director establishes benchmarks for team performance by creating an internal system for monitoring, evaluation, feedback and decision-making. They are expected to participate in commissions for attestation of pedagogical specialists.
