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 2024 Education Act uses the term “rektor”, which may translate to “head teacher” or “school leader” in English.
Similarly, the 2003 Independent Schools Act (amended in 2024) uses the terms “school manager”, “principal”, and “school leader”; however, no definition is provided.
The 2015 Strategy for Lower Secondary Education in Norway uses the terms “school owner” and “school administrator”; however, no definition is provided.
2. School principals
2.1. Leadership standards and roles
Competency standards and leadership frameworks and guidelines
Since 2009, Norway has embedded the framework for school leadership into the National Leadership Education for School Principals. Requirements and expectations associated with the principal role are defined in the objectives of the National Leadership Education for School Principals.
The 2015 Strategy for Lower Secondary Education in Norway acknowledges that the most effective means of supporting school administrators and owners is providing school-based training and competence development in classroom management, numeracy, reading, and writing. The strategy outlines a specific list of school administrators' and owners' responsibilities.
The Led Skole framework (Led School framework), developed by the Norwegian Association of Local and Regional Authorities (KS) in 2018, focuses on enhancing school leadership through three pillars (where are we, where do we want to go, and how do we get where we want to go) and seven modules designed to support the development of effective school leaders. It emphasizes creating a knowledge base rooted in both local and international research, setting future-oriented goals (referred to as "future images"), and implementing these through iterative development processes.
The 2019 Good School Management Framework, developed by Fagskolen i Nord (a vocational college in Norway) is structured around the principles of good leadership in schools.
The 2019-2020 Ministry of Education and Research’s Report on Early Intervention and Inclusive Education in Kindergartens, Schools and Out-of-School Hours Care and the 2023-2024 Ministry of Education and Research Report on A More Practical School – Better Learning, motivation and Well-being in Grades 5-10 outline the critical role of school leaders, head teachers, and principals in creating inclusive and effective educational environments.
Furthermore, the 2024 Education Act outlines leadership roles for school principals.
Roles
Setting expectations/objectives: According to the National Leadership Education for School Principals, the principal is responsible for ensuring that the school’s social mandate is implemented. This means that the principal acts on behalf of the national and local authorities. It requires the principal to be familiar with and act according to laws and regulations, including the national curriculum. The principal is also responsible for ensuring good internal administration, management and control of the school.
The Led Skole framework (Led School framework) emphasizes the importance of developing a shared vision and mission for the school, linked to setting measurable goals and evaluating progress. It also focuses on using data to guide decision-making, which is central to setting expectations (e.g., quality assessments and analysis modules)
According to the 2015 Strategy for Lower Secondary Education in Norway, school administrators are expected to develop the school as a learning organisation. Furthermore, according to the Strategy, it is the responsibility of school owners to support schools’ work to achieve more practical and varied education at the lower secondary level.
The 2019 Good School Management Framework outlines leadership responsibilities, particularly in establishing clear school visions, objectives, and goals, ensuring alignment with national education standards, and engaging stakeholders.
Developing teaching and learning: According to the National Leadership Education for School Principals, the principal is responsible for the pupils’ learning outcomes and learning environment and for ensuring good learning processes in the school. The principal is responsible for ensuring that all staff is given mentoring and support in creating good learning processes for the pupils.
A key component of the Led Skole framework (Led School framework) involves instructional leadership. This includes the development of teachers through instructional supervision, curriculum planning, and monitoring student progress. It also touches on using innovative methods and integrating technology to enhance student learning.
According to the 2015 Strategy for Lower Secondary Education in Norway, school owners are responsible for ensuring the quality of training and evaluating.
The 2019 Good School Management Framework emphasizes the role of school leaders in enhancing instructional quality through curriculum supervision, resource provision, and constant evaluation of teaching effectiveness.
According to the 2023-2024 Ministry of Education and Research Report on A More Practical School – Better Learning, motivation and Well-being in Grades 5-10, school leaders are central to ensuring the development of professional learning communities, which is key for improving teaching quality, student learning, and overall school development.
Promoting collaboration: According to the National Leadership Education for School Principals, the principal is responsible for ensuring that the school runs well as an organisation. They must also be able to see the organisation as being part of a bigger picture and help develop the system of which the school is a constituent.
The Led Skole framework (Led School framework) highlights the role of school leaders in fostering a positive school culture, building strong relationships with the community, and ensuring a safe, supportive learning environment. Leaders are encouraged to develop collaborative leadership practices across teams, which is vital for building relationships and promoting collaboration within and outside the school.
The 2003 Independent Schools Act (amended in 2024) does not provide explicit information regarding the critical practices of school principals related to developing a positive school culture and climate, maintaining a safe and healthy school environment, and building relationships and consulting with families and the community. However, according to the Act, the school is required to collaborate with pertinent municipal services concerning the evaluation and monitoring of children and young individuals facing health-related, personal, social, or emotional challenges. In instances deemed necessary and justifiable to fulfil the responsibilities outlined in the initial subsection, the collaborating services are authorised to handle personal data, encompassing special categories of personal information and details regarding criminal offences.
According to the 2015 Strategy for Lower Secondary Education in Norway, school administrators are responsible for creating conducive environments for exchanging expertise and experiences within individual schools and among schools. Additionally, they are expected to engage in local networks for school administrators, facilitating the sharing of experiences and enhancing their expertise. For school owners, the Strategy also underscores the role of school owners in collaborating, overseeing, and facilitating school administrators and teachers to ensure adequate time for implementing the Strategy.
The 2019 Good School Management Framework addresses fostering a collaborative school culture, where teamwork among staff is critical, and engaging with parents and the broader community is essential for creating a conducive learning environment.
According to the 2019-2020 Ministry of Education and Research’s Report on Early Intervention and Inclusive Education in Kindergartens, Schools and Out-of-School Hours Care, school leaders must foster collaboration with local support systems.
According to the 2023-2024 Ministry of Education and Research Report on A More Practical School – Better Learning, motivation and Well-being in Grades 5-10, school leaders are responsible for fostering a collaborative culture among teachers, parents, and the local community
Supporting staff development: The Led Skole framework (Led School framework) covers aspects like providing individualized mentorship, professional development opportunities, and leadership development, all of which are key to fostering staff growth.
The 2019 Good School Management Framework discusses leadership's role in recognizing teachers' professional development needs, offering mentorship, and promoting a culture of continuous learning within the school.
According to the 2019-2020 Ministry of Education and Research’s Report on Early Intervention and Inclusive Education in Kindergartens, Schools and Out-of-School Hours Care, school leaders are responsible for ensuring that staff have the necessary skills to support all students and adapt teaching to diverse needs. They must also improve teacher-student ratios and ensure professional development.
Acting in accordance with the ethical principles of the profession: Ethical leadership is embedded within the Led Skole framework (Led School framework), with an emphasis on integrity, transparency, fairness, and respect. The framework encourages leaders to model ethical behavior and lead in a way that builds trust within the school community.
The 2019 Good School Management Framework highlights the importance of integrity, transparency, and ethical conduct in school leadership, promoting trust and fairness across all interactions in the educational environment.
According to the 2024 Education Act, individuals appointed for permanent or temporary positions in primary or lower/upper secondary schools, music and performing arts schools, daycare facilities for school children, or offering homework assistance are obligated to provide a police certificate. This requirement extends to individuals engaged in activities akin to a school, encompassing organized endeavours associated with the school that bear an educational or instructional character. Moreover, the school owner reserves the right to request a police certificate of good conduct from other individuals recurrently involved in primary or lower/upper secondary schools or other activities. Individuals with a record of sexual abuse of minors are ineligible for permanent or temporary employment in primary, lower secondary, or upper secondary schools, schools of music and performing arts, daycare facilities for school children, or positions providing homework assistance. In other scenarios, the implications of remarks on the police certificate necessitate individualized assessment. The Ministry is responsible for issuing additional regulations to augment this framework.
Others: According to the 2024 Education Act, school owners are responsible for preventing pupils from encountering advertising that could exert commercial pressure or significantly impact attitudes, behaviour, and values. This applies to various locations, including school premises, grounds, textbooks, and teaching resources. The Ministry of Education and Research may issue additional regulations.
2.2. Selection and working conditions
Degree requirements and prior teaching experience
According to the regulations to the 2024 Educational Act, head teachers must possess pedagogical competence. These qualifications must include pedagogical education in alignment with the country's regulatory framework for teacher education. It is stated in the regulations to the 2024 Educational Act that the municipality and the county council must ensure that those who are employed as teachers have pedagogical education in accordance with the requirements in regulations on framework plans for teacher education.
Similarly, according to the 2022 Joint Eurydice-OECD data collection on the salaries of teachers and school heads, it is standard practice for school heads to have the same minimum qualifications as teachers. The minimum qualification requirement to become a primary and secondary education teacher is to have a master's degree in education.
In the Teacher Promotion Strategy, the government has strengthened the requirements for school heads’ formal qualifications, with the national strategy ‘Competence for Quality – until 2025’ defining the framework and resources to fulfil these. The strategy, which was revised in 2023, aims to contribute to increased professional leadership competence for school heads.
Appointment decision
According to the 2024 Education Act, the selection of school principals is a structured process. Positions are advertised publicly, and there is an emphasis on transparency in the hiring process. The appointment is typically made by the municipality or the county council. Candidates undergo a competitive selection process that assesses their educational qualifications, relevant experience, and managerial competence. This is in alignment with the Act’s broader principles of ensuring that those who are appointed to leadership positions are adequately prepared and possess the necessary qualifications.
Employment equity measures
A discernible recruitment pattern for administrative positions is absent, with the only formal guidance being the encouragement of female staff to pursue higher-level posts.
The 2023 Action Plan for Women’s Rights and Gender Equality acknowledges women’s underrepresentation in decision-making at all levels, supporting initiatives that contribute to women leaders in decision-making arenas. However, there is no explicit measure supporting the increased representation of women in school leadership positions.
Working conditions
According to the 2022 Joint Eurydice-OECD data collection on salaries of teachers and school heads, at ISCED 02 level, the salary is NOK 684,883. At ISCED 01 and 24 levels, the salary is NOK 801,094. At ISCED 34, the salary is NOK 973,251. Furthermore, the determination of whether a school head is subject to overtime regulations rests with local authorities. In cases where school heads fall under these regulations, they are entitled to receive a 50% overtime premium.
According to the 2024 Education Act, school principals in Norway are generally appointed on permanent contracts. However, municipalities or county councils have discretion in managing these appointments, and there may be variations based on regional needs or temporary assignments when necessary. The salary scale for school principals is not regulated in the Act, but it is typically governed by municipal or county council regulations, which align with national frameworks for public service employees.
Furthermore, according to the 2024-2026 Collective agreement between the Norwegian Association of Local and Regional Authorities (KS) and Teachers Unions, school heads (including positions such as principals and rectors) are covered under different salary brackets, typically depending on seniority and qualifications. For example, those in leadership positions receive salary adjustments based on their years of service. As of May 1, 2024, leaders in relevant positions (like rectors) will receive a 4.1% increase in their basic salary. Salary steps for school leaders are also defined in the "garantilønnstabell," which includes specific increments based on service years and job complexity. Bonuses can be offered based on productivity and efficiency. Municipalities or organizations may implement a bonus system for individuals or groups, but these must be negotiated and clearly defined in collaboration with relevant employee organizations. School leaders may be eligible for paid leave to pursue education or training.
2.3. Leadership preparation and training
Pre-service training
The 2024 Education Act and the 2003 Independent Schools Act (amended in 2024) do not explicitly mention the provision of pre-service training to school leaders.
Induction and in-service training
The 2024 Education Act and the 2003 Independent Schools Act (amended in 2024) do not explicitly mention the provision of induction and in-service training to school leaders.
According to the 2023-2024 Ministry of Education and Research Report on A More Practical School – Better Learning, motivation and Well-being in Grades 5-10, school leaders' continuous professional development is essential.
The Norwegian Directorate for Education and Training provides various training and learning opportunities to managers at different educational levels:
-
A part-time management education (the Board Education) is provided to directors and assistant directors of kindergartens. The education program yields 30 credits and is eligible for inclusion in a master's degree in management.
-
The Rector Education Program (Rektorutdanningen) is a government-funded continuing education initiative for school leaders in primary and secondary education and is part of the Competence for Quality till 2025 Policy. It aims to strengthen leadership skills, enhance school development, and provide an understanding of effective management in education. The program lasts 18 months, offers 30 study credits, and can be pursued alongside full-time work. An overview of the study programs can be found in Udir's study catalogue. Courses focus on leadership, school environment, digitalization, and professional collaboration. Priority is given to new rectors, and although the program is funded, travel and material expenses are not covered.
-
There are other modules for managers in kindergartens and schools who have completed board or rector education program or an equivalent management training of at least 30 credits.
3. Teachers, parents and students
3.1. School management committees and boards
According to the 2024 Education Act, each school is required to maintain adequate professional, educational, and administrative management. Students and parents must be represented in bodies at primary and secondary schools. Representatives of the students in further education have the right to attend and speak in county councils in the same way as employees have according to the Municipal Act.
According to the 2003 Independent Schools Act (amended in 2024), every school is required to establish a governing board following the legal framework governing its operations. Various individuals are granted the right to participate in board meetings, express their opinions, and ensure their inclusion in the official minutes. This includes one representative appointed by the host municipality for primary/lower secondary schools, and the county municipality designates one representative for upper secondary schools; one representative from the pupils' council, if applicable; one representative from the parents' council, if applicable; one representative for the teaching staff; one representative for other staff within the institution; the school's general manager.
As the school's supreme governing body, the board is responsible for ensuring the right to primary/lower secondary education for compulsory school-age pupils. This includes notifying parents and home municipalities of extended non-attendance without legal justification, determining school fees, endorsing the school's budget and financial statements, formulating admission rules and school regulations, addressing pupil relocations and exclusions, overseeing effective financial and accounting management, ensuring state support and school fees benefit pupils, meeting public requirements for school activities, guaranteeing the school possesses necessary competence, providing avenues for continuous professional development, staying attuned to educational and societal advancements, appointing the general school manager, and deliberating on the annual report outlining the school's status in terms of learning outcomes, dropout rates, and the learning environment. Furthermore, the board is required to implement a robust system for assessing compliance with legal requirements and approval conditions, including monitoring outcomes of these assessments and national quality evaluations conducted by the Ministry. A vital element of this oversight is preparing an annual report on the school's status regarding learning outcomes, dropout rates, and the learning environment.
3.2. Middle leaders
According to the Eurydice Data, in large schools, school management may also include an assistant principal, teaching inspector and department heads.
3.3. Parents
According to the 2024 Education Act, parents can choose to organize themselves in other ways. The municipality and the county council must ensure that it is determined what other user bodies the schools will have.
Furthermore, the Act also provide provisions to form a national parents' committee, which is a body that represents the collective interests of parents across Norway’s school system. The committee is composed of members appointed to reflect the diverse parental representation across schools in Norway. It consist of seven members. The members of this committee are appointed by authorities to represent the interests of parents in educational governance and to advocate on issues such as school quality, environment, and curriculum reforms. The committee engages with the Ministry of Education and Research and other school authorities to ensure that the views and needs of parents are taken into account in policy discussions and decisions.
According to the 2003 Independent Schools Act (amended in 2024), every primary and lower secondary school is required to establish a parents' council consisting of all parents with children enrolled in the school. The parents' council is permitted to elect an executive committee if deemed necessary. Its primary objectives encompass advocating for the shared interests of parents and actively engaging pupils and parents in initiatives aimed at cultivating a positive school environment. The parents' council endeavours to foster a sense of solidarity between the home and school, establish a foundation for pupils' well-being and positive development and facilitate effective communication between the school and the local community.
3.4. Students
According to the 2024 Education Act, each primary school and secondary school must have a student council elected by the students at the school. The students can choose to organize themselves in a different way.
According to the 2003 Independent Schools Act (amended in 2024), the school must ensure that pupils and parents can take part in the school democracy.
4. Governance
4.1. Autonomy of school leaders
The 2024 Education Act affords a degree of autonomy to school principals in the following cases:
-
Management of School Assessments: Principals are also involved in the management of behavioral assessments. While national and municipal guidelines shape the structure of these assessments, principals have the authority to organize how these evaluations are administered within their schools, including overseeing the process for handling absences and managing special circumstances, such as the accommodation of students with disabilities.
-
Student Welfare and Support: Principals are given authority related to the welfare of students, particularly in cases of expulsion due to behavioral issues. For instance, the principal has the autonomy to cancel examinations if a student is found cheating, as well as make recommendations regarding the student's continuation in school.
When it comes to decisions on hiring staff and budget formulation and allocation, these remain largely outside the principal’s direct control. While principals may have some influence over how funds are utilized within the school and may be involved in the recruitment process of staff, budgeting and hiring processes are managed at the municipal level.
The level of autonomy granted to school managers by the 2003 Independent Schools Act (amended in 2024) is notably less than that afforded to school boards and local government or municipalities. According to the Act, the school board has the authority to stipulate in the school rules that primary and lower secondary school pupils may face exclusion from teaching due to severe or repeated rule violations. For pupils in grades 1-7, exclusion can be for individual periods or the entire day, while pupils in grades 8-10 may face exclusion for up to three days. Upper secondary school pupils may be excluded for a maximum of five days for serious or repeated rule violations and in cases of particularly severe violations. The decision on exclusion rests with the general school manager. The home county has the authority to determine that an upper secondary school pupil must be excluded for the entire school year, but this decision cannot be delegated to the school. Norwegian upper secondary schools abroad retain autonomy in making exclusion decisions. Unless specified otherwise by the board, the general manager may allow teachers to exclude pupils from their teaching for a single period, not exceeding two hours. The school board are also authorized to determine school fees in independent schools supported by the government.
Furthermore, according to the Act, transportation expenses are determined and covered within the purview of the pupils' home municipality or county. Simultaneously, the municipality where the school is situated bears the responsibility for furnishing health services following regulations and assumes the associated health service costs at the schools, following identical guidelines applicable to government schools.
4.2. Assessment and accountability of school leaders
The county governors assume a supervisory role over school owners, namely municipalities and county authorities. They submit annual reports to the Ministry of Education and Research, incorporating statistical data, qualitative assessments, and interactions with education authorities and school heads in municipalities and counties.
4.3. Teacher assessment by school leaders
The 2024 Education Act does not explicitly designate the evaluation of teachers as a direct responsibility of school principals, nor does it specifically address their role in teacher assessments for struggling teachers, promotion, or career advancement. However, it provides a framework in which principals are expected to ensure the proper functioning of educational assessments and quality teaching through compliance with competence requirements and regulations related to teacher qualifications. The Act places emphasis on ensuring that municipalities and counties employ teachers with the required pedagogical qualifications and subject-specific competence, particularly in key subjects such as Norwegian, mathematics, and English.
According to the 2023 Guidance Scheme, school owners and principals are responsible for organizing and supporting mentoring programs, ensuring that new teachers receive guidance during their first years. School owners and principals need to assess mentoring needs, plan, and ensure qualified mentors are available. Effective mentoring involves collaboration between school leaders, teacher education institutions, and qualified mentors, ensuring a smooth transition from education to professional practice.
