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 2012 Education Act defines a principal of an educational institution as ‘the person (however described) who is responsible for the day-to-day management of the educational institution’. According to the Ministry of Education, ‘the principal is the most important staff member in the school: the learning expert, the leader of other staff and students, the manager and administrator’.
According to the 2016 Governance, Management and Planning Policy, governance applied to education in the Cook Islands refers to the ‘processes by which government makes and implements policy decisions that affect the finance, planning, development and delivery of learning opportunities for all Cook Islanders’. Management on the other hand is ‘about taking action for implementing policy’. While the Ministry of Education provides the strategic direction, it is the job of both the Ministry and school leaders along with their management teams to translate this direction into action. Governance and management in the Cook Islands are guided by the policy.
2. School principals
2.1. Leadership standards and roles
Competency standards and leadership frameworks and guidelines
The 2015 Performance Management System for Cook Islands Principals (Principals Handbook), developed and published by the Ministry of Education, outlines the professional standards for Cook Islands Principals. All school principals are required to meet all five professional standards for attestation purposes, with each standard summarized by a descriptor and described by key indicators (which include descriptors for both competent and excellent principals). The professional standards (and subsequent indicators) cover professional leadership; organizational leadership; people leadership (staff and students); and administrative leadership. The handbook additionally details the job description of school principals, with key objectives, outcomes, and deliverables.
Several duties and responsibilities of school principals are further referenced in the 2012 Education Act. The Cook Island Administrative Guidelines, part of the Cook Islands Education Guidelines, apply to all governing bodies who are responsible for the management of schools in the Cook Islands, with specific responsibilities for principals.
All principals are required to comply with the 2012 Education Act and Ministry of Education regulations and instructions.
Roles
Setting expectations/objectives: The professional standard on organizational leadership includes indicators for the development of strategic and annual plans for the school, with measurable and useful outcomes which are linked to principal and teacher goals. The principal is expected to develop high-quality strategic and annual plans based on extensive consultation and good educational research. The annual plan must reflect the strategic plan and have clear and measurable goals and action plans which are generally focused on improving student learning outcomes. In the principal’s job description, they are similarly expected to lead, coordinate, and facilitate the school’s strategic planning; develop, refine and share a clear vision for the school; and develop, understand and implement quality policies and practices for the effective management of the school. All principals are further required to establish at least one personal and professional goal each year and develop action plans to achieve this goal.
The Cook Islands Education Guidelines further highlight that the principal and teaching staff, in consultation with the school committee, are required to develop a strategic plan which documents how they are giving effect to Cook Islands Education Guidelines through their policies, plans and programs.
Developing teaching and learning: The 2015 Professional Standards for Cook Island Principals require principals to be actively involved in working with teachers to encourage them to continually improve their teaching performance; ensure teachers’ professional development program is focused on improving teaching and learning; and ensure teachers routinely use robust and updated summative achievement data to identify ways of improving teaching for individual students and groups of students over time. Classroom observation notes must be collected by the principal, in addition to samples of teacher and principal annual goals which are focused on improving teaching and learning. Learner needs must additionally be identified, and the curriculum continuously improved to meet their needs.
According to the Cook Islands Education Guidelines, the principal and teaching staff are further required to foster student achievement by developing and implementing teaching and learning programs which incorporate the 2014 Cook Islands Curriculum Framework; and provide all students with opportunities for success in all the essential learning and skills areas of the curriculum; and give priority to student achievement in literacy and numeracy.
Promoting collaboration: The principal is responsible for teaching staff to work collaboratively to support school goals; ensuring a culture of collaboration based on improved student learning outcomes, with teachers sharing resources and working together to solve problems. The principal must further be actively involved in the community, working collaboratively with other schools, ensuring the school committee and community are active and feel included in the strategic and day-to-day operation of the school. The 2015 Professional Standards for Cook Island Principals additionally state that parents and students must receive detailed and regular reports which focus on achievement progress and ‘next step’ advice followed up by teachers, with principals ensuring teachers keep parents and caregivers informed fully and regularly about student academic progress, providing them with advice and support where necessary. As part of the principal’s job description, the principal is similarly responsible for providing the community with opportunities to be involved in aspects of school life and learning; fostering the growth of positive relations between the school and its community; and ensuring all members of the school community are well-informed and regularly updated on school developments and events.
According to the Cook Islands Education Guidelines, the principal and teaching staff are required to report to students and their parents/caregivers on the achievement of individual students and provide a safe physical and emotional environment for students and staff.
Supporting staff development: The 2015 Professional Standards for Cook Island Principals require school principals to develop a strong professional development plan linked with the school's annual plan, which provides high-quality professional development plan for all staff throughout the year. Principals are similarly specifically expected to ensure that staff have access to quality current professional development as part of their job description, developing an ethos in the staff to strive for continual improvement through ongoing professional development, reflection on performance, and evaluation of their teaching.
Similarly, the Cook Islands Education Guidelines state that principals are required to develop and implement professional development programs and performance appraisal systems that promote high levels of staff performance.
According to the 2012 Education Act, the school principal must ensure that on every day of the school term the school is open for the instruction of students or the professional development of teachers in the school.
Acting in accordance with the ethical principles of the profession: According to the 2015 Professional Standards for Cook Island Principals, the principal is expected to provide strong and ethical leadership to their students. The Contract of Employment for Principals additionally expects principals to be honest, and diligent and perform to the best of their ability; act professionally; and comply with the Ministry of Education and Public Service Code of Conduct.
Others: The 2012 Education Act details several additional roles for school principals, including the development of rules for the regulation of student behavior, student discipline, and student suspension. The school principal’s role regarding student discipline is similarly outlined in the 2015 Professional Standards for Cook Island Principals.
According to the 2010 Cook Islands Inclusive Education Policy, principals are additionally responsible for implementing the inclusive education policy; ensuring that students with disabilities are not discriminated against by teaching and assessment procedures; informing the Ministry of Education of the programs in place and the achievement of students with disabilities; and ensuring accommodations and modifications to teaching programs are made for students with disabilities so that they can take part in the regular classroom programs.
2.2. Selection and working conditions
Degree requirements and prior teaching experience
The 2015 Performance Management System for Cook Islands Principals (Principals Handbook) outline the qualifications, experience, and key skills required of school principals at all education levels. Principals of category A-E schools are required to have a bachelor’s degree in education and a diploma in teaching. Desirable qualifications include a diploma in teaching and post-graduate diploma in higher education and/or a master’s degree in education.
Regarding experience, principals are required to have a minimum of 5 (A) to 7 (E) years of teaching experience, with at least 2 years of middle or senior management experience. Desirable experience includes a minimum of 7-10 years of teaching experience, with at least 2 years of senior management experience.
Key skills include leadership and management skills; language and cultural skills; technical skills; problem-solving skills; and teaching practice. Principals are required to teach students, and be an excellent role model for other staff.
The qualifications required to teach in the Cook Islands are outlined by the Ministry of Education, and include a university degree in education/teaching for primary schools and a university degree in education and a teaching qualification for secondary schools. The 2012 Education Act regulates teacher registration.
Appointment decision
The Ministry of Education appoints school principals based on an open application process and assessment of the required qualifications and professional work experience, in accordance with the 2009 Public Service Act.
Employment equity measures
According to the Contract of Employment for Principals, the Ministry of Education operates an equal employment opportunity ethic, which provides for recruitment, terms of employment, working conditions and training opportunities to be undertaken or offered without preference being given on the basis of gender, marital status, religious or ethical belief, sexual preference, colour, race, ethnic or national origin or age.
One of the policy objectives of the 2019-24 National Policy on Gender Equality and Women’s Empowerment is ‘gender equity in leadership and governance’, which aims to support and encourage the full participation of women in decision-making in local and central governance; increase support and resources for women leadership positions in government; and develop women’s capacity to actively engage and contribute to policy and decision-making. Strategic actions include establishing education awareness programmes to address negative gender stereotypes, and reduce discrimination based on gender, age, disability; advocating, supporting, and promoting workplace policies and practices that support women in the workplace; and establishing regulations, policies, and other relevant protection measures that eliminate discrimination in the workplace, and protect the rights of all workers in the Cook Islands. This includes reviewing the Employment Relations Act, and Public Service Act, and other relevant legislations and regulations to eliminate gender discrimination, promote equal opportunity, and equality of treatment, and protect the rights of all women in the Cook Islands. There is no explicit reference to school principals.
Working conditions
Principals are employed in accordance with the Contract of Employment for Principals and 2009 Public Service Act. They are public servants, employed on contract by the Ministry of Education. The Contract of Employment for Principals includes details on their contracted period of employment, including provisions for the termination of the contract. The Ministry of Education publishes salary scales for school principals, based on the category of the school and the number of students enrolled.
The Outer Islands Direct Recruitment Policy is an incentive program for experienced school managers and qualified Cook Islanders who wish to become a principal of an Outer Islands school in the Southern (excluding Aitutaki) or Northern Cook Islands and are not from that island. It includes the base salary, recruitment allowance (15% of base salary), accommodation allowance (depending on whether the school has a principal’s house or not), and transfer entitlements at the start and end of the contract. Contracts are 1-4 years long, depending on experience.
2.3. Leadership preparation and training
Pre-service training
One of the priority areas of the 2016 Quality and Relevance of Learning and Teaching Policy is for ‘quality leadership’, which includes induction training for principals. The leadership and management competence of a principal is acknowledged, highlighting their ability to create a positive working culture and atmosphere in a school as crucial to achieving quality education.
Induction and in-service training
According to the Ministry of Education, the professional development of principals as ‘learning experts’ is of ‘paramount importance’, with the second part of the principal’s manual concerned with the processes and practices involved in the professional development system of principals.
The 2016 Quality and Relevance of Learning and Teaching Policy aims to provide capacity-building programmes to improve the leadership and management skills of school principals, in areas such as personnel and staff management, school policy development, school development planning, financial management, budgeting, financial accountability, management of resources, inventory of school assets and reporting on use of education grants. The policy aims to ensure that leadership at all levels of the Ministry is current in terms of best practice models, specific position requirements and delivery of services both internally and externally.
According to the 2014 Cook Islands Curriculum Framework, the Ministry of Education collaborates with schools to provide professional development programs for principals that incorporate current local, national, regional and international research findings on the teaching of literacy and numeracy. The 2015 Performance Management System for Cook Islands Principals (Principals Handbook) additionally aims to improve principals’ management and leadership skills through further study and research, with principals expected to participate in ongoing professional development.
3. Teachers, parents and students
3.1. School management committees and boards
The 2012 Education Act provides for the establishment, role and membership of school associations in each school, while the Guidelines for School Associations and Committees aim to assist school associations and committees to comply with the requirements of the Act.
The role of the school association is to promote the interests of the school; facilitate the further development of the school; foster community interest in educational matters; increase cooperation between parents, other members of the community, staff of the school, and students; participate in the governance of the school; assist in providing financial or other resources for the benefit of the school; help in maintaining school grounds, buildings, equipment; and perform any other tasks consistent with Act. The school association must not attempt, however, to exercise any authority over the principal, teaching staff or general operation and management of the school. Members of the school association must include the principal and a registered teacher of the school, and voluntarily, a parent, and any other adult who is interested in the school’s welfare.
Every school association must additionally have a school committee with the role to ensure the school association performs its role under the Act. Members include the principal of the school; the teacher representative; a chairperson; a treasurer; a secretary; and at least 2 other school association members, as decided by the school association.
Schools are additionally required to have a school discipline committee, composed of the principal, and 2 other members of the school association. A body of registered teachers may additionally apply for incorporation as a society for the promotion of the welfare of teachers, establishing a teachers’ society.
Government schools may additionally establish a board of trustees, composed of Ministry representatives, parents, communities, or other organizations.
3.2. Middle leaders
Senior teachers are mentioned in the 2010 Performance Development System for Cook Island Teachers, where their role is described as that of an appraiser of junior teachers’ performance.
3.3. Parents
Increased parental involvement is highlighted in the 2012 Education Act , Cook Islands Education Guidelines, 2016 Communities, Partnerships and Communication Policy, and 2015 Performance Management System for Cook Islands Principals. The 2016 Communities, Partnerships and Communication Policy specifically aims to increase the participation of parents in education policy and decision-making, develop policies aimed at increasing participation and input from parents and families, and engage parents and extended families in the education of their children. There is no specific provision for the establishment of parent-teacher associations, with parents involved in the school association.
3.4. Students
The 2015 Professional Standards for Cook Island Principals states that principals must ensure there are opportunities for student involvement in school decision-making. However, there is no specific provision for the establishment of student councils.
4. Governance
4.1. Autonomy of school leaders
School principals must incorporate the ‘Cook Islands Curriculum’ as set out in the 2014 Cook Islands Curriculum Framework and Curriculum Statements.
The school principal is further responsible for managing the school’s property and financial resources, as outlined in the 2015 Professional Standards for Cook Island Principals under ‘administrative leadership’. This includes setting and monitoring the school budget, accounting for all income, maintaining buildings and resources within budget constraints, and allocating resources to reflect priorities in the school’s strategic and annual plans and the 2010 Government Schools Operational Budgets Policy. Financial and asset management is additionally included as part of the principal’s job description, with responsibilities to maintain and manage the schools’ finances and assets; implement an effective budget planning system, and meeting employer reporting and audit requirements. Similar roles are highlighted for principals in the Cook Islands Education Guidelines.
The principal is however not responsible for teacher registration or suspension, which is the responsibility of the Ministry of Education, as outlined in the 2012 Education Act.
4.2. Assessment and accountability of school leaders
The 2015 Performance Management System for Cook Islands Principals (Principals Handbook) outlines the performance management process that all principals are expected to complete. All principals are required to send an annual report to the Ministry of Education, providing a detailed analysis of progress made in achieving the goals and action plans set out in the school's strategic and annual plan. Failure to produce an annual report by the due date will mean that attestation cannot be maintained or gained.
The Ministry of Education assesses the performance of school principals against the professional standards and their job descriptions each year. If a principal has not met the requirements of their job description, they will be placed under review. All principals are required to gather a portfolio of evidence to satisfy each professional standard. Board chairs are required to meet with the principal at least twice a year to review portfolios and provide support.
According to the 2012 Education Act, the school association participates in the appraisal of the principal, as required by the Ministry of Education.
4.3. Teacher assessment by school leaders
The 2010 Performance Development System for Cook Island Teachers (Beginner Teacher and Experienced Teacher Handbooks) regulate the assessment of teachers. Teachers are evaluated by an appraiser, who is likely to be the principal in smaller schools. In other cases, a teacher’s appraiser may be the deputy principal, head of department, or syndicate leader. The principal must make recommendations regarding the teacher’s overall performance rating before forwarding the completed report to the Ministry of Education for verification. Teacher performance is assessed against the teacher professional standards, as described in the 2012 Education Act.
According to the Cook Islands Education Guidelines, principals are required to develop performance appraisal systems for staff that promote high levels of staff performance.
