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 1983 Education Act (as amended in 2020) refers to a principal or headmaster as the head of a school. The terms head teacher and principal are similarly used in several other government documents, including the 2020-29 National Education Plan and the Department of Education’s 2006 HR Policy Information and Operations Manual.
2. School principals
2.1. Leadership standards and roles
Competency standards and leadership frameworks and guidelines
The Department of Education has developed the National School Leadership Competency Framework as an important tool to improve the competencies of principals and head teachers so that they become more effective instructional leaders and managers, as described in the 2020-25 National Education Plan. This also aims to help provide the quality assurance framework that is required for all schools, measuring the performance of school leaders, and indicating the improvements needed. However, this framework has yet to be implemented. The Head Teachers Handbook provides for the roles and responsibilities of head teachers.
The Department of Education’s 2006 HR Policy Information and Operations Manual outlines the official roles and responsibilities of teachers in PNG. These responsibilities involve addressing student needs, delivering the curriculum as outlined by the National Education Plan and the National Curriculum Statement, and respecting the customs and values of the community. The document states that head teachers are also responsible for fulfilling the responsibilities outlined for teachers, while also being tasked with additional responsibilities such as overseeing policy implementation and managing staff.
Additional roles and responsibilities for head teachers or principals are described in the 2009 Disciplinary Policy and Procedures for Members of the Teaching Service, which is published by the Teaching Service Commission (under the Ministry of Education) and developed to be consistent with existing laws and circulars, 2020-29 National Education Plan, and 2009 Gender Equity in Education Policy: Guidelines for Implementation.
Roles
Setting expectations/objectives: Head teachers are responsible for the development of School Learning Improvement Plans, with the support of inspectors.
Developing teaching and learning: According to the 2009 Gender Equity in Education Policy: Guidelines for Implementation, principals have the responsibility to plan and manage improvements to the range and quality of teaching and learning programs for students to ensure that the gender equity policy and gender inclusive curriculum and practices are implemented; and use data on students’ achievements and retention as a basis for developing strategies for and monitoring of, implementation of gender equity policies, procedures and practices. They are also expected to maintain learning environments that are safe and free from all forms of violence and sexual harassment and take responsibility for improving the outcomes of education for both female students and male students.
Promoting collaboration: Head teachers and principals play a key role in connecting with and involving the community for greater education awareness and participation in collective efforts towards achieving the School Learning Improvement Plan, as stated in the 2020-29 National Education Plan.
Supporting staff development: Principals are required to monitor teacher performance and provide support and guidance to teachers to improve instructional practice. In addition to supervising teaching staff and overseeing curriculum implementation, principals are expected to oversee school-based professional development programs, submit school reports to relevant authorities, and maintain school accounts. School heads are responsible for running the professional development programs in schools. The 2009 Gender Equity in Education Policy: Guidelines for Implementation further states that it is the principal’s responsibility to assist teachers in identifying and accessing professional development activities and resources that will improve gender equity in all areas of schooling.
Acting in accordance with the ethical principles of the profession: All members of the teaching profession (including head teachers and principals) must abide by the Teaching Code of Ethics.
Others: The 2009 Disciplinary Policy and Procedures for Members of the Teaching Service outlines specific roles and responsibilities of head teachers, principals and managers in relation to school discipline. This includes working with the school governing body and staff to maintain teacher discipline, and immediately reporting serious or repeated breaches of the regulations or complaints about a teacher’s behaviour. According to the 2009 Gender Equity in Education Policy: Guidelines for Implementation, principals are also responsible for collecting and disaggregating data on a range of gender issues.
School principals are additionally expected to teach 5.3–8 hours per week and to perform administrative, management, and supervisory work 28.75–31.4 hours per week.
2.2. Selection and working conditions
Degree requirements and prior teaching experience
In addition to the requirements for being a teacher (which include at least a bachelor’s degree to teach and a minimum amount of practical professional experience), school principals in secondary schools must have management and administrative experience as deputy principals. Teachers can apply for either school administration posts (such as school principals) or academic leadership positions. Promotion opportunities are linked to the results of performance appraisals.
Appointment decision
Head teachers, principals and teachers are appointed by the Provincial Education Board, in accordance with the 1988 Teaching Service Act and 1983 Education Act. The General Education Services Division of the Department of Education oversees the appointment process of secondary school principals, to ensure that all appointees are eligible and qualified, supporting provinces in effectively managing their schools and recourses.
To be appointed, head teachers and principals apply to open vacancy listings advertised in the Special Education Gazette, while some may be appointed directly by the Provincial Education Board. According to the 1988 Teaching Service Act, the National Education Board and Provincial Education Boards invite persons to apply for appointment to vacant positions in the Teaching Service through advertisement. All vacant positions must be advertised at least once in each calendar year in accordance with regulations. Appointments to promotional positions in community schools must receive a recommendation from a selected panel.
Employment equity measures
The 2009-14 Gender Equity Strategic Plan and 2009 Gender Equity in Education Policy: Guidelines for Implementation aim to address the under-representation of women at all levels of the education system, which includes promoting the equality of women in decision-making and leadership positions and building their capacity. Strategies under this objective include increasing the number of female headteachers, introducing modules on gender equity in the School Leadership and Management course, and providing leadership training opportunities for female teachers.
The 2020-29 National Education Plan similarly aims to increase the percentage of women in decision-making bodies (including education boards), while the previous 2015-19 National Education Plan aimed to develop and implement a leadership training program for current and possible future leaders, with a focus on women, to enable recruitment of school leaders based on merit.
Working conditions
The Teaching Service Commission, established by an Act of Parliament under the Ministry of Education, acts as the agent of the state for the employment of teachers, including head teachers and principals, in accordance with the 1988 Teaching Service Act. It oversees teachers’ terms and conditions of service, salaries and welfare, and supports the rights of teachers.
Teachers (including head teachers and principals) are considered public servants managed under the Department of Personal Management under permanent contracts. The Teaching Service Commission and Papua New Guinea Teachers’ Association negotiate teacher and head teacher/principal payments based on Teaching Service Pay Fixation Agreements for specified periods of time. The TSC also consults with the Department of Personnel Management (Salaries & Conditions Monitoring Committee) to determine the employment conditions and salaries of teachers.
Salaries vary according to teacher performance, with performance evaluations informing salary scales. Principals typically earn around 58,240 PGK (15,240 USD) per year, and this can range from the lowest average salary of about 26,780 PGK (7,007 USD) to the highest average salary of 93,280 PGK (24,409 USD). According to the 2020-29 National Education Plan, head teachers have been granted salary increases and allowances in recent years. For example, head teachers receive a 10% responsibility allowance, as stated in the 2006 HR Policy Information and Operations Manual.
2.3. Leadership preparation and training
Pre-service training
According to the 2011-30 Education Sector Strategic Plan and 2020-29 National Education Plan, it will be a pre-requisite for all head teachers to have completed an accredited course on the principles of leadership, financial management and personnel management before they are eligible to be appointed to such positions. Basic leadership and management courses will additionally be incorporated into the pre-service teacher education programs.
Induction and in-service training
All new school principals are required to receive induction training that prepares them to take on their new roles. These training programs (which include orientation workshops) are provided on an annual basis, providing school leaders with the knowledge and the skills to be able to conduct inspections of teachers for registration purposes and understand how the School Learning Improvement Plans are developed and implemented. These induction courses are accompanied by the Head Teachers Handbook.
The Department of Education provides mandatory ongoing professional training to head teachers and principals through short courses and workshops. The 2020-29 National Education Plan has several objectives related to the ongoing professional development of school leaders in areas including leadership and management; financial management; and administration of the Curriculum Standards Monitoring Test. Provincial education departments support training for head teachers and principals.
3. Teachers, parents and students
3.1. School management committees and boards
The 1983 Education Act provides the establishment, membership and functions of Boards of Management (BOMs) in elementary and primary schools and Boards of Governors (BOGs) in secondary and other post-primary schools. A Board of Management consists of at least five members broadly representative of the community; a teacher in the staff; and the headmaster. These boards are the school’s highest decision-making bodies and have financial and management powers. They also have disciplinary powers, although their decisions may be rejected by the Provincial or National Education Board. A Board of Governors includes representatives of local-level governments, teachers and students at the school, and from the Parents’ and Citizens’ Association.
Their functions and responsibilities include planning and using the School Learning Improvement guidelines; building and maintaining the school facilities such as classrooms, teachers' houses, teachers' and children's toilets; making available teachers' houses; determining the aims and the goals of the schools; making rules for the discipline of students; and suspending or expelling students.
3.2. Middle leaders
Middle leaders in schools include subject coordinators and teachers-in-charge. The 2006 HR Policy Information and Operations Manual mentions roles of "Deputy Head Teacher", "Section Head", "Heads of Department (HOD)", "Special Subject Masters (SSM)" and "Subject Masters (SM)" in different school contexts, describing teaching positions with additional responsibilities.
3.3. Parents
According to the 1983 Education Act, schools may approve the establishment of a Parents’ and Citizens’ Association whose role is to represent the parents of students at the school, as well as other persons interested in the education and welfare of students at the school.
School boards and principals are expected to conduct parent and community consultations, in addition to implementing the Parents for Quality Education Program.
3.4. Students
All schools must have a Students Representative Council and a system of student prefects in primary and secondary schools that is run on a democratic basis by the students themselves, with the support of a supervising teacher. The 2020-29 National Education Plan aims to deliver a training package for student leaders at the local level, which includes sections on the working of Student Representative Councils and the roles of prefects and senior students.
4. Governance
4.1. Autonomy of school leaders
While provincial governments are responsible for teacher appointments, promotions and transfers, head teachers and principals are responsible for the financial management (including the formulation of budgets) of the school in collaboration with school boards.
4.2. Assessment and accountability of school leaders
The Inspections Division of the Department of Education is responsible for monitoring, supervising, advising, and evaluating the quality of school leadership, as described in the 2022-24 Department of Education Corporate Plan. Headteachers and school boards in government and church education agency schools are held accountable for financial expenditure through annual monitoring visits by school inspectors and district education officers. Schools that have been reported for mismanaged funds will have the leaders investigated and books audited.
The National School Leadership Competency Framework and National Quality Schools Standards Framework aim to be used as tools to assess and improve school leadership, including head teacher and principal self-assessment.
4.3. Teacher assessment by school leaders
Principals are required to supervise and evaluate the teaching staff at the school, including through classroom observations. According to the 2006 HR Policy Information and Operations Manual, the school board of management has the ultimate responsibility to ensure teachers are “on duty and teaching properly”.
