No.

Improving Professional Leadership in

Romania’s School System

Raising learning outcomes overall and tackling persistent challenges like inequity and high early school
leaving, depend to a large extent on the teaching and learning environment in Romania’s schools.
Creating schools where all students are enabled to do their best and teachers feel supported and
encouraged to develop requires strong school leadership. In Romania however, as in many OECD
countries in the past, school leaders occupy a primarily administrative role (Kitchen et al., 2017[1]). This
contrasts with the majority of OECD countries today where school leaders are required to be much
more than institutional administrators. Instead they are expected to take on a leading role in shaping
the quality of teaching and learning in their schools.
Modern school leaders are expected to lead in a number roles including defining the school’s goals,
observing classroom instruction to provide feedback teachers can use to strengthen their practice,
supporting professional development and collaborating with teachers and parents to improve student
learning (Schleicher, 2015[2]). In response to these changing expectations, and growing evidence about
the relationship between effective school leadership and improvements in student outcomes, many
OECD countries are taking significant steps to professionalise and better support the school leader role.
These steps include developing professional standards and strengthening both initial and continuous
professional development for school leaders.
In 2016, the Educated Romania project began a multi-year national consultation led by the President
of Romania, Klaus Iohannis, to discuss key challenges for education in the country and identify
objectives for 2030. To support the professionalisation of school leaders, the Educated Romania report
put forward a set of goals:
1. set professional standards for the school leader position
2. improve initial and continuous training of educational leaders (Educated Romania, 2018[3]).
The mission of the Structural Reform Support Service (SRSS) of the European Commission is to
provide support for the preparation and implementation of growth-enhancing administrative and
structural reforms by mobilising EU funds and technical expertise. Romania has requested support from
the European Commission under Regulation (EU) 2017/825 on the establishment of the Structural
Reform Support Programme ("SRSP Regulation"). The request has been analysed by the Commission
in accordance with the criteria and principles referred to in Article 7(2) of the SRSP Regulation, following
which the European Commission has agreed to provide technical support to Romania in the area of
education, with the purpose of supporting the objectives of the Educated Romania project. The SRSS
has awarded a grant agreement to the OECD in order to assist the Presidential Administration and the
President of Romania with preparing a set of policy briefs in four thematic areas of the Educated
Romania project. This policy brief focuses on professional leadership and management in education. It
draws on international evidence and examples to suggest ways in which Romania could work towards
achieving the above goals related to the professionalisation of school leaders.
Improving Professional Leadership in Romania's School System
Creating schools where teachers feel supported and all
students can achieve their potential requires strong
school leadership. As such, many school leaders take
on a number of administrative and instructional
leadership roles. In support of the Educated Romania
- project of the President of Romania, Klaus
Iohannis, a policy brief on this topic was    funded
by the European Union and implemented by OECD
in cooperation with the European Commission’s
Structural Reform Support Service.

In 2013,

90% 90% of school leaders participating

in TALIS received training on school
84% received training in
instructional leadership.* 84%
administration

International Advice for

Advice Romania

STANDARDS
Identify key competencies for school leaders. Align competencies with national goals and local
Develop wider leadership teams, i.e. deputies, lead contexts.
teachers and school administrators. Develop standards for other leadership support roles,
Engage stakeholders and communicate standards. especially for large and/or satellite schools.
Engage stakeholders in developing and disseminating
Align policies with standards. standards.
Ensure school leader appraisal, school evaluation, and
other policies align with new standards.

INITIAL SELECTION AND PREPARATION

Evaluate and certify new school leaders. Reform selection process, especially the written exam.
Prepare school leaders. Focus on job-specific demands, establishing an
organisation to lead initial training may help.
Create school leader qualification. Consider introducing a dedicated Master’s programme or
school leadership qualification.

PROFESSIONAL DEVELOPMENT
Provide practical learning experience. Build more collaborative activities related to a
school leader’s daily work (networking, mentorship,
` school-based advice and guidance, etc.).
Strengthen the delivery professional development. Create a leadership academy and regional training
hubs.
* OECD (2014), TALIS 2013 Results: An International Perspective on Teaching and Learning, TALIS, OECD Publishing, Paris, https://dx.doi.org/10.1787/9789264196261-en.

Funded by
the European Union
 NO. 2 – IMPROVING PROFESSIONAL LEADERSHIP IN ROMANIA’S SCHOOL SYSTEM | 3

Policy priority 1. Developing standards

for school leaders
As part of the efforts to professionalise the school leader role, a number of OECD countries have developed
professional school leadership standards that set out what a school leader is expected to know and be
able to do. Similar to teacher standards, principal standards guide the recruitment of principals, their
training and their appraisal. This provides a powerful lever to drive improvements in school leadership
practice.
In recent years, Romania also has taken some steps to professionalise the school leader role. This includes
introducing a merit-based, open competition for school leaders in 2016. However, Romania has not yet
developed professional standards for school leaders, only a list of the skills expected of candidates for
school leadership positions (Educated Romania, 2018[3]). The development of school leader standards
would give impetus to efforts to develop a modern, school leadership body: by providing a holistic vision
of quality leadership that goes beyond narrow definitions of specific tasks and recognises the range of
attributes required to lead a 21st century school; and by providing a reference for other important reforms
to support the professionalisation of the leadership function, from more robust selection and performance
management to more relevant initial preparation and ongoing professional development.
To support the development of principal standards, Educated Romania requested advice in the following
areas:
• How to set out the competencies that are important to help school leaders support an effective
learning environment within the school?
• What are the minimum competencies that a school leader should have when they begin in the
role, and what competencies should they be expected to develop over time once in the post?

Potential impact

Developing standards for school leaders in Romania will help to ensure that all school leaders meet basic
expectations, and provide a framework for their future career development. This is an important step to
support improvements in students’ learning outcomes, given that research identifies the quality of school
leaders and school leadership as the second-most important school-level factor affecting student learning
(after teachers) (Leithwood and Seashore-Louis, 2011[4]) (Hattie, 2011[5]).
School leader standards would provide a central reference point for all aspects of school leader in policy.
In particular:
• Selection and recruitment to ensure that new school leaders have the experience and
competencies needed for the role. The standards could also be used to identify individuals with
leadership potential (see below).
• Initial preparation and continuous professional development so that school leaders are
provided with high-quality learning opportunities to develop essential knowledge and skills for
their role.
• School leader appraisal and other accountability mechanisms like school evaluation,
identification of underperformance and response actions (such as performance rewards,
improvement plans or dismissal). Standards could also establish an expected minimum tenure
for individuals in school leadership positions that is subject to performance. Research on the

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periods of school leader tenure and turnover vary; therefore, setting a minimum tenure is a
better policy priority than establishing an upper time limit (Pont, Nusche and Moorman, 2008[6]).
Using standards to ensure that school leaders possess essential knowledge and skills will also support
Romania’s efforts to increase school autonomy. The 2011 Education Law gives schools autonomy for
financial and human resources management, and some curriculum content. However, schools have so far
been slow to take on this new autonomy, in part because school leaders may lack the agency and
leadership to take on these responsibilities (Kitchen et al., 2017[1]).

International evidence and experience

Identifying key competencies for school leaders

Meta-studies of effective school leadership have identified the following functions and competencies as
affecting students’ learning outcomes: supporting teacher learning; establishing goals and expectations;
planning, coordinating and evaluating teaching and curriculum implementation; identifying and using
resources strategically; and ensuring an organised and supportive environment (Robinson, Hohepa and
Lloyd, 2009[7]).
As well as a growing body of research on the attributes of quality school leadership, Romania can also
draw on examples of school leader standards from other countries to develop a framework appropriate for
its own context. Table 1 shows how countries that have made significant investments in professionalising
school leadership over the last decade – Australia, Ontario (Canada) and Scotland (United Kingdom) –
define school leadership standards. In addition to resource management and instructional leadership,
many countries also use the standards to set out other knowledge, skills, values and attributes that are
important for school leadership. For example, some focus on values of trust, respect and social justice,
which aligns with Romania’s aims to support inclusive schools (Educated Romania, 2018[3]). In these
country examples, school leaders currently have considerable autonomy to shape key aspects of teaching
and learning, including the curriculum and assessment. They can provide a useful guide and reference for
Romania as it seeks to develop instructional leadership, and encourage schools to take on more autonomy
over the long term.

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Table 1. Comparison of school standards in Australia, Ontario (Canada) and Scotland (United
Kingdom)
Australian Professional
Standards for Principals
(2011)
Ontario (Canada)
Leadership Framework
(2013)
The Standard for Headship
in Scotland (United
Kingdom) (2005)
Leadership requirements and values
• Vision and values
• Knowledge and comprehension
• Personal qualities and social and
interpersonal skills
• Cognitive resources (problem-solving;
knowledge of effective school and
classroom practices that directly affect
student learning)
• Social resources (perceiving and
managing emotions); acting in
emotionally appropriate ways
• Psychological resources (optimism;
self-efficacy; resilience; proactivity)
• Professional values (place children and
young people first)
• Knowledge (curricular principles,
theories related to teaching and
learning; main features of the education
system; principals and practice of
educational leadership and
management)
• Abilities (self-aware; sensitive to the
concerns of others; communicate
effectively; think and plan strategically
and judge and decide accordingly;
exercise in accordance with context)
Professional actions/responsibilities
• Leading teaching and learning
processes
• Developing self and others
• Leading improvement, innovation and
change
• Leading school management; and
• Engaging and working with the
community
• Setting directions
• Building relationships and developing
people
• Developing the organisation to support
desired practices
• Improving the instructional programme
• Securing accountability
• Leading and managing school
improvement
• Leading and managing learning and
teaching
• Leading and managing people
• School/community partnerships
• Managing resources

Source: (AITSL, 2011[8]) Australian Professional Standards for Principals, Education Services Australia, http://ncee.org/wp-
content/uploads/2016/12/Aus-nat-non-AV-1.3-australian_professional_standard_for_principals.pdf; (Lynas, 2005[9]), The Standard for
Headship in Scotland, Scottish Government, www2.gov.scot/resource/doc/77843/0018596.pdf; (The Institute for Education Leadership,
2013[10]), The Ontario Leadership Framework: A School and System Leader’s Guide to Putting Ontario’s Leadership Framework into Action,
www.education-leadership-ontario.ca/application/files/8814/9452/4183/Ontario_Leadership_Framework_OLF.pdf; (Breakspear et al., 2017[11]),
Developing Agile Leaders of Learning: School leadership policy for dynamic times, www.wise-
qatar.org/sites/default/files/rr.7.2017_learnlabs.pdf (accessed on 19 April 2019).

Reflecting national and local contexts

While there is more or less consensus on the general competencies that are important for effective school
leadership, different school goals and social contexts also require locally contextualised skills (Davis et al.,
2005[12]). This means that as Romania is developing new standards for school leaders, international
examples will need to be adapted to reflect the country’s expectations for school outcomes and wider
educational goals. This should include key goals to improve equity in learning outcomes, especially
ensuring that all students meet basic standards for proficiency in core competencies like literacy and
numeracy according to their age, and introducing more student-focused instruction to support this (see
policy brief on equity). For school leader standards, this will be reflected in specific references to support
for achieving school and national learning goals. When the country’s “good school” vision is developed,
this should inform the development of the school leader standards (Educated Romania, 2018[3]). This will
help to ensure coherent alignment across the education system so that school leaders have the
competencies necessary to ensure that all students receive a quality education.
School leader competencies may also need to reflect, or at least make space to account for, differences
in school context across the country’s schools. This includes the different socio-economic context across

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urban and rural schools, the needs of satellite schools and schools where there is large Roma population.
School leader standards might acknowledge the need for school leaders to be sensitive to these
differences, while hiring procedures at individual school-level could provide space for schools and local
communities to evaluate candidates’ capacity to respond to local context.

Developing standards for other leadership roles

It is important to note that in many countries, principals are not expected to lead schools alone. They are
frequently supported by wider leadership teams that include deputy school leaders, experienced or lead
teachers and school administrators. Not only does this help to share the significant responsibilities of
school leadership but also provides diversity of experience and perspective. It also helps to ensure that
the whole school community is involved in defining and achieving goals, building engagement and
ownership across the school. Both the Australian and Scottish standards also include specific standards
for other members of the school leadership team. As well as developing standards for school leaders,
Romania should consider developing accompanying standards for other leadership roles within the school.
This is particularly important in cases where school leaders are responsible for one or more satellite
schools, and in large schools especially at the secondary level.

Minimum competencies for a school leader, and competency development while in

post

Few countries specify minimum or higher level competencies for school leaders. For example, while the
countries in Table 1 distinguish between different leadership roles, such as school leaders, deputy leaders
and teacher leaders, they do not set out specific career steps or paths for school leaders’ career
development. This approach contrasts with the approach to teacher competencies or standards, which
increasingly include higher competency levels as part of a differentiated teacher career path (see brief on
the teaching profession).

Setting minimum expectations for school leaders

However, there are certain qualities or qualifications that candidates for school leadership should possess
that reflect the core competencies for school leaders. In reflection of this, some countries have introduced
specific qualifications that school leaders are required to complete in order to become eligible for a
leadership post (see policy priority 2). Others, like Victoria in Australia and Singapore have introduced
screening or self-evaluation tools to help individuals assess their leadership potential (see Box 1).

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Box 1. Screening or self-evaluation tools for school leadership roles

The Victorian (Australia) Aspirant Principal Assessment (VAPA) is a tool for those who may
wish to become school leaders to evaluate their strengths and areas for further development. School
leader candidates are asked to:
• participate in a one-half day briefing session
• complete a self-evaluation of their leadership competencies
• assemble a portfolio of materials developed independently or as part of a team to
demonstrate leadership qualities
• present the portfolio and any additional evidence to an evaluation panel comprised of a
retired school leader and a current school leader.
Candidates receive feedback from the evaluation panel on their readiness to apply for a school
leadership position.
The Leadership Track within Singapore’s Enhanced Performance Management System for
Teachers identifies teachers with potential for leadership early in their careers. Each year, 35
candidates a year are selected to participate through interviews and leadership exercises in the
Leadership Education Programme (LEP). The LEP is a six-month full-time programme held at the
National Institute for Education. Participants learn in diverse settings, including schools and/or
overseas settings. The curriculum covers leadership, strategic management and administration,
management of staff and of students, and financial management. The programme has “future”
orientation, to ensure that school leaders are ready to adapt curricula to emerging trends and needs.
Source: (The Bastow Institute of Educational Leadership, 2018[13]), Victorian Aspirant Principal Assessment, website,
www.bastow.vic.edu.au/ (Schleicher, 2015[2]), Schools for 21st-Century Learners: Strong Leaders, Confident Teachers, Innovative
Approaches, International Summit on the Teaching Profession, OECD Publishing, Paris, https://doi.org/10.1787/9789264231191-en.

Setting expectations for school leaders’ competency development while in post

While few countries set out specific higher levels of competence or career steps for school leaders, most
countries’ school leader standards are underpinned by the expectation that school leaders will continually
reflect on their own practice and how they can improve. In Australia for example, school leaders are
expected to be “Learning Leaders”. School leaders are expected to use the school leader standards to
better understand their strengths and next stages of development. The standards also clearly set out how
leaders’ practice is expected to develop as they become increasingly proficient school leaders.

Effective implementation and capacity development

Stakeholder involvement

Relevant stakeholders that should be involved in the development of school leader standards include
current and retired school leaders, school leader associations, training providers (initial and continuing
training), university researchers, students, parents, and leaders from other sectors (Breakspear et al.,
2017[11]; Greatbatch and Tate, 2018[14]).The development of New Zealand’s Kiwi Leadership for Principals
is one example of how stakeholder input and “best evidence” may be brought together to develop a strong
framework and to ensure its relevance for the country context (see Box 2).

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Box 2. Development of school leader standards in New Zealand

The development of school leader standards in New Zealand focused on the following processes:
• Analysing evidence on effective school leadership. The Ministry initiated best
evidence synthesis of the research on educational leadership and student
outcomes.
• Stakeholder consultation. Teacher unions, principal groups, the national
organisation for school boards, researchers and government officials came
together to discuss the nature of leadership in New Zealand Schools and its
issues alongside the emerging findings of the best evidence synthesis. Local are
principal groups, the national organisation for school boards, researchers and
government officials also came together to discuss and further contribute to the
emerging framework.
By the end of the process, the new framework for principal standards had a good level of
commitment and ownership. The best evidence synthesis provided a robust framework for the
development of school leadership for learning at both practice and policy levels, and gained strong
endorsement from sector organisations and professional development providers.
Source: (Wylie, 2011[15]), “The Development of Leadership Capability in a Self-Managing Schools System: The New Zealand
Experience and Challenges”, International Handbook of Leadership for Learning, Springer International Handbooks of Education.

Once the new competency profiles and standards have been developed in Romania, they will need to be
piloted and validated before they are finalised and disseminated. It will also be important to develop a
communication strategy to share new school leader competency profiles and standards. While
stakeholders engaged in the core design and implementation processes will be aware of the new
frameworks, school leaders and teachers, trainers, parents, community organisations and other
stakeholders who were not involved in the process will not have the same level of awareness. As well as
helping to raise awareness of the new standards, communication will help actors across the education
system to understand the significant change in approach and expectations that they represent regarding
the school leader role. Finally, visible communication of the standards will support the country’s broader
efforts towards raising the status, and professionalising the role, of school leaders.

Aligning policies and practices

Actors across the education system will also need to be supported to understand and align their practices
with the new school leader standards. To support this, policies and practices, like appraisal and school
evaluation that relate to school leadership will also need to be aligned with the standards, so that the latter
become the central reference for leadership development. In particular, existing school leaders will need
to be able to access professional development opportunities to ensure that they have the knowledge and
competencies set out in the new standards. The evaluators of school leaders need support so that the new
standards become the central reference for school leader appraisal. The OECD Review on Evaluation and
Assessment in Education: Romania found that the school evaluations conducted by the Country School
Inspectorates (CSIs) did not have sufficient objectivity and distance from responsibility for school
performance (Kitchen et al., 2017[1]). This could also be an issue for the appraisal of school leaders;
therefore, ensuring the independence and objectivity for the evaluating body undertaking school leader
appraisal is key.
Importantly, these appraisals should guide school leaders to evaluate their skills and knowledge against
the new standards, and identify areas where further professional development is important (see policy
priority 3). Providing school leaders with options and support for career development can make the

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profession more attractive, help avoid burn-out and strengthen the ability of leaders to improve the quality
of education in their schools (Pont, Nusche and Moorman, 2008[6]). Offering renewable fixed term contracts
instead of lifetime contracts is one way that countries can ensure that school leaders evaluate their practice
against the new standards. Such contracts allow for periodical evaluation, recognition and
acknowledgement of well-performing school leaders and provides them with incentives for them to
continuously develop their practice. Offering compelling leadership pathways and new professional
opportunities, such as in educational administration or consultancies, can be other ways to provide options
and support for career development (Pont, Nusche and Moorman, 2008[6]).
The providers of initial preparation and continuous professional development for school leaders will also
need to update their skills and course content in line with the new standards. As with the new teacher
competencies, the new school leader standards can be used to inform the accreditation of school leader
professional development programmes. This will provide a strong lever to ensure that course content and
the skills and knowledge of school leader educators are updated in line with the new standards.

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Policy priority 2: Strengthening the initial

selection and preparation of school
leaders
New school leaders in Romania are required to complete pre-service courses on educational management.
Reflecting this requirement, the vast majority of the country’s school leaders report that they received some
initial preparation either before or after taking up their new post. In 2013, 90% of school leaders reported
that they had received training on school administration, while 84% had received training in instructional
leadership. This is similar to the situation in other countries that participated in the OECD Teaching and
Learning International Survey (TALIS) (OECD, 2014[16]). However, it appears that the courses for new
school leaders in Romania are intended to prepare teachers for any management or guidance and control
position, and do not seem to target the specific learning needs of future school principals (Kitchen et al.,
2017[1]).
Aware of the need to ensure that school leaders are better supported through initial preparation to meet
the demands of their roles, Romania asked for advice in the following areas:
• What approaches do other countries and economies use to develop new school leaders’
competencies before they take on the role of school leader?
• What approaches are used to evaluate these competencies?

Potential impact

New school leaders in Romania face multiple challenges for which they are currently unprepared. New
leaders in urban areas often have to run large, overcrowded schools. While in rural areas, new school
leaders manage schools where many students come from a disadvantaged background that is associated
with multiple factors that makes these students vulnerable to low learning outcomes and early school
dropout (see Policy Brief on Improving Educational Equity in Romania). A further group of leaders will be
required to lead multiple schools reflecting the high number of satellite schools in the country. These school
leaders are responsible for one or more school with no additional preparation or staff support (Kitchen
et al., 2017[1]).
Stronger initial selection and preparation of Romania’s school leaders will mean that they are better
equipped to meet these challenges. This will have a significant impact on learning outcomes nationally, by
closing the equity gap and addressing the persistent challenges of early school dropout and students’ low
functional skills, which are currently holding back Romania’s economic development.

International evidence and experience

Approaches to evaluate and certify new school leaders

Since 2016, the selection of principal candidates in Romania has been based on a multiple choice exam
of the candidate’s cognitive and school management skills, their curriculum vitae, and an interview that
includes an assessment of the candidate’s management vision and one-year operational plan. The OECD
Review on Evaluation and Assessment in Education: Romania suggested that the country consider moving
away from the use of a written examination towards more authentic measures of school leadership

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competencies (Kitchen et al., 2017[1]). While examinations can help to identify certain prerequisites for
school leadership, such a basic educational knowledge, they are not an effective means to identify the
broad range of capacities and personal skills that are essential for school leaders.
Increasingly in OECD countries, principal recruitment is based on a longer selection process that aims to
assess the full range of a candidate’s capacities and personal skills. This might include a traditional
interview, but also school visits, presentations and an assessment of the specific competencies required
for the position (OECD, 2008[17]). Box 3 describes different approaches for school leader selection in
different countries. Once Romania has developed new principal standards (see policy priority 1), these can
be used to identify the specific competencies that school leaders should be expected to have. A dedicated
assessment, working with psychometric specialists could also be developed to assess some of these
competencies. This might include assessments of basic academic competencies like numeracy, literacy
and abstract reasoning, as well as leadership and interpersonal skills through personality assessments.
Other types of evaluation, such as an interview, school visit, presentation and case study/work proposal
could be used to evaluate the remaining competencies, such as knowledge and understanding of teaching,
learning and school improvement.

Box 3. Approaches to school leader selection

Being able to identify and attract promising and skilled individuals for school leader positions is a
key component of an education system. In order to ensure only qualified professionals hold the most
of the leadership responsibility, selection processes must be well designed, combining standardised
competency frameworks with expert senior judgment. As for its structure, a selection process should
be as objective as possible, ensuring that all used procedures and criteria are effective, consistent
and transparent.
Among the first steps for any recruitment process, it is important to determine the eligibility and
selection criteria. Although selection criteria has been changing and widening in the past years
(focusing more on the actual skills and competences of candidates than on length of experience),
eligibility criteria remain more or less the same. Even if countries such as the Netherlands have
recognised the benefits of having school leaders recruited from outside the education sector, OECD
research (2008) shows that among OECD countries, the single most important eligibility criterion to
become a school leader is still having a teaching background.
The same OECD report presented that the majority of countries analysed implemented open
recruitment practices. This means that recruitment processes are open to all candidates who meet
the eligibility criteria and that posts are widely advertised in order to hold a public contest for the
position. Open recruitment also widens the pool of applicants from other schools and geographical
areas.
That said, there are different approaches for school leader selection (which can be implemented
either singularly or as a combination of approaches):
Selection through qualifications
Many countries have national-level qualifications for school leaders. For example, England (United
Kingdom) established a 12-month pre-service training programme in 1997 that led to a “National
Professional Qualification for Headship” (NPQH). While the qualification programme is no longer
mandatory, it is still perceived as a valuable qualification for aspiring school leaders. Among its
benefits, qualification serves as a way to raise the entry standards for leadership roles and also to
ensure that individuals are equipped with the knowledge and skills that align with professional
competency profiles. Some countries also organise a competitive selection process before allowing
individuals to begin qualification programmes. Competitive selection should be based in competency
profiles and assessment and ideally, involve former experienced principals in the selection process.

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Talent pools
Talent pools are a way of ensuring a constant source of emerging leaders. In order to create a talent
pool, schools set local level selection processes to which teachers can apply to gain professional
development opportunities and prepare for school leadership roles. This approach is very similar to
the “recruitment circles” implemented in Sweden in the early 1980’s to stimulate an increase in
application numbers and a more diverse range of candidates. Although talent pools can be an
effective way to organise selection and recruitment, system leaders have to ensure talent pools do
not become too large - meaning they have low entry requirements- or too small, meaning that not
enough teachers apply to sufficiently meet school vacancy needs.
Surfacing high potential candidates
This approach to selection and recruitment can be explained as a way to ensure that applicants who
might otherwise be overlooked are actively encouraged to apply for school leadership roles.
Activities might involve using robust evaluation data to identify promising leaders or encouraging a
wider range of candidates by setting out competitions and awards systems developed to recognise
effective leadership. These processes however, should consider social factors that may refrain
aspiration and opportunity, such as class, race or gender. For example, Denmark offers a “taste”
course for teachers who want to learn about the components of school leadership and management,
who can then follow a two-year Diploma in Leadership course.
Source: (Pont, Nusche and Moorman, 2008[6]), Improving School Leadership, Volume 1: Policy and Practice; (Wylie, 2011[15]),
Developing Agile Leaders of Learning: School leadership policy for dynamic times,
www.wise-qatar.org/sites/default/files/rr.7.2017_learnlabs.pdf;, (Schleicher, 2012[18]), Preparing Teachers and Developing School
Leaders for the 21st Century, https://doi.org/10.1787/9789264174559-en.

Approaches to develop new school leaders’ competencies before they take on the
role of school leader

Features of effective school leader programmes

One of the challenges of the current initial training that new principals in Romania receive is that it is
focused on generic knowledge and skills for educational management, rather than the specific demands
of school leadership. As part of efforts to strengthen school leaders’ initial training Romania might consider:
• Developing specific initial training programmes for school leaders.
• Making the new school principal standards (see policy priority 1) the key reference for school
leaders’ initial training programmes. The standards may also be used to accredit initial training
programmes.
• Surveying school leaders nationally to better understand their learning needs.
• Developing accreditation standards for initial teacher education focused on the features of
effective leadership programmes. Box 4 sets out the characteristics of exemplary initial
preparation programmes.

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Box 4. Characteristics of exemplary leadership programmes

Commissioned by the Wallace Foundation, a study by the Stanford Educational Leadership Institute
examined eight exemplary pre-service and in-service programme models that develop strong
educational leaders. All of the programmes of initial preparation that were characterised as
exemplary shared the following characteristics:
• a comprehensive and coherent curriculum aligned with professional standards
• a philosophy and curriculum that explicitly focus on instructional leadership and school
improvement
• student-centred instruction that integrates theory and practice and stimulates reflection
• faculty knowledgeable about their subject areas and experienced in school
administration
• social and professional support in the form of a cohort structure and formalised
mentoring and advising by expert principals
• vigorous, targeted recruitment and selection to seek out expert teachers with leadership
potential
• well-designed and supervised administrative internships under the guidance of expert
veterans.
Source: Darling-Hammond et al., (2007[19]), Preparing School Leaders for a Changing World: Lessons from Exemplary Leadership
Programs, Stanford University, Stanford CA.

Creating a school leader qualification

Romania might also consider creating a dedicated master’s programme or qualification in school
leadership. A number of OECD countries have established similar programmes in recent years with the
aim of better preparing candidates for the specific demands of school leadership (Schleicher, 2012[18]).
Examples include the Principal’s Qualification Program in Ontario, Canada, which is offered by universities,
teachers’ federations and principals’ associations. It consists of a 125-hour programme with a practicum.
Other countries with similar programmes, both mandatory and optional, include Austria, Australia, Finland,
Ireland, Japan, England in the United Kingdom and the United States (Schleicher, 2012[18]).
Research suggests that these leadership programmes can both raise the status of the profession and
positively impact school quality. In England, 43% of schools with a leader who had been certified with a
National Professional Qualification for Headship showed an improvement in their overall performance
rating between 2005 and 2008, compared with only 37% of schools led by a head who had not been
certified (Schleicher, 2012[18]).

Effective implementation and capacity development

Romania will need to mandate an organisation to lead and provide initial preparation for school leaders.
This organisation would be responsible for designing and providing the new school leader qualification. In
a number of countries with leadership qualifications, it is also provided by separate a school leader
academy or institute such as National Professional Qualification for Headship that is led by the National
College for Teaching and Leadership in England or the Leadership Academy in Austria (see Box 6). In
Romania, creating a new school leadership academy would also support the wider professionalisation of
the school leader role (see policy priority 3).
Any new organisation for school leadership would have to work with existing national stakeholders to draw
on their expertise and understanding of the role of school leaders in Romania. This would include the

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Institute for Educational Sciences, the Ministry and Teacher Training Houses that are affiliated to the
County School Inspectorates, since all these bodies currently have a role in providing school leader
training.
Evaluation and oversight mechanisms for the new initial preparation of school principals would be
necessary. This would be especially important to ensure quality and accountability if the new school
leadership academy is the only body in the country to provide leadership preparation since there would be
no competitive dynamic. The ministry or accreditation body for teacher training, ARACIS, might have a role
in overseeing quality. Information from school evaluations might be regularly reviewed to help understand
how effectively the new programme is preparing new school leaders.

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Policy priority 3: Creating effective

professional development for school
leaders
School leaders in Romania are required to accumulate approximately 240 hours of continuing professional
development every five years. In 2013, the vast majority of Romania’s school leaders (87.5%) reported
participating in some form of professional development in the past year, very similar to the average across
all TALIS-participating countries (OECD, 2014[16]).
However, it was reported to the OECD review team during country visits for the OECD Review of
Evaluation and Assessment in Education: Romania that principals do not feel well supported to address
administrative problems, legal issues and the needs of satellite schools for which they are responsible.
School leaders also reportedly lack professional development opportunities in areas important to
pedagogy, like implementing the new school curriculum and supporting teachers in the changes that it
requires in terms of teaching and learning, such as formative assessment and other student-centred
approaches (Kitchen et al., 2017[1]). The Educated Romania project requested advice on:
• What kinds of on-going training are most effective to develop the competencies of school
leaders?
• What are the merits of creating a network of regional centres to provide training for school
leaders?
• What other ways of delivering training (e.g. online, at predetermined intervals) can be effective
for school leaders?

Potential impact

School leaders in Romania are relatively young in comparison to their counterparts in many OECD
countries. In 2014, just over a third of school leaders were under 40. This was the highest share of school
leaders in this age group across all countries participating in the OECD Teaching and Learning
International Survey (TALIS). It was also substantially higher than the OECD average of around 8%
(OECD, 2014[16]). This means that many of the country’s current school leaders are likely to remain in the
post for a number of years to come. However, these school leaders have not benefitted from strong initial
preparation as a school leader nor as a teacher before that (see policy brief on the teaching profession).
Investing in the professional development opportunities of the country’s existing school leaders is therefore
essential. School leaders will have a crucial role to play in creating school environments where the new
curriculum that the country is implementing can succeed. They will also have a key role to play in creating
more inclusive learning environments where all students can meet national learning expectations to narrow
the equity gap (see policy brief on equity).

International evidence and experience

The characteristics of effective professional development for school leaders

Many leaders in the schools that the team visited for the OECD Review on Evaluation and Assessment in
Education: Romania, reported the need for more on-the-job, practical learning (Kitchen et al., 2017[1]). This
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finding corresponds with the types of professional development activities that Romania’s school leaders
report having participated in. In 2013, the vast majority of school leaders (75%) reported participating in
courses, conferences or observation visits in the past 12 months. However, only a minority (29%) had
participated in professional networks, mentoring or research activities. This contrasts with around half of
school leaders in OECD countries, and is significantly lower than participation rates in some of the world’s
top performing education systems such as Australia (84%), the Netherlands (87%) and Singapore (93%)
(OECD, 2014[16]).
Research highlights that collaborative activities like mentoring or networking are particularly beneficial in
developing school leaders’ competencies (OECD, 2008[17]). In particular, learning that is embedded in the
school context has been found to have the greatest impact on school leader development (Beer, Finnström
and Schrader, 2016[20]). Examples of these type of activities include opportunities to apply new learning in
the school context, and mentoring or coaching support.
Given the above, Romania’s activities to improve the effectiveness of school leaders’ professional
development might focus on building more collaborative activities, especially those that are directly related
to a school leaders’ daily work. Possibilities to expand these kinds of activities include:
• Encouraging networking. One of the most important ways to support school leaders is through
professional networks. These kinds of networks across schools or school leaders provide
opportunities to share experiences and good practices. In Sweden for example, school leaders
have networks where school leaders act as a “critical friend” to each other and share new
knowledge (OECD, 2008[17]). The Ministry of Education in Romania might consider providing
central resources and infrastructure to try to encourage similar networks in Romania. Many
countries have found also found that regional support is important to encourage and maintain
networks. In Romania, the regional hubs (see below) could provide the external impetus to
grow and sustain these kinds of professional networks.
• Providing school leaders with mentors. A number of OECD countries provide school leaders
with mentors, who provide guidance and feedback, often to new school leaders. Box 5
describes how mentoring is used to support new school leaders in Estonia. In Romania,
mentors might meet with school leaders on a regular basis to help them reflect on their work
in the school, provide feedback and advice on issues that school leaders are finding difficult
and help identify future professional development priorities and opportunities.
• Developing school-based opportunities for advice and guidance. Feedback from Romania’s
school principals suggests that their greatest need is for more practical advice and guidance
at the school-level. The country could consider using dedicated experts on teaching and
learning to guide school leaders on how to evaluate and strengthen instruction across their
schools (see brief on the teaching profession). Many countries and economies also provide
local support for school improvement, as part of a school evaluation framework. This support
might be targeted to schools in greatest need of improvement and would help them to develop
and implement a strategy for improvement.

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Box 5. Mentoring school leaders in Estonia

In 2014, Estonia started a national professional training programme, designed to create a pool of
mentors whose expertise to support newly appointed school leaders. The objective of the
programme is twofold: to provide high-quality mentoring support to school leaders and to promote
internal mentoring systems at the mentors' own schools.
Identifying and training mentors
There is a public competitive process to apply for the mentoring position. Applicants must have at
least five years’ teaching experience and demonstrate very high motivation. The training for mentors
is carried out by a private company in cooperation with Innove, a non-profit foundation governed by
the Estonian Ministry of Education and Research. Training for mentors includes communication,
needs analysis, coaching and feedback skills.
Support for new principals
New school leaders participate in a special development programme for two years, with mentoring
as a major component of the programme. All participants are assigned a mentor who has graduated
from the national mentoring programme. Mentors and mentees are matched according to the
mentees’ needs. The mentor is supposed to act as a critical friend to the principal and uses coaching
skills. Mentors and mentees meet at least once a month and have 56 additional sessions via e-mail,
phone, etc. Mentors' expenses are covered and there is work remunerated.
At least once a year, mentors in the national pool meet to discuss their experiences and receive
additional training. During the first two years, the programme has offered mentors to 32 principals.
The feedback shows that the relationship has been mutually beneficial.
Source: (Education and training 2020 Working Group, 2018[21]), Teachers and school leaders in schools as learning organisations
Guiding Principles for policy development in school education, The European Commission, Brussels,
https://ec.europa.eu/education/sites/education/files/teachers-school-leaders-wg-0917_en.pdf (accessed on 7 September 2018).

Structures to strengthen the delivery of professional development for school leaders

The section below discusses the different infrastructure that can used to provide school leadership training
and development. It is important to note that while the approach to delivery is important, the most critical
considerations are that the responsible organisation:
• provides relevant expertise
• has the capacity to focus on schools’ real needs (rather than providing a purely theoretical or
academic perspective)
• contextualises knowledge and skills to specific school settings (e.g. an awareness of different
challenge across urban and rural schools)
• can be flexible to meet the education system’s changing and critical needs (Darling-Hammond
et al., 2007[19]).

Creating a leadership academy

As part of efforts to strengthen school leadership, a number of countries have created school leadership
academies or institutes in recent decades. Examples include the Leadership Academy in Austria, the
Centre for School Leadership in Ireland, the School Leaders’ Academy in the Netherlands, the National
School for Leadership in Education in Slovenia, the National College for School Leadership in England
(United Kingdom) and the Northern Ireland Regional Training Unit, also in the United Kingdom (see Box
6) (OECD, 2008[17]).
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These institutions tend to provide a number of different functions in relationship to school leadership,
including providing a school leadership qualification (see policy priority 2), and providing and coordinating
school leaders’ professional development. Research suggests that many of the most coherent approaches
to leadership development across OECD countries in recent years has been led by a clear leading
institution like this (OECD, 2008[17]).

Box 6. School leadership academies in Austria and Ireland

Austria
Founded in 2004, the Leadership Academy provides training to improve the qualifications of
executive-level personnel in schools, targeting leaders, directors and managers of and within
education institutions in Austria (BMBWF, 2018[22]). The training focuses on several elements of
leadership, including leadership for learning, dialogue, shared leadership, innovation and the
capacity to improve the quality of education.
Every year a new cohort or “generation” participates in a series of four three-day fora and works
toward meeting certain certification criteria in order to be admitted into the Leadership Academy
network (BMBWF, 2018[22]). These criteria include participating in the four fora and other regional
network meetings; presenting development issues during collegial team coaching workshops;
coaching colleagues; and leading a participative development project in the home education
institution and documenting and presenting progress and results. Certification occurs during the
fourth forum and membership in the Leadership Academy is decided upon by the Leadership
Academy directors.
The first “generation” of the Leader Academy served 300 participants, and roughly 3 000 school
leaders have participated as of 2017 (Education and training 2020 Working Group, 2018[21]). The
programme has been noted for its high degree of engagement among participants and its positive
impact on leadership practice, particularly in the areas of providing direction, demonstrating strength
of character and community-building and creating a culture of achievement (Schratz and Hartmann,
2009[23]).
Ireland
In September 2015, the Centre for School Leadership (CSL) was established under a partnership
between the Department of Education and Skills (DES), the Irish Primary Principals’ Network and
the National Association of Principals and Deputy Principals (Fitzpatrick Associates, 2018[24]). A
variety of functions and objectives were set forth for the CSL, including supporting, leading,
coordinating and delivering leadership professional development programmes for primary and post
primary schools, which includes a programme for newly appointed principals, coaching for active
principals and other activities along a continuum of continuous professional development.
Additionally, CSL was to develop a strategic framework for a continuum of leadership professional
development and a quality assurance framework for its provision, as well as to advise DES on
leadership professional development policy.
An evaluation of the CSL’s first two years of operation identified several of the organisation’s
achievements (Fitzpatrick Associates, 2018[24]). For example, the CSL has been able to open a
discussion about the concept of school leadership, including its strategic role and importance. The
evaluation also found that the comprehensive draft continuum of leadership professional
development has been well-received by practitioners and providers, and while informed by similar
frameworks from other countries, it has been designed for the context in Ireland. Furthermore, a
mentoring programme developed for new principals was found to be rated highly by mentees and
mentors alike, and a coaching programme for experienced teachers was also very highly regarded.
While the evaluation found the pilot to be a success, it notes that the CSL, the leadership

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professional development system and associated policies will need to be further developed in order
for the CSL and its programmes to become fully operational and deliver on its objectives in the
long-term.
Source: (Pont, Nusche and Moorman, 2008[25]), Improving School Leadership, Volume 2: Case Studies on System Leadership,
OECD, Paris, https://doi.org/10.1787/9789264039551-en; BMBWF (2018[22]), Leadership Academy, /www.leadershipacademy.at/;
Schratz and Harmann, (accessed 22 April 2019); (2009[23]) Innovation an Schulen durch Professionalisierung von Führungskräften
Studie zur Evaluation der Auswirkungen der Leadership Academy an Schulen,
https://www.leadershipacademy.at/downloads/LEA_Kurzfassung_Studie.pdf (accessed 23 April 2019); Fitzpatrick Associates
(2018[24]), School Leadership in Ireland and the Centre for School Leadership: Research and Evaluation Final Report,
https://cslireland.ie/images/downloads/Final_CSL_Research_and_Evaluation_Final_Report__Feb_2018_.pdf (accessed 22 April
2019); Education and Ttraining 2020 Working Group (2018[21]), Teachers and school leaders in schools as learning organisations
Guiding Principles for policy development in school education, https://ec.europa.eu/education/sites/education/files/teachers-school-
leaders-wg-0917_en.pdf (accessed 22 April 2019).

Regional training hubs

Regional centres extend their work through networks with centres in other areas. Through the existing
network of County School Inspectorates and Teachers’ Training Houses, Romania already has network of
regional centres that provide training for school leaders. However, as discussed above, these are not
currently serving the needs of the country’s school leaders as effectively as they could. The role of the
regional training bodies could be revised so that they become centres of support for developing and
encouraging more collaborative, hands-on professional development opportunities for school leaders. For
example, the regional centres could help to:
• Establish and maintain local school networks. In Sweden, leaders in public schools belong to
a professional network in their municipality. They are coached and supervised by a director of
education who has the task of supporting and developing school leaders in their professional
role. In many municipalities, school leaders have regular meetings to discuss problems at their
schools or to test new ideas. Through these regular meetings, principals strengthen their
identity as school leaders, support each other and feel supported by the municipality’s director
of education (OECD, 2008[17]).
• Encourage national school and school leader networks. Romania’s network of regional centres
can be used to encourage horizontal learning across different parts of the country. This type
of peer learning will provide opportunities to exchange regarding good practices, as well as
ideas on how to address challenges.
• Provide tailored, hands-on support. Regional centres serving schools in a specific area could
be responsible for maintaining and coordinating support like school leader mentors and
teaching and learning experts. The local nature of the centres means that they would be able
to tailor support for the specific needs of the area (e.g. rural vs. urban and other
socio-demographic factors). Their advisors would also have the opportunity to understand the
on-the-ground challenges school leaders are facing.

Online learning opportunities

Providing materials online provides the possibility to reach a large number of school leaders. Online
platforms can also be designed to encourage collaboration and experience sharing across school leaders.
This can be especially valuable for school leaders in rural and remote areas. While online learning cannot
substitute direct interactions, it can be combined with face-to-face learning opportunities, to create
“blended learning”. Box 7 provides an example of how blended learning is being used for in-service school
leaders in the United States. Also in the United States, the New York City Leadership Academy has a
programme of blended learning for school leaders. The Academy identified five key lessons from its
programme about how to make blended learning effective:

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• School leaders need to see how online learning can fit in their daily work schedules, and how
it is connected to their leadership development. This may also require providing support for
school leaders to use online tools.
• Content of digital platforms must be compelling. Content developers may draw on their
experiences in providing face-to-face support for school leaders to identify issues of central
concern.
• Digital proficiency is also a core leadership competency. School leaders’ use of digital
resources may also be used to set an example for teachers and students who are developing
their own digital competencies.
• While online learning may support critical thinking and analysis, active facilitation is needed.
Face-to-face learning opportunities can help to deepen online interactions. However, explicit
facilitation is necessary to ensure discussion stay focused and to ground them in relevant
professional concepts.
• Online platforms with significant content and guidance on how to support instruction can be
useful for school leaders, many of whom have not taught in recent years. Complementary
customised support may also support school leaders in developing instructional leadership
(adapted from an interview with Rachel Scott for the NYCLeadershipAcademy.org, accessed
28 February 2019).

Box 7. Blended learning in the United States

The National Principals Academy at the Relay Graduate School of Education is a blended learning
programme for in-service school leaders in the United States. The programme takes place over two
weeks in the summer and four weekends over the course of a year. It is designed to maximise
participants’ opportunity for deliberate practice.
To develop participants’ core leadership skills, the Academy provides opportunities for leaders to:
• see core skills in action - by studying videos or live models of exemplary practice
• identify core skills - by engaging in discussions about what specifically makes observed
practices effective
• practise skills - by repeatedly practising leadership actions and receiving feedback.
Participants engage in live assessments of their skills via video, which they then review with
guidance to understand exactly where they were strong or need improvement.
Source: (Breakspear et al., 2017[11]), Developing Agile Leaders of Learning: School leadership policy for dynamic times, World
Innovation Summit for Education.

Effective implementation and capacity development

School leader appraisals can be used for summative purposes by determining consequences or rewards
based on performance. However, they can also serve a formative purpose by providing feedback and
identifying professional development needs. In Portugal and Northern Ireland (United Kingdom), the
engagement and participation of school leaders in professional development activities is part of their
appraisal process and criteria (OECD, 2013[26]). Other countries use the outcomes of the appraisal process
to design development plans on how school leaders can better support teaching and learning in their
schools.
Even when appraisal processes provide feedback for a school leaders’ professional development, these
processes may fall short of improving management and leadership practices. Research suggests the
following qualities of impactful professional development for school leaders:
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 NO. 2 – IMPROVING PROFESSIONAL LEADERSHIP IN ROMANIA’S SCHOOL SYSTEM | 21

• Learning happens within the context of work. This allows school leaders to refine their skills in
a real context when they are provided with time to reflect, practice and continuous feedback.
• Learning is personal. Viewing professional learning as a meaningful process and being
sufficiently motivated to practice and refine skills is part of embodying the social and emotional
values of being a school leader.
• Learning is continuous. Appropriate incentives and routines for school leaders to engage with
new learning is an important part of continuous professional development as they advance
through the profession (Breakspear et al., 2017[11]).

Sequencing reforms to support the professionalisation of school leaders

School leaders can play an important role in raising learning outcomes and tackling persistent educational
challenges like inequity and high early school leaving. However, this requires strong school leadership that
goes beyond traditional administrative and management responsibilities and plays a lead role in shaping
the quality of teaching and learning in schools. Figure 1 sets out a suggested sequence for introduction of
reforms to support the professionalisation of school leaders in Romania.

Figure 1. Sequence of reforms to support reform of school leader profession in Romania

Phase 1 Phase 2 Phase 3 Phase 4

Engage stakeholders
to develop
professional
standards for school
leadership (both
principals and other
leadership roles).
Identify evidence
base on the range of
competencies of
school leaders are
expected to have.
Ensure school
leaders
competencies are
sensitive to local and
national contexts.
Pilot and validate the Mandate an Review and revise
school leadership organisation to lead school leaders
competency initial preparation for competencies.
framework. school leaders. This
work should be done Evaluate
Revise the initial together with existing implementation and
selection process and national stakeholders. impact of new
preparation courses school leadership
for school leaders. Develop and carry out competencies,
a campaign to raise make adjustments
Ensure availability of awareness about the accordingly.
professional new framework
development among stakeholders.
opportunities for
school leaders so they
can develop the
competencies set out
in the new standards.
Develop school leader
appraisal tools and
support evaluators.

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This policy brief was undertaken by the OECD with funding from the European Union and implemented
in cooperation with the Structural Reform Support Service to support the Educated Romania project.

This work is published under the responsibility of the Secretary-General of the OECD. The opinions expressed and
arguments employed herein do not necessarily reflect the official views of OECD member countries.
This document, as well as any data and any map included herein, are without prejudice to the status of or sovereignty
over any territory, to the delimitation of international frontiers and boundaries and to the name of any territory, city or
area.
The statistical data for Israel are supplied by and are under the responsibility of the relevant Israeli authorities. The
use of such data by the OECD is without prejudice to the status of the Golan Heights, East Jerusalem and Israeli
settlements in the West Bank under the terms of international law.

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24 | NO. 2 – IMPROVING PROFESSIONAL LEADERSHIP IN ROMANIA’S SCHOOL SYSTEM

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