Principal selection for Qatar’s government schools: Policy makers’,principals’ and teachers’ perspectives

Abstract

Research indicates that principals are critical in school reform since the implementation of policies and practices is to a large extent determined by the role that principals play in educational change. This study examines the principal selection process used in Qatar for the government schools and identifies knowledge and skills necessary for effective principals from the perspectives of policy makers, principals and teachers working in these schools. Qualitative interviews were held with three policy makers, 21 principals and 82 teachers in focus groups. Findings provide insight into the principal selection process and demonstrate that principals should develop their decision-making skills, should advance as instructional leaders and, since government schools are very diverse, principals must be able to manage issues of nationality, culture and equality. Recommendations are offered to improve the principal selection process for principals working in Qatar or other countries in the Gulf Region.

Keywords

Administration leadership management schools

Introduction

The globalization of education has led governments to import educational reforms, policies and practices with the anticipation of improvement to their educational systems. More specifically, the Gulf Cooperation Council (GCC) countries’ efforts to rapidly develop education at all levels have led to numerous imported educational reforms. Donn and Manthri (2013) suggest that these reforms and practices are often borrowed based on the belief that the ideas behind them have been effectively tested in a developed country and that they will provide a quick fix and produce results for an aligning education system. The result is rapid and constant changes in educational policy. This is the case in Qatar where educational reform has dramatically changed the landscape of public education, as evidenced by a new educational structure; new restructured schools; the implementation of a standards-based system to guide schools, curriculum, assessment and professional development; registration and licensing for teachers; school leaders and comprehensive educational assessments (Nasser, 2017).

However, in the midst of these numerous changes, research indicates that when schools are engaged in educational reform, principals play a crucial role because the implementation of educational reform policies and practices relies on principals (Beycioglu and Kondakci, 2014; Leithwood et al., 2004; Waters et al., 2003). Consequently, the role of the principal in educational reform cannot be overstated. Currently in Qatar, effective principals are vital because the government schools have been involved in educational change over the last decade. Sun (2011: 4) states, ‘given the impact school leadership can have on student outcomes, providing every school with an effective principal should clearly be among the top priorities’. Hassenpflug (2013) also emphasizes that more focus should be placed on principal selection procedures used by schools. In this paper, we explain the principal selection process in Qatar and identify the knowledge and skills that should be part of the selection criteria for principals from the perspectives of 3 policy makers at Qatar’s Education Institute, 21 principals and 82 teachers who are currently working in the government schools. This paper provides insight into the principal selection process and offers specific knowledge and skills that could be included in selection criteria. These findings may also have implications for other countries in the Gulf region.

Background

Brewer et al. (2007) point out that, like many other countries, the leadership of Qatar views education as fundamental for future economic, political and social progress. By the late 1980s, the education system in Qatar became a topic of national concern. Qatari leadership determined that the country’s capacity to ‘participate in the global economy and enable its citizens to take full advantage of technological advances relies on upgrading the quality of the schooling provided and ensuring that what is taught is aligned with national priorities and international developments’ (Brewer et al., 2007: 1 ). The country’s leadership, employers and higher education institutions were troubled that schools were producing underprepared

K-12 graduates (kindergarten (K) and the 1st through to the 12th grade (1-12)) unable to contribute to Qatar’s social and economic development (RAND Solution, n. d.). Furthermore, the government was alarmed that the country’s educational system was ‘not producing high-quality outcomes and was rigid, outdated, and resistant to reform’ (Brewer, et al., 2007: iii). In an effort to shift this trend, the Qatari government contracted RAND to conduct a comprehensive examination of Qatar’s K-12 education system.

Initially, Qatar’s reform, coined ‘Education for a New Era’, emerged from the RAND corporation’s analysis and recommendations for Qatar’s education system (see Brewer et al., 2007). Nasser (2017) points out that the results of RAND’s analysis ‘identified the strengths and weaknesses of the existing system and pointed to two main reform priorities: improving the education system’s basic elements through standards-based system and devising a system-changing plan to address the system’s overall inadequacies’ (Nasser, 2007: 3). Furthermore, RAND identified schools’ lack of vision and mission, a dominating hierarchical structure, a lack of clear leadership and decision-makers, a reliance on higher authority and top-down decisions, and problems with the curriculum and teaching (Nasser, 2017). Based on RAND’s analysis, the Qatari government chose to develop a charter school model designed to decentralize education by providing the public with independent schools. This model was based on four principles: 1) autonomy for schools, 2) accountability through a comprehensive assessment system, 3) variety in schooling alternatives, and 4) choice for parents, teachers, and school operators.

However, worldwide, there is a trend toward a top-down approach to reform and this has led to: ‘deeply ingrained norms that revolve around the responsibility of initiating reform. In Arab countries, initiating reform is viewed as the sole responsibility of national governments. This paternalistic view of change is deeply reflected in the educational system’ (Karami-Akkary, 2014: 184). This view that government is responsible for change conflicts with the fundamental bottom-up philosophy of decentralization. Thus, throughout the reform, schools have faced a barrage of new top-down policies and practices attempting to improve education (Karami-Akkary, 2014). This has created a shift away from the original reform idea of the school as an autonomous entity with government-led authority (Nasser, 2017). For example, Zellman et al. (2009) indicate that the Ministry of Education and Higher Education (MOEHE) implemented various new policies and procedures that actually reduced autonomy and variety for schools and school operators in order to hold schools accountable. Currently, the MOEHE extensively monitors schools with comprehensive testing and systematic school evaluations to assess standardized student outcomes (Nasser, 2017). In particular and relevant to this study is the development and revision of the top-down, bureaucratically conceived and implemented Qatar National Professional Standards for Teachers and School Leaders (QNPSTSL). Originally developed in 2007 by Education Queensland International – the international branch of Queensland Department of Education – the standards provide the knowledge and skills principals and teachers need to be effective in their profession, and support Qatar’s reform efforts to improve learning (Supreme Education Council, 2007). These standards apply only to principals and teachers in Qatar’s government schools.

In January 2014, a committee was established to contemplate whether the professional standards for both teachers and school leaders should be revised. The QNPSTSL were assessed and the standards revised based on the seven years of experience gained from implementing the standards and feedback from school practitioners (QNPSTSL, 2015). The revised national professional standards for school leaders consist of 5 standards and 22 statements focusing on strategic leadership, leading teaching and learning, continuous improvement processes, leading individuals and teams, and leading and managing relations. The new QNPSTSL are used by interview committees in the selection of principals (see Table 1).

Table 1.

Qatar’s professional standards for school leaders.

National professional standards for leaders	Standards statements
Standard one: Leads and manages the school strategically	1.1 Leads strategic and school development planning 1.2 Manages and uses human and school resources effectively 1.3 Enables the Board of Trustees to provide advice and support in strategic planning and school performance 1.4 Uses data and best practices to inform decision making processes 1.5 Implements SEC’s policies and instructions and monitor their effectiveness
Standard two: Leads and manages teaching and learning in the school	2.1 Monitors and evaluates the quality of teaching and learning 2.2 Uses assessment data to monitor, evaluate and report on students’ progress and achievement, including ASEN and gifted and talented 2.3 Establishes safe, supportive and challenging learning environments 2.4 Leads, manages and promotes the implementation of SEC initiatives
Standard three: Drives high standards and continuous improvement	3.1 Establishes a calm, purposeful climate to drive learning and achievement 3.2 Models high standards of performance and professionalism 3.3 Focuses relentlessly on high standards of professionalism and student achievement 3.4 Uses assessment data and student performance data to drive improvement and success 3.5 Uses school self-review for continuous improvement
Standard four: Leads, manages and develops individuals and teams	4.1 Leads and develops individuals and teams to improve professional performance 4.2 Provides an atmosphere of positive, cooperative and mutual respect 4.3 Leads and manages change and innovation 4.4 Monitors the implementation of NPSTL
Standard five: Leads, develops and manages the schools-parents and community relationships	5.1 Communicates the school’s mission, vision and values to the school and wider community 5.2 Communicates effectively with parents to promote students’ learning and achievement 5.3 Establishes effective partnerships between the school and the wider community 5.4 Cooperates with the community to prepare a generation with the necessary life skills to become effective local and global citizens

Source: Qatar National Professional Standards for Teachers and School Leaders (2015).

SEC: Supreme Education Council; ASEN: Additional and Special Educational Needs; NPSTL: National Professional Standards for Teachers and School Leaders.

At this point, it is important to mention an important aspect of Qatar’s government schools, which is diversity. Because of globalization and modernization, Qatar has experienced unprecedented economic growth that has attracted a flood of high- and low-skilled expatriate workers, resulting in an imbalance between nationals and expatriates in the population and labour force (Al-Ammari and Romanowski, 2016). Arsenault (2015) suggests that this reliance on non-nationals has produced a workforce in Qatar that comprises roughly 90% foreign workers. This diverse workforce manifests in Qatar’s government schools as a significantly diverse faculty and student body where 27% of teachers are Qatari, while 66% are Arab nationals and 6% non-Arab nationals (Evaluation Institute, 2012). Approximately 51,000 of the 122,000 students attending Qatar’s government schools are non-Qatari students (Ministry of Education and Higher Education, 2017). Consequently, principals often face issues related to diversity. In summary, Qatar has spent over a decade improving its education system, leading to a wide array of system-changing educational policies and practices including the principal selection process.

Literature review

Principal selection procedures

Farkas et al. (2001) argue that recruiting a school principal is challenging because of the difficulty determining a candidate’s leadership ability. Herriot (2002) describes the traditional principal selection process as an exercise in data collection resulting in an organizational decision. The collective thinking is that data collection methods for principal selection should be formal and systematic (Ash, Hodge, and Connell, 2013). However, the methods frequently used to collect data such as interviews, résumé submission and reference checks (Palmer and Mullooly, 2015) are far from being systematic and can be inconsistent, complicated and highly subjective (D’Arbon, Duignan, and Duncan, 2002; Gronn and Lacey, 2006). Furthermore, these procedures and tools are often considered unsuitable for selecting principals (Blackmore et al., 2006) and decisions can often be based on intuition (Gronn and Lacey, 2006; Rammer, 2007). Finally, there are times when favouritism can become a problem in the principal selection process (Walker and Kwan, 2011) and who a candidate knows could play a role in selection (Gronn and Lacey, 2006)

Ash et al. (2013) point out two key elements that constrain the recruitment and appointment of effective principals: the shortage of qualified applicants; and the lack of worthwhile instruments that can be used to guide the recruitment, selection, and appointment process. Rosse and Levin (2003) developed three fundamental principles necessary for effective recruitment practices. First, recruitment should be based on a sound understanding of the attributes required for success, such as the knowledge, skills, abilities and other qualities vital for the particular position. Second, the system in place should utilize a ‘portfolio’ of assessments and/or screening tools that can determine the level of the candidate’s attributes. Finally, the tools used for candidacy assessment should be selected based on their accuracy, practicality, fairness and legality.

There are several practices that hinder attracting the best principals. Sessa et al. (1998) found that school districts and private sector search committees who hire executives often give superficial attention to the organization’s needs prior to the search and establishment of the job description. More specifically, Schlueter and Walker (2008) examined the recruitment criteria of principals in Iowa and found that educators infrequently accessed school data and research when making personnel and instruction decisions. They also found that appointment/recruitment committee members often do not consider national/state standards and at times fail to align expectations for principals and the criteria for principal selection to the specific school or district goals. This can lead to the appointment of principals who may not be successful in the particular context. It is often the case that principals come from within the district or nearby districts (Normore, 2004; The New Teacher Project, 2006), which could reduce the quantity and quality of these candidates. Although these local principals might be good candidates, recruiting new principals requires widening the search and building a larger candidate pool in order to attract more and possibly better candidates.

Principal selection criteria

Selection criteria can be defined as the framework and foundation for the assessment of candidates seeking to be principals (Kwan and Walker, 2009). Clifford (2012) suggests that the selection criteria are crucial since a new principal can affect the vitality and student achievement rates of a school. Ash and Hodge (2016) contend that the selection of principals should be based on criteria that exemplify practices that promote higher learning achievement and performance. These practices include focusing on the school’s direction, building a powerful organization, giving life to data, ensuring a student-focused vision and orientation, and leading learning.

Additionally, the Wallace Foundation (2013: 4) identified five key practices that are characteristics of effective principals and should inform the determination of criteria when selecting a principal. Accordingly, effective principals have the knowledge and skills for ‘(1) shaping a vision of academic success for all students, (2) creating a climate hospitable to education, (3) cultivating leadership in others, (4) improving instruction, and (5) managing people, data and processes to foster school improvement’. Therefore, it is important that the criteria for principal selection clearly articulate what school leaders should know, understand and be able to do (Victoria State Government, 2016), and should be aligned with the specific needs of the particular school (Clifford, 2012).

Principal selection worldwide

Su, Gamage, Mininberg (2003) note that the school leader selection process varies from one country to another because of cultural and political differences. Worldwide, there are various systems for principal selection that should be considered when examining Qatar’s principal selection process. The selection processes of Australia, the USA and Singapore are discussed below because each country either served as a model of some aspect of schooling or had influence or direct involvement in the development of education policies and practices in Qatar. For example, the Australian government and other educational consultants have played a role in the Qatar educational reform. More specifically, the Australian Department of Education and Training has conducted surveys providing recommendations while Education Queensland International of Australia drafted the professional standards for teacher and principals in 2007. The USA has been actively involved in educational reform in Qatar, starting with RAND’s initial analysis of Qatar’s K-12 education system and Qatari leadership's decision to develop their educational reform based on a charter school model similar to those in the US. In addition, there have been numerous American educational organizations and consultants who have been actively involved in Qatar’s reform. Finally, Singapore has provided consultation regarding various ICT projects and e-education programmes providing teachers with information on Singapore’s experience in ICT development. Also, Singapore has been involved with Qatar Leadership Centre, providing consultation on school leadership with programmes that have impacted school principals .

Concerning principal selection, in Victoria, Australia, a selection panel recommends the best applicants to a school council on the basis of the available evidence (qualifications and experience). School councils are developed in order to recommend individuals who can be principals (Victoria State Government, 2016). Selection is based on the state government’s developmental learning framework for school leaders which ‘provides a comprehensive framework of five critical domains of leadership that the Department believes captures the essential work of school leaders’ (Victoria State Government, 2016: 6).

According to the US Bureau of Labor Statistics, principals in US public schools are required to have a bachelor’s degree in education and typically hold at least a master’s degree in educational administration or leadership (Bureau of Labor Statistics, 2017). In addition, principals need a teaching licence and are required to have one to five years of teaching experience, and to demonstrate previous administrative work in schools (LeTendre and Roberts, 2005).

These requirements vary between private and charter schools. Although the process can vary from state to state, the common principal selection process for US public schools usually includes the vacancy announcement, an initial screening process, an interview, the decision process and school board approval (Palmer, 2016; Palmer and Mullooly, 2015; Rammer, 2007).

In Singapore, the principal selection process carefully identifies and develops principals. Keo (2016: para 9) states, ‘Singaporean schools operate under the belief that poor leadership is a major reason for school failure, and by choosing talented individuals early in their careers and investing in them heavily, schools can avoid this problem’. First, teachers are recruited from the top third of high school graduates and this serves as the sole pool for the selection of school leaders (Keo, 2016). The use of career ladders allows teachers to develop into leadership positions within the school. Aspiring principals must first be promoted along the leadership track from classroom teacher to subject or level head, to head of department, to vice principal, and then principal (Keo, 2016). The use of a rigorous promotion system ensures that principals possess the necessary knowledge and skills.

To better provide context, principal selection processes in Turkey and the United Arab Emirates (UAE) are briefly addressed. Arar et al. (2017) found that Turkey did not have a systematic selection process for principals. The principal selection process was organized through regulation rather than by global models (Wildy et al., 2010), with principal selection a mainly political and ideological endeavour with nepotism often intruding on principal selection processes (Arar et al., 2017).

In the UAE, school principals are chosen (Al-Taneiji, 2012) and assigned to schools (Thorne, 2011) by the Ministry of Education. Al-Taneiji (2012) points out that in order to be considered for a principal position in a government school in the UAE, the candidate must already be at the level of vice-principal or subject supervisor. In addition, they must have: a bachelor’s degree, three years of experience teaching in K-12 schools, an ‘excellent’ performance record in the last year and a ‘very good’ performance record in the previous two years, an International Computer Driving License and a minimum score of 500 in a test of English as a foreign language or a score of 5 in the International English Language Testing System (Al-Taneiji, 2012: 2).

Upon meeting these requirements, candidates must score a minimum of 75 points in an interview that attempts to assess their knowledge of educational principles and management skills. Also, the interview is used to determine if the candidate

is highly capable in the areas of strategic planning, supervision, decision-making and time management, and knows how to properly conduct a meeting…reveal the level of the candidate’s interpersonal skills, including his or her ability to work with others and consider diverse viewpoints (Al-Taneiji, 2012: 2)

Selected candidates must attend training workshops on strategic planning, school supervision, school community, social issues, and assessment and earn a good performance report after one year as a principal. The UAE has also established professional standards for educational leaders (Hourani and Stringer, 2015; Ibrahim and Al-Mashhandany, 2012) and provides various professional development programmes to assist in the development of principals. For example, the Abu Dhabi Education Council founded a programme titled Qiyada designed to educate principals ‘in the development and training in strategic leadership, methods of leading people, organizations and communities’ (Hourani and Stringer, 2015: 307).

Principal preparation programmes

In most developed countries, the preparation and development of principals is formally institutionalized with universities and colleges establishing educational leadership programmes (Ibrahim, 2011). For example, both the USA and England required school principals to be licenced or certified through specific preparation programmes (Al-Taneiji, 2012). More specifically, the USA provides various postgraduate degrees for principals who, upon completion of the programme, can then pursue their certification or licensure. Although these programmes differ in characteristics, design and outcomes, all serve the purpose of preparing and developing school principals before and after their appointment as a school leader. Many of these programmes are aligned to national educational standards such as the Educational Leadership Constituent Council (ELCC) to enhance school principal qualifications (Machado, 2012).

In Saudi Arabia, principals are annually selected by the Ministry of Education and appointed to principal preparation programmes designed in collaboration with the Ministry of Education and Saudi universities (Ministry of Education, 2012). Altuwaijri (2009) notes that Saudi principals must have previous experience as a school principal. This experience is required before they can be appointed to a school principal preparation programme. However, Altuwaijri (2009) points out that Saudi’s Ministry of Education only appoints 300 from over 35,397 school principals to school principal preparation programmes creating a backlog where ‘potential appointees might have to wait a few years before they can attend these programmes’ (2).

In Qatar, principal preparation programmes have fluctuated over the past decade during the education reform. Currently, principals are required to complete a programme titled Tamkeen that includes two levels; Principal Core Level One (PC1) that centres on strategic leadership, monitoring progress and leading change, and Principal Core Level Two (PC2) that includes advancing strategic leadership, developing student achievement and developing a culture of continuous learning (Romanowski et al., 2018 ). Romanowski et al. (2018) states, ‘The goal of PC1 and PC2 is to enable principals to manage and lead change among individuals and groups and delegate tasks’ (14). Within the programme, principals receive instruction about policies and school operation and new principals are given a mentor to help them during the first semester or longer if required (see Romanowski et al., 2018 for details regarding the principal preparation process in Qatar). There are additional yearly mandatory and optional programmes for school principals. For the 2018/2019 school year, the MOEHE has provided eight mandatory and three optional programmes that vary in duration. Examples of mandatory programmes include Educational Empowerment of School Principals, Performance Appraisal Management, and Ethical Leadership. Examples of optional programmes include Crisis Management, and Supporting Gifted and Talented Students.

The effective selection of principals

According to Walker and Kwan (2011), research indicates that the selection of principals remains an ambiguous science. However, there are several factors identified by researchers that can improve the effectiveness of the principal selection process and also reduce potential bias. First, the effective selection of principals requires the development and application of standardized procedures and measures for reviewing applications (Walker and Kwan, 2011). This can reduce personal bias (Blackmore et al., 2006). However, the best selection processes and criteria should be context specific. Also, those involved in principal selection should develop detailed criteria that are applied equally to all candidates and appointment decisions should be based on those criteria (Baltzell and Dentler, 1983). Second, Wildy et al. (2011) suggest that selection personnel must be trained to avoid bias. Ash et al. (2013) recommend using a scoring system containing written documentation, involving a rationale throughout the selection process to further reduce bias. Also, if performance tasks are part of the selection process, these should be assessed using reliable and valid scoring procedures (Wildy et al., 2010). Finally, it is important to ensure that selection personnel withdraw themselves from the process if they have a personal or professional relationship to any of the candidates that could pose a conflict of interest (Palmer and Mullooly, 2015).

Doyle and Locke (2014) argue that historically, few school districts identify the core competencies that are required for successful principals. Nevertheless, in their study of five urban school districts in the USA that worked to improve their principal recruitment procedures they found that an effective selection process must reflect best practice from education and other sectors. More specifically, these schools identified: ‘in detail the competencies and skills they believe principals should possess. They then provide opportunities for candidates to demonstrate these competencies and skills and evaluate candidates against them’ (Doyle and Locke, 2014: 21). These schools used interviews and various activities such as essays and writing samples, responses to scenarios, and data-based action plans aimed at evaluating the candidates’ skills and competencies.

Huber and Pashiardis (2008) suggest that a ‘rigorous and systematic approach’ is needed for principal selection. Accordingly, the approach should be based not only on what is expected from school leaders, but also what is expected of the school leader in the particular school context. This approach must be based on research about effective school leadership and school improvement. The selection process should contain mixed methods using:

test instruments for attributes and traits but also for cognitive competencies, simulation exercises and observations in real situations for present behavior (skills and abilities), biographical documents and references for past performance and achievements, interviews and letters of motivation to find out the candidate’s motivation and attitudes. (Huber and Pashiardis, 2008: 196)

Also, the principal selection process is not about rewarding experienced teachers for their merits but rather concern should be about the future performance of the candidate with the goal of appointing a competent school leader (Huber and Pashiardis, 2008).

Finally, an effective selection process does not end with appointment – the process requires quality preparation and ongoing support for principals (National Conference of State Legislatures (NCSL), 2010). Rigorous standards should be developed, and principals should be held accountable for meeting those standards. Furthermore, governments and schools need to develop conditions and incentives that support leaders in meeting professional standards and also promoting student achievement (NCSL, 2010). The fundamental issue is that ‘all components of a leaders’ career continuum—recruitment and retention, selection, preparation, mentoring, licensure, professional development and evaluation—must be inextricably linked’ (NCSL, 2010: para. 4).

Research methodology

Research methods and design

This research is based on the interpretive paradigm ‘which advocates from a theoretical viewpoint the study of a research participant’s experiences which are taken at face value’ (Van Esch and Van Esch, 2013: 219). The study utilizes a qualitative approach to explain the principal selection process currently being used in Qatar for government schools. Sutton and Austin (2015) point out that qualitative research can help researchers gain access to participants’ thoughts and feelings which can facilitate insights into the meaning that people ascribe to their real-life occurrences. Therefore, qualitative research is an effective approach to examining the experiences of policy makers, principals and teachers who have experience of Qatar’s government schools and interviewing is a suitable tool for collecting responses.

Bhattacherjee (2012) suggests that exploratory research is beneficial when researchers study new areas of research and aim to generate initial ideas about an occurrence. There are few if any studies that examine the principal selection process in Qatar. This study is exploratory in conducting semi-structured interviews and focus groups with policy makers at Qatar’s Education Institute, principals and teachers. The study presents findings which suggest the knowledge and skills that should be considered in the principal selection process. The research objectives for the study are as follows:

To develop an understanding of the principal selection process in Qatar

To identify the knowledge and skills that should be part of the criteria for selecting principals

Sample

The sample for this study comprised three different groups. The first group included three policy makers from Qatar’s Education Institute. The second group included 21 principals from government schools in Qatar. The 21 schools included 2 all male and 5 all female primary schools (grades 1 to 6); 6 all male and 3 all female preparatory schools (grades 7 to 9); and 4 all male and 1 all female secondary school (grades 10 to 12). The third selected group included 82 teachers (42 female and 40 male teachers) who taught in 12 of the 21 schools participating in the study. The sample included 27 female and 18 male primary school teachers; 16 male and 5 female preparatory school teachers; and 8 male and 8 female secondary teachers.

Principals in the randomly selected schools were presented with a letter confirming that the project was approved by the MOEHE. The research project was explained, and upon the principal’s acceptance, a request was made for teachers in the school to be involved in the study. Each principal arbitrarily decided if teachers could participate. If permission was granted, all teachers in the schools were invited to participate. Thus, all informants were volunteers in both interviews and focus groups.

Participant consent

The researchers obtained written approval from Qatar’s MOEHE, which is the required procedure for conducting research in government schools. Upon MOEHE approval, the researchers applied to the university internal review board for ethical approval which was granted prior to data collection. Concerning participant consent, the principal of each school, who represents his/her school and consequently all other informants, signed a letter of consent. This is customary practise when conducting research in government schools.

The purpose of the study was explained to all participants. Participants were told they did not have to respond to any question and were also told they could to withdraw at any time during the study. All interviews and focus groups were conducted in Arabic, recorded if participants’ approval was granted, and transcripts were translated and written up in English. If audio recording was not possible, detailed notes were taken.

Data collection and analysis

In this study, we collected data on the selection of principals for government schools in Qatar using semi-structured interviews and focus groups with policy makers, principals and teachers. Because of time constraints for the officials at the Education Institute, all three were interviewed all together in the same interview by two researchers and one research assistant . The principals took part in semi-structured interviews in their offices, with each interview lasting between 25 and 45 minutes. Teacher focus groups were conducted in an available room in the school. Within the groups, a question was asked to begin the discussion, and individuals expressed their thoughts. Each member of the group was asked to respond to each question. Probing was used when appropriate, and focus groups lasted between 30 and 45 minutes. The 15 focus groups comprised 5 groups of 4 teachers, 3 groups of 5 teachers, 3 groups of 6 teachers, 3 groups of 7 teachers and 1 group of 8 teachers, in 12 of the 21 schools.

Upon completion of the data collection, the material was transcribed. Preliminary descriptive categories were developed and used to identify patterns. These patterns were coded and organized to facilitate the identification of meaningful themes. Two of the investigators analysed the data. Quotes relevant to the themes were selected with the aim of providing an accurate account of the skills and knowledge required of principals from the informants’ perspectives. Bracketing was used to ensure validity of the findings (Chan et al., 2013).

Findings

The results of the study are presented in two sections. The first describes the actual principal selection process and the selection criteria used. To ensure confidentiality and identity protection, each participant is identified using an interview number for principals and a focus group number for teachers. The letters P and T are used to identify principals and teachers. To identify the specific school grade level of the participants, the following letters are utilized: PI (primary school), PE (preparatory school) and S (secondary school). All three officials at the Education Institute were directors of various departments that play a significant role in the government schools. In order to maintain confidentiality, each individual is identified with the letter D (director) and a number.

The principal selection process in Qatar: Education Institute directors

The interviews with policy makers at the Education Institute provided a detailed description of the principal selection process for Qatar’s government schools. At the time of the interview, the principal selection process was in transition with several revisions under consideration. As a result, there were no published documents about the system at that time, so these individuals were valuable participants in the research because they possess in-depth knowledge about the process of employing school principals in Qatar and its history. Regarding the selection of principals prior to 2013, D2 pointed out that ‘candidates used to present themselves individually or were nominated by others such as their supervisors or even the Ministry of Education’. D2 continued stating that ‘candidates were interviewed, and we had a list of questions. Questions were based on the professional standards. We also asked other questions about administrative and communication skills…We considered the way candidates resolved problems’. Then , the following steps were followed for principal selection:

The Education Institute selected candidates for the role of school principal who then took part in a preliminary programme to prepare school leaders. These candidates were then assessed to determine if they possessed the basic knowledge, skills and characteristics to become a principal.

Candidates were given grades and classified according to those grades.

The results of the assessment were sent to the members of an interview committee composed of individuals from the Education and Evaluation Institutes prior to the candidate’s interview.

The interview committee used a list of questions based on the QNPSTSL and candidates were also asked questions to determine their administrative, communication and problem-solving skills.

The assessment grades and the results of the interviews were used to nominate a group of successful candidates.

At this point, it is important to mention Qatar’s 'Qatarization Policy that sets quotas for the percentage of Qataris employed in specific sectors, including Independent schools’ (Zellman et al., 2009: xxii). This policy is relevant to Qatar’s principal selection process because all principals must be Qatari nationals.

After 2013, the initial selection committee consisted of members from both the Education and Evaluation Institutes. Open positions for school principals were advertised in local newspapers listing the various criteria, such as 10 years of educational experience. Individuals could still apply, or they could be nominated as before. The preliminary selection was made, and selected individuals were called for an interview. The principals, department chairpersons and subject coordinators who passed the interview were contacted for additional information. The final candidates selected then entered the preparation programme and upon completion, another process took place to select the required number of principals.

Currently, either the Office of Educational Supervision or the Government Schools Office selects potential principals based on observations of the candidates’ work in schools as coordinators, vice principals or in other capacities. Reports are written detailing the schools’ culture, the students’ academic results, the leadership ability of the candidate and the level of success achieved regarding effective teachers. The Committee of Government Schools Affairs interviews candidates and selects the best. The committee is headed by the Director of the Education Institute and includes directors of the following offices: Common Services, Policy and Research, Educational Supervision, School Evaluation and Legal Administration. As previously mentioned, the committee utilizes a form for the interview based on the QNPSTSL. Criteria used to select school principals are as follows.

Qatari National

Academic Degree (no less than bachelor’s degree)

Academic experience (10 years minimum)

Successful completion of the interview

Successful completion of the required training programme (Principal Core Level 1 and Principal Core Level 2 previously discussed).

The individuals from the Evaluation Institute thought the system had improved and D1 stated ‘the new system is an initiative to attract school leaders to apply for leadership positions…to encourage Qataris to apply because they are not attracted by this field, especially males’. These informants believed that the movement away from advertising for leadership positions to receiving nominations from experts is an improvement to the system. In addition, they believed that the preparation programme before selection has improved the quality of those who apply to be principals. Furthermore, D3 stated that the programme is now ‘preparing and building a second group of leaders to be vice principals. This will improve the pool of individuals who may be principals in the future.’ From the perspective of these individuals, it is clear that the changes to the principal selection process have been positive.

The principal selection process in Qatar: Principals’ and teachers’ perspectives

Unlike the three individuals from the Education Institute discussed above, the principals and teachers were not concerned about the actual process; instead, their discussion centred on the qualifications and experiences of future principals. The 21 principals interviewed provided several suggestions regarding the selection and preparation of principals. Regarding the selection of principals, 80% of principals interviewed suggested that new principals should be selected from the existing academic and administrative vice principals or those who have experience as administrators. This indicated these principals understood the need for experience within the government school system as important for effective school leadership. One principal (P1PE) stated that the selection of principals should include a ‘preparation of a second row of principals among the vice principals’.

In addition, administrative experience was further discussed when one principal (P2PI) suggested that ‘principals should not be selected from outside of any educational organization’. This view was supported by another principal (P5 S) who stated, ‘before selecting a principal, look at his CV. If he is not from the education field, he should be discarded’. However, only four principals mentioned that teaching experience is necessary when selecting a principal.

Teachers were also concerned about experience as a factor for principal selection; the focus group views could be summed up by the following quote from one teacher (T1PE) who stated, ‘principals should have experience as a teacher, coordinator and vice principal before becoming principal. Principals should be educationalists and not someone outside of the education system’ . Furthermore, this same teacher argued that principals should possess ‘a university degree not less than bachelor’s degree and preferably in education’. This supports the current selection process where candidates must have at least a bachelor’s degree, although teachers thought it should be in education and this is not specified in the current selection process.

Regarding teaching experience, Johnson (2008), citing the National Center for Education Statistics (2007), stated that the vast majority of principals in US public and private schools bring strong teaching experience to the position. Accordingly,

ninety-five percent of elementary principals have at least three years of teaching experience, and two-thirds have 10 years or more…secondary principals—94 percent have taught more than three years, and more than 6 in 10 have taught for more than a decade. (Johnson, 2008: 75)

Research indicates that previous experience in a school leadership position influences a principal’s performance. Clark, Martorell and Rockoff (2009) found that principals improve with every year of experience, particularly in the first few years on the job. In addition, they found higher performance for inexperienced principals who had previous experience as an assistant principal in the same school and ‘a positive relationship between principal experience and school performance, particularly for math test scores and student absences’ (Clark, Martorell and Rockoff, 2009: iv). Branch et al. (2009), using data from Texas, confirmed the importance of experience, finding that principals with experience develop schools that tend to be more effective in terms of student math achievement. The study also indicated that low-achieving schools are more likely to have principals who are in their first year at the school and are least likely to have principals with at least six years of experience.

Selection criteria: Policy makers, principals and teachers

When discussing selection criteria for principals, the officials at Qatar’s Education Institute suggested that the QNPSTSL and the programmes that are offered for principals contain the necessary knowledge and skills that principals need to be successful in a Qatar government school. These policy makers suggested that since these programmes are developed based on the QNPSTSL, the knowledge, skills and dispositions embedded in the standards and programmes are sufficient for principals. In addition, the QNPSTSL are used as part of the criteria and selection process for principals and these policy makers indicated that they were satisfied with the process, acknowledging that the process needs to be flexible.

Principals and teachers, on the other hand, indicated that there were several additional skills that needed to be considered and included in the selection criteria and processes for principals. The skills indicated by both principals and teachers were similar, and included decision-making skills, instructional leadership and an awareness and willingness to address diversity defined as cultural and nationality differences. However, teachers indicated a concern that principals needed to possess the capacity for equal treatment of faculty, parents and students.

Decision-making skills

The participants in this study suggested specific decision-making skills that principals must possess or develop. One principal (P4PI) stated, ‘principals should be able to effectively analyse problems when making decisions’, while another principal (P5PI) stated that principals need the ‘skills to find good solutions’. Not only should principals be able to make decisions, but they also ‘need to have a plan to implement decisions that are made…and make fair decisions’. Both principals and teachers emphasized the need for shared decision-making. Principal P8PE stated, ‘others count in all decisions’, while another principal (P9PI) suggested that principals ‘share the decision-making process by involving others’. T11PE thought principals should ‘allow and encourage others to be involved in school decision-making…this develops teachers’.

Previous research supports participants’ concerns that effective principals must be capable of identifying problems (Bennet and Bennet, 2008; Kepner and Tregoe, 2005; Marzano, 2014) and then be able to analyse school problems (Lunenburg, 2010; Wallace Foundation, 2015; Yukl, 2002) in order to provide effective solutions (Bush, 2008; Kepner and Tregoe, 2005; Levin and Datnow, 2012). In addition, as these participants suggested, the importance and advantages of shared decision-making and involving teachers in the decision-making process are supported by previous research (Aksoy and Ural, 2008; Cheng, 2008; Gulcan, 2011 ; Leithwood et al., 2004; Leech and Fulton, 2008; Lin, 2014; Mualuko et al., 2009; Sarafidou and Chatziioannidis, 2013).

Instructional leadership

Principals and teachers agreed that principals should be responsible for the development of faculty and staff and they must have the knowledge and skills to be effective in ‘guiding and developing teachers’ skills and abilities’ (P15PE). This requires that principals are ‘able to diagnose teachers’ professional needs and offering faculty needed professional development’ (P16PI) and ‘offer quality workshops’ (P13 S). As one teacher (T4PI) states, principals ‘need to learn to diagnose teachers’ needs to be able to offer them the suitable professional development’. Additionally, principals need to develop plans for follow-up of professional development, which must be a continuous process of providing new skills and building on existing skills. Teachers argued that principals must be able to determine if professional development is effective and relevant to the particular needs of their school. Furthermore, principals should be knowledgeable about ‘teaching strategies, learning theories, assessment methods and planning’ (T9 S), which are essential to developing teachers. Principals need to ‘play a role in promoting quality teaching’ (T4PI) and be ‘aware of and work with teachers on improving student learning’ (P13 S).

Research indicates the significance of the role of the principal in improving instruction (Leithwood et al., 1998; Newman and Wehlage, 1995). Previous studies on principals and teaching demonstrate the importance of principals as instructional leaders who possess in-depth knowledge of instruction in order to develop teachers and improve students’ learning (Blasé and Blasé, 1999 ; Bottoms and O’Neill, 2001; Day et al., 2008; Wallace Foundation, 2012). Williams, Kirst, and Haertel (2005) conducted a large effective schools research project in California and noted the importance of principals implementing a coherent instructional programme in their school. Waters et al. (2003) conducted a meta-analysis, defining effective educational leadership through several key characteristics, including a focus on instruction and assessment, the ability to monitor and evaluate teachers, provide intellectual stimulation and the development of the faculty.

Jenkins (2009) suggested that principals must move beyond traditional roles as school managers and administrators and devote time to developing knowledge and implementing curricula, instruction and assessment; this must include providing instructional resources, being good communicators and being visibly present. The instructional leader must increase focus on teaching and learning (Datnow and Castellano, 2001) by providing instructional guidance (Leithwood et al., 2004) supporting instruction and best practice (Thomas and Bainbridge, 2001).

Diversity, cultural tolerance and awareness

When discussing diversity and cultural issues, it is important to reiterate two previous points about Qatar principals and schools. First, all principals must be Qatari nationals and this coupled with the government school’s vast faculty and student diversity demonstrates how diversity is a central element in government schools that principals must address . This is evident in these findings. The majority of principals indicated a need for principals to understand other cultures, including cultural needs and differences. Principals’ comments when asked about the knowledge and skills that are relevant for Qatar included: ‘the desire and ability to accept others and their cultures’ (P5PI); ‘to deal with all people with respect’ (P20PE); ‘respecting and accepting different cultures' (P17PE) and ‘respect for other nationality’ (P13S).

Just over half the teachers suggested that principals must consider cultural differences when working with teachers, parents and students. Principals must possess knowledge of different cultures, as illustrated by the following teacher’s comments: ‘principals need knowledge of different cultures, teachers and students from different nationalities’ and ‘should learn about cultures of other Arab countries’ (T4PI). Additional comments from the focus groups, such as that principals need to be ‘skillful in dealing with different nationalities’ (T8PI, T4PI), indicated a need for principals not only to have knowledge but also to acquire the 'essential skills needed to work with others from different cultural backgrounds'(P13S) and ‘accepting cultures of others and promoting a positive culture’ (P15PE) .

Finally, some of the teachers suggested that principals need to develop a sense of equality when dealing with faculty, parents and students. These teachers indicated that principals ‘should create an atmosphere of tolerance and acceptance of other cultures’ (T3PI) in schools and not only respect this diversity but practise fairness when dealing with diverse individuals. There was a concern within the focus groups that principals need to ‘accept different cultures’ (T3PI), provide ‘fairness and not favour one culture over another’ (T9 S), and ‘spread a culture of respect within the school’ (T4PI).

These findings are supported by previous scholarship addressing principals and diversity. One issue is that principals are often not prepared to regulate their actions to address diversity issues in their schools (Madsen and Mabokela 2005). Urquhart (2002) suggests there is a need for principals to understand diversity and relational issues and that they should capitalize on the richness that diversity can bring to their schools. Terrell and Lindsey (2008) suggest that principals must be ‘culturally proficient’ leaders who can access and use their own cultural knowledge in order to manage and utilize diversity in their schools to encourage teachers to learn about others. Principals must be capable of positively addressing diversity within their schools (Combs, 2002). Concerning issues of fairness, Sungjoo and Rainey (2014) studied how perceived organizational fairness coupled with diversity management relates to employees’ job satisfaction in public organizations. The results demonstrated that when employees perceived higher levels of organizational fairness and a more effective management of diversity, they also reported higher job satisfaction.

Discussion

Overall, Qatar’s principal selection process has both similarities and differences from processes for principal selection in other countries described previously. The Singaporean system differs from Qatar’s selection process because the former is an intentional system where leaders are identified early in their teaching career. The Qatar system lacks the use of career ladders, a well-defined promotion system and any other mechanism that ‘grooms’ leaders, unlike Singapore. Although principals in Qatar are required to complete several development programmes, these are completed over a short period of time and do not include teaching and school experience, unlike the system in Singapore, which ensures that principals possess particular knowledge and skills, include teaching experience. The Australian system for principal selection includes a school council that provides recommendations. This is reflected in Qatar’s principal selection process, in that Qatar’s Committee of Government Schools Affairs collects information and interviews candidates utilizing the QNPSTSL. Qatar’s system differs from that of the US, where future principals must first complete the appropriate degrees in teacher education and receive a licence or certification. In the US, principal positions are advertised, and school districts interview and select principals based on their credentials, such as education, experience, past performance and recommendations. Finally, compared to the principal selection process used in the UAE, Qatar’s system has a similar requirement of previous academic experience. However, the UAE policy specifically defines this requirement as experience as a vice-principal or subject supervisor and teaching experience. Qatar’s policy does not define what academic experience is required. One could argue that a loose definition of academic experience might be helpful in order to meet demand for principals in view of the requirement of Qatari nationality and the limited pool of candidates for the principal positions. Also, Qatar’s principal selection process does not currently include a formal assessment after one year as a principal, however school counsellors ‘visit new principals weekly and experienced principals bi-weekly. Recommendations are written for improvement and assistance is provided to support the principal in his/her work’ (Romanowski et al., 2018: 14).

An important difference between the principal selection process in Qatar and that of the other principal selection systems examined in this article is the requirement that all principals must be Qatari nationals. This requirement can be directly linked to the Qatarization policy previously mentioned. This limits the pool of candidates for principal positions and could reduce the quality of principals.

Findings from this study demonstrate that both principals and teachers indicated that skills related to decision-making, instructional leadership, and an awareness and willingness to address diversity, defined as cultural and nationality differences, are essential for effective principals. Many of these skills are embedded within the QNPSTSL and, if developed by principals, could prove valuable.

Matching principals’ and teachers’ views of the essential skills that principals need may be viewed as a necessary condition for creating a successful school culture. Creating an atmosphere where teachers’ perceptions of leadership match the behaviours of their school leaders can promote a shared vision (Darling-Hammond, 1999 ) and distributed leadership. Previous research (Waters et al., 2013; Williams, 2013) reported that creating an atmosphere of shared beliefs and vision is one of the leadership practices associated with a higher level of school performance. While other studies (Huaserman and Stick, 2013; Wallace Foundation, 2013) reported similar findings, the results from this current study indicate that more emphasis is placed on nationality. In this study, nationality appears to be the most prominent defining criterion for diversity. This aligns with Romanowski et al.'s (2018) findings demonstrating that principals in Qatar were aware of diversity and issues arising in from diversity in schools, but their conceptualization of diversity was limited to differences in nationalities, cultures and religions. The focus on nationality seems to be a unique feature of the Qatari system.

Romanowski (2015) identified and discussed several additional issues that principals face in Qatar that could be aligned with principal recruitment and selection. These include principals’ ability to move away from tradition understandings of education and educational practices and to embrace more diverse and modern approaches to teaching that include more ‘student-centered methods that encouraged critical thinking and problem solving’ (Romanowski, 2015: 93). Principals must also embrace a philosophical shift in the roles of school leaders. This shift includes ‘an increase in the involvement of others such as faculty and parents, a release of power, control and decision-making, more delegation and less micro managing’ (Romanowski, 2015: 93). Romanowski (2015) points out several additional skills required by principals in Qatar including the ability to understand and address administrator and teacher resistance; the willingness and ability to adapt and change when necessary; and the capacity to adapt their leadership style when required. Principals should also possess an openness to different points of view and acquire the ability to manage change (Romanowski, 2015).

Finally, as discussed above, it is important not to view principal selection in isolation. Rather, principal selection should be viewed as a multicomponent system that includes recruitment, selection and professional development based on rigorous professional standards which can be used to hold principals to account and provides a strategy to retain effective school leaders. With this complex understanding of principal selection, Qatar will improve not only in the selection of principals but also the performance and effectiveness of school leaders.

Recommendations

The relationship between principal and student achievement demands the selection of the best qualified principals to lead schools. This study describes the current principal selection process in Qatar, which is linked to the QNPSTSL. Additionally, the study found several additional areas that principals and teachers viewed as important and which should be included in the selection criteria. Based on these findings, we offer several recommendations for the selection of principals in Qatar.

Since the various skills and knowledge that are deemed necessary for a principal could be better assessed in context, one suggestion is to provide candidates with case studies and ask related questions regarding how they might respond in particular situations. The use of performance tasks linked to desired skills and knowledge with valid scoring procedures could improve principal selection (Doyle and Locke, 2014; Rosse and Levin, 2003; Wildy et al., 2011).

The MOEHE should consider examining if and to what extent the intended outcomes of the selection process for principals are achieved by the current process. This information would be valuable and could be used for continuous improvement of the principal selection process.

More Qatari nationals should be identified and recruited as teachers with the intention of developing them to be principals. These individuals would gain the necessary school and teaching experience. Attracting Qataris into the field of education is a challenge and the MOEHE in Qatar is currently working on this issue.

The MOEHE should consider examining the overall principal selection process including initial preparation and certification/licensing policies and ongoing principal certification/licensure. This is significant in Qatar where all principals must be Qatari nationals and many applicants lack the teaching experience that is an asset for school principals. This analysis can provide valuable data that can be used to develop an overall procedure and requirements that will provide principals with the necessary knowledge and skills to be effective school principals. Review of the process may also provide opportunities to consider additional programmes for principal development such as mentoring that would provide continuous professional development.

Currently, the principal selection process relies on the QNPSTSL. The MOEHE might consider aligning the selection and preparation of principals to international standards and benchmarks such as the ELCC standards or the Interstate School Leaders Licensure Consortium Standards. As the Master of Education in Educational Leadership programme at Qatar University, the only graduate program in educational leadership offered in Qatar, is aligned with the ELCC standards, it might be useful to align the principal selection process with the ELCC standards.

In closing, the school principal is vital to education reform and to improving and sustaining student achievement. Therefore, the best qualified principals should be leading Qatar’s government schools at this critical time.

Footnotes

Declaration of conflicting interests

The authors declared no potential conflicts of interest with respect to the research, authorship, and/or publication of this article.

Funding

This research reported in this article was made possible by a National Priorities Research Program Grant [No. 80055001] from the Qatar National Research Fund (a member of The Qatar Foundation).

ORCID iD

Michael H Romanowski

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