The Impact and Transformation of Education Policy in China: Volume 15

Tingting Qi's chapter titled, “Moving toward Decentralization? Changing Education Governance in China After 1985,” provides the historical and policy context for the volume. This chapter integrates the post-1978 Chinese educational reforms into the socioeconomic context of China. The special contribution of this chapter is that it explores the complexity of educational decentralization in China through an in-depth analysis of changes in education finance, administration, and curriculum. Qi reviews prior studies, government documents, laws, and regulations related to Chinese education reform since 1978 within the context of education decentralization in China. Qi also demonstrates that China's educational policy reforms are moving China toward “centralized decentralization” because decentralization is driven by a common, centralized national goal of economic modernization. The chapter presents evidence that “centralized decentralization” is a strategic maneuver that maintains centralized control while providing the reform legitimacy of decentralization. By focusing on decentralization as the core of Chinese educational policy reforms, this chapter situates the following chapters within the social, cultural, and political context of post-1978 China.

As China's educational policy and reforms continue to evolve and adjust to shifting social, economic, and political conditions, this chapter provides a template for conceptually framing education research on and in China. To do so this chapter first identifies focus areas in comparative education research related to China, which reflect researcher perspective, perceived advantage, and demonstrated resistance to these educational policy reforms. The authors develop a conceptual framework for comparatively understanding education research on and in China, which focuses on the intersection of comparative education themes, institutional change agents or methods, and Chinese educational reform topics. This conceptual framework specifically accounts for overlap, complexity, and the evolving nature of educational policy reform in China. This chapter concludes by emphasizing the importance of comparative education researchers, national policymakers, and consumers of the research using new data and methods as they become available to continue to revise understandings of Chinese educational policy and reform.

This chapter integrates current Chinese education reform into the unique socioeconomic context of China in a transitional time and explores the complexity of education decentralization in China through an in-depth analysis on changes in education finance, administration, and curriculum development. Mark Hanson's theory of education decentralization is cited to build a conceptual framework for examining education decentralization in China. Previous studies, government documents, laws, and regulations related to the current wave of Chinese education reform are reviewed to capture a true picture of education decentralization in China. In investigating the background, actual actions, and motive of the current Chinese education reform, the chapter demonstrates that the on-going Chinese education reform is moving toward a centralized decentralization. Linking education with the unified national goal of economic modernization, the paradoxical mixture of centralization and decentralization is a strategic means to avoid loss of centralized control. Literature on decentralization reform in Chinese education primarily concentrates on changed Chinese education policies in the reform. This chapter places the focus on the contextual factors that shape the decentralization trend in current reform.

Based on government data from 1993 to 2008, this chapter aims to compute and analyze the trends of inequity in interprovincial and regional per-student spending in China's compulsory education, and to ascertain the potential impact of changes in education financing policies. Appropriate inequity measures (Gini and Theil index and Gini decomposition, among others) are employed to provide a systematic picture of the trends. Main findings include: (1) all inequity measures show large and overall increased disparities among provinces and among regions, between 1993 and 2008. (2) However, a slight drop of spending inequity is observed at the primary education level around 2002 and a larger reduction in 2005 and on. There are more turning points in the trend of lower-secondary per-student spending among provinces. These patterns are consistent across different inequity measures and spending indicators (per-student total spending, per-student recurrent spending, and per-student nonpersonnel spending). (3) The trend toward more balanced resource allocation around 2002 and 2005 could be the impact from the Reform of Tax and Administrative Charges and the New Mechanism for Financing Rural Compulsory Education. An increased share of budgetary expenditure in determining total spending suggests that equalizing financing policies have the potential to induce a significant reduction in spending inequity. These findings may help policy makers to better understand and alter the extent of spending inequity in compulsory education. This is an original empirical study that systematically derives the spending inequity trends over a long period in China's compulsory education.

When college entrance examinations act as gatekeepers to modern-sector jobs, the entire education system then becomes oriented toward these examinations. This occurs at the expense of learning for the sake of learning and other aspects of education that address the holistic development and well-being of students. In recent years in China, there has been growing concern that examination competition has compromised the quality of classroom teaching and learning and is detrimental to the development of skills necessary for the global knowledge economy. These concerns have given rise to a far-reaching set of education reforms known as the New Curriculum reforms which have aimed to move students to the center of teaching and learning and to transform teaching and learning so as to foster such capacities as creativity, innovation, collaboration, self-expression, engagement, enjoyment of learning, inquiry skills, problem-solving abilities, and ability to apply knowledge in practice. In this chapter, we use videotaped high school New Curriculum demonstration lessons to examine teaching and learning practices that are regarded as exemplary in the current reform context. We investigate how teachers are negotiating the competing demands of preparing students for the examinations and addressing the aims of the New Curriculum reforms. The nature of student participation in the classroom emerges in the analysis as a key indicator of the success of this negotiation.

This chapter provides a synthesis of the research project which investigated whether or not the most recent mathematics curriculum reform has reached the classroom and influenced classroom practice and student learning in the mainland China. Three types of evidence for change as a result of the curriculum reform were examined. These included the beliefs and perceptions of teachers about learning and teaching mathematics, the cognitive features of learning tasks and of classroom interaction that were implemented in classroom, and student learning outcomes. Two groups of elementary math teachers and their students participated in the study. One group had participated in the reform implementation in classroom for several years, and the other group had used the conventional curriculum when the project was conducted in 2005. About 150 videotaped class sessions were analyzed from 58 classrooms of the two groups. Survey methods were used to probe the changes in the beliefs and perceptions of teachers about teaching and learning mathematics. The student learning outcomes were assessed for three times with multiple measures of mathematics achievement. Findings of the project provide the converging evidence that the curriculum reform has resulted in some of the expected changes. Reform teachers were more likely to hold a dynamic view of mathematics and to indicate the importance to provide students the learning opportunity to hypothesize, to proof, and to communicate in learning mathematics. The reform classrooms used more learning tasks with higher cognitive demands. The teachers in the reform classrooms asked more questions that required students to describe procedures leading to their answers and the students in the reform classrooms raised more questions in learning mathematics. Students of the reform classrooms showed to have achieved a relatively more balanced development in different cognitive areas of mathematics achievement.

The purpose of this study is to review the landscape of empirical evidence on school leadership preparation and subsequent school-level effectiveness while conceptually exploring how societal transformations and educational changes shaped leadership development within the mainland of the People's Republic of China. Conceptually, this study is informed by Murphy and Vriesenga's (2006) comprehensive review of empirical work on leadership preparation, evaluative work on the pathway from preparation to school-level practice (cf, the UECA taskforce on evaluating the effectiveness of leadership preparation; Orr & Kottkamp, 2003; Orr & Orphanos, 2011) and empirical literature on school improvement. Data come from extensive reviews of English and Chinese language articles, conference papers, doctoral and master's theses, and other reports of research on the preparation of school leaders in Mainland China. Using a combination of inductive and deductive strategies, the lead author analyzed all selected sources using a three-pronged framework: who is being prepared for school leadership positions in China, by what design and delivery methods they are being prepared, and how well they are fulfilling leadership practices and expectations for which they are being prepared. The current analysis adds to the international knowledge base of the pathway between preparation and practice. It also highlights the importance of considering the cultural, social, and political context that shapes conceptions of leadership and the design and implementation of educational leadership preparation programs.

Quality-Oriented Education (su zhi jiao yu) is a national education reform initiative that presents ongoing opportunities and challenges to schools, local bureaus of education, and the overall educational system in China today. This chapter seeks to gain insight into if and how Quality-Oriented Education, 10 years into its enactment, has taken root in practice. We posit that a reform agenda is best manifested through well-aligned and operable standards for school effectiveness. We introduce the policy-driven definition for school effectiveness and an evaluation framework depicting the intended focus of Quality-Oriented Education. Using an iterative and inductive process for content analysis, we compare the policy-driven framework with the coding results of a 2009 national inventory of actual school evaluation schemes in 91 Chinese school districts. Our review points out that the new mission of Quality-Oriented Education advocates educational equity, curriculum reform, and systemic support for school-based management. However, at the operational level, there are great variations in terms of content domain, focus, and function among school evaluation schemes with notable regional differences. Furthermore, schools are still caught between the existing system that measures school performance by achievement and the intended accountability scheme that calls for enhanced student ability. This chapter adds to the empirical foundation for the development of a new framework that not only captures the spirit of the national educational reform but also is informed of the developmental needs of schools in drastically different geo-economical and social conditions.

This chapter explores the ‘gap’ between policy intent and policy effect through the eyes of a group of practising school principals in China. The reform policies targeted are the new curriculum, the school review system and personnel system. The universalising tendency of educational reform towards decentralisation and marketisation has swept across China as it has in Western democracies. Another trend Chinese education shares with other systems is that central policy initiatives go through a complex process of interpretation and re-interpretation before they reach schools, a pattern that continues as schools struggle to implement them. Using interview data collected from 11 secondary school principals in Shanghai, China, the chapter suggests that the way in which policy is interpreted and translated in schools is influenced by the particularities of the context, and that the status of the school plays a particularly important role in this process. Despite the moderating role of the local context, some commonalities across principals' policy interpretations emerge. These commonalities suggest that universal education reform policies inevitably reflect cultural and societal characteristics when they are introduced and adapted to the specific national context.

This chapter begins with an examination of the complexities, challenges, and contradictions that are presented by policies and practices associated with the College Entrance Examination (CEE) and higher education admissions during the three decades of China's reform era. It then focuses on recent reform polices as outlined in the national education 2020 Blueprint (National Educational Reform and Development Plan, 2010–2020), which deepens the debate about the role of the CEE in shaping the mission of education and distributing opportunities and “talents” affecting social mobility, university autonomy, and national development. The CEE stands at the epicenter of educational reform, criticized for hamstringing institutional autonomy and innovation; reducing schooling to a soulless competition; and unfairly advantaging urban children with greater educational opportunities. This chapter explains the staying power of the CEE and concludes that China's examination culture will intensify in the short term, as the CEE is clung to as a last bastion of meritocracy and is reinforced by the state's desire to cultivate what the 2020 Blueprint labels elite “selected innovative” and “pragmatic” talents. Content and policy analysis is used to explain CEE reform since 1978 and provide a backdrop for discussion of pedagogical, market, and compensatory reform strategies that tinker at the CEE's margins. To take into account micro-institutional processes involved in the CEE's creation, maintenance, and resistance to change, we examine stakeholders' frames of common perception through 2010 interviews with exam candidates and their parents, and faculty and administrators from four Gansu Province universities. These interviews illustrate what the CEE means to diverse families and reveal how admission policies impact students, teachers, and university faculty and administrators at both elite and non-elite higher education institutions. The slow change of CEE reform discourse and practice as China inches from examination-based selection criteria to ability-based selection criteria has begun to redefine the trajectories of recognized “elites,” whose actions are motivated by and reflect the changing needs of society and economic development. Friction and resistance on the ground, therefore, point to the ways in which the changing needs of the labor market, the policy mandates of the national agenda, the meritocratic ideal and the educational desires of China's citizenry intertwine to shape, and be shaped by, CEE policies.

It has long been established in educational stratification research that teachers play an important role in shaping children's school experience, which is closely associated with children's educational outcomes. Children's family background has been considered as one of the factors that may influence how teachers form their evaluations of children's behavior and academic competence, and their educational expectations for children. Going beyond the conventional modeling of using measures of the family's socioeconomic situation alone, this chapter incorporates the teachers' perceptions of the importance of children's family background into the examination of teachers' evaluations and expectations. Using a unique data from northwest China, this study provides a case study to highlight the importance of bringing teachers' perspectives into examining the relationship between children's family background and their educational outcomes. The analysis results reveal that teachers' perceptions of the importance of children's family background, above and beyond children's previous academic achievement and their family's actual socioeconomic situations, are closely associated with teachers' evaluations and expectations. Teachers' expectations at early time point help to predict children's later school persistence.

Using Kunming, the capital of China's southwest Yunnan Province, as an example, this mixed-methods research examines three interacting dimensions of social change in contemporary China: migration, ethnicity, and education. In particular, it sheds light on the issue of educational achievement of migrant children, especially children of ethnic minority background. The quantitative portion of the study is based on data gathered from over 700 sample students, teachers, and principals who participated in the “2008 Kunming Migrant Children's Survey.” A two-level hierarchical linear modeling (HLM) is employed to identify student- and school-level factors and to estimate the impacts of these factors on migrant children's academic achievement. The qualitative portion of the study is based primarily on the data collected through in-depth individual interviews and focus-group discussions with 97 migrant students, teachers, and school principals from 10 government and nongovernment migrant children's schools in Kunming between 2008 and 2009. The qualitative and quantitative results highlight four interrelated groups of educational barriers experienced by migrant students in pursuing compulsory education: institutional, socioeconomic, cultural, and psychological barriers. In particular, cultural and psychological barriers, including difficulty in school adaptation, low self-esteem, lack of family support, and discrimination against ethnic minorities due to their different religious beliefs and ethnic traditions, are found to have exerted particularly significant negative influences on academic achievements of ethnic minority students.

Over the past 30 years, China has made dramatic changes and improvements in various educational areas, including the educational technology field. These changes have been supported by policies initiated by the country's central government. This chapter reviews the historical development of China's educational technology policies, paying particular attention to the evolutionary process, and examining policy features that have influenced Chinese educational development. The Chinese education technology framework encourages the use of educational technology to address more ambitious goals for economic and social development and thus serves as an important catalyst for advancing Chinese education.

This chapter examines the development of a quality assurance system for undergraduate education as one aspect of the transformation of education policy in China. The central structure of the chapter is the process/stages of policy development and implementation, with particular attention to the changes over time in central control versus institutional autonomy. The Chinese government has moved to a “steering at a distance” approach with ex post accountability, giving institutions of higher education greater autonomy for undergraduate education. Government authority continues to be strong, however, even though the mechanisms of control have changed. This study provides an analysis of quality assurance in Chinese higher education and the changing relationship between government and campuses, using the lens of policy development and implementation.

China has witnessed the emergence and rapid development of private higher education in the past three decades. As private higher education gradually takes on a more significant role in the Chinese educational system, due to the inability of the government to accommodate the growing demand for higher education, educational reform, influenced by the success of private higher education, will inevitably affect the quality and quantity of education overall.

This chapter focuses on several aspects of this development: the growth of private higher education in China, issues of finance and access, its relationship to the national system and to government policy, issues of ownership and the autonomy of private higher education, as well as the advantages and challenges of Chinese private higher education and the larger significance of its emergence in China. This study concludes that with proper management private colleges and universities will benefit from and contribute to Chinese society through multiple roles and responsibilities at their mature stage.

Chentong Chen is an undergraduate at Nanjing Normal University studying law and English. She has research interests in education policy, education assessment and evaluation, and child development. She is currently working on two research projects: policy issues related to the college entrance exam in China, and theories and practice of preschool assessment in the U.S.