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QAE
16,2 School supervision and evaluation
in China: the Shanghai
perspective
148
John Chi-kin Lee and Daoyong Ding
Department of Curriculum and Instruction,
Received 25 August 2007
Revised November 2007 The Chinese University of Hong Kong, Hong Kong, China, and
Accepted January 2008 Huan Song
School of Education, Beijing Normal University, Beijing, China
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Abstract
Purpose The purpose of this paper is to discuss recent developments in school developmental
supervisory evaluation in the Pudong New Area of Shanghai in the Chinese Mainland.
Design/methodology/approach The main research approach is qualitative, using documentary
analysis and interviews of an inspector, principals and teachers from two primary schools.
Findings There were perceived positive and negative impacts of school supervision and
evaluation.
Originality/value The paper highlights the implications for fostering a shared school-government
community of school supervision and evaluation, promoting a dynamic approach for addressing
contextual differences as well as achieving better coherence among educational reform, supervision
and evaluation policies.
Keywords Schools, Quality assurance, Education, China
Paper type Research paper
Introduction
Concerns about quality education and measures to monitor, evaluate, supervise and
enhance school education have attracted increasing attention in many parts of the
world including China. It is, however, notable that there is a dearth of English
published papers on the current status and issues of school supervision and evaluation
in the Chinese Mainland. In this paper, we looked at quality assurance measures,
covering issues on school evaluation and school supervision, from both policy and
school perspectives in the city of Shanghai.
From 1984 to the present, the status of the educational supervision office has been
gradually upgraded from the Supervision Office under the Ministry of Education in
1984 to National Educational Supervision Group in 2000. In 1991, the Provisional
Regulations of Educational Supervision was issued by the National Education
Commission, stipulating the establishment of institutions of educational supervision
above the local county level and reinforcement of the administrative supervision of
Quality Assurance in Education educational affairs (www.pudong-edu n.d.). This was followed by the publication of
Vol. 16 No. 2, 2008
pp. 148-163 The Education Laws of the Peoples Republic of China in 1995, which stipulated: The
q Emerald Group Publishing Limited
0968-4883
Country implements a system of educational supervision and an evaluation system for
DOI 10.1108/09684880810868439 schools and other educational institutions (Ling and Liao, 2005, p. 15).
Shanghai was chosen as the place for study as it is recognized as the most affluent School
city in the Chinese Mainland and Shanghais educational innovations are often perceived supervision and
as displaying pioneering characteristics and a forward-looking model available for
replication in other regions in China. In terms of educational supervision and inspection, evaluation
the innovative experimentation of school developmental supervisory evaluation
(Xuexiao Fazhanxing Dudao Pinggu) in Shanghai has impacted upon, and attracted
attention, at the national level (www.moe.edu.cn n.d.). From the various districts that 149
constitute metropolitan Shanghai, Pudong New Area, established in the 1990s as an
experimental and exemplary base for innovations, was selected as the focus of study.
Pudong New Area was seen as the opening window of Chinas reforms and a
miniature of modernized constructions in Shanghai (Hu, 2001). As regards educational
supervision, Pudong has been a pilot area in exploring school developmental
supervisory evaluation since 1999 (Zhao, 2002) and has recently been engaged in a
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national-level project on school inspectors ranks and the inspection system (Liu, 2006a).
studies, physical education, fine arts, and music. Some were senior teachers or panel
heads while others were ordinary class teachers. The selection of interviewees also
included teachers with varying teaching experiences. The following main questions
were asked in the semi-structured interviews:
.
What kinds of checks and evaluation are imposed on your school for quality
assurance for school education?
.
Do you think that these quality assurance measures affect the daily operation of
the school? Could they help enhance the improvement of school quality?
.
What has your school done to cope with the checks and evaluation? What are the
responses of school personnel? How do you view these quality assurance
measures?
All interviews were recorded with a tape recorder, and verbatim transcripts were made
for later analysis of the interview data (Lee and Lo, 2007).
Evaluation layer (A) Assessment region (B) Main factor (C) Selected example(s) of reference standards
A1 Disposal of educational B1 Education funds C1 Allocation of funds from the Education funds per student meeting the requirements
resources top
B2 Area of school campus C2 Special teaching rooms Special rooms (e.g., library, language room, nature
laboratory, technological activity room, and etc.) meeting
the requirements
C3 Area per student Referring to the requirements stipulated in 1990
B3 Technological facilities C4 Teaching facilities Two machines and a projection screen per ordinary
classroom
C5 Books, newspapers and 20 books per student (range: 20, 15, 10); 60 types of
magazines newspaper and magazines per student (range: 60, 50, 40)
(1999 standard)
B4 Deployment of teachers C6 Job qualification Percentage of qualified in-service teachers (100%); Meeting
qualifications target rate of qualifications (100%)
B5 Social environment C7 Bases outside the school Stable educational center outside the school and good
schools neighboring environment
C8 Family support Setting up a parents committee
A2 Schools routine B6 Administrative work C9 Running a school plan Three-year school plan matching the reality
management
C10 Institutional operation Clear layered management, smooth communication
channels
C11 Rules and regulations Establishing and implementing rules and regulations that
match the schools reality
B7 Teaching team C12 Job ethics Formulating norms of teachers ethics
B7 Teaching team C13 Job training Have a teachers professional training plan; Nurturing
novice and young teachers
B8 Education and teaching C14 School moral education Paying attention to infusion of moral education
C15 Order of education and Strictly executing stipulations related to reduction of
teaching burden ( jian fu)
C16 Management of Sound teaching research system, activities implemented
instructional process
C17 Audio-visual education Coverage of audio-visual education (range: 30%, 28%,
and experiments 26%); Offering experiments rate (range: 95%, 90%, 85%)
(continued)
evaluation
of school developmental
School
153
Table I.
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16,2
154
QAE
Table I.
Evaluation layer (A) Assessment region (B) Main factor (C) Selected example(s) of reference standards
together with regular and random checks of teachers lesson plans and students works.
This was undertaken through teachers self-monitoring combined with monitoring by
the grade coordinator, the teaching research coordinator and the academic studies office.
In addition, there was a procedure called my weekly harvest where a test paper and
scores were distributed to parents on a weekly basis to gauge their childrens progress in
learning. Where a class had declining student performances, senior colleagues would
talk to the class teacher and then lesson observation would follow. Moreover, the school
had adopted an objectives management approach in which teachers objectives, in
terms of class ranking and rates of passing and excellent grades, were set according to
the class taught and teachers linked actions with objectives. In this way the attainment of
objectives became the basis for evaluation and reward as well as adjustment and
improvement of practices. The school also emphasized teaching research and
school-based projects supported by external experts and teaching research officers
from Pudongs Research Institute of Educational Development (RIER) to enhance
teachers professional development and quality of teaching and learning, which in turn
boosted the schools overall performance.
.
evaluation on a National Defense Characteristic/Distinctive School;
.
evaluation on a Psychological Experimental School;
.
evaluation on Aesthetic Education Characteristic/Distinctive School;
.
evaluation on Language Exemplary School;
.
evaluation on Quality Education Experiment School;
.
evaluation of three-level collaborative lesson preparation groups;
.
developmental evaluation supervision;
.
teaching research observation activities; and
.
check and evaluation of school based projects.
A physical education panel from School 1 head remarked that some of the feedback
from the external evaluation was neither concrete nor helpful for improvement, which
was in line with Shanghais Supervision Offices observations. He further commented
that Could the checking departments communicate with each other and consolidate
these checks? One check today followed by another check tomorrow. . .for the teachers
it will increase their burden . . . Too many and too frequent repetitive checks will, to a
certain extent, affect the schools normal teaching. At the same time, it will to some
extent damage teachers self-confidence.
only needed to prepare one lesson well for external inspection and that lesson tended to
be more interactive than normal.
In School 2, the principal commented that in addition to caring about the quality of
teaching and learning in a school, the school management paid attention to the overall
reputation, financial and environmental conditions, issues about which teachers might
lack interest. Teachers, while concerned about the overall direction of development and
the attainment of objectives, not surprisingly, tended to focus on their own classroom
teaching and achievements. A language teacher echoed:
For teachers, the main [concerns] are still in the area of teaching. But for the school, it will be
issues such as the supervisory check. [The supervisory check] will ask questions on school
leadership particularly concerning the school management, [such as] whether the school has
become open, transparent and democratic and so on.
In addition, there existed gaps in expectations between the school management and the
teachers. While the principal perceived that the school set higher standards than the
external, governmental requirements, some teachers of School 1 felt that the
government set relatively high expectations on school performance. There could be
unrealistic assumptions about teachers capabilities, assuming them to be perfect
human beings who did everything well. Such high expectations would make the
principal, teachers and parents feel very tired (mathematics panel head, interview). In
School 2, the adoption of an objectives management system encountered difficulties.
While the school would like to set higher level of objectives to drive improvement,
teachers would like lower levels (vice-principal, interview). This required continuous
communication between the senior management and teachers.
head, interview).
The vice-principal from School 2 commented that
Certainly it [the checks] will increase our burden. On the other hand, it will help find our
deficiencies. This will help teachers improve . . . Teachers will feel pressurized. After all it is
an external check, which will raise our own expectations.
A language teacher described the supervisory check as like a carpet search,
involving different methods ranging from lesson observations, reading documents to
handling discussion sessions with teachers and students.
This may not be an experience unique to the informants in Schools 1 and 2. Another
school principal in Pudong Tao Delin shared his experiences on the web:
Recalling the images of three days supervision and the tiring past months, the feelings are
deep. Frankly speaking, accepting such a carpet holistic supervision is tiring, tough and
somewhat fearful. Nonetheless . . . [it] enables me and colleagues in a specific evaluative
context to know things more authentically and objectively, analyze things and at the same
time understand myself more clear-headedly and rationally . . . (www.edu.sh.cn n.d.).
While the results of the district-wide student assessment for Grades 4 and 5 were not
publicized, principals, vice-principals and teachers from Schools 1 and 2 felt somewhat
uneasy about the monitoring mechanism. It classified student performance into four
bands from A to D and reported the percentages of students of different bands for each
school. For example, a language teacher from School 1commented that the
territory-wide assessment imposed more pressure on teachers as the results affected
the schools reputation. The principal of School 1 added:
The results are not reported externally but the super-ordinate units know exactly [these
results]. The Research Institute of Educational Development (RIER) under the Education
Bureau is responsible for monitoring this aspect of school quality. After all, the test paper is
set by teaching research officers [from RIER]. The way that teaching research officers see
schools will shape how the school will become.
The principal of School 2 echoed this:
We would ascertain the status of our own school according to these percentages. This kind of
reporting is not a dynamic evaluation. For better schools, it would have high expectations [on
having higher percentages of band A students]. For schools that are worse, it will be falling
behind forever.
The vice-principal remarked: School
. . . if from the perspective of schools ranking, we can know how well we have done. The supervision and
Research Institute of Educational Development (RIER) would talk to us. We will have some evaluation
measures.
A panel head felt that the assessment would pressurize schools and teachers because of
the implicit ranking. Another panel head agreed, suggesting that after each assessment, 159
the measures for some schools were to stay in their schools to help improve their work
[dundian ]. They will observe every lesson. Students and teachers are nervous.
Nonetheless, some colleagues such as a mathematics teacher remarked that children
needed some checking, as long as the frequency of checking was not too high.
In addition to school developmental supervisory evaluation and district-wide
student assessment for Grades 4 and 5, some teachers had anxieties about having
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our interviews referred to the Supervision Office and the government agencies as the
top/above (the higher authorities, the higher-ups) (shangmian). This, to some extent,
reflects bureaucratic authority and refers to teachers respect for hierarchy, rules and
regulations and the government officers reliance on predetermined standards and
direct supervision to ensure a schools compliance. In addition, the supervisory
evaluation relies on evidence and hard data, reflecting an influence of technical-rational
authority in which beliefs, values and preferences of school practitioners are much less
taken into consideration (Sergiovanni and Starratt, 1998, pp. 46-8). Nonetheless, during
the preparation of annual evaluation reports and supervisory reports, both the
educational inspectors and school practitioners were given opportunities to exert
professional authority, engage in discussion and formulate consensual views on the
evaluative results (Zhao and Zhu, 2004).
On the other hand, internal evaluation within a school tended to be based on
personal authority and technical-rational authority and partly based on professional
authority and lightly on moral authority, dependent on school contexts. As regards
personal authority, principals and teachers were willing to comply partly because of
the congenial school climate and partly because they would be appraised and rewarded
based on their performances, which are partly linked with external supervisory
requirements. For moral authority, which depends on shared community and values, it
is highly dependent upon the shared leadership of principals and a collegial school
culture emphasizing interdependence. It appeared that while Schools 1 and 2 shared
some initial characteristics of a professional learning community through peer
observation, self-evaluation and teaching research, teachers responses still tended to
be driven by externally imposed supervisory measures rather than by internally
reinforced shared values and commitments in autonomous development or
school-based autonomous supervision (Fu, 2006).
Facing these checks and under a Chinese centralized system that stresses
accountability and performativity, it is mindful that schools and teachers would be
likely to develop a follow the order mentality. As asserted by Lai and Lo (2007, p. 63),
. . . teachers were moulded to work as technicians, strictly following the directives of
defined evaluation systems, which reflect the dominance of bureaucratic authority
and technical-rational authority.
In future, it is advisable that more efforts should be devoted to fostering professional
authority and moral authority on the part of both the school and the Supervision Office
(and related agencies). On the one hand, there is a need to promote school-based
management with a participative and shared leadership within the school sector (Fu, School
2006). On the other hand, if a large community bringing together school and government supervision and
with shared values of developmental supervisory evaluation could be formed, teachers
and schools performances would be expansive and sustained with less need for rigorous evaluation
external monitoring. Moreover, soliciting parental support and promoting home-school
communication could be seen as a partnership for fostering such a community.
161
Promoting a dynamic approach to evaluation, taking into account contextual differences
in terms of school and student characteristics
Currently, the first cycle of school developmental supervisory evaluation in Pudong
tends to be static using the same threshold or benchmark for assessing schools. This is
disadvantageous to some backward schools or schools with fewer facilities.
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Gradually, the gap between good or poor schools would be greater than before, leading
to educational inequalities. For ordinary schools like School 2, with less promising
student intake, there is an aspiration to move towards a dynamic approach to
evaluation, which the second cycle of evaluation in Pudong will highlight.
While the schools responses and the effects remain to be seen, the second cycle of
evaluation (or new scheme of evaluation) has three sets of indicators: normative
development (Guifan Fazhan); distinguishing development (Tese Fazhan); and
autonomous development (Zizhu Fazhan). This is an improvement on the basis of
the indicators sub-systems of holistic development and subjective development in
the first cycle (Liu, 2006b). It may be desirable that more attention to, and space for,
collaborative dialogue between the government and the school could be given to the
history and trajectories of school development for individual schools so that contextual
differences in terms of school and student characteristics could be fully addressed.
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Corresponding author
John Chi-kin Lee can be contacted at: jcklee@cuhk.edu.hk
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