How Shanghai Does ItHow DIRECTIONS IN DEVELOPMENT Human Development Liang, Kidwai, and Zhang Liang, How Shanghai Does It Insights and Lessons from the Highest-Ranking Education System in the World Xiaoyan Liang, Huma Kidwai, and Minxuan Zhang How Shanghai Does It DIRECTIONS IN DEVELOPMENT Human Development How Shanghai Does It Insights and Lessons from the Highest-Ranking Education System in the World Xiaoyan Liang, Huma Kidwai, and Minxuan Zhang © 2016 International Bank for Reconstruction and Development / The World Bank 1818 H Street NW, Washington, DC 20433 Telephone: 202-473-1000; Internet: www.worldbank.org Some rights reserved 1 2 3 4 19 18 17 16 This work is a product of the staff of The World Bank with external contributions. The findings, interpreta- tions, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. 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ISBN (paper): 978-1-4648-0790-9 ISBN (electronic): 978-1-4648-0791-6 DOI: 10.1596/978-1-4648-0790-9 Cover photo: © Tingyan Xie/Shanghai Education Magazine. Used with permission of Tingyan Xie/Shanghai Education Magazine. Further permission required for reuse. Cover design: Debra Naylor, Naylor Design, Inc. Library of Congress Cataloging-in-Publication Data has been requested. How Shanghai Does It • http://dx.doi.org/10.1596/978-1-4648-0790-9 Contents Foreword xi Acknowledgments xiii About the Authors xv Executive Summary xvii Abbreviations xxvii Introduction 1 Background 1 Chapter 1 Overview of Shanghai and Its Education System 3 Introduction 3 Education Development in Shanghai 8 Annex 1A 9 Notes 11 References 11 Chapter 2 Systems Approach to Analyzing Education Policies and Linking Them to Implementation and Learning Outcomes 13 Introduction 13 Measuring Policy Intent and the SABER Instruments 14 Measuring Policy Implementation 16 Connecting Policy Intent, Implementation, and PISA Learning Outcome Measures 16 Limitations of the Study 17 References 17 Chapter 3 Attracting and Developing an Excellent Teaching Force 19 Introduction 19 Policy Goal 1: Setting Clear Expectations for Teachers (Advanced) 19 Policy Goal 2: Attracting the Best into Teaching (Advanced) 24 Policy Goal 3: Preparing Teachers with Useful Training and Experience (Established) 29 How Shanghai Does It • http://dx.doi.org/10.1596/978-1-4648-0790-9 v vi Contents Policy Goal 4: Matching Teachers’ Skills with Students’ Needs (Established) 31 Policy Goal 5: Leading Teachers with Strong Principals (Established) 32 Policy Goal 6: Monitoring Teaching and Learning (Advanced) 36 Policy Goal 7: Supporting Teachers to Improve Instruction (Established) 38 Policy Goal 8: Motivating Teachers to Perform (Established) 42 Summary 43 References 45 Chapter 4 Financing Education for Quality and Equity 47 Introduction 47 Policy Goal 1: Ensuring Basic Conditions for Learning (Advanced) 47 Policy Goal 2: Monitoring Learning Conditions and Outcomes (Established) 52 Policy Goal 3: Overseeing Service Delivery (Established) 54 Policy Goal 4: Budgeting with Adequate and Transparent Information (Established) 56 Policy Goal 5: Providing More Resources to Students Who Need Them (Established) 58 Policy Goal 6: Managing Resources Efficiently (Advanced) 65 Summary 65 Notes 67 References 67 Chapter 5 Balancing Autonomy and Accountability 69 Introduction 69 Policy Goal 1: Level of Autonomy in Planning and Management of the School Budget (Established) 70 Policy Goal 2: Level of Autonomy of Personnel Management (Established) 73 Policy Goal 3: Role of the School Council in School Governance (Emerging) 74 Policy Goal 4: School and Student Assessment (Established) 77 Policy Goal 5: School Accountability (Emerging) 78 Summary 81 References 82 Chapter 6 Creating an Effective Student Assessment System 85 Introduction 85 Assessment Types and Purposes 85 How Shanghai Does It • http://dx.doi.org/10.1596/978-1-4648-0790-9 Contents vii Classroom Assessments (Established) 86 Examinations 89 National Large-Scale Assessment (Established) 95 International Large-Scale Assessment (Established) 96 Summary 98 Notes 99 References 99 Chapter 7 Linking Policies and Implementation to Learning Outcomes 101 Introduction 101 Shanghai’s Performance on PISA 2012 101 Comparing Performance between Programs 103 Comparing Individual and Family Background Characteristics between Programs 104 Comparing School Characteristics 106 Estimating Mathematical, Reading, and Scientific Literacy 110 Problem-Solving Skills 115 Summary 126 Annex 7A 130 Notes 132 References 133 Chapter 8 Summary and Discussion 135 Introduction 135 Factors Associated with Mathematical, Reading, and Scientific Literacy 140 Factors Associated with Problem-Solving Skills 140 Policy Considerations for Shanghai 142 References 144 Appendix A Summary of Shanghai’s Basic Education Policy Environment by the World Bank–SABER Policy Framework 145 Boxes 3.1 Teacher Policy Areas for Data Collection under SABER–Teachers 20 3.2 Obtaining a Teacher Certificate 25 3.3 An Account of a Teacher’s Experience, Jinshan 31 3.4 Teaching-Research Groups in China 40 3.5 Lesson Observations, Shanghai 41 3.6 Japan’s Lesson Study Approach 41 4.1 Education of Migrant Children in Shanghai 59 How Shanghai Does It • http://dx.doi.org/10.1596/978-1-4648-0790-9 viii Contents 4.2 The Origin of Entrusted Management Model of Shanghai: The Pudong Experience 61 4.3 Special Education Provision in Other Countries 63 5.1 The Bian Zhi System of China 71 6.1 Purposes of Student Assessment and Achievement Data 89 7.1 Definitions of PISA Domains 102 7.2 Definitions and Implications of the Nature and Processes of Problem Solving 120 Figures 1.1 Shanghai Education Management 4 1.2 Shanghai Education Structure 5 1.3 Percentage of Private Enrollment in Shanghai by Level and Year 6 2.1 The Black Box of Education Production 14 2.2 SABER Domains or Policy Areas 15 3.1 Eight Teacher Policy Goals under SABER–Teachers 20 3.2 Distribution of Working Hours Spent on Various Teaching and Nonteaching Activities 23 3.3 Distribution of Weekly Class Time Spent on Various Teaching and Nonteaching Activities 24 3.4 Average Wage in Various Employment Categories, China, 2013 27 3.5 Average Student-to-Teacher Ratio for Primary Schools, 2012–13 28 3.6 Teacher Test Scores and Passing Rates in Rural Shanghai 30 3.7 Officially Required Days of Professional Training per Year, Secondary Education 39 3.8 Shanghai’s Teacher Development Framework 44 4.1 Six Policy Goals under SABER–Finance 48 4.2 Cross-District Differences in Teacher-to-Student Ratios in Shanghai Primary and Junior Secondary Schools 50 4.3 Cross-District Differences in Proportion of Teachers with Higher-than-Required Certificate in Shanghai Primary and Junior Secondary Schools 51 7.1 Performance on Mathematics, Science, Reading, and Problem Solving, by Program and Ordinary versus Model 104 7.2 Percentage