201operating, it appeared to be the case that the inspection and evaluation system was
preoccupied with simple quantitative targets, and rarely extended its interests and
visits away from the larger central schools. The infrastructure that supports teach-
ers in small schools depends on the central primary schools and the effectiveness
of their teaching and learning groups. More sensitive local level inspection and
monitoring may be needed to track progress and needs and to direct resources to
where they will make most difference.
Educational management and information systems are being developed to
contain data on schools and children. These need to be used actively to manage
towards defined objectives set at a local level as well as within national frame-
works. Flexibility to respond to local circumstance is important.
Planning systems now have access to much more data and can therefore project
into the future the impact of demographic transitions, migration into cities and left
behind children in rural areas, and changing demand in the labour market. School
location and the deployment of teachers has to be efficient if it is to offer value
for money, reach all children and allow investment in improved quality. Planning
methods therefore need to be developed and applied on a rolling basis to assist
decision making for resource allocation.
9.2.10 Equity and Distribution
It was clear in 1990 that there were tensions between national policy and planned
resource allocation, and local level decision making subject to local priorities.
The decentralised system allowed large differences to develop and be reinforced
between districts and within them. There were commitments to promote more
equitable distribution of resources for nine year compulsory education to favour
those with greatest disadvantage, the mechanisms that existed seemed unlikely to
deliver the result. The case studies illustrate that in some respects these observa-
tions from the past were prescient. The data from the case studies too often sug-
gest that growth in participation has exaggerated some pre-existing inequalities,
and has generated new ones, despite the renewed commitments to universalise
access and extend opportunities to the most disadvantaged.
There is, therefore, a need to identify new targets for implementation that
assess distribution and progress on equity issues, and go beyond the simple aver-
ages and aggregates that conceal large inequalities. Public expenditure per child
should be fairly similar in different parts of China with more allocated to the most
challenged counties. The variation in pupil teacher ratios, class sizes and teachers
per class between schools should fall within an accepted margin of efficiency and
effectiveness. The chances of completing nine year compulsory education should
be similar across the country and not be strongly related to household incomes.
And achievement levels on tests of basic competencies should reveal less rather
than more difference between the highest and lowest scoring administrative areas.
9.2 Ten Issues for Nine Year Compulsory Education