OVERCOMING CHALLENGES IN CHINA - INNOVATION IN PRACTICE Most people when they hear of China tend to think of large numbers and endless markets. The figures can be overwhelming and the education field is no different. Current official figures: Elementary schools 457,000 Jr. High schools 66,000 (only 40% of 9 th graders go on to attend high school) High schools 33,000 Total enrolment 218 million Teachers 10.6 million It is in this context that the China IELTS Network (CIN) works to provide the International English Language Testing System (IELTS). CIN was formally established in April 2001 as a partnership between the British Council and IDP Education Australia to deliver IELTS in China. The British Council offices in China, on behalf of CIN manage the IELTS test in China. Decisions on policy relating to international education and IELTS are made jointly among the IELTS three partners (the British Council, IDP Education Australia and the University of Cambridge ESOL Examinations). I MAJOR CHALLENGES ENCOUNTERED BY CIN Working in the largest IELTS market in the last half decade (China this year has been overtaken by India in terms of the number of candidates taking IELTS yearly) has provided CIN with significant challenges. Resources The rapid increase in numbers has placed great strain on all aspects of resources in test delivery. i. General resourcing, such as office space and equipment; personnel; training; test centres (there are 26 test centres in mainland China) and test administration. There has been the issue of not only meeting needs but ensuring that there is a professional look to the offices and centres. ii. Administrative processes These have had to be refined to meet the demand in growth. From simple common sense approaches to augment the stipulated requirements by Global IELTS through to the present, with the provision by the IELTS partners of a comprehensive Administrator s manual, CIN has had to apply appropriate procedures and processes to fit the Chinese situation. A typical example of this are the arrangements that have to be made in the North China region (the largest IELTS region in the world) most
test weekends for flying the IELTS examiners to the test centres and to limit the amount of excess baggage (test material). iii. In-house and test day security processes and systems The security of test material in China has been and remains among the best in the world. Despite the huge quantities of test material being delivered, stored, counted and organised for test days, some of the practices in place have been assessed by external auditors as world s best practice. The approach is one of continually refine, implement, review and modify. Standardisation Another of the challenges has been the standardisation of systems, processes and procedures across the 4 large regions of China. Each region retains a fair degree of autonomy, with responsibility for management and administration of IELTS within the region. A 4 countries perspective may be a useful one in understanding how the regions operate. Standardisation across regions has meant an increase in communication and the sharing of ideas and best practices. This applies to security, exams finance, administration, test centre organisation and inspections, and to pre and post test procedures. It also applies to IELTS examiners in terms of monitoring, support and discipline. Two of the main ways in which CIN met the challenge of standardisation were: to make an examiners handbook This involved regional personnel coming to agreement on common acceptable practices. The handbook is given to all examiners. The appointment of a National Examiner Manager to work with all regions and to ensure a high degree of convergence on major operations and procedures. Monitoring of IELTS examiners With more than 200 IELTS examiners in China, the need for regular monitoring was recognised early and the main challenges were how to implement it and what personnel to use. Regular monitoring of examiners has occurred in China now for more than three years and for the last year each examiner has been monitored between three and four times in both Speaking and Writing assessments. Two years ago monitoring was systematised in China to ensure that all examiners received written feedback on randomly selected assessments. The key to this standardised monitoring of examiners has been the Examiner Professional Support Manager (EPSM) positions in regions who are examiner trainers. The new global Professional Support Network, which will be introduced next April is based on this model of examiner support and development.
Integrity checks The move by embassies and consulates away from interviews to document-based integrity checks implies greater reliance by them on the validity of IELTS identity verification processes and the Test Report Form (TRF) as an identity document as well as the certifier of a minimal level of English proficiency. The University of Cambridge Online Verification Service is an effective tool here but only if it is used systematically by receiving institutions in the way that it is by immigration authorities. If it is not then forged Test Report Forms and use of impostors require more sophisticated measures locally, and the CIN Network is providing just this in China, given that IELTS is very high stakes and the risk of fraud is ever present. (This is a significant challenge and is further explored in section III of this paper.) National Education Examinations Authority (NEEA) A new partnership for CIN was established by the signing of an agreement with NEEA. This is an entity which is authorised by the Ministry of Education, China, to administer exams under the guidance of Education Law. Besides administering national education examinations, NEEA are involved in administering foreign owned exams based on the Ministry of Education s Regulation on Foreign Owned Examinations. In addition, NEEA is working on developing and administering some social and certificate examinations. The agreement was finalised in 2004 following a long round of negotiations. In itself getting to the final stage of signing the agreement presented many challenges. Negotiating in China is usually difficult and lengthy; negotiating on educational matters with a semi-governmental authority provided significant hurdles. A sustained approach over several years and a preparedness to continue discussions while persevering with clear objectives resulted in the agreement which was essential to the continuation of IELTS examining in China. As a result there is an official political and legal support for the IELTS test administration on the mainland. NEEA is now responsible for the IELTS online registration system in partnership with test centres around China. This system is having a positive impact on the numbers of applicants for IELTS since the online system meets the needs of those who prefer the convenience of registering online at any time and not having to organise wire transfers. There are some cultural issues which emerge through different expectations, in relation to management, procedures and the speed of achieving change (e.g. tendering).
II A. EXPANSION OF CHINA S HIGHER EDUCATION The numbers of Chinese studying abroad has gone through stages of significant increase. The figures below show that there has been a 300% increase between 2000 and 2003. Year Student enrolment in Chinese institutions of Higher Education Number of Chinese students studying abroad 1988 670,000 3,786 1989 597,000 3,329 1990 609,000 2,950 1991 620,000 2,900 1992 754,000 6,540 1993 924,000 10,742 1994 900,000 19,071 1995 926,000 20,381 1996 966,000 20,905 1997 1,000,000 22,410 1998 1,084,000 17,622 1999 1,597,000 23,749 2000 2,206,000 38,989 2001 2,683,000 83,973 2002 3,205,000 125,179 2003 3,822,000 117,307 Source: China Statistical Yearbook, 2004 Government targets China s higher education continues to expand. University enrolment is currently 13% but the Chinese government s target by 2010 is to increase that number to 20%. The goal for high school enrolment is to increase it from 40% to 70% by 2010. By the end of the next decade the government aims to increase high school enrolment to 85% and university enrolment to at least 40%. With such huge increases the question remains to what extent will Chinese students see studying abroad or studying in Joint Venture study programs as necessary and desirable? Enrolment limitations on top Chinese universities Significant gains have been made in higher education capacity in China especially over the last five years but resources are still lagging and the demand is still not being met domestically. Increasingly many of those unable to enter top local universities consider studying abroad the next best option. Private education In addition the private education sector has also seen an increase in recent years, with the establishment of private secondary schools and universities. For some parents a
private educational institution enhances their child s possibilities of success since many such schools are linked to overseas colleges and universities, which means that students can have a natural entry into studying abroad. It is true to say that some students who do not achieve particularly well in the government school system often seek private education in China. There is a government preference for domestic not overseas education for its tertiarylevel students. Latest reported trends? II B. CHANGING PATTERNS AND PROFILE OF CHINESE STUDYING OVERSEAS With an estimated floating population of 120 million (8 million of whom are children), the shifts in population cannot be ignored. The majority of the floating population move from the countryside to the cities and though new policies have been implemented, the general movement is still from western China to the eastern cities. Much of this has been made possible by the relaxation of the once-strict houko (home town residence permit) requirements. Chinese students 2005/6 A survey conducted in 2004 by the Horizon Research Consultancy Group on favoured study destinations revealed that 22.2 percent of Chinese students preferred the United States, 19.6 per cent Australia, 12.5 per cent Britain and 10.5 per cent France. This is probably an accurate reflection of the perceptions that the US offer the best postgraduate education in the world, whilst the other destinations though quality are more expensive, particularly in the case of the UK which is further disadvantaged by a seemingly more protracted visa application process. CIN IELTS figures show that the top stated destination is Australia, followed closely by the UK and a long way down Canada. More interesting is the fact that candidature is getting younger with the largest age group now being 16-23 and that there is an upsurge in candidates taking the IELTS to study in the US and elsewhere for postgraduate study. What are they studying? The majority seek to study business, IT, management, finance, accounting and design overseas, reflecting a continuing current strong perception that the West do these important things better than China and that being foreign qualified will still improve their marketability on their return to China despite media evidence to the contrary. Changing perceptions of overseas study There has been a noticeable change in thinking over the last few years regarding overseas study. Many Chinese return to China to discover that the doors of
opportunity do not automatically open for them as a result of their overseas degrees. Sufficient numbers of these sea turtles as the Chinese loosely translates into have returned to experience disappointment at the lack of expected additional opportunity and salary. This phenomenon has not yet been researched but feedback has indicated that there is a diversity of possible reasons. The rate of change in many Chinese organisations (it is not as fast as many thought it would be). The traditional way of entering into an organisation by leveraging connections and relationships still is very strong. There has even been the comment that those with overseas degrees and experience would possibly have difficulty fitting in to a more conservative workplace in China. This is currently the subject of a formal study in Hong Kong (Christine Davison, associate professor at University of Hong Kong) with preliminary results showing that perceptions of being too different in the workplace can have its drawbacks, namely that diversity is treated as a problem not as a resource. Australia The question for many of us here today is: How long can it remain the focus for mainland Chinese students? Australia remains one of the most popular destinations for Chinese students. Research through surveys and student feedback indicate a wide range of factors contributing to this popularity, the key ones being: a. e-visa service - this has definitely had an impact. Australia by comparison with USA and UK is perceived as easier to gain a visa. b. move away from interviews c. cost Australia, though the cost of study has doubled over the last few years is still regarded as cheaper than Europe d. trusted agent network which give comprehensive guidance and act as advocates e. potential for work f. comparatively safe destination g. IELTS test frequency and speed of results making it more accessible, hence easier to fit into context of a student s overall plan for overseas study Recent growth of the US-bound market The numbers taking IELTS to study in the US is climbing back up again and the numbers sitting TOEFL in order to study in North America may well exceed those of IELTS this year. Currently there are 90,000 Chinese studying in the US, and the embassy in Beijing claims this will grow significantly in the next few years as word spreads that it has recovered from the impact of 9/11 and that for good students getting a visa is not that difficult. Media mentions are increasingly becoming positive about this and embassy officials are touring China to reinforce this message.
Study-abroad market growth as indicated by research so far (summary) The numbers of Chinese students going abroad to study is slowing but local universities and Joint Venture (JV) education programmes (at secondary as well as tertiary level) are expanding rapidly. According to the Ministry of Education s figures for 2004, there were 712 JV course providers servicing some 30,000 students but only 160 had so far been licensed to operate. The British Council has conducted research into this sector recently and found that 70% of enrolled students are following undergraduate programmes, 22% Masters and the rest diplomas. The majority are following pathway courses of one sort or another and at or before the point of going abroad take an international test of English; but 20% and rising are electing to study and graduate in China not overseas and take the local College English Test, though this is no longer compulsory for graduation. This is an opportunity here for the IELTS test we think. Institutions from the UK, Canada, Australia and the US in that order are the biggest providers of trans-national education and the market is slated to grow by 40% this year. The big question is whether this rate of growth can continue, or will the expansion and quality of domestic higher education facility win the day. Impact of alternative hubs in Asia-Pacific region There is also growth in numbers of Chinese students opting to study in the region, particularly Singapore, Hong Kong and Malaysia. Many parents would appear to view this as a safer and culturally sensitive option and providers actively encourage these consumer attitudes. More research is needed into the market potential of regional hubs of education. III INNOVATIVE APPROACHES Need for flexibility and innovation The China market is complex and changing fast and consequently there is a need for flexibility and innovation on the part of providers. It should be borne in mind that China is itself offering international educational programmes in both the arts and sciences. The market is opening up but not as fast as we would like to think. Domestic programmes and qualifications are the first and official options, even though the quality is variable and cannot always be relied on, while foreign imports are being contained by the New Law. However, at the right price and level of flexibility these will continue to rise in popularity. One of the most flexible providers in vocational education are the TAFE colleges and their distance programmes, with its system of credits is seen as a credible and effective way of learning. But flexibility and innovation is also emerging in English Language teaching and testing in China. In 2006 ETS will introduce the New TOEFL, an internet-based integrated skills test that is taken and marked on-line, and it will be easy to register for and it will be available on 36 test dates and in virtually every main city in China.
CIN and NEEA have, as we have mentioned, switched to on-line registration and payment since 2004. Customer surveys indicate these innovations are perceived as modern and convenient. Local universities across China have, for their non-english majors, been required to provide more flexible courses on-line and with a focus on listening and speaking, in an attempt to move away from the teacher-centred classroom which focuses on reading, writing and grammar. This is being matched by a major reform of the College English Test, the validity and reliability of which has been called into serious question. One of the great challenges for the Chinese government is the reform of teacher training to ensure that better teaching (including English teaching) is available. The need for ongoing technological and procedural improvement a. Innovation in testing has to be secure if the results are to be trusted, and here IELTS leads the field. NEEA, the local partner for IELTS in China, has on advice recently encrypted the test s on-line system of registration and made candidate data secure from unwarranted intrusion. b. In the same vein British Council and IDP (CIN) have, in an effort to stop the recent rise in impersonation on behalf of weaker candidates, has been trialling a new China government ID Card verification system and photo enrolment on test days. The trials have been successful and national rollout will follow soon. These hi-tech innovations are supported by facial recognition procedures, training materials and training for all venue staff, including examiners. Notice to the public of what we are doing and why is reflected in the amendment of Candidate Rules and Candidate Confirmation Letter to incorporate clauses allowing tighter test day security processes. Management of all these changes is now in the hands of a full-time China IELTS Security Manager, which already has had an impact on fraud detection and prevention. Importance of strong and appropriate partnerships and how these operate or should operate Innovation can undoubtedly add value but in what is only partial market economy, official partnership is core to operating successfully in China. If your business booms for your product or service then this will arouse very quickly the interest of central government, which can if pushed, over-ride local public and private educational agency deals. When IELTS became the market leader in the international English testing field, the China IELTS network had to partner with NEEA but through
extensive discussion this led to the creation of the innovative on-line system of registration by them. The agency also formally manages the 26 test centres, but dayto-day management of these venues and the test itself remains firmly in the hands of the British Council on behalf of CIN. The need for more research It goes without saying that successful market entry and increase in share needs to be based on reliable research into customers, influencers, inhibitors and competitors, existing and potential. The drivers of change in the domestic and foreign higher education market need to be accurately pin pointed if investment is not to be wasted. Under WTO rules of engagement, provision of public services has to be opened up to tender and this could affect the future of government agencies such as the testing authorities NEEA, CPTA (Civil Service Personnel Testing Authority), and OSTA (Vocational Testing and Training Authority). The government has now passed a new law on this: the Administrative License Law of the People s Republic of China, but only time can gauge its effect. References China IELTS Network (CIN) data China Statistical Yearbook 2004 Chinese Education Ministry, Business Week, August 22/29 August 2005 Horizon Research Consultancy Group, Viewfinder, South China Morning Post, 23 September 2005, p.a21