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Several Opinions of the CPC Central Committee and the State Council on Deepening Reform and Regulating Development of Preschool Education [Effective]
中共中央、国务院关于学前教育深化改革规范发展的若干意见 [现行有效]
【法宝引证码】

Several Opinions of the CPC Central Committee and the State Council on Deepening Reform and Regulating Development of Preschool Education 

中共中央、国务院关于学前教育深化改革规范发展的若干意见

(November 7, 2018) (2018年11月7日)

Preschool education is the beginning of lifelong learning, an integral part of the national education system, and an important public-welfare cause. Running preschool education well and achieving accessibility of education to young children is a major decision and arrangement made at the 19th CPC National Congress and a major people's livelihood project through which the Party and the government conduct beneficial work for the people and is related to the sound growth of hundreds of millions of children, social harmony and stability, and the future of the cause of the party and the country. 学前教育是终身学习的开端,是国民教育体系的重要组成部分,是重要的社会公益事业。办好学前教育、实现幼有所育,是党的十九大作出的重大决策部署,是党和政府为老百姓办实事的重大民生工程,关系亿万儿童健康成长,关系社会和谐稳定,关系党和国家事业未来。
Since the 18th CPC National Congress, China's preschool education cause has developed rapidly, resources have expanded quickly, accessibility has been significantly improved, the management system has been continually bettered, and the problem of “difficulty in enrollment” has been effectively alleviated. Nevertheless, it shall be noted that due to the weak foundation and a number of shortcomings, preschool education currently remains the short board in the entire education system, the problem of unbalanced and insufficient development is much prominent, and the difficulty in enrollment and high tuitions are still one of the issues bothering the public. Primarily, preschool education resources, especially inclusive resources, are insufficient, the policy guarantee system is unsound, the building of the teacher team is lagged behind, regulatory systems and mechanisms are unsound, the quality of care and education needs improving, there is a tendency of preschool education toward “primary school”, certain private preschools excessively seek profits, and young children safety incidents occur occasionally. For the purposes of further improving the preschool education public service system, effectively providing preschool education well in the new era, and better achieving the accessibility of eduction to young children, the following opinions are hereby offered on deepening reform and regulating development of preschool education. 党的十八大以来,我国学前教育事业快速发展,资源迅速扩大、普及水平大幅提高、管理制度不断完善,“入园难”问题得到有效缓解。同时也要看到,由于底子薄、欠账多,目前学前教育仍是整个教育体系的短板,发展不平衡不充分问题十分突出,“入园难”、“入园贵”依然是困扰老百姓的烦心事之一。主要表现为:学前教育资源尤其是普惠性资源不足,政策保障体系不完善,教师队伍建设滞后,监管体制机制不健全,保教质量有待提高,存在“小学化”倾向,部分民办园过度逐利、幼儿安全问题时有发生。为进一步完善学前教育公共服务体系,切实办好新时代学前教育,更好实现幼有所育,现就学前教育深化改革规范发展提出如下意见。
I. General requirements   一、总体要求
1. Guiding ideology. Xi Jinping Thought on Socialism with Chinese Characteristics in a New Era shall be taken as the guidance, the spirit of the 19th CPC National Congress and the party's educational policy shall be comprehensively implemented, the fundamental tasks of cultivating moral ethics and educating people shall be conscientiously fulfilled, the law of preschool education shall be followed, the correct development direction of preschool education shall be firmly grasped, preschool education systems and mechanisms shall be improved, the preschool education policy guarantee system shall be bettered, and the accessibility, inclusive, safe and high-quality development of preschool education shall be promoted, so as to meet the people's expectations for accessibility of education to children and lay a solid foundation to shape socialist builders and successors with all around development of moral, intellectual, physical, aesthetics and labor education (一)指导思想。以习近平新时代中国特色社会主义思想为指导,全面贯彻党的十九大精神和党的教育方针,认真落实立德树人根本任务,遵循学前教育规律,牢牢把握学前教育正确发展方向,完善学前教育体制机制,健全学前教育政策保障体系,推进学前教育普及普惠安全优质发展,满足人民群众对幼有所育的美好期盼,为培养德智体美劳全面发展的社会主义建设者和接班人奠定坚实基础。
2. Basic principles (二)基本原则
—Adhering to party leadership: Party leadership over preschool education shall be strengthened to ensure that the party's education policy is thoroughly implemented in the field of preschool education, that the fundamental tasks of cultivating moral ethics and educating people are put in place, and that preschool education always develops in the right direction. --坚持党的领导。加强党对学前教育工作的领导,确保党的教育方针在学前教育领域深入贯彻,确保立德树人根本任务落实到位,确保学前教育始终沿着正确方向发展。
—Adhering to the government's principal role: The responsibilities of governments in preschool education planning, investment, teacher team building, regulation, and other aspects shall be implemented, and the working mechanism in which all relevant authorities are responsible based on the division of labor and make joint regulation and management efforts shall be improved. The basic direction of public welfare and inclusion shall be resolutely adhered to, giving equal attention to both public and private education shall be adhered to, public financial investment shall be increased, and efforts shall be made to raise the supply of inclusive preschool education resources. --坚持政府主导。落实各级政府在学前教育规划、投入、教师队伍建设、监管等方面的责任,完善各有关部门分工负责、齐抓共管的工作机制。牢牢把握公益普惠基本方向,坚持公办民办并举,加大公共财政投入,着力扩大普惠性学前教育资源供给。
—Adhering to reform and innovation: A problem-oriented approach shall be highlighted, overall consideration shall be given, comprehensive measures shall be adopted, system and mechanism barriers that restrict the development of preschool education shall be removed, the shortcomings of the system shall be fixed, the vitality for establishment of preschools shall be stimulated, social resources' establishment of preschools shall be encouraged, guided and regulated, and all parties shall be fully motivated. --坚持改革创新。突出问题导向,统筹兼顾、综合施策,破解制约学前教育发展的体制机制障碍,补齐制度短板,激发办园活力,鼓励引导规范社会力量办园,充分调动各方面积极性。
—Adhering to regulated management: The law of young children's physical and mental development shall be followed, scientific care and education shall be provided, the governance system shall be improved, regulatory loopholes shall be fixed, preschool education laws and regulations shall be perfected, the law-based establishment and management of preschools shall be achieved, and the sound and happy growth of young children shall be promoted. --坚持规范管理。遵循幼儿身心发展规律,实施科学保教,健全治理体系,堵住监管漏洞,完善学前教育法律法规,实现依法依规办园治园,促进幼儿健康快乐成长。
3. Principal objectives (三)主要目标
By 2020, the gross enrollment rate nationwide for three-year preschool education will reach 85%, and the inclusive preschool coverage rate (the proportion of young children enrolled at public preschools and inclusive private ones) will reach 80%. The preschool education public service system of broad coverage, minimum guarantees and quality will be fundamentally completed, and the preschool education administration system, preschool operation system and policy guarantee system will be basically improved. The input will be increased significantly, and a cost-sharing mechanism will be extensively established. The operation of preschools will be generally regulated, and the quality of care and education will be dramatically improved. Different regions and different kinds of cities will resolv the problems in preschool education development by classification, and large and massive cities will first accomplish the development objectives. 到2020年,全国学前三年毛入园率达到85%,普惠性幼儿园覆盖率(公办园和普惠性民办园在园幼儿占比)达到80%。广覆盖、保基本、有质量的学前教育公共服务体系基本建成,学前教育管理体制、办园体制和政策保障体系基本完善。投入水平显著提高,成本分担机制普遍建立。幼儿园办园行为普遍规范,保教质量明显提升。不同区域、不同类型城市分类解决学前教育发展问题,大型、特大型城市率先实现发展目标。
By 2020, a preschool teacher training system primarily consisting of associate's degree and bachelor's degree courses will fundamentally take shape, and the number of graduates with associate's degree and bachelor's degree specialized in preschool education will reach 200,000 or more; a professional growth mechanism for preschool teachers will be established, the training curriculum standards will be improved, and around 1.5 million preschool principals and teachers will be trained by level and by classification; and a quality certification and assurance system for preschool education courses at general institutions of higher education will be established, the comprehensive quality and scientific care and education capabilities of the preschool teacher team will be generally heightened, the social status and remuneration guarantee of kindergarten teachers will be further improved, and the occupational attraction will be significantly enhanced. 到2020年,基本形成以本专科为主体的幼儿园教师培养体系,本专科学前教育专业毕业生规模达到20万人以上;建立幼儿园教师专业成长机制,健全培训课程标准,分层分类培训150万名左右幼儿园园长、教师;建立普通高等学校学前教育专业质量认证和保障体系,幼儿园教师队伍综合素质和科学保教能力得到整体提升,幼儿园教师社会地位、待遇保障进一步提高,职业吸引力明显增强。
By 2035, three-year preschool education will be pervasive, a preschool education public service system covering urban and rural areas and of a reasonable layout will be established, and a sound preschool education management system, preschool operation system and policy guarantee system will take shape, so as to provide young children with more sufficient, more inclusive, and higher-quality preschool education. 到2035年,全面普及学前三年教育,建成覆盖城乡、布局合理的学前教育公共服务体系,形成完善的学前教育管理体制、办园体制和政策保障体系,为幼儿提供更加充裕、更加普惠、更加优质的学前教育。
II. Optimizing layout and preschool structure   二、优化布局与办园结构
4. Scientific planning layout. All regions shall fully consider the trend of population change and urbanization and, in light of the implementation of the rural revitalization strategy, formulate a plan to meet the peak demand for preschool education. Preschool layout plans shall be formulated on a county-by-county basis, the construction of inclusive preschools shall be effectively incorporated into the harmonized plans for urban and rural public management and public service facilities and included in the local regulatory detailed plans and the cost of construction projects under the land bidding, auction and listing system, specific locations shall be elected, the scope of services shall be specified, the scale of construction shall be determined, and first construction shall be ensured. In urban areas where public preschool resources are insufficient, a batch of public preschools will be newly constructed, converted, and expanded. Preschool education in rural areas shall be vigorously developed, each township (town) shall in principle effectively establish a public central preschool at minimum, large villages shall independently establish preschools or branch preschools, small villages shall jointly establish preschools, loosely populated areas may establish mobile preschools and seasonal courses, among others, according to the actual circumstances, full-time tour instructors shall be engaged to guide teachers, and the village, township and county preschool education public service networks shall be improved. (四)科学规划布局。各地要充分考虑人口变化和城镇化发展趋势,结合实施乡村振兴战略,制定应对学前教育需求高峰方案。以县为单位制定幼儿园布局规划,切实把普惠性幼儿园建设纳入城乡公共管理和公共服务设施统一规划,列入本地区控制性详细规划和土地招拍挂建设项目成本,选定具体位置,明确服务范围,确定建设规模,确保优先建设。公办园资源不足的城镇地区,新建改扩建一批公办园。大力发展农村学前教育,每个乡镇原则上至少办好一所公办中心园,大村独立建园或设分园,小村联合办园,人口分散地区根据实际情况可举办流动幼儿园、季节班等,配备专职巡回指导教师,完善县乡村三级学前教育公共服务网络。
5. Restructuring preschool education. All regions shall set the development of inclusive preschool education as a key task and, based on the local actual circumstances, focus on establishing a preschool education system primarily consisting of inclusive resources, so as to resolutely reduce the high proportion of costly private preschools. Public preschools shall be vigorously developed, and the role of public preschools as a principal channel to meet fundamental demand, provide essential resources, show directions, and maintain low tuitions shall be maximized. In accordance with the requirements of achieving inclusive objectives, provinces where the proportion of young children enrolled at public preschools is low shall gradually increase the proportion, the proportion nationwide will reach 50% by 2020 in principle, and all regions may set specific development objectives according to the actual circumstances. Private preschools shall be actively supported in providing inclusive services, and the development of for-profit private preschools shall be regulated, so as to meet the different selective needs of parents. (五)调整办园结构。各地要把发展普惠性学前教育作为重点任务,结合本地实际,着力构建以普惠性资源为主体的办园体系,坚决扭转高收费民办园占比偏高的局面。大力发展公办园,充分发挥公办园保基本、兜底线、引领方向、平抑收费的主渠道作用。按照实现普惠目标的要求,公办园在园幼儿占比偏低的省份,逐步提高公办园在园幼儿占比,到2020年全国原则上达到50%,各地可从实际出发确定具体发展目标。积极扶持民办园提供普惠性服务,规范营利性民办园发展,满足家长不同选择性需求。
III. Broadening channels and expanding supply of resources   三、拓宽途径扩大资源供给
6. Implementing special programs for preschool education. The state shall continue to implement the preschool education action plan, arrange the construction of a batch of inclusive preschools on a yearly basis, and focus on expanding inclusive resources in rural areas, areas under the poverty alleviation effort, and newborn concentration areas. (六)实施学前教育专项。国家继续实施学前教育行动计划,逐年安排建设一批普惠性幼儿园,重点扩大农村地区、脱贫攻坚地区、新增人口集中地区普惠性资源。
7. Actively tapping potential and increasing increments. Vacant factory buildings as a result of withdrawal relocation, rural public service facilities, unused buildings at rural primary and secondary schools, and other resources shall be fully used to establish public preschools in the form such as leasing, lending and transfer. Sub-districts, village collectives, and financially sound state-owned enterprises and institutions, especially general institutions of higher education, shall be encouraged and supported in establishing public preschools and providing the public with inclusive services while facilitating preschool education for the children of their employees. Preschools that the military ceases operating shall be handed over to local governments and placed under territorial jurisdiction, so as to ensure that preschool education resources are not lost. (七)积极挖潜扩大增量。充分利用腾退搬迁的空置厂房、乡村公共服务设施、农村中小学闲置校舍等资源,以租赁、租借、划转等形式举办公办园。鼓励支持街道、村集体、有实力的国有企事业单位,特别是普通高等学校举办公办园,在为本单位职工子女入园提供便利的同时,也为社会提供普惠性服务。对于军队停办的幼儿园,要移交地方政府接收,实行属地化管理,确保学前教育资源不流失。
8. Regulating the construction and use of preschools incidental to residential communities. Before the end of June 2019, all provinces (autonomous regions and municipalities directly under the Central Government) shall develop administrative measures for the construction of preschools incidental to residential communities, improve the linked administration mechanism for development and reform, natural resources, housing and urban and rural development, education, and other authorities, and diligently conduct the supervision and administration of incidental preschools planning, land transfer, design and construction of preschool buildings, acceptance, handover, establishment of preschools, and other links. All provinces (autonomous regions and municipalities directly under the Central Government) shall carry out special rectification on the planning, construction, handover, establishment, and other matters of preschools incidental to residential communities and complete the rectification before the end of 2019. For urban renewal (shanty town renovation), new urban development and construction of residential areas, and ex situ poverty alleviation and relocation, incidental preschools shall be included in plans for construction public management and public service facilities and constructed according to the relevant standards and specifications, so as to ensure the concurrent planning, design, construction, acceptance and putting to use of incidental preschools and first-phase residential areas. The incidental preschools shall be arranged by local governments in a coordinated manner and serve as public preschools or inclusive private preschools by commission, but not for-profit ones. If there are problems such as delayed construction, reduced construction, ceased construction, non-construction and not putting to use of incidental preschools after being built, no as-built acceptance shall not be granted until corrective action is effective. (八)规范小区配套幼儿园建设使用。2019年6月底前,各省(自治区、直辖市)要制定小区配套幼儿园建设管理办法,健全发展改革、自然资源、住房城乡建设、教育等部门联动管理机制,做好配套幼儿园规划、土地出让、园舍设计建设、验收、移交、办园等环节的监督管理。各省(自治区、直辖市)要对小区配套幼儿园规划、建设、移交、办园等情况进行专项治理,2019年年底前整改到位。老城(棚户区)改造、新城开发和居住区建设、易地扶贫搬迁应将配套建设幼儿园纳入公共管理和公共服务设施建设规划,并按照相关标准和规范予以建设,确保配套幼儿园与首期建设的居民住宅区同步规划、同步设计、同步建设、同步验收、同步交付使用。配套幼儿园由当地政府统筹安排,办成公办园或委托办成普惠性民办园,不得办成营利性幼儿园。对存在配套幼儿园缓建、缩建、停建、不建和建而不交等问题的,在整改到位之前,不得办理竣工验收。
9. Encouraging social resources to operate preschools. The government shall increase support and guide social forces in establishing more inclusive preschools. Before the end of June 2019, all provinces (autonomous regions and municipalities directly under the Central Government) shall further improve the determination tests, subsidy standards and supportive policies for inclusive private schools. The development of inclusive private schools shall be supported by procurement of services, comprehensive reward and subsidies, rental reduction, dispatching of public teachers, training of teachers, guidance of educational research, and other means, and the number of inclusive school degrees and the quality of preschool operation shall serve as important bases for reward, subsidies and support. (九)鼓励社会力量办园。政府加大扶持力度,引导社会力量更多举办普惠性幼儿园。2019年6月底前,各省(自治区、直辖市)要进一步完善普惠性民办园认定标准、补助标准及扶持政策。通过购买服务、综合奖补、减免租金、派驻公办教师、培训教师、教研指导等方式,支持普惠性民办园发展,并将提供普惠性学位数量和办园质量作为奖补和支持的重要依据。
IV. Improving permanent funding mechanisms   四、健全经费投入长效机制
10. Optimizing funding structure. The state shall further increase the input in preschool education and gradually raise the financial input in and support level of preschool education, with a focus on expanding inclusive resources, supplementing teachers, improving remunerations of teachers, and enhancing preschool conditions. The central treasury shall continue to arrange appropriation in support of preschool education development, support local governments in expanding inclusive resources in various forms, deepen the reform of systems and mechanisms, and improve the young children sponsorship system, giving priority to rural areas and poverty-stricken areas in the central and western China. Policies that the central special lottery public welfare funds, among others, support the development of preschool education shall be researched. Local governments shall improve the funding mechanism for preschool education, regulate the management of use, strengthen performance appraisal, and improve the efficiency of use.
......
 (十)优化经费投入结构。国家进一步加大学前教育投入力度,逐步提高学前教育财政投入和支持水平,主要用于扩大普惠性资源、补充配备教师、提高教师待遇、改善办园条件。中央财政继续安排支持学前教育发展资金,支持地方多种形式扩大普惠性资源,深化体制机制改革,健全幼儿资助制度,重点向中西部农村地区和贫困地区倾斜。研究中央专项彩票公益金等支持学前教育发展的政策。地方各级政府要健全学前教育经费投入机制,规范使用管理,强化绩效评价,提高使用效益。
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