industry education intergration高职教育产教融合治理机制改革探索-英文.pptx

vocational institutions collaborating with industries

1. Reform Exploration of the Integration between Industry and Education Governance Mechanisms in Higher Vocational Education Chen Xing

2. The integration between i ndustry and education is the lifeline of the development of vocational education. In recent years, China has taken t he integration between i ndustry and education as a core objective, and implmented a number of polic ies and measures that have shaped distinctive Chinese solutions and experiences in this field . T he Guidelines on Promoting the High-Quality Development of Modern Vocational Education , issued o n May 2, 2014 , established t he integration between i ndustry and education as a guiding principle . T he Modern Vocational Education System Development Plan , issued by the Ministry of Education o n June 16, 2014, incorporat ed t he integration between i ndustry and education as a core objective of the development of modern vocational education system .

3. The Guidelines on Deepening the Intergration of Industry and Education, issued o n December 19, 2017, established the integration between industry and education as a fundamental principle for the development of vocational education. The Implementation Plan of Reform of Vocational Education issued on January 24, 2019 emphasized the importance of the integration between industry and education across multiple dimensions. The Implementation Measures for Developing Industry-Education Integrated Enterprises (Trial) issued by the National Development and Reform Comission and the Ministry of Education on March 28, 2019, put forward to advance the integration between industry and education through enterprise participation.

4. The Guidelines on Promoting High-Quality Development of Modern Vocational Education, issued by the General Office of the CPC Central Committee and the General Office of the State Council i n October 2021, advocated the integration between industry and education and the cooperation between school and enterprise to foster active interplay. The revised Vocational Education Law was adopted by the Standing Committee of the 13th National People’s Congress on April 20, 2022. It stated the establishment of a modern vocational education system that adapted to economic and social development, fostered deeper integration between industry and education , placed equal emphasis on vocational school education and vocational training, bridged academic and vocational pathways, ensured effective connectivity among different levels of vocational education, and served lifelong learning for all.

5. The Report on the Work of the 20th CPC National Congress called for coordinating innovation between vocational education, higher education, and continuing education, promoting the integration between vocational education and general education and between industry and education , and creating synergy between science and education while optimizing the positioning of vocational education. The Guidelines on Deepening the Reform of Modern Vocational Education System, issued by the General Office of the CPC Central Committee and the General Office of the State Council in December 2022, put forward to prioritize the intergration between industry and education and between vocational education and general education, and advance the synergy between science and education so as to drive coordinated innovation across vocational education, higher education, and continuing education.

6. On July 30, 2023, the Ministry of Education issued the Guidelines for Advancing the Integration between Industry and Education . On October 21, 2024, the General Office of the Ministry of Education issued the Notice on Strengthening the Integration between Industry and Education at Municipal Level , and released both the Standards for Advancing the Integration between Industry and Education at the Municipal Level and the list of the approved municipal consortia. In January 2025, the CPC Central Committee and the State Council issued the Master Plan on Building China into a Leading country in Education , proposing to develop a new model of diversified education provision with deepened integration between industry and education.

7. Reform Measures for the Intergration between Indusrty and Education with Chinese Characteristics

8. Challenges in the Integration between Industry and Education for Higher Vocational Education and the Solutions Models and Effectiveness of Governance Mechanisms in Higher Vocational Education Exploration of Reform Approaches for Governance Mechanisms in Higher Vocational Education 1 2 3 Contents

9. Challenges in the Integration between Industry and Education for Higher Vocational Education and the Solutions 1 Part

10. 1. The Essence of the Industry-Education Integration Industry refers to collective term for national economic sectors, and also clusters of enterprises with shared attributes. Education is formal schooling, including on-the-job training for enterprise employees at schools. Integration is t he process of combining multiple elements into a unified whole . Integration encompasses both the end result and the entire merging process.

11. Three Dimensions of the Industry-Education Integration

12. 1. Uncoordinated development between education and industrial systems: persistent coexistence of graduate unemployment and labor shortages, structural contradictions, and disconnection between the two sectors. 2. Non - mutual promotion of education and industrial systems knowledge economy (where universities serve as social axial institutions), industrial optimization and upgrading, and the fourth industrial revolution. 2. Rationales for Deepening the Industry-Education Integration

13. 1. Core Challenges a. Macro-level: uncoordinated development Structural contradictions b. Meso-level: lack of in-depth engagement One-sided enthusiasm, forced partnerships c. Micro-level: lack of synergy Weak practical skills, limited technology transfer, inadequate social services 3. Challenges in Deepening the Industry-Education Integration

14. 2. Institutional Constraints Political and economic system Education management system School - running funds (for training and practical bases) School governance structure Teaching staff : dual - qualification teachers, research capabilities Educational evaluation system (school evaluation, talent evaluation, teaching evaluation, research evaluation) Enrollment and employment system ……

15. 01 The Greatest Challenges in the Integration between Industry and Education for Higher Vocational Education

16. Core Challenge: w eak i ncentives Supply-side: Schools lack impetus as industry demands fail to be translate d into institutional reforms, missing critical pressure mechanisms. Demand-side: Enterprises show low engagement due to uneven vocational education quality , which has something to do with regional economic and industrial disparities. 3. Pathways to Deepen Industry-Education Integration

17. Root c ause of insufficient impetus : Governance- d riven m odel l imits i ntegration m omentum Macro level: Can governments accurately forecast industry needs? • How to align the scale , structure and quality of vocational education ? Meso level : Why do schools and enterprises cooperate? (demand gaps) Micro level : Over-regulation (f unding , enrollmen t, and major controls ); C ontradictory goals: Government-focused (teacher promotions) vs. market-driven (faculty entrepreneurship barriers)

18. Pathways to Deepen Industry-Education Integration - Reforming Governance Mechanisms in Higher Vocational Education

19. Models and Effectiveness of Governance Mechanisms in Higher Vocational Education 2 Part

20. 1. Market Governance Price of technology and services Employers Expected educational returns Individual and family demand for vocational education Vocational colleges Service market Technoloy market Labor market Educational opportunity market Conceptual culture

21. Market Governance Model Core Principles: Free exchange ( contracts ) and free competition Components: s upply-demand mechanisms, competition mechanisms, information (price) mechanisms, and risk mechanisms Market Failures: a. Conditional f ailures: m onopoly (imperfect competition, price influence d by individuals) , pr ice faliure (inadequate information) , p ublic goods provision & externalities b. Inherent f ailures: i nequality , e conomic volatility

22. It is not from the benevolence of the butcher, the brewer, or the baker that we expect our dinner, but from their regard to their own interest. When they are creating value through capital, they do not intend to promote the public welfare , but are instead pursuing their own interests. Yet, in doing so, they are led by an invisible hand to promote an end which was no part of their intention. By pursuing their own interest they frequently promote that of the society more effectually than when they really intend to promote it.

23. When incomes increase, consumption will also increase but by less than the full increment of income. Investors often exhibit a multitude of animal traits during the investment process, such as greed, fear, and the herd effect. They also engage in irrational behaviors related to confidence, fairness, fraud, money illusion, and being swayed by narratives. The long run is a misleading guide to current affairs. In the long run we are all dead.

24. Market Governance Models in Vocational Education and the Outcomes Time: Vocational Education in the Laissez-Faire Era (1776-1929) Core Philosophy: e ducation as a market transaction guided by the invisible hand Government: What can we do for you? Schools: Let us handle it ourselves! Outcomes: s uccessful integration leading to the r ise of private education (Confucian academies, European medieval universities, and modern private universities) Challenges : e ducational inequality, utilitarianism, and unemployment

25. The government forecasts social demands for vocational education and research, translates them into policy actions, and regulates the development of vocational education in terms of systems, scale and structure, talent cultivation, research, enrollment, and employment. 1. Government Governance

26. Government Governance Model Core Framework: b ureaucratic hierarchy plus command system Government Failures: p olicy errors, institutional inefficiency, rent- seeking, bureaucratic bloat

27. Without a coercive force, it would be insufficient to restrain people ’ s ambitions, greed, anger, and other similar passions. Through this absolute authority with deterrent power, people can be prevented from reverting to a “ state of war ” due to their evil nature. The only way to erect such a common power is to confer all their power and strength upon one man, or upon one assembly of men, that may reduce all their wills, by plurality of voices, unto one will... This is more than consent, or concord; it is a real unity of them all in one and the same person, made by covenant of every man with every man... This done, the multitude so united in one person is called a COMMONWEALTH.

28. Man is born free, and everywhere he is in chains. For human beings to survive, the power of the individual is feeble. An individual’s rights, happiness, and property can be better protected in a society with a regular government than in an anarchic society where everyone looks out only for themselves. A feasible approach is for individuals to come together and form a union, that is, the state. The purpose of the state is to protect its members and their property. The state can only be the product of a free agreement among free people. Men are born free and equal, and they establish the state by entering into a social contract. The state is the union resulting from this contract among the people. —— The Social Contract by Jean-Jacques Rousseau

29. Spontaneous Order and Free Competition This spontaneous order is the product of human action but not of human design. Competition is a discovery procedure. Humans cannot predict what truly constitutes excellence and correctness. Only through full competition can excellence and correctness emerge and proliferate. A society that stifles fair competition is strangling its own future.

30. What makes the state a hell is that man tries to make it his heaven. Money is the greatest tool of freedom that humanity has ever invented. Only money opens its doors to the poor, whereas power never will. Science has taught us humility. It is simply impossible for us to be omniscient and all - knowing, proficient in everything. This is akin to the teachings of all great religions that human beings are not gods, nor can they ever become gods. In the presence of the divine, humans must bow in submission.

31. Government Market Decision-making Approach Centralized Decision-making Decentralized Decision-making Starting Point Collective Rationality Individual Rationality Coordination Approach Command and Supervision Market Competition Scope of Function Handling Major Issues Handling Minor Issues Constraints Management Cost Transaction Cost

32. Government Governance Models in Vocational Education Time: Era of State-Directed Education , i ncluding China ’ s planned economy period ( 1949-1991 ) and German modern universities ( state and academic freedo m) Core Philosophy: e ducation as government enterprise with visible hand intervention Schools : What if we encounter problems? Government : Underperformance triggers state takeover! Outcomes: s ector-specific colleges, institutional relocation L imitations : e ducational rigidity, bureaucratic fragmentation, slow development, market incompatibility

33. Self- o rganizing (Network) Governance: Voluntary association based on relational trust Collective action needs Emergent rules for self-management Core Philosophy : t rust-based negotiation 3. Self-organizing Governance

34. Features Market Hierarchy Network Foundation of Norms Contract , property rights Employment relationship Complementary relationship Means of c ommunication Price Workflow Relationship Conflict r esolution Bargaining Administrative orders, authority Mutual benefit norms, reputation focus Degree of f lexibility High Low Medium Provision of c ommitments Low Medium to high Medium to high Atmosphere Clarity and skepticism Formality, bureaucracy Openness, mutual interests Priority of Actors Independence Dependence Mutual dependence Form of Mixture Repeated transactions, established contracts like hierarchical ones Profit centers with market characteristics Multiple partners, formal rules

35. Hierarchy Network Market Rule Hierarchy compliance, command system Cooperation Competition Member Identity Collectiv e identity Self-selected identity Independent choice Logic Power logic Relational logic Transaction logic Cost Management cost Relational cost Transaction cost Power Top-down power Bottom-up power Decentralized power

36. 自组织治理的形式

37. Limitations of Self-Organizing Governance: Relational Costs Small- g roup Bias Trust Dependence Emergent Hierarchies Performance Uncertainty

38. Self-Organizing Governance Model in Vocational Education University-enterprise collaboration relies on personal connections (alumni , university leaders). What if enterprises refuse to participate and the government doesn ’ t offer support? What are the president and dean doing? Outcomes : v iable supplement to formal mechanisms Limitations: n arrow scope, unstability , superficiality, weak contractual binding

39. 1. Government-Market Hybrid Governance There is no perfect market economy. There is no “pure” market economy in the modern world, nor has there ever been such an economic system at any time in the world. In fact, any economy is a type of “mixed” economy, often exhibiting characteristics of both planned and market economies. 4. Hybrid Governance

40. Hybrid Governance Model in Vocational Education Vocational education is a typical example of hybrid governance (China : g overnment- l ed plus m arket- a djusted) . Enrollment & Training: g overnment- led governance Employment: m arket-driven governance (self-employment and targeted training) Outcomes: e nsure ing education investment and equity to some extent Limitations : d isconnect ion between talent development and market needs

41. 2. Polycentric Governance (Public Affairs: p ublic i ssues & s ervices) Core Philosophy : m ulti-level collaboration and h ybrid mechanisms Key Questions: What defines effective collaborative mechanisms? Where are the boundaries of hybridization?

42. Ostrom ’ s Study on Police Services Some people argue that the provision of public services by local governments is the root cause of chaos and inefficiency, and they strongly recommend eliminating the “ fragmentation ” in urban services . That’s to abolish and merg e some small governmental units. However, Ostrom ’ s research found that in communities served by small-scale local police agencies, households experienced lower rates of victimization from crime compared to those served by neighboring city police departments. These households were also more likely to call for police services when subjected to criminal offenses, received higher-quality services, and gave more positive performance evaluations to the police agencies.

43. Two Production Strategies in Police Services: Task- o riented Strategy ( a dopted by city police departments) Specialized units handling specific issues (e.g., theft cases) , d eliver ing high-level support service Patrol- o riented Strategy ( i mplemented by independent community police agencies) Allocating significant resources to localized patrols (e.g., homicide prevention) Effective for small agencies but unsuitable for large, centralized departments due to challenges in command and control

44. Different types, levels, or attributes of items (services) should correspond to government service units at different levels, with various community organizations and individuals acting as co-producers. In essence, a polycentric urban government system itself constitutes a form of order. The significant implication of a polycentric system for public goods provision lies in its ability to break the highly centralized power structure characteristic of a monocentric system, thereby establishing multiple centers of authority to fulfill the function of public goods provision.

45. The polycentric governance system proposes a distinct logic for public service delivery that diverges from traditional bureaucratic administration theories. It advocates for a collaborative and synergistic process involving multiple participants , thereby transforming the government ’ s role as the sole provider of public services. This framework establishes a multi-stakeholder supply model encompassing government, market, and society, effectively addressing the limitations inherent in relying exclusively on either market mechanisms or government intervention for public service provision .

46. 02 Does p olycentric g overnance e xist in v ocational e ducation?

47. 3. Collaborative Governance (Public Affairs) Core Principles: m ulti-stakeholder participation with democra tic consultation and c ommon interest Advantage s : d ecentralizes government authority while pooling collective wisdom and efforts

48. The C o-governance M odel of V ocational E ducation Board and Council Governance A s a policy advisory body comprising local government officials and enterprise representatives , t he responsibilities of school council consist of: reviewing institutional development plans and reports while providing operational guidance; supporting the school through policy, funding, enrollment, employment, faculty, and infrastructure resources, including fundraising for major projects; facilitating talent development, industry collaboration, research, social services, and cultural initiatives through resource coordination.

49. 03 What c hallenges confront c ollaborative g overnance of v ocational e ducation?

50. Exploration of Reform Approaches for Governance Mechanisms in Higher Vocational Education 3 Part

51. 1. Market-centered Polycentric Governance

52. 1. Reform Requirements Coordinate the scale, structure, and quality of vocational education based on m arket m echanism . Vocational Institutions: o perate independently in accordance with market demands and laws. Government Roles: p rovide subsidies, enact regulations, implement macro-control, and refine market mechanisms. Students & Parents: make independent choices in education and career and assume risk s on their own . Employers: collaborat e with schools based on their needs. Social Organizations: e valuate and monitor education quality (via government procurement).

53. 2. The Relationship between Market-centered Polycentric Governance and the Marketization of Education The Organi z ation for Economic Cooperation and Development (OECD) defines higher education marketization as “t he introduction of market mechanisms into higher education, resulting in at least one distinctive market feature , like competition, choice, price, decentralized decision-making, or financial incentives while rejecting absolute traditional public ownership or absolute privatization. ” In market-cent ered polycentric governance, the market dimension aligns with higher education marketization, while the polycentric aspect transcends it, embodying social network governance.

54. 3. The Relationship Between Market-Centered Governance and the Privatization of Education Market-centered governance means market-oriented independent operation of schools. Both public and private schools can operate based on market principles. The distinction between public and private schools lies primarily in their main funding sources . The marketization of e ducation does not equate to the privatization of school. Public and private schools should engage in fair competition, where the fittest survive.

55. 2. Reflections on Market Failure a. Conditional Market Failures (Reducing Market Efficiency) Perfect Competition Failure: imperfect competition (monopolistic competition, oligopoly, and monopoly) Perfect Information Failure: asymmetric information Perfect Accountability Failure: externalities (price distortion) Excludability Failure: public goods (e.g. national defense) b. Inherent Market Failures (Threatening Social Development): Inequality Economic volatility

56. The root causes of market failure lie in imperfect market mechanisms and excessive Keynesian government intervention , not as justification for state takeover. Many market failures can and are being corrected through market mechanism refinement. Humanity can never attain omniscience and individuals perpetually operate in a state of ignorance. Thus, institutional safeguards against scientific and rational overreach are essential. Only market-driven division of labor through spontaneous individual decisions can optimally utilize the scarcest resource of knowledge.

57. The market ’ s function lies in enabling individuals each possessing only a fraction of soci al knowledge to collectively utilize the total of dispersed information. If an individual or the government claims to possess all the information in society, thereby identifying “ market failure ” and attempting to correct it, such a person must be excessively arrogant and utterly ignorant of the market ’ s function.

58. 04 Is m arket- centered p olycentric g overnance f easible for h igher v ocational e ducation?

59. 3. Reflections on the Distinctive Nature of Education 1. The Purpose and Principles of Education E ducation cannot be understood in isolation. The education system is an integral part of human society, having gradually evolved toward relative independence alongside social development. Many issues do not originate spontaneously within the education system itself, nor can they be resolved solely through reforms in education. The education system interacts with and mutually reinforces other social subsystems. Only when the education system harmonizes effectively with other social subsystems can human society make greater achievements .

60. O bjectives of education must be prioritized, and education must adhere to its inherent principles. The fundamental purpose of education is to cultivate individuals and to nurture well-rounded human beings. While employment and economic development are partial goals, they must not overshadow comprehensive human development. We must respect the laws of education and refrain from seeking immediate gains at the expense of long-term benefits!

61. 2. The Public Interest Nature of Education Public Interest : b enefits for the public Private Benefits of Education: Enhance individual productivity (employment and income) and consumption capacity Develop personal ethics Improve cultural literacy Enriche spiritual life Public Benefits of Education: Foster shared values and ethical standards, and develop social institutions Reduce poverty Promote social equality and stability Decrease crime rates Strengthen social cohesion

62. The tension between market-cent ered approaches and the public interest nature of education is not irreconcilable, but can be balanced through certain methods . Education inherently embodies public interest features . The public interest nature of education is safeguarded through government regulation, teacher guidance, and curriculum assurance.

63. 4. Reflections on Institutional Complementarity Institutional Complementarity (Aoki, 1999): In an economic system, if the existence of one institution becomes the rationale for another ’ s existence, they exhibit institutional complementarity. Institutional c omplementarity means that i nstitutions form an integrated whole. Within a complementary institutional system, elements must be mutually consistent or at least non-conflicting to achieve adaptation and generate synergistic institutional effects. Two Types of Complementarity: m utual r einforcement to creat e synergy , and m utual c ompensation to achiev e completeness

64. Is m arket- centered p olycentric g overnance c ompatible with China ‘ s c urrent and f uture i nstitutional s ystem? 1. The reform of the economic system emphasizes the decisive role of the market and the government ’ s streamlining of administration and delegation of powers. The Decision on Major Issues Concerning Comprehensively Deepening Reforms was adopted at the close of the Third Plenary Session of the 18th CPC Central Committee . It stated that the reform of the economic system is the focus of all the efforts to deepen the all-round reform. The core issue is to handle the relationship between the government and the market properly, enabling the market to play a decisive role in resource allocation while better leveraging the role of the government . The market ’ s determination of resource allocation is a general law of the market economy. To improve the socialist market econom y , it is imperative to adhere to this principle and focus on addressing issues such as an i nsufficient market system, excessive government intervention, and inadequate supervision.

65. 2. The reform of the political system emphasizes democracy and the rule of law. The Decision on Major Issues Concerning Comprehensively Deepening Reforms put forward that to develop socialist democracy , it is essential to guarantee that the people are the masters of the country as the fundamental principle. We must uphold and improve the system of people ’ s congresses, the system of multiparty cooperation and political consultation under the leadership of the Communist Party of China, the system of regional ethnic autonomy, and the system of community-level self-governance. Greater emphasis should be placed on refining democratic institutions and diversifying democratic forms, so as to expand people ’ s orderly participation in governance at all levels and in all fields, and g ive full play to the strength of the socialist political system .

66. Building the rule of law in China . The country should pursue coordinated progress in law-based governance, law-based exercise of State power, and law-based government administration, and promote the integrated development of rule of law for the country, the government and the society. Efforts are to be made to deepen the reform of the justice system, to protect the people's rights and let the masses feel equality and justice in every court verdict.

67. 3. Social Institutional Reforms Emphasize Polycentric Governance According to t he Decision on Major Issues Concerning Comprehensively Deepening Reforms , the general purpose of deepening all-around reform is to develop socialism with Chinese characteristics, and to advance modernization in the State governance system and governance capability. The work report delivered on the 19th National Congress put forward to e stablish a social governance model based on collaboration, participation, and common interests .

68. 4.The education system reform demonstrates a marketization trend. a. Deepen the separation of administration, operation, and evaluation , expand provincial governments ’ coordination authority in education and school independence, and improve internal school governance structures . b. Law on the Promotion Of Non-public Schools of the People’s Republic of China came into effect. It implement ed categorized management of private education institutions for-profit and non-profit. c. Implement the reform of streamli ning administration, delegat ing power, improv ing regulation and upgraded services in higher education. d. Advance the m odernization of the e ducational g overnance s ystem and g overnance c apacit y.

69. W hile the current institutional framework , particularly public perceptions , lacks adequate support for market-cent ered polycentric governance in vocational education, this approach fully aligns with the reform of China ’ s politica l, economic and educational systems . Therefore, based on institutional complementarity, we must shift from government- led hybrid governance, guard against centerless co - governance models, and pioneer top-level design for market-cent ered polycentric mechanisms in vocational education.

70. 5. Reform Strategies 1. Reduce government-driven policy programs and focus on market mechanism development. Enhance market systems by fostering cooperation among stakeholders through shared interests and competition, rather than policy incentives. Explore converting underperforming public institutions to private ones, support the development of private vocational colleges, and pilot for-profit higher vocational institutions. Accelerate legal framework development to standardize the integration between industry and e ducation, lower transaction costs through institutional innovation, and create a favoable environment for market mechanisms.

71. 2. The government should delegate power , ensuring vocational institutions to operate in accordance with the law and market demands . E xpedite the removal of controls over the autonomy of higher vocational colleges in running their own affairs, allowing them to pilot application-based admissions and adopt more flexible learning schedules and methods. T he government must fulfill its responsibilities in educational investment, strive to reduce management costs of government services, expand performance-based, indirect, and competitive funding, and actively explore education voucher subsidies to promote a more indirect and lenient government management approach towards higher vocational colleges. Meanwhile, it is determined to use higher vocational colleges as a starting point to advance the reform of public institutions, enabling them to operate in accordance with the law and market demands , enhance quality, and independently deepen the integration of industry and education through competitive incentives.

72. 3. Create c onditions for s elf- o rganizing g rowth based on v oluntary p rinciples Limit government functions and restrain excessive intervention in soci al and economic affairs to foster an enabling environment for self-organizing entities in the integration between industry and education. B uild a social trust system to reduce relational costs in self-governance. Governments should avoid dominating or excessively participating in such self-organizing initiatives.

73. 4. Exercise caution toward polycentric co-governance in education and focus on developing market foundations. While advancing the industry-education integration requires co-governance to engage stakeholders in collaborative problem-solving, effective educational co-governance must grasp the principal contradiction of the matter; it should neither be centerless and irresponsible, nor an idealized model lacking a realistic foundation and practical pathways. . Polycentric co-governance in vocational education faces theoretical and operational challenges, with ambiguous boundaries and accountability in motivating and coordinating stakeholders.

74. Furthermore, in market-cent ered co-governance practice, key challenges remain unresolved such as defining boundaries among government, market, and self-organizing governance ; en couraging the government to proactively delegate powers and reduce excessive intervention; progressively introducing and refining market mechanisms; and expanding standardized self-governance. Currently, the priority is to emancipate our minds, shift from a government-centered governance mindset, and gradually experiment with establishing pilot reforms for market-centered co-governance.

75. THANKS