Analysis and Suggestions for Foreign Students’ Education Management System Improvement in China: Based on a Case Study of Shanghai

Education management for foreign children in primary and secondary schools has become an issue unignorably in promoting the internationalization of education in China. This paper clarifies the characteristics of the formaliza-tion of “learning in regular class” and the classification of foreign students’ education management through analyzing the foreign students’ admission policies formulated and promulgated by Shanghai Municipal Education Commission. Combined with analyses on the characteristics of the foreign students’ education management system in Japan’s primary and secondary schools, this paper proposed some improvement suggestions. For example, Shanghai should strengthen the construction of the Chinese language teaching system, actively promote the close cooperation between the education administrative departments at all levels and the schools while fully considering the diversity of foreign students to maintain their cultural characteristics.


Introduction
According to the statistics of the Shanghai Municipal Education Commission, in 2004, there were 2 thousand foreign students studying in 150 primary and secondary schools that have been approved by the Municipal Education Commission with the qualification to admit foreign students. By 2020, the number of foreign students in Shanghai at school age will reach 100,000 [1]. With the con-

Problems on Educational Management System for Foreign Students
However, Shanghai's latest education management system for foreign students was made in 2007, nearly 12 years ago. At that time, the school training mechanism, resource security and others were far worse than the current goal of international talent education and training, which caused the divergencies between the foreign student education management system and their actual needs now. Since the local school's teaching systems, teaching methods and teaching resources have long been targeted only for Chinese students, there are many problems and bottlenecks in the education management of foreign students. For example, 1) the management system, curriculum, and teachers recruitment are carried out independently in the "international division", where is only limited to foreign students during daily learning life, lacking of interaction with Chinese students. In addition, the information exchange is not smooth, and there is a severe lack of cooperation and interaction among the "international division" of all schools because of no external support [5]. 2) Cultural differences such as the flag-raising ceremony, patriotic education and others cause that students' do not adapt to the school management system and teaching activities. 3) There are problems in Chinese language teaching for foreign students, such as Chinese teacher structure disorders, the shortage of teachers, and the low satisfaction of teaching materials [6].
In conclusion, an out-of-date education system and management model of public primary and secondary schools are unable to meet the needs of foreign students which leads to the inadequate guarantee of right to education for all children. There is an urgent need for Shanghai to improve a set of more scientific and detailed policies, laws and regulations on the educational management for foreign students and schools, enabling school administrators and government authorities to have laws and activities in their actions to solve realistic problems.

The Diversified Development of Foreign Students Requires Inclusive Management System
The grating into Shanghai's basic education system, which has brought great challenges to the construction of the school's education management system.

Influences from the International Education Concept with Development of Globalization
With the increasing of international status and improvement of international  Bureau. The school has to report to the Ministry of Education of the People's Republic of China to make a registration after being approved, which can enroll foreign students. Secondly, the responsibilities of the relevant administrative agencies at each level are regulated as follows. The district and county education bureaus are the competent departments for coordinating and handling the daily management and foreign affairs of foreign students, while the municipal education commission is the centralized management department for foreign students.

Characteristics of Education Management System for Foreign Students in Shanghai Primary and Secondary
As for education management at school level, the regulation is mainly focused on teaching management, administrative affairs management, and student's status management. First of all, "schools should organize and implement educational management for foreign students on the basis of the current education program in China", "Except for necessary Chinese lessons arranged advanced, any separate classes for foreign students only is generally unavailable in the teaching process. Chinese is the basic instructional language", "Foreign students are exempted from ideological moral courses and ideological political courses. Schools can organize their participation in social practice activities such as public welfare labor according to the requirements of the curriculum", "In addition to equipped the corresponding teaching staff, the teachers engaged in teaching must occupy a certain proportion of middle and senior positions" etc are regulated as teaching management. Secondly, "There must be designated departments and managers to take responsibility for foreign students", "The schools have a living condition suitable for foreign students", "There must also be sound rules and regulations as well as high-quality services and security personnel" were stipulated concerning on administrative affairs management. Finally, student status management was regulated as "referring to the Measures for the Management of Primary and Secondary School Registration in Shanghai." After that, Shanghai Education Commission issued "Notification 1" and "Notification 2" in 2006 and 2007 respectively. The "Notification 1" further distinguish the identity of foreign students, which divide them into children who come to Shanghai accompanying their parents as worker (accompanying children) and students who apply directly to Shanghai to attend primary and secondary schools from abroad (overseas students). Schools that can receive the latter are limited to "schools with permission to admit foreign students' directly from abroad". This kind of schools can accept foreign students who apply directly from overseas to attend primary and secondary schools under the premise of admission plan for city students after approved by the Shanghai Municipal Education Commission. And schools can independently develop educational programs based on the actual situation of foreign students. "Notification 2" drafts specific tuition standards for public primary and secondary schools. The detailed data is shown in Table 1. According to two notifications, foreign students (accompanying children) whose parents live in Shanghai can be arranged by the education Bureau to attend public primary and secondary schools according to the principle of proximity so as to district school's admission. Accompanying children are further classified into three types according to their parent's identities such as "overseas Chinese children", "children of foreigners holding Shanghai residence permit B certificate" and "children of overseas students with Shanghai residence permit B certificate" while their tuition standards and admission systems are also different in the light of identities. If they receive compulsory education in Shanghai, the cost is the same as that of the city's registered students who are free from tuition and miscellaneous fees.
Based on relevant regulations promulgated by the Shanghai Municipal Education Commission, each administrative region (county) has also formulated specific policies and measures in accordance with their respective conditions. For example, Pudong formulated "Guidance on the admission of foreign students (infants) for primary and secondary schools and preschool kindergartens in Pudong new area" in July 2007 and "Notice on management of foreign students' admission and status management" in August 2008. In addition, Minhang district promulgated "Management measures for foreign students' admission in primary and secondary schools in Minhang district" in August 2007, and Changning district formulated "Guidance notes for the admission of foreign students in primary and secondary schools". Putuo district also announced the transient measures for foreign students in primary and secondary schools through the Education Bureau's official website in 2010. Shanghai has basically formed a system for admitting foreign students at all levels of supervision by all levels of the administrative departments till now.

System Characteristics
Through analyses on the policies and measures mentioned above, the characteristics of educational management system for foreign students in primary and secondary schools in Shanghai should be concluded as follows: Firstly, supervision of administrative authorities at all levels tends to be more rigorous and systematic, which mainly reflected in the strict examination system Secondly, at the school level, the teaching management system based on the admission procedure and students' status management of foreign students has been initially established. The current system advocates teaching activities for foreign students under the form of class attendance. "study in regular class" advocates that foreign students study together with Chinese students, promoting foreign students and Chinese students to Advocating foreign students and Chinese students to study in the same class, promoting foreign students and Chinese students to understand each other's different cultures and respect multiculturalism, which provides the possibilities for schools to promote international understanding education and to cultivate outstanding global citizens. However, the current system does not further stipulate implementation concretely. With the parents as the taxpayer as the standard, the children with foreign nationalities who contribute to the economic development only are arranged to attend school nearby and the children of the talents are relieved of tuition fees based on principle that "education as a reward", which allows some of the accompanying children to have the opportunity to treated as Chinese national students when they receive education at primary and secondary schools, and to a certain extent, the right to education for specific type of children is guaranteed.
However, it also leads to the inequality of education opportunities and unequal access to education for other types of foreign students relatively.

Earlier Construction of Education Management System on Education for Children
In 1990s, facing the labor shortage, the Japanese government amended the "Import and Export Administration and Refugee Recognition Act" to loosen restrictions on entry requirements for foreigners. Since then, the number of foreign students in Japan has increased significantly. How to improve the admission management system for foreign students in primary and secondary schools has become an important issue in the Ministry of Education of Japan in the 1990s. Today, with the promulgation of policies such as "Memorandum Between Japan and South Korea", "The Configuration of Teachers for Foreign Students in Need of Learning Japanese", "Promotion of Education Internationalization by Returning Children and Foreign Students Jointly", "Handbook on Foreign Students' Admission", "Guidebook for Foreign Students' Schooling", "Model on Educational Support System for Foreign Students and Returning Students", "Document on Enriching the Education of Foreign Students", "Document on Promoting the Admission of Returning Students and Foreign Students", Japan has formed a relatively complete system of receiving foreign students in primary and secondary schools, which should provide meaningful reference for China appropriately.

Main Characteristics of Education Management System on Education for Children
1) Adhere to ensuring that foreign children in compulsory education age enjoy national treatment in public primary and secondary schools.
First of all, as long as the foreigners register with their residences, their age appropriate children, regardless of their Japanese language ability, can be exempted from test to be admitted into public primary and secondary schools without any fees. Secondly, the local education committees fully acknowledge the situation of foreign children's school-entrance and dropout in the areas within jurisdiction through the implementation of the "pre-school physical examination for children" and the distribution of the "Schooling Guideline" to guarantee the learning rights of all foreign students. For the foreign students who are finally enter in local schools, the relevant departments of the Education Committee will illustrate related matters about the admission for the guardian after confirming the residence address and accepting the "application for admission or transfer", so that the guardian can fully understand the Japanese school education system as well as function and operation of PTA. For children who drop out of school, the Japanese government is also actively taking measures to promote their school attending. For example, the Chiba County Board of Education will ask for a person in charge to conduct a home visit to persuade the guardian to send the child to the school [12].
2) Establish a tripartite cooperation system among the "Ministry of Education, Science and Technology" the education committees and schools in various regions to promote the improvement of the management system for foreign students at school level.
Firstly, the Board of Education provides human resources support to the schools. The main forms include the dispatch of Japanese instructors, translators and foreign students teaching assistant volunteers to the school, while providing regular training for Japanese language instructors etc. Secondly, the Education Board provides financial support for opening Japanese language classrooms and for editing textbooks by various language versions. Finally, the Education Board organizes the heads of the districts to conduct enrollment briefings for secondary schools and high schools what is convenient for parents of graduates to acknowledge relevant information. Besides, under the goal of creating a multicultural symbiotic society, the Education Board regularly organizes communications between experienced schools and less experienced schools for encouraging latter one learning teaching management experience for foreign students 3) Systematically improve the school education management system for foreign students.
First of all, special faculty will be arranged to communicate with the guardian for parents fully understanding on the school teaching management meanwhile building trust relationship with each other after foreign students' school entering. At the same time, cooperate with the Board of Education after understanding the specific needs of students and ask for assistance about Japanese teachers-sending or Japanese classes-opening. Secondly, develop a systematic teaching system for meeting the needs of foreign students involving the staff of the whole school as far as possible under the principle of strengthening international understanding education [13]. Such as the measures like helding foreign parents' consultation or strengthening system of Japanese language teaching and graduates' academic and career counseling etc. Finally, focus on regional cooperation. For example, building up the strong relationship between parents and PTA, enhancing students' awareness on the community, and recruiting Japanese language volunteer teachers.
In addition, the Ministry of Education, Science and Technology also proposed "further strengthen system of the graduates' graduation guarantees", "protect the mother language and the culture of the students" and "eliminate the dropping out of school" as the key development topics of the future education management system. All these measures and implementations are enacted under the international conventions' concept that all children must be guaranteed educational rights regardless of nationality or ethnicity, and equal opportunity for education and the receipt of free education for all children is the minimum request.

Conclusions
The education opening policies in China have been inevitably influenced by various factors including the international situation, the international relations, the international political and economic environment and the development conditions of the nation while being made then. These policies require reorganization, rearrangement, and perfection so as to meet the current and future requirements for further opening to the world of the Chinese education.
After joining the World Trade Organization, China's education market is gradually opening up. Judging from the current situation of the implementation of management policies on education for foreign students in primary and secondary schools in Shanghai, it's clarified that China's basic education market is also facing the impact of the international tide. Therefore, sorting and analyzing the relevant policies for the foreign students' education management in primary and secondary schools formulated in 1999 (national) and 2000 (Shanghai), then providing suggestions for improving the education management system for foreign students in primary and secondary schools, play a positive role in the internationalization of basic education in China. Open Journal of Social Sciences habits (especially foreign students in primary school) is a point of attention for future institutional improvement.

Fund Program
The National Social Science Fund of China under Grant 15BGL107.

Conflicts of Interest
The authors declare no conflicts of interest.