1 Report of the Central Council for Education on Basic Guidelines for an Overall Reform of School Education

The Central Council for Education submitted a Report to the Minister of Education on June 11, 1971, after vigorous deliberations which spanned a four-year period from the receipt of the inquiry with respect to the reform of school education. The Report was divided into respective sections dealing with elementary and secondary education and with higher education, and it made clear the central issues with respect to each of these divisions and proposed the fundamental structure for reform.

The first portion was concerned with the reform of elementary and secondary education and the following three fundamental objects were indicated:

(1) Elementary and secondary education creates the foundation for development and growth throughout the whole life of each individual, and together with being an indispensable part of the education of the people which is acquired in common it should emphasize the growth of rich individuality. For that purpose, the reform will introduce methods of education which respond to the special characteristics of individuals and will emphasize educational content adapted to the progressive stages in the process of human development.

(2) It is the responsibility of the government to aim at the support and advancement of the standards of courses and content for public schools, to achieve a balance in opportunities for education, and to work for the realization and generalization of school education responsive to the demands of the people. For that purpose a long-term and deliberate set of policies is a necessity.

(3) Exerting a great influence on the actual nature of education are the educators themselves. It is a matter of concern that it is becoming increasingly difficult to secure superior educators relative to the expectations toward education, and it is essential that a drastic and comprehensive policy be drafted in order that educators possessing a high level of specialized competence be able to carry out their work enthusiastically and with a sense of pride and self-confidence.

With respect to these three fundamental points, the following ten provisions were offered as the basic structure for the reform of elementary and secondary education.

(1) Previous reforms of education operated by changing the school system. However, the next reform will not be a matter of  a single and abrupt reform of the school system but rather the  advancement of a gradual reform for the purpose of solving  problems that have been located in the educational system. As a  first  step, there will be the commencement of several pilot  experiments. These will include 1) experimental schools for  children from the ages as young as four or five years through  what is now the lower grades of the elementary school, 2) new  strategies for linking lower and upper secondary schools, 3)  diversification of the stage division between elementary and  lower secondary schools as well as between lower and upper  secondary schools, and 4) new extension of a consistent set of  both secondary education and the first stage of higher education such as now being carried on in technical colleges.

(2) A coherence will be established through curriculums of  all stages of school education, and along with furnishing the  common and fundamental character and skills essential for  adult citizens these curriculums will foster creative individuality. These curriculums should consist of an initial stage in which the main point is to acquire a carefully selected standard and fundamental content, and then will progress to the stage where courses can be selected in response to varying levels of individual ability and interest.

(3) It is essential for the proper selection of courses that there be cooperation and understanding from the student's family and society in general as well as counseling within the schools.

(4) Education should not be judged from what is superficially studied but rather from what is actually learned. The suitability of educational courses and the methods of instruction have a great influence. Therefore group learning, individual learning, the flexible school year system, etc. need to be investigated.

(5) For the purpose of guaranteeing the equalization of educational opportunities, the standards and conditions of education will be ceaselessly improved and expanded. Especially in the case of private schools in connection with increasing their public aspect, efforts will be made to improve their economic conditions; at the same time it is expected that the private schools will show greater flexibility in developing educational programs for the working man.

(6) In response to the popular demand for kindergartens, the initial goal will be to increase kindergartens so that there will be a sufficient number of places for all five-year olds. The adjustment of the regional distribution of local public and private kindergartens and a system of financial aid will be aimed at. Further, research concerning early childhood education will be advanced and on the basis of this the course structure for kindergartens will be revised.

(7) The backward state of special education will be rectified and plans will integrate various policies for special education and those for medical treatment, shelter, and social independence.

(8) To assist schools in developing a lively educational program under the leadership and responsibility of the school principals, a system for the internal management of school affairs will be outlined; the system of local educational administration for private schools will be unified with that for local public schools; means will be devised for hearing criticisms and wishes of people widely concerning educational policies of the national government.

(9) In order to plan for the securing and education of educational staff, the following policies must be realized in a comprehensive fashion:

a. Teachers for elementary education will for the most part be educated at teacher training universities having an educational course suitable for that purpose. A certain portion of secondary school teachers will be educated at teacher training universities designed for that purpose.

b. There will be an expansion in the scholarship system and systematic training for the teachers of the various schools in the compulsory educational system.

c. In order to raise their self confidence and leadership ability of teaching, newly appointed teachers will first engage in practical training for a one-year trial period, and then providing they do well, they will be regularly employed.

d. The certification system will be broadened so as to invite more teachers from society at large.

e. A system for giving special rank and a compensation to teachers who have a high level of specialized competence will be established. As one method for training these specialists, a new graduate school will be created.

f. The compensation of teachers will be brought into better correspondence with the typical compensation for people of their level of education. Teachers will autonomously organize specialized research groups to develop their work skills and will employ themselves in the prosecution of their studies.

(10) In order to achieve the above proposals, a center for the development of comprehensive educational research and its cooperative organizations for research in the respective areas will be established.

Secondly, with respect to the reform of higher education, the following five central issues were raised:

(1) ereafter facilities for higher education will on the one hand offer higher education in response to the various demands of the multitude of the people while on the other hand increasing the standards for academic research.

(2) Henceforth higher education will integrate the ability to grapple with and solve general problems into its program of highly specialized education.

(3) It is essential that higher educational institutions be guaranteed a freedom for their education and research activities; but due to increasing specialization, the organization of many higher educational institution has become exceedingly complex, and hence to develop some coherence in these institutions, it is necessary to rationalize the organization of their facilities and establish efficient systems of management.

(4) It is essential that higher educational institutions enjoy autonomy for their research and educational activities, but because there has been a tendency for these institutions to manifest an insular and conceited attitude there should be5reforms to make these institutions more open to society.

(5) In the reform and expansion of facilities for higher education, while it is important to encourage the spontaneous originality and effort of individual units, it is also necessary to introduce overall plans which recognize the concerns of the broader society.

For the solution of these five central issues, the following thirteen points were proposed:

(1) In order to plan for the diversification of higher education it is desirable to classify the types of higher education organs according to their admission requirements and number of standard course years in the following manner:

a. The first type is that of three- or four-year institutions called the "universities" which for the most part are made up of courses from the three categories, i.e., comprehensive, specialized, and goal oriented.

b. The second type is that of two year institutions called the "junior colleges" which are for general and vocational education.

c. The third type is the "technical colleges."

d. The fourth type called the "graduate schools" will provide instruction at a higher level for two to three years for those who have completed the first type. At the same time this can provide an advanced level of reeducation for the general public.

e. The fifth type called the "research institutes" is the organ for carrying on high level academic research, and it is here that the doctorate will be awarded.

(2) For the courses of the organs of the first and second types what has been until now general education and basic education will be integrated into specialized education. With respect to foreign language education, efforts will be made to develop a command of more useful materials than has often been the practice. Health and physical education will be realized through programs of extracurricular physical activities and hygienic management.

(3) Where appropriate, teaching methods will be reformed through the use of teaching machines, and also through seminars, experiments and practical training for small groups. With respect to the physical and cultural activities of students, specialists should be appointed who can give guidance and assistance so that students may achieve a full student life.

(4) Higher education will be opened to serve those members of the general public who have the desire or necessity for further education and admission will not be reserved solely for those of a certain age and possessing the normal educational foundations. The separate systems for academic credit of the various types of higher educational institutions will be consolidated and a system for the transfer of credits and the evaluation of qualifications established. With respect to the existing bachelor's, master's, and doctorate, the simplification of types will be considered.

(5) In the organization of higher educational institutions, separate units should be developed to coordinate the tasks of education and research in keeping with the goals of each institution.

(6) The "research institutes" will have a separate administrative center so as to promote its role as the agency for carrying out high level academic research. Nevertheless, "research institutes" can be placed side by side with "graduate schools" and other suitable research centers.(7) Higher educational institutions will avoid becoming too large simply in order to meet managerial needs and the ad-ministration of these institutions will not allow any internal or external organization to exert sectional pressures on it. For this reason the functions of planning, regulation, and evaluation with respect to educational responsibilities, finances, personnel, student leadership, and other issues of overall importance to the school should be centralized in the office of the president and vice-presidents as his assistants. At the same time suitable organs will be established for reflecting the opinions of students on matters directly related to their problems in the school as well as for receiving the advice of intellectuals and others outside the school.

(8) In order to avoid a closed attitude in personnel affairs, the consultation of specialists outside the schools will be sought with respect to the selection and evaluation of the performance of teachers. Other reforms including limits on the number of years an individual may remain at any given post will be considered. The compensation of teachers will be revised, and it is particularly desirable that a system for rewarding the educational efforts of teachers be established.

(9) The relations between the founding agencies and the administering organs for national and local public higher educational institutions is to be made clear and the following steps will be considered as means for achieving management based on autonomy and individual responsibility:

a. Set up public corporations of higher education as a new type of juristic person.

b. Establish a new system of management which will clearly acknowledge the locus of responsibility for the various facilities of each institution and which also will clarify the respective roles of each school and its founding agency.

(10) Establish a system of aid to private schools based on along-term educational plan. Consider the possibilities for a major change in the system of scholarships and in the tuition burden of students.

(11) As national aid to private schools is unavoidable, it will be essential to develop a long-term plan outlining the character, goals and the respective roles of higher educational institutions, enrollments according to various specialties, and the regional distribution.

(12) Guarantee a rich student life through the promotion of extracurricular activities and the improvement of the living environment of students.

(13) Because the system for selecting school entrants has agreat impact on the society as a whole, the following reforms are to be carried out:

a. Use grades in upper secondary courses as fundamental data in reviewing cases for admission to higher educational institutions.

b. Develop a national entrance examination which institutions can rely on in evaluating students, thus reducing the differences in the criteria used by various institutions.

c. In the case where an organ of higher education considers it necessary, conduct a test of ability which emphasizes a given specialty. In addition carry out essay examinations and inter-views to supplement the other evaluation materials.