The 2026 Global Education Monitoring (GEM) Report entitled Access and Equity: Countdown to 2030, published by UNESCO, has highly commended China's transformative progress in higher education over the past quarter-century, characterizing it as an "Unmatched Expansion".
I. Rapid and Large-Scale Expansion of Higher Education
According to the report, China's gross enrolment ratio (GER) in higher education surged from a mere 0.3% in 1974 to 77% in 2024, significantly surpassing the average for lower-middle-income countries. This remarkable achievement, accomplished within a span of just 25 years, elevated the nation from the lower-middle-income to the upper-middle-income group average, and it is projected to exceed the high-income country average by 2028. Concurrently, the proportion of young adults under 24 holding a tertiary qualification rose from 6% in 2000 to 41% in 2020.
Figure: China's tertiary expansion is unprecedented
This expansion was strategically initiated with the Action Plan for the Revitalization of Education in the 21st Century (1998), which positioned higher education as a pivotal instrument for serving national economic strategies. Commencing in 1999, university enrolments witnessed consecutive years of substantial growth: an increase of 47% in 1999, followed by 38% in 2000, and 22% in 2001. Consequently, the total number of students enrolled in higher education institutions skyrocketed from 3.9 million in 1990 to an astounding 61 million in 2024.
Figure: Enrolment growth in undergraduate and vocational institutions is rapid
II. Diversification and Stratification in System Development
China's higher education expansion is not merely quantitative but is characterized by significant diversification and systemic stratification. In 2023, the student body composition comprised: 34% in regular undergraduate programmes, 29% in vocational education, 17% in adult education, 13% in online education, and 7% in postgraduate studies. Vocational institutions absorbed a substantial portion of this growth, particularly in the central and western provinces. Concurrently, the central government has concentrated its efforts on cultivating world-class universities and disciplines through flagship initiatives such as "Project 211", "Project 985", and the "Double First-Class" initiative launched in 2015.
Figure: Vocational colleges are relatively more common in the western than in the eastern provinces of China
The report also delineates the evolution of the funding structure: the central government's share of higher education expenditure decreased from 60% in 1998 to 34% in 2006, a period during which tuition fees became a significant supplementary revenue source. Subsequently, through regulatory measures controlling fee levels, the government's contribution rebounded to 68% by 2015. Throughout this process, provincial governments have assumed primary responsibility for the establishment and administration of the majority of higher education institutions.
Figure: In China, the structure of higher education financing was affected by the expansion
III. Equity-Oriented Policy Interventions
Despite persistent urban-rural and regional disparities, the report specifically acknowledges China's targeted measures to promote educational equity. Preferential policies, such as the National Special Enrollment Programme, have facilitated access to higher education for over 1.1 million students from rural and impoverished areas. Furthermore, a comprehensive student financial aid system, encompassing 28 national-level programmes, disbursed RMB 185 billion in assistance in 2023.
The report features a compelling case study of a female student from a rural county in Shaanxi Province. Admitted to a key urban university through the National Special Enrollment Programme, she noted that the policy "gives us hope and a clear, attainable goal", illustrating how well-targeted public policies can effectively dismantle structural barriers.
The report also acknowledges future challenges, including the potential pressure for institutional consolidation or closure due to declining birth rates, necessitating a greater emphasis on quality enhancement and graduate employability. Moreover, persistent attention is required to address the quality gaps in access to elite universities between urban and rural areas. The UNESCO GEM Report concludes that China's rapid experience in massification offers a significant reference for the global community, demonstrating how developing countries can achieve leapfrog development in education through strategic national planning, diversified provision, and equity-driven interventions.（https://mp.weixin.qq.com/s/1OK1ncdgG_m18WTlkMqiWQ）
Editors | SHI Fangyuan, XIA Yuxuan
Quick access：
UNESCO. Global education monitoring report 2026: access and equity, countdown to 2030[EB/OL]. (2026)[2026-06-17]. https://doi.org/10.54676/JLKL3223.
