School leadership and citizenship education in junior secondary schools of Shanghai, China

Abstract

With specific reference to junior secondary schools in Shanghai, China, this qualitative empirical study examines the dynamics and complexities of leadership in school and, in particular, citizenship education exercised by principals and school party secretaries (SPSs), who are de facto equally-ranked school leaders. Specifically, it examines, from a macro- and micro-political theoretical perspective, the interactions between these two types of school leaders, and how they respond to the demands of various school stakeholders, including macro-political actors (e.g., the state) and micro-political actors (e.g., other school leaders, teachers, students and parents), at the school level. Data were gathered from document analysis, non-participant observation and semi-structured interviews with 44 school leaders from 24 schools and two educational officials in Shanghai, conducted in 2011. This study has four major findings. First, in addition to the leadership responsibilities inherent to their particular portfolios, the interviewed principals and SPSs were also politically and administratively responsible for leading the school and citizenship education, and struggled to balance these (at times conflicting) responsibilities. Second, there were four major school leadership/citizenship education scenarios in which principals and SPSs were torn between faithfully executing state policy demands, adapting those demands to suit the specific needs and conditions of their school, pursuing their professional autonomy, and addressing the interests of different micro-political actors. Third, principals and SPSs enjoyed a complicated working relationship at the micro-political (school) level in which they collaborated to fulfill their responsibilities and respond to school macro- and micro-political actors, while simultaneously competing for power over school leadership and citizenship education. Fourth, principals’ and SPSs’ leadership in school and citizenship education was shaped by inter-related factors, including diverse influences in a multi-leveled world, the integration of politics and education, the demands of macro- and micro-political actors, and personal factors. To interpret these findings, this study proposes a theoretical framework for understanding leadership in school and citizenship education in China as a political exercise in which school leaders actively use their influence and resources to lead and administer school and citizenship education, resist other school leaders’ (at times contradictory) administrative and political responsibilities, and interact with and mediate between the interests of various actors at the macro- and micro-political levels in response to political, economic and social needs. This theoretical framework is useful for understanding the complexity of school and citizenship education leadership, the micro-political relationship between Chinese principals and SPSs, and their dynamic and complex interactions with macro- and micro-political actors as they fulfill their intertwined political and administrative responsibilities in school leadership and citizenship education.