“From ‘Access to Kindergarten’ to ‘Affordable Kindergarten’”: Implementation Logic, Practical Challenges, and Institutional Improvement of China’s Free Preschool Education Policy

Abstract

Since the fall semester of 2025, China has officially launched a free preschool education policy, marking a critical step from “access to kindergarten” to “affordable kindergarten.” Based on a systematic review of the policy’s evolution and implementation progress, this article analyzes four major practical challenges: fiscal sustainability, teacher workforce development, urban-rural resource disparities, and integration of childcare and preschool education. It then proposes institutional improvements including establishing a stable and long-term funding mechanism, strengthening teacher compensation and professional development systems, improving quality supervision and evaluation, and accelerating the institutional design for integrated childcare and preschool education. The aim is to provide a reference for the high-quality advancement of the free preschool education policy.