The implementation of a free pre-school education system is a key measure for improving the basic public education service system and ensuring equity in educational opportunities from the outset; it also represents the core reform direction as pre-school education shifts from mass expansion to high-quality, inclusive development. As a province in central China, Jiangxi has continuously advanced the creation of counties with universal and inclusive pre-school education, resulting in a steady increase in coverage. However, significant development disparities persist between the north and south of the province, as well as between urban and rural areas and across counties. Prominent issues include the weak foundations of rural pre-school institutions, pressure on local government finances, and a lack of momentum in improving the quality of inclusive education. Consequently, the practical conditions for implementing a free policy simultaneously across the entire province are not yet in place.To resolve obstacles to policy implementation and mitigate risks arising from the reform, this paper employs a theoretical framework comprising incremental decision-making theory, educational equity theory and the theory of equalization of public services. Drawing on Jiangxi’s inherent conditions for early childhood education development and its pilot experience, the study constructs a model for the implementation of the free early childhood education policy that is stratified, categorized and advanced in stages, based on three dimensions: educational stage, geographical location and beneficiary groups. By examining the practical challenges encountered in policy implementation within the province, the study proposes phased implementation measures and comprehensive governance solutions tailored to Jiangxi’s specific circumstances. The research findings provide theoretical references and practical insights for Jiangxi to advance the reform of free preschool education in an orderly manner and to achieve the coordinated development of expanding universal access and enhancing quality.
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