As figure 1 shows, the number of U.S.  universities that have partnered with Chinese universities to establish  cooperative, degree-granting institutions has increased since 2011. State  annually publishes country reports on global human rights practices,  including academic freedom. Universities Reported Receiving Support from Chinese Universities and Government Entities, with Limited Support from the U.S. Government

The 12 U.S. universities we reviewed generally reported receiving support  for their institutions in China from their Chinese partner universities and  from Chinese government entities, with limited funding from U.S.  government agencies and private donors. Universities reported  contributions from their partner universities and from Chinese provincial  and local governments for land, building construction, and use of campus  facilities. Almost all of the universities said their institutions in China  generated net revenue or had neutral impact on their budget. About half of the universities that we  reviewed address at least one of the freedoms of speech, assembly, and  religion or worship in university policies. About Half of Universities Address Access to Information, but Few Agreements and Other Policies Include Internet Protections

About half of the universities we reviewed have agreements or policies  that address access to information by outlining responsibilities for  themselves and their Chinese partners for providing access to physical or  digital libraries. A few universities’ documents include language that indicates possible  Internet constraints. U.S. University Members Generally Indicated They Experienced Academic Freedom, but Internet Censorship and Other Factors Posed Constraints

Faculty, students, and administrators we interviewed generally indicated  that they experienced academic freedom at U.S. universities’ institutions  in China, but they also indicated that Internet censorship, self-censorship,  and other factors presented constraints. We visited universities that had uncensored Internet access and  universities that did not. At several universities that lacked access to uncensored Internet  content, students and faculty told us that, as a result, they sometimes  face challenges teaching, conducting research, and completing  coursework. Universities’ Legal Status May Be Correlated with Academic Freedom

The three universities we reviewed that are approved by the Chinese  Ministry of Education as having independent legal status share  characteristics that may be correlated with greater academic and other  freedoms on campus. Concluding Observations

In recent years, a growing number of U.S. universities have established  degree-granting institutions with Chinese partners in an environment, as  characterized by the Department of State, of worsening human rights and  academic freedom conditions in China. We provided a draft  of this report to the Departments of Education and of State for comment. Appendix I: Objectives, Scope, and Methodology

In this report, we reviewed (1) funding and other support provided by the  U.S. government and other sources to U.S. universities to operate in  China; (2) the treatment of academic and other key freedoms in  arrangements between U.S. universities and their Chinese partners; and  (3) the experience of academic and other key freedoms by faculty,  students, and staff at selected U.S. universities in China. In our discussions with faculty members and students, we addressed  topics such as the reasons they chose to work or study at the programs in  China, the extent to which they may be constrained from teaching or  studying certain topics, their experience of Internet access in China,  campus life and student activities, any differences they have perceived or  experienced between U.S. and Chinese faculty and students, and other  topics relating to their experience at the program particularly as it relates  to academic and other freedoms.
Why GAO Did This Study

In its Country Reports on Human Rights Practices for 2015, the Department of State (State) concluded that academic freedom, a longstanding concern in China, had recently worsened. At the same time, the number of U.S. universities establishing degree-granting institutions in partnership with Chinese universities—teaching predominantly Chinese students—has increased. While universities have noted that these institutions offer benefits, some academics and others have raised questions as to whether faculty, students, and staff may face restricted academic freedom and other constraints.
This report reviews (1) funding and other support provided to U.S. universities to operate in China; (2) the treatment of academic and other key freedoms in arrangements between U.S. universities and their Chinese partners; and (3) the experience of academic and other key freedoms by faculty, students, and staff at selected U.S. universities in China. GAO reviewed 12 U.S. universities that have established degree-granting institutions in partnership with Chinese universities; interviewed and obtained university documents and questionnaire responses; interviewed faculty and students; and visited the campuses of 5 institutions selected on the basis of their location, student demographics, date of establishment, and other factors. GAO also interviewed officials and obtained information from the Departments of Education (Education) and State. GAO makes no recommendations in this report. Education and State had no comments on a draft of this report.

What GAO Found

The 12 U.S. universities GAO reviewed generally reported receiving support for their institutions in China from Chinese government entities and universities, with limited funding from U.S. government agencies and other donors. Universities reported contributions from Chinese provincial and local governments and from partner universities for land, building construction, and use of campus facilities. Fewer than half of the universities reported receiving federal funding. Almost all of the U.S. universities said their programs in China generated net revenue for the university or had a neutral impact on its budget.
Universities' agreements with their Chinese partners or other policies that GAO reviewed generally include language protecting academic freedom or indicating their institution in China would adhere to U.S. standards. About half of universities GAO reviewed address access to information, such as providing faculty and students with access to physical or online libraries, though few universities' agreements and policies include language protecting Internet access. About half of the universities' policies include language indicating protection of at least one other key freedom—speech, assembly, or religion.
University members generally indicated that they experienced academic freedom, but they also indicated that Internet censorship and other factors presented constraints. Administrators said they generally controlled curriculum content, and faculty and students said they could teach or study what they chose. However, fewer than half of the universities GAO reviewed have uncensored Internet access. At several universities that lacked uncensored Internet access, students and faculty told us that, as a result, they sometimes faced challenges teaching, conducting research, and completing coursework. Administrators, faculty, and students also cited examples of self-censorship, where certain sensitive political topics—such as Tiananmen Square or China's relationship with Taiwan—were avoided in class, and of constraints faced by Chinese students in particular. Universities approved by the Chinese Ministry of Education as having independent legal status share characteristics—such as campuses located away from their Chinese university partner's campus and extensive student life programs—that may be correlated with greater academic freedom and other key freedoms.