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Review <strong>of</strong> <strong>the</strong> <strong>literature</strong> on basic education in NigeriaCHAPTER 6: GOVERNMENT AND SCHOOLING6.1 IntroductionThis chapter begins with a discussion about education policy and governance structures, before movingon to some <strong>of</strong> <strong>the</strong> challenges in implementation. It considers <strong>the</strong> roles and responsibilities <strong>of</strong> <strong>the</strong> threetiers <strong>of</strong> government – federal, state and local – as well as community structures. We <strong>the</strong>n consider <strong>the</strong>financing <strong>of</strong> education by <strong>the</strong> state and donors. A summary <strong>of</strong> recent major donor initiatives regardingbasic education is <strong>the</strong>n followed by a <strong>review</strong> <strong>of</strong> <strong>the</strong> findings from PEA studies carried out by some <strong>of</strong> <strong>the</strong>donor-funded programmes. Finally, <strong>the</strong> spotlight focuses on monitoring and evaluation (M&E) and <strong>the</strong>difficulties caused by a lack <strong>of</strong> reliable data.Most <strong>of</strong> <strong>the</strong> evidence for this chapter comes from <strong>the</strong> background sections <strong>of</strong> a series <strong>of</strong> consultancyreports, including Obanya (2010; 2011), Santcross et al. (2010), and <strong>the</strong> Global Education First Initiative(2013), as well as <strong>the</strong> PTTE’s report (FME 2011a), <strong>the</strong> earlier ESA (FME 2005) and <strong>the</strong> UBE impactassessment (UBEC 2012a).6.2 The Universal Basic Education programmeEducation policy at <strong>the</strong> federal level is guided by <strong>the</strong> FME’s 10-year Strategic Plan, which was publishedin 2007. A central policy initiative is UBE, a programme that was launched in 1999 with <strong>the</strong> goal <strong>of</strong>providing nine years <strong>of</strong> free and compulsory education (six years <strong>of</strong> primary and three years <strong>of</strong> juniorsecondary) and improving quality throughout <strong>the</strong> system. In 2013 a policy directive from <strong>the</strong> NationalCouncil on Education added one year <strong>of</strong> compulsory pre-primary education (see Section 7.6).While <strong>the</strong> UBE policy preserves <strong>the</strong> constitutional responsibilities <strong>of</strong> states and local government t<strong>of</strong>inance and manage basic education, it expands <strong>the</strong> roles, responsibilities, and investments <strong>of</strong> <strong>the</strong> FGNin basic education – a move that has led to some tension between centralised decision-making andincreasing decentralisation.Despite l<strong>of</strong>ty goals, progress on implementation has been slow (Adepoju and Fabiyi 2007; Labo-Popoolaet al. 2009; Aluede 2006; Tsafe 2013). The enabling legislation for UBE and formation <strong>of</strong> <strong>the</strong> UBEC didnot happen until 2004 and <strong>the</strong> introduction <strong>of</strong> a new federally driven structure has been somewhatduplicative <strong>of</strong> existing structures. The PTTE summed up <strong>the</strong> situation ra<strong>the</strong>r forcefully, concluding: ‘Theprecise functions <strong>of</strong> <strong>the</strong> pr<strong>of</strong>essional departments <strong>of</strong> <strong>the</strong> Ministry <strong>of</strong> Education at <strong>the</strong> Federal and Statelevels do not seem to have been clearly articulated’ (FME 2011a: 25), adding that ‘There are seriouscracks in <strong>the</strong> practical operations <strong>of</strong> <strong>the</strong> coordinating and management mechanisms <strong>of</strong> <strong>the</strong> process <strong>of</strong>education policy development and service delivery’ (ibid.: 29).UBEC is <strong>the</strong> national agency in charge <strong>of</strong> <strong>the</strong> disbursement <strong>of</strong> federal intervention funds for primary andjunior secondary education and <strong>the</strong> monitoring <strong>of</strong> standards in <strong>the</strong> basic education sector, while <strong>the</strong>SUBEBs are in charge <strong>of</strong> <strong>the</strong> delivery and management <strong>of</strong> primary and junior secondary education atstate level. UBEC and <strong>the</strong> SUBEBs are thus directly responsible for <strong>the</strong> provision <strong>of</strong> primary school andJSS services, while <strong>the</strong> NCNE is responsible for nomadic education and <strong>the</strong> National Mass EducationCommission (NMEC) for <strong>the</strong> NFE aspect <strong>of</strong> UBE. In addition to SUBEBs, state governments have <strong>the</strong>irown state ministries <strong>of</strong> education (SMoEs).6.2.1 Impact assessmentWhile many <strong>of</strong> <strong>the</strong> findings <strong>of</strong> <strong>the</strong> UBE impact assessment (UBEC 2012a) are to be found in <strong>the</strong> relevantchapters <strong>of</strong> this <strong>review</strong>, we summarise here those that relate specifically to <strong>the</strong> finance and governanceissues <strong>of</strong> <strong>the</strong> programme:EDOREN – Education Data, Research and Evaluation in Nigeria 55
Review <strong>of</strong> <strong>the</strong> <strong>literature</strong> on basic education in NigeriaThe FGN and all states have passed appropriate legislations and formulated policies to guide <strong>the</strong>implementation <strong>of</strong> ‘free and compulsory UBE’;There is significant variation across <strong>the</strong> states in <strong>the</strong> degree <strong>of</strong> implementation <strong>of</strong> UBE. Abia,Adamawa, Katsina, Kogi, Ondo and Rivers were found to be among <strong>the</strong> ‘top-performing’ states interms <strong>of</strong> implementation;A ‘significant amount <strong>of</strong> <strong>the</strong> UBE intervention funds had been accessed by most <strong>of</strong> <strong>the</strong> states’. Thosestates that had full or near full access to funds tended to record ‘greater positive impact’;Funds for UBE have typically been spent on infrastructure, teacher development and teachingmaterials with ‘far-reaching impacts’, although ‘<strong>the</strong>se resources were far from adequate around <strong>the</strong>country’; andThe capacity to deliver UBE had been enhanced by staff training at SUBEB and LGEA level, including<strong>the</strong> introduction <strong>of</strong> ICT (UBEC 2012a: xv–xvii).While <strong>the</strong> above indicate positive steps toward implementation, <strong>the</strong> report also highlighted a ‘myriad <strong>of</strong>challenges’:Inadequate funding, insufficient sensitization and mobilization, lack <strong>of</strong> political will on <strong>the</strong> part <strong>of</strong> somestakeholders, delays in implementing UBE projects, corruption and lack <strong>of</strong> accountability in funds utilization,confusion about <strong>the</strong> goals <strong>of</strong> UBE, appointment <strong>of</strong> unqualified and incompetent personnel in some SUBEBs,nepotism, lack <strong>of</strong> reliable data, apathy on <strong>the</strong> part <strong>of</strong> community members … (ibid. xvii).Suggestions for how to overcome some <strong>of</strong> <strong>the</strong>se challenges included: a reduction in bureaucracy in <strong>the</strong>UBE system; continued consultation <strong>of</strong> stakeholders even after policy approval to sustain political willfor implementation; increased funding and more effective management <strong>of</strong> funds; increased support formonitoring UBE to maintain transparency; and <strong>the</strong> institution <strong>of</strong> strategic planning in SUBEBs and LGEAs(ibid.).6.3 The structure and governance <strong>of</strong> public education in NigeriaThe Nigerian education system is decentralised under a federal structure and public education is <strong>the</strong>simultaneous responsibility <strong>of</strong> <strong>the</strong> federal, state, and local governments, with <strong>the</strong> fast-growing privatesector also a major player. FGN has <strong>the</strong> dominant role in <strong>the</strong> provision <strong>of</strong> tertiary education, stategovernments provide mainly senior secondary and regionally focused tertiary education, and localgovernments provide basic education. At both <strong>the</strong> federal and state levels, a large collection <strong>of</strong>parastatals is responsible for <strong>the</strong> implementation <strong>of</strong> education policies (FME 2011a).Constitutionally, both <strong>the</strong> federal and state governments legislate on <strong>the</strong> planning, organisation andmanagement <strong>of</strong> education. Primary, secondary, adult and non-formal education are managed jointly by<strong>the</strong> LGAs and <strong>the</strong> states. FGN is responsible for policy-making and <strong>the</strong> enforcement <strong>of</strong> standards at <strong>the</strong>primary and secondary levels (for example, through school inspections; see Section 11.4) but also ownsand manages many tertiary institutions. States also establish and manage universities and tertiaryinstitutions (FME 2011a).The National Council on Education (NCE) is <strong>the</strong> highest policy-making organ and its members include <strong>the</strong>Federal Minister <strong>of</strong> Education and all state commissioners <strong>of</strong> education (i.e. <strong>the</strong> heads <strong>of</strong> SMoEs). Itapproves a national curriculum for primary and secondary education, determines policies on all aspectsand levels <strong>of</strong> education and receives feedback on <strong>the</strong> delivery <strong>of</strong> EFA. It also sets standards for qualityassurance and guidelines for national examinations for primary and secondary schools. It advised FGN toestablish <strong>the</strong> UBEC and <strong>the</strong> SUBEBs to ensure effective implementation <strong>of</strong> EFA (ibid.).EDOREN – Education Data, Research and Evaluation in Nigeria 56
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