Ilorin Journal of Education, Vol. 27 August, 2007
69
APPRAISAL OF GOVERNMENT PREPAREDNESS IN THE
PROVISION OF PRIMARY SCHOOL TEACHERS FOR THE
UNIVERSAL BASIC EDUCATION IN NIGERIA
Jekayinfa, Alice Arinlade (PhD)
Department of Arts and Social Sciences Education,
Faculty of Education,
University of Ilorin, Ilorin, Nigeria
Abstract
This paper investigated how prepared government is in the provision of
primary school teachers for the take off of the UBE in 2007 in some states of
the Federation of Nigeria. Adapted data prepared by National Primary
Education Commission (NPEC) 1996 for Personal Audit Interim Report on
“Primary” School Enrolment was used for data collection. The findings of the
research indicated that none of the states had enough qualified teachers in
the primary schools in preparation for the UBE. Some of the circumstances
that caused the shortage of teachers were discussed and these include: under
finding of education and lack of proper planning. Based on the seriousness of
the shortage of teachers in the schools, it was recommended that there
should be proper planning by the government, so as to be able to know the
number of the teacher needed in the schools. Also, all tires of government
(Federal, State and Local), parents and philanthropists should join hands
together to find education in Nigeria so that the UBE programme can be a
success.
Introduction
Education is a fundamental human right of all people. It has value for
improving the quality of life, and it is an essential part of social and human
development. The provision of basic education, whether formal, informal or
non-formal, is a core responsibility of the state with active and genuine
collaboration of parents, communities and civil society. All people including
those most disadvantaged and excluded must be guarantee access to
education of decent quality.
Universal access to education has been the goal of Nigeria since the
latter part of 1970s when the Universal Primary Education (UPE) scheme
kicked off. Evidence of governments’ interest in education can be seen in the
introduction of Universal Primary Education (UPE) in Western Region on the
17th January 1955; in Eastern Region in February 1957; and in Lagos (then
Federal Territory) in January 1957 (Adesina, 2005).
The publication of the National Policy on Education in 1977 which
insisted on functional, universal and qualitative education and governments’
intentions to use a variety of strategies for the provision of Universal Basic
Education for all citizens was another evidence of government’s interest in
providing basic education. On the 6th of September 1976, another interest of
government was shown with the launching of Universal Free Primary
Education in Nigeria while on the 30th of September 1999, the Federal
Jekayinfa, Alice Arinola
70
Government launched the Universal Basic Education which signifies
government’s interest in education for all (Adesina, 2005).
The Nigerian government’s efforts are aimed at providing education to
all Nigerians irrespective of age, sex, race, religion, occupation and location.
Since her independence in 1960, Nigeria had joined the membership of some
international and regional organization committed to the development of
primary education. One of those organizations was the United Nations
Organisation (UNO) and its educational agency i.e. United Nations
Educational, Scientific and Cultural Organisation (UNESCO). Other regional
organisations of which Nigeria is a member is the Organisation of African
Unity (OAU) now and the Economic Council for Africa (ECA).
Despite all the various efforts of government in the provision of
education, the rate of illiteracy in Nigeria is still high. For example, Babalola
(2000), and Federal Ministry of Education opined that Nigeria literacy rate was
estimated to be 52 percent. The United Nations Development Programme
(UNDP) (1998) also noted that only 40% of all heads of households in Nigeria
had any education at all. Data from the Federal Ministry of Education,
Education Statistics (1996) showed that only 14.1 million children of school
age are enrolled in primary school out of the 21 million children of school
going age. This is so because the efforts and programmes of government in
education in the past have been militated against by political changes,
funding hurried plans without accurate data, lack of proper monitoring and
evaluation of the projects and programmes and lack of accountability
(Adesina, 2005). We are hoping that the new Universal Basic Education (UBE)
will not suffer the same set backs.
The history of UBE in Nigeria can be traced back to 1950 when the
Universal Declaration of Human Rights asserted that “everyone has a right to
education” (p. 18). This declaration triggered efforts from all countries of the
world to universalise basic education. The African Ministers of Education met
at Addis Ababa during a conference in 1961 and set 1980 as the target for all
African countries to achieve Universal Primary Education. Owing to economic
depression accentuated by rapid population growth and poverty, some
countries, thought tried hard but could not achieve the 1980 target (Adesina,
2005).
There were renewed efforts and determination to achieve basic
education for all in the mid-eighties. This time, greater attention started to be
paid to the needs of some people such as nomads, handicapped, illiterate
men and women who were neglected in the 1970s. The World Conference on
Education for all which was held at Jomtien, Thailand from 5th – 9th March,
1990 was the activity that triggered off the basic education in Nigeria. The
conference was organised by the World Bank, NDP, UNESCO and UNICEF and
it came up with a document entitled “Framework for Action: Meeting Basic
Learning Need” (UNESCO, 1990).
This document became a blue print for all countries of the world and
Nigeria was encouraged by it to set up educational activities to achieve
education for all and so, the issue of UBE started in Nigeria. Situation and
policy analysis on Basic Education in Nigeria was carried out nationwide from
1991 – 1993.
Akanbi, M. L.
71
What is UBE
Universal Basic Education (UBE) is the type of education, in quality and
in content that is given in the first level of education. The concept of UBE
changed from country to country. The UBE programme in Nigeria according to
Eya (2000) is intended to be universal, free and compulsory.
Basic education according to the Federal Government of Nigeria
(1999), is the foundation for sustainable life-long learning. It provides
reading, writing and numeracy skills. It comprises a wide variety of formal
and non-formal educational activities and programmes designed to enable
learner to acquire functional literacy. In Nigeria, basic education includes
primary, junior, secondary and nomadic education as well as adult literacy.
The sole aim of basic education in Nigeria is to equip individuals with
such knowledge, skills and attitudes that will enable them to:
(i) live meaningful and fulfilling lives;
(ii) contribute to the development of the society;
(iii) drive maximum social, economic and cultural benefits from the
society; and
(iv) discharge their civic obligations competently (Federal Ministry of
Education, 1999; p. 32).
Though, Nigeria had tried in the past to provide sound basic education
for all her citizens there were substantial shortcomings. There were
widespread disparities both in quality and in access to education across the
nation. The available infrastructural facilities, teaching and learning materials
as well as qualified teachers were grossly inadequate. For the country to
attain the desired 100% national literacy through the UBE there should be
adequate teacher provision.
The importance of teacher in the educative process particularly in the
developing countries of which Nigeria is one cannot be over-stressed.
Teachers are undoubtedly the managers of knowledge (Lassa, 1999).
Fafunwa (1972) commented on the importance of teachers when he opined
that:
The demand for more and better school, the need to relate curriculum
to the needs of the child and the environment, the crying needs of the
child and his other instructional materials, the desirability of training in
vocational and technical skills and indeed, the overall problem of
preparing the future citizens of Africa who will be fully oriented to their
environment cannot be fully.
Based on this background and realising the fact that the primary school
which is a component of the UBE is the foundation for most children in the
country and should not be handled haphazardly, this research was therefore
carried out to find out how prepared the Nigerian State Government are in
the provision of primary school teachers for the implementation of the UBE.
Jekayinfa, Alice Arinola
72
Purpose of the Study
The general purpose of the study was to find out whether the
governments of Nigeria are fully prepared to implement the UBE programme
through the provision of adequate and qualified primary school teachers.
Research Questions
To give direction to the study, the following questions were raised and
answered.
1. Has each state of the Federation of Nigeria provided enough primary
school teachers for the UBE?
2. How qualified are the teachers provided by each for the UBE?
Method
All the 36 states of Nigeria and Abuja Federal capital territory
constituted the population for the study. The sample for the study was
intentionally stratified to include at least one state from five out of the six
geo-political zones of Nigeria. The sample used was intentional in the sense
that all the six states that were used were those which sent in their data
before the computation of the data for the study.
The instruments used in collecting data were derived from the NPEC
1996 personnel adult report on:
(1) primary school enrolment by states and sex in 1997 and
(2) primary school teachers in each state by qualification and sex in
1997.
The NPEC data were adapted and modified to include 2005 data in respect
of (1) Primary school enrolment by states and sex and 2 primary school
teachers in each state by qualification and sex as at 2005.
One copy each, of the two instruments was sent to the State Universal
Basic Education Board (SUBEB) office in each state to fill and return. As at the
time of compiling data for this research, a total number of six states turned in
their data. The researcher then decided to use the six states. Fortunately
enough, the six states represented five out of the six geo-political zones of
Nigeria.
To answer the two research questions, frequency counts and
percentages of available teachers in relation to the number of pupils in each
state were found. The results are presented on Table 1.
Table 1: States that were involved in the Research
Geo-Political Zone States
South-South Bayelsa
South-West Ogun
North-West Katsina
North-Central Kwara and Plateau
North-East Yobe
Akanbi, M. L.
73
Table 2: Primary schools enrolment and available teachers as at 2005
Geo-Political
Zone
State No. of
Pupils
Teachers Other
WASC/SSCE
Diploma
Graduate
B.Ed
NCE ACE Grade II
South-South Balyesa 504,164 592
(11.4%)
1,654
(31.8%)
20
(0.4%)
2,936
(56.4%)
South-West Ondo 704,194 489
(3.54%)
8,897
(64.42%)
- 3,608
(26.12%)
818
(5.92%)
North-West Katsina 1,001,4
47
185
(1.2%)
2,538
(16.8%)
792
(5.2%)
5,612
(37.2%)
5,961
(39.6%)
Kwara 527,589 2,010
(13.6%)
9,126
(61.7%)
1,385
(9.4%)
(Diploma)
1,856
(12.5%)
206
(failed)
1.4%
209
(1.4%)
North-Central
Plateau 759,877 723
(5.07%)
7,515
(52.7%)
1,037
(7.27%)
4,981
(34.94%)
North-East Yobe 513,026 102
(1.2%)
954
(11.5%)
- 1,627
(19.5%)
5,621
(67.8%)
Table 3: Teacher – Pupil’s ratio in the sampled states
Geo-Political
Zone
State Total
Number of
Pupils
Total
Number of
Teachers
TeacherPupil Ratio
South-South Balyesa 504,164 5,202 1:97
South-West Ondo 704,194 13,812 1:51
North-West Katsina 1,001,447 15,088 1:66
North-Central Kwara
Plateau
527,589
759,877
14,792
14,256
1:36
1:52
North-East Yobe 513,026 8,310 1:62
The data on Tables 2 and 3 above shows some differences in the
number of primary school pupils amongst the sampled states. While there are
large number of students in the northern states of the country, which is a
reflection of their population, pupils in the southern parts of the country are
not so many. The differences however, does not have any impact on the data
because, none of the six states had enough (adequate) number of teachers
needed for teaching the pupils in the states according to the
recommendations of the national policy of education (Federal Republic of
Nigeria, FRN, 2004). Analysis of data collected in respect of the primary
schools’ enrolment and available teachers as shown in Table 2 indicated that
as at 2005, in Balyesa states representing the (South-South), there was a
total of 504,164 primary school pupils and a total of 5,202 teachers. The
teacher-pupils ratio in Balyesa State was one teacher to 97 pupils (1:97). In
South-West, represented by Ondo State, there was a total of 704,194 pupils
in the primary school and a total of 13,812 teachers were available. The
teacher-pupils ratio was one teacher to 51 pupils (1:51). Katsina State,
representing the North-West geo-political zone, had a total number of
Jekayinfa, Alice Arinola
74
1,001,447 primary school pupils while the total number of teachers was
15,088. The teacher-pupil ratio in the state was one teacher to 66 pupils
(1:66). Similarly in Kwara State, representing the North-Central geo-political
zone, the total number of primary school pupils was 527,589 while the total
number of primary school teachers was 14,792. The teacher-pupils ratio in
Kwara State was one teacher to 36 pupils (1:36).
In plateau State, also representing the North-Central geo-political zone,
teacher pupils’ ratio was one teacher to 53 pupils (1: 53). In Yobe State,
representing the North-East geo-political zone, the total number of primary
school was 513,026 while, the total number of teachers was 8,310. The
teacher-pupil ratio in Yoba State was one teacher to 62 pupils (1:62). It
should be noted that the Nigerian national policy on education (Federal
Republic of Nigeria [FRN], 2004) had declared that, for teaching to be
effective in the primary school, here should be a teacher-pupil ratio of one
teacher to thirty five pupils.
Using these data to answer the first two research questions asking
about how prepared each states of the federation is in the provision of
teachers for the UBE; and how qualified the teachers provided are, the
following answers are derived.
1. Though all the six states sampled have teachers but only in Kwara
State were the teachers just near the required number stipulated by
the National Policy on Education; i.e. one teacher to thirty five pupils
(1:35). Kwara State had one teacher to 36 (1:36) pupils. Both Balyesa
State with teacher-pupil ratio of 1:97, Katsina State with teacher-pupils
ratio of 1:66, Yobe State with teacher-pupil ratio of 1:62 Plateau State
with teacher pupil ratio of 1:53 and Ondo State 1:51 have not provided
for enough teachers in their primary schools.
2. In terms of the quality of teachers, bearing in mind that the national
Policy on Education (FRN, 2004) had stated that the minimum
qualification for entry into the teaching profession in Nigeria shall be
the Nigeria Certificate in Education (NCE), most of the states have
many unqualified teachers. For example, in Balyesa State (SouthSouth) out of the total of 5,202 primary school teacher available in
2005, only 592 graduates and 1,654 NCE totalling (2,246) were
qualified. This figure represents just 43% of the teacher force teaching
in the primary schools in the state. The rest, ACE and Grade II
teachers were 2,936 (56.4%) of the primary school teacher population
in the state and they wee not qualified. In Ondo State, there were
9,386 (67.96%) qualified teachers while the rest 4,426 (32.04%) were
unqualified.
In Katsina State (North-West), out of the 15,088 primary school
teachers in 2005, only 2,724 were graduate and NCE teachers representing
18.0% of the teaching staff in the state. The rest 82% were either ACE,
Grade II, WASC and SSC teachers. In fact 5,961 (39.6%) teachers were
WASC/SSC holders who do not possess any teaching qualification at all.
Situation in Kwara State (North-Central) was a little different. The
state, apart from having almost enough teachers in their primary schools, also
had qualified teachers as required by the national policy on education (FRN,
Akanbi, M. L.
75
2004). Out of the total of 14,792 primary school teachers in Kwara State,
11,136 (75.3%) were graduate and NCE teachers. The rest 3,656 (24.7%)
were Grade II and WASSC/SSC/OND teachers. However, of the 2,062 Grade
II teachers in the state, 206 were Grade II Failed. These teachers should be
required to update their certificates. Plateau State also have 8,238 (57.78%)
qualified teachers while the rest 42.22% are unqualified.
In Yobe State (North-East), there were only 12.7% qualified teachers
out of the 8,310 primary school teachers in the state, and only 1,056 were
graduate and NCE teachers. 1,627 (19.57%) were Grade II teachers while the
bulk of 5,627 (67.7%) were WASSC/SSC/OND teachers who do not possess
any teaching qualification.
Discussions and Conclusions
Based on the findings of this research, it can be concluded that
provision of primary school teachers in all the six states used for this study is
inadequate in terms of quantity and quality as at 2005. This corroborates the
writings of many educationists years ago. For example, Coombs (1970) and
Ukeje (1970) had claimed that the problem of teacher supply in Nigeria is not
one of simple numbers. It is first and foremost a problem of quantity and of
getting the right quality. Ukeje had since (1991) identified that:
The recruitment and retention of competent people into the teaching
profession is a perennial problem in the entire world over. But the case
of Nigeria is particularly serious and disturbing. We are reaching a
point where teaching is becoming the hope of the hopeless, that is,
the profession for those who have nothing else better to do (p. 10).
Since the introduction of the Universal Primary Education (UPE) in
1976, everything connected with education, apart from the pupils themselves
throughout Nigeria has been in short supply. Clearly, one of the greatest
crises facing organised education in Nigeria today is the ever increasing
demand for education without corresponding increase in the resources to
provide quality education. Actually, without adequate care and sound
planning, education for all may turn out to be education for none.
Ukeje (1991) had commented since 1984, that over 60 percent of the
teachers in Nigeria are not qualified for the job they are supposed to be
doing, and in addition, they are made to handle, in most cases, over 50
children in a class.
The kind of Teachers that are needed for the Nigerian primary
Schools
The national policy on education (FRN, 2004) section 64 a and b
averred that:
1. Teaching is a largely recognised profession in Nigeria. In this regard,
Government has set up the Teachers’ Registration Council (TRN) and
regulates the practice of the profession including teaching
qualifications.
2. Those already engaged in teaching but not professionally qualified
should be given a period of time within which to qualify for registration
or leave the profession.
Jekayinfa, Alice Arinola
76
To this effect, at the 50th session of the National Council on Education
(NCE) held in Yenegoa, Balyesa State of Nigeria, according to Ciwar (2003),
the Council approved the year 2006 as the deadline for unqualified teachers
to acquire professional training to make them qualified for the job. The fourth
edition of the NPE (1998) had asserted that the Nigeria Certificate of
Education (NCE) shall be the minimum qualification for teaching in Nigeria.
The above explanations seem to imply that individuals must first possess
valid credentials (certificate) or “license” before they are considered to be
legally qualified to teach (Adeboyeje, 2000). But then, obtaining
certificate/credential is only one attribute of a teacher. Ciwar (2003) opined
that a teacher must be a multifaceted person, who must be interested in
other individuals as persons whether they are children in the nursery, primary
or secondary schools. A teacher should be initiative, responsible, patient,
flexible, honest, firm, curious and should have intellectual foresight and ability
to work with students with varying backgrounds and different educational
experiences. (Ryan & Cooper, 1984) These qualities are very important if
teachers are to take their proper place as indispensable group towards
purposeful nation-building.
A professional teacher is the person who has the teaching aptitude and
who has undergone a period of professional training. According to Jimoh
(2004), he is therefore, a man of many parts who combines knowledge with
the ability to motivate others to learn, a man who sees himself as a
motivator, who cares for all his students and who cultivates creativity,
spontaneity, innovation and divergent thinking. It is the belief of the
researcher that all the above mentioned attributes have been looked into by
each state government before the teachers were employed. The concern of
the research however, was on the provision of qualified (certificated)
teachers.
This phenomenon, whereby the Nigerian governments are not
providing for enough teachers has to change in order to give focus to the
implementation of the UBE. Lassa (1999) while observing the outcome of a
research report on the feasibility study on NCE becoming the minimum
qualification for teachers in Nigeria opined that the observed differential in
qualified teacher availability according to states is a disturbing development
which could truncate the implementation of a noble policy unless a unified
teaching service is operationalised throughout the country.
Circumstances that create the problem of shortage of teachers in
Nigeria
The problem of shortage of teachers in the Nigerian school has been
an age long story. This can best be understood when one realises the
massive educational expansion programmes that Nigeria has achieved and
the phenomenal expansion it envisages. There was a quantum jump from a
primary school population of nearly 3 million in 1960 to well over 11.5 million
in 1980. By this time, 1980, according to Adesina (2005), Nigeria needed a
minimum average additional demand of 24,773 teachers and the qualitative
demand would vary from year to year. Adesina (2005) also added that the
number of teachers needed in 1976 when the Universal primary Education
Akanbi, M. L.
77
(UPE) was introduced and in 1979 when the scheme became compulsory
would be considerably higher than annual estimates. Many factors have
created the problem of teacher shortage in Nigeria. Some of the problems are
related to lack of proper planning and under funding of education.
Lack of Proper Planning: This has been the bane of the Nigeria
Educational policies long ago. Education is a very expensive enterprise and
numerous resource inputs which the government plunges into it need to be
planned, failure to do, the expected goals cannot be achieved. Nigeria,
according to Okeke (1984) is a country in a hurry. In this hurry, there are
many dangers and pitfalls. Okeke opined that several giant strides have been
taken in Nigeria educational plans which have failed because of lack of proper
planning. These include the ambitious Universal Primary Education Scheme
which was embarked upon by the Federal Government in 1976. The same
story goes for the Universal\Basic Education (UBE) which was embarked upon
since 2003 without adequate planning and projections as to the number of
teachers that would be needed for the proper take-off of the scheme.
Under Funding of Education: Under funding has remained and still
remains the bane of Nigeria’s educational system. The problem of funding of
education according to Adesina (2005) has been tackled ceaselessly by
several Federal Government Committees since 1970s without any major
significant breakthrough. These committees included Ogundeko (1981),
Onabamiro (1982), Fafunwa (1984), Longe (1991), and Estu Nupe (1981).
According to Adesina (2005) this problem of funding was created by the
Federal Government itself when it increasingly assumed full financial
responsibility of education since 1975. In 1988, the national Primary
Education Committee was established and through it, the Federal Government
undertook to pay the bulk of the salaries of over 500,000 Primary School
teachers nationwide. The Federal Government has also intended to finance
the UBE in partnership with the state governments and donor agencies.
Apart from all these, the Federal Government also took over the
responsibilities of other schools it established. It also dabbled into the funding
of secondary education through the establishment of the Federal Government
Colleges known as Unity Schools in all the states. The excessive involvement
of the Federal Government in funding of such major capital intensive
programmes is one of the problems causing shortage of teachers in
preparation for the UBE. The presence of unqualified teachers in the Nigerian
primary schools in 2005 is not the ideal and the various governments should
see to it that qualified teachers are employed to teach in this type of school
realising the fact that teachers are the hubs of any educational system and
according to Coombs (1970) “upon their numbers, their quality and devotion
depend the success of any educational system” (p. 49). For UBE to succeed,
teachers have to be a major part of the process, and efforts should be made
to raise the level of their initial professional preparation.
Limitations
The present study was limited in its scope as it was carried out only in
six states out of the 36 states of the Federation. Also, the primary school unit
Jekayinfa, Alice Arinola
78
of the UBE was focussed. Only the human resources (teachers) needed for
the implementation of the UBE was involved.
In view of the limitations of this study, it is recommended that other
research should be carried out to cover other aspects of the UBE, that is, the
junior secondary, the nomadic education and the adult literacy components.
Also, research should be carried out on infrastructural facilities available for
the UBE and more states of the federation should be covered.
Recommendation
Free, qualitative and functional education like that which the UBE is
expected to give is not possible without quantity teachers. This is because
teachers are the main determinant of quality in any educational system. It is
the teacher who determines what actually happens in the classroom. It is he,
who translates policies into practice and theories into action.
The costs of education are too much for a single body to handle, the
Federal Government cannot single handily fund education in Nigeria given the
seriousness of the shortage of teachers in Nigeria, and knowing fully well that
quality education is cost intensive, it is therefore recommended that, the
funding of education in Nigeria should be a collective responsibility of the
three tires of government-federal, state and local. Parents as well as
philanthropists should all contribute to the venture to ensure that there is
adequate funding that will assist in the provision of all essential instructional
materials (teaching and non-teaching) so that the UBE will be a success.
It is also recommended that there is the need for proper planning so
as to know the correct number of pupils in the primary schools in order to
adequately provide for teachers to teach them. Cases of inadequate supply of
teachers which contribute to the failure of the 1976 UPE should be avoided at
all cost, through proper planning.
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