Attachment_3.Presidential_Task_Team_on_Education_Report.pdf

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ATTACHMENT 3: SOL-620-14-000012

TABLE OF CONTENTS

TABLE OF CONTENTS

EXECUTIVE SUMMARY

INTRODUCTION

BACKGROUND

TERMS OF REFERENCE

MEMEBERSHIP OF THE TASK TEAM

METHOD OF WORK

CONTRIBUTIONS FROM STAKEHOLDERS

ORGANIZATION OF THE REPORT

ACKNOWLEDGEMENT

SECTION ONE

TOR-1: POLICIES ON EDUCATION

A. THE NATIONAL POLICY ON EDUCATION: CONTEXT, BACKGROUND & OBJECTIVES

B. 6-3-3-4: THE SKELETAL STRUCTURE

C. THE INTENDED FLESH AND BLOOD

D. MAJOR IMPLEMENTATION CHALLENGES

E. NEW DIRECTIONS: RE-INJECTING THE BLOOD & FLESHING UP THE FLESH

F. WIDER ISSUES TO BE ADDRESSED

SECTION TWO

TOR-2: INSTITUTIONAL ARRANGEMENTS

A. REGULATORY FRAMEWORK FOR EDUCATION IN NIGERIA

Education as a Constitutional Provision Coordination Mechanisms Role of the Legislature

B. EDUCATION MANAGEMENT AT THE SYSTEM LEVEL

Overall Picture Roles and functions of elements in the overall structure The Parastatals

C. COORDINATION IN PRACTICE

Intra-Ministerial Coordination Inter-Ministerial Coordination Federal-State Coordination Coordination with External Bodies

D. HOW EFFICIENTLY IS IT WORKING?

Adherence to Constitutional Provisions Functioning of National Coordination Mechanisms The Policy Development Process Structure and Functioning of Ministries of Education Functioning of Parastatals Paucity and Hoarding of Information Low Level of ICT Penetration

E. ACTIONS FORWARD: CHANGING MINDSETS, TRANSFORMING SYSTEMS &

MORDERNIZING PROCESSES

Report of the Presidential Task Team on Education, May, 2011 Page 2

ATTACHMENT 3

SECTION THREE

TOR-3: FUNDING ARRANGEMENTS

A. MAJOR FUNDING SOURCES FOR EDUCATION IN NIGERIA

Government The Private Sector Families and Households External support IGR-Internal Generated Revenue

B. THE LITTLE THAT IS KNOWN

Education Budget as part of total federal budget Relatively Huge Current Expenditure What Goes to Service Delivery Structures The Budget Envelope Syndrome Wide Gap between Apparent and Real Budgets

C. NO-INFORMATION ZONES

D. NEED FOR A RESCUE MISSION

SECTION FOUR

TOR-4: LAWS AFFECTING EDUCATION

A. A HOLISTIC VIEW ON QUALITY IN EDUCATION

Beyond Sheer Numbers The Tripartite Model

B. NATURE AND PURPOSE OF EDUCATION LAWS

C. CONSTITUTIONAL REQUIREMENTS ON EDUCATION:

Administrative Laws for the Governance of Tertiary Institutions Laws Governing the Establishment and Running of Private Institutions International Standard Setting Instruments Relating to Education Laws against Criminal Behaviour in Education Enabling Laws of Education Sector Parastatals

D. MAJOR CHALLENGES IN ENFORCING EDUCATION LAWS

E. MOVING FORWARD: TURNING ALL LAWS INTO ENABLERS

Address Systemic Enforcement Challenges Enforce Laws to the Letter and Apply Sanctions Promptly Amend Laws that Confuse the System Amend Enabling Laws of Parastatals on the basis of lessons learnt in the course of Implementation Table 1: Enabling Laws of Parastatals Requiring Amendments

SECTION FIVE

TOR-5: ETHICAL ISSUES

A. VALUES, EDUCATION AND SOCIETY

It’s Values, not examinations that make Education Values and Values Universal and Culture-Specific Values Value crises in Nigerian Society

B. PROMOTING VALUES EDUCATION

Values CAUGHT and TAUGHT Infusing values at the policy level Infusing values at the systems level Infusing values in teacher education Infusing values at the institutional level

C. TOWARDS A VALUE-LOADED CURRICULUM

Report of the Presidential Task Team on Education, May, 2011 Page 3

Curriculum content at different levels of education Values-Guided Pedagogy Values through Implicit Curricula

D. MAKING IT WORK

Promote value re-orientation in society Enforce Rewards and Sanctions Ensure that teachers themselves radiate values Address the challenge of ‘Examinability’

SECTION SIX

TOR-6: TEACHER - RELATED ISSUES

A. TEACHING WITHOUT TEACHERS

The Issues at Stake Quantitatively Speaking Teacher Quality

B. WHY IS TEACHING UNATTRACTIVE?

C. GOVERNMENT’S RESPONSE TO THE TEACHER CHALLENGE

Teachers’ Registration Council of Nigeria National Teacher Education Policy (NTEP) Pipeline Project on Teachers’ Salary Scale (TSS)

D. IMPLEMENTATION GUIDELINES FOR THE NATIONAL TEACHER EDUCATION

POLICY

Creating an Enabling Environment for Implementation

E. WHAT MAKES IMPLEMENTATION SO DIFFICULT?

F. GETTING UP AND MOVING

SECTION SEVEN

TOR- 7: OTHER IMPROVEMENT MEASURES

A. A MULTI-FACTOR CHALLENGE

Factors Affecting Learning Achievement

B. INTELLECTUAL AND NON-INTELLECTUAL LEARNING OUTCOMES

C. MULTI-FRONT INTERVENTION- 21 ESSENTIAL STEPS

SECTION EIGHT

TOR-8: OTHER RECOMMENDATIONS

A. GENERAL CONSIDERATIONS

B. INTEGRATION OF ‘SUB-POLICIES’ INTO THE NATIONAL POLICY ON EDUCATION 79

C. REFLECTING NEW MANAGEMENT & FUNDING ARRANGEMENTS IN THE NATIONAL

POLICY

D. CLARIFICATION ON CONSTITUTIONAL ISSUES

E. REVISITING THE FEDERAL GOVERNMENT COLLEGES

F. CREATION OF NEW EDUCATION SECTOR PARASTATALS

G. EDUCATION POLICY TRACKING

H. THE MOST IMPORTANT OF ALL THE RECOMMENDATIONS: THE POLITICAL WILL

TO IMPLEMENT

SECTION NINE

SUMMARY OF RECOMMENDATIONS

THANK YOU MR. PRESIDENT

Report of the Presidential Task Team on Education, May, 2011 Page 4

EXECUTIVE SUMMARY

The Presidential Task Team on Education (PTTE) was inaugurated on 5th

January 2011, by His Excellency, Mr. President, Dr. Goodluck Ebele Jonathan, GCFR to propose strategic measures to revamp education and address specific burning issues as contained in Eight Terms of Reference (TORs).The Team chaired by Prof. PAI Obanya (a Retired UNESCO African Regional Director for Education) had members representing various interest groups. The Team, in the course of its work, co-opted the various Departments of the Federal Ministry of Education, some Parastatals and a number of Government Agencies to facilitate information gathering and broaden the perspectives for analysis.

The Task Team set out to work immediately after its inauguration. It adopted an accelerated work flow chart that guided it in holding intensive working sessions from mid-January to the end of March, 2011. A widely publicized website www.ptte.gov.ng was used to allow a broad spectrum of stakeholders to dialogue with the Team and to make their contributions.

These contributions have been summarized and presented as a separate Annexure to the Report. The PTTE Report is therefore in Two Parts; the Main Report as Volume 1 while Volume II contains the Annexure.

The TORs provided a coherent structure for information search, deliberations, and analysis. A summary of some Recommendations on each TOR is therefore presented below:

TOR-1: Refocus and restructure existing policies at all levels of Education, especially the concept and implementation of the 6-3-3-4 system of Education.

The Report notes that 6-3-3-4 system is a good policy but recommends:

that Government should return to the original intentions of 6-3-3-4

(curriculum diversification, enhanced relevance, increased emphasis on science and technology, expanded access and equity, etc.). 6-3-3-4 remains a good policy.

the readjusting the structure to incorporate a preparatory year in Early Childhood Care & Education (for 5-year olds) to enhance government involvement in the EFA Goal Number One. It has the advantage of providing opportunities for learning readiness, especially for children from deprived environments. This is already in practise in a number of States in the Federation, and has been recently institutionalized in Ghana.

TOR-2: Determine the best institutional arrangement for the management, regulation and coordination of Education at all levels The Report recommends:

the need to split the Federal Ministry of Education into two by creating a distinct Ministry of Higher Education. This is to enable the Federal Government perform its major constitutional responsibility of quality assurance in the higher education sector; this has been neglected over the years amidst the growing number of Tertiary Institutions as well as utilize the current overloaded and burdensome bureaucracy.

the streamlining of the existing FME Parastatals for enhanced efficiency

Report of the Presidential Task Team on Education, May, 2011 Page 5 http://www.ptte.gov.ng/ in service delivery. The Report strongly recommends that there should be no new Parastatals for now.

TOR-3: Propose a sustainable funding arrangement and transparent management of resources for Education.

The Report recommends:

the institutionalization of the education sector strategic planning along with the education sector investment planning to enable Government determine resource requirements in advance and take steps in a proactive manner to mobilize such resources.

that Education Sector Budgets are put in the public domain to avoid the dark no-information zone on the funding of education; this will ensure more transparency in the deployment of funds.

that a synergy mechanism be put in place for the large number of Agencies within and outside the Education Sector (ETF, UBEC, MDGs, NITDA, PTDF, NCC, CBN) funding education to ensure that funds from these sources are properly invested for sustainable development of Education. For now each one is doing its own thing without a synergy mechanism.

TOR-4: Examine all laws militating against the delivery of qualitative education and propose required changes/amendments.

The Report recommends:

that the relevant Agencies of Government be directed to produce a

Compendium of all existing Education Laws that can be readily available for use in the regulation of education in the country.

the need to amend many outdated Education Laws. Examination malpractice remains a threat to quality education, yet the law on this threat has serious flaws for offenders. The proposal by JAMB on the subject, the case of NTI as well as many others should be given urgent attention.

TOR-5: Examine the ethical issues in Education and steps necessary for the steps necessary to restore ethics and values in Education at all levels.

The Task Team was guided by that elementary principle in courses on the Philosophy of Education which states that it is Values, not Examinations that make Education.

The Report recommends:

Value re-orientation in society because values are both caught and taught.

infusing values into Education policy, into Curricula, into School management into Teacher education and into Teacher-student classroom interaction processes. Values should become a pillar of a values-loaded curriculum

TOR-6: Develop programmes and projects that will attract talented persons to the teaching profession, while retaining and motivating teachers.

A combination of historical, societal, economic and psychological factors have contributed to making Teaching unattractive, leading to a situation of loss of social respect for the teacher.

The Report recommends the need to:

Accelerate the process of making the National Teacher Education

Report of the Presidential Task Team on Education, May, 2011 Page 6

Policy (NTEP) a reality;

Resolve promptly the political and financial issues impeding the implementation of the Teachers’ Salary Scale;

TOR-7: Propose such measures necessary for the improvement of the teaching and learning environment to create greater access to Education and enhance intellectual achievement across the board.

The Task Team considered the factors that make for successful school learning and the hard and soft skills needed by today’s knowledge economy, as well as ways in which Nigerian schools can be made to really educate.

The Report recommends:

a multi-pronged intervention with 21 essential steps presented in great details.

the need to spend the money where the action really is – the theatre of education to enable Schools and Classrooms work for enhanced learning achievement.

TOR-8: Propose any other relevant step/recommendation which in the opinion of the Task Team will reposition the education system nationwide.

Three main Issues are highlighted:

The demand for a Secondary Education Commission, based on the argument that the Secondary sub-sector is the only one in the system not covered by a Commission with the undertone that the situation portends a neglect of Secondary Education. Nigeria should in this connection follow the continental trend of providing Basic Education up to the end of Senior Secondary School. If this is done (as is already the case in a couple of States of the Federation) the existing Universal Basic Education Commission can have its Statutes amended to cover all levels of pre-Tertiary Education while retaining its current name.

The Federal Government Colleges are a special challenge. There are 104 Unity Colleges nationwide. Running them has become the Federal Ministry of Education Headquarters’ major pre-occupation. The Report suggests three options for addressing this challenge; any of which will result in a leaner, more professional Federal Ministry of Education that will concentrate on front-end as against back-end activities while optimizing the use of resources.

The political will to implement Reforms and see them through remains critical and most crucial.

Finally in view of the transformational style of this Administration, the Team is convinced that the critical elements in this Report would be used to set the Transformation Agenda for Education in this country.

Report of the Presidential Task Team on Education, May, 2011 Page 7

INTRODUCTION

Background

The Presidential Task Team on Education (inaugurated on 05 January 2011) is one of the direct follow-up actions to the Presidential Summit held on the Theme of Restoration, Reclamation and Sustenance of Quality and Ethics in Education, held in October 2010. It was the consensus of opinion at that Summit that, in fast tracking education sector reform in the country, there should be an urgent move from endless deliberations to concrete, strategic and ameliorative interventions. This explains the concrete and specific focus nature of the Task Team’s Terms of Reference.

Terms of Reference

The Task Team was charged with the following concrete and specific Tasks.

i. Refocus and restructure existing policies at all levels of Education, especially the concept and implementation of the 6-3-3-4 system of Education.

ii. Determine the best institutional arrangement for the management, regulation and coordination of Education at all levels

iii. Propose a sustainable funding arrangement and transparent management of resources for Education.

iv. Examinee all laws militating against the delivery of qualitative education and propose required changes/amendments.

v. Examine the ethical issues in Education and steps necessary for the steps necessary to restore ethics and values in Education at all levels.

vi. Develop programmes and projects that will attract talented persons to the teaching profession, while retaining and motivating teachers.

vii. Propose such measures necessary for the improvement of the teaching and learning environment to create greater access to Education and enhance intellectual achievement across the board.

viii. Propose any other relevant step/recommendation which in the opinion of the Task Team will reposition the education system nationwide.

It was the consensus of opinion at that Summit that, there should be an urgent move from endless deliberations to concrete, strategic and ameliorative intervention.

Thus, the need for a Task Team.

Report of the Presidential Task Team on Education, May, 2011 Page 8

Membership of the Task Team

The Task Team was composed of thirty persons, representing a wide array of Education Sector stakeholders.

S/No

Name

Designation

1. Prof. Pai Obanya Retired UNESCO African Regional Director for Education --- CHAIRMAN

2. Prof. Offiong E. Offiong Honourable Commissioner for Education – Cross River State

3. Prof. Angela Miri Honourable Commissioner for Education – Plateau State

4. Hajia A’isha M B Ahmed Honourable Commissioner for Education –Gombe State

5. Prof. Jude E Njoku Honourable Commissioner for Education – Imo State

6. Prof. Ngozi Osarenren Honourable Commissioner for Education – Edo State

7. Alhaji Mohammed Arzika Tureta Honourable Commissioner for Education – Sokoto State

8. H. E. Princess Sarah Sosan Deputy Governor & Hon. Commissioner, Lagos State

9. Dr. Frank Nweke Jnr Nigeria Economic Summit Group

10. Ramatu H B Usman, mni National Council of Women Societies

11. Dr. Sally N. Adikwu-Bolujoko Ministry of Women Affairs

12. Prof. Julius Okojie National Universities Commission

13. Dr. Mas’ud Kazaure National Board for Technical Education

14. Prof M I Junaid National Commission for Colleges of Education

15. Prof. Mahmood Yakubu Education Trust Fund

16. Dr. Ahmed Modibbo Mohammed Universal Basic Education Commission

17. Prof. Dibu Ojerinde Joint Matriculation and Admissions Board

18. Dr. Iyi Uwadiae West African Examinations Council (National Office)

19. Prof. Promise Okpala National Examinations Council

20. Prof. Godswill Obioma Nigeria Educational Research & Development Council

21. Prof. Ukachukwu Awuzie Academic Staff Union of Universities

22. Mr. Mohammed Ali Kabir Academic Staff Union of Polytechnics

23. Mr. Mohammed Awwal Ibrahim Colleges of Education Academic Staff Union

24. Obong Ikpe Johnny Obong Nigeria Union of Teachers

25. Alh. D. Haruna National Parents’ Teachers’ Association of Nigeria

26. Dr. B. O. Babalakin, SAN Chairman, Pro-Chancellors of Nigerian Universities

27. Prof. Eunice Okeke Retired Professor of Education

28. Prof. Abdallah Uba Adamu Bayero University, Kano

29. Prof. Otonti Nduka Nigerian Academy of Education

30. Dr. Jamila Shu’ara Director, FME - Tertiary Education & SECRETARY

Report of the Presidential Task Team on Education, May, 2011 Page 9

In the course of its work, the Team was directed to co-op the following persons, to expand its outreach and consultative process:

S/No Name Designation

1. Alh. Garba Bello Yabo Director, FME - Basic Education

2. Mrs. Anna Bamaiyi Director, FME - Federal Inspectorate Services

3. Mr. A. F. Salami Director, FME- Policy, Planning, Managt. & Research

4. Barrister M.U.Isichei Director, FME - Legal Unit

5. Mr. J. O. Otunla Director, FME - Finance and Accounts

6. Mr. David Momodu Ag. Director, FME - Human Resources Management

7. Dr. Anne N. Nzegwu Ag. Director, National Planning Commission

8. Prof. Addison M. Nwokocha Registrar, Teachers’ Registration Council of Nigeria

9. Dr. Ladan Shareehu Director, National Teachers’ Institute

10. Ms Alero Otobo Nigeria Economic Summit Group

11. Dr. Sa’idu Mijinyawa National Association of Private School Proprietors

12. Alh. Halilu Pai Education Secretary, FCTA - Abuja

Method of Work

The Task Force held an Introductory/planning Meeting immediately after its Inauguration on 05 January 2011, in the course of which the Work Flow Chart below (comprising six formal working sessions of three days each) was adopted.

Formal Working Sessions 05 J an

-2

Ja n

-0

Fe b

-1

Fe b

-1

M ar

-2 ar ay

Inauguration/

First Formal Working Session(Task Assignment)

Second Formal Working Session (general task assignment/Intensive Work on TOR-1

Third Formal Working Session (Intensive Work on

TOR-2 & TOR-3)

Fourth Formal Working Session (Intensive Work on

TOR-4 & TOR-5)

Fifth Formal Working Session (Intensive Work on

TOR-6 & TOR-7)

Sixth Formal Working (TOR-8 & Review of Draft Final Report)

Submission of Report

Report of the Presidential Task Team on Education, May, 2011 Page 10

All the working sessions were well attended. Small group interaction was the dominant method of work. In addition, members of the Task Team held interactive sessions with various Departments of the Ministry of Education and also with the following Parastatals:

1. National Examinations Council

2. Joint Admissions and Matriculations Board

3. National Board for Technical Education

4. National Commission for Colleges of Education

5. National Universities Commission

6. Nigerian Educational Research and Development Council

7. Education Trust Fund

8. Universal Basic Education Commission

Contributions from stakeholders In order to enrich the Debate and engage with the Nigerian Public, the Task Team opened up a website domain Address (ptte.gov.ng) as well as had two dedicated GSM Lines to interact with stakeholders. Contributions were harvested through Telephone conversations, emails, text messages and hard copy Memoranda. Volume II of this Report is therefore the Annexure of extracts of the comments and suggestions (already captured in the Main Report) from the various stakeholders on how to move the Education Sector forward, as well as some critical documents (National Policy on Education, National Education Stakeholders Summit Report, 2010 Ministerial Score Card, etc) referred to in the Report.

Organization of the Report

The main body of the Report is divided into Eight sections, with each section devoted (in serial order) to a specific Term of Reference (TOR). Each section begins with general situational analysis, and goes on to highlight key issues and challenges, before dwelling on ACTIONABLES – concrete strategic interventions required to address the challenges identified with the specific Term of Reference. In a number of cases, the Report draws particular attention to wider (systemic) issues (e.g. Corruption, Policy summersaults and Negative societal values) that have a strong impact on Education.

A very important wider (systemic) area of concern is the need for a strong POLITICAL WILL (matched with an appropriate level SOCIAL WILL) to implement the Actionables put forward in the Report. It is for this specific reason that the Report re-iterates its major recommendations (making ‘political will to implement’ as the most important recommendation) in the very Final Section (Section Nine).

Report of the Presidential Task Team on Education, May, 2011 Page 11

ACKNOWLEDGEMENT

On behalf of the entire members of the Presidential Task

Team on Education, 2011, it is with a high sense of respect that I express deep gratitude to His Excellency, President Goodluck

Ebele Jonathan (GCFR) for the confidence reposed in the Team for the opportunity to serve the cause of Education in Nigeria.

The Task Team Members are also grateful to the

Honourable Minister of Education, Professor Ruqayyatu Ahmed

Rufa’i (OON) and the Honourable Minister of State for Education, Olorogun Barrister Kenneth Gbagi, for recommending us for this important national assignment.

To the Permanent Secretary and the staff of all the

Departments and Parastatals of the Federal Ministry of

Education, I say a big THANK YOU for the human warmth, the guidance and the technical/logistic support that made our working sessions so pleasurable.

PAI OBANYA

CHAIRMAN

For Members

Report of the Presidential Task Team on Education, May, 2011 Page 12

SECTION ONE

TOR-1: Policies on Education

Objective: To refocus and restructure existing policies at all levels of

Education, especially the concept and implementation of the 6-3-3-4 system of Education

CONTENTS:

A. The National Policy on Education: Context, Background and Objectives

B. 6-3-3-4: The Skeletal Structure C. The Intended Flesh and Blood D. Major Implementation Challenges E. New Directions: Injecting the Blood and Fleshing up the Flesh

i. New Policy Orientations

ii. Adjusting the Structure

iii. Enforcing Implementation Mechanisms

iv. Curriculum Enrichment at all Levels

v. Enforcing Language- in- Education Policy

vi. Quality Teachers for Quality Teaching and Desirable

Learning Outcomes

vii. Continuous Assessment in place of mere Continuous

Testing

viii. Institutionalizing Guidance and Counseling of Learners

ix. Learner-friendly/Learner-safe School Environments

x. Responsive and Participatory School Management

xi. Review of Post-secondary Curriculum Orientation

xii. Integrating the Non-formal Component

xiii. Targeted and Sustainable Funding of Education

xiv. Strengthening Public-Private-Community Partnerships

xv. Policy Tracking and System Assessment

F. Wider Issues to be Addressed

Report of the Presidential Task Team on Education, May, 2011 Page 13

A. THE NATIONAL POLICY ON EDUCATION: CONTEXT, BACKGROUND

AND OBJECTIVES

The National Policy on Education owes its origin to the post- independence pan- African educational reform movement of the early 1960s. Educational reform was then seen (correctly) as an essential ingredient of the nation-building efforts of the newly independent states of Africa. This was in fact the moving spirit of the First Conference of African Ministers of Education (now referred to as Committee of Ministers of Education in Africa, COMEDAF ) held in Addis Ababa in 1961 and which adopted a resolution to expand educational opportunities on the continent and to universalize access to primary education by 1980.

Nigeria’s move to join the African education train, and particularly to evolve a genuinely national education system, began with a national curriculum conference in 1969. The Nigeria Educational Research Council (NERC) was immediately set up to give teeth to the recommendations of the conference. The Council, between 1971 and 1975 mobilized stakeholders for follow-up sub-sectoral national conferences on primary, secondary and teacher education, the reports of which were fed into the work of the Adebo Commission that drafted a National Policy on Education in 1973. This document was first published four years later and was popularly referred to as the New National Policy on Education: 1977

The Policy was seen as a response to national education goals, expresses as

a. The inculcation of national consciousness and national unity

b. The inculcation of the right type of values and attitudes for the survival of the individual and the Nigerian society

c. The training of the mind in the understanding of the world around

d. The acquisition of appropriate skills and the development of mental, physical and social abilities and competences as equipment for the individual to live and contribute to the development of Society

The policy focus was a radical modification of the inherited colonial education system, which was considered elitist and too-literary-oriented. It was intended to enhance the relevance of curricula, to reflect national cultural heritage, and inculcate skills needed in various sectors of national socio-economic development, with particular emphasis on science and technology (tertiary institutions were in fact urged to admit students at the

1961 African Ministers of Education Meeting was..

… to expand educational opportunities on the continent and to universalise access to primary education

NPE ……

*national consciousness *national unity *values/attitude *Train the mind *Individual competencies

Box 1: Genesis of the National Policy on Education

The need for a national policy on education came about as a result of the 1969 National Curriculum Conference which was attended by a cross-section of Nigerians. The conference was a culmination of expressions of general disaffection with the existing education system which had become irrelevant to national needs, aspirations and goals (Source: Introduction to the National Policy Education-1977 edition)

Report of the Presidential Task Team on Education, May, 2011 Page 14 ratio of 60:40, in favour of Science and Technology-based programmes).

There were hiccups of a political nature in the take off of the Policy and it took a strong Federal Government intervention to effectively enforce it in 1983-84.

In response to trends at the global and pan-African levels (EFA-Education for All, MDGs-Millennium Development Goals, African Education Decades, etc) and also in response to evolutions in national development goals (VISION 2010, NEEDS, VISION 20-20-20, in particular) the Policy has been subjected to revisions on a regular basis. The latest in the series of ‘revised’ versions is currently awaiting approval by the nation’s education policy clearing structures.

B. 6-3-3-4: THE SKELETAL STRUCTURE

The National Policy on Education was from its publication in 1977, considered as NEW in one major respect; its structure, popularly known as the 6-3-3-4.

(Figure one below). This is in contrast to the colonially inherited 6/7/8-5-2-3 structure.

Figure 1: Formal Education System in Nigeria

The 6-3-3-4 structure is in itself an attempt to align with global and pan-African trends that made for compulsory education up to the end of junior secondary schooling. The structure varies from place to place. In Anglophone West Africa, it is 6-3-3-4, while it is 6-4-3-++ in francophone Africa. It is 8-4-4 in Eastern Africa, while Ghana has recently adopted a 7-3-3-4 structure that adds a compulsory pre-school year to the existing structure.

Over the years, there has been a growing tendency to mistake the structure for the system; hence the engrained habit of referring to Nigeria’s educational policy and practice simply as the 6-3-3-4 system. This has given rise to an over-emphasis in all education-related discourse on the bare bones of the education policy, to the neglect of its very essentials (the flesh and blood).

The reality is that the structure could have taken any form. What matters is that the structure must be a veritable vehicle for national education development in the widely accepted sense of the term

New NPE now revised awaiting approval

6-3-3-4

Structure mistaken for the System

Ages 0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24

Universal Basic Education 5B 5B 5B 5B

0 0 0 1 1 1 1 1 1 2A 2A 2A 3A 3A 3A 5A 5A 5A 5A 6 6 6

3B 3B 3B 4A 4A

2C 2C 2C 4B 4B 4B 4B

0 Pre-primary education 4A Pre-degree programmes 1 Primary education: Primary Leaving Certificate 4B Monotechnics

2A Junior secondary : Junior Secondary Certificate 5B Polytechnics 2C Vocational training : Cert.. of Proficiency Colleges of Education 3A Senior secondary : WASSC, NESC 5A University Degree Programmes : Bachelor's and Master's 3B Technical colleges : NETC, ANTC 6 Doctor, Doctor of philosophy

Report of the Presidential Task Team on Education, May, 2011 Page 15

C. THE INTENDED FLESH AND BLOOD

Referring to 6-3-3-4 as the skeletal structure of the National Policy on Education is a way of drawing attention to the fact that the Policy addresses more fundamental education issues than the surface structure. These fundamentals (discussed in the paragraphs that follow) are best captured in the pedagogical dictum that says: Children will not simply pass through the school; the school must also pass through them. This is a way of emphasizing that the structure should educate by positively transforming the beneficiaries of Education. The National Policy on Education embodies a number of provisions that are intended to focus on the above-stated pedagogical dictum.

a. Language of Instruction in the early years of schooling: The Policy provides that the foundation of learning be laid through the use of the language of the immediate environment, with transition to the official language for instruction in later years. This is a provision supported by experience, pedagogical research and the Jomtien Education for All recommendations and Framework for Action.

b. Learner-Centered Pedagogy: The learner dictating the pace, the style, the content, the volume of learning, as the school has to cater for ALL – learners with a wide variety of abilities, aspirations, level of learning readiness, etc

c. Student Guidance and Counseling: Helping learners to understand themselves and develop their talents and potentials, since transforming the learner through Education involves making the best of all talents.

d. Systematic Learning Assessment: Observing learners in a systematic way, monitoring and recording behaviour and learning achievement and taking appropriate corrective measures to ensure that faults and failures do not become permanent obstacles to positive behaviour change and subject matter mastery.

e. Teaching for Mastery: Emphasis on learner success, on the principle that learner failure is teacher failure (and in fact system failure)– a situation reinforced by the ‘focus on learning’ provision of the Jomtien World Conference on Education for All

f. Diversification of Curricula: This includes (a) integrated (basic) science, social studies and language arts, (b) Introductory (basic)Technology at the Junior Secondary level, and (c) diversification of curriculum offerings at the senior secondary level

g. Minimum Qualification Level for Teachers: The NCE (Nigerian Certificate in Education) as the minimum acceptable qualification for teaching in Nigerian schools

h. Modification of Structure of Tertiary Education: Mainly a shift from 3-year university first degree courses to a 4-year structure.

i. Integrating the Non-Formal Component of Education: a recognition that Education goes beyond schooling and the need to take adequate educational care of the out-of-school population

Report of the Presidential Task Team on Education, May, 2011 Page 16

j. Religious, Ethical and Moral Values in Education: - a provision that goes beyond conventional religious studies to include (a) Nigerian cultural values and norms, and (b) study of the life of great citizens who have contributed to human development and the growth of the Nigerian nation.

k. Systematic Monitoring of the System: The establishment of an implementation monitoring agency and the provision of detailed implementation guidelines.

D. MAJOR IMPLEMENTATION CHALLENGES

Moving from policy documents to on-the-ground policy implementation has always raised serious challenges, and the Nigerian case is no exception.

Nigeria’s overall development challenges have had their direct and indirect impact on the implementation of the national policy on education. Prominent among these are the following –

Political Challenges Policy Shock Syndrome Data Drought Reverse-order Planning Neglect of Level-One Stakeholders Misinterpretation of key provisions

The political challenges, in the first place, have to do with the instability that the country experienced up to 1999. Since then, the practice of ‘true federalism’ has been a major headache, in much the same way as Constitutional provisions on Concurrent & Legislative List (Federal/State) responsibilities for Education.

Policies have not always been given the chance to prove their effectiveness (or failure to do so), as un-coordinated changes tend to be dropped in and out in a haphazard manner, dictated by moods in place of reason. This is a practice that shocks (instead of guiding) stakeholders and the policy implementers.

That data (both hard figures and soft explanations) are virtually non-existent and un-useable in the education system is an undisputed truism. This situation of data drought has consequently made it difficult to be categorical on the direction and level of progress and intentions are usually taunted as achievements.

Planning, in its true sense, should pre-date policy launch. Nigeria’s abnormal experience has however been one in which the policy comes first, while thoughts on how to go about it comes later.

Table one below shows that the Education Sector has multiple stakeholder groups, all of which must be involved in education policy development. The groups in the lower rungs of the social ladder (Classes 1 and 2) are often the ‘need bearers’ – the direct beneficiaries of public education.

6-3-3-4 major challenges...

*Education is on both Concurrent & Legislative Lists

*haphazard un-coordinated changes

*un-useable Data

Report of the Presidential Task Team on Education, May, 2011 Page 17

Table 1- Five Groups of Education Sector Stakeholders

Nigeria has, over the years, limited stakeholder participation to the upper rungs of the social ladder (groups four and five, and in some cases, group three) and this has created a high degree of apathy in the ‘real’ people.

The situation has also perpetuated popular misconceptions about the policy as a product dictated from the top, instead of a participatory process involving all classes of society in all phases of its development.

The key provisions of the policy that have been misinterpreted and neglected include Guidance and Counselling and Continuous Assessment.

In practice, the latter has been replaced by mere ‘continuous testing’ while the former has simply been scratched on the surface. In addition, curriculum diversification at the senior secondary level is only just being addressed, while Introductory Technology at the junior secondary level has laid more emphasis on the dumping of foreign equipment, to the detriment of relevant and responsive curriculum development efforts on the subject, and the provision of technical teachers.

E. NEW DIRECTIONS: RE-INJECTING THE BLOOD AND FLESHING

THE FLESH

What is clear from the analysis so far is that 6-3-3-4 (as mere skeletal structure) has NOT failed. Its bare bones have been mistaken for its genuine essentials in some circles. Its implementation has been characterized by ‘Nigerian factor’ challenges. It has even recorded some gains, like giving Nigeria a national education system with a home-grown policy. It has been the cornerstone for Nigeria’s response to the global challenges of Education of our time (EFA, MDGs, etc). It has midwifed the development of national capacity for curriculum development.

The way forward is therefore to recognize the Policy as a living entity, subject to growth and evolution in response to the ever-changing needs of Society.

That is the raison d’être for the ‘action-forward’ proposals that follow.

6-3-3-4 key provisions that have been misinterpreted and neglected include:

*Guidance & Counselling *Continuous Assessment

6-3-3-4 (as mere skeletal structure) has NOT failed.

GROUP ONE GROUP TWO GROUP THREE GROUP FOUR GROUP FIVE

Rural Dwellers Women Groups Practising Teachers Education Sector Technocrats

Government Agencies

The Urban Poor Youth Organisations

Teacher Associations

Academics Legislature

Traditional Institutions

Organised Labour Parent-Teacher Associations

Organised Private Sector

Education Ministries

Grassroot-Based Organisations

Small Scale Economic Operators

Political Parties/ Religious Bodies

Professional Bodies Education Sector Parastatals

Students Local Government Agencies

Other Government Ministries

Report of the Presidential Task Team on Education, May, 2011 Page 18 a Provide New Policy Directions – mainly in the form of clarifications of its major thrust (enhanced access, equity, relevance, quality, and efficiency) – emphasis on science and technology at all levels, and linking it more closely with the UBE initiative, and adding public information dimension to the implementation process).

b Adjust the structure – to incorporate a preparatory year (for 5-year olds) to enhance government involvement in number one of the EFA Goals- Early Childhood Care and Education c Reinforce the mechanisms for its Implementation – systematizing the roles and functions of federal level agencies and devolving more powers to states and local governments d Pursue Curriculum Enrichment at all Levels – continuation of ongoing reforms in a more participatory manner, the pursuit of integration at the lower levels to reduce curriculum overload, a more responsive Basic Technology curriculum, and a diversified curriculum offering at the senior secondary level e Enforce the language in education policy- intensifying language, material and teacher development, to facilitate implementation f Provide Quality Teachers for Quality Teaching and Quality Learning Outcomes – Implementation of National Teacher Education Policy, and particularly systematic career-long development of serving teachers and enriched curricula for pre-service teacher education, while ensuring continuous upgrading of everything concerning both the conditions of teachers and the conditions of teaching.

g Build capacity for Continuous Assessment to replace Continuous Testing – revision of current guidelines and practices through massive teacher participation along with the integration of Continuous Assessment principles and practices in teacher education.

h Reinforce capacity for the practice of generalized guidance and counseling- turning every practicing teacher into a ‘generalist counselor’ while intensifying the training of specialist counselors and deploying them effectively i Institutionalize Learner-friendly/ learner-safe learning environment as NORM- enforcement of minimum standards in school premises and inculcation of a maintenance culture in schools j Institutionalize Responsive and Participatory School Management-enforcement of existing guidelines and the empowerment of first-level stakeholders in school management, while institutionalizing management skills acquisition in head teachers k Review Curriculum Orientation at the Post-Secondary Level:

devoting the first year of tertiary education as foundation year, for reinforcing learning skills, remedial work, and general (introductory) exposure to different fields of knowledge and inquiry.

Re – strategize

6-3-3-4

Report of the Presidential Task Team on Education, May, 2011 Page 19 l Integrate the Non-Formal Component: a duty to the large out-of-school population of the country (children, adolescents, Youth and Adults as well as Almajiri & migrant Populations) whose learning needs would have to be met in pursuit of EFA goals m Enforce Targeted and Sustainable Funding of Education- more resources (increased funding) for Education, targeting priority/high impact areas and ensuring availability of funds that match budgetary targets (efficient funding).

n Strengthen Public-Private-Community Partnerships – genuine involvement of grassroots communities and structures in educational development, enhanced public sector transparency, private sector involvement well beyond mere provision of funds o Institutionalize Policy Tracking and System Assessment – Creation of appropriate, participatory, transparent tracking mechanisms at all levels and institutionalization of global practice of system (inputs-processes-outcomes) assessment.

F. WIDER ISSUES TO BE ADDRESSED

The above section has outlined ‘within sector’ challenges to be addressed to make 6-3-3-4 workable. However, the extent to which the suggested strategic interventions would succeed will depend on the extent to which a number of ‘around sector’ challenges are also (simultaneously) tackled. These are

a. The true federalism challenge – including the confusion around the concurrent and the exclusive

b. Strategic development planning, scientific budgeting and allocation of resources as generalized national practice

c. Reducing the cost of governance in the system, so that funds can be channeled to priority development challenge endeavours

d. Return to a culture of meritocracy, respect for norms, recognition of genuine contributions, patriotism, hard work, rules and regulations and general value orientation toward the observance of ethical and moral values in the wider society

e. Elimination of corruption in all its forms

Report of the Presidential Task Team on Education, May, 2011 Page 20

SECTION TWO

TOR-2: INSTITUTIONAL ARRANGEMENTS

Objective: To determine best institutional arrangements for the management, regulation and coordination of Education at all levels

CONTENTS

A. Regulatory Framework for Education in Nigeria

i. Education as a Constitutional Provision

ii. Coordination Mechanisms

iii. Role of the Legislature

B. Educational Management at the System Level

i. Overall Picture

ii. Roles and Functions of elements in the overall structure

iii. The Parastatals

C. Coordination in Practice

i. Intra-Ministerial Coordination

ii. Inter-Ministerial Coordination

iii. Federal-State Coordination

iv. Coordination with External Bodies

D. How efficiently is it working?

i. Adherence to Constitutional Provisions

ii. Functioning of National Coordination

Mechanisms

iii. The Policy Development Process

iv. Structure and Functioning of Ministries of

Education

v. Mushrooming of Parastatals

vi. Paucity and Hoarding of Information

vii. Low level of ICT Penetration

E. Actions Forward: Changing Mindsets, Transforming

Systems and Modernizing Processes

i. Return to ‘True Federalism’

ii. Strengthening of the Policy Environment

iii. Reform Coordination Mechanisms

iv. Institutionalize Participatory Policy

Development Processes

v. Let Functions Define Structures

vi. Make structures less complex, less hierarchical and less top-heavy

Report of the Presidential Task Team on Education, May, 2011 Page 21

i. Overall Picture

vi. Institutionalize systematic staff development, building learning technocrats and professionals in the process

vii. Strengthen the Quality Assurance and Policy tracking Roles of Ministries of Education

viii. Streamline the functions of Parastatals

ix. Establish Functional EMIS

x. Expand and Deepen ICT Penetration

F. Heads of Professional Departments, Parastatals and the Ministry must be Professionals

Report of the Presidential Task Team on Education, May, 2011 Page 22

A. REGULATORY FRAMEWORK FOR EDUCATION IN NIGERIA

Education as a Constitutional Provision

Education in Nigeria, as a prime social service sector, is governed by the requirements of the country’s constitution; section 18; which outlines the Nation’s Educational Objectives as follows:

1. Government shall direct its policy towards ensuring that there are equal and adequate educational opportunities at all levels.

2. Government shall promote science and technology

3. Government shall strive to eradicate illiteracy; and to this end Government shall as and when practicable provide

a. Free, compulsory and universal primary education;

b. Free secondary education;

c. Free university education; and

d. Free adult literacy programme.

The National Policy on Education also affirms the prime priority of Education as an instrument for national development, emanating from the nation’s development goals: A free and democratic society

a. A just and egalitarian society

b. A united, strong and self-reliant nation

c. A great and dynamic society

d. A land full of bright opportunities for all citizens

Therefore, responsibilities for service provision in the country’s federal set up (see First and Second Schedules of the Constitution) fall under two categories. The ‘exclusive legislative list’ is that of the federal government, while the ‘concurrent legislative list’ denotes services that can be delivered both by federal and state governments. Education happens to be on both lists, though primary education is considered a responsibility of the States, with participation by the third tier of government--- the local government authorities.

Coordination Mechanisms

Nigeria’s federal set up is intended to respect the diversities among different parts of the country and to ensure even development, and to bring government closer to the people. Respect for diversity does not however rule out the compelling need to promote national integration and unity. This is one reason for which service delivery in every sector is devolved to the lower tiers of government, while provision is made for coordination at the federal level, thus enabling the country to speak with one voice on most issues of national developmental concern.

Speaking with one voice on Education is done through the NATIONAL COUNCIL ON EDUCATION (NCE). This is the apex policy making and programme coordination body on Education and its membership is made up

Report of the Presidential Task Team on Education, May, 2011 Page 23 principally of the Minister of Education (representing the Federal Government ad Commissioners for Education (representing the states).

The NCE is serviced by the Plenary Session of the Joint Consultative Committee on Education (JCCE), which serves as a professional clearing house on issues before they are finally considered for approval by NCE.

JCCE Plenary is in turn serviced by a number of Reference Committees), specialized Sub-committees to which all issues are referred for in- depth analysis before consideration by JCCE Plenary.

There is thus, a four-step march in the consensus-building process on educational issues in the system

Step one: Reference committees for the JCCE – for professional in depth analysis and recommendation to the Plenary

JCCE

Step two: The JCCE Plenary – for further professional issues consideration and recommendation to NCE

Step three: Further screening is done by the Technical session of NCE and recommendations forwarded to the Ministerial session of NCE

Step four: Final decision is taken by Ministers’ session of the National Council on Education (NCE). Decisions that require major Policy Change thereafter go to the Federal Executive Council and/or National Economic Council.

Policy initiatives do come in from various sources (Federal and State Ministries of Education, Tertiary Institutions, Professional Bodies, Civil Society groups, etc). These are then submitted to the NCE Secretariat in the Federal Ministry of Education, which in turn refers them to the appropriates reference committee for initial consideration (step one of the process). The process then moves up the consensus-building ladder from steps two to four. No policy initiative becomes a genuine policy decision (with appropriate guidelines) until it is approved by the Ministers’ session of

NCE.

Role of the Legislature

Most education policy matters would require backing by the force of law. In such cases, the policy decisions cannot be enforced until they are backed by an enabling Act of Parliament. The National Assembly would enact enabling laws to cover areas of responsibility of the federal government, while state assemblies would enact laws pertaining to the application of such laws in their respective states.

Appropriation of funds for Education, as part of an overall national budgeting process, is the function of national and state assemblies.

Parliament at both federal and state levels, through committees on Education, exercise general oversight functions on the sector, as is the case with all other sectors of national development.

NCE

Technical

P lenary

JCCE

Report of the Presidential Task Team on Education, May, 2011 Page 24

B. EDUCATION MANAGEMENT AT THE SYSTEM LEVEL

Overall P icture

System level management of Education in Nigeria is undertaken at the three tiers of government – the Federal Ministry of Education (FME), ministries of Education at the state level (including an education department for the Federal capital…