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Financing Primary Education for Quality Assurance in Nigeria: Issues and Challenges

Article Citation: Umar MUHAMMAD and Sanusi SULEIMAN (2023). Financing Primary Education for Quality Assurance in Nigeria: Issues and Challenges. DEGEL: The Journal of the Faculty of Arts and Islamic Studies, Vol. 20, No. 1 & 2. ISSN 0794-9316

FINANCING PRIMARY EDUCATION FOR QUALITY ASSURANCE IN NIGERIA: ISSUES AND CHALLENGES

By

Umar MUHAMMAD and Sanusi SULEIMAN

Abstract

Primary Education is the bedrock and the foundation level in Nigerian educational system. As a result of its importance, there is need to effectively and efficiently financing Primary Schools in order to realize the laudable objectives as enshrined in the National Policy on Education through Quality Assurance. In an attempt to address this, issues like, Primary Education and its objectives, Concept of Funding, Shared Public Funding of Basic Education in Nigeria, Quality Assurance, Requirements for Quality Assurance in Primary Schools, Challenges of Quality Assurance in Primary Schools, Attitudes of Quality Assurance and Some Alternative Methods of Funding Basic Education were discussed. It was concluded that the financial provision from both the Federal and some State governments in Nigeria, has failed to meet up with the demands of this level of education as indicated by its increasing population of children that enroll annually, It is recommended that, Capacity building exercises should be organized for quality assurance agents. An independent professional quality assurance body in primary education should be established to fashion out a comprehensive quality assurance document (in terms of policy),, and finally, Both Federal and State Governments should provide adequate funds by educational institutions in the country by giving it top priority of allocating at least thirty percent (30%) of the total Budget to Education.

Introduction

Primary school education is the initial part of the compulsory, free basic education every Nigerian child must have. It is an essential component of human capital and plays an important role in the economic growth and development of a country. Primary school education helps to increase the number of persons with the skills, experience, and education required for increasing a country’s gross domestic product and standard of living. It is the starting process from childhood to adulthood, and very vital for any enterprise or society that wishes to survive under the stiff challenges of an emerging world (Adebiyi, 2010). Enrollment in schools represents the largest component of the investment in human capital in most society (Schultz, 2002). Empirical evidences on the positive growth effect of human capital seems to be quite strong. Studies of the rates of returns to education attribute a positive value to the rate of returns to primary education (Arif et al, 2011). This means that by acquiring primary education one can increase one’s earnings. If this relation holds true, primary education generates a positive externality and should be subsidized. Secondly, it is often claimed that the presence of financial constraints prevents children from achieving basic education, so that public intervention in primary education will give a larger share of the population access to primary education, leading not only to more growth but also to more equality in the long run. Primary education dictates the pace of the educational growth and progress of a nation, therefore, all issues concerning them should be treated with all necessary attention. takes a look at some of the contemporary hanging issues in primary education in Nigeria, which demand the urgent attention of the government as a major stakeholder in the education industry.

In the modern world, education has come to remain as the bedrock of development in societies. Hence, nations have adopted formal education as a veritable instrument for national development. In this direction, schools have been institutionalized to dispense education at different levels and components. In these schools, teaching and learning take place as teachers and students (learners) are engaged in one form of instructional activity or the other. It is important to note that these instructional activities must not be at variance with the procedures set out for them, and must result in the objectives set out for attainment in the schools. The need then arises to ensure that the quality of instruction in the primary schools is assured. Because there is need for a shift of emphasis particularly in primary education discourse from how much and how many to how well; from more to better and in fact to more of the better (Obanya, 2001), There are number of Issues about Financing and Quality assurance in primary schools which would lead to the attainment of objectives of this important level of education. For example; Curriculum relevance that guides learning experiences and how they are dispensed. Thus, the curriculum impacts directly on the quality of teaching and learning in schools. Infrastructural facilities elements found within the school environment which facilitate its optimal functioning that culminate in the achievement of set goals. Instructional Materials are indispensable materials in the teaching- learning process because they are the media through which instruction is facilitated. Regular Capacity Building Exercise for Primary School Teachers since no system of education may rise above the quality of teachers, it becomes expedient that the capacity of primary school teachers should be built. This exercise would enable them become acquainted with modern ways or means of discharging their professional duties. Teachers hold the key to the success of any educational system. Therefore, for them to properly translate or interpret the curriculum to the understanding and utility of pupils, they must be adequately qualified for the job. It is in this direction that (FRN, 2014:39) recommends that the minimum qualification for entry into the teaching profession should be the Nigeria Certificate in Education (NCE).

Therefore, the focus of this paper is to look at issues that of paramount importance leading to the attainment of the set objectives of primary education in Nigeria and proffer solutions to the challenges through adequate funding to ensure quality assurance.

Primary Education

Primary education is the first level of formal education preceded by early childhood education. At this level, children are prepared for a broad-based education which emphasizes the attainment of permanent and functional literacy, numeracy and effective communication skills. It provides the basis for progressive learning of the child. In Nigeria, primary education is defined as education given in an institution for children aged 6 to 11 plus. Since the rest of the education system is built upon it, the primary level is the key to the success or failure of the whole system. The duration shall be six years (FRN, 2014). Okujagu (2017) likened it to the builder’s foundation, which determines the number of storeys a gigantic building can carry. ‘Foundation’ is primary education and ‘gigantic building’ is the entire system of education. Primary education is a major component of Nigeria’s Universal Basic Education. It is free, compulsory and universal.

At this level of education, the curriculum offerings have been differentiated into several subject areas. These subjects are to be taught using practical, experimental and exploratory methods. The objectives of primary education are as follows:

Objectives of Primary Education

a. Inculcate permanent literacy and numeracy, and ability to communicate effectively.

b. Lay a sound basis for scientific and reflective thinking.

c. Give citizenship education as a basis for effective participation in and contribution to the life of the society.

d. Mould the character and develop sound attitude and morals in the child.

e. Develop in the child the ability to adapt to his changing environment.

f. Give the child opportunities for developing manipulative skills that will enable him to function effectively in the society within the limits of his capacity.

g. Provide the child with basic tools for further educational advancement, including preparation for trades and crafts of the locality (FRN, 2011).

Achievement of these objectives will lay a solid foundation for the next subsequent higher levels of education (i.e secondary and tertiary). The objectives are stated to reflect the three domains of learning: cognitive, affective and psychomotor domains. Funding is a key component of achieving the objectives.

Concept of Funding

Funding according to Ogbonnaya (2012) refers to a sum of money saved or made available for a particular purpose. It could be called money or financial resources. In his view, Adesua, (2013) defines funding as the act of providing resources usually in form of money or other values, such as effort or time, for a project, a person, business or any other private or public institutions. Adesina, (1999) viewed funding as a grant of authority to an agency, department, or unit to incur monthly obligations and to pay for them. It can also be viewed as a catalyst, which accelerates the development of any project. (Ukeje, 2012). Ukeji further stated that funding is an indispensable tool of any organization and it has been a 42 topical issue in Nigeria for a very long time.

Financial management is a very important aspect of management in any organization because it embraces all accounting techniques that will help provide information designed to assist management in planning and controlling the activities of the organization. With regard to the importance of financial school management it would be relevant to quote as Okwori defined financial management as the forecasting, planning, organizing, directing and controlling of all activities relating to the acquisition and application of financial resources of an enterprise in the keeping with the financial objectives (Okwori 2010). Likewise, Ogbonnaya (2013) argued that, the central purpose of financial management whether in government, in business, or individual is the raising of funds and ensure that the funds so mobilized are utilized in effective and efficient manner. As such, financial management is important to determine whether or not the school will meet its objectives (Orlosky 2004). However, its importance can be seen if the runners know how to run. In this paper the headmasters/Headmistress are runners of the school management practice. The headmasters/Headmistress should be acquainted with and implement the core activities of financial management stated above in their schools. The main roles of consideration is clearly outlined on the definition: financial management as the forecasting, planning, organizing, directing and controlling of all activities relating to the acquisition and application of financial resources of an enterprise in the keeping with the financial objectives (Okwori 2006). The principals are responsible bodies to organize implement and run financial affairs their schools.

Shared Public Funding of Basic Education in Nigeria

Funding of education is a concurrent responsibility as contained in the federal constitution of Nigeria (Federal Republic of Nigeria, 1999; Khemani, 2001; Nwoko, 2015). Consequently, the federal, state and local authorities have statutory powers to fund schools within their areas of jurisdiction. The UBE Act of 2004 also provides the framework for shared funding of the UBE among the three levels of government (Steenbergen, Nnodu, Nwachukwu, Nyager, 2016). Within this framework, however, appears to be a disequilibrium in the percentage of money earmarked for educations among the three tiers of government. More so, the notion of concurrent financing of education is a feature of fiscal federal structure in the delivery of education in the country. Following the introduction of the UBE in 1999 (Anaduaka & Okafor, 2013; Salihu & Jamil, 2015), the population of learners has increased significantly, thus bringing huge implications on financing of education on the three tiers of government. Besides, Nigeria has consistently allocated a small percentage from her annual national budget for education. In fact, Nigeria has not been complying with the UNESCO’s 26% benchmark of annual budgetary allocation for education (Ajayi & Ekundayo, 2012).

Estimates of expenditure on education in Nigeria as contained in Hinchliffe (2010) and Ogungbenle and Edogiawerie (2016), and concerns raised in Ajayi and Ayodele (2014), Aina (2007) etc give supportive information regarding underfunding of education in the country. Given the amount of resources Nigeria is endowed with, her national budget for education is a far cry from what other African countries spend per annum on their education. A concomitant effect of this issue finds expression in poor management of schools within the purview of the UBE. There are degradations and shortages in accommodation, staff, staff remuneration, instructional materials, infrastructure etc in several schools across the country. It paints a picture of a builder that decides to put more concrete materials on the elevations than the foundation of a building. Basic education is critical in any educational system worldwide. Nigeria recognizes the strategic position of this level in achieving the purposes of other levels of education. As stated in her National Policy on Education (2014), basic education is key to the success and failure of the secondary and tertiary education. That being the case, there is no amount of money committed to it that can be regarded as a waste or misplaced. The three-pronged mandate of free, compulsory and universal basic education has really increased access to school for quite a number of children from diverse backgrounds nationwide. Available monetary provisions for education unfortunately hinders the UBE from being able to cope with a steady rise in the number of children who are eligible to receive places at school. Limited funds compromise the objectives of UBE and reduces the opportunity for learners to leave school with good outcomes. While the strategy to expand and increase access to education keeps changing, the patterns and attitude of funding education has over time not been reviewed in Nigeria. Much of Nigeria’s educational sector still relies hugely on grants from agencies, fees, donations from charity organizations, community participation, subventions from governments, the UBE intervention fund etc to survive (Oralu & Oladele, 2015; Nwoko, 2015). Revenue from these sources account for the money utilized to manage schools under the UBE scheme. Irregular flow of revenue inherent in the current practice stifle provision of educational services to benefit the learners, consequently creating problems for basic education.

Quality Assurance (QA)

Due to the function of education and the importance attached to it, the world over, there is desired need to ensure that education produces what it is intended for at each stratum of the system. This means that curriculum content and instructional procedures would be improved upon while meticulously implementing the curriculum document in the primary schools. This calls for the mobilization of both human and material resources to determine and sustain, through monitoring and evaluation, quality, standard and outcomes of education.

Quality assurance is a wide ranging concept which covers all matters that individually or collectively influence the quality of products and/or services. The American Heritage Dictionary defines quality assurance as a system of evaluating performance, as in the delivery of services or the quality of products provided to consumers, customers, or patients, (clients). According to Wikipedia (undated) quality assurance is the systematic monitoring and evaluation of the various aspects of a project, service or facility to maximize the probability that minimum standards of the quality are being attained by the production process. In another definition, Ciwar (2015:2) stated that quality assurance is the practice of managing the way goods are produced or services are provided to make sure they are kept at a high standard. In relating quality assurance to primary education, therefore, the author opines that it is the systematic practice of verifying or determining whether the products of primary schools (i.e pupils) actually acquired the knowledge, skills, attitudes and values expected of them at that level via the curriculum offerings i.e both curricular and co-curricula activities). Quality assurance viewed from this perspective would result in qualitative primary education because it is a monitoring and evaluation mechanism put in place to ensure that curriculum and instructional practices are consistent with and leading to the attainment of set objectives of primary education. Therefore, quality assurance is a total and holistic process concerned with ensuring the integrity of an outcome (UBE, 2002).

Requirements for Quality Assurance in Primary Schools

Because there is need for a shift of emphasis in education discourse from how much and how many to how well; from more to better and in fact to more of the better (Obanya, 2001), quality assurance in primary schools requires a number of provisions, and these include:

1. Curriculum Relevance: The curriculum is a document that guides learning experiences and how they are dispensed. Thus, the curriculum impacts directly on the quality of teaching and learning in schools. Hence, there is the need to make it relevant for qualitative education. This would include reviewing the curriculum regularly and updating it to accommodate emergent issues in society. In this way, it would serve the interest, needs and challenges of learners and society at large, as the teacher is better informed about what pupils will learn and how he will teach that.

2. Infrastructural Facilities: This is as essential as the curriculum document. Okujagu and Sokari Adox-Okujagu (2011) stated that school infrastructural facilities are those elements found within the school environment which facilitate its optimal functioning that culminate in the achievement of set goals. These elements include classroom blocks and furniture, health facilities and services, library, laboratory, Information Communication Technology (ICT) facilities, and toilet and water facilities. Infrastructural facilities when provided in primary schools, not only engender effective and efficient running of the schools, but also provide a reasonable amount of comfort for teaching and learning to thrive, thereby assuring quality.

3. Instructional Materials: These are indispensable materials in the teaching- learning process because they are the media through which instruction is facilitated. According to Manga and Mangal (2009), they are associated or concerned with determining and providing appropriate stimuli to the learner to produce certain type of responses for making learning more effective. Generally speaking, instructional materials could be categorized as high and low technology materials that are used to aid the teaching-learning process in any formal educational institution. The characteristics of these materials are such that they assist or help to present the knowledge, skills, attitudes and values to be acquired by a primary school pupil in a qualitative manner.

4. Funding: To ensure quality assurance in primary schools, adequate funding is required. The funds would be utilized in the areas of training and retraining of quality assurance agents at all three tiers of government, providing mobility for these agents to access primary schools, including those located in remote and rural areas, development of viable tools for quality assurance and getting teachers involved in the quality assurance process, among others.

5. Regular Capacity Building Exercise for Primary School Teachers: Obanya (2010) remarked that human development which is a product of capacity building is about creating an environment in which people can develop their full potentials and lead productive creative lives in accord with their needs and interest. Since no system of education may rise above the quality of teachers, it becomes expedient that the capacity of primary school teachers should be built. This exercise would enable them become acquainted with modern ways or means of discharging their professional duties (i.e translating the curriculum document into action). During the capacity building exercises teachers acquire more and new knowledge, skills, positive attitudes and values in their different areas of specialization or the subjects taught in the classrooms. When these are ploughed back into the classroom, they would improve the quality of instruction children receive in primary schools.

6. Qualified Teachers: Teachers hold the key to the success of any educational system. Therefore, for them to properly translate or interpret the curriculum to the understanding and utility of pupils, they must be adequately qualified for the job. It is in this direction that (FRN, 2014:39) recommends that the minimum qualification for entry into the teaching profession should be the Nigeria Certificate in Education (NCE). This is a move to ensure that primary school teachers are qualified, since it is such a teacher that can introduce quality teaching and learning initiatives that could result to quality education. The author adds that the processes leading to acquisition of NCE should be reviewed and strengthened to actually enable teachers dispense education that would lay a solid foundation for the subsequent higher levels of the system.

Challenges and Issues of Quality Assurance in Primary Schools

Quality assurance in primary schools is plagued by a myriad of challenges and these include:

a. Weak Capacity of Quality Assurance Agents: The capacity of personnel entrusted with the responsibility of assuring quality in primary schools and education in general is weak. For this reason, they lack the wherewithal to carry out a qualitative quality assurance exercises that could induce quality in education in the schools. In the three tiers of government, as operated in Nigeria, there are school supervisors and inspectors of education in the Ministries of education, Zonal Universal Basic Education Commission Offices, State Universal Basic Education Boards and Local Government Education Authorities. These agents feel comfortable in their offices to the effect that they hardly remember to go out to the field for their professional assignment. If and when they do, their posture is punitive than being corrective and interactive for better results. There also is a weak synergy and networking among quality assurance agents for data collection and sharing of information and ideas that could improve control and assure quality in the system.

b. Low Learning Outcomes: The outcomes of learning in literacy, numeracy and life skills in primary schools are very low. This is occasioned by inadequate infrastructural facilities and classroom furniture, among others. These inadequacies do not provide any measure of comfort and congenial environment for any form of teaching and learning that could stimulate qualitative education. Perhaps, this condition could be partly responsible for the reason why quality assurance agents are not enthusiastic about going for fieldwork.

c. Lack of Standardized and Uniform Quality Assurance Tools and Reporting Mechanisms: FME (2009), reports that standardized and uniform quality assurance instruments and reporting mechanisms are lacking in our educational system. Hence, quality assurance agencies develop, design and utilize tools that they are favourably disposed to without recourse to the fact that a common curriculum is in use. This in turn yields a reporting mechanism that is also not uniform, hence, creating discrepancies and variances in the feedback from the field. Decision making is therefore hindered given this condition. In addition, some of the tools in use can best be described as archaic, obsolete and out-of-date, hence, they have become ineffective, inefficient and irrelevant for data gathering on quality assurance.

d. Lack of Adequately Qualified Primary School Teachers: This is one major and outstanding challenge of quality assurance in the primary school. A large number of teachers with certificates below the Nigeria Certificate in Education (NCE) still abound in the system (FME, 2009) as FRN (2014) declares that the minimum qualification for entry into the teacher profession shall be the Nigeria Certificate in Education (NCE). Maduewesi in Okujagu (2009), laments that the quality and quantity of teachers produced in Nigeria over the years fall short of national expectation and needs, and this remains a big challenge to the education system. The current crop of primary school teachers is unqualified to the extent of not being sufficiently resourceful and, nationally and globally competitive. Not being globally competitive is even a more serious challenge given the fact that Nigeria aims at becoming one of the 20 strong economies/countries by the year 2020, yet teachers at its foundation level of education are far from being Information and Communication Technology (ICT) compliant. This is a dangerous threat to quality assurance in primary schools.

e. Lack of Fund: Nigeria is a country that is populated by about 150 million people. More than half of this population lives in the rural and remote areas. For access to universal basic education, it is implicit that more primary schools would be located in these rural and remote areas whose terrains are very difficult in most cases. It is public opinion that quality assurance agents (i.e inspectors and supervisors) do not visit these schools as often as they should do due to lack of fund to provide mobility for them to get to these nooks and crannies of the country for quality control exercises. Hence, they only get to schools within their reach and leave the ones unattended to, to imaginations.

Attitude of Quality Assurance Agents

Often times, inspectors and supervisors see themselves as superior officers to the members of staff of the schools visited. In these schools they conduct themselves in a manner that suggests arrogance, intimidation, punitive measures and rigidity. They are, largely, supposed to be friendly and humble as individuals and the practice itself to be interactive and corrective. In fact, they play the role of mentors and should see teachers as mentees whom they should collaborate with to ensure improvement, maintenance, sustenance and assurance of quality in education.

Some Alternative Methods of Funding Basic Education

In Nigeria Education is generally a major driver of socio-economic development across countries of the world. It is quite unfortunate however that excessive attraction to politics tend to reduce the engagement of key actors on agendas that favour increase funding of basic education in Nigeria. Administrative bottlenecks and political influences sometimes raise concerns about misuse, misdirection and/or delay regarding funds meant for basic education from the federation account (FAC) and the universal basic education intervention fund (UBE-IF). The budget for education ought not to experience a deficit. Shortfalls in expenditure creates situations that can demotivate the personnel, thus lead to underperformance within the educational sector. Beyond the traditional ways there are rarely other procedures for providing funds to support basic education in Nigeria. The problems associated with the present (traditional) methods of financing basic education have consequently sparked the desire to search for other sustainable funding opportunities as complements to lessen the pressure on financing basic education via the traditional methods. Work in this direction is effort to encourage change, move provisions forward, raise commitment so as to widen access to finance for basic education in the context. Research within the field of education on the issue also demonstrates more creative and forward thinking activities to develop substitutive approaches that can inform policy and practice on the financing of basic education to advantage the learners. Some of the alternative options available to finance basic education in Nigeria are as follows:

1. Raise Individual Income Tax: Increase income tax particularly for very senior public servant and senior business executives of companies nationwide to about 3%. Revenue generated from this source should be tagged Basic Education Tax (BET) and used to increase funding of state schools existing under the UBE. The additional money can be used to execute capital projects, pay staff salaries and procure instructional materials.

2. Per pupil expenditures: Public expenditures on basic education, for example funding on textbooks, classroom instruction, seats etc, has to be multiplied by the number of pupils registered in each public school.

3. Information and Communication Technology (ICT) centre: Heads of primary and junior secondary schools can use part of the imprest to establish an ICT centre to provide both internal and external services in the school. It should be equipped with computers and accessories. The computer system can serve as a database for holding valuable information for the school and staff. The school can open a website for advertising itself to the world and also generating income through that means e.g getting funds directly from external agencies. The centre can provide typing, bindery and internet services to learners, staff and members of the public for a fee, especially if such services are unofficial. The school heads should see to the maintenance, smooth and effective operation of the centre. Money realized therefrom can be used for the maintenance of the centre.

4. Holding Talent Shows: Learners at this level of education possess diverse talents that can useful in income generation. The schools can organize competitions for singing, dancing, acrobatic displays and call for participation from among the learners. It can be called ‘Basic Talent Show (BTS)’ to mean exhibition of talents by learners in basic education. The schools can request for promotion and sponsorship from banks, celebrities, individuals, agencies etc. For it to attract a wide audience and attention, give it glamour, value and wide media publicity. Winners should emerge from the best competitor and rewarded. Monies realized from these programmes should be used for internal management of the schools. To prevent mismanagement of funds, there should be a bank account to receive payments for that purpose with two signatories including head of the host school and director of school services in the state universal basic education board (SUBEB). These talent shows can take place during the long holidays to prevent disrupting school programmes, and the duration of the shows should not exceed one month.

Six schools, one in each geopolitical zone in the country, can be selected to serve as demonstration centres. These centres should be used to trial the effectiveness of these ideas and to observe the challenges that may arise therefrom in context. A duration of three years should be enough for the pilot study so as to have plenty of time to check how workable these ideas really are and address associated problems. Following that, a policy dialogue can be conducted to provide a policy context for doing large scale and countrywide implementation of the idea can be done to benefit other areas.

Conclusion

The paper concludes that, the financial provision from both the Federal and some State governments in Nigeria, has failed to meet up with the demands of this level of education as indicated by its increasing population of children that enroll annually. There is a need to address some of these difficulties in other to move the nation’s primary education forward on a path to progress and development.

It is the considered optimism of the author that if the underlisted recommendations are brought to bear, qualitative education could be accessed in Nigerian primary schools through quality assurance.

Recommendations

The recommendations are as follows:

a. Both Federal and State Governments should provide adequate funds by educational institutions in the country by giving it top priority of allocating at least thirty percent (30%) of the total Budget to Education

b. Capacity building exercises should be organized for quality assurance agents. This would update them in terms of knowledge and ideas through acquisition of current information in quality assurance. As fallout from these exercises, quality assurance agents should synergize and network for data collection and sharing of information and ideas in that area (i.e quality assurance).

c. Government and other well-meaning stakeholders in education should assist in providing adequate infrastructural facilities and classroom furniture to engender some measure of comfort for both teachers and pupils so as to stimulate an environment that is congenial for qualitative teaching and learning necessary for enthronement of high learning outcomes.

d. Teacher training institutions should intensify effort in producing well-grounded and adequately qualified teachers to teach in primary schools for improved or high academic gains as preparatory for vision 20: 2020. Primary school teachers should be trained to be ICT compliant as to be able to lay a good ICT foundation for their pupils.

e. Funds should be adequately provided for quality assurance practices in terms of field allowances, mobility, development and revision of quality assurance instruments as well as refresher courses for supervisors/ inspectors of Primary schools in their respective LGEAs.

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