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Rethinking Nigerian Tertiary Education Policies: Toward Equity and Accessibility

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International /Journal of Multi-Disciplinary No 3, July, 2013
Studies and Sports Research (IJMSRE)

RETHINKING NIGERIAN TERTIARY

EDUCATION POLICIES:
TOWARD EQUITY AND ACCESSIBILITY
By

AYO OKUNDARE, Ph.D

Department of Sport Science and Health Education,
Olabisi Onabanjo University, Ago-Iwoye, Nigeria
Email ayo.okundare@yahoo.com

And

OLUDELE M. SOLAJA
Department of Sociology,
University of Ibadan, Ibadan, Nigeria
Email solaja.mayowa777@yahoo.com

And

GRACE T. SOYEWO
Department of Social Work,
University of Ibadan, Ibadan, Nigeria
Email soyewot@yahoo.com

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ABSTRACT
Nigeria as a country gives much credence to tertiary education as the means for social and
economic mobility, social transformation, as well as the major platform for higher level
workforce development– managerial and technological. To achieve these laudable objectives,
government has given approval to private individuals and organizations to own and manage
private tertiary institutions of learning. This paper examines some of the glitches that accompany
Nigerian tertiary education policies such as high costs, the widening gap between the upper class
and indigent students, the circumvention of standards in the name of profits, among others.
Suggestions made for improvement; include government regulation of tuition fee in both public
and private institutions, mandatory entrepreneurial studies for undergraduates, guide against
gender, religious and academic qualification discrimination, restoration of rigor and commitment
in Nigerian tertiary institutions. The study concluded that for tertiary institutions in Nigeria to
remain self-reliant, self-steering and able to survive in a competitive world; various educational
policies should be effectively institutionalized and operationalized.

Keywords: Nigeria, tertiary education, policy, equity, access, tuition fee, entrepreneurial studies

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INTRODUCTION

Tertiary education policy is very important on national agendas. The widespread recognition that
tertiary education is a major driver of economic competitiveness in an increasingly knowledge-
driven global economy has made tertiary education more important than ever before (World
Bank 1999; Bloom et., al 2006; Özsoy 2008). Nigeria, along with other developing countries has
not relented in efforts to improve on nation‘s education system in spite of bewildering and
constraining economic situation in order to produce skilled manpower capable of effecting
desired societal change via education policies. As a result, numerous tertiary education policies
have been introduced to increase the number of tertiary institutions in the country. The growth in
tertiary institutions is aimed to meet the increased needs and demands on education by the
growing population, economic and social necessities. However, this purpose has not been fully
achieved as more indigent and qualified students are denied access to tertiary education due to
exorbitant school fees, admission politics, religious and gender discrimination both in public and
private institutions. Therefore, this paper advocates rethinking of tertiary education policy for
equity and accessibility rather than encouraging competition and put education in hands of
people who want to make profits from their activities.

In Nigeria, tertiary education is much more diversified and encompasses new types of
institutions such as polytechnics, university colleges, or technological institutes compared to the
situation forty-eight years ago when higher education happened only in five public universities
owned respectively by Northern, Western, and Eastern Regional governments (NPE, 2004). The
diversification of tertiary education was done for a number of reasons:

i. to develop a closer relationship between tertiary education and the external world,
including greater responsiveness to labour market needs;
ii. to enhance social and geographical access to tertiary education;
iii. to provide high-level occupational preparation in a more applied and less theoretical way;
iv. and to accommodate the growing diversity of qualifications and expectations of school
graduates etc.

However, the unprecedented crisis like poor funding, overcrowding and deteriorating physical
facilities, lack of recent library books; education materials, laboratory consumables and
maintenance afflicting the tertiary institutions with apparently no generally acceptable solution
call for the participation of private sectors in provision of university education in Nigeria (Bako,
2002; Adeogun et., al 2009). Thus, a paradigm shifts from conventional public administration to
a New Public Management i.e. deregulation, privatization and commercialization.

Deregulation cum privatization and commercialization is expected to encourage private

participation, institutional autonomy, greater system differentiation, strengthened governance,

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and mechanisms for quality assurance as well as means to reduce government funding higher
education so that some funds will be diverted to other levels of education, following advice from
international organizations (Godwin et., al 2011; Koplian 2002; Faniran 2012). Given the
unstable and consequently unreliable socioeconomic realities in Nigeria, one cannot but wonder
how the children of the low-income earners will have access to affordable tertiary education
under the New Public Management.

By deregulation, tertiary education is no longer a public good rather the sale of knowledge to the
highest bidder (Koplan, 2002). Since, government would no longer be actively involved in the
establishment, owning, funding and management of tertiary institutions. Thus, tertiary education
is undertaken by private individuals or corporate bodies who hope to realize profit from their
activities (Koplan 2003). Accordingly, Godwin, Pase and Iheayichuckwu (2011) observed that
the drives for private sector participation and universities self-sustenance have yielded
insignificant results in terms of number of enrolment, access and provision of quality education
in Nigeria. In the same view, Kaplian (2002) and Okebukola (2002) argued that participation of
private sector in education cannot guarantee the existence of some regulations such as quota
system of admission and the role of National University Commission as a monitoring and control
body with respect to using quota system (or Federal character) as a means of ensuring equity and
access to tertiary education would be crippled. Therefore, the authors argued in line with other
scholars who observed that educational policy like deregulation-cum privatization and
commercialization is non-beneficent and a process of taking education away from the poor
masses; turning tertiary institutions into sacred place reserved for the rich (Kaplian 2002;
Godwin et., al 2011). Against this background, this paper advocates rethinking of tertiary
education policy toward equity and accessibility through government regulating tertiary
education tuition fees rather than encouraging competition and put education in hands of people
who want to make profits from their activities.

CONCEPTUAL CLARIFICATION

Education Defined

Education is the process of acquiring new values and skills for the purpose of effective
functioning in the society. It involves a pedagogical process, which if properly carried out should
lead to the maturing of the person who has received it, to the extent that he is in a position to
think and act meaningfully and in relevant interaction with members of society to their mutual
benefit (Dickson1985). In the views of Adepoju (2007) education is tool for the acquisition of
skills, relevant knowledge and habits for surviving in the changing world. As such in every
society, the education sector stands as a medium through which positive transformation could be
achieved. The place of education in national development cannot be overstressed. Its importance
is stressed in the opening statement of the National policy of education (2004) where it is
maintained that ―education in Nigeria is an instrument ‗par excellence‘ for effecting national

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development‖ In other words, education is not just a medium of knowledge and skill acquisition,
it is also a tool for nation building.

Tertiary Education System in Nigeria

The National Policy on Education (2004) primarily specified tertiary education in Nigeria to
mean universities, polytechnics and colleges of education. The purpose of tertiary education is to
promote knowledge, explore solutions to the country‘s problems and assist the greater society in
achieving its objectives in the field of human and socio-economic development (Adepoju, 2007;
NPE 2004). According to JAMB, as at 2002/2003 session, Nigeria has about twenty-four Federal
Universities, fourteen State Universities, and four National Centres for specialized tertiary
institutions, one military University and two degree-awarding Colleges of Education. As at 2012,
these have grown in size to thirty-six Federal Universities which included the National Open
University as well as the Nigerian Defence Academy, thirty-two State Universities, forty-seven
private Universities, two national centres for specialized tertiary education, seven autonomous
degree awarding Colleges of Education and twenty-five affiliated degree awarding Colleges of
Education. However, this is less than a quarter of the Universities in the United States where
education at tertiary level is better managed (Ifenkwe, 2013). At this point, we shall take a
cursory look at educational policies introduced in Nigeria before and after independent in 1960.

Synopsis of Educational Policies in Nigeria

Educational policy is the modus operandi that government utilized in resolving issues relating to
education in a coherent and realistic manner toward attaining the nation‘s needed development. It
deals with issues like school management, class size, school fees, teaching methods and
materials, training and development, curriculum design, admission and graduation requirements,
salaries of teachers and so on. According to Fabunmi (2005) the first policy on education was in
1925 when the Memorandum on Education Policy in British Tropical Africa was dispatched to
the colonies as the basis for the British colonial education policy. The ordinance was a landmark
in the development of education in Nigeria and an outcome of the recommendations of the 1920
Phelps–Stoke Commission, a missionary inspired and private financed commission which called
for partnership policy between missions and government on Education in Africa and touched on
primary, secondary and adult education with some modifications in the policy in 1935, and 1945
respectively.

Akinyemi (1987) submitted that the colonial educational policy centered on the production of
literate nationals who were required to man positions, which would strengthen the colonial
administration. Thus, our educational institutions few as they were then remain factories for
producing clerks, interpreters, forest guards and sanitary inspectors as no special professional nor
was entrepreneurial skill envisaged in the educational system. Consequently upon the attainment
of independence, it was discovered that this system of education did not meet the aspiration of

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Nigerians; hence the 6-5-4 system which later transform to 6-3-3-4 system, 9-3-3-4 system,
education for all, universal basic education, deregulation, privatization and commercialization
policies was introduced. It must be noted here therefore that this paper will review only the last
three policies in relation to impact on tertiary institutions in Nigeria.

Deregulation of Tertiary Education in Nigeria

Deregulation can be described as an economic reform, a fiscal and monetary policy measures in
which laws or rules of entry and exit into a market weakened, relaxed or totally removed in order
to enhance the competitiveness of economic actors (Adegbemile, 2007). It is the simplification
or dismantling of the legal and governmental restrictions in the operation of market forces,
especially in relation to price-fixing (Ajayi and Ekundayo, 2008; Ojo, 2010). In Nigeria,
deregulation has been extended to sectors such as oil, telecommunications, airlines, electricity
banking and recently, the educational sector. The emergence of deregulation of the education
sector in the last few years could be seen as a response to increased needs and demands on
education by population growth and economic and societal necessities (Alabi, 2006; Faniran
2012). Contrary to what the recent view about deregulation suggests, Fabunmi (2005) and
Koplan (2003) describes deregulation of education as a sale of knowledge to the highest bidder,
which has the effect of lowering standards for the attraction of customers. Hence, as a
deregulated sector, education will become a private enterprise undertaken by private individuals
or corporate bodies that hope to maximize profit from their investment in education.

The visions for deregulation, privatization and commercialization of tertiary education have been
taken by developed and developing countries of the world (Tsai, 2001). In the United States, the
main focus of education deregulation is in the area of parental freedom to control their children‘s
schooling. In Britain, too, deregulation has brought about autonomous schools, with greater
responsibility placed on the schools to determine their own destinies. In Nigerian education
system, deregulation policy primarily emphasizes privatization and commercialization bordering
on funding and accessibility (Denise, 2002 & Alabi 2005). Consequently, private institutions are
licensed to complement governmental efforts at providing tertiary education to the masses.
Today, there are more than fifty (50) private universities in the country (NUC, 2011). However,
deregulation of education could lead to less access, if the effects of increased fees and levies are
not cushioned. As reported by Canadian Federation of Students (2003) as cited in Alabi (2006),
due to deregulation, access to higher education has been severely compromised and student debt
has sky-rocketed. According to the report, students from low-income backgrounds are
disappearing from deregulated programmes such as Law and Medicine. As a result, the average
first-year medical student comes from family whose income is $140,000 up from $80,000 four
years earlier. Hence, increasing fees and levies without any form of assistance to the low-income
group would further reduce access to university education.

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Similarly, Bako (2002) noted that more than 65% of students in public universities are from
below average families in terms of income. More than 50% of these stress out to be able to meet
the financial requirements of the highly subsidized university education. Government had in year
2000 claimed to have subsidized each undergraduate to the tune of between N200, 000 for the
various degree programmes. Deregulation is anti-subsidy. Reliance on bursary awards,
scholarships and loans schemes could not be sustained for long when they were introduced.
There is no guarantee of their being successfully implemented under deregulation. It is important
to note that deregulation encompasses the two programmes of privatization and
commercialization in Nigerian tertiary education.

Commercialization and Privatization of Tertiary Education in Nigeria

One way of understanding the concepts of commercialization and privatization is to differentiate

them. Commercialization is the process at which government makes tertiary education a
profitable business or profit making institutions. That is, to operate as money-making ventures,
source for funds for their activities internally and they are required to efficiently function without
any subvention from the government. Schrum, (2002) opined that:

We are living in a world of commercialization—everything has a price

tag and conspicuous consumption appears to be the way of the western
world. The media and politicians remind us that our educational system
must prepare our students to be competitive in a global economy.
However, to understand commercialization in education, we must place it
in the current social and economic context. ―…The organization of the
school, as it is presently constructed, institutionalizes consumer
materialism‖ (Boyles, 1998, p. 4).

On the other hand, privatization relates to transfer of ownership of enterprises or part of the
equity and other interest from the government and it agencies to private owner(s). To Jerome
(2008), privatization is often employed to describe a range of policy initiatives designed to alter
the mix in ownership and management enterprises away from government in favour of private
sector. In essence, privatization describes a socio-economic re-organization of activities in which
social services that were hitherto provided by government are now transferred to private
investors. That is policy allows the government to divest itself of provision of social services
(Izibili and Aiya, 2007). However, privatization and commercialization may be said to be two
components of deregulation process.

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Fig 1: Diagrammatic Summary of Conceptual Relationships

Deregulation
Simplification of rules and regulations

Privatization Commercialization
Transfer of ownership from Operate as money making ventures
government to private owners

The consideration for privatization and commercialization as components of deregulation

process in Nigeria arose from the advice of the Breton Woods Institution, International Monetary
Fund and the Work Bank to commercialize tertiary education so as to reduce government over
heads expenses and emulate other countries e.g. United State of America and the European
countries where education especially at the tertiary level is not funded by the government
(Akintayo 2003).

Jerome (2008) captured the state of Nigeria financial burden before the wave of privatization
more succinctly:

The estimated 1,500 enterprises accounted for about 57% of aggregate fixed
capital investment and about 66% of formal sector employment….. The
magnitude, scope and persistence of failure of Nigeria‘s public enterprises
(PEs) have been extraordinary. These enterprise require continuous massive
subsidies but deliver only intermittent and substandard services; industrial
enterprises typically operate at 10-35% of capacity… investment in the public
enterprise sector exceeded US$35 billion, compromising US$12.5 billion in
equity, US$10.2 billion in government loans, and another US$11.5 billion in
unspecified and largely unrecorded subventions to various enterprises.

Given the scenario above, and the pressure from international lending organizations, the federal
government rolled out the economic policy of deregulation, privatization and commercialization
with the inauguration of an 11-person technical committee on privatization and
commercialization (TCPC) in 1988. As part of the recommendation to government from
International Monetary Fund and the International Bank for Reconstruction and Development
(now World Bank) was the rationalization and privatization of public enterprises to encourage
competition through liberalization and deregulation. In this regard, the TCPC was directed to
coordinate the rehabilitation of government enterprises and oversee Nigeria‘s privatization
programme in which the actual divestiture commenced in the early months of 1989 (Jerome,
2008). However, the committee encountered numerous challenges such as bureaucratic
bottlenecks, imbalances in the geo-political spread of shareholders‘ distribution, lack of access to

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credit, over-subscription, ideological warfare between the government and those who saw
privatization as imperialist and labour antagonism (Zayyad 2007; Jerome 2008).

Approaches to Enhance Nigerian Tertiary Education Policies

Regulation of Tuition Fee

One of the major problems facing tertiary education in Nigeria is the exorbitant fees charged by
schools (public and private). It was established that there is no state or federal university in
Nigeria that charges less than hundred thousand naira (₦100, 000. 00) for its undergraduate
courses (Godwin et. al 2011). As result of this greater percentage of candidates admitted in
Nigerian universities are from middle and high-income group while children of low income
earner could not have access to university education in Nigeria. This situation will create and
further worsening the problem of elitism in Nigerian education system (Alani, 2005; Utulu
2001). Also, it will hindered the objectives of the National Policy on Education (FRN, 2004),
which stipulates ―the provision of equal access to educational opportunities for all citizens of the
country at the primary, secondary, and tertiary levels.‖ This problem of inequalities is in
consonance with some of the reasons why Jacques (1996) asserted that deregulation of education
must be rejected because:

i. Children‘s rights are our collective responsibility and public education sits at the heart of
democratic public policy;
ii. public education contributes to the reduction of inequality, supports social cohesion and
national progress; and
iii. a neo-liberal economic policy that dictates privatization or semi-privatization of
education and reduces the state‘s financing of or investment in public education
marginalizes those children and adults living in poverty and reduces the quality of public
education. Individuals are not equal in background and it is for this reason that
educational equity at the university level should be given a central role in the philosophy
of egalitarianism.

Similarly, Jibril (1996) observed that female child has opportunity for university education
because of low tuition and government sponsorship. Preference for male education will be
engendered with deregulation of university education. The expected increase in tuition will
influence family decision on who goes to the university among several interested and qualified
children. The odds are against the girl child (Anikweze 1999). However, the issue of exorbitant
tuition fee can be controlled by the government through implementation and enforcement of
tuition fee policy. In formulating this policy, government should involve the participation of
private investors in education at all levels. The policy should stipulate the minimum and
maximum limits of tuition fee in both public and private tertiary institutions. This in a way will
reduce the power of some tertiary institutions that raise their tuition fee easily as well serve as
motivation for indigent students who want to access tertiary education.

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Eradication of Religious and Gender Discrimination

Some private universities in Nigeria has been alleged for determine admission on the basis of
religion. There is also deprivation of students‘ interactions with ideologically diverse groups of
their peers. Corroborating this, Morgan (2002) noted that in United States under deregulation,
white and wealthy parents brought suits with increasing frequency to attain greater control over
the education of their children by curtailing the authority of school officials to control the mix of
students in such schools. What they have not realized is that through these encounters students
can select the values and beliefs that form the core of their adult selves. Those experiences are
essential to learning to function in our increasingly hydrogenous society. However, the issue of
religious and gender discrimination in Nigerian private institutions can be solved through the
establishment of centre for gender and social policy studies in our tertiary institutions. This will
serve as an instrument for institutionalizing gender equity in every aspect of University life in
Nigeria.

Compulsory of Entrepreneurial Studies in Tertiary Institutions

A lot studies have shown that Nigerian tertiary education curriculum left out entrepreneurship
studies. However, considering the changes and dynamism in modern world, it is very important
to inculcate entrepreneurial skills in our young graduates in Nigeria. This will make them more
self-reliable and economically active. Also, there will be decrease in unemployment rate, armed
robbery, hoodlums, drug abuse, prostitution, homeliness, internet fraud, money rituals in Nigeria.
Correspondingly, the European Union Green Paper on Entrepreneurship (2003) sets out a range
of benefits that can be associated with entrepreneurship. These benefits include contributing to
economic growth by job creation and growth; fostering social and economic cohesion
particularly in less developed regions being crucial to competitiveness and productivity
improvements; unlocking personal potential; and satisfying a range of social interests, by making
wealth, jobs and diversity of choice for consumers available.

Entrepreneurial education in tertiary educational has been adopted in countries like United
Kingdom, United State of America, Norway, China, Malaysia, etc. Evidences from these
countries show that there is need to produce more entrepreneurial graduates from higher
education institutions. Therefore, government should make policies that will compulsory the
inclusion of entrepreneurial studies in higher educational curriculum in Nigerian tertiary
institutions.

Guide against Discrimination of Academic Qualifications

There is issue of high discrimination among university degree holders and other academic
qualifications such as polytechnics OND/HND holders both in formal sector (public and private
organizations). This discrimination has change the perception of students towards seeking
admission into polytechnic, technical colleges other higher institutions except university as a

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result of the ambiguous national definition and delineation between and among the tertiary
academic qualifications.

Consequently, recruitment and employment requirements in many work organization emphasize

the preference for candidates with university degree (B.Sc) than other tertiary academic
qualifications. In line with this, the Head of Civil Service Mr Oronsaye at a forum declared that
HND was not equivalent to a university degree because ―it is not the same curriculum‖. Some
companies wouldn‘t employ an HND holder at all, while those that employs put them on low
rank below university degree (B.Sc) counterparts of the same experience. Whereas, the
polytechnic graduates are even better and smarter than some university graduates when place on
occupation‘s professional exams in many instances. The question that comes to mind now, is
there a separate market where the OND/HND holders are to market their acquired skills apart
from the recognized labour market? If the answer is no then the use of different curriculum in
our higher institutions are irrelevant in our contemporary society.

Therefore, efforts should be made to review the curriculum of higher institution to reflect
training of skills demanded by contemporary labour market. Also, adequate steps should be
taken to formulate and implement policies that will reduce this high discrimination and ensure
fairness between universities degree holders and holders of other academic qualification in job
and employment matters.

Restoring Rigor and Commitment

The level of commitment of lecturers to teaching and the dedication of the students to learning
are poor. A lot of studies have shown that most lecturers are no longer dedicated to their job;
they abandon the teaching responsibility in pursuit of some additional pecuniary gains at the
expense of the student career. Even, some lectures do fail to complete the scheme of work and
syllabus before the examination period thereby producing have baked graduates that cannot stand
the test of time to contribute meaningfully to the nation‘s development of the nation. On the
other hand, many students just want to read and pass examination and not interested in
inculcating the knowledge and skill necessary for their personal development.

However, the spirit of rigor is essential if we want our educational policies to regain the glory
and quality of Nigerian tertiary education. The lecturers must be willing to dedicate more time to
their jobs and also the student must possess the mind of learning so as to inculcate the values and
skills of education into their way of life.

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Conclusion

From the foregoing discussion, it can be deduced that the need to foster and strengthen tertiary
education system in Nigeria and to bring them more in line with global good practices, new
tertiary education policies have been initiated in recent times. The introduction of deregulation-
cum privatization and commercialization policies give room for private investors to participate in
Nigerian educational sector. Even though the number of private higher institutions has continued
to increase in recent years, still the number of students clamouring for admission into tertiary
institution is high in Nigeria. Out of which the children of low-income earners constitute the
greater part of the total number. The reason being that education is no longer public goods thus;
private institutions with high tuition fee became the dominant player in the sector. However, for
Nigerian tertiary institutions to compete effectively in an increasingly competitive world there is
constant need for institutionalizing the various education policies initiatives to ensure equity and
access to tertiary education. This will serves as a safeguard against the development of a
particular consciousness of kind that could compromise government‘s resolve ―to defend her
unity, and uphold her honour and glory‖

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