RTURN TOREPORTS DESK( CIRCUUTING COPY RESTRICTED

WITHIN TO BE RETURNED TO ARCIVS DION Report No. TO-434bONE WEEKARII IVIO

This report was prepared for use within the Bank and its affiliated organizations.They do not accept responsibility for its accuracy or completeness. The report maynot be published nor may it be quoted as representing their views.

INTERNATIONAL BANK FOR RECONSTRUCTION AND DEVELOPMENT

INTERNATIONAL DEVELOPMENT ASSOCIATION

APPRAISAL OF

EDUCATIONAL PROJECT

NIGERIA

December 16, 1964

Department of Technical Operations

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CURRENCY EQUIVALENTS

LN 1 = U.S. $2.80U.S. $1 = Shillings 7.15U.S. $1000 = 6357

TABLE OF CONTENTS

Page

MAPS OF NIGERIA SHOWING REGIONS ANTD PROPOSED PROJECTS

SUMMARY AND CONCLUSIONS i-i

I. INTRODUCTION .. . . . . . . . . . . . . . . . . . . . . . . 1

Request to the Bank . . . . . . . . . . . . . . . . . . .... 1Social and Economic Background.. . . . . . . . 1

II. THE EDUCATION SYSTEM4 . . . . . . . . . . . . . . . . . . . ................................. 4

Organisation and Administration . . . . . . . . . . . . . 4Primary Education . . . . . . . . . . . . . . .. . . . . 5Secondary Education ..ti ..... .............. 7Teachers and Teacher Training . . . . . . . . . . . . . . 8Technical Education and Vocational Training . . . . . . . 11Higher Education. . . . . . . . . . . . . . . . . . . . . 12

III. FINCIG EDUCATIONU. . . . . . . . . . . . . . . . . .... . 14

National Development Plan, 1962 - 1968. . . . . . . .. . . 14Foreign Assistance for Education. . . . . . . . . . . . . 15Domestic Financing of Education . . . . . . . . . . . . . 15Federal Government Grants for Bducation . . . . . . . . . 16Regional Expenditures ... ......... .... 16Specific Regional Problems . . *. . . .. . .. . . . . 16Local authorities ............... 17The Voluntary Agencies. . . . . . . 18Grants-in-Aid Regulations . . . . . . . . . . . . . . . . 18School Fees . . . . . . . . . .. ... . . . .. 19

IV. THE PROJECT . . . .. . . . . . . . . . . . . . . 20

Secondary Education. . . . . . . . ... . . ... . . . 21Technical Education and Vocational Training . . . . . . . 23Teacher- Traini-ng ... . .... . . . . . . 24Staff Housing and Boarding Facilities.. . . 26

V. SCHOOL CONSTRPCTION . . . . . . . . . . . . . . . . . . . . 28

VI. CONCLUSION;A.ND -IzuONMIENDATIONS . . . . . . . . . . . . . . 30

ANNE}ES - See pages 2 and 3.

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ANNEXES

I. Primary and Secondary School Enrolment, 1962, Nligeria. 4 Charts.

Chart 1 - Educational Pyramid of Primary and Secondary SchoolPupils, 1962. Federal Territory of Lagos, Nigeria.

Chart 2 - Educational Pyramid of Primary and Secondary SchoolPupils, 1962. Western including Mid-Western Nigeria.

Chart 3 - Educational Pyramid of Primary and Secondary SchoolPupils, 1962. Eastern Nigeria.

Chart 4 - Educational Pyramid of Primary and Secondary SchoolPupils, 1962. Northern Nigeria.

II. Organization Chart, Federal Ministry of Education, Nigeria.

III - A - Technical Education and Vocational Training. Student enrolmentin full-time, part-time day and evening courses at technicalinstitutes, Session 1963/6h.

- B - at trade centers.

IV. Technical Training/Trade Centers - Present and Projected Enrolment.

V. Trade Training in Industry, 1963.

VI. Table A - University Student Enrolment as at October, 1962.Table B - University Student Enrolment, 1967-1968.

VII. Manpower Board Survey. Estimated Future Needs for TeachingStaff, 1963-1968. Technical Institutes and Trade Centers.

VIII. Northern Nigeria. Secondary School Expansion, 1964-1968, underthe Proposed Project.

IX. Financial Tables of Expenditure on Education:

Table 1 - Distribution by Region of Government Expenditure onEducation. Average Annual Expenditures during 1959/60 -1963/64.

Table 2 - Planned Capital Expenditures for Education underDevelopment Plan 1962/63 - 1967/68.

Table 3 - Federal Government: CaDital Expenditures on Education.

Table 4 - Northern Nigeria: Capital Expenditures on Education.

Table 5 - Western including Mid-Westerm Nigeria: Capital Expenditureson Education.

Table 6 - Easterm Nigeria: Capital Expenditures on Education.

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Table 7 - Federal Government: Recurrent Expenditures on Education.

Table 8 - Northern Nigeria: Recurrent Expenditures on Education.

Table 9 - Western including Mid-Western Nigeria: Recurrentexpenditures on Education.

Table 10- Eastern Nigeria: Recurrent Expenditures on Education.

X. Items of the Proposed Project, with costs, by Region. Also fourSunmaries of Project:

X-(l) - Federal Territory of Lagos, Nigeria.X-(2) - Westem Nigeria.X-(3) - Mid-Westem Nigeria.X-(4) - Eastem Nigeria.X-(5) - Northern Nigeria.

Annex X, Summary 1 - Sumnmary by Kind of Expenditure.Summary 2 - Summary by Region.Surmary 3 - Summary by Type of Training.Summary 4l - Summary by Governing Authority.

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SUMMARY

i. The Nigerian Government has made a request to Bank/IDA for an IDAdevelopment credit to assist in financing the capital cost of certain edu-cation projects of high priority.

ii. A preliminary Bank mission to Nigeria prepared a tentative listof educational projects which was later passed to the Regions for theircomments as to whether they would accept the list, with possible amendments,as constituting their request to the Bank. The list was accepted and there-after constituted the application submitted by Nigeria.

iii. An education appraisal mission was in Nigeria from November 13 toDecember 21, 1963, and visited all Regions to study the education system andthe items of the project in the application.

iv. The items of the project identified for possible financing pertainto the construction and equipment of new teacher training and technicalschools, the expansion of existing grammar and technical schools, the pro-vision of facilities for science teaching and of workshops for manual trainingin secondary schools which have so far been too academic.

v. The proposed project will increase pupil enrolment b 11,000 insecondary schools690 in teacher training and 5,000 in trade trainming. Althe proposed projects should be complete during--te-perrodI1962Z-T9'69;.'.-.

vi. In appraising the proposed project, items considered unessentialfor the proper functioning of schools have been excised. Proposed spaceaccommodation wias contested wherever necessary and reduced to acceptablelimits. Dormitory accommodation was accepted but only to the essentiallimit after the need was conclusively established. Staff housing has beenreduced to the barest essential required for the proper supervision of boardinginstitutions and for the need of new expatriate staff who, without the pro-vision of housing, cannot be attracted to Nigeria.

vii. The additional teaching and instructional staff required for thenew facilities will be found from many sources, such as the new advancedteacher training colleges, university expansion programs, an I.L.0. workshopinstructor training course and a proposed national technical teacher trainingcollege. Considerable reliance on expatriate teachers and instructors mustcontinue for some time to come; but it is considered that the need will bematched by the effort and that sufficient teachers will be found to staff theproposed expansion in facilities.

viii. The estimated cost of the proposed project is about $30 millionequivalent, of which about $2.11 million is for the Federal Territory projects,$2.89 million for Western, $1.57 million for Mid-Western, $3.96 million forEastern, and $19.47 million for Northern Nigeria. These figures include

- ii -

consultant fees and contingencies which together amount to about 15% of theoriginal costs. This distribution reflects only the Regions' urgent needsand is in no way related to the proportion of the population or to any otherconsideration. The foreign exchange component amounts to about $11 million,which is about 37% of the total cost of the proposed project.

ix. In view of Nigeria's need for external aid and the evidentnecessity for financial assistance to implement the items of the projectwhich have been identified as of the highest priority in the educationsector, the proposed IDA development credit of about $20 million would covertwo-thirds of the total cost of the project.

x. The balance of the total cost of the project, not covered by theproposed IDA credit, should be provided by the Regional Governments and theFederal Territory of Lagos. An undertaking to this effect has already beengiven.

xi. The additional annual recurrent costs which the proposed projectwill create are estimated to be: Federal $328,000; Western $927,000;Mid-Western $566,000; Eastern $922,000; Northern $4.62 million; a total of$7.36 million. Provision of these sums is within the capacity of theFederal and Regional Governments.

xii. There is no shortage of private architects, engineers or contractorsin Nigeria, but technical staff in the Ministries of Public Works is beingconstantly reduced through resignation and other reasons. Trained Nigerianstaff is not becoming available in sufficient numbers to fill the gap. Withthis attrition in technical staff, government construction programs cannotbe implemented adequately or supervised. The Federal and Regional Govern-ments have therefore agreed that a firm of consultants should be engaged tosupervise the preparation of tenders, control the award of contracts, super-vise the work and authorize payment, in addition to checking plans and draw-ings and, if and when required, assisting in their preparation.

I. INTRODUCTION

Request to the Bank

1. Arising out of the visit of the Bank Economic Mission to Nigeria in1963 and in the light of the findings of the 1962 Unesco Educational Invest-ments Programming Mission to Nigeria, a provisional list of educational pro-jects of high priority, likely to qualify for consideration for Bank and/orIDA assistance, was drawn up. The list was forwarded to the Nigerian Federaland Regional Governments for their views and it was later agreed that it shouldconstitute the Government's official request to Bank/IDA.

2. In conformity with this request, a Bank/IDA education appraisalmission visited the country between November 13 and December 21, 1963, toidentify projects of high priority for possible financing by Bank and/or IDA.The mission visited the Federal Territory of Lagos and each of the fourRegions to study the educational situation in general and particularly theitems of the project proposed in the application. Discussions were heldwith officials in the Regional Ministries of Education, of Finance, ofPlanning and of Public Works. Contacts were made with the British HighCommission, U.S. AID, and with embassies whose governments envisage financingeducational projects bi-laterally. Meetings were also held with managersof industrial concerns to gauge, to the extent possible, their need fortrained personnel. Contacts were also made with Voluntary Agencies in allRegions to discuss their contributions to education and tolearn their futureplans. Primary, secondary, technical and teacher training schools werevisited. This report is based on these contacts, discussions, visits andfindings of the mission.

Social and Economic Background

3. The Federal Republic of Nigeria became an independent sovereignstate in 1960 and is today a Republic within the British Commonwealth. Itlies in the tropical rain forest and Guinea savannah zones of West Africa.With an area of 357,000 square miles and, according to the 1963 census, apopulation of 56 million, it is the largest state in Africa. Apart fromcities like Lagos and Ibadan, population density is low and, because theymust serve such a large catchment area, most secondary schools must haveboarding facilities.

4. Politically, Nigeria is divided into North, East, West and Mid-Westwhich, together with Lagos, fzrm a Federation in which each enjoys a widemeasure of autonomy. Each has its own house of representatives with aresponsible cabinet and controls its own budget. At the Federal level, theRegions participate in the Federal House of Representatives, each in pro-portion to its population. The country, despite occasional political andparty strife, enjoys a degree of stability not always encountered in emergingcountries.

5. The largest region is the North which is peopled mainly by MoslemHausa, Fulani and Kanuri tribes who have retained much of their originalculture. The three southern regions have been much more exposed to foreigninfluences. The East is the most densely populated, largely by Ibos;

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the WJest is mostly peopled by town-dwelling Yorubas; and the new Mid-Westcontains the former minority groups of the West - Edos, Urhobos and Ibos.After the M4oslems in the North, the Christians - Catholics and Protestants -in the southern regions form the next largest group. Pagans, still largein number, form the third group.

6. Regionalism and tribalism remain potent factors, affecting politics,administration and employment. In politics, parties and party alignmentsare based on regional and tribal loyalties. In administration, regionalismsometimes causes opposition to Federal decisions and directives. Itreduces co-ordination between the Federal and Regional administrations andthereby affects efficiency and economy. In general, however, the NigerianCivil Service appears to work hard and efficiently. In regard to employment,the North, with a shortage of teachers, will not offer employment to teachersfrom the West, where there is a surplus, and Mid-Westerners are not welcomein the West. Tribal links also influence employment. Hence, there islimited mobility of labor throughout Nigeria as a whole and training programsmust be geared to regional needs. Strong family ties also exist and compelsupport for indigent kinsmen, thus disguising to some extent unemployment andunderemployment.

7. The economy is based mainly on agriculture. The land, thoughvarying in productivity, has tremendous potentialities for development.Agriculture provides about one-half of the GDP, supports some three-quartersof the population and supplies 80% of the country's exports. How best toexploit these agricultural resources is not yet fully known; productiontechniques and productivity need improvement to take fuller advantage of thepotential for increased output. Agriculture is fairly well diversifiednationally but less so regionally, with palm products in the East and West,timber and rubber in the Mid-West, cotton and groundnuts in the North andcocoa in the West. Mineral resources are also available, but the country'sagricultural and natural resources have yet to be fully exploited and so theper-capita income is still about $84. Industry is in its infancy but progressis gradually becoming felt as evidenced by the establishment during the lastfour years of 130 new industrial undertakings. Prospects for further indus-trialization are good as Nigeria does not lack minerals, oil or agriculturalraw materials. It has a large population for providing the necessary man-power and an extensive domestic market. The labor force is industrious,intelligent and adaptable, but trained manpower at all levels is scarce.Aside from the shortage of funds, this scarcity of trained manpower may beconsidered as the most serious bottleneck in the economic development of Nigeria.

8. The Bank/IDA educational appraisal mission was not the first to studythe educational needs of Nigeria. The Ashby Mission (1960) though primarilyconcerned with Nigeria's future need for high-level manpower, touched on otherlevels of education and made many valuable recommendations. Later, a UnescoEducational Investment Programming Mission (1962) examined the situation furtherand included a study of educational projects and their state of readiness forfinancing by external sources. Reports by other commissions on regionalproblems of education or technical education are also available, including arecent survey by the Nigerian National Manpower Board.

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9. The National Manpower Board (NOMB) was formed in 1962 to assesspresent and future needs for high-level manpower in the public and privatesectors, to facilitate planning by Federal and Regional Governments aswell as by private employers and to assist in planning courses and enrol-ment at universities, technical institutes and trade centers. Its mostrecent survey covers the period 1963 - 1968. Based on returns from allprivate and Government employment, it covers persons from the highestprofessional qualifications to craftsmen, i.e., all those needing specializedtraining. The report has used a full-employment objective as a basis forforecasting future manpower requirements, arguing that

(i) the National Development Plan takes account only of thepublic sector;

(ii) the returns from the private sector are too conservative;(iii) unemployment levels must not wvorsen.

These arguments indicate that forecasts may be optimistic rather than real-istic. They estimate a three-fold increase in high and intermediate levelcategories and a five-fold increase in other categories. These figures,it is considered, are unlikely to be attained by 1968. However, the in-creased output of trained manpower arising from the proposed project fallsso far short of the NMB forecasts that no lack of employment opportunitiesis anticipated for those who will complete courses in the new and expandedfacilities proposed in this report.

10. The Nigerian educational system is already receiving assistancefrom a number of governments, foundations and church groups in the form ofcapital aid for schools and equipment, research workers and teachers. Donorsinclude the governments of the United Kingdom, the United States and Canada;also Unesco, ILO, FAO and the Ford Foundation. Sweden has also indicatedan interest.

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II. THE EDUCATION SYSTEM

General

11. Education in Nigeria presents varying degrees of achievement.It is provided by the Federal and Regional Governments, local educationauthorities and various missionary bodies and other voluntary agencies.While Western Nigeria, including the present Mid-Wlest, the Easterm andthe Federal Territory of Lagos show enrolment as a high percentage of theappropriate age group, Northern Nigeria continues to lag considerablybehind. The exclusion of missionary activities is one reason, the other isthat the Northern Region has always been less well endowed financially.The missionaries, mostly of British origin, introduced an education systempatterned along English lines with English as the medium of instruction andmore inclined to arts than to sciences and still less to technical training.Ministries of Education have reduced the imbalance by opening technicalschools at various levels and by attempting to emphasize the sciences.

(a) Organization and administration

12. The pattern is a broad base of primary education (Annex I,Charts1-4) followed by secondary education for the few, which leads into highereducation either at university or technical college level as shown below.

Enrolment Figures 1962

SECONDARY HIGHDRGrammar & University

YEAR PRI4ARY Modern Technical & Other

1958 2,Sh4,701 85,002 3,275 1,8061959 2,775,938 115,586 4,o65 2,1121960 2,912,618 135,36h 5,037 2,5h51961 2,803,836 168,238 5,833 3,1281962 2,835,120 185,790 Not available 3,744

13. The Federal Ministry of Education provides primary, secondary andtechnical education and teacher training within its own territory, andsecondly, although it has no jurisdiction over regional educational systems,irfluences and co-ordinates federal and regional educational activities soas to maintain standards and secure some degree of uniformity. The FederalMinister and his Parliamentary Secretary are political appointees. TheChief Administrative Officer, the Permanent Secretary, who is also theFederal Adviser on Education, is assisted by senior officers in charge ofdivisions of operations and budget, development and planning, organizationand inspection and scholastic services (Annex II). The DeIputy PermanentSecretary for Finance and Establishment deals with estimates and budgetsand maintains close liaison with the Federal Mlinistry of Finance. ChiefEducation Officers head the Development Section which deals with forwardplanning and projection, statistics and school buildings and the ProfessionalDivision which deals with organization and inspection. In the latter

Division are the advisers on teacher training and on secondary, technical,higher and adult education. A Scholastic Services Division supervisesschool libraries, visual aids, examinations, student counselling, welfareand scholarships. The Bureau for External Aid for Education co-ordinatesnatters concerning overseas aid. Regional Ministries of Education havefull jurisdiction over all branches of their educational systems eventhough partly financed by the central Treasury. They are similar in organi-zation to those of the Federal Ministry. The Mid-West, created in August,1963, has a governmental machinery which is still in embryo. In all Regionsinspection of schools is undertaken by officers of the Inspectorate atMinistry headquarters and also by provincial inspectors responsible for schoolswithin their area.

14. With the exception of the North, which still has many expatriateofficers at Ministry headquarters, the Federal and the other RegionalMinistries of Education are staffed by Nigerians who appear both competentand hardworking. However, need exists for greater co-ordination betweenRegional Ministries of Education and Public Works; and also betweenMinistries of Education, Economic Development or Planning, Finance andthe National Manpower Board.

15. Voluntary Agencies. During the latter half of the 19th CenturyProtestants and Roman Catholics established missions in many parts, usuallyerecting the first schools. For their first 50 years they had to rely almostentirely on overseas funds, but government later provided grants-in-aid whichpermitted considerable expansion. During this latter period, other types ofschools were founded by local communities and by enterprising educationistsand business men. Voluntary Agencies' primary and secondary schools andteacher training colleges exist in some profusion in the West, Mid-West andEast but are fewer in the North where Moslems barred the mass entry ofChristian missions for many years and where they have multiplied only re-cently. Local education authorities are appointed by provincial authoritiesto build and oversee primary and secondary schools, deriving funds from localrates and receiving grants-in-aid under the same conditions of financialassistance as Voluntary Agencies' schools. It should be added that thevarious governments propose as a long-range objective to reduce VoluntaryAgencies' participation in education and to increase the number of schoolsoperated by local authorities.

(b) Primary Education

16. After independence, the East and West governments committed them-selves to a policy of universal primary education. The West went even fartherin making elementary education free for all. A high percentage of theregional recurrent total budget, over 40%, is now spent on education withalmost 65%, of that appropriation for primary education. Little money is leftfor the higher levels of schooling, but primary education in Western Nigeriahas now been reduced from eight to six years.

17. The length of primary education varies between the Regions. TheNorth seems to have settled on seven years; the West, Mid-West and the East

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now have six years. The Federal Territory adheres temporarily to the eight-year system but may soon adopt six years. Figures of school enrolment, notusually available until one or two years after the closing of the relevantyear, are quoted below for 1962:

(No. of children in all Primary Schools) Percentage ofRegion Boys Girls Total Girls to Boys

Lagos 49,817 49,694 99,511 99.8%North 262,083 97,851 359,934 37.3%East 774,610 491,956 1,266,566 63,5%West (incl.Mid-West) 656,651 452,458 1,109,109 68.9%

1,743,161 1,091,959 2,835,120 62.6%

The number of girls is always below that of boys in developing countries andthe ratios shown above, with the exception of the North, are consideredsatisfactory.

18. For universal primary education, the number of children of schoolage is usually estimated at a minimum of 2.5% of the total population forevery year of schooling. On this basis, the total number of children ofprimary school age should be 20%, 17.5%, 15% and 15% of the total populationfor Lagos, the North, East and West, respectively. Using the most recentcensus figures and the percentages just quoted, the following table showsthe degree of universal. primary education so far achieved:

% of total inattendance to

Children of total of pri-Primary Actual Number mary school

Region Population School Age in attendance age

Lagos 675,352 135,070 99,511 73.7%North 29,777,986 5,211,147 359,934 6.9%East 12,388,646 1,858,297 1,266,566 68.15%West (incl.Mid-West) 12,811,837 1,921,775 l,o09,log 57.71%

Totals 55,653,821 9,126,289 2,835,120 31.1%

19. The primary school curriculum is intended to remove illiteracypermanently and to give a measure of useful general education. English isthe medium of instruction but local dialects receive sufficient attentionwithout wasteful exaggeration. On completion of his primary education, achild can read English with tolerable ease and communicate to a reasonablestandard. In arithmetic the subject matter taught leads to a good groundingin the basic operations. In social studies, children learn about theirenvironment, their owin and a general view of world history. In sciences,nature study and agriculture including practical work appear in the curriculum.Handicrafts and domestic science are also taught and, in a few schools, wood-work, metalwork and drawing. On the whole, the present curriculum is satis-factory, but some need for revision is felt including more attention to thoseoften neglected activities such as gardening and handicrafts.

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20. School attendance in the primary and secondary cycles is satisfactoryand reflects the parents' and children's zeal for education. Repeaters arefew in number; automatic promotion of students is the general rule in allRegions. The enrolment pyramids (Annex I, Charts 1-4) show what might bemistaken for excessive "dropping-outt" of students. Reasons for the decreasein the number of students from one to the next higher class are twofold: theexpansion of schooling facilities which, starting from the lowest class,takes six years to reach the highest; and the existence of a large number ofschools which stop short of the full cycle. Taking 151 schools wherehigher classes have existed for many years, the number of children inprimary grade 1 was found to be 6,500 in 1960. Of these, 6,340 childrenappeared in grade 2 in 1961, 6,130 in grade 3 in 1962, and 6,030 in grade 3in 1963. The "wastage" between grades 1 and 4 is about 7% which is notexcessive. Similarly, by taking 72 other schools, their enrolment in grade5 was 2,990 children in 1961. For grades 6 and 7 in 1962 and 1963, the numberof children was found to be 2,980 and 2,960, respectively. The wastagebetween grades 5 and 7 for this group is less than 1%.

(c) Secondary education

21. Secondary education in all regions is of 5 years, duration and Vleads to the West African School Certificate (WASC). A general course isprescribed for Forms I - III. In Forms IV and V students can elect subjectsfor specialization either from the sciences and mathematics groups or fromliterary subjects. The curriculum is based on the English system ofsecondary education. Sufficient attention is given to English which isgreatly enhanced because other subjects are taught through that medium.Mathematics include algebra and geometry and reach an acceptable level.Sciences, biology, physics and chemistry are treated in a general way in thefirst three years and more deeoly in the higher classes for those who desireto specialize. Adequate facilities for science teaching are not availablein all schools with the result that many prepare only for literary subjects.Social sciences, which comprise history and geography, are general in natureand cover a wide field. Candidates for 1.ASCn Q_tte certain_cmEp_Losrysubjects ichoo,ng the rest from a wide range of electives which includemectraHfical drawing and some handicrafts. Th e examln iss atisf 2~ th as s_raze-sb u TguaJ4 oruiesity* eXytwo more years are spent in the VIth form where students specialize in theirchoi---Meo- ars.Th scodaycriticised as not entirely suited to Nigerian life and there is need forrevision. There are com p un erete tu e.to un N i E.Anothe-rweakness-in-th ulum is the lack racticl wo. gmetalwork and woodwork. Although the need for manual trainin as anintegral s ecognpractice few schoolshave iaciElities or staff -to--2 _ImzL~i

22. The proportion of the school age population attending secondary /schools in Nigeria is below the figures in other developed and developingcountries as shown in the following table:

-8

% enrolment % enrolmentto school age to school age

Country population Country population

Ghana 16.3 Nigeria 3.6 (overall figure)Tunisia 14.1 Federal 10.1U.A.R. 17.0 North 0.3Pakistan 18.6 East 2.40Turkey 14.4 West (incl.Mid-West) 2.1Canada 48.7U.S.A. 68.9

Excluding enrolments in teacher training and technical schools, the followingtable shows the progress so far achieved in secondary education:

Secondary educationAs a % of total

Region Boys Girls Total Primary enrolment

Lagos 4,202 2,159 6,361 6.39%North 7,060 936 7,996 2.22%East 23,091 4,532 27,623 2.18%West(incl.Mid-West) 102,720 41,091 143,811 12.97%

Totals 137,073 48,718 185,791 6.55%

Of the above totals, only 2,554h students are in VIth form. Nearly all whopass the final VIth form examination find their way into university. Mostdeveloping countries aim to have total secondary school enrolment at 20% ofthe total primary. The last column of the table given above shows thatNigeria is far below this aim, its shortage of secondary students constitutingone of the bottlenecks in education and in development. Expansion of second-ary education including the VIth form is, therefore, an urgent need in Nigeria.

23. Primary pupils are exclusively in day schools; the overwhelming v/majority of secondary school students are in boarding schools because theyare scattered over a wide area, beyond commuting distance from their homes.Attempts to reduce the number of boarders and increase day-students' facilitieshave met with limited success. For a long time to come any expansion ofsecondary education must take into account the provision of boarding facilities

24. Secondary schools, particularly in Northern Nigeria, have so farbeen dependent to a great extent on expatriate staff recruited from theUnited Kingdom. A considerable number, likely to increase appreciably in thenear future, is now provided by the U.S. Peace Corps. Canada also providesa small number. But expatriates and volunteers only stay for a short time.This dependence on foreign staff will continue until Nigerian secondaryschool teachers become available in sufficient numbers.

(d) Teachers and teacher training

25. Teacher training institutions are operated by Governments or by

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Voluntary Agencies; local education authorities play only a minor part.Primary and secondary schools have at oresent non-graduate teachers inGrades I, II and III. But Grade III teachers and their training collegesare disappearing because the trainees are recruited immediately after theprimary cycle which does not give them an adequate academic background.Grade I teachers are in secondary schools, in training colleges and posts ofspecial responsibility in primary schools. Graduate teachers, trained inuniversity Departments of Education, are appointed in the grade of EducationOfficer. Trade and technical school staffs occupy special grades. Fringebenefits, also enjoyed by other government employees, include the provisionof furnished housing at uneconomic rents, availability of building loans atlow interest and free medical services.

26. There is a continuing shortage of trained teachers at all levels. V'Many secondary, technical and teacher training schools are below establish-ment. An acute shortage is for Nigerian teachers of science, mathematicsand trade and technical subjects; but rising enrolment in universities,increased provision of places in advanced teacher training colleges and theproposed .National Technical Teacher Training College should provide relief.Dependence upon expatriate personnel varies between Regions. In the North,it will continue for some time to come. In the other Regions, Nigeriansoccupy nearly all positions of responsibility and give confidence in theirability.

27. In teacher training the plan is to give trainees a good backgroundof general education in addition to the elements of pedagogy, psychology,methods of teaching and sufficient practical training in teaching. Primaryschool staff training is conducted at two levels; Grade IIT teacher traineesusually recruited after completion of the primary cycle and Grade II recruitedafter completion of at least three, or in some cases, five years of secondaryeducation. Graduates of Grade III teacher training schools may also beadmitted to Grade II schools for further training. The duration of theGrade II course is two years, except in the North where it is of three years?duration. For staffing lower secondary classes, Grade I advanced teachertraining colleges admit trainees after completion of five years of secondaryschool. Grade IT teachers are also admitted. The duration of the course isthree years. For higher secondary classes the aim is to employ universitygraduates with or without teacher training, but it is not uncommon to findGrade I teachers in these classes.

28. Primary school classes contain varying numbers of pupils but 30students per class is the rule for secondary schools. While this figurepermits efficient teaching, it is considered that a class enrolment of 36 canstill be satisfactory and allow a 20% increase in enrolment with very littleincrease in expenditure. Indeed, 40 pupils per class in the lowver secondarycould well be allowed in developing countries.

29. Teacher training facilities exist in varying degrees in Nigeria.The number of trainees by Region and level is shown in the following table:

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Teacher Training, 1962

Region Grade III Grade II Grade I TOTAL

Lagos 414 77 145 636North 4,958 l,225 137 6,320East 6,628 4,472 --- 11,100West (incl.Mid-West) 6,314 6,218 437 12,969

Totals 18,314 11,992 719 31,025

The yearly output of graduates is estimated at 13,500; by no means an insigni-ficant figure. According to latest statistics (1962), the number of teachersemployed in the whole of Nigeria is 96,965 in the primary and 9,125 in thesecondary. The following tables show their distribution by Region and byqualifications:

Stu- Stu-Number of teachers dents dents

per perfRegion Primary Teacher Secondary Teacher

Lagos 3,010 33.1 630 10.1North 11,542 31.2 439 18.2East 42,264 30.0 1,465 18.8West (incl.Nid-West) 40,149 27.6 6,591 21.8

Totals 96,965 29.2 9,125* 20.4

Distribution of teachers by qualification:

PRMARY SECONDARYRegion Qualified Underqualified Qualified Underqualified

Lagos 1,982 1,028 240 390North 6,636 4,906 329 110East 17,302 24,962 1,040 425West (incl.fIid-West) 14,827 25,322 4,765 1,826

Totals 40,747 56,218 6,374 2,751

Underqualificattion of teachers is not interpreted uniformly in all Regions.In some cases it retdrs to insufficient training, in others it includes in-adequate academic background and it may be a combination of both.

* - Including modern schools.

(e) Technical education and vocational training

30. The Federal Adviser on Technical Education is in charge in theFederal Territory. He also advises on development throughout Nigeria. EachRegion, except the Mid-West, has an officer at its Ministry of Educationresponsible for technical education. A fairly common policy throughoutNigeria governs the recruitment of students, staffing, curricula andexaminations.

31. Sub-orofessional or technician training (Annex III-A) is providedat Yaba College of Technology in the Federal Territory; Kaduna TechnicalInstitute in the North; Ibadan Technical College in the West; and at EnuguTechnical Institute in the East. All provide full-time 2-year courses incivil, mechanical and electrical engineering, leading to City and Guildsof London Institute (C.G.L.I.) Ordinary Certificates. Additionally, Yabaoffers a further 2-year course leading to the C.G.L.I. Higher Certificate,and has full-time courses in secretarial work, accountancy, art and printingand part-time day and evening courses in art, printing, laboratory technician'swork, commercial subjects and engineering; Kaduna has part-time courses foragricultural, veterinary and textiles technicians and in commercial subjects;Ibadan, now changing from C.G.L.I. syllabuses to internal curricula and quali-fications, includes a course in town planning; and Enugu adds C.G.L.I. full-time courses in telecommunications and a number of evening classes. Entrantsare required to hold the West African School Certificate or the BritishGeneral Certificate of Education (G.C.E.) with passes in appropriate subjects;promising students from trade centerS are also accepted and there is now asufficient number of applicants for all courses. The majority of studentsare sponsored, being attached to a firm or government department when theycommence their studies, have their tuition fees paid, receive pay and vacationtraining during the course and have employment waiting on completion.

32. Trade training (Annex III-B) is available at Yaba Trade Center inFederal Territory; at Kano, Bukuru and Ilorin in the North; at Ijebu-Ode,Oshogbo, Owo and Oyo in the West; Sapele in the Mid-West; and at Enugu TradeCenter in the East. All offer 3-year full-time C.G.L.I. courses in four totwelve of the following trades: agricultural mechanic, blacksmith, bricklayer,cabinet maker, carpenter, fitter/machinist, electrician, instrument mechanic,motor body builder, motor mechanic, painter/decorator, plumber, sheetmetalworker and welder. In some cases, curricula are too long and unsuited toNigerian needs, but the National Development Plan for Technical Education isintended to amend these. There are always many more applicants than placesavailable, e.g., in 1963, 10,000 applied for 180 places at Yaba. The standardof work in general is high and employment prospects are satisfactory.Craft or trade schools give a 2-year general education course followed by aone-year course in basic manual skills to prepare pupils for entry to tradecenters or for employment as semi-skilled workers.

33. Instructors number about 480 at present, which represents aboutthree-quarters of the present required figure of 600. The total requirementwill be about 1,300 by 1970. To meet some of the need, an ILO trainingscheme for 25 students is operating at Yaba, shortly to expand to 120 students;and a National Technical Teacher Training College is proposed, to have an out-

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turn of 200 teachers per annum in Phase I, rising to 500 p.a. in Phase II.A useful reduction in instructor employment could be gained if all Regionswould follow the West in having classes of 18 students, as against 6-12student groups found in other Regions. Expatriates will be needed for someyears and the system of recruitment and conditions of service need earlyoverhaul if existing and new vacancies are to be filled without delay.Liaison with industry is inadequate. Few technical training institutionshave an effective advisory committee and not all Principals seemed fullyacquainted with industrial needs and conditions in the area of their school.

3h. Training by industry is provided by a few firms and governmentdepartments, notably the United Africa Company with apprentice schools atKano, Burutu and Sapele; Shell B.P. Petroleum Development Company at PortHarcourt and the Union Trading Company, Limited, at Enugu. Nigerian Railways,Nigerian Ports Authority and the Electricity Corporation of Nigeria haveapprentice training schools and the Ministries of Communications and of Workstrain craftsmen and technicians, (Annex V).

(f) Higher Education

35. Under the Nigerian constitution, higher education may be the dualresponsibility of the Federal and Regional governments and both are permittedto create universities. The University of Ibadan was founded as a universitycollege in 19h8 and in special relations hip with the University of Londonuntil independence, receiving full university status in 1963. In the 1962/63session it had 1,705 students in the faculties of agriculture, arts, economicand social studies, medicine and science. It also has an Institute ofEducation, the Nigerian Institute of Social and Economic Research, and anInstitute of Child Health as well as a teaching hospital. The University ofNigeria at Nsukka was created by the Easterm Region Government in 1955 andhas faculties of arts, social studies, science, technology and research. Thereare 18 component colleges, including colleges of architecture, business adminis-tration, education (with adepartment of vocational education ),,}engineerring,finance, secretarial studies, (with departments of estate managementand land surveying), agricultural and veterinary science. Nsukka differsfrom other Nigerian universities in having a strong American background.Students with IJASC (see para.21) are accepted as undergraduates but arerequired to attend for an additional year of study as against those who enterfrom the VIth foxm of secondary schools.

36. Ahmadu Bello University was set up in the North in 1962 and its mainbuildings were formerly the Nigerian College of Arts, Science and Technology atZaria but it has other sections at Kano for Arabic, Islamic studies, Agri-cultural Research and Special Services and an Institute of Administration.It was opened in 1962 with 467 students, in faculties of agriculture andveterinary science, Arabic and Islamic studies, architecture, arts, engineer-ing, law and science. The IUniversity of Ife is to have its main buildingsat Ife, but is at present in the Ibadan section of the Nigerian College ofArts, Science and Technology. It opened in 1962; the enrolment in 1962/63was 244 students in faculties of agriculture, arts, economics and socialstudies, law and science. Faculties of engineering and medicine may bedeveloped later. The Pharmacy course inherited from the Nigerian College

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is being continued. The UJniversity of Lagos was instituted by the FederalGovernment in 1962 and includes a Medical School as a completely autonomousunit within the University. It has also faculties of commerce and businessadministration and law. Enrolment in 1962/63 was 101 students.

37. All these universities are independent and autonomous but nationalin outlook, admitting students solely on criteria of academic merit. Theoverall national interest is guarded by a National Universities Commission,a National Manpower Board, and an All-Nigeria Academic Council. The dutiesof the National Universities Commission, which held its first meeting in1962, include advising the government on the financial needs of universityeducation, assisting in planning the balanced and co-ordinated developmentof the universities, receiving annually a block grant from the government andallocating funds to the universities. The Commission is expected to exercisea considerable measure of control, mainly financial, in the interests ofeconomy and cohesion and to avoid any wasteful duplication of faculties.

38. Entrance qualification, except in the case of the University ofNigeria at Nsukka, is the Higher School Certificate (H.S.C.) or G.C.E.(Advanced Level). As a temporary measure, candidates with a Grade I(WASC) orfive credits in G.C.E.(Ordinary Level) are admitted to one year preliminarycourse on the results of a Concessional Examination which will be discontinuedas soon as there is a sufficient number of VIth form applicants from secondaryschools. At Nsukka, the basic qualification is the WASC or GCE (OrdinaryLevel) but candidates must pass the University entrance examination beforeadmission. Candidates with HSC or GCE (Advanced Level) are admitted bydirect entry and may earr, credits for HSC and GCE subjects.

39. Staffing problems confront every university. In a number ofinstances, posts advertised in 1962 remain unfilled. The causes include thegreat expansion of university education in the English-speaking world and theunfavourable conditions of service offered by Nigerian universities ascompared with those offered elsewhere. Bilateral assistance and sponsorshipbetween Nigerian and United States universities have provided only a smallmeasure of relief. The University Commission Report, 1963, calls for moreuniform salary scales and conditions of service for all university professors;a greater effort to train Nigerian graduates for an academic career; and areduction in the existing student/staff ratio as high in some instances as20:1. Present and future estimates of enrolment are shown at Annex VI-A & B.It is hoped that approximately half of the students in arts, natural sciencesand social studies, or about 2,500 students, will train as teachers forsecondary schools and training colleges.

40. Adult education has not so far been developed in Nigeria except inthe form of evening classes in technical subjects, organised by certaintechnical colleges, and university extra-mural classes. Great scope remainsfor the expansion of both these forms of part-time classes and for recreationaland educational classes for adults organised by Ministries of Education.

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III. FINANCING EDUCATION

41. National Development Plan 1962-1968. Among the top priorities ofthe six-year National Development Plan 1/ is: "(the acceleration) ofeducation of all kinds and at all levels but primarily the education oftechnical and managerial manpower". 2/ The Plan stresses the lack of skilledlabor force in all sectors of the economy and Nigeria's heavy dependence forprofessional staff on expatriates and technical assistance. The Plan documentoriginally envisaged total capital expenditures during the six Plan years ofP1,820 million equivalent, of which 50% was to be financed from domesticresources. The allocation of 10.8% or $196 million to the education sectorreflected the high priority given to education. In the first two years of thePlan period, i.e., 1962/63 and 1963/6h, total capital expenditures have amountedto $390 million equivalent, of which 9% or some $36 million have been allocatedto education. This disappointingly slow rate of progress in the Plan as awhole is attributed to four major factors: the large volume of projectscarried over from earlier programs, some shortages of skills and experience toprepare and implement projects, the very slow inflow of external loans andgrants, and the lack of sufficient domestic resources to make good the short-fall in external assistance. Slowness in decision-taking, especially in theFederal Government, and the time-consuming processes involved in securingexternal loans have also contributed to delays in implementing the Plan.

42. The outstanding features of the financing of the government programsin the first two years of the Plan have been the extent to which domesticresources have been used. Whereas the Plan assumed that 50% of capitalexpenditures would be externally financed, only 14% was so financed in 1962/64.In financing 86% of capital expenditures so far, heavy inroads have been madeinto accumulated funds, internal borrowing capacity and the resources ofgovernment agencies.

43. The Plan targets are now unrealistic of fulfillment in the remainingPlan years. Projects originally valued at some $1,820 million are nowvalued at some 62,240. Given the expenditures of $390 million in 1962/63 -1963/64, the Bank estimates that overall expenditures (including foreign aid)during the whole Plan period are unlikely to exceed $1,500 million. Sinceonly roughly three-quarters of projects available for financing contain anysizeable foreign exchange component, the major gap in attainment of theminimum projected level of expenditure is foreign aid.

1/ - For an appraisal of the Development Plan see "Current Economic Positionand Prospects of Nigeria"., December 31, 1963, Report No.AF-17, particu-larly Vol. III.

2/ - See National Development Plan, p.21.

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44. While it is possible to arrive at overall estimates of the probablelevels of domestic and foreign financing availabilities of the Plan, it isnot feasible to attempt sectoral allocations of this total. Qualitativejudgments can, however, be made. The education sector together with industryand agriculture is one of the three priority sectors in the Plan. Given theoriginal allocation of over 10% of total resources and the known under-estimation of projects, it seems likely that the education sector may beexpected to require a higher proportional allocation of the scaled-downestimate of probable expenditures during the Plan period. However, theeducation budgets already consume a high proportion of available domesticresources and foreign aid is likely to fall short of the expectations of theNational Development Plan. Wlithout IDA financing of the projects examinedin this report it seems impossible for the education targets of the Plan tobe realized to any effective degree. IDA financing of these projects willnot only directly assist a priority sector, but will also help to reduce theforeign aid gap in the context of the whole Plan. Financing of a considerableportion of the local currency costs of these projects will serve a dualpurpose: it will enable the education budgets to finance these projects andreduce pressure on domestic resources needed for the other top prioritysectors of agriculture and industry.

45. Foreign Assistance for Education. Foreign aid so far provided hasbeen mainly limited to assistance in the form of provision of staff, technicalassistance and training and offers of scholarships. In 1963 assistance in >teaching, other than University, amounted to 356 persons, of whom 304 werePeace Corps, and is expected to increase to about 850 in 1967/68, indicativeof the expected expansion in teaching requirements and of the shortfall inNigerian staff. Various Foundations provide technical experts within theMinistries of Education. The Universities seem likely to continue to be themain recipient, in the education sector, of external assistance. The natureof education assistance, i.e., package assistance that includes payment ofrecurrent costs, prevents an accurate estimate of specifically capitalassistance from abroad.

46. Domestic Financing of Education. The education sector has foremostpriority in the Development Plan; therefore the bulk of education projectsthat have not yet been financed can be considered as top priority projectseligible for financing. The projects described in this report are not onlythose identified as feasible for Bank/IDA financing but also those which havebeen selected as of top priority within a priority sector. Thus, technical,teacher and science training are preferred to secondary arts and primaryeducation. While the Nigerian Government itself stresses the importance ofthe education sector, the amount of resources it can reasonably be expected toallocate to education will be necessarily limited by the overall availabilityof domestic resources and the demands on these limited resources from theother two priority sectors. Education is primarily a Regional responsibilityand financing of education capital projects must largely be effected out ofsavings in the regional budgets. The Regions are, therefore, faced with theneed to expand and improve specific education facilities in order to meet

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their manpower requirements while at the same time taking care that theirtotal education recurrent expenditures do not eliminate budgetary savingsnecessary to partly finance capital expenditure. Education recurrentexpenditure consumed 6% of the total recurrent expenditures in Lagos, 25% inthe North and over 40% in the East and West. During the last 5 years, theseratios have been on the increase in the North and W4est, almost constant inLagos and on the decrease in the East. (See Appendix IX, Tables 7-10). Inaddition to their budget resources, the Regions are expected to receivesome grants for education from the Federal Government, and their expenditureswill be supplemented in each Region by contributions from local governments,Voluntary Agencies and school fees as described in the ensuing paragraphs.

47. Federal Government Grants for Education. Under the DevelopmentPlan, the Federal Government is to support education projects amounting to$40.9 million in the Regions (details are shown on Table 2 of Annex IX).In 1962/63 no transfers were made; the 1963/64 estimates provided for anallocation of $1.7 million to the Regions but, at December 1963, no part ofthis allocation had been transferred. The sole disbursement to the Regionsfor education in the Plan period at December 1963 was a lump sum grant of$1.26 million to the National UJniversities Commission which was sharedequally between the three regional universities of Ahmadu Bello, Ifeand Nsukka.

48. Regional Expenditures. The Regions of Nigeria are financiallyautonomous, have independent education policies and are at different stagesof educational development. Expenditure on education (Annex IX, Table 1) inrelation to available resources (assuming that total expenditures reflect thelevel of total revenues) and to population, vary enormously. Table 2 illus-trates the difference in emphasis in sectoral distribution of estimatedexpenditures and Tables 3 - 10 (Annex IX) that of past expenditures. EachRegional Government owns some schools which it constructs and maintainsdirectly, but this is to a greater or lesser degree a minor expenditurecompared with its grants to Voluntary Agencies and local authorities, whoconstruct and own the majority of schools in each region (Tables 3-10,Annex IX). These grants comprise over 80% of education recurrent expendituresin the East and West, over 50% in the North and 20% in Lagos and have absorbedover 20% of total education capital expenditures in recent years.

Specific Regional Problems

49. Northern Nigeria. Scarcity of development capital for all sectorsof this most underdeveloped region of Nigeria, prevents adequate expansion ofbadly needed education facilities. The 1963/64 education allocation was sofar below requirements or targets that stop-gap measures had to be taken toincrease the intake of students for 1964. The postponement of needed capitalworks will impose an increasing burden on future capital budgets. Substantialforeign capital assistance is required to remove a major bottleneck to economicgrowth, i.e., scarcity of efficient and trained manpower in every walk of life.

5o. The Mid-West. The new Mid-West has so far continued the educationalpolicies of the West. (The effect on Western revenues and expenditures willbe to reduce them by about one-quarter). Estimated recurrent expenditurefrom August 9, 1963 to March 31, 1964, was S8.96 million of which 44% was to

- 17 -

be absorbed by education. Grants-in-aid amounted to nearly 90% of the $3.92million education recurrent expenditures and formed the whole of thei104,000 capital expenditure on education. Only those commitmentsinherited from the Western Administration and non-postponable works werefinanced out of the limited special capital expenditure of $771,000. It isas yet too early to forecast the trend or level of Mid-West expenditures.The expressed policy of the Provisional Mid-West Government to continueuniversal free primary education can, however, only be an enormous drain onlimited resources that are urgently needed for more productive projects.

51. Eastern and Wlestern Nigeria. In Eastern and Westerm Nigeria the vburden of primary education has prevented adequate expansion of othereducation facilities and has limited the development of other sectors of theeconomy. This is particularly so in the West where universal free primaryeducation was introduced in 1955 and where capital expenditures on primaryeducation absorbed over 40% of total education expenditures in the peakyears of expansion, and where overall education expenditures averaged 30% oftotal capital and recurrent expenditures during the period 1955/62. Whilethe burden of primary education has previously been on the capital budget itis now squarely on the recurrent side, absorbing about 65% of these expendi-tures in the West.

52. The Regional Ministries have all recently taken measures to reduceor contain the share of primary expenditures in the budgets, by reducing thenumber of school years, increasing the number of pupils per class and bymerging of non-viable Voluntary Agencies'schools.These measures, howeveruseful the savings they produce, cannot resolve the problem of the increasingburden of primary education. The fundamental issue is how much primaryeducation Nigeria can afford and the extent to which the Pegional Governmentsrather than the local authorities or the private sector should finance it.In the West, East, and Lagos, primary education leads on a mammoth scale tomigration to the towns and unemployment, disguised only by the extendedfamily system which obliges relatives to feed and house indefinitely theirless fortunate brethren. Lack of secondary school places for the vastmajority of primary school leavers in southern Nigeria and the minimalabsorption of the remaining primary school leavers into the labor market makeit necessary that the whole question of government expenditure on primaryeducation be considered. The bottleneck in southern Nigeria today is notilliteracy but rather semi-literate unemployed on whom have been expended theresources needed to end the scarcity of technological and technical manpower.

53. Local authorities. The administration and accounting proceduresof local governments in Nigeria are, in general, inefficient,and considerableuncertainty surrounds any estimate of their contributions to education. Thisexpenditure is a function of the level of local income and therefore varieswith the crop year. Tentatively, the local authorities probably contributefrom their own resources, i.e., excluding grants-in-aid from the RegionalGovernments, some $11.2 million in both capital and recurrent expenditures,compared with over-all government expenditures of about $84 million. The localauthorities contribute about one-third of their total resources (includinggrants) to education - with authorities in the WVest contributing about 40%, inthe East about 25% and in the North about 20%.

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54. The local authorities contribute to education from their share oftax revenues and by acting as tax collector for communities who voluntarilyincur a special levy for school building. While their participation,financially and administratively, in education is already not insignificant,the local authorities should be the obvious anm of government to take overthe increasing burden of education. An analysis of local government financeand their greater incorporation into the development effort is beingundertaken in the North.

55. The Voluntary Agencies receive about 75% of all recurrent grants-in-aid paid in Nigeria. No realistic estimate can be made of money expendi-tures from their own resources because missionaries tend to make indifferentaccountants and because expenditures, depending as they do on rather erraticsources of financing, are made on an ad hoc basis. However, their contri-bution - financed from donations from churches overseas and church collectionslocally; the contribution by teachers of part of their salaries; and schoolfees - is undoubtedly significant. The Voluntary Agencies also subsidizeeducation expenditures by constructing schools and residential quarters atlower than standard cost with the voluntary help of local labor; byrecruiting staff at lower than government salaries; remission of fees inneedy cases; and by provision of scholarships for higher education. They alsomaintain about 1,000 unaided schools. The disadvantage of a Voluntary Agencysystem is that the competition for pupils between different bodies oftenleads to schools not being efficient in the sense of maximum utilization, inchoice of location or efficiency of administration. No firm control can bemaintained over expenditures, so that grants-in-aid are often based on averagerather than actual costs, leaving room for profit making. Lastly, sinceVoluntary Agencies physically control the majority of schools in Nigeria, theycan, to a certain extent, influence the terms of grants-in-aid.

56. Grants-in-Aid Regulations. Grants-in-aid regulations differ ineach Region. Basically two systems are followed for recurrent grants:

(i) a direct lump sum grant is made per pupil for a portion or100f of the assumed average cost to the school of teachingand maintaining that pupil;

(ii) another system is that of the assumed local contribution(A.L.-C.). Under this system a-primary school is providedby government with a grant covering the salaries of theapproved number of teachers and a contribution of about $22per recognized class. From this total is deducted the A.L.C.which ranges from 10 to t17 per primary pupil depending onhis grade. For secondary classes, the school is provided witha grant covering (a) the salaries, according to the governmentsalary scale, of the approved number of teachers, (b) allowancefor expatriate staff, (c) special responsibility allowancefor some senior staff and (d) a sum for other expenses amount-ing to about $8 per secondary pupil. From this total isdeducted the A.L.C. which is about $50 per secondary pupil.The West has attempted to involve local authorities in thegrants-in-aid system by making them responsible for the

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recurrent maintenance costs of primary education (fiveshillings per pupil), but the authorities are in arrearsfor these payments, amounting to over $280,000 for mid-1961to end-1962.

57. Capital grants-in-aid regulations vary considerably between Regions.For primary schools the East currently makes no grants for capital expendi-tures; Lagos, on an ad hoc basis, has provided 50% or more of capital costs;the West and North pa7ya6Tht half the average costs of a classroom. Abouthalf the cost of secondary school construction is reimbursed in the West,the basis for calculation being average cost of government buildings lessa discount for Voluntary Agencies; the grant depends on approval of theschool, generally after 3 - 5 years. In the North, reimbursement is almosttotal and immediate, based on plans submitted by the Voluntary Agencies, asystem which has enabled additional buildings or staff housing to be builtfrom the excess of receipts over expenditures.

58. School Fees. A comparison of school fees in all regions and forall sectors of education shows relatively minor differences in level, exceptfor the higher fees charged in the Federal Territory and accounted for largelyby the higher cost of living, and are universally indicative of the heavyburden borne by the private sector. Fees in the East (about $70 per annum)are somewhat higher than those in the West and North ($42-$56 per annum) forday secondary schools. Primary education is free throughout in the Westand Lagos and in the first two classes in the North and East. It ranges from$2.8 to $14 per annum in subsequent classes in the North, and $14 to $22 perannum in subsequent classes in the East. Fees of this order are feasibleagainst an average per capita income of $84 per annum only through theextended family system and the willingness of beneficiaries to acceptfinancial responsibility for others immediately upon becoming a wage earner.The intense desire of Nigerians for education has in the past partly beenprompted by the high return obtained from investment in education. Whilesecondary grammar and higher education still bring high returns everywhere,primary education in southern Nigeria is increasingly leading only tounemployment. only in the North is the return on investment in primaryeducation still considerable - raising the beneficiary to an initial moneywage of a minimum of some 4136 4 per annum.

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IV. THE PROJECT

59. The project proposed for financing by IDA development creditenvisages the expansion of secondary, technical and teacher training schools;

the construction of a rand metalwork and woodwork shops to a number of existing secondary schools.Details--afes attacsheRE-tt9 ft. XOftc'ipeuf ealimportance are the c'oWstuc9tTon of (i) an Advanced Teacher Training Collegefor Northern Nigeria greatly needed to produce Nigerian staff to remedythe present dependence of secondary schools on expatriates; (ii) a NationalTechnical Teacher Training College in Lagos to train technical college andtrade center instructors for the whole of Nigeria; and (iii) laboratoriesand workshops required to rectify the prevailing strong bias t-oiREas-pul±iyacadem&ic stiies.

60. The total cost of the project is about $30 million of which about$I2.11 million is in the Federal Territory of Lagos, $2.89 million in theWestern Nigeria, $1.57 million in the M4id-West, $3.96 million in the East and$19.47 million in Northern Nigeria. The figures include consultant feesand contingencies. About 66% of the total cost of the project is for schoolbuildings including laboratories and workshops, 18% for staff houses and 15%for furniture and equipment. The foreign exchange component is approximately37% of the total cost. Analyzed by type of training, about 8.4% of the totalcost is for teacher training, 32.2% for technical training and 59.h% forgeneral secondary education and provision of laboratories and workshopsin secondary schools. By far the major part (about 73%) of the amountproposed for secondary education goes to Northern Nigeria where the needis most pressing, and the rest is divided among the other Regions and theFederal Territory according to their need. The additional annual recurrentcosts which the proposed project will create are within the ability of theFederal and Regional Governments to meet. They are estimated to reach$328,000 in the Federal Territory of Lagos, $927,000 in the West,S566,ooo in the Mid-W4est, $922,000 in the East and $4.62 million in theNorth; a total of $7.36 million for the whole of Nigeria.

61. Drawings and/or schedules of accommodation are available for thevarious items of the project. They appear reasonable as does the estimateof costs. Since it is most unlikely that the Ministries of Public Wiorkswould be able to cope with a project of this magnitude, it is proposed toengage a firm of architectural/engineering consultants to review, and wherenecessary, amend the drawings, introduce uniformity to the extent possible,make a final review of cost for possible saving and supervise the execution ofthe project. Additions have been made to the original estimates of cost of122% for contingencies and 2-1/2% for architectural/engineering consultants'supervision fees. The following paragraphs give details of the various itemsof the project in each region. Annex X lists the proposed items withestimated costs.

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(a) Secondary Education

62. The proposed project includes expansion of secondary education inall Regions at an estimated cost of about $17.8 million, including consultantfees and contingencies. As shown at para. 22, the proportion of Nigerianchildren attending secondary schools is far below that in most other countriesand, unless early steps are taken to increase the number of secondary schoolplaces, there will be considerable shortfall bjthe o.u-turn from Forms V andVI which are the so-u-rce ofnermediate and high-level manpower essenWtTarato !Th-JdR i o-of -sta.--;The-,,proposed--expansionerwiiAlStgat-me e t a INigeria qCL-ruirq ements-in-the-next Hviconfors to; the National Develo Plan witability of the country to meet recurrent costs and a portion of capital costs.

63. Northern Nigeria will add clasrooms,Jkora.&toriea n -warikshops--to existing schools so as to complete 45 presently incomplete streams andc reaffiK, (fifeix erII2,,a,'nwi. I be E rovide,pythe estabJishment_poL-the-first-t. w-mul-ti-lat.eralsoh- Q in N orhernNige6Ka(_(by conversions_a sting scho-ls)2Xo_gime an-oxera DZTiia-e ofnearly 8,840 secondary schoo-places.-- The population distribution requiresali tEoE ie6ar7-dig places, necessitating additions to dormitories and diningfacilities. The large number of primary school leavers is shown at Annex I.The additional teachers needed will come from the Advanced Teacher TrainingCollege at Zaria, Ahmadu Bello University and recruitment of expatriates. Theexpansions will use existing standard designs for classrooms, laboratories,etc. The cost of the project is estimated at about $12.82 million.

64. Western Nigeria requested aidschQglaLo-fve= - It is not proposed to supportthe request on this_bij1Lojs_cale_b_c --M-73:3are con-s--1d-eFexperimentaldunre.ady Jasoe-t. or-large-icye-s-t . -J s-props oTh-owe ei9sutoatup.p4rt-the-introductianQ Qf_wgod.wyrjk and metalwork intothe curricula of fourteen (14) se condarygramm ar and seyC ) scqdamodern~~ schol basej hey-are-too.-heavily_biased towards academic subjects.Science laboratories are also to be added to each of the 7se-condiarY modernschools. Existing standard designs will be used for laboratories and workshops.The estimated total cost of the project is about $836,000. Teachers nowtraining overseas and outstanding trade center students will be available insufficient numbers to staff the practical classes.

65. Mid-Western Nigeria is to expand Edo College in Benin from single-stream to four-stream plus Sixth forms. Another site has been acquired and anew school building planned to raise enrolment from the present 133 to 800 by1969. Advanced level courses in technical, science, commercial and artssubje u in Fom VI. Staffing is not expect-ed to presentproblems because teachers s-houIelD& available from the existing organizations,from the new Advanced Teacher Training College and from overseas. Plans have

- Multi-la~t.eral--schols provide for primary school leavers a 2-year courseor gacedalecucation -aftr-iffc-hthuy a-re--amocatea to oneofterf fourn-

stiEicEl~~vo-cwtional~ al-at-r3ycrih~l~ grkcult-ura-l>-,-c=Eieal-or -aca4-emkc-7oiffes. g-.

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been prepared and the cost of the new equipment and buildings, which wouldinclude classrooms, laboratories, workshops, and students' boarding facilitiesis estimated at about $0.83 million.

66. Mid-Western Nigeria has only four secondary schools with Form VIclasses with a total enrolment of only 260 pupils and has urgent nead ofincreased numbers to staff new government departments, to meet the needs ofcommerce and industry and to provide university entrants. Form VI work is,therefore, proposed in five more schools and a double-stream Form VI at twoother schools to raise total enrolment by 480. Sufficient Form VI teacherswill be found from local sources and by Government and Voluntary Agencies re-cruitment of expatriates. In addition, manual training is to be introducedinto ten secondary grammar schools.linstructors are to be drawn fr-o-mapeleTrade eCntergrauates---and from industry; but there appears to be need for acompetent inspector in manual training to join the Ministry. Simple buteffective standard designs are available for laboratories and workshops.Total cost of this item of the pfro-je-is estimated at about $41Y9,U00

67. Eastern Nigeria requested aid for the expansion of three grammarschools to raise enrolment from 1,003 to 1,360 pupils. Land is available ateach institution and standard designs will be used for dormitories, classrooms,laboratories and staff quarters. Work has already started at each of thethree schools but about $0.78 million is requested for IDA financing. TheRegional Ministry wishes to assist 30 more secondary schools and 20 teachertraining-colleges to expand science teaching facilities so assisting morestudents to qualify in science at Form V and Form VI levels and add to thenumbers entering scientific and engineering training. The training collegeexpansion is to prepare more teachers for science teaching in primary schools.Designs for the additional laboratories and the lists of equipment areacceptable. Staff will be drawn from the Owerri Advanced Teacher TrainingCollege, Nigerians now training overseas and expatriates. The estimated costof the project is about $1.92 million.

68. The Federal Territory has a unique institution formerly called theEmergency Science Center and now the School of Science. Established in 1958,it provides only VI Form science work to prepare students for universityentrance. Enrolment is about 800 students, 450 day and 350 evening. About80% come from the regions. Classes of 200 students attend lectures but divideinto groups of 30 for laboratory work. Laboratories operate on a production-line basis; students perform three experiments in each 2A hour period and 240students pass through the laboratories each day. Sub-standard boarding isavailable for 64 students, most of the remainder living in lodgings in Lagos.Two houses in Lagos have been hired for girl students. A proportion of studentsare in employment and attend part-time day or evening classes. The percentagefigure for "A" level passes is high and most of those who are successfulproceed to university. The advantages of the school are concentration on VIthForm work and good utilization of facilities and specialist staff. Most ofthe school occupies temporary wooden buildings erected during World War II.Maintenance has been minimal and the buildings are in poor condition pendingreplacement. It is proposed to rebuild the school on its existing sitewith provision for 1,500 students, 1,000 day and 500 evening. Based on previousexperience, no lack of entrants is anticipated. Staff should be available in

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sufficient numbers as all Nigerian universities expand their science,mathematics and education departments. Plans have been completed and costed;the estimate for Phase I, which excludes students' hostels, staff quarters andassembly hall is about S934,000.

(b) Technical Education and Vocational Training

69. The proposed projects also include the construction and equipment of(i) 3 new trade training centers and the expansion of 6 similar centers;(ii) 6 new craft or trade schools and the expansion of 10 such schools,(iii) a national technical teacher training college and (iv) a building tohouse a new technical examinations organization. The total cost is about$9.66 million including consultants, fees and contingencies.

70. Three of the new technical training schools are located at thenopulous centers of Kaduna, Makurdi and Maiduguri in Northern Nigeriawhere industry continues to expand. They will increase annual enrolment by432 and follow the present pattern of full-time 3-year courses in tradesrequired by local employers. Courses for textile mechanics and radio and TVservicing proposed for the Kaduna school have been deleted because the newKaduna Polytechnic is to be equipped for them. To maintain annual enrolmentat 144, the electricians course can be double-streamed and an air-conditioningand refrigeration course added. Makurdi courses (Annex IV) show a boatbuilding course; this has strong support from the Northern DevelopmentCorporation. Ertrants will be recruited from craft, comprehensive andsecondary grammar schools; no shortage of applicants is anticipated. Accom-modation schedules are acceptable and estimated cost is $3.66 million.

71. Eastern Nigeria also intends to increase enrolment in presentcourses and add two new ones in its trade training center at Enugu. Annualintake will rise from 73 to 154 and total enrolment from 215 to 462. In1963, 4,000 applied for 73 Trade Center vacancies and no shortage of applicantsis anticipated after expansion. Increased needs for staff will be met fromthe new National Technical Teachers Training College (N.T.T.T.C.) and overseasrecruitment. In September, 1965, the adjacent Government Technical Instituteis to move and the Trade Center will expand into the vacated buildings,requiring no additions but only modifications and some equipment at anestimated cost of $159,000.

72. Westerni Nigerian Government is to expand its four trade centersat Ijebu-Ode, bihogoo,'Thwo afid Oyo. Present annual intake (Annex IV) is272 students compared with the National Manpower Boardts figure 1/ of 2,247yearly enrolment for 1963-1968. Expansion at each center will provideinstruction in nine instead of four or five trades, chosen to meet employers'needs, and an annual recruitment of 648 students, an increase of 376. Noshortage of applicants will occur because the Region has some 700 secondary

1/ Western and Mid-Western Nigeria. See Annex VII - Manpower Board Survey -Estimated Future Needs for Teaching Staff, 1963 - 1968. TechnicalInstitutes and Trade Centers.

modern schools whose students have limited orospects for further education andemployment. Acceptable accommodation schedules have been submitted and costis estimated at A2.05 million. It is possible that economies could beaffected by further study of school layout perhaps by the firm of consultantsoroposed to be employed.

73. Mid-Western Nigeria proposes to increase the nine trade courses atSapele Trade Center to 13 (Annex IV) to meet employers' needs; annual intakewill then rise from 135 to 195 and total number of places to 585 students.Sapele is situated in an industrialized and populous area and the trade centeris the only institution of its kind in the new Region. Entry to the center isfrom secondary moderm schools. In 1963, 8,000 applied for 120 vacancies andno future shortage of candidates is likely. Staff shortages, due to the recallof all lWlestern Nigerians employed at the Center, will be redressed by recruit-ment from overseas and from the new N.T.T.T.C. A proposed agriculturalmechanics course was deleted because of likely unemployment; a re-organizationof workshops was agreed that reduced the need for additional workshops fromeight to one. Accommodation schedule is reasonable and estimated cost isabout $325,000 for building and equipment,

74. Northern and Eastern Nigeria are in process of adopting selectivesecondary education which incluces two yr!s of gensuBgtboL4itUbwe'rkshopinstruction) and then allocat-ionto-academic^,-.agricultural, .-te_ipca),commercial and vocational coursfs. Vocational courses require one year andare available in comprethensive, trade or craft schools. Northern Nieriaproposes to convert 10 existing craft schools and build another to providethe more advanced syllabus and the one-year basis training course. These willthen form an important link in the system of technical education by supplyingstudents to technical training schools and semi-skilled workers to industry.In due course, this craft school basic training will permit 2-year instead of3-year trade center courses with a 50% rise in their intake. The 11 schoolswill have at first an annual output of 576 pupils, later rising to 720,most of whom will transfer to technical training schools. No shortage ofapplicants is likely. Staffing may present problems unless early steps aretaken to train handicraft teachers. Cost is estimated at $l.35 million.

75. Eastern Nigeria proposes as a long-term plan to establish 24trade or craft scnools to provide additional opportunities for primary schoolleavers, to reduce the accent on academic secondary education and to provideartisans for industry and recruits to trade centers. Eleven schools are tobe set up at once. Government will finance the conversion of six and IDAassistance is requested for five which will be converted from four fonmerGrade III teacher training col'leges at Ogoja, Nnewi, Orlu and Ogoni and aformer primary school at Nsan. Each school will have 300 pupils in a 3-yearcourse combining academic and practical subjects in Years I and II and withworkshop subjects increased to 28 periods out of 40 in Year III. The costof the conversions is 1940,000.

76. The Federal Government plans to open a National Technical TeacherTraining College to train for technical institutions in all regions. Existingtechnical schools are under-staffed, difficulty is found in recruitingexpatriates and more teachers are needed to meet the proposed expansion.

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Estimates indicate that some 1,200 full-time technical teachers are requiredby 1970; the majority of them should be skilled not only in their trade butalso in teaching. At present, this need is partly met by sending at greatcost 20 - 30 Nigerian technical teachers each year to U.K. and by an I.L.0.instructor training course at Lagos. Urgent need thus exists for aninstitution which will provide pedagogical training for instructors intechnical college, trade centers, craft schools and commercial subjects. Thecollege, for which a satisfactory accommodation schedule is available, is tobe constructed in two phases. Phase I will provide for the annual trainingof 200 teachers and Phase II will raise it to 500 teachers. Pre-servicecourses of 8 months plus 2 months' teaching practice and in-service courses of5 months will be offered; the curriculum combining local needs with theC.G.L.I. Technical Teachers Certificate syllabus. Laboratories and workshopswill be equipped to illustrate teaching principles and also for instructionin modern use of tools and equipment but it is assumed that all trainees willbe qualified and experienced in their trade or profession before enrolment.An adequate supply of applicants is anticipated because technical teachingposts pay higher salaries than the lower ranks of industry. Constructionand equipment costs for Phase I are considered reasonable at $1.08 millionbut this figure will require amendment if the bi-lateral aid which is likelyto supply staff is also offered for equipment.

77. At present all technical institutes and trade center courses areof two or three years duration and based on C.G.L.I. Craft Certificatecourses, known and accepted throughout the world. Nevertheless, it isgenerally agreed that the curricula in content and in length are not allsuited to the needs of Nigeria. Transition from C.G.L.I. to Nigerian examina-tions has commenced; a Nigerian Technical and Commercial ExaminationsCommittee of the West African Examinations Council is to take over the workof external examining bodies. The new Committee will be assisted by localadvisory committees and panels of examiners and for 2 years by two C.G.L.I.experts. Nigerian staff are to be attached to C.G.L.I. London offices togain experience. Formation of the new organization is delayed by lack ofaccommodation and assistance is requested for an examinations building inLagos at an estimated cost of $93,000.