European Journal of Education Studies
ISSN: 2501 - 1111
ISSN-L: 2501 - 1111
Available on-line at: www.oapub.org/edu
doi: 10.5281/zenodo.494996
Volume 3 │ Issue 4 │ 2017
TVET POLICIES AND PRACTICES IN NIGERIA: WHY THE GAP
Okorafor, A. O., Nnajiofo, F. N.i
Department of Vocational Education,
Nnamdi Azikiwe University, Awka, Nigeria
Abstract:
The critical role played by Technical, Vocational Education and Training (TVET) in
national development has long been acknowledged in Nigeria. Many policies have
evolved with respect to reforming TVET towards addressing the socio-economic
challenges in Nigeria. After decades of practicing these TVET polices, outcomes have
fallen far behind expectations. Thus, this paper looked at TVET policies and practices in
Nigeria, identifying the gaps and factors that have led to the gaps. Remedies to closing
the gap were proffered.
Keywords: TVET, policy, national development, technological knowledge, political
will, political instability, corruption
1. Introduction
If, with the advent of knowledge economy, educational competences are prized above
natural resources as the prime factor in national development, the combination of
Science, Technology and Mathematics Education is acknowledged as the pivot of
economic and industrial development, with its sub-sector, Technical, Vocational
Education and training - TVET as the hinges and bolts of the economy (Chukwumerije,
2011) . ‚ country s standing in Science and Technology and in TVET defines her stand
in the ladder of the world economies. Success stories of the newly industrializing
countries (NICs) as Korea, China, Malaysia, India, Singapore, etc.; attest to the fact that
the systematic application of scientific and technological knowledge is a major actor to
leapfrog into sustainable economic development. This has led to the emerging
consensus that skilled technicians and technologies are pivotal in meeting the
challenges of a technology-driven economy. As a result, TVET has been accorded the
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Okorafor, A. O., Nnajiofo, F. N.
TVET POLICIES AND PRACTICES IN NIGERIA: WHY THE GAP
master key to unlocking the required potential and productive workforce with the right
scientific and technological competence to transform the economy.
This explains why in the recent years, a desire has surfaced to actively recognize
a new, the role of TVET to achieve national transformation through technical
innovations spurred by the advancement in technology and globalization (Yamada &
Matsuda 2007). Tang (2012) reiterated that, after a period of neglect, TVET is now firmly
on the agenda of governments around the world. Youth unemployment, social
exclusion and poverty have led many decision-makers to refocus their attention on
providing skills development opportunities that respond to evolving social and
economic demands. Far from being the weakest link in education systems, TVET is
emerging as a cornerstone for the transformation of education and training. Indeed, the
development of skills through TVET is now one of the most often-cited priorities by
ministers of education in both developing and developed countries.
This has drawn the interest of many developing nations like Nigeria to adopt
education and TVET in particular as an integral part of national development strategy.
Strategic planning is at the core of any successful institutional effectiveness effort. It
defines the vision and the way forward, but this vision requires execution and
management. Unlike the NICs, for more than three decades that Nigeria embraced
TVET, the country is yet to, at least, produce adequate skilled middle-level manpower
to attain lowly stage of modest self-reliance. Thus the concern of this paper - why the
gap and what should be done?
2. Conceptual Definitions
2.1 TVET – Technical Vocational Education and Training
When thinking what TVET is all about, it is worthwhile to first take a look around the
room where we sit. From the sit on which people are siting to the laptop they are
holding, to the projector screen, to the building and other things, are all partly or
completely the product of TVET. No wonder Thompson (2012) said that TVET properly
understood is not a career but the application of skills to support life. TVET refer to
those aspects of educational processes involving, in addition to general education, the
study of technologies and related sciences, as well as the acquisition of practical skills,
attitudes, understandings and knowledge relating to occupations in various sectors of
economic and social life (FRN, 2004). TEVT is meant to impart knowledge and skills for
increased efficiency in the world of work, sustainable livelihoods, personal
empowerment and socio-economic development, which enhances proper adjustment in
knowledge economies and rapidly changing work environment. Thus, TVET is all
embracive comprehensive education and training program, involving lifelong learning,
responsible citizenship, and the promotion of environmentally sound development and
social transformation. Former President Olusegun Obasanjo stated that TVET, with its
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relevant practical training component, holds the key to Nigeria becoming
technologically relevant and internationally competitive in the world market. He
continued that TVET is also the most effective means of empowering the citizenry to
stimulate sustainable national development, enhance employment, improve the quality
of life, reduce poverty, limit the incidence of social vices due to joblessness and promote
a culture of peace, freedom and democracy (Federal Ministry of Education-FME, 2000).
2.2 Policy
Business Dictionary (2014) defined policy in management term as the set of basic
principles and associated guidelines, formulated and enforced by the governing body of
an organization, to direct and limit its actions in pursuit of long-term goals. A policy is a
practice that has been thought through, formalized and formally presented as an
expectation of management (Cohen, 2012). Policies are generally formal and written
empowerment tools that guide the decision and action of managers and their
subordinates in strategy implementation (Chaurasiya, 2009). In a nutshell, public policy
seeks to achieve a desired goal that is considered to be in the best interest of all
members of society. Think of policies as a starting point for government to take a course
of action that makes a real life change.
Educational policies are initiatives mostly by governments that determine the
direction of an educational system (Okoroma 2000); such is the process by which
knowledge contents are transmitted or 'delivered' to students by the most effective
methods that can be devised (Blenkin 1992). Policy is therefore among the tools used in
running education system.
2.3 Practice
Practice is the actual application or use of an idea, belief, or method, as opposed to
theories relating to it. It is also the customary, habitual, or expected procedure or way of
doing something. Other words for it include application, exercise, use, action,
operation, implementation, execution, enactment, doing. In the context of this paper,
practice is the actual implementation of the policies enacted for TVET. That is the
performance of actions or exercises to realize the expectations of TVET policies.
3. TVET Policy and Practice in Nigeria
Major educational reforms in Africa and Nigeria in particular have been to restructure
colonial education system with emphasis on vocationalization. Consequent upon the
attainment of independence, it was discovered that the colonial education did not meet
the aspiration of Nigerians. This led to the introduction of 6-3-3-4 education policy in
1977. The policy sought to introduce a functional technology-based education, which
could sustain the nation s economic activities for rapid socio-economic development.
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Nigeria has long acknowledged TVET, at least in policies, as the master key to
unlocking the future. Evidence is illustrated in some of these policy statements in
Nigerian policy documents:
Recognizing that TVET is an integral part of technological development, a greater
proportion of education expenditure shall continue to be devoted to vocational education
at Federal and State levels
(Federal Republic of Nigeria, FRN, 2004, section 7, 52 pp. 35)
In recognition of the fundamental importance and cost intensive nature of TVET,
government shall provide adequate funds for TVET
(FRN, 2004, section 7, 56 pp. 35)
The purpose of development of individuals is to enable them contribute to the
development of the society. For this reason, the plan lays emphasis on TVET as the
master key to unlocking our future
(FME, 2012, pp 2)
The ability of Nigeria to realize the vision of becoming one of the twenty largest
economies in the world by the year 2020 is largely dependent on the capacity to
transform its youths into highly skilled and competent citizens …. It is for this reason
that commitment to TVET must be strengthened
(FME, 2012, pp. 54; FME, 2009, pp. 14)
Specific steps in the direction of meeting the challenge of according priority to
science were taken in
6. Nigeria s first national Science and Technology Policy was
formulated in the realization of the fact that the overall national development could
only be sustained through effective application of scientific and technological skills for
the production of goods and services (Chukwumerije, 2011). More so, the precursor to
the formulation of the National Policy was the birth of the National Board for Technical
Education established in 1977 to address the shortage of technical manpower identified
in the Third National Development Plan. The decree was complemented by 1985
Education (National Minimum Standards and Establishment of Institutions) Decree,
1993 National Board for Technical Education Amendment Act and 1993 Education
National Minimum Standards and Establishment of Institutions (Amendment)
(Chukwumerije, 2011)
With the above policy statements, it is not out of place to affirm that TVET will
turn the nation to the expected El Dorado. Going by the various policy documents in
Nigeria, it is expected that TVET through the production of skilled manpower in
applied science, engineering technology and commerce, will generate employment,
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reduce poverty and eliminate the Area Boy Syndrome; and launch the country to
technological and economic super power. However, what is being experience is far
from what has been expected. The effectiveness of an organization is not only reflected
in its ability to formulate policy, but also in its ability to execute such policies
effectively. As Francis Sullivan, adviser on the environment to HSBC, a UK-based
global banking firm, said, writing policy is the easiest thing to do; the hardest thing is to get
the governance and structure right from day one Economist Intelligence Unit - EIU, 2010).
The outcome of TVET in Nigeria is a clear indication that TVET policy is
divorced from the practice. While the National Policy on Education (NPE) puts the ratio
between secondary and technical vocational education/schools at 3:1, Nigeria has 5,100
secondary schools with enrolment of 4,448,991 as against technical colleges of only 169
with enrolment of 43,354 representing ratios of 37:1 and 102:1 respectively (Odukoya,
2013). In Nigeria, only 3.6% of senior secondary school students were enrolled in TVET
in 2005 (Federal Government of Nigeria, FGN, 2009); and 3% out of 166000 enrolled in
TVET in 2007 (UNESCO - UIS, 2009). On the average, FME (2009) reported a 2.5%
enrollment in TVET at the secondary level as against the modest NPE target of 20%. The
Roadmap for Nigerian Education sector estimated a transition rate of 84% for potential
TVET programs from junior secondary. This trend will continue unabated with the
limited TVET opportunities in the country and low esteem for TVET. According to the
policy, technical colleges are expected to feed polytechnics just as secondary schools are
to feed universities. The prevailing situation however is that the total products of
technical colleges represent only 17% of available spaces in polytechnics. So right from
the on-set the mission of technical colleges concerning feeding polytechnic is not being
met. Consequently, the country tends to be producing more theoreticians than
technology experts (Odukoya, 2013).
Oketch (2009) asserted that a look at the funding of TVET can shed light on the
contradiction between the emphasis for skills and the limited funding that,
governments are willing to commit to it. Best estimates are that Nigeria spends about
2.3% of GDP for education, less than half the percentage of GDP spent by the 19 subSaharan African countries on average (FGN, 2009). In 2010, the Federal Government
spent N249.08 billion on education out of a budget of about N4.07 trillion. This sum
translates to just about six percent of the total budget in spite of UNESCO s
recommendations that, at least, 26 percent of national budgets should go to education.
Available data indicate that 20.9%, 7.1% and 13% of total expenditures on education in
2003, 2004 and 2005 respectively went to the NBTE of which 39.2%, 83.6% and 78.4% of
yearly budget appropriations to NBTE in the same years were actually spent (OECD,
2008). In the scale of low priorities to Education system, TVET comes lowest. Capital
allocations for TVET showed that 0.13% of total FGN budget and 0.05% of total
proposed FGN budget were allocated to TVET in 2011 and 2012 respectively
(Chukwumerije, 2011).
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The NPE also stated that every technical college shall establish and operate a
production unit for on-the-job training and commercial activities to sustain college
operation, as well as encourage cooperation with industries (FRN, 2004, pp. 35).
Unfortunately, most technical colleges lack adequate facilities and functional
workshops, not to talk of operating a production unit. These and many other gaps
existing between the TVET policies and practice have posed many challenges to TVET
in realizing its goals.
4.0 Why the Lingering Gap?
It is obvious that chanting policies will not take a country anywhere, if there are no
good structures and governance to put the policies to practice. It is not enough to
predict the future; rather it is better created. A number of factors have hindered TVET
in Nigeria; making it difficult for TVET practices to march its policies. Some of these
factors are: faulty policy and institutional frameworks, policy somersaults arising from
instability of the political environment, and lack of political will compounded by the
hemorrhage of rampant corruption.
4.1 Faulty policy and Institutional Frameworks
Adopting systems that have worked for great nations without adequate consideration
of the value structure of the target country may not yield a successful result. Apart from
minor structural and organizational changes, very little has changed in the philosophy
and curriculum content of education in Africa. Education in Africa is still designed after
Western models and paradigms that have little connection to life in Africa (Eze &
Okorafor, 2012). The failure to restructure the colonial education and economies to
African context, while expanding their formal education systems, will continue to lead
to mismatch between economic growth and education output.
It seems educational policymakers do not integrate implementation into their
strategy. Instead, they have a make-it-so mentality. They are reactive, looking at
implementation only after the creation of a policy instead of pro-active in anticipating
how to roll out a new initiative during its formulation. Failure to think about execution
beforehand may lead to more detrimental fallout from the policy change than benefits
from the policy. Moreover, the institutionalized split between political decision-makers
and professional civil servants who carry out policy tends to exacerbate the problem
(EIU, 2010). Some policymakers will pick up the latest idea and say that sounds OK . ‚
lot of politicians seem to do that. Even when experts explain implementation issues to
political aides, members of Congress tend to ignore the experts advice. ‚s EIU
explained, statutes don t pay much attention to practical difficulties.
The gap between policymaking and execution creates more problems than poor
planning. Most often, you see academics sit around in conferences or the like,
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discussing great ideas, but they tend to dry up on the vine. There could be huge effort
and expenditure researching, but at best it will never deliver. While the academics are
doing their own, the policymakers are busy doing their own too. Researchers discuss
findings among themselves while decisions made by policymakers continue to be based
mostly on intuition and very little on research or experience of practitioners. In the light
of this Miller, (2008) raised the following questions: Is the research reported at
conferences so theoretical that it is not of relevance to policymakers? Are the problems
addressed by the research so trivial that others do not see them as important? What
could be going on in their mind as they examine the topics and content of research
paper sessions and/or journals? Might they say: "This stuff is too specific?" "This stuff does
not apply to me." "This stuff is too theoretical." "This stuff is too abstract and not concrete
enough for my needs." "This stuff is just done to help someone get promoted or to keep their job"?
4.2 Political Instability
Frequent changes in government and politics in Nigeria have negatively influence
policy implementation not only in education but also in other sectors of the economy.
Policy somersaults and inconsistency is a fatal problem. Educational policy in Nigeria
may best be described as inconsistent. Professor Ajayi, one time Provost of Federal
College of Education (FCE) Osiele, Ogun State in Nigeria made this observation:
Within the eight years (1991-1999) that I served as Provost, the nation passed through
five different regimes (Babangida till 1993, Shonekan for less than four months in 1993,
Abacha 1993-1998, Abubakar 1998-1999, Obasanjo 1999-2007). Within this period, I
had to operate under eight Ministers of Education. The same thing happened at the state
level. Each of the Presidents, Ministers, Governors and Commissioners had their own
different conceptions and policies on education that they tried to implement during their
tenure. With such instability in the system of governance, coupled with constant changes
in "Ministers of" Ministers for and "commissioners for," one should not be surprised
at the level of the crises the nation's education system has witnessed over the years and
the inconsistency and often contradictory nature of the educational policies and practices.
It’s one step forward and two steps backward.
(Odukoya, 2013)
Unfortunately, even in the present democratic dispensation, the trend still
continues. The 9-3-4 education policy that replaced the 6-3-3-4 in 2009 may soon be
replace, just less than five years. ‚woyinfa
reported that the nation s education
policy of 9-3-4 may soon be replaced by another one, as the Federal Government has
almost concluded plans to change the existing policy to a 1-6-3-3-4 education
structure. Mrs. Bola Mosuro, the Proprietress of Access Universal College, Lagos
lamented:
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Our problem in this country is that we often pick and drop policies as we want. In the
United States, the two tier secondary school system is still in operation delivering
wonderful results. There is nothing wrong with the 6-3-3-4 system. We simply have not
implemented it well and now we have picked another one (Odukoya, 2013)
4.3 Lack of Political Will
The policy statements and the documentations are vivid evidences of the Stakeholders
intention to foster educational sustainability. Though these documents contain
roadmaps and target dates of implementation, but the stakeholders attitudes weak
motivation, lack of self-will power and declination from vocational ethics) have affected
implementation and development (Aderonmu, 2012). It is obvious that the government
of Nigeria lack the political will power to support education financially. The failure to
provide necessary resources is not always a result of overwhelming cost. Resource
issues frequently arise not because implementation is inherently expensive or time
consuming, but because existing issues within the organization impede it. As was
shown earlier in this paper, Education is in the scale of low priorities in Nigeria with
TVET receiving the least attention. This is further buttressed in the disparity in
remuneration of workers in the various sectors of the economy.
Table 1: Distorted value system scale as reflected in remuneration
A Permanent Sec.; Executive Sec.; Chief Executive of Parastatals; V.Cs
B
Professor
C
Federal High Court Judge
D Local Government Chairman
E
Local Government Supervisory Councillor
F
Federal House Member
G Senate
Source: ASUU, FUTO BRANCH 2009 cited in Chukwumerije (2011)
22,051,154.30
3,859,078.60
26,875,840.00
13,865,895.30
12,746,875.00
35,932,346.30
36,677,840.00
4.4 Corruption
There is strong evidence that the cancerous growth of corruption in Nigeria is
spreading fast across the education sector. Sub-optimal use of their inadequate
allocations by most of the institutions and other stakeholders has compounded the
financial plight of the education sector (Chukwumerije, 2011). Some policies are not
very expensive if there are good people and the structure is right. Educational
administrators and other stakeholders divert institutional/faculty/departmental
resources as their share of the national cake. Worst still is that the bodies set up to check
this ugly situation, have form allies with the stakeholders.
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5. What should be done?
The basic assumption is that policy making can be seen as a policy learning process
which requires that policy makers engage actively in a learning process. Typically, there
has been a weak capacity in ministries to promote, monitor and draw conclusions from
school based innovation practices. However, by engaging policy makers from the outset
in close cooperation with the school and local/regional levels, with peers from
neighboring countries and with international experience, an action policy learning
process can be engineered with a focus on local context and solutions. At the same time,
the role of stakeholders at local and school level is essential and it is the linking of the
two that may be able to create reforms that can address the needs of the people. This
process is twofold and goes in both directions – policy makers learn from innovative
practices, practitioners learn from each other (peers) and policy makers consult
practitioners and challenge them for more useful innovation Castel-Branco & Faudel,
2008).
There is need to provide better evidence to improve the practice of the profession
and make sound policy decisions. This calls for lobbying. There is dire need for a
thorough understanding of the principles and operation of lobbying and advocacy. It is
becoming common knowledge that the correct application of these indispensable
principles is vital for the successful translation of research findings into national
educational policy formation and implementation.
The federal ministry of education needs to decentralize to state and local
government levels in order to observe understands, monitor, control and review
policies and curriculum on a regular and consistently diligent basis. UNESCO-UIS
(2009) demonstrated that indigenous peoples also have the potential to be active players
in policy, advocacy, adaptation and ethical elements which could be beneficial.
Educational administrators (even senior academics) should be involved in
policymaking and trained in interpreting and implementing the policy. The two leading
success factors for policy implementation, according to EIU, (2010), are clear directives
from senior management and their active involvement. On a practical level, those at the
top of a hierarchy are also best placed to provide the clarity and direction for success.
Federal and State ministries of education need to take a holistic approach to
improve their policy implementation efforts. The foundations on which to build success
include:
Ensuring that enough time and money is spent on putting the policy into effect
Carefully putting together policy formulation, planning, and execution i. e.
prepare for new policies far enough in advance
Ensuring those at the top of the hierarchy are in the best position to provide the
clarity and direction that is vital to success.
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Fostering a culture of commitment i.e. thoughtful over-communication and being
open to feedback.
6. Conclusion
Chanting policies is one thing and putting the policies to practice is another. Achieving
the goals of the policy indicates effective practice of the police and verse visa. Therefore,
non-achievement of the lofty goals of TVET in Nigeria is an indication of the gap
between TVET policy and practice. This gap has persisted due to non-commitment to
putting the policy to effect, poor institutional framework, faulty policy, corruption, etc.
If TVET must assume its position fully in the transformation of Nigeria, this gap must
be close. Until then, Nigeria will continue in its abysmal economy.
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