Innovations and Curriculum Development for

Basic Education in Nigeria: Policy Priorities and

Challenges of Practice and Implementation

M.A. Ajibola
Department of Primary Education studies
Federal College of Education, Zaria, Nigeria
E-mail: kadeajibola@yahoo.com

Abstract
Nigerian educational system has gone through various developments and changes viz-a-viz
curriculum issues. The dynamic nature of the curriculum process informed the thesis of this
paper, which is innovations, curriculum development for basic education in Nigeria.
Analysis of the Nigerian education sector reveals the challenges of incoherence in policy
formulation and implementation. The selection and organization of curriculum content,
curriculum implementation and evaluation, the development, distribution and use of
teaching materials, and the relevance of the curriculum to the needs of society are also
problems associated with the Nigerian educational system. Therefore, the need for
transformation in curriculum for all the educational levels becomes necessary. Sometimes
it appears as if solutions are on the way, at other times one feels that the education system
is back in the doldrums. One positive note is that both the government and the people are
seeking better ways of doing things and achieving results that would benefit the majority of
the people. The paper reviews aspects of curriculum process such as policy, analysis,
objectives, content, evaluation methodology and implementation. The paper submits
recommendation on further enhanced strategies that will help in the development of
education in line with modern trends in curriculum issues. It concludes that for any
meaningful advancement to be made in the education sector there must be conscious,
deliberate, purposeful, directional policy formulation of the implementation of the
curriculum.

Keywords: Curriculum, innovation, policy, challenges of implementation

1. Introduction
Curriculum issues, either in an explicit or an implicit manner, are inextricably linked to current
thinking and action on educational concerns and reforms around the world. Experiences of educational
reform almost all over the world have shown that curriculum is at the same time a policy and a
technical issue, a process and a product, involving a wide range of institutions and actors. Due to the
ambiguity of the term “innovation,” it is necessary to establish characteristics of how innovations are
defined for this paper. Mintrom (2000) uses the term “innovative” to refer to “ideas or practices that
are new within the context of the school.” More clearly stated, an innovation is “an idea, practice, or
object that is perceived as new by an individual or other unit of adoption” (Rogers, 1995). Another
definition of innovation involves newly introduced method, custom, device etc; “change in the way of
doing things”; “renew, alter” (Webster’s New World Dictionary, 2001) or doing things differently or
doing different things” (Dunkin, 2000). Curriculum can be simply termed a brief written account of

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one’s past history e.g. of education and many other aspects of life endeavour. Innovations reported
under this category are in the area of curriculum and programme development; new approaches to
teaching and learning, often combined with the introduction of new educational technologies; and
quality assurance. Innovations therefore overlap with the relevance category. Innovations in curriculum
have also increasingly taken the form of introducing new programmes as indicated above.
The process of constructing the curriculum is unique to each national setting. It is a complex
outcome of the opinions and solutions that key stakeholders propose for society’s requirements and
needs. There are no ‘successful’ international models to copy. Many innovations with the curriculum
include an emphasis on a particular field and the use of the core knowledge curriculum where basic
factual information is presented before any abstract concepts, leading to a focus on the mastery of
basics.
The problems related to curricula became noticeable soon after Nigeria’s independence from
colonial rule in 1960. By the mid-1960s, educators and educational planners were rethinking Nigeria’s
education system and in particular, the curriculum being taught in the schools. The question is has
Nigeria educational policy been capable of providing the needed manpower development to stir the
nation’s socio-economic exigencies left by the colonial masters? The non-directional policy issue has
been the main bane of the educational system particular with reference to the curriculum structure. So
far, we have had three different systems borne out of incessant changes in policies. It has become a
tradition to abandon policy in mid-stream. The effect of this policy somersault cannot be over-stressed.
Science Teachers’ Association of Nigeria (STAN) are bodies that have worked hard to translate
national and educational objectives into curricula and teaching objectives through the development of
curricula designed to help individuals attain cognition, acquire process skills and develop scientific
attitudes which will enable them to think critically, manage and use available resources, to effectively
adapt to their environment, assume responsibilities and fulfil domestic, economic, social, and political
roles. STAN has continued to give a critical appraisal of the science education curriculum with a view
to identifying defects and devising original solutions. To this effect, STAN has devoted its efforts to
science curriculum innovation and renewal particularly at the primary and secondary education levels.

2. The Philosophy and Historical Perspective of Nigerian Educational System

Taiwo (1986) was able to analyze in detail the post-war reconstruction and development that involved
rehabilitation of education in Nigeria after the civil war on 12th January 1970 that marked the
beginning of a new decade, which was significant for quick recovery from the damage of war.
However, the then Federal Military Government was guided in its national planning by its national
objectives. The five national objectives are to establish Nigeria firmly as:
i. A united, strong and self-reliant nation
ii. A great and dynamic economy
iii. A just and egalitarian society
iv. A land of bright and full opportunities for all citizens, and
v. A free and democratic society
The above objectives are in tune with the philosophy for Nigerian education, which was
formulated at the 1969 National Conference on Curriculum Development. The recommendations
formed the basis for drawing up the National Policy on Education (NPE) of 1977. The curriculum is
aimed at permanent literacy and numeracy and effective communication. It covered the basic needs of
children including religious and moral instruction, mathematics, science and skills preparatory to trade
and craft education. The medium of instruction will be principally the mother tongue or the language
of the immediate community, and at a later stage, English. The government will make a special effort
to promote the education of girls and provide the facilities and supervision for ensuring quality in the
education. Nigeria’s educational system since then has witnessed a number of changes. These changes

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can be classified into policy, objective, content, methods, material and changes in evaluation
techniques.

2.1. Policy changes

On this premise, right from attainment of independence, the need for change and innovation had
always been prevalent in the educational systems of developing countries. The works of Fafunwa
(1967, 1974), confirm that changes and innovations were needed in Nigeria educational system after
attainment of independence. The type of education imported to Nigeria under British control reflected
the needs of the colonial government. Thus, we had the 7-5-4 which represents 7 years of primary
education, 5 years of secondary education and 4 years of tertiary education. While in some regions, it
was 6-5-4 across the three tiers respectively. This system was later replaced for the entire country in
1983 by the 6-3-3-4, that is, 6 years of primary education, 3years of Junior Secondary School (JSS), 3
years of Senior Secondary School (SSS) and, 4 years of tertiary education. The difference is the
additional one year to the secondary education and its split to 2-tiers: junior and senior secondary. This
system sought to correct the structural imbalances in the colonial system of education. Many people
regarded the NPE as both an innovation and as a reform in education (Adeniyi, 2001). It is a reform in
that it introduced a 6-3-3-4 school system incorporating a nine-year basic education programme as a
clear departure from the past.
The Universal Primary Education Scheme which was launched in Nigeria in 1976 and now
Universal Basic Education (UBE) in 1999 calls for innovation in curriculum development, classroom
teaching techniques, and adequate supervision of instructional programs in the schools (Ayo and
Adebiyi, 2008). This scheme is monitored by the universal basic education commission (UBEC), and
has made it free and a right of every child. The law establishing UBEC stipulates a 9-year formal
schooling, adult literacy and non-formal education, skill acquisition programmes and the education of
special groups such as nomads and migrants, girlchild and women, Al-majiri, street children and
disabled group (Aderinoye, 2007). However, poor implementation of the reforms inherent in the 6-3-3-
4 system of education did not allow innovation and changes to have an appreciable impact on the
Nigerian society.

2.2. Changes in Content

Juan Manuel Moreno (2006) states that: ‘Educational reform all over the world is increasingly
curriculum-based, as mounting pressures and demands for change tend to target and focus on both the
structures and the very content of school curricula’. Arising from the revolution in objectives, some
radical changes were made in content. At primary, secondary and tertiary institutions, the contents of
subjects studied were reviewed so that they would gear toward achieving the set objectives. The
provision for a core curriculum (or core subjects) and optional curriculum (or elective subjects) is also
a significant change. The aims of these changes are to guarantee an all-round education for learners,
and to bring some degree of diversity into curriculum development. The curriculum provisions are
immense and profound for school teaching and learning. At the primary level, ten subjects are to be
taken. Two of these ten subjects— agriculture and home economics—are to be deferred to later years
of primary school. At the junior secondary school, every student is required to take eleven subjects,
nine of which shall be common to all—core subjects. A major innovation here is the requirement for
technical and vocational subjects tagged as pre-vocational subjects. In all, a student may take a
minimum of eleven subjects and a maximum of thirteen subjects. The secondary school level presents
a far greater variety of subjects—there are seven core subjects and thirty-four elective subjects. The
electives are put into three groups. Every student is expected to take all the seven core subjects, a
minimum of one and a maximum of three from the list of elective subjects to be offered at the Senior
School Certificate Examination (SSCE). In addition, a range of new courses and programmes have
been introduced that are relevant to today’s needs and problems, such as the issues of HIV/AIDS,
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moral philosophy and gender and given a core status in their relevant levels of education. In addition
many schools have undertaken widespread reform of the curriculum – in line with the change in focus
to science and technology – to ensure that it is sensitive to regional and international issues such as
gender, disability and globalisation. It has also involved the infusion of indigenous knowledge and
technologies into the curriculum from such diverse fields as traditional arts and crafts, traditional
cosmetics, traditional food systems and medicine, knowledge of the environment, and African
civilisation. Amongst the new programmes that have been introduced are youth and gender studies, and
nationalism. Curriculum restructuring has also involved the introduction of core modules on computer
literacy and communication skills, and the curriculum is designed to be learner centred, problem-based
and project-driven.
These changes require teachers to question their traditional subject practices and classroom
routines. New teaching technologies require teachers to reflect on the technical basis of their work,
which are the pedagogical assumptions of their practices and, these changes challenge teachers’
existing practices. For these reasons it became difficult for many schools to adopt this pedagogy, one
of whose virtues is that it is highly compatible with community orientation since in nearly all cases the
problem to be solved especially in public orientation and community values are located in the
community.
Furthermore, because of the need for schools and colleges to meet the requirements of certain
examining bodies, Nigerian educational institutions, particularly at the pre-tertiary level have to change
their syllabuses from time to time even when the national subject curricula are constant for some years,
the school subject syllabuses are subject to change or modification by teachers, particularly where
subject teachers are changed frequently. This is particularly the case with rural schools where teachers
frequently ask for transfer to urban primary or secondary schools. In effect, rural schools are usually
filled with itinerant teachers: Youth-Corp members, fresh graduates on state service or other categories
of newly-employed teachers who have no other option. The tendency for these categories of teachers is
usually to modify the syllabus to embody their newly acquired knowledge.

2.3. Changes in Evaluation Strategies

With the introduction of the National Policy on Education adopted in 1981, and revised in 1995 and
2006, some special emphasis have been placed in the use of comprehensive and continuous assessment
in schools. Besides, objective multiple choice questions have also been given special attention at both
primary and secondary levels. Similarly, new attention is been given to practical experiences and tests
in the form of teaching practice and industrial attachment during which learners are observed and
assessed.
These changes brought about changes in hitherto accustomed practices in learning or teaching,
objectives, content and methods. However, in most cases these changes were hurriedly done and
problems associated with such changes surfaced when applied on a large scale. Lack of initiative,
innovation, skills, independent/constructive mind and creative ideals characterize today’s system of
Nigeria education. This is a system that encourages memorization in learning processes and theoretical
explanation to areas that need practical illustration. The system favours cognitive development above
other domains of education. It is pathetic that Nigeria’s school system is geared toward building pupils
with cultural orientation with deficiency in problem-solving approach that requires more than simply
recall or performance of rudimentary skills (Bolaji, 2007).

3. Curriculum Innovation and National Languages

With the advent of the new National Policy on Education, a major restructuring was noticeable with
regard to language curriculum development and implementation. Whereas during the colonial era the
emphasis was on learning the languages of the colonizers it is no longer so nowadays. The language

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curriculum currently in use takes into account four groups of languages—English, foreign languages,
Nigerian languages as L1 and Nigerian languages as L2. Curricula and teaching materials have been
developed for each of these groups. Nigeria now has an explicit national language policy. But Nigeria
has made a number of explicit statements about the language issue in the policy (Emenanjo, 1992). The
implicit national language policy in Nigeria stipulates:
1. the use of Nigerian languages in formal and non-formal education;
2. the study and use of the developed Nigerian languages as co-official languages with English;
3. the study of all Nigerian languages as subjects and as media of instruction at certain levels of
formal education;
4. the study of French and Classical Arabic as electives at all levels of formal education;
A major constraint has been the inadequate numbers of teachers to teach the four groups of
languages. Even where teachers are available, the methods adopted in teaching the language curricula
rely heavily on a traditional grammar approach. There is also a dearth of language instructional
materials. All these contribute to the low level of implementation leading up to poor results and a very
low level of communication skills.

4. Curriculum and Teaching Methods

Curriculum analysis shows that, on paper, the learning experiences that are provided the Nigerian
Child from basic through higher education are rich and varied and capable of meeting the immediate
future needs of the children. Primary, secondary and higher curricula are generally regarded as superior
to those of Sub-Saharan Africa. However, the curriculum of Nigerian schools are over ambitious,
resulting in “overload”, and insufficiently attuned to the needs of the labour market, particularly in pre-
vocational and vocational/technical courses.
The data on learning achievement of pupils in primary and secondary schools have been a huge
gulf between the intended curriculum and what the pupils actually learn. It important here to highlight
the failings in pedagogical methods, which in turn reflect the poor training received by most teachers.
Classroom transactions optimally have four dimensional character, involving interactions between
teacher and pupil, pupil and pupil, teacher and material, and pupil and material. What predominates in
most Nigerian classrooms, from primary through to postgraduate level, is the unidirectional lecture
mode, with minimal use of materials, questioning of teachers or pupil – pupil interaction. At
operational stage of cognitive development where most primary and secondary school students belong,
this mode of instruction, which amounts to rôte learning, contraindicates meaningful learning. This can
be traced to poor quality preparation and resource inadequacy.

5. Content of the Curriculum and Reading Skills

Changes in the content of the curriculum had always been focused on that fact that every Nigerian
should be able to read and write with understanding, and to apply such skills acquired to his/her daily
life and to continue learning using the written word. However, there is a fall in reading ability in
Nigerians today and there is a big gap between the knowledge taken away from primary to secondary
school. The assumption from the syllabus is completely eroded and once the foundation is weak, it
affects all other aspects. This has started having effect on the educational system and now a diversion
to social activities like watching television is leading to things not too elegant or productive.
A survey of most public schools in Nigeria revealed that only 30% of the pupils had access to
textbooks; a factor that greatly limits the arousal of curiosity, the acquisition of knowledge and early
introduction of numbers and letters. Up till now, the Nigerian curriculum does not recognize that the
teacher of reading has to be specially trained and since the teachers themselves are not up to the task,
they resort to old methods of teaching comprehension and vocabulary. There also no electronic gadgets
that aid reading and diction.
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6. Curriculum Innovations and National Manpower Needs
One major aspect of Nigerian education that has been quite often criticized is the curriculum. The early
critics include members of the Phelps-Stokes and Advisory Commissions who submitted their separate
reports in 1925. They observed that education in Africa generally had not been adapted to the needs
and aspirations of the people. It is quite difficult to advance with improving the processes and the
outcomes of educational quality without developing a comprehensive curriculum vision that justifies
why and what it is relevant and pertinent (basic and needed) to teach children and young people
according to an overall interpretation of societal expectations and demands. This interpretation is
always subject to debate and controversial, and is deeply grounded in historical, ideological and
political concerns and arguments. A good example is the passionate discussion about the objectives
and the content of national history lessons in secondary education, particularly in post-conflict societies
like Nigeria. For as late as the 1960s, education in African schools, particularly in Nigerian grammar
schools, was still "too literary; not practical, not adapted to the needs of a developing agricultural
nation." It was observed, for instance, that the education Nigerians received was meant to serve
colonial purposes. This type of academic education only tends to produce proud, lazy people who
dislike manual labour and prefer white-collar jobs (Ajayi, 1963). This assertion by Ajayi (1963) is
representative of the opinions of later critics on African education curricula generally. The flaws in this
aspect of African education have been traced to missionary influence.
The National Curriculum Conference of September 1969 was the first attempt by Nigerians to
formulate a school curriculum that is relevant to the goals, needs and aspirations of Nigerians. Today,
all educational authorities in Nigeria are aware of the pressing need to relate our curricula, at all levels
of education, to our national man-power needs. Unfortunately, 46 years after independence, none of the
stated goals has been fully achieved. These goals are centred on achieving some national objectives
through the instrumentality of education, such as: the development of a free and democratic society; a
just and egalitarian society; a great and dynamic economy; and a land of bright future and opportunities
for all (Soyombo, 2007). The new curriculum is content-driven and examination centred. Teachers’
efforts are geared towards covering the content of the curriculum within approved time frame of the
school calendar. Both the teacher and the student work towards ensuring that the examination syllabi
are covered.
Oduolowu (2001) observed that there are strands of evidence of lack of creativity in Nigerian
child. The issue is, will the Nigerian children be able to cope with the work-force of the twenty-first
century which require manipulative skills and a much great ability to solve problems on their own than
it has been in the past. No positive impact of whatsoever will be made with system that promotes
theoretical knowledge, places emphasis on paper certification rather than stressing the development of
innate abilities in a learner evolving through training or practice. In a nutshell, there exists an
aberration in policy formulation and implementation. That is to say, that the need to revisit the policy
becomes necessary, hence the urgent need to save our educational system from the gully of
irrelevances and hopelessness. This demands a new surgical operation under this democratic
dispensation. Thus, the need for curriculum transformation becomes imperative. Bolaji, Stephen
(2007).

7. Problem with Implementing New Curriculum

The problem is not only related to the redefinition of the traditional boundaries among disciplines in
response to the changing epistemological nature of how knowledge is constructed, validated and finally
applied in daily life, but also about how the new knowledge organization really affects the processes of
teaching and learning in the classroom. For example, a social sciences syllabus would surely be a better
way of sharing with students more comprehensive frames of reference in order to understand the world
they live in than a traditional syllabus based on history and geography as separate and disconnected

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subjects. But it could also generate a lot of confusion and uncertainty if teachers and heads of
department oppose the new syllabus and do not even try to understand it (Bolaji, 2007).
There is also problem associated with overloading of the curriculum and curriculum content
because of the high number of subjects that must be taken by students for their certification.
Overcrowded classes and timetable became pronounced as a result rapid population change in Nigeria.
An average classroom in the primary or JSS contains 70 to 120 pupils at any given time. This puts
added stress on school personnel, resources and school scheduling, teacher workload, classroom
management and the maintenance of order and discipline. There is strain on teachers, learners and
material resources of the school. One of the biggest obstacles to enhancing technological literacy in the
Nigeria is the limited amount of high-quality instructional materials to cope with the curriculum.
Although some good materials have been developed, the developers do not have the sustained funding,
time, or expertise to disseminate their work to a broad audience. Some teachers, education researchers,
and curriculum developers have created interesting and effective approaches to engaging students in
technology and design activities, but most of them are known only in the school or school system
where they originated. Paucity of textbooks and other learning aids is another problem. The problems
of book scarcity and the cost have hindered the successful implementation of many laudable
educational programmes and curriculum projects (Ivowi, 1998). To teach a new curriculum at all levels
of education, the teachers or instructors currently employed by the Government have to receive further
training in teaching the new body of knowledge. Most of the teachers are not qualified to teach the
subjects introduced in the new curriculum. In addition, new experts have to be trained locally or abroad
while some experts have to be recruited from abroad in such disciplines where no qualified Nigerians
are yet available. All these projects depend on the availability of funds and unfortunately, the picture
today is that funds are not sufficiently available for the kinds of curriculum innovation activities
described above; therefore the National Policy on Education has not been fully implemented.

8. Recommendations and Conclusion

Curriculum renovation that is realistic and child-centred, that is quick in rejuvenating and revitalizing
hope and passion for acquisition of broad-based knowledge that is worthwhile in a learner should be
the focus of the structure. Methodology that will aid self discovery and problem-solving ability which
allows learners the opportunity for creativity should be entrenched in the curriculum. Quality and
relevance are the two features that curriculum development in Nigeria now needs. Equally, changes
and innovations of a school system of our globalized environment must involve the emergence of
elastic curricula models and educational policies which emphasize interdisciplinary courses, open-
ended systems, inter-generational and inter-professional relationships, multi-culturalism and
sustainability. The need for a paradigm shift from theoretical and paper certification to a practical
application of knowledge necessary for future employment and skills development for self employment
should be the cardinal objectives of Nigerian education. Curriculum developers should also adopt the
interdisciplinary approach to curriculum especially at the primary and junior secondary school levels.
Emphasis should be on the changing needs of the society through reliance on the understanding and
application of new technologies. Finally, to teach a new curriculum at all levels of education, the
teachers or instructors currently employed by the Government have to receive further training in
teaching the new body of knowledge. In addition, new experts have to be trained locally or abroad
while some experts have to be recruited from abroad in such disciplines where no qualified Nigerians
are yet available.

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