OPINION: INVESTIGATION Promises Unkept: El-rufai's Education Reforms, Political Legacy, and the Unseen Burden on Uba Sani (Series 1) By Shamsuddeen Suleiman Malami

Mallam Nasir Ahmad el-Rufai 


"Malam Nasir El-Rufai: A man of intellect and strategic acumen, he built a reputation as a reformer, earning national recognition through various political appointments and governance roles. His tenure as Minister of the Federal Capital Territory (FCT) cemented his image as a no-nonsense administrator, one unafraid of bold decisions."



Introduction: The Man, His State, and the Promises Made

In the landscape of Nigerian politics, few figures command attention like Malam Nasir El-Rufai. A man of intellect and strategic acumen, he built a reputation as a reformer, earning national recognition through various political appointments and governance roles. His tenure as Minister of the Federal Capital Territory (FCT) cemented his image as a no-nonsense administrator, one unafraid of bold decisions.


When he assumed office as Governor of Kaduna State in 2015, El-Rufai positioned himself as a visionary leader determined to reshape the state. With promises of infrastructural renewal, economic growth, and educational transformation, he projected an image of competence and efficiency. His administration made sweeping reforms, particularly in education—claiming to fix a broken system through mass teacher recruitment, school renovations, and increased budgetary allocations.


But did these policies truly uplift Kaduna’s education sector, or did they mask deeper structural failures? Were the promises fulfilled, or were they merely strategic political maneuvers?

LGEA Primary Sch. Faki


This investigation peels back the layers of El-Rufai’s education policies, examining the reality behind the figures, contracts, and political rhetoric. As his successor, Uba Sani, takes the reins, he inherits not just a system in transition, but a legacy filled with both ambitious reforms and unresolved burdens.


Teacher Recruitment and Mass Dismissals: Reform or Disruption?


One of the most defining and controversial moments of El-Rufai’s education reform was the mass dismissal of over 22,000 primary school teachers in 2017. Branded as “unqualified” after competency tests, the mass sack was justified by the administration as a necessary step to improve educational quality. However, the move sparked outrage, with critics arguing that it was a politically motivated purge rather than a genuine reform.


In their place, the government recruited over 20,000 new teachers, claiming they met higher standards and would drive educational progress. But did this policy achieve its intended goal, or did it leave Kaduna’s education system in deeper crisis?


A First in Nigeria’s History?


While some states in Nigeria have dismissed teachers over incompetence, no other state has carried out mass sackings at the scale of Kaduna’s under El-Rufai. A comparison with similar actions in other states reveals a stark contrast:


Edo State (2014) – Under Governor Adams Oshiomhole, competency tests were conducted, but most failing teachers were retrained instead of dismissed.


Ekiti State (2015) – Governor Ayo Fayose dismissed only 500 teachers for certificate fraud, rather than mass incompetency.


Bauchi State (2017) – A competency test was held, but the government opted for retraining rather than mass firing.


Kano State (2016) – Governor Ganduje dismissed some teachers but reassigned others to non-teaching roles instead of outright termination.


Unlike these states, Kaduna dismissed its teachers in one sweep, without considering alternative solutions. This decision was not only disruptive but also politically costly, leading to long-term consequences that continue to haunt the state.


The Fallout: A System in Crisis


While the government promised that the new teachers would improve education quality, investigations on the ground revealed deep flaws in implementation:


1. Delayed Deployment – After recruitment, many new teachers were not deployed immediately, leaving thousands of classrooms empty and disrupting learning for months.


2. Quality Concerns – Some dismissed teachers had decades of experience, while many new recruits lacked the practical teaching skills needed for effective education. Interviews with parents and students revealed that in some areas, learning conditions worsened.


3. Salary Delays & Frustration – Many new recruits faced months without pay, forcing some to quit or find alternative jobs.


4. Security Concerns in Rural Areas – In places like Giwa, Birnin Gwari, and  Kajuru, where insecurity is rampant, many new teachers refused to report to their assigned schools. As a result, somee communities had to hire local volunteers to fill the gap left by dismissed teachers.


A resident from Giwa LGA lamented:


> “We waited for new teachers, but none came. Our children sit in classrooms without anyone to teach them. In the end, we had to employ local graduates to teach them.”

 

Despite these issues, El-Rufai defended his decision, insisting that quality education required competent teachers. In 2017, he stated:


> “We will recruit as many qualified teachers as we can find. We will not keep unqualified teachers on our payroll.” – Premium Times, 2017


But the reality on the ground showed a different picture—where classrooms remained empty, students struggled, and the education sector suffered a shock from which it has yet to recover.


Key Takeaway: Reform or Political Gamble?


While the idea of raising teaching standards was laudable, El-Rufai’s approach was abrupt, poorly managed, and left more problems than solutions. The teacher crisis was not just about competency—it was about political power, budget cuts, and a rushed reform that ignored long-term consequences.


His successor, Governor Uba Sani, now faces the burden of addressing these gaps. With thousands of schools still lacking teachers, the legacy of El-Rufai’s mass dismissals lingers, raising the question: Was this truly an education reform, or just another politically motivated gamble?


Budgetary Allocations and School Renovations: Where Did the Money Go?


Throughout his eight-year tenure, Nasir El-Rufai consistently allocated a significant portion of Kaduna State’s budget to education, branding it as his administration’s flagship sector. By 2023, the total spending on education had reportedly reached ₦367.76 billion, a staggering sum meant to overhaul infrastructure, recruit teachers, and improve learning conditions.


A substantial portion of this budget—₦60 billion—was earmarked for the renovation of 4,250 schools across the state. The plan, first announced in 2017, aimed to replace dilapidated classrooms, provide furniture, and upgrade sanitation facilities. However, by the time El-Rufai left office in 2023, field investigations revealed a stark contrast between official reports and actual project execution.


The Reality on the Ground


Investigations across Giwa, Makarfi, and Zaria LGAs uncovered multiple irregularities:


Abandoned Projects: Schools listed as "renovated" in government records were, in many cases, only partially completed or entirely untouched. For example, in Giwa LGA, a primary school that was supposed to be refurbished in 2021 remained a crumbling structure with students still learning under trees.


Substandard Construction: Even where renovations were completed, they often involved poor-quality materials. A school in Makarfi LGA, reportedly renovated in 2020, already had cracked walls and a leaking roof within two years.


Urban vs. Rural Disparity: While urban centers like Kaduna North saw the construction of multi-story school buildings, rural communities in Giwa, Birnin Gwari, and Kajuru were left with overcrowded and poorly maintained schools.


A local teacher in Zaria LGA put it bluntly:


> “We were told that our school was renovated in 2022, but what did we get? A fresh coat of paint on a building with no desks, no doors, and no teachers.”


Comparisons With Other States


Kaduna’s school renovation spending appears even more questionable when compared to similar projects in Lagos and Ekiti States.


In Lagos State, under Governor Babajide Sanwo-Olu, the EKOEXCEL program spent ₦11.5 billion between 2019 and 2022 to renovate 1,036 schools—an average of ₦11.1 million per school.


In Ekiti State, Governor Kayode Fayemi allocated ₦16 billion for education infrastructure between 2018 and 2022, renovating 600 schools—averaging ₦26.6 million per school.


In contrast, Kaduna reportedly spent ₦60 billion for 4,250 schools, averaging ₦14.1 million per school, but with far worse outcomes.


Despite Kaduna spending more than Lagos and Ekiti in total, many schools remained in disrepair, raising concerns about mismanagement, inflated contracts, and political optics.


Who Benefited?


A deeper dive into the contracts awarded for school renovations in Kaduna suggests a troubling pattern:


Several contracts were awarded to firms with no proven track record in school construction.


Some companies received multiple contracts at inflated rates.


In several cases, projects remained incomplete despite full payments being made.


For instance, in 2020, the Kaduna State Government awarded a billions of contract to renovate over 200 schools, yet by 2023, many of these schools were still in disrepair. Similar cases occurred in 2021 and 2022, where contracts worth billions were issued, but results on the ground failed to match expectations.


A Political Strategy Rather Than Genuine Reform?


The pattern of prioritizing urban schools for high-profile projects while neglecting rural areas suggests that these initiatives were driven more by political optics than by a genuine commitment to educational reform.


A school administrator in Makarfi LGA described the situation:


> “The government builds fancy schools in the city to show on TV, but here in the villages, we’re left with half-completed classrooms and no chairs for students.”


The selective execution of projects, combined with excessive spending and incomplete renovations, raises serious accountability questions.


While El-Rufai’s administration touted education as a major success, the reality suggests systemic failures, financial mismanagement, and misplaced priorities. The ₦60 billion renovation plan remains one of the most questionable legacies of his tenure, with thousands of children still learning in inadequate conditions despite the enormous budgetary allocations.


As Governor Uba Sani takes over, he faces a critical decision:


Will he audit these projects and hold contractors accountable?


Or will he ignore the discrepancies and continue the cycle of unkept promises?


With Kaduna’s education sector still in crisis, the next steps taken by his administration will determine whether real reform is possible or if these failures will simply be swept under the rug.

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Reported Cases


Several reported cases shed light on the mismanagement and substandard execution of educational projects during El-Rufai's tenure as Governor of Kaduna State. These cases not only highlight the administration’s failure to meet its promises but also raise questions about the integrity of its handling of public funds and the overall effectiveness of its educational reforms.


1. Malam Jalo Model Primary School


A particularly concerning case is that of Malam Jalo Model Primary School in Igabi Local Government Area. Initially, the design for the school included a well-planned L-shaped building, but this was altered following directives from the Kaduna State Road Agency, resulting in two separate blocks instead. The project remains incomplete to date, with classrooms lacking ceilings and terrazzo flooring, and evident signs of neglect and vandalism.


Munnir Othman, the Director of Project Management at the Kaduna State SUBEB, confirmed that none of the five projects under his supervision had been completed. According to a report, a community elder expressed concern over the state of the school, particularly during the rainy season when students have to learn under half-constructed, abandoned structures.


> "The teachers have to combine some classes, about 200 of them, into one classroom," said Umar Usman, a father of a primary four student, describing the dire situation at the school.


2. Government Junior Secondary School (GJSS) Television, Chikun


Another example involves Government Junior Secondary School in Chikun LGA, where a block of four classrooms, built at a cost of ₦11.724 million, began deteriorating almost immediately after completion. Reports indicated that the classrooms suffered from leaking roofs, faulty terrazzo flooring, and substandard doors. The construction was not only poor, but there was also a noticeable lack of transparency. The project had no signpost to indicate who the contractor was, and no documentation was provided to the school for review.


As described by a staff member at the school:


> “There was no time anyone came to the school for fact-finding or need assessment. They just told us they would be building a block of four classrooms, but they didn’t provide any documents or put up any signposts to explain what was going on. You can see the sagging roof, the poorly finished terrazzo, and bad doors, all signs of poor supervision on the part of the implementing agency.”


Further investigations revealed that the new classrooms soon began leaking, with windows and doors coming off the frames shortly after the project was “completed,” despite the issuing of a certificate of completion by the relevant ministry. This highlights the systemic failure to ensure quality control and accountability during the project’s execution.

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Financial Allocation for School Renovations


Throughout El-Rufai’s administration, the allocation of substantial budgets for educational reforms was a prominent feature. However, the reality on the ground often failed to reflect the magnitude of the funds disbursed, raising critical questions about the management and oversight of the educational sector’s finances.


The ₦6 Billion Allocation for Renovating 602 Schools


In 2016, the Kaduna State government earmarked ₦6 billion for the renovation of 602 schools as part of a broader effort to modernize the education sector. This initiative was intended to address long-standing infrastructural deficiencies, such as dilapidated classrooms, a lack of basic amenities, and overcrowded learning environments.


However, several investigations have raised concerns about the efficient use of these funds. For instance, the MAWA Foundation reported in 2021 that Government Secondary School in Kahugu, Lere Local Government Area, remained in deplorable conditions despite the budgetary allocation for renovations. Students continued learning in dilapidated structures with no basic amenities, suggesting significant gaps between the allocated funds and the actual state of the school.


Additionally, a report from Premium Times highlighted that at Malam Jalo Model Primary School, the renovation was left incomplete, and classrooms still lacked basic facilities such as ceilings and terrazzo flooring, even though significant amounts of money had been allocated for the renovation. These findings cast doubt on the administration’s ability to deliver on its promises.

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Challenges with Transparency and Contract Awards


One of the most significant criticisms of El-Rufai’s administration was the lack of transparency surrounding the contractors responsible for these educational projects. The government’s failure to disclose crucial details such as the selection process, project costs, and the identities of the contractors involved fueled suspicions of favoritism and nepotism.


For example, Parkmore Construction Limited, one of the contractors involved in various educational projects, faced allegations of leaving several schools unfinished despite receiving payments for the work. In many cases, projects deteriorated shortly after completion, and there was no public disclosure of which firms were responsible for the substandard work. This opacity allowed contractors to operate with little accountability, raising concerns that the system was rigged to benefit a select few at the expense of public trust.

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Political and Social Implications of the Mismanagement


The administration’s approach to education also had significant political and social implications, with critics arguing that El-Rufai’s government prioritized political optics over substantive development. While large-scale renovations in urban areas attracted attention, critics, especially from rural regions like Southern Kaduna, pointed out that these areas were often left out of the government’s plans, perpetuating existing inequalities in the education system.


El-Rufai himself had once famously declared:


> “Education is the bedrock of development. We are committed to ensuring every child in Kaduna has access to quality education.”


However, the gap between these high-sounding promises and the reality on the ground was wide. The failure to address the needs of rural areas and to properly execute renovation projects undermined the administration’s credibility. This gap between rhetoric and action prompted widespread criticism, particularly from marginalized communities who felt further excluded from the benefits of state governance.


Defending Contractors or Avoiding Accountability?


The El-Rufai administration's reluctance to disclose contractor names or details further undermined public confidence in the system. In some cases, this reluctance appeared to shield politically connected firms from public scrutiny, allowing them to deliver subpar work without fear of repercussions.


At Government Junior Secondary School in Television, Chikun LGA, the classrooms deteriorated almost immediately after completion. This suggested that the project was less about providing long-term solutions to the educational infrastructure crisis and more about political posturing. Instead of building sustainable, high-quality schools, the focus seemed to be on quick fixes and visible projects that could be showcased to the public

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The Philosophical Lens


1. John Locke: The Social Contract and Public Trust


John Locke’s concept of the social contract, as outlined in Two Treatises of Government (1689), argues that the legitimacy of a government depends on fulfilling its obligations to the people. When it fails to meet these obligations, it breaches the social contract and loses its right to govern.


In the case of El-Rufai’s education reforms, the government’s failure to deliver on promised infrastructure projects constitutes a breach of this social contract. The promises of modernized schools and improved learning conditions created an implicit agreement with the people, particularly those in rural areas who had been neglected for years. Yet, the abandoned projects and incomplete renovations indicate a lack of fulfillment of these promises, leading to a loss of trust in the government’s ability to govern effectively.


As Locke writes, “The end of government is the good of mankind.” When a government fails to fulfill its obligations, it no longer serves the people’s best interests and risks losing its legitimacy. In the case of Kaduna, the failure to execute promised educational reforms has significant implications for the legitimacy of the administration and its successor.


2. Paulo Freire: Education as Liberation


Paulo Freire, in Pedagogy of the Oppressed (1968), emphasized that education is not merely a means of transmitting knowledge but a tool for emancipation. Freire argued that education should empower individuals to challenge systemic oppression and inequality.


In the context of Kaduna’s educational reforms, the failed school renovation projects represent a missed opportunity for education to function as a liberating force. Freire believed that education should help individuals break free from the constraints imposed by oppressive systems. In this case, the lack of proper educational infrastructure and resources in many rural areas meant that the reforms failed to provide the necessary tools for empowerment. As Freire wrote, “Education either functions as an instrument to bring about conformity or it becomes the practice of freedom.” The failure to implement meaningful educational reforms in Kaduna serves tor perpetuate, rather than break, the cycle of inequality and marginalization.


The Free Meal Program: A Political and Social Strategy


In 2016, Governor Nasir El-Rufai's administration launched a Free School Meal Program with the goal of addressing malnutrition among children while simultaneously improving school enrollment and attendance in public primary schools across Kaduna State. The initiative was widely touted as a progressive step in the state’s educational and social welfare landscape. However, as investigations into the program unfolded, it became clear that its true motivations were far more political, and its long-term effectiveness was questionable.


Political Motivations Behind the Free Meal Program


From the outset, El-Rufai framed the Free School Meal Program as a means of improving the future of children in Kaduna, stressing that the program was part of a larger effort to ensure the state's responsiveness to its citizens’ needs. In a 2016 speech, El-Rufai remarked:


> "This free school feeding program is not just about feeding children; it is a way of ensuring that the government is seen as responsive to the needs of the people and that the children are prepared for a brighter future."


However, political analysts argue that the initiative also served as a strategic move to consolidate El-Rufai’s political base, particularly as elections loomed. By providing tangible benefits to families—many of whom were struggling with poverty and food insecurity—the program served as a direct appeal to the electorate, generating goodwill ahead of subsequent elections. While this approach did garner support in some quarters, it also raised concerns about the sustainability of the program and the administration’s ability to deliver on such a large-scale welfare project.


Sustainability Challenges and Mismanagement


Despite its promising goals, the program quickly encountered significant challenges. One of the most glaring issues was the irregular distribution of meals. According to a report, the program suffered from inadequate funding, delays in food deliveries, and inconsistent meal quality. Local teachers and parents reported that, at times, students went without meals for days, leading to widespread dissatisfaction.


A teacher from Zaria Local Government Area offered this testimony:


> "The meals were irregular, and when they were delivered, they often arrived late or in insufficient quantities. In somewebsite  cases, students who depended on theyour  meals went without  food for days."


This inefficiency sparked concern among parents, local education authorities, and child welfare advocates, all of whom questioned the sustainability of a program that could not consistently deliver onits promises. If the program could not meet its basic logistical needs, its potential to alleviate long-term food insecurity and contribute to improved school attendance was put into serious doubt.


Comparing with National and International Welfare Programs


To better understand the broader context of El-Rufai’s free meal program, it is useful to compare it with similar welfare initiatives in other countries. India's Pradhan Mantri Ujjwala Yojana (PMUY), which provides free cooking gas connections to poor households, and Nigeria’s National Social Investment Program (NSIP), which includes a free school meal component, are instructive comparisons.


While both of these programs have faced criticisms regarding inefficiency and gaps in implementation, there are notable differences in how they were executed. The NSIP, in particular, has been better coordinated in some states, benefiting from improved financial backing and better monitoring. In contrast, El-Rufai’s meal program was hampered by logistical failures and administrative delays, raising questions about the government’s capacity to manage large-scale social initiatives.


Machiavellian Insights into the Free Meal Program


From a Machiavellian perspective, El-Rufai’s Free School Meal Program aligns with key elements of Niccolò Machiavelli's political philosophy, especially his advice in The Prince on maintaining political power through both popular and tactical means. Machiavelli famously wrote that a leader must be both loved and feared, and at times, must be willing to sacrifice ethical considerations for the sake of political stability.


In this light, the Free Meal Program can be seen as a tool to cement El-Rufai’s popularity among the electorate, particularly in rural and impoverished areas where hunger and malnutrition were prevalent. By appealing to the immediate needs of the people, the program allowed El-Rufai to bolster his image as a responsive and caring leader.


However, Machiavelli also warned that "the ends justify the means"—an approach that often entails focusing on short-term political gains at the expense of long-term goals. While the Free Meal Program may have helped El-Rufai gain political traction, the administration’s failure to address its logistical issues and the limited impact on the root causes of hunger and poverty exposed the program’s vulnerabilities.


In this context, El-Rufai’s handling of the Free Meal Program highlights the tension between political expediency and effective governance. As Machiavelli observed, appearances can often deceive the public, and while the program may have served El-Rufai’s political interests in the short term, its long-term legacy may be marred by inefficiencies and unfulfilled promises.


The Free Meal Program in Kaduna State illustrates the complexities of balancing political objectives with the genuine welfare of the populace. While the initiative was heralded as a significant step towards addressing child malnutrition and school attendance, its implementation and sustainability were hampered by administrative shortcomings, logistical delays, and mismanagement. Moreover, its political undertones suggest that it may have been as much about consolidating political power as it was about improving the lives of children.


When viewed through the lens of political philosophy, particularly Machiavelli’s concepts of power and governance, the program’s dual purpose becomes clearer: to enhance El-Rufai’s political standing while simultaneously addressing a genuine social need. However, the failure to ensure the program’s long-term effectiveness raises important questions about the ability of the administration to transform these short-term wins into lasting improvements in the state’s education and welfare systems.


Conclusion: A Legacy of Broken Promises


El-Rufai’s education reforms promised transformation but left behind unfinished projects, neglected rural schools, and a flawed Free Meal Program. While some urban areas saw improvements, the reality for many students was a system still failing them.


Beyond infrastructure, the Kaduna State Scholarship Program—intended to ease financial burdens—became a symbol of mismanagement and neglect. Under Hassan Rilwan’s leadership, students faced bureaucratic hurdles, rising tuition costs, and an administration indifferent to their struggles.


As this investigation continues, the next series will expose the failures of the scholarship program, highlighting how broken policies and financial mismanagement deepened educational inequality. For many students in Kaduna, El-Rufai’s reforms remain a promise unkept.


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Disclaimer:


The budgetary data presented in this investigation is based on available information from publicly accessible reports, media outlets, and government statements. While we have made every effort to gather accurate and reliable data, some specific figures, particularly for previous years (2015–2021), could not be sourced directly from official documents. As such, this analysis relies on secondary sources and publicly reported figures, which may vary in accuracy and completeness.


We recommend that readers consult official government budget reports or directly contact the relevant state authorities for the most precise and up-to-date information on Kaduna State’s budgetary allocations, particularly in relation to education.


WRITTEN 

Shamsuddeen Suleiman Malami, Graduate of Mass Communication. Youth, Social and political advocate and analyst. 

He writes from Zaria, Kaduna State

E-mail: shamsuddeensmalami@gmail.com

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