Dual mandate policy

•Lifeline for Nigeria’s struggling colleges of education

From Fred Ezeh, Abuja

Nigeria’s teacher education system is facing one of its most challenging moments in recent history. With enrolment into colleges of education declining steadily and fears mounting over a looming shortage of qualified teachers, stakeholders are increasingly looking to the Federal Government’s dual mandate policy as a critical intervention to reverse the trend.

The concern came into sharper focus during the recent annual policy meeting convened by the Joint Admissions and Matriculation Board (JAMB), where heads of tertiary institutions and other key education stakeholders reviewed admission statistics and charted a path forward.

Data presented at the meeting painted a troubling picture. According to JAMB, candidates are showing diminishing interest in pursuing the Nigeria Certificate in Education (NCE), the traditional qualification offered by colleges of education. The figures reveal a worrying trend.

In the 2024 admission cycle, colleges of education were allocated admission quota of 230,657 for NCE programmes. However, only 20,992 candidates were admitted, representing just 9.1 per cent of available spaces, while over 209,000 admission slots remained vacant.

The situation was not significantly different in 2025. Out of an admission quota of 234,981, only 24,736 candidates secured admission, accounting for 10.53 per cent of the available spaces. The development has raised concerns within government circles and among education experts who fear that continued decline in enrolment could jeopardise the future of teacher supply in Nigeria.

Executive Secretary, National Commission for Colleges of Education (NCCE), Dr. Angela Ajala, recently sounded the alarm, warning that Nigeria could face a severe shortage of teachers within the next six years if urgent measures are not taken: “In some colleges, you find barely 30 students across 10 programmes. The attrition rate is alarming. If we do not act now, Nigeria may not have enough teachers in the near future.”

Government’s response

Faced with the declining fortunes of colleges of education, the Federal Government introduced series of reforms aimed at making teacher education more attractive. One of the most significant interventions is the phased implementation of the Dual Mandate Policy, a reform driven by findings that many admission seekers prefer bachelor’s degrees in education to the NCE qualification.

Government officials believe the policy has the potential to revive interest in colleges of education by expanding academic opportunities available to students.

Complementing the reform, Minister of Education, Dr. Tunji Alausa, announced at the 2026 JAMB policy meeting that candidates seeking admission into Colleges of Education would no longer be required to sit for the Unified Tertiary Matriculation Examination (UTME). Under the new arrangement, applicants will still undergo admission screening processes coordinated by JAMB, including verification of O’Level qualifications and other entry requirements.

The decision generated mixed reactions, with some critics arguing that exempting prospective NCE candidates from UTME could reduce academic standards and turn Colleges of Education into what they described as “dumping grounds.”

But Ajala argued that UTME is primarily a placement examination and should not be viewed as the sole determinant of a candidate’s academic potential: “What is UTME? It is a two-hour examination. It is not an achievement test. Decisions like these were not taken arbitrarily. They were based on evidence, data and projections about the future of teacher education in Nigeria.

“NCCE is engaging stakeholders on a more flexible and professionally responsive admission framework that would widen access while preserving quality. The goal is simple. We want to remove administrative barriers, not professional standards.

“Reforms aimed at increasing access would be accompanied by stronger quality assurance mechanisms. We are not lowering the dignity of teacher education. We are not lowering the quality of teacher preparation. We are not opening the door to mediocrity. “What we are saying is that a young Nigerian who is passionate about teaching should not be discouraged by avoidable administrative obstacles. Teacher education must become accessible, but not careless; flexible, but not weak; inclusive, but not substandard.”

Understanding dual mandate policy

Dual Mandate Policy allows qualified colleges of education to award both the Nigeria Certificate in Education (NCE) and Bachelor’s Degree in Education independently, ending years of dependence on university affiliations for degree programmes.

It reform derives its strength from the amended Federal Colleges of Education Act signed into law on July 24, 2023. Specifically, Section 9(3)(2)(c-d) empowers Academic Boards of Federal Colleges of Education to concurrently run NCE and degree programmes.

To facilitate implementation, the ministry directed all federal colleges of education to commence full implementation of the policy from the 2026/2027 academic session. While NCE programmes will continue to run for three years, graduates will have the opportunity to proceed seamlessly into degree programmes under a curriculum designed to ensure continuity and quality.

The National Universities Commission (NUC) and NCCE are currently collaborating to finalise modalities for implementation, including harmonisation of curricula and quality assurance standards.

Ajala said: “For many years, colleges of education were seen by some people as limited institutions. That perception is now changing. This is not a minor adjustment. It is a structural shift.

“It means a student who chooses a college of education today is not choosing a lesser path. It means colleges of education are being repositioned as stronger, more competitive and more attractive institutions for teacher preparation.”

Why the reform matter

Education stakeholders believe the Dual Mandate Policy offers several advantages. Beyond expanding access to higher education, it is expected to reduce pressure on universities, strengthen teacher specialisation, improve institutional autonomy and increase enrolment into teacher education programmes.

The policy is also expected to elevate the status of Colleges of Education and encourage more talented young Nigerians to consider teaching as a viable and rewarding career.

NCCE insists that the objective is not to erase the identity of colleges of education but to strengthen it. It noted that teacher education should no longer be viewed as a secondary pathway but as a professional and strategic route for national development.

The road ahead

While many stakeholders have welcomed the reforms, some believe more ambitious measures are needed to fully revitalise teacher education. Among the suggestions is a gradual reduction of admission quotas allocated to faculties of education in universities, thereby directing more prospective teachers to colleges of education.

Some experts even proposed the eventual transfer of all education programmes from universities to colleges of education, arguing that such institutions are specifically designed and equipped for teacher preparation.

Educationist, Mamuda Ishiaku: “The Dual Mandate Policy is a step in the right direction. If colleges of education can now award degrees, there is little justification for maintaining duplicate education programmes in universities. Such a move will reduce pressure on universities while enabling government to channel more resources toward strengthening colleges of education.

“Government must create attractive career opportunities, improve remuneration and provide better working conditions. When teaching becomes rewarding, more talented and passionate young people will be attracted to the profession.”