This study, based on data from a 1997 survey of 54 Nigerian primary schools and their client communities, was commissioned in order to assist the National Primary Education Commission (NPEC) in improving primary education services. Stakeholders consulted included parents, pupils, teachers and head teachers, community leaders, educational administrators, and supervisors in the target school areas. Serious problems were identified in the following areas: (1) infrastructure: classroom space and facilities were found to be inadequate and in poor repair, with insufficient funds to maintain facilities or obtain supplies; (2) instructional materials: textbooks supplies were inadequate; (3) staff conditions and training: many teachers lack minimum qualifications for primary school teaching--teacher morale is eroded by low pay, poor working conditions and inadequate facilities, gender imbalances in staff cadres, and wholesale staff transfers; (4) enrollment, attendance, and retention: regional imbalances in enrollment were found; (5) funding: tension exists between Local Government Areas (LGA) and the State Primary Education Boards that control federal funds for salaries and operational costs--local governments feel disenfranchised from control of schools and educational resources made available for their areas; and (6) community participation: while financial needs for building repairs and supplies are frequently met by parent and community-based organizations, economic differentiation results in inequitable community involvement. Wealthy families often abandon public primary schools in favor of private education. Recommendations are made for improvements to be made in each of these areas. (MM)