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This study looks at the impact of appointing non-substantive heads to positions of management who then rely on referral system for their decision making. Such a practices produces 'heads' who view policy as an end in itself with a high degree of rigidity in their administrative duties. This also breeds some toxic leadership which affects the overall performance of public institutions like tertiary entities that require some autonomy in their governance so as to promote research, innovation and good governance. Major aspects covered in this study can be generalized to other environments.