University of Nigeria Research Publications

UGWUANYI, Angela Nonyelum

Aut

hor

PG/MPA/89/8370

Title

Public Policy Implementation: A Case Study of Federal Low-Cost Housing in Anambra State

1979-1983

Facu

lty

Social Sciences

Dep

artm

ent

Public Administration and Local Government

Dat

e

September, 1992

Sign

atur

e

PUBLIC POLICY IMPLEMENTATION: A CASE STUDY

OF FEDERAL LOW-COST HOUSING I N ANAMBRA STATE

1979-1983

UGWUANYI ANGELA NONYELUM

(REG, NO. ~~ /~~A/89 /8370)

PUBLIC ADPlINISTRATION AND LOCAL GOVERNMENT

I N PARTIAL FULFILMENT FOR THE AWARD OF MASTER

I N PUBLIC ADMINISTRATION

AT

THE UNIVERSITY O F NIGERIA, NSUKKA

T H E S I S ADVISER: DR, B.C. NWANKWO

SUB-DEPARTMENT OF P U B L I C ADMINISTRATION

AND LOCAL GOVERNMENT, UNIVERSITY OF

NIGERIA, NSUKKA.

SEPTEMBER, 1992.

APPROVAL PAGE I P I Z E P = t X P I P I

PUBLIC POLICY IMPLEMENTATION: A CASE STUDY OF

FEDICRJL LOW-COST HOUSING I N ANAMBRA STATE

1979-1983

This Thesis has been approved by the S u b - D e p a r t m e n t

of Public A d m i n i s t r a t i o n and Local Government,

U n i v e r s i t y of N i g e r i a , Msukka.

DR. 8 eCe NWANKWO SUPERVTSOR

DR. C.E. EPlEZI COORDINATOR W PALG

I ' DEAN CF FACULTY i

x i

DEDICATION

! I

T h i s work i s d e d i c a t e d to my b e l o v e d I husband Mr. I s a a c Ugwuanyi and c h i l d r e n , e s p e c i a l l y i

I

Miss Nnenna and Chibu ike , Ugwuanyi for t h e i r I i I

m o t i v a t i o n , i n s p i r a t i o n and encouragemenb 4 They a l l e x h i b i t e d s i n c e r e m a t u r i t y and

unders tand ing and b o r e m y abmence w i t h p a t i e n c e

throughout t h e p e r i o d of my etudy.

ACKNOWLEDGEMENT

I wish t o e x p r e s s my immense g r a t i t u d e to God

f o r g i v i n g me h e a l t h and w i l l power to embark o n t h e

programme,

I wish t o e x p r e s s my a p p r e c i a t i o n t o my s u p e r v i s o r

U r , B, C, Nwankwo whose co -ope ra t ion and i n t e l l e c t u a l

g u i d a n c e h e l p e d to p u t t h i s p r o j e c t i n t o shape , I

q u i t e a p p r e c i a t e h i s c o n s t r u c t i v e criticisms which were

v e r y u s e f u l f o r t h e e x e c u t i o n o f t h e p r o j e c t ,

My t h a n k s a l s o 20 t o t h e members o f s t a f f o f t h e

F e d e r a l M i n i s t r y o f Housing a n d Environment i3nuqu and

t h e U n i v e r s i t y of N i g e r i a L i b r a r y who s u p p l i e d mr w i t h

r e l e v a n t i n f o r m a t i o n and documents d u r i n g my f i e l d work,

I must n o t f a i l t o remember my c o l l e a g u e s l i k e

M r , Peter Lze of t h e School of P o s t g r a d u a t e z t u d i e s ,

U n i v e r s i t y of N i g e r i a idsukka and M r s . C, Gzueh of

R e q i s t r y . D c p a r t m e n t whose a d v i c e and encouragerncnt

s p u r e d m e u p t o u n d e r t a k e t h e c h a l l e n q e s of this k ind .

L a s t but n o t the least, I ant also i n d e p t e d t o my

P a r e n t s and r e l a t i o n s e s p e c i a l l y L j i k e and llchenna I.:z(?

f o r t h e i r f i n a n c i a l and moral s u p p o r t , t h r o u q h o u t t h e

d u r a t i o n o f t h e programme; and t o my t y p i s t Agbedo,

F l o r e n c e f o r h e r t y p i n g e x p e r t i s e , which l e d to t h e

s u c c e s s f u l p r o d u c t i o n o f t h i s work,

PREFACE

S e v e r a l p o l i c i e s h a v e b e e n p romulga ted t o a d d r e s s t h e

problem of s h o r t a g e of accommodation e s p e c i a l l y i n u r b a n

A r e a s i n N i g e r i a i n g e n e r a l a n d Anambra S t a k e i n

p a r t i c u l a r . I n s p i t e of a l l t h e efforts, i t is d i s c o v e r e d

t h a t most p o l i c i e s d i e a t t h e i m p l e m e n t a t i o n s t a g e .

I t i s a g a i n s t t h i s background t h a t a h i s p a p e r i s ou t

t o t a k e a close l o o k a t t h e h o u s i n g p o l i c y of t h e Second

R e p u b l i c w i t h a view to a n a l y s i n g a n d p o s s i b l y a p p r a i s i n g

s u c h h o u s i n g p o l i c y and t o make recommendat ions which w i l l

g r e a t l y e n h a n c e i m p l e m e n t a t i o n of f u t u r e h o u s i n g p o l k i e s .

A n a l y s i s w i l l b e r e s t r i c t e d t o h o u s i n g c o n d i t i o n s ,

h o u s i n g p o l i c y o b j e c t i v e s , imp lemen tak ion of h o u s i n g

p o l i c y and e v a l u a t i o n of i m p l e m e n t a t i o n p roces s .

The s t u d y i s d i v i d e d i n t o f i v e c h a p t e r s . C h a p t e r

o n e i n c l u d e ; I n t r o d u c t i o n , L i t e r a t u r e Review, Method of

d a t a a n a l y s i s a n d T h e o r e t i c a l Framework. C h a p t e r t w o

t a k e s a l o o k a t t h e a n a l y s i s of t h e c o n c e p t of p o l i c y

i m p l e m e n t a t i o n and a l s o t h e o b j e c t i v e s of N i g e r i a n

h o u s i n g p o l i c y of t h e Second Repub l i c . C h a p t e r t h r e e

l o o k s a t t h e p rob lems a n d p r o s p e c t s of F e d e r a l Low-Cost

Hous ing P o l i c y i n Anambra S t a t e . I n c h a p t e r f o u r , t h e

d a t a c o l l e c t e d a r e a n e l y s e d and t h e H y p o t h e s i s p o s i t e d

are tcs ted. C h a p t e r f i v e treats D i s c u s s i o n , C o n c l u s i o n

a n d Recommendation.

TABLE OF CONTENTS

CHAPTER OWE:

........ 1.1 Background o f the Study:

1 .2 Statement of Problem: . e . . e . . - ~ . o

1.3 Purpose of t h e Study: . . . . 1.4 S i g n i f i c a n c e of the Study: ....o. 1.5 Scope of the Study: .............. 1.6 Hypotheses: ......................

.............. 1.7 L i t era ture Review:

1.8 Hethod of Data Co l l ec t i on t ...... 1.9 Theoret ica l Framework: .......~~~ CHAPTER TWO:

PUBLIC POLICY IMPLEMENTATION AND

ANALYSIS: ;e.....e.......eee.e...

2.1 Concept of P o l i c y Implementation:

2.2 Nigerian Housing P o l i c y 1979-1983:

PAGE - i

ii

iii

PAGE - CHAPTER THREE:

.F.EDEML LOW -COST HOUSING POLICY I N

ANAMBRA STATE - PROBLEMS AND PROSPECTS:

3.1 ~ d m i n i s t r a t i v e Problems: . . . . . . . ... 3.2 Environmental Constra int s : . . . . 3.3 S o c i o - P o l i t i c a l Problems: ....... 0.

3.4 Economic Problemst .... .... ........ 3.5 I n f r a s t m c t u r a l Canstra int s s ... .. CHAPTER FOURS

4 .1 T e s t i n g of Hypotheses: .. . r

CHAPTER FIVQ:

DISCUSSIONS, CONCLUSION AND RECOMMENDATIONSS 99

5.1 Discuss ions : 99

5.2 Conclusion: ....................... 117

5.3 Reccmmendationsr ........~....~....

LIST OF TABLES

TABLE : - PAGE - 1 S h o r t f a l l on sectoral l e n d i n g t o

Housing sector by both cmmercial

and Merchant banks between 1979

and 1983: ....................... 2 Comparison of i n f l a t i o n rate and

l e n d i n g rate of i n s u r a n c e companies

between t h e y e a r s 1983-1985s 0..

3 Degree of a p p r e c i a t i o n shown by t b e

Low-income e a r n e r s who r e p r e s e n t t h e

p u b l i c for F e d e r a l Law-cost Housing

P o l i c y i n Anambra S t a t e r .e.ee..e

4 The e x t e n t of c o n s i d e r a t i o n g i v e n to

t h e i n t e r e s t of t h e b e n e f i c i a r i e s

w h i l e making a choice of t h e

c o n s t r u c t i o n sites: em..........e.

5 T h e i n f l u e n c e of s o c i o - p o l i t ical

i n t e r e s t o f t h e p l a n n e r s i n t h e

e x e c u t i o n of t h e F e d e r a l Low-cost Housing programme i n Anambra s t a t e s

TABLE s - 6 The e x t e n t , t h e a l r e a d y b u i l t houses

have he lped t o r e d u c e accommodation

problems i n Anambra states . . 77

Reasons for your r e s p o n s e to q u e s t i o n

number 6 as t o whe the r t h e houses

a l r e a d y b u i l t have s e r v e d t h e i r

proposed purpose of r e d u c i n g accomnoda-

t i o n problem i n Anambra States 81

The e x t e n t of c o n s i d e r a t i o n g i v e n to

t h e f i n a n c i a l p o s i t i o n of low-income

e a r n e r s i n t h e low-cost Housing p l a n

for owner-occupier houses t m m . m m m m . . . ~ 8 2

Reasons for n o t mee t ing t h e t a r g e t of 8000 low-cost hous ing u n i t s proposed for Anambra s t a t e : .m........m...mm.m..... 83

Opinion of t h e e x e c u t i v e s on whe the r

t h e low-cost Housing scheme i n Anambra

s t a t e was a d e q u a t e l y fundeds m m m m m . . . 86

The a v a i . l a b i l i t y Of l o c a l l y produced

b u i l d i n g m a t e r i a l s as i t a f f e c t e d t h e

' e x e c u t i o n of F e d e r a l law-cost housing

i n Anambfa S t a t e s . m m m m m m o m m m m . m m m . . . 88

Reasons for t h e n e g a t i v e r e s p o n s e t o

q u e s t i o n number 9 i n t h e q u e s t i o n n a i r e

as to w h a t a t t r i b u t e is gfiven to

l a c k of b u i l d i n g materials i n t h e

state: . o . . . . ~ . o o . o o o o o . o o ~ ~ ~ o ~ o ~ 91

13 G e n e r a l a s s e s s m e n t of t h e implementa-

t i o n of F e d e r a l low-cost Hous ing i n

Anambra s ta tes . . . . o ~ o . . ~ ~ . . . . ~ . ~ 94

14 T h e e x t e n t of c o n s t r u c t i o n work

done u n d e r c a t e g o r y 1 of t h e

F e d e r a l low-cost Hous ing i n Anambra

states 95

15 T h e e x t e n t of c o n s t r u c t i o n work

done u n d e r c a t e g o r y I1 i n t h e

state: . .~~~~~,~ .~~~~. .~ .~~~ . . . . . 16 The e x t e n t of work done u n d e r

c a t e g o r y 111s ...~..............o 17 Summary of t h e c o n s t r u c t i o n work

done i n t h e s t a t e as a wholes ,.

CHAPTER ONE

1.1 Backqround of t h e S t u d y

P u b l i c p o l i c y i s a v e r y complex p r o c e s s which

aims a t r e g u l a t i n g t h e economic a n d social deve lopment

of any c o u n t r y . One o f t h e i d e n t i f i a b l e c h a r a c t e r -

i s t ics of p u b l i c p o l i c y i s t h a t i t d e a l s w i t h a

v a r i e t y of sectoral i s s u e s which i n c l u d e d e f e n c e ,

h o u s i n g , h e a l t h , ~ g r i c u l t u r e and E d u c a t i o n t o men t ion

b u t a f e w . I n e s s e n c e , t h e ra te of deve lopment i n a

c o u n t r y depends l a r g e l y o n t h e c a p a b i l i t y , of t h e

p o l i c y making and i m p l e m e n t a t i o n mach ine ry o f t h a t

c o u n t r y . Undoubted ly , t h e q u a l i t y of human settle-

ment i n terms of h o u s i n g i n a n y area p r o v i d e s o n e of

t h e most v i s i b l e i n d i c a t o r o f t h e l e v e l o f deve lop-

ment i n t h a t c o u n t r y , hence , government of v a r i o u s

d e v e l o p i n g c o u n t r i e s s t r i v e h a r d to improve t h e

q u a n t i t y and q u a l i t y of h o u s i n g i n o r d e r to a t t a i n

t h e i m p r e s s i v e s t a n d a r d a l r e a d y a t t a i n e d b y most

d e v e l o p e d c o u n t r i e s .

I n N i g e r i a , t h e problem of h o u s i n g h a s r e a c h e d

a n ala 'rming s i t u a t i o n . A l a r g e p e t c e n t a g e of p e o p l e

i n N i g e r i a e s p e c i a l l y i n Anambra S ta te l i v e i n

2

s u b - s t a n d a r d , d e p l o r a b l e and u n s a n i t a r y r e s i d e n t i a l

env i ronmen t , T h e s e h o u s e s , though l i m i t e d i n number

l a c k n e c e s s a r y ammeni ties l i k e p i p e - b o n ~ e w a t e r ,

toi let f a c i l i t i e s , e l e c t r i c i t y and e v e n good roads.

T h i s s i t u a t i o n p o s e s a l o t of accommodation p rob lems

t o N i g e r i a n s t h a t some i n d i g e n t c i t i z e n s i n u r b a n

a r e a s have t h e i r shelter u n d e r b r i d g e s , f l y - o v e r s a n d

o t h e r p u b l i c p l a c e s , T h i s i s enough a problem t h a t

would s p u r u p t h e a c t i o n of t h e government ,

I t i s t h e n on a c c o u n t of ' t h i s a w f u l h o u s i n g

s i t u a t i o n i n t h e c o u n t r y t h a t o n e o f t h e p o l i t i c a l

p a r t i e s - t h e N a t i o n a l p a r t y o f N i g e r i a (N.P.N) i n

O c t o b e r 1979 p r e s e n t e d a n e l e c t i o n m a n i f e s t o which

f o c u s e d o n G r e e n R e v e l u t i o n and s h e 1 ter as i t s

c a r d i n a l programme. F o r t u n a t e l y , t h e p a r t y was

v o t e d i n t o power w i t h p r e s i d e n t Shehu S h a g a r i a t

t h e helm of affairs . I n l i n e w i t h t h e i r e l e c t i o n

p romise , t h e F e d e r a l Government set o u t a p o l i c y

t o p r o v i d e low-cost h o u s i n g u n i t s i n a l l t h e states

to ameliorate t h e h o u s i n g p rob lems of t h e low

income e a r n e r s , Both t h e F e d e r a l and S t a t e Govern-

men t s and p a r t i c u l a r l y t h e former g o t t h e m s e l v e s

commit ted t o t h i s programme,

However, before a n y p o l i c y i s f o r m u l a t e d by

t h e government , t h e r e i s u s u a l l y t h e e x i s t e n c e Of a

problem. A s R i c h a r d Ross p u t s i t , " p o l i c y i s made

when u n c e r t a i n t i e s a r i s e w i t h i n t h e p o l i t i c a l

s y s t e m a n d t h e s e u n c e r t a i n t i e s are r e s o l v e d by

government a c t i o n or inac t ionn . ' I t i s t h e n

p e r t i n e n t for u s t o u n d e r s t a n d t h a t a n a t i o n ' s

p roblem i s n o t s o l v e d by mere f o r m u l a t i o n of a

p o l i c y b u t by g e t t i n g t h e p o l i c y execu ted . Thus,

g w e r n m e n t s o l u t i o n t o a societal problem u n d e r g o e s

aeries of a c t i v i t i e s which i n c l u d e p o l i c y f o r m u l a t i o n ,

p o l i c y i m p l e m e n t a t i o n , p o l i c y m o n i t o r i n g and s u p e r -

v i s i o n and p o l i c y e v a l u a t i o n .

N e v e r t h e l e s s , e x p e r i e n c e and s t u d i e s have shown

t h a t i m p l e m e n t a t i o n , of a l l t h e p o l i c y p r o c e s s e s ,

p o s e s t h e g r e a t e s t p roblem i n p o l i c y accomplishment .

T h i s r e s u l t s i n t h e f a c t t h a t most p o l i c i e s e s p e c i a l l y

i n N i g e r i a s t o p a t i m p l e m e n t a t i o n s t a g e . A good

example c o u l d be> drawn f rom t h e U n i v e r s a l F r e e P r i m a r y

ducati ion i n t r o d u c e d i n N i g e r i a i n t h e y e a r 1976

wh ich was e x e c u t e d h a l f - w a y g i v i n g rise to numerous

s o c i e t a l problems* The c a s e of h o u s i n g p o l i c y which . i s t h e bone of c o n t e n t i o n of t h i s w r i t e u p i s

a n o t h e r l i v i n g example of l a x i t y i n p o l i c y

i m p l e m e n t a t i o n i n N i g e r i a .

I n f a c t , p o l i c y f o r m u l a t e d w i t h o u t b e i n g

implemented i s a s good a s a f l a s h y car w i t h o u t

w h e e l s and t y r e s t o move i t a b o u t ,

1.2 S t a t e m e n t of P r o b l e m s t

Hous ing problem i n many t h i r d w o r l d c o u n t r i e s

i n c l u d i n g N i g e r i a h a s b e e n a n i n t e r g r a l p a r t of t h e

g e n e r a l deve lopmen t problems, N i g e r i a ' s p o p u l a t i o n

i s g rowing a t a t r emendous rate y e a r a f t e r yea r .

I n d u s t r i a l i z a t i o n and r e s u l t a n t r u r a l - u r b a n migra-

t i o n h a v e a l so compounded t h e h o u s i n g s i t u a t i o n i n

t h e c o u n t r y ,

A l though t h e r e i s a r e l a t i v e i n c r e a s e i n t h e

l e v e l of c o n s t r u c t i o n w o r k w i t h gove rnmen t i n v o l v e -

ment s u p p l e m e n t i n g p r i v a t e sector ef for t , p e r p e t u a l

p o p u l a t i o n g rowth and c o n s e q u e n t i a l h o u s i n g demand

t e n d t o overwhelm a v a i l a b l e p r o p e r t y c a p a c i t i e s ,

R e n t s h a v e s o a r e d h i g h e r and h i g h e r i n a l l p a r t s of

t h e c o u n t r y , No a d e q u a t e a r r a n g e m e n t s h a v e been

made t o e n s u r e t h a t h o u s i n g f a c i l i t i e s expanded i n

l i n e w i t h t h e r a p i d l y g rowing p o p u l a t i o n ,

C o n s e q u e n t l y r a p i d u r b a n growth h a s s e r i o u s l y

a g g r a v a t e d t h e s h o r t a g e of d w e l l i n g , r e s u l t i n g i n

ove rc rowding , s lums and s q u a t t e r s e t t l e m e n t s . T o

crown i t a l l , same p e o p l e i n p l a c e s l i k e L a g o s and

~ b u j a are h a v i n g t h e i r s h e l t e r u n d e r B r i d g e s ,

f l y - o v e r s and o t h e r p u b l i c p l a c e s .

I t i s t h e r e f o r e clear t h a t t h i s s i t u a t i o n h a s

s t i m u l a t e d a l l t h e states i n c l u d i n g t h e F e d e r a l

Government t o embark on elaborate h o u s i n g p o l i c i e s

w i t h a v iew t o p r o v i d i n g accommodation f o r t h o u s a n d s

of p e o p l e b o t h i n u r b a n and r u r a l a r e a s . The F e d e r a l

Government e s t a b l i s h e d Housing C o r p o r a t i o n , i s s u e d ,

l o a n s and g r a n t s t o p e o p l e f o r b u i l d i n g h o u s e s and

a lso i n 1980 s h e embarked on a n e l a b o r a t e h o u s i n g

scheme p o p u l a r l y known as t h e F e d e r a l Low-cost

Hous ing Scheme.

D e s p i t e t h e s e m e a s u r e s to l e s s e n t h e problem,

t h e problem s t i l l p e r s i s t s . Cou ld t h i s p r o b a b l y

be a s a r e s u l t o f i n a d e q u a t e and mismanagement of

f u n d by t h e a u - t h o r i t y ? I s i t a s a r e s u l t of low

o r i g i n a l t e c h n i c a l s t a n d a r d of o u r c o n t r a c t o r s

6

c o u p l e d w i t h s c a r c i t y of b u i l d i n g materials? S h o u l d

t h e problem be a t t r i b u t e d t o l a c k of p r o p e r p l a n n i n g

and c o - o r d i n a t i o n by t h e actors? Is i t t h e outcome

o f o v e r - p o l i t i c i z a t i o n of i s s u e s by t h e N i g e r i a n

government or c o r r u p t i o n which i s i n h e r e n t i n N i g e r i a n

S o c i e t y ? S h o u l d i t be t h a t t h e former efforts made t o

s o l v e t h e problem w e r e n o t p r o p e r l y s u p e r v i s e d a n d

mon i to red?

I t is a g a i n s t t h i s background t h a t t h e r e s e a r c h e r

w a n t s to know t h e c o n s t r a i n t s of i m p l e m e n t a t i o n of

low-cos t Hous ing i n Anambra state.

1.3 P u r p o s e o f t h e S t u d y

T h e i s s u e of h o u s i n g p o l i c y i m p l e m e n t a t i o n ha.

r ema ined a s i c k baby i n Anambra ~ t a t e and i n N i g e r i a

i n g e n e r a l . From a n werview of t h e problem as w e l l

a s s t r a t e g i e s a n d p o l i c i e s p roposed e a r l i e r ; i t i s

e v i d e n t t h a t t h e N i g e r i a h o u s i n g problem is a c u t e ,

known b u t s e e n t o d e f y s o l u t i o n .

I t is my i n t e n t i o n based on t h i s o b s e r v a t i o n t o

c a r r y o u t a s t u d y w i t h a v i ew to examining t h e

i m p l e m e n t a t i o n p r o c e s s e s o f F e d e r a l Low-cost h o u s i n g

p o l i c y i n Anambra s t a t e and t o d e t e r m i n e t h e d e g r e e

o f s u c c e s s t h a t h a s been a t t a i n e d i n t h a t area. I

also w i s h to i d e n t i f y s t r a t e g i e s of t r a n s l a t i n g

p o l i c y i n t o a c t i o n a s i t a f f e c t s h o u s i n g and a lso

t o s t r e a m l i n e t h e p rob lems o f p o l i c y imp lemen ta t ion .

I n a t t e m p t i n g t o u n d e r s t a n d why p r e v i o u s

i m p l e m e n t a t i o n a t t e m p t s h a v e n o t a l w a y s a c h i e v e d

t h e i r g o a l s , a n d w h a t w o u l d be n e c e s s a r y t h e r e f o r e

for any f u t u r e reform effort t o h a v e more i m p a c t ,

t h i s p a p e r f o c u s e s on i n v e s t i g a t i n g i n t o a number

of f a c t o r s a f f e c t i n g a d m i n i s t r a t i v e i m p l e m e n t a t i o n

c a p a b i l i t y , which i n c l u d e t h e s c o p e a n d agenda of

i m p l e m e n t a t i o n and p o l i t i c a l and a d m i n i s t r a t i o n

s u p p o r t for it. P a r t i c u l a r a t t e n t i o n i s p a i d t o

p l a n n i n g for i m p l e m e n t a t i o n i n c l u d i n g o r g a n i z a t i o n ,

l e a d e r s h i p tact ics , t i m i n g , r e s o u r c e s and v a r i o u s . .

t e c h n i c a l c a p a b i l i t i e s .

F i n a l l y , i n my r e s e a r c h , efforts s h o u l d be made

t o d e t e r m i n e t o wha t e x t e n t c o n s t r a i n t s l i k e a v a i l a -

b i l i t y of f u n d s , a d m i n i s t r a t i v e c a p a c i t y , e n v i r o n -

m e n t a l p r e s s u r e a n d a v a i l a b i l i t y of b u i l d i n g

i n f r a s t r u c t u r e affect t h e s u c c e s s f u l i m p l e m e n t a t i o n

o f t h e low-cos t h o u s i n g scheme.

2.4 S i q n i f i c a n c e of t h e S t u d y

T h i s s t u d y i s n o t o n l y go ing to i d e n t i f y

problems t h a t m i l i t a t e a g a i n s t t h e implementa t ion

of housing p o l i c i e s b u t a l s o w i l l

t r y t o s t r e a m l i n e implementa t ion

s t r a t e g i e s a s t h e y a f f e c t p u b l i c p o l i c i e s .

Moreso, t h e s t u d y w i l l b e u s e f u l g u i d e to t h e

p o l i t i c i a n s of t h e T h i r d Repub l ic p o l i c y m a k e r s and

t h e s o c i e t y a t l a r g e . My f i n d i n g s and s u g g e s t i o n e

w i l l n o t o n l y h e l p t o shape t h e hous ing p o l i c y

implementa t ion i n t h e s tate b u t w i l l a lso h e l p t o

e n s u r e g r e a t e r s u c c e s s i n implementa t ion of such

i m p o r t a n t p o l i c i e s a s hous ing p o l i c i e s *

1.5 Scope of t h e s t u d y :

The s t u d y p r i m a r i l y focused on implementa t ion

o f F e d e r a l Low-cost Housing p o l i c y i n Anambra S t a t e .

The s t u d y c o v e r s t h e p e r i o d between 1979 and

1983 which marked. t h e e r a of t h e Second ~ e p u b l i c .

I t a l s o e x t e n d s to a l l t h e 23 local government

a r e a s t h a t make u p Anambra S t a t e .

1. 6 H y p o t h e s i s

1. The p r e v a i l i n g s o c i a l and p o l i t i c a l

Envi ronment f r u s t r a t e s t h e implementa t i o n

of Low-cost h o u s i n g p o l i c y .

2 . T h e i m p l e m e n t a t i o n of low-cost Hous ing

P o l i c y i s a f f e c t e d by i t s f i n a n c i a l

management p r a c t i c e s .

3 . The p r o d u c t i o n c a p a c i t y of i n d u s t r i e s t h a t

P roduce b u i l d i n g m a t e r i a l s i n Anambra S t a t e

t o a l a r g e e x t e n t a f f e c h t h e i m p l e m e n t a t i o n

o f low-cost h o u s i n g p o l i c y .

1.7 L i t e r a t u r e Review

One of t h e most s i g n i f i c a n t p rob lems d e v e l o p i n g

n a t i o n s have f a c d i n r e c e n t y e a r s h a s been f i n d i n g

effective ways of imp lemen t ing deve lopmen t p l a n s

and programmes. A s R o n d i n e l l i and I n g l e ( 1980: 1 0 )

n o t e , t h i s i s i n l a r g e p a r t d u e to d e a r t h of

knowledge aboir t programme i m p l e m e n t a t i o n and l a c k

of a t t e n t i o n g i v e n t o d e s i g n o f i m p l e m e n t a t i o n

s t r a t e g i e s b y p l a n n e r s and a d m i n i s t r a t o r s i n t h e

t h i r d w o r l d n a t i o n s .

Al though many .&her s t u d i e s have been done of

t h i r d w o r l d c o u n t r i e s governments , v a r i a b l e s t h a t

a r e c r u c i a l to programme i m p l e m e n t a t i o n i n d e v e l o p i n g

n a t i o n s , a s p o l i t i c a l w i l l , b u r e a u c r a t i c a t t i t u d e s and

b e h a v i o u r , c u l t u r a l norms, economic s t r u c t u r e , s p a t i a l

and p h y s i c a l sys t em of t e n w e n t u n e x p l o r e d ( ~ o n d i n e l l i

and I n g l e , 1980:$),

Bowden (1986) i n h i s w r i t e u p t i t l e d "The Review

of L i t e r a t u r e on implementa t ionvv . Summarized f i f t y

t w o p o l i c y i m p l e m e n t a t i o n p rob lems from I n d o n e s i a

Hous ing p r o j e c t s u n d e r e i g h t h e a d i n g s a s f o l l o w s ;

I n v o l v e m e n t / m o t i v a t i o n o f t h e t a r g e t group.

N e c e s s i t y for i n s t i t u t i o n a l or l e g a l change

C a - o r d i n a t i o n and co-opera t i o n be tween

c o n t r i b u t o r s ,

S y s t e m s f o r o n - s i t e managing of t h e p r o j e c t oif

Programme.

P o l i t i c a l w i l l or p o l i t i c a l c o n s e n s u s n e c e s s a r y

f o r t h e s u p p o r t of t h e programme,

M o n i t o r i n g and e v a l u a t i o n l e a d i n g t o r e - e v a l u a t i o n

and r e - d e s i g n i n g o f t h e p r o j e c t or programme.

Knowledge and a t t i t u d e o f t a r g e t g roup ,

A v a i l a b i l i t y of l o c a l c u r r e n c y f u n d s , 3

11

H e c o n t i n u e d t o l e t u s u n d e r s t a n d t h a t t h e .-

above e i g h t p rob lems a c c o u n t e d fo r a b o u t 35 p e r c e n t

of t h e i m p l e m e n t a t i o n p rob lems t h a t were men t ioned

i n h i s l i t e r a t u r e . H e a lso a t t r i b u t e d s l i g h t l y more

i m p l e m e n t a t i o n d i f f i c u l t y t o t h e p r o j e c t managers

t h a n d i d t h e m o n i t o r i n g r e p o r t s f rom I n d o n e s i a . H e

f u r t h e r d i s c o v e r e d t h a t o n l y 20 p e r c e n t of t h e

i m p l e m e n t a t i o n p rob lems l i e w i t h t h e p r o j e c t manage r ' s

o f f i ce w h i l e o v e r 50 p e r c e n t l i e w i t h o t h e r

imp lemen t ing u n i t s o u t s i d e t h e direct j u r i s d i c t i o n

of e i t h e r t h e p r o j e c t manager or h i s p a r e n t s agency

or m i n i s t r y ,

A n o t h e r s t u d y c a r r i e d o u t i n 1974 a n d 1975 b y

W i l l i a m s documented t h e r e s u l t of i n t e r v i e w s w i t h

o f f i c i a l s i n t h r e e l a r g e i n t e r n a t i o n a l a g e n c i e s .

I t a l s o drew on a n a l y s i s of s e l e c t e d i n t e r n a l

e v a l u a t i o n documents, The s t u d y i d e n t i f i e d 67

p rob lems i n p r o j e c t i m p l e m e n t a t i o n u n d e r s e v e n

main h e a d i n g s t h u s t

10 I n e f f e c t i v e p r o j e c t p l a n n i n g a n d p r e p a r a t i o n ,

2. F a ,.u l t y a p p r a i s a l and s e l e c t i n g p r o c e s s ,

3. D e f e c t i v e p r o j e c t d e s i g n ,

12

Prob lems i n s t a r t - u p and a c t i v a t i o n .

I n a d e q u a t e p r o j e c t e x e c u t i o n , o p e r a t i o n and

s u p e r v i s i o n ,

~ n a d & q u a t e or i n e f f e c t i v e e x t e r n a l c o - o r d i n a t i o n

of p r o j e c t a c t i v i tieso

D e f f i c i e n c i e s i n d i f f u s i o n and e v a l u a t i o n O f

p r o j e c t r e s u l t s and f o l l o w - u p a c t i o n , 4

However, u n l i k e t h e I n d o n e s i a n r e s u l t w h e r e

h i g h e r p e r c e n t a g e of p rob lems were a t t r i b u t e d t o

o t h e r imp lemen t ing u n i t s , t h e r e s e a r u h e r of t h e l a t e r

s t u d y a t t r i b u t e d h i g h e r p e r c e n t a g e of t h e p rob lems t o

a s s i s t a n c e a g e n c i e s of faci l i tators , The a n a l y s i s

a l so i n d i c a t e s t h a t common l o c a t i o n s of i m p l e m e n t a t i o n

p rob lems were i n t h e n a t i o n a l p l a n n i n g agency a n d

t h e M i n i s t r y o f f i n a n c e ,

I t i s p o s s i b l e t h e r e f o r e t o draw some common

c o n c l u s i o n , The most s i g n i f i c a n t o f c o u r s e , i s t h a t

a l t h o u g h t h e r e s u l t v a r y , t h e s t u d i e s P r o v i d e a s t r o n g

i n d i c a t i o n t h a t close to h a l f of t h e i m p l e m e n t a t i o n

p rob lems are s e e n t o l i e o u t s i d e t h e p r o v i n c e of t h e

p r o j e c t manager or h i s p a r e n t agency.

13

S t r e n (1980) l amen ted o v e r t h e i n a b i l i t y of

t h e v a r i o u s government i n M o 2 b a s a t o implement

p o l i c i e s t h a t would l e a d t o f i n d i n g l a s t i n g s o l u t i o n s

t o h o u s i n g problems.

H e w a s of t h e view .. t h a t t h e m a j o r c o n s t r a i n t s

i n t h e s u c c e s s f u l i m p l e m e n t a t i o n of t h e programmes

i n c l u d e s

1. Adjus tmen t f rom a d m i n i s t r a t i v e p r e s s u r e s f rom

p o l i t i c i a n s ;

2. P l a n n i n g w i t h a r b i t r g r i l y d e t e r m i n e d f i g u r e s .

3. F i n a n c i a l c o n s t r a i n t s .

4. T e c h n o l o g i c a l i m p e r a t i v e s and

5. Changes i n a d m i n i s t r a t i v e p e r s o n n e l . 5

S t r e n i n h i s few p o i n t s summar i led t h e major

p rob lems t h a t h i n d e r p r o g r e s s of i m p l e m e n t a t i o n o f

a n y p r o j e c t b u t h e however f o r g o t t h a t i n t h e a b s e n c e

of t h o s e c o n s t r a i n t s , c o r r u p t i o n c a n h a v e a v e r y

d e s t r u c t i v e e f f e c t on imp lemen ta t ion . S o i t i s

e q u a l l y i m p o r t a n t t o h a v e a m o n i t o r i n g agency to

check on t h e e x c e s s e s o f b o t h t h e p o l i t i c a l and

a d m i n i s t r a t i v e p e r s o n n e l t o a v o i d c o r r u p t i o n t a k i n g

i t s t o l l i n i m p l e m e n t a t i o n e x e r c i s e s .

N e v e r t h e l e s s , s t r e n t s work h a s a r e l e v a n t

i m p l i c a t i o n t o t h e i m p l e m e n t a t i o n of F e d e r a l Low-cost

Housing i n N i g e r i a , T h i s i s b e c a u s e t h e p o l i c y

w a s h u r r i e d l y made i n c o m p l i a n c e w i t h t h e e l e c t i o n

m a n i f e s t o of t h e N a t i o n a l P a r t y o f N i g e r i a (NPN) .

A S a r e s u l t , no p r o p e r p l a n n i n g w a s made a s t o t h e

a c t u a l f i n a n c i a l i nvo lvemen t a n d t e c h n i c a l e x p e r t s

r e q u i r e d . From t h e look of t h i n g s , i t i s j u s t l i k e

t h e work on t h e p r o j e c t s t o p p e d a s soon a s t h e

government who i n i t i a t e d i t l e f t r e f l e c t i n g t h e

e f f e c t o f change i n a d m i n i s t r a t i v e p e r s o n n e l ,

Obayiuwana (1986) i n a n a r t i c l e on WPublic

Housing P o l i c y - F o r m u l a t i o n and E x e c u t i o n M rev iewed

t h e h i s t o r y of hous ing p o l i c i e s i n N i g e r i a from t h e

c o l o n i a l p e r i o d to t h e p r e s e n t day. H e o b s e r v e d t h a t

i n s p i t e of v a r i o u s government e f f o r t s i n h o u s i n g

t h e r e were o b v i o u s loop-ho le s which h i n d e r e d p r o p e r

i m p l e m e n t a t i o n , H e summarized t h e p rob lems as f o l l o w s :

1. T h e cement armada which r e a r e d i t s u g l y head

i n p o r t c o n g e s t i o n .

2. T h e a d v e n t o f emergency c o n t r a c t o r s r e s u l t i n g

from i n a d e q u a t e t e c h n i c a l know-how?

3, ' S c a r e o f p r i v a t e l a n d l o r d s t h rough r e n t c o n t r o l

e d i c t s ahd c o n s e q u e n t d i v e r s i o n o f scarce

r e s o u r c e s t o f i e l d s o t h e r t h a n hous ing ;

15

P o l i t i c i s a t i o n of t h e low-cost hous ing programme

and c o n s e q u e n t p o o r l o c a t i o n and i n s e n s i t i v e

d e s i g n of h o u s i n g u n i t s and waste of f u n d s ;

Lack of p o l i t i c a l w i l l t o e n f o r c e t h e l a n d u s e

decree o f 1978;

Lack of f i n a n c i a l and p o l i t i c a l w i l l to e n f o r c e

t h e Employers Hous ing l i a b i l i t y Decree o f 1979;

I n e f f i c i e n t Government mach ine ry r e - d i r e c t

i n t e r v e n t i o n i n hous ing c o n s t r u c t i o n and t h e

r e l a t i v e h i g h cost of p r o d u c t i o n o f h o u s i n g u n i t ;

T h e f a c t t h a t s u b s i d i e s wen t t o t h o s e i n u p p e r

and middle socio-economic g r o u p s r a t h e r t h a n t h e

low-income e a r n e r s f o r who t h e y w e r e i n t ended .

Obayiuwana, a l so s u g g e s t e d t h a t government

s h o u l d set a framework w i t h i n which p e o p l e c a n h e l p

t h e m s e l v e s t o o b t a i n a f f o r d a b l e s h e l t e r . H e f u r t h e r

s u g g e s t e d t h a t t h e government s h o u l d d i sembark from

d i r e c t h o u s i n g c o n s t r u c t i o n and p u r s u e c o n s i s t e n t

h o u s i n g p o l i c y , based on a i d e d s e l f - h e l p .

However, Obayiuwana made a r e m a r k a b l e c o n t r i b u -

t i o n b a r d s s u c c e s s f u l i m p l e m e n t a t i o n of h o u s i n g

programmes i n N k g e r i a by d i s c o v e r i n g some phenomena

which h a v e h i n d e r e d a c h i e v e m e n t s i n h i g h d e g r e e o f

government h o u s i n g p o l i c i e s . I commend him f o r h i s

s u g g e s t i o n s on how to a c h i e v e s u c c e s s i n imp lemen t ing

h o u s i n g p o l i c i e s . On t h e o t h e r hand, Obayiuwana f a i l e d

t o r e c o g n i s e t h e f i n a n c i a l p o s i t i o n o f t h e low-income

e a r n e r s by s u g g e s t i n g t h a t h o u s i n g p o l i c y b e b a s e d on

a i d e d s e l f - h e l p . The s u g g e s t i o n i s a s good a s a s k i n g

t h e government t o k e e p of t h e low-income g r o u p from

b e n e f i t i n g from h o u s i n g programmes i n N i g e r i a .

C o n s i d e r i n g t h e i n f l a t i o n a r y rate i n t h e c o u n t r y a t

p r e s e n t , o n e knows. t h a t i t w i l l t a k e any h i g h r a n k e d

o f f i c e r who relies o n l y on h i s s a l a r y a t least twen ty

y e a r s t o m a k e a s a v i n g s of h a l f o f wha t c o u l d b e u s e d

t o make a moderate b u i l d i n g t o t a l k of a low-income

e a r n e r . Moreso, t h e low-income e a r n e r c a n n o t e a s i l y

r a i s e a b u i l d i n g l o a n d u e t o c o m p l i c a t i o n s i n v o l v e d i n

g e t t i n g a loan .

I n a n o t h e r deve lopment , Nwosu (1977) saw t h e

problem o f p l a n i m p l e m e n t a t i o n i n N i g e r i a a s h a v i n g

t h r e e major c o n s t r a i n t s name1 y;

- t h e p h y s i c a l i n f r a s t r u c t u r a l ;

- o r g a n i z a t i o n a l and M a n a g e r i a l p r e v a l e n c e ;

- u s e o f o u t moded technology . 7

17

H e f u r t h e r wen t on to s t u d y s p e c i f i c a l l y t h e

e x t e n t of t h e i m p l e m e n t a t i o n of t h e s econd n a t i o n a l

h o u s i n g scheme a s was c o n t a i n e d i n t h e programme

i n i t i a t e d b y t h e m i l i t a r y r eg ime i n 1972. H e -

a s s e s s e d t h e e x t e n t of t h e i m p l e m e n t a t i o n of t h e

scheme i n Anambra S t a t e and found o u t t h a t t h e f i r s t

p h a s e of t h e programme w a s c o m p l e t e l y b e h i n d schedu le .

H e a t t r i b u t e d t h e d e l a y i n c o m p l e t i o n of t h e p r o j e c t

t o s c a r c i t y of r a w m a t e r i a l s a n d t h e i n f l u e n c e of t h e

U d o j i s a l a r y award which a c c o r d i n g t o him e s c a l a t e d

b o t h t h e p r i c e s of r a w m a t e r i a l s and l a b o u r .

Nwosu' s o b s e r v a t i o n of s c a c i t y of r a w materials

and t h e i n f l u e n c e of U d o j i award a s c o n s t r a i n t s t h a t

h i n d e r e d s u c c e s s f u l i m p l e m e n t a t i o n of t h e second

n a t i o n a l h o u s i n g scheme i n N i g e r i a i s o b v i o u s , b u t i t

f e l l s h o r t of r e c o g n i z i n g t h e i n f l u e n c e of p o l i t i c a l

a n d f i n a n c i a l p roblems as w e l l as m o n i t o r i n g , e v a l u a t i o n

and c o r r u p t i o n i n i m p l e m e n t a t i o n of programmes.

Chima (1977) i n h i s ar t ic le i n t h e Academic S t a r

t i t l e d **The e n v i r o n m e n t a l c o n s t r a i n t s of management

i n N i g e r i a v s t a t e d t h a t , " t h e r e i s a s t r o n g i n t e r -

r e l a t i o n s h i p be tween c u l t u r e and management i n N i g e r i a

t o a n e x t e n t t h a t t h e former affects t h e l a te r b o t h

p o s i t i v e l y and nega t ive lyw.* H e o u t l i n e d t h r e e

major v a r i a b l e s wh ich c o n s t i t u t e management 'or

i m p l e m e n t a t i o n p rob lems r i n N i g e r i a n s o c i e t y

p a r t i c u l a r l y i n government owned e s t a b l i s h m e n t s .

T h e s e i n c l u d e ;

1. a t t i t u d e t o w o r k

2. a t t i t u d e t o s c i e n t i f i c app roach ;

3. a t t i t u d e t o w e a l t h and m a t e r i a l g a i n or what

ehLb H a n s e r c a l l s f a m i l i s t i c o r i e n t a t i o n i n d e v e l o p i n g

societies.

Chima d i d w e l l t o p i n - p o i n t a t t i t u d e t o work of

N i g e r i a n w o r k e r s a s a problem wh ich h i n d e r s s u c c e s s f u l

i m p l e m e n t a t i o n of programmes i n N i g e r i a n s o c i e t y .

U n f o r t u n a t e l y , Chima f a i l e d t o r e a l i s e t h a t i f N i g e r i a n s

h a v e t h e best a t t i t u d e t o w o r k , t o s c i e n t i f i c a p p r o a c h

and t o w e a l t h and m a t e r i a l g a i n w i t h o u t a c o n s i d e r a b l e

amount of money t o e x e c u t e t h e programme, a l l t h e efforts

a r e i n va in . .Moreso, h e d i d n o t e x p l a i n t o u s how and

why t h e a t t i t u d e of w o r k e r s a f f e c t p r o j e c t imp lemen ta t i on .

Mouzor Daudu i n h i s own c o n t r i b u t i o n i n "Sunday

Concordm of ~ u n e 5 t h , 1983 i n a n art icle c a p t i o n e d

"The F e d e r a l Government Hous ing ; A dream u n r e a l i z e d "

wrote, t h a t , o u t o f t h e 152 ,000 h o u s i n g u n i t s which

t h e S h a g a r i a d m i n i s t r a t i o n set o u t t o c o n s t r u c t a l l

o v e r t h e f e d e r a t i o n , w i t h i n t h e f i r s t t e n u r e o f

o f f i c e , o n l y a b o u t 20,000 had been accompl i shed from

t h e a v a i l a b l e s t a t i s t i c s e 9 H e a t t r i b u t e d t h i s

l a p s e t o t h e o p e r a t i o n of t h e scheme t h r o u g h

m u l t i p l e c o n t r a c t o r s who a r e n e i t h e r w i l l i n g t o

u t i l i z e t h e money g i v e n t o them t o d o t h e w o r k n o r

c a p a b l e o f e x e c u t i n g t h e p r o j e c t .

I n any c a s e , Daudu d i d n o t i n f o r m u s how h e

made s u r e t h a t enough money was a l l o c a t e d t o t h e s e

c o n t r a c t o r s and t h e y were u n a b l e t o e x e c u t e t h e

programme n e i t h e r d i d h e a s s u r e u s of t h e a b s e n c e

of p o l i t i c s , a d m i n i s t r a t i v e a n d social c o n s t r a i n t s

i n t h e i m p l e m e n t a t i o n e x e r c i s e o I would have l i k e d

D a u i " t o te l l u s how t h e programme was m o n i t o r e d

and e v a l u a t e d t o a r r i v e a t such c o n c l u s i o n t h a t o n l y

t h e i n f l u e n c e of i n c a p a b l e and m u l t i p l e c o n t r a c t o r s

h i n d e r e d i m p l e m e n t a t i o n p r o g r e s s o f t h e F e d e r a l

government low-cost Hous ing i n N i g e r i a .

Egonmwan (1991) i d e n t i f i e d f o u r major p rob lems

c o n f r o n t i n g p r o j e c t i m p l e m e n t a t i o n a s ;

1. F i n a n c i a l p rob lem

2. M a n a g e r i a l and i n s t i t u t i o n a l problem

3, T e c h n i c a l p rob lem and

4. P o l i t i c a l problem.

H e f u r t h e r n o t e d t h a t m a n a g e r i a l or

i n s t i t u t i o n a l p rob l ems are o f t e n t h e root o f

i m p l e m e n t a t i o n d e l a y s and cost overuns . They r e s u l t

among o t h e r t h i n g s i n ;

i, i n a d e q u a t e p l a n n i n g ;

ii. f a i l u r e t o o b t a i n n e c e s s a r y l e g i i d a t i o n ;

iii. d e l a y i n l a n d a c q u i s i t i o n ;

i v . p r o t r a c t e d b i d d i n g a n d c o n t r a c t i n g p r o c e d u r e ;

vo i n s u f f i c i e n t p r o j e c t s u p e r v i s i o n ;

v i . s l ow r e s p o n s e t o c h a n g e s i n t h e p o l i c y

e n v i r o n m e n t ; and

v i i , low s t a f f morale and p r o d u c t i v i t y t t . 10

However, Egonmwan* s p o s t u l a t i o n though v e r y

b r i e f i s embrqcing.

The U d o j i P u b l i c S e r v i c e s Review Commission

made s p e c i f i c r e f e r e n c e t o p rob lems which a r e

i n h e r e n t i n p u b l i c c o r p o r a t i o n s i n N i g e r i a a n d n o t e d

t h a t :

1. "The c o n t r o l of money i n P u b l i c e n t e r p r i s e is

w e e k , erat ic and i n e f f e c t i v e .

2. T h e r e i s poor d i s c i p l i n e , w i d e s p r e a d work

s l a c k n e s s , weak and i n e f f e c t i v e s u p e r v i s o r y

c o n t r o l and p r e v a i l i n g a t t i t u d e towards work

t h a t a f f e c t s low morale, i n d i f f e r e n c e and

c o n s e q u e n t p o o r p r o d u c t i v i t y .

3. T h e r e are p u b l i c e n t e r p r i s e s which h a v e n o t

s u b m i t t e d a u d i t e d a c c o u n t s f o r s e v e r a l y e a r s

( l a c k of a c c o u n t a b i l i t y ) . 4 T h e r e i s l a c k of a d e q u a t e t r a i n i n g programme i n

p u b l i c e n t e r p r i s e s N . 11

The commission a f t e r t h e above o b s e r v a t i o n

recommended t h a t i n c a s e of s t a t u t o r y c o r p o r a t i o n s ,

t h e b a l a n c e be tween autonomy and c o n t r o l s h o u l d be i n

f a v o u r o f c o n t r o l w h i l e t h e b a l a n c e s h o u l d b e i n

f a v o u r o f au tonomyin c a s e of company t y p e o f

o r g a n i s a t i o n s . I t a l s o recommended t h e c r e a t i o n of

p u b l i c e n t e r p r i s e commi t t ee i n e a c h F e d e r a l M i n i s t r y

t o s o l v e t h e main problems o f p u b l i c c o r p o r a t i o n s and

a l s o to e n s u r e c o n s i s t e n c e w i t h t h e g o a l s and o b j e c t i v e s

of government on t h e p a r t of p u b l i c c o r p o r a t i o n s .

21

Whether t h e government c o n t r o l s t h e s t a t u t o r y

C o r p o r a t i o n s o r creates a commi t t ee f o r p u b l i c

e n t e r p r i s e s wha t i s p rominen t f o r i m p l e m e n t a t i o n o f

programme i s p r o p e r p l a n n i n g , a v a i l a b i l i t y o f

t e c h n i c a l e x p e r t s , a d e q u a t e fund and w e l l c o - o r d i n a t e d

m a n a g e r i a l system. ~ c c o u n t a b i l i t y i s a b i g problem of

any v e n t u r e as t h e U d o j i commion p o i n t e d o u t b u t I see

i t as a fo l low-up e x e r c i s e af ter i m p l e m e n t a t i o n and

s h o u l d n o t be r e g a r d e d as a problem which d i r e c t l y

a f f e c t management of mapped o u t programme.

Agor (1981) i n a n ef for t to o f f e r a s o l u t i o n t o

t h e numerous i m p l e m e n t a t i o n p rob lems c o n t e n d e d t h a t

o n e of t h e most e f f e c t i v e ways t o improve t h e manage-

ment of deve lopment programmes and p r o j e c t s i s t o

a n a l y s e t h o s e deve lopment p r o j e c t s t h a t h a v e s u c c e e d e d ,

i d e n t i f y t h e f a c t o r s t h a t a p p e a r t o i n f l u e n c e s u c c e s s -

f u l i m p l e m e n t a t i o n , and d i s s e m i n a t e t h i s i n f o r m a t i o n

a s b r o a d l y and

a d m i n i s t r a t o r s

Agor, who

t i o n ' i n BaBama

q u i c k l y as p o s s i b l e t o r e l e v a n t

and a d m i n i s t r a t i v e t h e o r i e s t s " . 12

b a s e d h i s a n a l y s i s on p l a n implements-

i n d i c a t e s t h a t c e r t a i n a p p r o a c h e s a n d

t e c h n i q u e s a r e ' p a r t i c u l a r l y e f f e c t i v e i n improv ing

t h e p r o s p e c t s for programme implemen ta t ion . Such

a p p r o a c h e s a n d t e c h n i q u e s i n c l u d e ;

2 2

1, D e m o n s t r a t i n g p o l i t i c a l w i l l t o i m p l e m e n t t h e

programme,

T h i s i m p l i e s t h e g o v e r n m e n t d e m o n s t r a t i n g i ts

p o l i t i c a l s u p p o r t b o t h i n w o r d s a n d deeds . S t a t e m e n t s

b y v a r i o u s p o l i t i c a l l e a d e r s h a v e a c h i l l i n g e f f e c t o n

p o t e n t i a l d e v e l o p m e n t p r o j e c t s ,

2

i,

ii,

P r o v i s i o n of s p e c i f i c i n v e s t m e n t i n c e n t i v e s

c o n s i s t e n t w i t h d e v e l o p m e n t g o a l s , S u c h

i n c e n t i v e s i n c l u d e ;

L e g i s l a t i v e p a c k a g e

M a r i t i n e s h i p p i n g a n d c a p t i v e i n s u r a n c e

i n d u s t r i e s .

iii, Deve lopment Budget .

3 E s t a b l i s h a d m i n i s t r a t i v e p r o c e d u r e s t h a t

f a c i l i t a t e i m p l e m e n t a t i o n ,

4, T a k e i n c r e m e n t a l a n d s e q u e n t i a l a c t i o n t h a t

e n s u r e s i m p l e m e n t a t i o n ,

5 B u i l d t h e i n s t i t u t i o n a l c a p a c i t y t o l a u c h f u t u r e

programme . t h u s :

i, C r e a t e new employment o p p o r t u n i t i e s

ii, ~ ' t i l i z e local materials/resaurcese

iii, R e d u c e i m p o r t s or i n c r e a s e e x p o r t s

i v , I n t r o d u c e new t e c h n i c a l s k i l l s

V. P l a c e new w e a l t h i n t h e f a m i l y I s l a n d s (Bahamas

d e v e l o p m e k ~ a r i k l ,

However, Agor i s of t h e v i e w t h a t l a c k o f

p o l i t i c a l w i l l a n d o v e r s i g h t i n i m p l e m e n t a t i o n

s t r a t e g i e s p o s e t h e g r e a t e s t p r o b l e m i n p l a n

i m p l e m e n t a t i o n , T h i s i s b e c a u s e most i n c u b e n t

g o v e r n m e n t g e t c o n f u s e d as t o w h e t h e r o r n o t t o

s u p p o r t t h e p o l i c i e s i n i t i a t e d b y t h e p r e v i o u s r e g i m e

a n d o n c e t h e g o v e r n m e n t i n power i s b i a s e d a b o u t a

p r o j e c t , t h a t i s t h e e n d o f t h a t p r o j e c t , S o n o

matter t h e n a t u r e of i m p 1 e m e n t a t i o n . s t r a t e g y a d o p t e d ,

b y a n y g o v e r n m e n t t o e x e c u t e p l a n s , w i t h o u t t h e

p o l i t i c a l w i l l o r s u p p o r t of t h a t g o v e r n m e n t , t h e

p r o j e c t w i l l be a f l o p ,

K o e h l e r (1983) i n h i s w r i t e u p o n p r o j e c t

p l a n n i n g a n d Management T e c h n i q u e s r o b s e r v e d t h a t

e a r l y i n v o l v e m e n t i n t h e p l a n n i n g p r o c e s s of

. i n d i v i d u a l s who w i l l be r e s p o n s i b l e for i m p l e m e n t a t i o n

of a d e v e l o p m e n t programme i s a good p r o b l e m

p r e v e n t i o n p o l i c y .

H e s a i d t h a t i n v o l v e m e n t of i m p l e m e n t a t i o n

a g e n c i e s i n p l a n n i n g e n h a n c e s o n e ' s p e r s o n a l i n v e s t -

m e n t w h i c h l a t e r may be c h a n n e l l e d i n t o i m p l e m e n t a t i o n

p h a s e , D e p e n d i n g o n t h e s i ze of t h e p r o j e c t , K o e h l e r

s u g g e s t e d t h a t t w o or t h r e e p e o p l e or more c o u l d be

i n v o l v e d i n t h e p l a n n i n g p r o c e s s . Wi th r e s p e c t to

any g i v e n p r o j e c t , t h e i nvo lvemen t o p t i o n s a c c o r d i n g

t o him i n c l u d e ;

- S u p e r v i s o r y p e r s o n n e l r e s p o n s i b l e f o r p r o j e c t

imp lemen t ing ;

- ~ l l p e r s o n n e l r e s p o n s i b l e f o r p r o j e c t

i m p l e m e n t a t i o n , or,

- S u p e r v i s o r y p e r s o n n e l r e s p o n s i b l e f o r p r o j e c t

i m p l e m e n t a t i o n and a p r o j e c t o r i e n t a t i o n s e s s i o n

for s e l e c t e d or a l l o t h e r i n d i v i d u a l s r e s p o n s i b l e

f o r p r o j e c t imp lemen ta t ion .

H e la ter o u t l i n e d what h e r e f e r r e d t o as ' ( s t e p s

i n p r o j e c t p l a n n i n g and management ,- t e c h n i q u e

process t t which r u n s a s f o l l o w s ;

C l e a r l y and s p e c i f i c a l l y d e f i n e t h e p r o j e c t

o b j e c t i v e ;

Use cards to w r i t e s h o r t e v e n t s t a t e m e n t s of

t a s k s t h a t a r e n e c e s s a r y to r e a c h t h e p r o j e c t t s

o b j e c t i v e ,

' P r o d u c e t w o g r o u p s o f e v e n t s by s e p e r a t i n g

i n d e p e n d e h t f rom d e p e n d e n t e v e n t s ,

U s e d i ag ram to show t h e r e l a t i o n s h i p be tween

i n d e p e n d e n t and d e p e n d e n t e v e n t s ,

5. E s t i m a t e t i m e and cost of p r o j e c t t o comple t ion .

6, Number t h e e v e n t s to c o n s o l i d a t e t h e meaning o f

t h e e v e n t s i n t o a s i n g l e symbol so a s t o

f a c i l i t a t e c h a r t i n g of t h e p l an ,

7. C h a r t t h e i n d e p e n d e n t e v e n t s .

8, C h a r t t h e . d e p e n d e n t e v e n t s .

9, S c h e d u l e n o n - c r i t i c a l e v e n t s so a s to e f f i c i e n t l y

a l l o c a t e t h e work l o a d ,

1 0, Develop e v e n t d e s c r i p t i o n pages.

1 1, Develop comple t ed p l a n diagram.

22. A s s e m b l e p l a n f o r d i s t r i b u t i o n w i t h t h e comple t ed

p l a n f o r d i s t r i b u t i o n w i t h t h e comple t ed p l a n

d i ag ram f i r s t a n d e v e n t d e s c r i p t i o n pages a t t a c h e d

i n c h r o n o l o g i c a l sequence ,

K o e h l e r , however i d e n t i f i e d non-acceptance of t h e

t e c h n i q u e s and u n r e a l i s t i c a l l y deve loped p l a n s a s t w o

major p i t f a l l s i n s u c c e s s f u l u t i l i z a t i o n of t h i s

a p p r o a c h i n e x e c u t i o n of a p r o j e c t ,

I t i s t r u e t h a t p r o p e r p l a n n i n g makes f o r a

s t r o n g i m p l e m e n t a t i o n f o u n d a t i o n b u t K o e h l e r s h o u l d

u n d e r s t a n d t h a t p r o p e r p l a n n i n g n o t backed u p w i t h

a d e q u a t e fund and e f f e c t i v e m o n i t o r i n g a n d e v a l u a t i o n

d e v i c e i s bound t o be f r u s t r a t e d ,

Thompson i n h i s r e s e a r c h on i m p l e m e n t a t i n g

workmeng s compensa t ion programmes i n t h e s t a t e s . .

d i s c o v e r e d f o u r o r g a n i z a t i o n a l c h a r a c t e r i s t i c s t h a t

e x e r t i m p o r t a n t i n f l u e n c e s on t h e o r g a n i z a t i o n ' s

c a p a c i t i e s .

T h e s e i n c l u d e

i, O r g a n i z a t i o n a l s t r u c t u r e

ii, Method of e n s u r i n g payment

iii, F i n a n c i a l s u p p o r t for t h e p r o j e c t ,

i v , q u a l i t y of p e r s o n n e l ,

H e g o e s f u r t h e r t o emphas i ze t h a t t h e o r g a n i s a -

t i o n a l s t r u c t u r e i n a n y o r g a n i z a t i o n d e t e r m i n e s t h e

e f f e c t i v e n e s s of t h e i m p l e m e n t a t i o n programme, T h i s

i s b e c a u s e , t h e a d m i n i s t r a t o r s and t h e s u b o r d i n a t e s

m u s t be i n a un ian imous ag reemen t a s t o which agency

w i l l be s u i t a b l e f o r imp lemen t ing t h e programme.

Thompson a l so s a i d t h a t "No a d m i n i s t r a t i v e agency w i l l

p e r fo rm i t s r e s p o n s i b i l i t i e s e f f e c t i v e l y u n l e s s i t is

14 a d e q u a t e l y s t a f f e d and funded , long w i t h a d e q u a t e

f i n a n c i n g , h e s t a t e d t h a t t h e q u a l i t y of p e r s o n n e l i s

of fundamen ta l i m p o r t a n c e i n p o l i c y imp lemen ta t ion ,

Thompson made a s i g n i f i c a n t c o n t r i b u t i o n t o w a r d s

improv ing i m p l e m e n t a t i o n p r o c e s s b u t h e unde ra t ' ed

t h e i n f l u e n c e :' t h a t c o u l d be e x e r t e d by t h e

s t r u c t u r e IbsTT.tica2-;lof t h e s o c i e t y i n i m p l e m e n t a t i o n o f a

p r o j e c t , The o r g a n i z a t i o n a l s t r u c t u r e , t h e f i n a n c i a l

commitments a n d t e c h n i q u e s may be v e r y a d e q u a t e , w i t h

a v e r y h i g h q u a l i t y o f p e r s o n n e l t o manage a p r o j e c t ,

b u t i f t h e p r o j e c t d o e s n o t a t t r ac t t h e s u p p o r t of t h e

p o l i t i c i a n s , i t w i l l be a f lop, ,

A d e n i y i (1985) i n a n a r t i c l e t i t l e d "Housing t h e

u r b a n masses i n N i g e r i a " stresses t h e i m p o r t a n c e of

p l a n n i n g , management and a d m i n i s t r a t i v e framework i n

t h e f o r m u l a t i o n a n d i m p l e m e n t a t i o n of u r b a n h o u s i n g

p o l i c i e s and programmes, H e s a i d t h a t , H t h e r e i s

h a r d l y any s h o r t a g e of i d e a s on t h e p o s s i b l e s o l u t i o n

t o h o u s i n g p rob lems i n t h i s c o u n t r y b u t t h a t i t a p p e a r s

t h a t a m a j o r b o t t l e n e c k i s t h e l a c k o f a d m i n i s t r a t i v e

framework w i t h i n which t o implement t h e p o s s i b l e

s o l u t i o n s i n a r e a l i s t i c a n d programmat ic mannerH. 15

A d e n i y i - '. h a s succeeded t o i d e n t i f y t h e problems

of p l a n n i n g and management a s t h e major problem

m i l i t a t i n g a g a i n s t t h e i m p l e m e n t a t i o n o f h o u s i n g

p o l i c i e s i n N i g e r i a , However, h e f o r g o t t h a t p o l i t i c a l

s t r u c t u r e of t h e s o c i e t y s t a n d s a c h a n c e of p u t t i n g

t h i n g s o u t of shape , A d e n i y i a lso f a i l e d to men t ion

t h e effect of unf a v o u r a b l e economic s i t u a t i o n which

t h e c o u n t r y h a s f a c e d for almost a d e c a d e nw. o n t h e

i m p l e m e n t a t i o n of h o u s i n g p o l i c i e s ,

I t i s p e r t i n e n t t h e r e f o r e to draw some common

c o n c l u s i o n s of t h e s e rev iews . The most o u t s t a n d i n g

i s t h e f ac t t h a t e a c h r e s e a r c h e r wen t W o u t l i n e t h e

p r o b l e m s of p l a n implements t i o n w i t h o u t t r y i n g to

e x p l a i n t h e r e a s o n s fo r t h e e x i s t e n c e of t h e problems,

None of t h e r e s e a r c h e r s c o u l d p o i n t o u t t h e effect

of u n c e r t a i n t i e s l i k e i n f l a t i o n or d e a t h of a n actor

o n i m p l e m e n t a t i o n of programmes, So l o n g a s t h e r e

h a s n o t been a n app roved s t a n d a r d of i m p l e m e n t a t i o n

t e c h n i q u e s or s t r a t e g i e s , t h e r e i s bound t o be

i n c o n s i s t e n c i e s i n i m p l e m e n t a t i o n of programmes and

t h i s i s where t h e b u l k of i m p l e m e n t a t i o n p rob lems

lies.

METHOD OF DATA COLLECTION A N D ANALYSIS

I n t h i s w o r k , data i s needed t o d i s c l o s e t h e

o b j e c t i v e s of t h e C e d e r a l Government Low-Cost Hous ing

scheme, t h e n e c e s s a r y p l a n s made t o a c h i e v e t h e s e

o b j e c t i v e s and how f i n a l l y t h e o b j e c t i v e s w e r e

a c h i e v e d , Thus , b o t h p r i m a r y and S e c o n d a r y s o u r c e s

s h o u l d be u s e d f o r c o l l e c t i o n of d a t a ,

PRIMARY SOURCES

( i) ~ u e s t i o n n a i r e

T h i s w i l l be randomly a d m i n i s t e r e d t o w o r k i n g

class members of t h e p u b l i c p a r t i c u l a r l y t h e low-

i n c o m e e a r n e r s w o r k i n g w i t h t h e F e d e r a l M i n i s t r y of

H o u s i n g a n d E n v i r o n m e n t a n d t h e i r s t a t e c o u n t e r p a r t s o

T h e r e w i l l a l so be a random s a m p l i n g of t w o of t h e

b u i l d i n g material i n d u s t r i e s i n Anambra S ta te a n d

w o r k e r s u n d e r t h e s a m p l e d b u i l d i n g material i n d u s t r i e s

w i l l a l so be i s s u e d w i t h q u e s t i o n n a i r e w h i c h w i l l be

made u p of b o t h o p e n a n d closded q u e s t i o n s ,

( ii) I n t e r v i e w

T h e r e w i l l be a face t o face I n t e r v i e w s w i t h

t h e management s t a f f of t h e F e d e r a l M i n i s t r y of

H o u s i n g a n d E n v i r o n m e n t a n d t h e i r c o u n t e r p a r t d i n t h e

S t a t e as w e l l . T h e i n t e r v i e w w i l l a l so be e x t e n d e d

t o some c o n t r a c t o r s who p a r t i c i p a t e d i n t h e e x e c u t i o n

of t h e programme i n t h e s tate. W o r k e r s i n some of

t h e i n d u s t r i e ' s t h a t p r o d u c e b u i l d i n g materials i n

t h e s t a t e w i l l a lso be i n t e r v i e w e d ,

( iii) O b s e r v a t i o n

I n v i e w of t h e f i n a n c i a l c o n s t r a i n t a n d t i m e ,

a random s a m p l i n g of t e n o u t of t h e t w e n t y t h r e e

:.A

p r o j e c t sites i n t h e s t a t e w i l l be carried o u t to

o b s e r v e t h e p r o g r e s s of work i n t h e sites. A

m e a n i n g f u l g e n e r a l i z a t i o n w i l l t h e n be made a f t e r

t h e o b s e r v a t i o n .

SECONDARY DATA:

The a p p r o a c h e s w i l l be s u p p l e m e n t e d w i t h

r e l e v a n t r e c o r d s a v a i l a b l e i n t h e F e d e r a l M i n i s t r y of

H o u s i n g a n d E n v i r o n m e n t w h i c h I c a n l a y h a n d s on.

T h e s e records i n c l u d e g o v e r n m e n t a n n u a l p u b l i c a t i o n s ,

g a z e t t e s , e d i c t s , n e w s p a p e r s , m a g a z i n e s a n d p e r i o d i c a l s .

L i t e r a t u r e o n management p r o b l e m s a n d s t r a t e g i e s i n

c o - o p e r a t i o n s w i l l also be of g o o d u s e t o t h e s tudy .

METHOD OF DATA ANALYSISl

T h e raw d a t a g a t h e r e d from i n t e r v i e w s ,

o b s e r v a t i o n s a n d q u e s t i o n n a i r e w i l l be a n a l y s e d u s i n g

s i m p l e f r e q u e n c i e s a n d p e r c e n t a g e s of t h e r e s p o n d e n t s .

I n t h e q u e s t i o n n a i r e , t h e r e s p o n d e n t s are a s k e d t o

i n d i c a t e t h e i r f e e l i n g s o n some of t h e q u e s t i o n s about

t h e i m p l e m e n t a t a o n of F e d e r a l Low-Cos t H o u s i n g i n

former -Anambra S t a t e u s i n g a t w o p o i n t scale a s f o l l o w s :

' y e s i n d f c a t i n g p o s i t i v e R e s p o n s e

No indicating N e g a t i v e Response .

N e v e r t h e l e s s some q u e s t i o n s a r e p r o v i d e d w i t h

o t h e r o p t i o n s o u t s i d e y e s and no fo r t h e r e s p o n d e n t s

t o c h o o s e from, T h e d e t a i l s of t h e a n a l y s i s w i l l

be shown i n c h a p t e r f o u r of t h i s work,

THEORETICAL FRAMEWORK

The c o n c e p t u a l framework t h a t bes t a n a l y z e s

t h e i s s u e o f F e d e r a l Low-cost Hous ing i n Anambra

S t a t e i s t h a t e v o l v e d by David E a s t o n and G a b r i e l

Almond p o p u l a r l y known a s " s y s t e m s Approachw,

T h i s a p p r o a c h a s t h e name i m p l i e s i n v o l v e s a

set o f e l e m e n t s s t a n d i n g i n i n t e r a c t i o n , T h e

a p p r o a c h s t a t e s t h a t , " t h e c a p a c i t y o f a sys t em

t o s u r v i v e a l l stresses may depend on t h e capability

of t h e sys t em to a d a p t to t h e v a r i o u s social and

economic demands t h a t a r i s e from t h e sys temn,

The s y s t e m s a p p r o a c h to p o l i t i c a l a n a l y s i s is

a n a t t e m p t by t h e p o l i t i c a l s c i e n t i s t s t o model

social phenomenon w i t h t h o s e of p h y s i c a l and

B i o l o g i c a l S c i e n c e s . f n t h i s app roach , t h e

p o l i t i c a l sys t em i s s e e n a s a n o rgan i sm e x i s t i n g

w i t t i i n a n e n v i r o n m e n t and r e a c t i n g t o t h e

v a r i o u s p r e s s u r e s f rom t h e environment . T h e

basic a s s u m p t i o n s of t h e ~ p p r o a c h i n c l u d e ;

i,

ii,

iii,

i v ,

C 32

t h a t t h e p o l i t i c a l s y s t e m l i k e e v e r y o t h e r

social phenomenon i s a c o n c r e t e w h o l e i n f l u e n c i n g

a n d b e i n g i n f l u e n c e d by i t s e n v i r o n m e n t .

t h a t t h e s y s t e m i s made u p of i n t e r - r e l a t e d

p a r t s or roles,

t h a t t h e p a r t s f u n c t i o n i n c o - o p e r a t i o n to

m a i n t a i n a b a l a n c e i n t h e w h o l e s y s t e m a n d t o

a t t a i n a d e f i n i t e g o a l ,

t h a t a n y c h a n g e i n o n e p a r t of t h e s y s t e m

t r i g g e r s o f f c h a n g e s i n o t h e r p a r t s of t h e

s y s t e m j u s t l i k e i n t h e b i o l o g i c a l wor ld .

I n a n a l y s i n g t h e i m p l e m e n t a t i o n of t h e l o w - c o s t

H o u s i n g scheme i n Anambra S t a t e , we s h a l l c o n c i e v e t h e

h o u s i n g p o l i c i e s i n N i g e r i a as a s y s t e m of h o u s i n g i n

N i g e r i a a n d i n Anambra S t a t e i n p a r t i c u l a r w i t h i ts

own i n t e r a c t i n g a n d i n t e r r e l a t e d roles - s y s t e m

m a i n t a i n a n c e a n d s y s t e m g o a l . T h e e x t e n t of t h e

i m p l e m e n t a t i o n of l o w - c o s t H o u s i n g scheme w i l l be

d e t e r m i n e d b y the e x t e n t t o w h i c h a l l t h e i n t e r a c t i n g

roles of t h e h o u s i n g scheme are i n harmony a n d c o n s i s t e n t

w i t h o n e a n o t h e r a n d geared t o w a r d s t h e a c h i e v e m e n t of

t h e g o a l ,

D a v i d E a s t o n E x c h a n g e Model of s y s t e m s a p p r o a c h

w i l l d i v i d e t h e i n t e r a c t i n g p a r t s of t h e h o u s i n g

scheme i n t o

s y s t e m , t h e

I n t h e

C

33

f o u r var iables namely: t h e i n p u t i n t o t h e

c o n v e r s i o n p r o c e s s , o u t p u t a n d Feedback.

h o u s i n g scheme, i n p u t i n v o l v e s t h e v a r i o u s

social , p o l i t i c a l a n d e c o n o m i c demands of t h e N i g e r i a n

P u b l i c - H o u s i n g p r o b l e m s , T h e d e l i b e r a t i o n s o f t h e

F e d e r a l Government , c o n s u l t a t i o n s , S e m i n a r s a n d d e b a t e s

made on t h e f e a s i b i l i t y of t h e h o u s i n g scheme serve as

t h e c o n v e r s i o n , T h e d e c i s i o n a r r i v e d a t a f t e r c o n v e r s i o n

t h e r e f o r e becomes a n o u t p u t , T h i s i n c l u d e s t h e ac tual

b e n e f i t t h e p u b l i c w i l l d e r i v e from t h e i m p l e m e n t a t i o n of

t h e scheme, T h e l a s t s tage w h i c h i s t h e f e e d b a c k i s t h e

r e a c t i o n of t h e b e n e f i t t i n g p u b l i c t o t h e p o l i c y outcome.

T h i s c o u l d be e i t h e r n e g a t i v e or p o s i t i v e ,

I l l u s t r a t e d d i a g r a m a t i c a l l y w e h a v e

INPUT

I THE SOCIAL, POLITICAL AND ECONOMIC DEMANDS

I OF THE NIGERIAN I k

I PUBLIC (HOUSING I

. - FEEDBACK AFFECTS NEW INPUT

CONVERSION OUTPUT /DELIBERATIONS 1 IDECISION TOI

SEMINARS , DEBATES ETC.

ON THE

FEASIBILITY

FEEDBACK

REFERENCES

1. R i c h a r d , Ross, P o l i c y process i n pol i t ics i n Enqland , ed. G a b r i e l , A, ~ l m o n d , Bos ton ; L i t t l e Brown and company I n c , , 1964, p. 189,

2. P e t e r , Bowden "Problems of I m p l e m e n t a t i o n " p u b l i c ~ d m i n i s t r a t i o n and Development J o u r n a l v o l e 6, 1 9 8 6 PO 69.

4. W i l l i a m s W. implementation, a n a l y s i s and a s s e s s m e n t w , p o l i c y A n a l y s i s , 1 ( summer) 1975.

5. S t r e n R,E. "Housing t h e p o o r u r b a n A f r i c a n s " , P o l i c y . P o l i t i c s and B u r e a u c r a c y i n Mombasa; I n s t i t u t e of I n t e r n a t i o n a l S t u d i e s u n i v e r s i t y of C a l i f o n i a p r e s s , 1980 , p, 270,

6, Obayiuwana, Manaqement i n N i q e r i a , A j o u r n a l of N i g e r i a I n s t i t u t e o f Management, ~ a r c h / A p r i l , 1986 PPS 9-10.

7 , NwOsu H.N, P o l i t i c a l A u t h o r i t y and t h e N i u e r i a n C i v i l S e r v i c e , F o u r t h Dimension P u b l i s h i n g co; Enugu, 1977 p, 127,

8. Chima E,C, ~ c a d e m i c S t a r , S e p t , 1977, V o l . 2, No.7.

9. Mouzor,. Daudu, "The P e d e r a l Government Hous ing ; A dream u n r e a l i z e d n , Sunday Concord , J u n e , 5 1983,

0 Egonmwan J.A, P u b l i c P o l i c y ~ n a l ~ s i s . c o n c e p t s and ~ p p l i c a t i o n , S,M,O, A k a and B r o t h e r s p r e s s , 6 - Aka street, P,M,B, 1611 , Ben in c i t y , 1991, p.239,

1 1 P u b l i c s e r v i c e Review Commission, Main, R e p o r t , P e d e r a l M i n i s t r y o f I n f o r m a t i o n ,

12. Weston H o Agor. P u b l i c A d m i n i s t r a t i o n and Development. Vole 1, 1 9 8 1 p.36.

13. K o e h l e r C o r t u s To n p r o j e c t p l a n n i n g and Management Teebn iquesn P u b l i c A d m i n i s t r a t i o n Review. Volume 43 Number 5 , ~ e p t e m b e r / O c t o b e r , 1983 p.459.

14. Joel, Thompson A. 'QImplement ing workmen' s Compensa t ion programmes i n t h e states". ~ d m i n i s t r a t i o n a n d S o c i e t y . V o t . 14. No . 2, Augus t , 1982, Po2370

150 A d e n i y i EoO. "Hous ins t h e u r b a n Masses i n Niseriaw ~ o u s i h q i n Niqeria. ~ d i t t e d by Onibokun ~ o j u ; NISER - I b a d a n , 1985 pp. 9 3 -94.

16. V e r m a SOP. Modern P o l i t i c a l Theory. V i k a s P u b l i s h i n g House; N e w D e l t i , 1980, P o 162.

CHAPTER TWO

PUBLIC POLICY IMPLEMENTATION - AN ANALYSIS

2.1 C o n c e p t of P o l i c y I m p l e m e n t a t i o n

P o l i c y h a s been d e f i n e d i n v a r i o u s ways by

v a r i o u s ... ; s c h o l a r s . L a s w e l l and Kap lan d e f i n e p o l i c y

a s "a p r o j e c t e d programme o f g o a l s , v a l u e s a n d

p rac t i ce s* . ' To E a s t o n , p o l i c y i s s e e n i n terms of

a u t h o r i t a t i v e a l l o c a t i o n o f v a l u e s f o r t h e who le

s o c i e t y . 2

The l e g i s l a t u r e of any c i v i l i a n government or t h e

c o u n c i l of t h e m i l i t a r y government p l a y t h e e x c l u s i v e

role of f o r m u l a t i n g p o l i c i e s and e n a c t i n g l a w s which

g o v e r n t h e c o n d u c t o f h e r c i t i z e n s . Under c i v i l i a n

r eg ime , t h e l e g i s l a t u r e or p a r l i a m e n t i s made u p o f

r e p r e s e n t a t i v e s of t h e p e o p l e who are e l e c t e d b a s e d

on t h e p a r t y m a n i f e s t o p r o m i s e s o f wha t t h e p a r t y w i l l

d o if e l e c t e d . The p a r t y i n power f o r m s t h e government

a n d a p p o i n t s m i n i s t e r s . T o b r i n g i n t o f r u i t i o n p r o m i s e s

made , d u r i n g t h e e l e c t i o n campaigns , p o l i c i e s are made.

I f o n e of such p r o m i s e s f o r i n s t a n c e i s provision of

low-cos t Housesw, t h e M i n i s t e r i n c h a r g e o f Hous ing

and Envi ronment w i l l a s k h i s Director G e n e r a l t o b r i n g

u p t h e d r a f t p r o p o s a l s of w h a t t h e M i n i s t r y i n t e n d s

t o d o i n o r d e r t o a c h i e v e t h i s g o a l .

T h e d r a f t p r o p o s a l s are t a k e n to t h e e x e c u t i v e

arm of t h e government whe re i t i s d e b a t e d and

amended before i t is f i n a l l y p r e s e n t e d by t h e

M i n i s t e r t o t h e l e g i s l a t u r e c o m p r i s i n g t h e & e n a t e

and House of R e p r e s e n t a t i v e s a s i s t h e c a s e i n

N i g e r i a . The p r o p o s a l s a r e e x t e n s i v e l y deba t ed . I f

t h e i d e a s s a i l t h r o u g h , t h e y are p a s s e d or a p p r o v e d

by t h e l e g i s l a t u r e ; i t t h e n becomes a p o l i c y . A

gove rnmen t w h i t e p a p e r i s p u b l i s h e d to b a c k t h e p o l f c y

w i t h a p p r o p r i a t e g u i d e l i n e s fo r i t s imp lemen ta t i on .

Under a m i l i t a r y r eg ime , p o l i c y p r o p o s a l s may

o r i g i n a t e from t h e M i n i s t r y , or from t h e s p e c i a l

a d v i s e r s t o t h e p r e s i d e n t ; or from t h e P r e s i d e n t

h i m s e l f . T h e s e p r o p o s a l s a r e p a s s e d from t h e

s e c r e t a r y t o t h e M i l i t a r y Government t o t h e Armed

F o r c e s R u l i n g C o u n c i l (AFRC) whe re t h e p o l i c i e s a r e

made. when t h e p r o p o s a l i s p a s s e d , i t becomes a

p o l i c y . The M i n i s t r y of J u s t i c e t h e n d r a f t s a n

e n a b l i n g a c t . T h e r e a f t e r , t h e p o l i c y is p u b l i s h e d

i n t h e gove rnmen t w h i t e p a p e r a s a d e c r e e . T h e

p o l i c y from t h i s p o i n t i s r e a d y for imp lemen ta t i on .

I m p l e m e n t a t i o n i n t h e s e n s e i t i s g o i n g t o be

u s e d i n t h i s p a p e r means " c a r r y i n g out". P o l i c y made

i s c a r r i e d o u t i n o r d e r t o a c h i e v e g o a l s f o r which

t h e p o l i c y i s meant. I m p l e m e n t a t i o n r e f e r s t o t h e

a c t u a l e x e c u t i o n of t h e government p l a n , t h e t r a n s l a -

t i o n of t h e p o l i c y s t a t e m e n t or t h e w i s h of t h e

gove rnmen t i n t o a c t u a l i t y . I t means e x e c u t i o n of

p l a n t o a c h i e v e o b j e c t i v e s . I m p l e m e n t a t i o n a l so

r e f e r s t o close a c t i v i t i e s d i r e c t e d t o w a r d s p u t t i n g

a programme i n t o e f f e c t .

Acco rd ing t o Egonmwan, " i m p l e m e n t a t i o n refers

t o t h e p r o c e s s o f c o n v e r t i n g i n p u t s - f i n a n c i a l ,

i n f o r m a t i o n , m a t e r i a l s , t e c h n i c a l , human, demands,

s u p p o r t etc. i n t o o u t p u t s - g o o d s and s e r v i c e s

i n c l u d i n g s y m b o l i c v a l u e s l i k e t i t les and n a t i o n a l

a w a r d s wh ich s u p p o r t b e h a v i o u r c h a n g e s i n b e n e f i c i a r y

g r o u p s ~ . ~ I t i s t h e s t a g e w h e r e t h e earlier

p r e p a r a t i o n s and d e s i g n s , p l a n s a n d a n a l y s e s are

t e s t e d i n t h e . h a r s h l i g h t of r e a l i t y and whe re p o l i c y

c o n t e n t and i m p a c t on p e o p l e c o u l d be s u b s t a n t i a l l y

alter'ed or e v e n n e g a t e d , by t h e p o l i t i c a l a d m i n i s t r a -

t i v e p r o c e s s . 'Hence, i m p l e m e n t a t i o n i n v o l v e s a

p r o c e s s of moving f o r w a r d a p o l i c y o b j e c t i v e by means

of a d m i n i s t r a t i v e a n d p o l i t i c a l s t e p s o

When a l l t h e l a w s and n e c e s s a r y r u l e s r e q u i r e d

t o g i v e effect t o p o l i c i e s a d o p t e d have been p u t i n

p l a c e , t h e n e x t l o g i c a l s t a g e i s t h e a c t u a l

i m p l e m e n t a t i o n , I n d e v e l o p i n g c o u n t r i e s implementa-

t i o n i s g e n e r a l l y a f u n c t i o n of t h e a d m i n i s t r a t o r s .

T h e i m p l e m e n t a t i o n of p o l i c y i n N i g e r i a as i s also

t h e c a s e i n B r i t a i n i s t h e p r e r o g a t i v e of t h e

b u r e a u c r a t s - career p u b l i c s e r v a n t s ( a d m i n i s t r a t o r s ) .

T h e f o l l o w i n g s t a t e m e n t made by t h e government of

E a s t e r n N i g e r i a a t i n d e p e n d e n c e a n d r e s t a t e d by Erne

Awa c l e a r l y d e f i n e s t h e role of t h e p u b l i c S e r v i c e

and s p e l l s o u t whose d u t y i t is t o implement p o l i c i e s :

"The p u b l i c s e r v i c e of E a s t e r n N i g e r i a i s a n i n d e p e n d e n t autonomous s e r v , i c e e s t a b l i s h e d u n d e r t h e N i g e r i a n c o n s t i t u t i o n o r d e r i n c o u n c i l i n 1960. I t s h a l l be s c r u p o l o u s l y i n s u l a t e d from p a r t i s a n p o l i t i c s and o b s e r v e t h e h i g h e s t s t a n d a r d s and t r a d i t i o n s a s

e v o l v e d i n B r i t a i n : on whose sys t em o u r own h a s l a r g e l y been model led. I t must be a d i s c i p l i n e d , e f f i c i e n t and l o y a l s e r v i c e , i m p a r t i a l i n t h e e x e r c i s e of i t s d u t i e s and d e v o t e d t o s e r v i n g government i n power. Whi l e e s s e n t i a l l y t h e e x e c u t i v e a r e of t h e government , i t w i l l be e x p e c t e d t o g i v e h o n e s t h e l p and a d v i c e i n t h e f o r m u l a t i o n of p o l i c y , and t o e n s u r e t h a t app roved p o l i c i e s a r e f a i t h f u l l y , ' e n e r q e t i c a l l y and w h o l e h e a r t e d l y c a r r i e d ou tQt .4

T h e s t a n d of t h e g o v e r n m e n t i n p o l i c y

i m p l e m e n t a t i o n from t h e a b o v e s t a t e m e n t i s q u i t e

clear, T h e a d m i n i s t r a t o r s are t o i m p l e m e n t t h e

g o v e r n m e n t p o l i c i e s b u t t h e y m u s t a l so c o n t r i b u t e

t o w a r d s t h e f o r m u l a t i o n of p o l i c i e s by g i v i n g

a p p r o p r i a t e a d v i c e t o t h e M i n i s t e r a n d a l s o by

d r a f t i n g t h e p r o p o s a l s w h i c h e v e n t u a l l y become

p o l i c y , I t i s t h e r e f o r e t h e sole r e s p o n s i b i l i t y

of t h e p e r m a n e n t S e c r e t a r y or Director G e n e r a l a n d

h i s c h a i n of o t h e r a d m i n i s t r a t o r s t o i m p l e m e n t

p o l i c i e s , I n i m p l e m e n t a t i o n of p o l i c i e s c i r c u l a r s

are u s e d b y t h e a d m i n i s t o r s t o g i v e d i r e c t i v e s t o

t h e M i n i s t r i e s , p a r a s t a t a l s a n d p r i v a t e e s t a b l i s h -

m e n t s w h e r e s u c h p o l i c i e s affect them, A t t i m e s

g o v e r n m e n t may e n v i s a g e t h a t i t s p o l i c y may n o t

h a v e p o p u l a r a c c e p t a n c e . ' 1 n s u c h i n s t a n c e s i t u s e s

p u b l i c i t y a n d p r o p a g a n d a t o p r e p a r e t h e m i n d s of

t h e p e o p l e before s u c h a p o l i c y i s i n t r o d u c e d ,

T h e r e are i n s t a n c e s w h e r e g o v e r n m e n t makes

p o l i c i e s a n d a t t h e same t i m e p r o v i d e s m a c h i n e r y

f o r i t s ' i m p l e m e n t a t i o n , F o r e x a m p l e , t h e Decree

NO, 5 of 2 0 t h J a n u a r y 1977 e s t a b l i s h e d a body

known a s I t N a t i o n a l S c i e n c e a n d T e c h n o l o g y Develop- .

ment Agency t o a d v i s e t h e government i n t e r a l i a

on t t n a t i o n a l s c i e n c e p o l i c i e s and p r i o r i t i e s and

on s c i e n t i f i c and t e c h n o l o g i c a l a c t i v i t i e s g e n e r a l l y w .

The gove rnmen t a l s o set u p a commission w i t h a

c h a i r m a n and s p e c i a l i s t s f rom v a r i o u s f i e l d s a s

members t o w o r k o u t d e t a i l s of i m p l e m e n t a t i o n , 7

T h e r e a s o n for t h i s i s p r o b a b l y b e c a u s e t h e i s s u e

i n v o l v e d w a s a h i g h l y t e c h n i c a l o n e and r e q u i r e d

t h e a d v i c e of t h e s p e c i a l i s t s f o r p r o p e r i n t e r p r e t a -

t i o n and i m p l e m e n t a t i o n of t h e p o l i c y , However, t h e

p a p e r work and o t h e r d e t a i l s w i l l s t i l l h a v e to be

c a r r i e d o u t by t h e a d m i n i s t r a t o r s . T h i s i n v o l v e s

o r g a n i s i n g p e r s o n n e l u n i t s , m a r s h a l l i n g r e s o u r c e s ,

a s s i g n i n g d u t i e s and making i n t e r i m d e c i s i o n s , I t

i s u s u a l l y a t t h i s s t a g e t h a t some i n t e r e s t e d g r o u p s

or i n d i v i d u a l s become aware of t h e e x i s t e n c e o f a

new p o l i c y and t h e y u s u a l l y t r y t o push for i t s

m o d i f i c a t i o n o r t o t a l abandonment.

Egonmwan a d v o c a t e s f o r t h r e e t e c h n i q u e s f o r

managing imp lemen ta t i on . Such t e c h n i q u e s i n c l u d e ;

( i) ' c r i t i c a l p a t h ~ n a l y s i s (CPA) or p r o j e c t

~ m p l e m e n t i t i o n s chedu le .

(ii) M o n i t o r i n g a n d E v a l u a t i o n (ME)

( X X i ) Management I n f o r m a t i o n s y s t e m (MIS).

P r o j e c t i m p l e m e n t a t i o n s c h e d u l e s are d e s i g n e d t o

i d e n t i f y a t t h e i n i t i a l p o s s i b l e s t a g e of i m p l e m e n t a t i o n ,

t h e a c t i o n r e q u i r e d to i m p l e m e n t d i f f e r e n t p r o j e c t

c o m p o n e n t s a n d to make s p e c i f i c a t i o n of t h e s e q u e n c e i n

w h i c h c o m p o n e n t s s h o u l d be i m p l e m e n t e d , t h e t i m e r e q u i r e d

t o i m p l e m e n t them a n d t h e a g e n c i e s r e q u i r e d for t h e

i m p l e m e n t a t i o n ,

M o n i t o r i n g i s a n on-going a c t i v i t y t h e p u r p o s e o f

w h i c h i s t o reassess p r o j e c t o b j e c t i v e s a n d t h e means

o f a c h i e v i n g them i n t h e l i g h t of t h e e x p e r i e n c e a n d

new d e v e l o p m e n t a s i m p l e m e n t a t i o n p r o c e s s , E v a l u a t i o n

g o e s hand i n h a n d w i t h m o n i t o r i n g . I t e n a b l e s u s t o

see how s u c c e s s f ~ l or u n s u c c e s s f u l a p a r t i c u l a r p o l i c y

h a s been , M o n i t o r i n g a n d e v a l u a t i o n are i n t e n d e d to

p r o v i d e e a r l y w a r n i n g t o p r o j e c t management a b o u t

p o t e n t i a l or a c t u a l p r o b l e m s c o n f r o n t i n g i m p l e m e n t a t i o n .

T h e y h a v e b e e n f o u n d t o be o f g o o d h e l p t o management

d e c i s i o n t o w a r d s i m p r o v i n g i m p l e m e n t a t i o n , T h u s fo r

m o n i t o r i n g a n d e v a l u a t i o n t o be e f f e c t i v e , t h e f o l l o w i n g

p r e r e q u i s i t e s m u s t be mets -

M a n a g e r s h a v e t o w a n t t h e s y s t e m a n d be

committed t o i t s u s e ;

d e c i s i o n s a s t h e data t o be collected s h o u l d

be based o n t h e p r o b l e m s t h a t w i l l n e e d t o be

s o l v e d d u r i n g i m p l e m e n t a t i o n ;

r e q u i r e m e n t for data c o l l e c t i o n h a v e to be

a d a p t e d t o realist ic s t a n d a r d s of a c c u r a c y ,

t i m e l i n e s s , a n d cost;

t h e s y s t e m h a s t o be d e s i g n e d a t a n e a r l y s t a g e

Of p r o j e c t p r e p a r a t i o n a n d b a s e l i n e data

collected w e l l i n a d v a n c e n , 5

C e r t a i n minimum i n f o r m a t i o n s y s t e m s are n e c e s s a r y

for p r o j e c t i m p l e m e n t a t i o n , S u c h minimum i n f o r m a t i o n

r e q u i r e d i s u s u a l l y i n t h e area of f i n a n c i a l t r a n s a c -

t i o n , t e c h n i c a l a n d s t a f f i n g matters, T h e r e i s n e e d

for a d e q u a t e a c c o u n t i n g s y s t e m a s w e l l a s o n e w i t h

r e g a r d t o f l o w of f u n d s t o t h e p r o j e ~ t , D i f f e r e n t

t y p e s of p r o j e c t s n e e d d i f f e r e n t i n f o r m a t i o n s y s t e m s

a n d t h i s i n f o r m a t i o n s y s t e m m u s t be a d a p t e d t o t h e

local c o n d i t i o n s a n d c u s t o m s , T h e r e m u s t a l so be

clea; c o m m u n i c a t i o n b e t w e e n t h e p o l i c y m a k e r s a n d

p o l i c y i m p l e m e n t a t e r s , ~ l l t h e r e l e v a n t actors i n

i m p l e m e n t a t i o n programme m u s t know w h a t t h e y are

e x p e c t e d t o do, I n s h o r t t h e a b i l i t y a n d i n t e r g r i t y

of t h e o p e r a t o r s s h o u l d be c o n s i d e r e d a s good

i m p l e m e n t a t i o n p r e r e q u i s i t e s .

2.2 N i q e r i a n Hous inq P o l i c y 1979-1983

I n ~ p r i l 1980, t h e r e p r e s e n t a t i v e s of a l l t h e

government of t h e F e d e r a t i o n had a c o n f e r e n c e i n

P o r W a r c o u r t w i t h t h e N a t i o n a l C o u n c i l on Hous ing

and Envi ronment , A s a r e s u l t of t h i s c o n f e r e n c e ,

a comprehens ive N a t i o n a l P o l i c y was p roposed i n

c o n s o n a n c e w i t h t h e N a t i o n a l P a r t y of N i g e r i a

e l e c t i o n m a n i f e s t o to p r o v i d e l i v i n g h o u s e s for

N i g e r i a n Masses,

T h e document was t h e n p a s s e d t o t h e o f f ice of

t h e P r e s i d e n t for a p p r o v a l , T h e r e a f t e r , a d r a f t

N a t i o n a l Housing B i l l was fo rwarded t o t h e N a t i o n a l

Assernbl y for c o n s i d e r a t i o n , The B i l l when p a s s e d ,

became a p o l i c y , The p o l i c y p o p u l a r l y known a s t h e

low-cost Hous ing scheme w a s aimed a t p r o v i s i o n of

d e c e n t and a f f o r d a b l e h o u s e s i n a l i v e a b l e e n v i r o n -

ment f o r t h e ' teaming p o p u l a t i o n of N i g e r i a e s p e c i a l 1 y

t h e low-income e a r n e r s a t owner /occup ie r b a s i s a t a

r e l a t i v e l y low p r i c e . The p r o j e c t w a s made u p of

one bedroom h o u s i n g u n i t and t h r e e bedroom h o u s i n g

u n i t w i t h t h e n e c e s s a r y modern conven iences . Th , i s

w a s d e c l a r e d b y t h e t h e n P r e s i d e n t A l h a j i S h e h u

S h a g a r i w h i l e a d d r e s s i n g a c rowd i n Yola, G o n g o l a

S t a t e , i n a n o c c a s i o n c h r i s t e n e d " t u r n i n g t h e sod"

of t h e F e d e r a l H o u s i n g programme,

A c c o r d i n g t o t h e g o v e r n m e n t w h i t e p a p e r o n t h e

h o u s i n g p o l i c y , t h e a d m i n i s t r a t i o n i s c o m m i t t e d t o

t h e f o l l o w i n g o b j e c t i v e s .

1. E n s u r i n g a n i n c r e a s e i n t h e p r o d u c t i o n of

a f f o r d a b l e o w n e r / o c c u p i e r h o u s e s i n t h e u r b a n

a r e a s .

2. A d e q u a t e p r o v i s i o n o f f i n a n c i a l r e s o u r c e s t o

i n s ti t u t i o n s c h a r g e d w i t h t h e r e s p o n s i b i l i t y of

home f i n a n c i n g a n d b u i l d i n g c o n s t r u c t i o n i n d u s t r y

i n o r d e r t o m a k e i t easier f o r low-income w o r k e r s

t o o b t a i n l o a n .

3. E n c o u r a g i n g a n d s u p p o r t i n g local i n i t i a t i v e s a n d

a c t i v i t i e s i n home p r o d u c t i o n .

4. ~ c c e l e r a t i n g t h e t r a i n i n g of s k i l l s n e e d e d i n

t h e b u i l d i n g c o n s t r u c t i o n i n d u s t r i e s *

5. ' P r o t e c t i n g local v a l u e s a s w e l l a s s u p p o r t i n g

t r a d i t i o n a l a n d s e l f - h e l p effort i n home

c o n s t r u c t i o ~ t h e p r o v i s i o n of s h e 1 ter a n d

a u x i l l i a r y s e r v i c e s .

I n o r d e r t o a c h i e v e t h e a b o v e o b j e c t i v e s , a

s e p e r a t e M i n i s t r y of H o u s i n g a n d E n v i r o n m e n t w a s

c r e a t e d w i t h t h e f o l l o w i n g f u n c t i o n s , 6

C o n s t r u c t i o n a n d m a i n t e n a n c e o f H o u s i n g

u n i t s ,

I n i t i a t i n g H o u s i n g P o l i c y a n d Deve lopment

t o l o o k i n t o matters of p o l l u t i o n a n d . o t h e r

e n v i r o n m e n t matters.

U r b a n p l a n n i n g a n d Deve lopment

D e v e l o p m e n t of p a r k s a n d g a r d e n f o r r e c r e a t i o n ,

C a r r y i n g r e s e a r c h o n b u i l d i n g materials a n d

d e v e l o p m e n t ,

U n d e r t h e h o u s i n g programme, t h e S h a g a r i

a d m i n i s t r a t i o n w i s h e d to p r o d u c e 200,000 u n i t s of

h o u s e s e v e r y y e a r i n a l l p a r t s o f t h e c o u n t r y , I n

t h i s p l a n , t h e a d m i n i s t r a t i o n i n c l u d e d , e f f o r t s b y

b o t h t h e p r i v a t e a n d p u b l i c sector, p r i v a t e

i n d i v i d u a l s a n d p r i v a t e estate d e v e l o p e r s , t h e

v a r i o u s H o u s i n g C o o p e r a t i o n s o f b o t h t h e state a n d

F e d e r a l Government ,

T h e F e d e r a l M i n i s t r y of H o u s i n g a n d E n v i r o n m e n t

i s d i r e c t l y i n v o l v e d w i t h t h e c o n s t r u c t i o n of 2 ,000

hous ing u n i t s i n each state of t h e F e d e r a t i o n

i n c l u d i n g t h e F e d e r a l c a p i t a l t e r r i t o r y e v e r y year.

A s e a r l i e r i n d i c a t e d , t h e a d m i n i s t r a t i o n had i n mind

t h e p l a n of b u i l d i n g 1,800 core hous ing u n i t s and 200

t h r e e bedroom u n i t s i n each s t a t e of t h e F a d e r a t i o n .

A t o t a l of n i n e hundred and s i x t y one 7

c o n t r a c t o r s w e r e employed t o e x e c u t e t h e p r o j e c t i n

d i f f e r e n t p a r t s of t h e country . T h e r e w e r e a l s o t h r e e

hundred and e i g h t y t w o c o n s t r u c t i o n sites spanning t h e

whole l e n g t h and b r e a d t h of t h e country. Out of t h i s

number, abcnrt t h r e e hundred and e i g h t (308) w e r e sited

i n t h e l o c a l government h e a d q u a r t e r s and one hundred

and s e v e n t y f o u r i n t h e v e r y remote p a r t of t h e country.

I n f o r m a t i o n from t h e F e d e r a l M i n i s t r y of i n f o m a t i o n

r e v e a l e d t h a t ~ 2 . 6 5 b i l l i o n was mapped au t for hous ing

scheme i n t h e F o u r t h N a t i o n a l D e v e l & p c n t p l a n which r a n

from 1981 to 1985 which i n c l u d e d t h e p e r i o d u n d e r .

review. ?or t h e first phase t h e sum of W605, 891.65

was e s t i m a t e d f o r t h e 40.000 housing u n i t s and a l l t h e

i n f r a s t r u c t u r a l work and for t h e Second phase abou t

W4OO m i l l i o n was r e q u i r e d , On t h e w h o l e a t o t a l

amount of W307, 750,000 was d i s b u r s e d for t h e l o w - cost housing scheme from 1980 to March 1982.

< 48

T h e F e d e r a l M i n i s t r y o f H o u s i n g a n d e n v i r o n m e n t

made a c o n c r e t e a r r a n g e m e n t w i t h b o t h t h e local

m a n u f a c t u r e r s a n d i m p o r t e r s o f t h e b u i l d i n g materials

u s e d w i t h t h e a i m t o make them r e a d i l y a v a i l a b l e to

t h e c o n t r a c t o r s i n c h a r g e o f t h e p r o j e c t a t r e a s o n a b l e

cost. T h i s i s t o c u r b o f f t h e a d m i n i s t r a t i v e a n d

social b o t t l e n e c k t h a t may d i s t u r b t h e s u p p l y o f t h e

e s s e n t i a l b u i l d i n g mater ia ls f o r t h e e a s y e x e c u t i o n

of t h e programme.

I n order t o a l l e v i a t e f i n a n c i a l p r o b l e m

a s s o c i a t e d w i t h t h e e x e c u t i o n o f t h e p r o j e c t , t h e

F e d e r a l Government a p p r o v e d a new l e n d i n g p o l i c y f o r

t h e F e d e r a l M o r t g a g e Bank. I n t h e p o l i c y , t h e amount

or l o a n g i v e n t o i n d i v i d u a l w a s based o n t h e a f f o r d a b l e

means of t h e a p p l i c a n t . W i t h t h i s d e v e l o p m e n t , t h e

l o a n c e i l i n g was r e d u c e d a n d f i x e d to a m a n a g e a b l e

l e v e l o f a b o u t N30,OOO. E s t a b l i s h m e n t o f F e d e r a l

M o r t g a g e Bank i n a l l t h e s t a te c a p i t a l s o f t h e

n i n e t e e n states i n t h e F e d e r a t i o n w a s a n o t h e r s t e p

t a k e n by t h e F e d e r a l Government i n , a n a t t e m p t t o

f a c i l i t a t e t h e p r o p e r implemen t a t i o n of t h e h o u s i n g

p o l i c y .

REFERENCES

1. L a s w e l l , HOD. and Kap lan , A. p o w e r and society, N e w Haven Yale, U n i v e r s i t y p r e s s , 1960 p. 71.

20 E a s t o n , D. The P o l i t i c a l sy s t em, N e w Y o r k ; A l f r e d k n o f f , 1953 , p.129.

3. Egonmwan, J.A. P u b l i c P o l i c y ~ n a l y s i s - C o n c e p t s and ~ p p l i c a t i o n SoM.0. Aka and B r o t h e r s p r e s s , 6 Aka street, PoMoBo 1611 , Ben in c i t y p. 211-253.

40 Eme 0. Awa. P o l i c y and ~ d m i n i s t r a t i o n ; t h e N i g e r i a n E x p e r i e n c e i n P rob lems of N i q e r i a n A d m i n i s t r a t i o n ed. Humphrey ' . - N. Nwosu, F o u r t h Dimesion p u b l i s h e r s , Enugu p.12.

5. I b i d Egonmwan p. 232.

6. E x e c u t i v e o f f i ce of t h e P r e s i d e n t . Depar tment of I n f o r m a t i o n ; 'QHousing for A l l " Government p r e s s ; Lagos , 1980.

7. F e d e r a l M i n i s t r y of I n f o r m a t i o n . Y e a r s of ~ c h i e v e m e n t and p r o g r e s s , Government p r e s s , Lagos , 1982 p.20,

CHAPTER THREE

FEDERAL LOW-COST HOUSING POLICY: I N ANAMBRA STATE/ PROBLEMS AND PROSPECTS

Most common i m p l e m e n t a t i o n p r o b l e m s c o n f r o n t i n g

t h e F e d e r a l M i n i s t r y o f H o u s i n g a n d E n v i r o n m e n t i n

Anambra S t a t e i n c l u d e a d m i n i s t r a t i v e , e n v i r o n m e n t a l ,

S o c i o - p o l i t i c a l , e c o n o m i c a n d i n f r a s t r u c t u r a l p r o b l e m s ,

~ l l t h e s e p r o b l e m s a f fec ted t h e c h a n c e s f o r s u c c e s s f u l

i m p l e m e n t a t i o n of p o l i c i e s , T h e a b o v e l i s t e d p r o b l e m s

a s t h e y affected t h e h o u s i n g p o l i c y i n Anambra S t a t e

are b r i e f l y d i s c u s s e d t h u s :

3.1 ~ d m i n i s t r a t i v e Problem:

T h e F e d e r a l Government of N i g e r i a i n i t i a t e d ,

d e f i n e d a n d c o - o r d i n a t e d p l a n s a s w e l l a s t h e

i n s t r u m e n t s for t h e a c h i e v e m e n t of h o u s i n g p o l i c y

o b j e c t i v e s i n Anambra S t a t e a n d i n N i g e r i a i n g e n e r a l .

T h e a c t u a l i m p l e m e n t a t i o n w a s e n t h r u s t e d u n d e r g o v e r n -

m e n t p a r a s t a t a l s a t t h e F e d e r a l , S t a t e a n d l o c a l

g o v e r n m e n t l e v e l s . B a s e d o n t h i s a r r a n g e m e n t , d i f f e r e n t

s t a t e s h a d d i f f e r e n t me thod of o p e r a t i o n a s f a c t o r s

l i k e . c u l t u r a l e n v i r o n m e n t , e x p e r i e n c e s , n e e d s ,

r e s o u r c e s a n d e v e n p o l i t i c a l s t a n d i n f l u e n c e d

i m p l e m e n t a t i o n of t h e p r o j e c t . T h e F e d e r a l g o v e r n m e n t

i n o r d e r t o t a k e i m p l e m e n t a t i o n n e a r e r t o t h e t a r g e t

g r o u p s e s t a b l i s h e d t h e F e d e r a l M i n i s t r y of H o u s i n g

a n d E n v i r o n m e n t a t L a g o s a n d a b r a n c h of t h e office

i n e a c h of t h e t h e n n i n e t e e n (19) states of t h e

F e d e r a t i o n , T h e aim of t h e d e c e n t r a l i z a t i o n was to

g e t t h e s t a f f of t h e M i n i s t r y w o r k i n g i n v a r i o u s

s t a t e s u p e r v i s e t h e a c t u a l i m p l e m e n t a t i o n of t h e

s c h e m e i n t h e i r r e s p e c t i v e states,

However, c o n t r a r y to t h e s e s p e c i f i c a t i o n s , i n t h e

p l a n , i t w a s d i s c o v e r e d t h a t b o t h p o l i c y programming

a n d a d j u s t m e n t were h i g h l y c e n t r a l i z e d t h a t e v e r y

s t e p t a k e n i n t h e programme w e n t back to L a g o s f o r

c o n f i r m a t i o n , T h e s tate b r a n c h of t h e F e d e r a l

M i n i s t r y of H o u s i n g a n d E n v i r o n m e n t (FMHE) w a s n o t

g i v e n a free h a n d t o i n i t i a t e a d j u s t m e n t t o social a n d

c u l t u r a l e n v i r o n m e n t i n h e r e n t i n t h e i r r e s p e c t i v e

states. T h i s s i t u a t i o n u n d o u b t e d l y mared t h e

r e l a t i o n s h i p b e t w e e n t h e v a r i o u s ac tors i n t h e

i m p l e m e n t a t i o n s c e n e s u c h t h a t e a c h became s u s p i c i o u s

of t h e o t h e r , .

A t times, t h e r e was a d m i n i s t r a t i v e c o n f l i c t

b e t w e e n t h e F e d e r a l M i n i s t e r of H o u s i n g a n d E n v i r o n -

m e n t a n d t h e ~ i n i s t e r i n t h e S t a t e M i n i s t r y o f H o u s i n g

a n d E n v i r o n m e n t , F o r i n s t a n c e , a case w a s r e p o r t e d

where t h e t h e n M i n i s t e r of Housing a n d Envi ronment

D r . Wahab Dosumu by - p a s s e d t h e t e c h n i c a l u n i t s O f

t h e M i n i s t r y i n t h e award of c o n t r a c t and e v e n

r e j e c t e d t h e c o n t r a c t s awarded by t h e S t a t e FMHE.

T h i s s i t u a t i o n b r o u g h t l a c k of c o n f i d e n c e and mu tua l

u n d e r s t a n d i n g be tween t h e t w o most i m p o r t a n t o f f i c e r s

i n t h e a d m i n i s t r a t i v e set up, The f&e ld officers

whose d u t y was t o s u p e r v i s e t h e p r o j e c t and r e p o r t

back t o t h e m i n i s t r y a l l g o t d i s e n c h a n t e d a b o u t t h e

p r o j e c t a s a r e s u l t of t h e i n t i m i d a t i v e a c t i v i t i e s

of t h e s e t o p o f f i c i a l s . I n s h o r t , many of t h e

s t a f f i n t h e M i n i s t r y d e v e l o p e d a n o w - . c h a l l e n t

a t t i t u d e t owards t h e i m p l e m e n t a t i o n o f t h e p r o j e c t

a n d t h i s a d v e r s e l y a f f e c t e d t h e c o m p l e t i o n of t h e

p r o j e c t ,

A n o t h e r p rob lem of a d m i n i s t r a t i o n w i t n e s s e d f n

a l m o s t a l l p r u j e c t i m p l e m e n t a t i o n e x e r c i s e i n c l u d i n g

t h a t o f low-cos t h o u s i n g i n Anambra s tate w a s t h a t of

m i s a p p r o p r i a t i o n of f u n d a n d materials mean t f o r t h e

p r o j e c t . I t was a l l e g e d t h a t f u n d mapped o u t f o r t h e

p r o j e c t was d i v e r t e d t o p r i v a t e a c c o u n t s t o s a t i s f y

t h e s e l f i s h d e s i r e s of some of o u r A d m i n i s t r a t o r s .

I t was d i s c o v e r e d i n t h i s case t h a t some of t h e

c o n t r a c t o r s awarded w i t h t h e c o n t r a c t o f

i m p o r t a t i o n of b u i l d i n g m a t e r i a l s collected t h e i r

m o b i l i z a t i o n f e e and d e l a y e d t h e d e l i v e r y o f t h e

m a t e r i a l s i n s p i t e o f t h e f a c t t h a t t h e y were g i v e n

d e a d l i n e which e x p i r e d of 3 0 t h of December 1980.

A s a r e s u l t o f t h e a d m i n i s t r a t i v e wedtness. which

i s paramount i n o u r c o u n t r y no s e r i o u s e f for t

w a s made by t h e a d m i n i s t r a t i o n t o compel t h e

d e f a u l t e r s t o conform t o o r d e r .

On t h e o t h e r hand, some c o n t r a c t o r s d e l i b e r a -

t e l y r e f u s e d t o u s e t h e b u i l d i n g m a t e r i ' d s

i m p o r t e d on t h e p r e t e n c e t h a t t h e y w e r e n o t good.

I n t h e a c t u a l s e n s e , such c o n t r a c t o r s had c c l l u d e d

w i t h t h e t o p o f f i c i a l s o f t h e r u l i n g p a r t y t o

d i v e r t t h e r e j e c t e d materials t o t h e i r r e s p e c t i v e

h i d e o u t s f o r t h e i r p r i v a t e use . The i d e a b e h i n d

t h i s was t o have avenue t o i n f l a t e t h e cost of

c o n s t r u c t i o n so t h a t t h e y m i g h t g e t more kick-backs.

U n f o r t u n a t e l y , one d i s c o v e r e d t h a t i n Anambra

S t a t e 1 ,300 h o u s i n g u n i t s w e r e b u i l t a g a i n s t t h e

8000 ' hous ing u n i t s t a r g e t e d . One c a n t h e n o b s e r v e

t h a t t h e r e was' a g r e a t g a p be tween t h e t a r g e t e d

number o f h o u s e s t o be b u i l t and t h e a c t u a l number

c o n s t r u c t e d . Thus , t h e s e l f i s h a t t i t u d e of t h e

C 54

mind of N i g e r i a n p u b l i c s e r v a n t s had i n no s m a l l

measu re c o n t r i b u t e d t o t h e s t a g n a t i o n o f most of

o u r d e v e l o p m e n t a l p r o j e c t i n c l u d i n g t h e low-cost

h o u s i n g scheme,

3.2 Env i ronmen ta l C o n s t r a i n t s

Land a c q u i s i t i o n c o n s t i t u t e d a b i g impediment

t o p l a n i m p l e m e n t a t i o n of low-cos t Hous ing scheme

i n Anambra S t a t e , The r e a s o n fo r t h i s w a s t h a t

t h e s t a t e government d i d n o t c o o p e r a t e w i t h t h e

F e d e r a l M i n i s t r y of Housing i n t h e i s s u e o f

p r o v i s i o n o f sites f o r t h e p r o j e c t b e c a u s e o f t h e

p o l i t i c a l d i f f e r e n c e be tween t h e s t a t e and t h e

F e d e r a l Government. The u n c o o p e r a t i v e a t t i t u d e

of t h e state h i n g e d on t h e p r o v i s i o n made by t h e

Land u s e Decree o f 1978 which s t a t e d t h a t l a n d

b e l o n g s t o a l l and i s h e l d i n t h r u s t by t h e s t a t e . .

governments . The Anambra S t a t e government however,

m i s u s e d t h i s power g i v e n t o t h e m by t h e d e c r e e t o

f r u s t r a t e t h e efforts of t h e F e d e r a l government by

r e f u s i n g t o p r o v i d e c o n s t r u c t i o n sites t o t h e

B e d e r a l M i n i s t r y o f Housing and Environment , I n

p l a c e s where l a n d was p r o v i d e d by t h e s t a t e

gove rnmen t , i t was done s o a f t e r a p r o t r a c t e d b a t t l e

b e t w e e n t h e t w o a c t o r s i n v o l v e d i n t h e p r o j e c t . A s

a r e s u l t of t h i s , a r e a s l i k e Awka, N j i k o k a a n d

E z i a g u r e m a i n e d u n c o n s t r u c t e d u p u n t i l 1984.

C o u p l e d w i t h t h i s i s t h e p h y s i c a l n a t u r e of t h e

s i tes made a v a i l a b l e t o t h e F e d e r a l M i n i s t r y of

H o u s i n g a n d E n v i r o n m e n t . On t h e s p o t v i s i t s t o some

of t h e c o n s t r u c t i o n s i tes r e v e a l e d t h a t most of t h e

l a n d made a v a i l a b l e b y t h e s t a t e g o v e r n m e n t a re most

u n f a v o u r a b l e fo r t h e o v e r a l l a i m of t h e scheme,

Most of t h e l a n d s w e r e mapped o u t i n u n i n h a b i t e d

areas o f t h e town w h e r e t h e r e were n o t r a c e o f l i f e .

Some o f t h e s e a r e a s were v e r y t h i c k f o r e s t s w h i c h

were a t t i m e s r e f e r r e d t o a s e v i l forests. T O c a p

i t a l l , t h e sites w e r e l o c a t e d i n a r e a s w h i c h m e a s u r e .

a b o u t f i v e t o s i x k i l o m e t r e s t o t h e w o r k i n g p l a c e s of

t h e b e n e f i c i a r i e s . One would t h e n wonder how t h e s e . .

b e n e f i c i a r i e s w o u l d l e a v e t h e i r w o r k i n g p l a c e s t o

r e s i d e i n s u c h areas. 1 g b o - ~ t h i a n d Nsukka L o c a l

Government areas a r e g o o d e x a m p l e s of p l a c e s w h e r e

t h e l o w - c o s t h o u s i n g p r o j e c t s w e r e s i t e d i n t h e

j u n g l e . T h e r e s u l t till t h i s moment i s t h a t i n s u c h

areas, low-cost h o u s i n g estate r e m a i n s u n i h a b i t a t e d

by w o r k e r s . Even t h e p o l i c e m e n who t r i e d t o o c c u p y

them sometime a g o were d i s t u r b e d by t h e a c t i v i t i e s

of t h e armed robbers who a t t a c k e d them i n c e s s a n t 1 y

l o o t i n g b o t h t h e i r p r o p e r t y and some b u i l d i n g

m a t e r i a l s l i k e l o u v r e s and w a t e r sys t em gadge t s .

I n some l o c a l government a r e a s , t h e s i te

p r o v i d e d t o t h e F e d e r a l M i n i s t r y of Housing and

Envi ronment were so rough w i t h h i l ls and v a l l e y s

a l l o v e r t h a t t h e c o n t r a c t o r s had to u t i l i z e a

g r e a t d e a l o f t h e r e s o u r c e s t o l e v e l t h e a r e a s

f o r c o n s t r u c t i o n . I n a g u a t a l o c a l government a r e a

i n p a r t i c u l a r , t h e c o n t r a c t o r c o n f e s s e d t h a t h e

u t i l i z e d a l m o s t a l l t h e money budge ted f o r t h e

c o m p l e t i o n of t h e p r o j e c t i n c l e a r i n g and l e v e l l i n g

t h e s i te t h a t l i t t l e or no money was lef t f o r t h e

e x e c u t i o n o f t h e main p r o j e c t . One would t h e n

i m a g i n e where such c o n t r a c t o r s h o u l d g e t t h e money

fo r t h e c o m p l e t i o n of t h e p r o j e c t . No wonder t h e n

why some of t h e p r o j e c t s remained uncompleted.

T h e p r i c e - o f s h o r t - f a l l s i n p o l i t i c a l e n v i r o n m e n t

w a s p a i d d e a r 1 y d u r i n g i m p l e m e n t a t i o n o f low-cost

housir ig scheme i n Anambra S t a t e . T h i s was a s a

r e s u l t of l a c k bf i n t e r n a l c o n s e n s u s be tween t h e

main a g e n c i e s and actors i n t h e f i e l d of implementa-

i n t h a t t h e y saw t h e i r r e l a t i o n s h i p a s t h a t o f t w o

p a r a l l e l l i n e s t h a t s h o u l d n e v e r meet.

N o d o u b t , t h i s s i t u a t i o n retarded t h e

p r o g r e s s of work o n t h e scheme, d e l a y e d t h e commence-

m e n t of work i n t h e s t a t e a n d a l so c a u s e d a g e n e r a l

i n c r e a s e i n t h e cost of c o n s t r u c t i o n .

3.3 s o c i o - P o l i t i c a l P rob lems :

T h e man-know-man syndrome, b r i b e r y , c o r r u p t i o n

a n d p a t i s a n p o l i t i c s h a d d e s t r u c t i v e effects o n t h e

i m p l e m e n t a t i o n of low-cost h o u s i n g scheme i n

Anambra S t a t e .

T h e 1.M. p r a c t i c e a s i t i s p o p u l a r l y a d d r e s s e d

c r e a t e d o p p o r t u n i t y f o r u n q u a l i f i e d a n d i n c o m p e t e n t

a p p l i c a n t s t o o b t a i n e i t h e r job or c o n t r a c t s . A s i t

a f f e c t e d t h e l o w - c o s t h o u s i n g scheme, most of t h e

c o n t r a c t s f o r e x e c u t i n g t h e p r o j e c t were a w a r d e d to

p a r t y l o y a l i s ts o n t h e g r o u n d of t h e number o f p e o p l e

t h a t matter who s p o k e o n t h e p e r s o n ' s b e h a l f a n d

a l s o o n t h e amount of Naira d i s h e d o u t a s bribe or

p r o m i s e d a s ' k i c k b a c k , T o t h e s e a l m i g h t y c o n t r a c t

a w a r d e r s , m e r i t o c r a c y a n d c o m p e t e n c e of t h e

c o n t r a c t o r s w e r e t h e l a n g u a g e of t h e l@zuwosl@ who

a l w a y s w a n t t h i n g s g o t h e r i g h t way, A s a r e s u l t

of t h e s e f r a u d u l e n t a c t i v i t i e s i n r e c r u i t m e n t of

c o n t r a c t o r s , most of t h e c o n t r a c t o r s a w a r d e d w i t h

58

t h e c o n t r a c t of b u i l d i n g t h e l o w - c o s t h o u s e s i n

~ n a m b r a S t a t e w e r e n o v i c e who knew l i t t l e or n o t h i n g

a b o u t b u i l d i n g c o n s t r u c t i o n , T h e f u n i e s t a s p e c t of

t h i s c o n t r a c t award p r a c t i c e w a s t h a t some of t h e

c o n t r a c t o r s a w a r d e d w i t h t h e c o n t r a c t n e v e r a p p l i e d

f o r a n y c o n t r a c t b u t g o t o n e , w h i l e some r e g i s t e r e d

a n d q u a l i f i e d c o n t r a c t o r s who a p p l i e d for c o n t r a c t s ,

lobbied e x t e n s i v e l y i n t h e M i n i s t r y a n d y e t g o t n o t h i n g o

I t was a lso a l l e g e d t h a t some of t h e s e b i r d s of

p a s s a g e i n t h e f i e l d of c o n s t r u c t i o n m e r e l y c o l l e c t e d

t h e i r m o b i l i z a t i o n fees a n d l e f t t h e work u n c o m p l e t e d o

Some who e v e n t r i e d to b u i l d to s p e c i f i c a t i o n u s e d

i n f e r i o r m a t e r i a l s w i t h t h e r e s u l t t h a t h a n d l e s of

d o o r s w h i c h h a v e n e v e r b e e n o c c u p i e d s i n c e c o m p l e t i o n

h a d g o n e o u t of u s e a n d t h e d o o r s t h e m s e l v e s w e r e

e a t e n u p b y termites. O t h e r f r a u d u l e n t p r a c t i c e s

l i k e payment for jobs n o t d o n e , f o r g i n g of r e c e i p t s ,

payment f o r w t g h o s t " c o n t r a c t s , o v e r - p r i c e for c o n t r a c t s

a l s o t o o k t h e i r t o l l o n i m p l e m e n t a t i o n of l o w - c o s t

h o u s i n g i n Anambra S t a t e .

- However, a l l t h e s e o c c u r a s a r e s u l t of t h e

g e n e r a l a t t i t u d e t o work of N i g e r i a n c o n t r a c t o r s who

a r e m o t i v a t e d o n l y b y s h o r t - r u n r e w a r d s i n t h e c a s h

b e n e f i t a s w e l l a s t h e e x i s t i n g materialism w h i c h h a d

e n g u l f e d o u r p e o p l e p

T h e i m p l e m e n t a t i o n of l o w - c o s t H o u s i n g scheme

i n Anambra S t a t e w a s s u b j e c t e d to t h e v a g a r i e s of

N i g e r i a n p o l i t i c s , N i g e r i a n c i t i z e n s i n t h e i r

p r e v a l e n t a t t i t u d e of p o l i t i c i z i n g e v e r y i s s u e

i r e a p e c t i v e of t h e b e n e f i t of s u c h e n d e a v o u r r e a c h e d

i t s c l i m a x i n t h e i m p l e m e n t a t i o n of t h e h o u s i n g

p r o j e c t i n Anambra S t a t e d u r i n g t h e S e c o n d R e p u b l i c .

T h e s i t u a t i o n w a s t h e o n e w h e r e b y t h e g o v e r n m e n t i n

t h e c e n t r a l w a s d i f f e r e n t f r o m t h e o n e i n t h e state.

T h e N a t i o n a l P a r t y of N i g e r i a (NPN) w h i c h w a s t h e

t h e n g o v e r n m e n t a t t h e c e n t r e i n i t i a t e d t h e F e d e r a l

l o w - c o s t H o u s i n g p r o j e c t w h i c h w a s c a r r i e d o u t i n a l l

t h e t h e n n i n e t e e n s t a t e s of t h e F e d e r a t i o n . On t h e

o t h e r h a n d , Anambra S t a t e was g o v e r n e d b y t h e N i g e r i a n

A e o p l e s P a r t y (NPP). T h e s t a t e g o v e r n m e n t t h e n saw

t h e smooth i m p l e m e n t a t i o n of t h e F e d e r a l L o w - C o s t

H o u s i n g scheme a s a n a c h i e v e m e n t w h i c h w o u l d a d d

more f e a t h e r s t o t h e c a p of t h e NPN g o v e r n m e n t i n

o t h e r s u b s e q u e n t e l e c t i o n s . On t h i s g r o u n d , a l l

p o s s i b l e e f fo r t w a s made by t h e s t a t e g o v e r n m e n t t o

f r u s t f a t e t h e h o u s i n g p r o j e c t . A s m e n t i o n e d e a r l i e r ,

t h e s t a t e g o v e r n m e n t r e f u s e d t o p r o v i d e l a n d s for

c o n s t r u c t i o n a t t h e i n i t i a l s t a g e a n d e v e n t h e o n e s

C

60

b r o u g h t o u t w e r e l o c a t e d i n t h i c k b u s h e s where t h e r e

w e r e no t r a c e of life, Some w e r e e v e n s i t e d i n h i l l s

and v a l l e y s t h a t would t a k e t h o u s a n d s of N a i r a t o

clear and g e t l e v e l l e d f o r c o n s t r u c t i o n ,

Horeso, N i g e r i a n s see p o l i t i c s as t h e easiest

and s u r e s t a v e n u e t o a c q u i r e w e a l t h , They also r e g a r d

p u b l i c r e s p o n s i b i l i t i e s as no-man' s b u s i n e s s . T h i s

p h i l o s o p h y made t h e p o l i t i c i a n s and men i n s t r a t e g i c

p o s i t i o n s become x m i l l i o n a r i e s by d i v e r t i n g f u n d

mean t for p u b l i c p r o j e c t s to t h e i r p e r s o n a l a c c o u n t s

and v e n t u r e s . An a r c h i t e c t i n c h a r g e of c o n s t r u c t i o n

sites i n Anambra s f a t e r e v e a l e d t h a t t h e sum of H78

m i l l i o n was b u d g e t e d f o r low-cost h o u s i n g scheme i n

Anambra S t a t e o u t of which H35 m i l l i o n w a s u s e d for

i m p o r t a t i o n of b u i l d i n g materials. T h e b a l a n c e of

H43 m i l l i o n was p r o b a b l y u s e d t o s a t i s f y t h e

a c q u i s i t i v e t e n d e n c i e s of o u r t o p government of f ic ia ls

and p o l i t i c i a n s h e n c e n o t h i n g w a s h e a r d a b o u t it.

T h i s s i t u a t i o n l e d t o t h e s h o r t a g e of b u i l d i n g

m a t e r i a l s a n d s u b s e q u e n t rise i n t h e cost of

c o n s t r u c t i o n , A s a r e s u l t of t h i s , t h e c o n t r a c t o r s

h a n d l i n g t h e p ~ o j e c t h e l d a m e e t i n g on 1 0 t h of

November 1983 and r e s o l v e d t o a s k t h e F e d e r a l

Government t o i n c r e a s e t h e c o n t r a c t c h a r g e f o r t h e

p r o j e c t b u t t h e r e w a s no p o s i t i v e r e sponse . A t

t h i s p o i n t i n t i m e , some of t h e s e c o n t r a c t o r s

b r e a c h e d t h e i r c o n t r a c t w i t h t h e government by

d e s e r t i n g t h e i r p r o j e c t s uncompleted.

However, w e may n o t loose s i g h t of t h e i n t e r n a l

rifts which e x i s t e d w i t h i n t h e hous ing c o r p o r a t i o n

t h a t t i m e , A case was r e p o r t e d of t h e t h e n M i n i s t e r

of Hous ing and Envi ronment D r . Wahab Dosumu who

by-passed t h e t e c h n i c a l u n i t s of t h e M i n i s t r y i n t h e

award of c o n t r a c t s a n d e v e n r e j e c t e d t h e c o n t r a c t s - -

awarded by t h e s tate M i n i s t r y of Hous ing and

Environment . T h i s s i t u a t i o n had a d i v e r s t a t i n g

effect on t h e i m p l e m e n t a t i o n of Hous ing P r o j e c t i n

Anambra S t a t e a s i t weakened t h e d i s c i p l i n e i n t h e

c o r p o r a t i o n , p r o t e c t e d t h e i n c o m p e t e n t and

u n q u a l i f i e d c o n t r a c t o r s , c r e a t e d mutua l s u s p i c i o n

a n d undermined good l a b o u r r e l a t i o n s and i n d u s t r i a l

peace ,

4 ~ c o n o m i c Problems:

T h e F e d e r a l Government a l o n e took t h e

r e s p o n s i b i l i t y o f f i n a n c i n g t h e F e d e r a l l ow-Cos t

Housing scheme i n N i g e r i a , U n f o r t u n a t e l y , t h e

government w a s u n a b l e t o mleet u p w i t h t h e f i n a n c i a l

62

commitment r e q u i r e d by t h e programme.

I n f ac t , o u t of t e n c o n t r a c t o r s i n t e r v i e w e d ,

80% of them s a i d t h a t i n a d e q u a t e a l l o c a t i o n of

b u d g e t a r y fund was m a i n l y r e s p o n s i b l e for t h e

s t a g n a t i o n of t h e h o u s i n g p o l i c y i n t h e state. They

c o n t e n d e d t h a t a p a r t f rom 30% m o b i l i z a t i o n fee p a i d

t o them i n 2-981 for t h e t a k e off of t h e p r o j e c t , and

t h e s u b s e q u e n t f u l l payment g i v e n t o them on c o m p l e t i o n

of t h e first phase , n o t h i n g was g i v e n t o them till

t h i s moment. Some e v e n compla ined t h a t t h e y d i d n o t

r e c e i v e t h e f u l l payment for t h e first p h a s e of t h e

p r o j e c t u n t i l 1983, I n t h e f e w p l a c e s where work

had begun on t h e Second p h a s e of t h e programme, t h e

c o n t r a c t o r s c o m p l a i n e d t h a t t h e F e d e r a l M i n i s t r y of

Hous ing and Env i ronmen t o n l y k e p t p r o m i s i n g them of

payment b u t so f a r , n o payment had b e e n made t o them.

T h e problem of f i n a n c e fo r low-cost h o u s i n g i n

N i g e r i a i n g e n e r a l . and Anambra S t a t e i n p a r t i c u l a r

was modu l l ed . u p by , t h e a t t i t u d e of t h e b a n k s who

p r e f e r r e d to g i v e l o a n s t o e x p e r t r i a t e f i rms and

v e r y f e w i n d i g i n o u s firms, Commercial and Merchan t

b a n k s were i n v o l v e d i n h o u s i n g f i n a n c e i n t h e coun t ry .

T h e C e n t r a l Bank of N i g e r i a (CBN) u s e d mone ta ry ,

p o l i c y c i r c u l a r s to i n f l u e n c e t h e s e b a n k s to c h a n n e l

p a r t of t h e i r l o a n a b l e f u n d s t o bhe h o u s i n g sector.

T h e commercial banks on t h e o t h e r hand t r a d e w i t h

t h e i r c u s t o m e r s ' money, The f a c t t h a t t h e l a r g e s t

p r o p o r t i o n of t h e i r l i a b i l i t i e s are i n t h e form of

d e p o s i t s which a r e r e d e e m a b l e on demand, means t h a t

banks s h o u l d e x e r c i s e c a u t i o n or t h e y r i s k d e f a u l t i n

t h e i r o b l i g a t i o n s t o t h e i r d e p o s i t o r s . Thus t h e y are

c o n s e r v a t i v e i n t h e i r a p p r o a c h to h o u s i n g f i n a n c e .

I n a d d i t i o n to t h i s , l o a n s f o r r e s i d e n t i a l b u i l d -

i n g c o n s t r u c t i o n i s for a minimum p e r i o d of f i f t e e n

y e a r s , u n l e s s t h e borrower s p e c i f i c a l l y r e q u e s t s for

a s h o r t e r repayment p e r i o d f s e e mone ta ry p o l i c y

c i r c u l a r N o . 21 for 1987 f iscal y e a r ) . Owing to t h i s

l o n g pay back p e r i o d , b o t h commercial and Merchan t

b a n k s t e n d t o s h y away from l e n d i n g f o r t h e p u r p o s e

o f r e s i d e n t i a l b u i l d i n g c o n s t r u c t i o n .

Again , c o n s i d e r i n g t h e l e v e l of i n f l a t i o n i n

t h e economy, l e n d i n g f o r a minimum p e r i o d o f f i f t e e n

y e a r s i s bound. t o g i v e rise t o c a p i t a l losses. AS

a r e s u l t of t h i s a w a r e n e s s b y t h e banks , t h e r e w a s a

s e r i o u s s h o r t - f a l l on sectoral l e n d i n g (Hous ing

s e c t o r ) by commercial and merchan t banks between

1979 and 1983 as d e m o n s t r a t e d below. 11

Year

19 79

1980

1981

1982

1983

64

S h o r t f a l l

3,9 m i l l i o n

6,s m i l l i o n

6,7 m i l l i o n

3,7 m i l l i o n

9,4 m i l l i o n

T h e i n s u r a n c e c o m p a n i e s l i k e t h e b a n k s w e m a l s o

r e q u i r e d b y t h e e e n t r a l Bank crbdL* g u i d e l i n e s , t o

g i v e f i n a n c i a l c r e d i t f o r h o u s i n g b u t t h e y w e r e n o t

e n t h u s i a s t i c i n d o i n g t h a t , b e c a u s e t h e y h a d better

a l t e r n a t i v e a v e n u e s t o i n v e s t t h e i r e x t r a f u n d

c o n s i d e r t h e table B e l o w o

. C o n s i d e r i n g t h e l e n d i n g rate a n d t h e i n f l a t i o n

Year

1983

1984

198 5

rate, t h e i n s u r a n c e c o m p a n i e s w e r e a t a loss i n t h e i r

l e n d i n g o p e r a t i o n s t o h o u s i n g for t h e y e a r s 1983 a n d

L e n d i n g

R e s i d e n t i a l H ou si nu

732%

932%

9%%

1984, T h e o r e t i c a l l y s p e a k i n g , i n f l a t i o n r a t e s h o u l d

Rate

Commerc ia l Property

935% - 13%

13%

13%

Irrf l a t i o n Rate

23, 2%

39,6%

5,5%

be less t h a n l e n d i n g r a t e f o r c r e d i t o p e r a t i o n

t o be p r o f i t a b l e .

On a n i n t e r v i e w w i t h t h e t h e n Director of t h e

Low-Cost Housing programme i n Anambra S t a t e on t h e

i s s u e of t h e f i n a n c i a l s t a n d of t h e F e d e r a l Govern-

ment for t h e p r o j e c t , h e e x p l a i n e d t h a t t h e F e d e r a l

Government was i n a f i n a n c i a l quagmire. T h i s h e

a t t r i b u t e d t o t h e monocul t u r a l n a t u r e of o u r economy.

H e wen t f u r t h e r t o e x p l a i n t h a t o u t o f H S b i l l i o n

estimated f o r t h e programme i n t h e c o u n t r y , o n l y

a b o u t H607, 750,000 ( s i x hundred a n d s e v e n m i l l i o n ,

s e v e n hundred and f i f t y t h o u s a n d n a i r a ) w a s made

a v a i l a b l e fo r t h e scheme a s a t March 1982. I n

Anambra S t a t e , o u t of a n e s t i m a t e d sum of HI30

m i l l i o n f o r t h e programme, o n l y a b o u t H13, 882,

660 was made a v a i l a b l e f o r t h e scheme. From what

i s s e e n so f a r , o n e c a n u n d o u b t e d l y c o n f i r m t h a t t h e

problem of i n a d e q u a t e f i n a n c e was a l s o o n e o f t h e

c r i t i ca l factors which s t a g n a t e d t h e p r o g r e s s o f

work on t h e p r o j e c t .

Owing t o t h e s e f i n a n c i a l h a n d i c a p s , some

s t a t e g o v e r n o r s d e c i d e d and made t h e low-cos t

h o u s i n g scheme a programme f o r t h e r i c h . They . d i d

t h i s by s e l l i n g t h e a l r e a d y f i n i s h e d p l o t s to t h e

r i c h men i n t h e s o c i e t y who t h e n s e r v e d a s l a n d l o r d s

t o law-income e a r n e r s . T h i s w a s d o n e o n t h e f l i m s y

r e a s o n t h a t s u c h p r a c t i c e a would e n a b l e them g e n e r a t e

more f u n d a n d b u i l d more h o u s e s e v e n a t t h e e x p e n s e

of t h e b e n e f i c i a r i e s of t h e l o w - c o s t H o u s i n g programme-

t h e low-income e a r n e r s .

S p e a k i n g i n d e f e n c e of t h e d e c i s i o n t a k e n by t h e

s t a t e g o v e r n o r s t h e t h e n g o v e r n o r of L a g o s s t a t e i n

1 9 8 7 , Navy C a p t a i n M i k e ~ k h i g b e c o n t e n d e d t h a t t h e

p r e v a i l i n g p r i c e s of t h e l o w - c o s t h o u s e s fo r two

bedroom f l a t i s U18,000 w h i l e t h a t for t h r e e bederoom

f l a t i s 25 ,000 a n d a s s u c h s h o u l d be g i v e n to t h o s e

who c a n a f f o r d them. A c c o r d i n g t o him, "1 t i s n o t a

g r e a t e r l o v e for t h e common man i f h e i s g i v e n a

b u r d e n h e w i l l n o t be a b l e t o c a r r y w . 3

N e v e r t h e l e s s , t h e p r o b l e m h e r e i n N i g e r i a i s

t h a t t h e r e h a d n e v e r b e e n a c o m p r e h e n s i v e l y c o - o r d i n a t e d

p o l i c y o n h o u s i n g o n a n a t i o n a l l e v e l . Moreso, t h e

l e v e l of f u n d i n g a s s t a t e d i n t h e C e n t r a l ~ a n k M o n e t a r y

g u i d l i n e i s n o t s u f f i c i e n t fo r a d e q u a t e l o a n scheme.

3.5 r n f r a s t r u c t u r a l C o n s t r a i n t s t

T h e o v e r a l l i m p l i c a t i o n of i n f r a s t r u c t u r a l

s u p p o r t t o N i g e r i a n e c o n o m i c d e v e l o p m e n t i n g e n e r a l

a n d t h e low-cost Hous ing scheme i n Anambra S t a t e i n

p a r t i c u l a r c a n n o t b e overemphasized. The implemcnta-

t i o n of t h e programme t o a l a r g e e x t e n t depended on

t h e s e r v i c e s r e n d e r e d by p u b l i c p h y s i c a l i n f r a s t r u -

t u r e s l i k e r o a d s , r a i l w a y s , p o r t s and s h i p p i n g l i n e s .

However, t h e s e t r a n s p o r t a t i o n s y s t e m s p l a y e d a

v i t a l role i n t h e r e t a r d a t i o n of w o r k i n t h e

i m p l e m e n t a t i o n of t h e N a t i o n a l Hous ing P o l i c y of t h e

Second Repub l i c . Most of t h e m a t e r i a l s needed for

f h e b u i l d i n g c o n s t r u c t i o n were i m p o r t e d from o t h e r

c o u n t r i e s and t h e s e materials c o u l d n o t r e a c h t h e i r

d e s t i n a t i o n w i t h o u t s c a l i n g t h r o u g h r i g o r o u s h u d d l e s

l i n e d u p by t h e N i g e r i a n P o r t s ~ u t h o r i t y a n d t h e

N i g e r i a n s h i p p i n g l i n e .

I n a n i n t e r v i e w w i t h t h e t h e n Director of t h e

programme i n Anambra S t a t e , h e d i s l c o s e d t h a t , t h e

F e d e r a l Government t o o k , a d e c i s i o n to i m p o r t most

o f t h e b u i l d i n g m a t e r i a l s needed fo r t h e i m p l e m e n t a t i o n

of low-cost Hous ing programme. The d e c i s i o n was t a k e n

w i t h a v iew t o p r e v e n t t h e r ed - t ap i sm and b o t t l e n e c k

t h a t migh t a r i s e a s a r e s u l t of n o n - a v a i l a b i l i t y of

b u i l d i n g materi'als as was p r o m i n e n t i n t h e T h i r d

N a t i o n a l Development p l a n imp lemen ta t ion . The i d e a

o f t h e i m p o r t a t i o n he c o n t i n u e d , was c o n c i e v e d so

a s t o h e l p s t a n d a r d i s e t h e p r i c e of t h e b u i l d i n g

m a t e r i a l s f o r t h e scheme, I t was a n t i c i p a t e d t h a t

i f t h e v i t a l b u i l d i n g materials l i k e r o o f i n g s h e e t s ,

s a n i t a r y w a r e s , p a i n t s , l o u v r e s , and cement were to

be i m p o r t e d , t h e F e d e r a l Government would have s a v e d

a l o t of money which would have i n t u r n b r o u g h t t h e

p r i c e of t h e b u i l d i n g s t o a v e r y s u b s i d i s e d r a t e

w i t h i n t h e r e a c h of t h e p r o v e r b i a l common man,

U n f o r t u n a t e l y , t h e i n e f f i c i e n c y o f t h e N i g e r i a n

P o r t s ~ u t h o r i t y to measu re u p w i t h t h e heavy t r a f f i c

demand i n o u r p o r t s l e d t o c o n g e s t i o n s i n o u r Sea-

P o r t s . A s a r e s u l t of t h i s , goods s t a y e d l o n g i n t h e

P o r t s c a u s i n g a d d i t i o n a l c h a r g e s t o t h e cost of raw

materials. T h i s s i t u a t i o n i n v a r i a b l y created

a r t i f i c i a l s c a r c i t y of t h e s e b u i l d i n g m a t e r i a l s i n

o u r local m a r k e t s which i n t u r n accelerated t h e

i n f l a t i o n a r y p r e s s u r e t h a t l e d t o d i s p r o p o r t i o n a t e

i n c r e a s e i n p r i c e .

A f t e r t h e f irst h u r d l e of c l e a r a n c e from t h e

P o r t s , t h e r e was t h e problem o f t h e s e M a t e r i a l s

g e t t i n g t o t h e i r r e s p e c t i v e s t a t e s i n t h e F e d e r a t i o n

where t h e scheme i s c a r r i e d ou t . T h i s r e q u i r e d t h e

69 C

s e r v i c e s of t h e road t r a n s p o r t ~ y s t e m . However, t h e

N i g e r i a n roads t h e n c o u l d n o t c o p e w i t h t h e i n c r e a s e d

demand made on them by t h e t r a f f i c e x p l o s i o n i n men

and m a t e r i a l s which t h e growing economy a n d t h e

i m p l e m e n t a t i o n of t h e low-cost ~ o u s i n g r e q u i r e d . A

case, was r e p o r t e d of a t ra i l le r loaded w i t h t h e s e

b u i l d i n g m a t e r i a l s fram P o r t - H a r c o u r t t o Enugu which

was g rounded o n o n e of t h e big p o t - h o l e s o n t h e road.

T h i s l o r r y w a s t h e r e for good t w o weeks before it was

r e p a i r e d . C o u l d you i m a g i n e t h a t same o f t h e cagets

i n t h e l o r r y g o t missed i n s p i t e of t h e p r e s e n c e of

t h e N i g e r i a n P o l i c e on g u a r d , on t h e s p o t t h e r e . I t

i s t h e N i g e r i a n s y s t e m of guard.

I f o n e s h o u l d resort to t h e r a i l w a y for t h e

s o l u t i o n of local t r a n s p o r t a t i o n problem, s h e would

t h e n discover t h a t t h e r a i l sys t em i n Nigeria h a s

no . l i n k w i t h t h e local s t a t i o n s . The ra i ls were

f a s h i o n e d t o s u i t t h e s e l f i s h i n t e r e s t of our

C o l o n i a l Masters whose aim w a s t o e v a c u a t e our raw-

materials from t h e h i n t e r l a n d t o t h e coast for onward

t r a n s m i s s i o n to t h e m e t r o p o l i t a n n a t i o n s . Moreso,

t h e h i g h defect of dissel e n g i n e a n d t h e obsolete

t rac t sys t em of t h e r a i l w a y c o n s t i t u t e d a big

impediment t o t h e u s e of t r a i n for local t r a n s p o r t a t i o n .

The r e s u l t of my i n t e r v i e w w i t h some o f

t h e c o n t r a c t o r s r e v e a l e d t h a t t h e m a j o r problem

t h a t d e l a y e d t h e p r o g r e s s of work i n t h e

i m p l e m e n t a t i o n o f low-cos t Housing i n Anambra

S t a t e was t h e u n p r e d i c t e d p e r i o d of t i m e t h e raw

materials s t a y e d i n t h e P o r t s b e f o r e r e a c h i n g

t h e i r r e s p e c t i v e d e s t i n a t i o n s , They a l s o

compla ined a b o u t t h e h i g h cost o f l a n d t r a n s p o r t a -

t i o n a s a r e s u l t of bad r o a d s and p r e v a i l i n g r o a d

a c c i d e n t s .

C o n s e q u e n t l y , t h e s e c o n s t r a i n t s l e d t o t h e

h i g h cost of b u i l d i n g m a t e r i a l s which i n v a r i a b l y

reflected on t h e cost of t h e p r o j e c t s , far above

what had been e s t i m a t e d i n t h e p l a n document, The

s i t u a t i o n a l s o d e l a y e d t h e c o m p l e t i o n of t h e p r o j e c t s

i n . almost a l l t h e sites i n t h e stateo

REFERENCES

1. Oduoza , H y a c i n t h , " D e v e l o p i n g H o u s i n g F i n a n c e i n N i g e r i a " . B u s i n e s s C o n c o r d , May 29 , 1 9 8 7 pa 14 ,

2, F e d e r a l M i n i s t r y of H o u s i n g a n d E n v i r o n m e n t Enugu, P r o g r e s s R e p o r t o n t h e Fcder ra l Low-Cost H o u s i n g s c h e m e i n Anambra S t a t e ; J u n e 1 9 8 3 p.6.

3. 0 je labi , K, ~ ~ L o w - C o s t H o u s i n g now for t h e rich^^. N a t i o n a l C o n c o r d , May 28, 1 9 8 7 , p.12.

CHAPTER FOUR

DATA ANALYSIS AND EVALUATION

I t had earlier i n t h i s work been i n d i c a t e d

t h a t q u e s t i o n n a i r e , p e r s o n a l i n t e r v i e w s , o f f i c i a l

documents and d i r e c t o b s e r v a t i o n s would b e u s e d

a s my s o u r c e of d a t a c o l l e c t i o n . Thus t h e

h y p o t h e s e s p o s i t e d i n c h a p t e r one of my s t u d y

would be t e s t e d i n t h i s c h a p t e r - , u s i n g t h e a b o v e

enumera t e d s o u r c e s . T h e r e a f t e r , a g e n e r a l e v a l u a t i o n

of p u b l i c p o l i c y i m p l e m e n t a t i o n a s i t a f f e c t e d low-

cost Hous ing P o l i c y i n Anambra S t a t e w i l l b e made.

A total of hundred and f i f t y q u e s t i o n n a i r e s

were a d m i n i s t e r e d to low-income e a r n e r s i n t h e

F e d e r a l M i n i s t r y of Hous ing and Env i ronmen t Enugu

and t h e i r c o u n t e r p a r t s i n Nkalagu cement i n d u s t r y

a n d I r o n and steel i n d u s t r y a t Emene i n t h e r a t i o

@o: 60 r e s p e c t i v e l y . T h e r e s e a r c h e r , however

r e c o v e r e d a t o t a l of 110 q u e s t i o n n a i r e i n t h e

r a t i o o f 60: 50. An i n t e r v i e w was c o n d u c t e d for

f i v e management s t a f f o f t h e F e d e r a l M i n i s t r y o f

Hous ing and ~ n v i r o n m e n t and t h e i r s t a t e c o u n t e r p a r t s .

T h e i n t e r v i e w was a l s o e x t e n d e d t o a b o u t t e n

c o n t r a c t o r s who p a r t i c i p a t e d i n t h e e x e c u t i o n o f

t h e programme i n t h e s t a t e .

R e s p o n s e s from b o t h q u e s t i o n n a i r e a n d i

i n t e r v i e w s are t o be w e i g h e d a g a i n s t w h a t we

g o t from r e l e v a n t d o c u m e n t s , records a n d d i r e c t

o b s e r v a t i o n s .

4.1 T e s t i n q of H y p o t h e s i s :

H y p o t h e s i s one:

T h e p r e v a i l i n g social a n d p o l i t i c a l e n v i r o n m e n t

f r u s t r a t e t h e i m p l e m e n t a t i o n of F e d e r a l Low-Cost

H o u s i n g P o l i c y .

T o test t h i s h y p o t h e s i s , t h e r e s e a r c h e r a s k e d

q u e s t i o n s 1 , 2 , 4 , 6 , a n d 7.

q u e s t i o n l :

I n y o u r o p i n i o n , d o you t h i n k t h a t t h e p u b l i c

welcomed t h e F e d e r a l Government P o l i c y fo r Low-Cost

H o u s i n g i n Anambra State?

O u t of 1 1 0 who r e s p o n d e d t o q u e s t i o n number 1

Ca t e q o r y o f R e s p o n s e s

Y e s

a b o v e , 1 0 0 p e r s o n s or 90.9% i n d i c a t e d t h a t t h e

p u b l i c h e r e l d e d t h e p o l i c y o n l o w - c o s t h o u s i n g i n

F r e a u e n c y P e r c e n t a s e

1 0 0 90.9

Anambra *ate w h i l e 90 p e r s o n s or 9.1 p e r c e n t responded

n e g a t i v e l y showing t h a t p e o p l e d i d n o t welcome t h e p o l i c y

a t t h e onse t . I n o r d e r t o f i n d o u t t h e e x k e n t of t h e

p l a n n i n g done for t h e e x e c u t i o n o f t h e p o l i c y ,

q u e s t i o n number 2 was posed t h u s :

g u e s t i o n 2:

Did t h e S t a t e Government c o n s i d e r t h e i n t e r e s t

of t h e b e n e f i c i a r i e s w h i l e making a c h o i c e of t h e s i k e

for construct iorr?

T a b l e 2:

- Cateao r~ of Response . Freauency - P e r c e n t a q e 1

T a b l e 2 a b w e ahows t h a t o u t of 110 r e s p o n d e n t s ,

20 or 19.8% r e p l i e d t h a t t h e government c o n s i d e r e d

t h e i n t e r e s t of t h e b e n e f i c i a r i e s before embarking on

t h e e x e c u t i o n of l r t d e r a l Law-cost ~ o u s i n g p o l i c y w h i l e

90 p e r s o n s r e p r e s e n t i n g 80.2% o f t h e r e s p o n d e n t s

i n d i c a t e d t h a t t h e i n t e r e s t o f t h e b e n e f i c i a r i e s w a s

n o t t a k e n I n t o c o n s i d e r a t i o n e s p e c i a l l y as i t a f f e c t e d

t h e site for c o n s t r u c t i o n .

D o you feel t h a t p o l i t i c a l i n t e r e s t of t h e

p e o p l e i n power t o o b p r i o r i t y o v e r t h e i r s o c i a l

i n t e r e s t i n t h e e x e c u t i o n of t h e F e d e r a l Low-cost

Housing Programme i n Anambra S t a t e ?

T a b l e 3

. ----

O u t of 110 p e r s o n s who r e a c t e d t o q u e s t i o n

number 4 above, 80 or 72.7% responded p o s i t i v e l y w h i l e

30 or 27.3% felt t h a t t h e government i n power i n

Anambra S t a t e had t h e a o c i a l i n t e r e s t o f t h e benef i -

ciaries i n mind more t h a n t h e i r s e l f i s h p o l i t i c a l

i n t e r e s t .

The i n t e r v i e w t h e r e s e a r c h e r h e l d w i t h a manage-

ment s t a f f of t h e ~ e d e r a l M i n i s t r y of Housing and

Environment i n ~ m g u r e v e a l e d t h a t t h e award a'f

c o n t r a c t for t h e c o n s t r u c t i o n o f t h e low-cost Housing

i n Anambra S t a t e was h i g h l y p o l i t i c i z e d . T h i s was

because t h e c o n s t r a c t s w e r e awarded t o p a r t y l o y a l i s t s

who w e r e nov ice i n c o n s t r u c t l o n works. Moreso, t h e

sites o f t h e low-cost Housing u n i t s d i d jot r e p r e s e n t

t h e s o c i a l i n t k r e s t of t h e p e o p l e t h e p r o j e c t was meant

for. Most of t h e S i t e s w e r e l o c a t e d i n u n i n h a b i t a b l e

a r e a s d e n i e d bf n e c e s s a r y i n f r a s t r u c t u r e s .

C a t e q o r y of Response F reauencY P e r c e n t a a e

72.76

27.36

Y e s

N O

80

30

76 C

T o f i n d o u t i f t h e p roposed objective of

b u i l d i n g low-cost h o u s e s t o r e d u c e accommodation

problem was r e a l i s e d w i t h t h e c o m p l e t i o n o f some o f

t h e b u i l d i n g i n d i f f e r e n t local government a r e a s ,

q u e s t i o n number 6 qas posed t h u s e

Prom y o u r o b s e r v a t i o n , d o you t h i n k t h a t t h e

h o u s e s a l r e a d y b u i l t m d e r t h e F e d e r a l government low-

cost Hous ing Scheme i n Anambra S t a t e h a s s e r v e d t h e i r

Proposed p u r p o s e o f r e d u c i n g accommodation problem?

T a b l e 4:

Ca teqOry of ResPonse , F r e q u e n c y P e r c e n t a a e I

Y e s

A breakdown o f r e s p o n s e s shows t h a t 6 or 5,6 of

t h e p o p u l a t i o n were of t h e o p i n i o n t h a t t h e a l r e a d y

b u i l t h o u s e s u n d e r t h e l a w cost h o u s i n g u n i t s s e r v e d

t h e i r i n t e n d e d p u r p o s e of r e d u c i n g accommodation w h i l e

1 0 4 r e p r e s e n t i n g 94.4% answered n e g a t i v e l y , i m p l y i n g

t h a t t h e h o u s e s b u i l t d o n o t s e r v e t h e p roposed p u r p o s e

of r e d u c i n g accommodation problem, T h e r e i s a s i g n i f i -

c a n t d i f f e r e n c e i n t h e o p i n i o n s of t h e r e s p o n d e n t s

which c l e a r l y i n d i c a t e s t h a t even t h e e x i s t i n g h o u s e s

for law-cost h o u s i n g i n Anambra S t a t e d o n o t s o l v e

t h e accommodation problem o f Low-income e a r n e r s

b e c a u s e most t h e h o u s e s w e r e unoccupied .

I n o r d e r t o f i n d o u t why t h e low-cost h o u s i n g

u n i t s a l r e a d y b u i l t d i d n o t s e r v e t h e i r p roposed

p u r p o s e , tques t ion No. 7 was posed. The q u e s t i o n

i s f o r t h o s e r e s p o n d e n t s whose answer t o q u e s t i o n

6 i s on t h e n e g a t i v e s i d e .

Q u e s t i o n 7:

I f y o u r answer t o q u e s t i o n number 6 i s No,

why d o you t h i n k t h e p u r p o s e h a s n o t been a c h i e v e d ?

T a b l e 5:

C a t e g o r y of Response p r e q u e n c y P e r c e n t a g e - - -

P o o r s i t i n g of t h e h o u s i n g I lo i 90 6

u n i t s . I n a b i l i t y o f t h e I

S t a t e do n o t s e r v e t h e i r p roposed p u r p o s e of

s t a t e government t o p r o v i d e

r e d u c i n g accommodation p rob lems 1 0 or 9.6% s a i d

n e c e s s a r y i n f r a s t r u c t u r e

w i t h i n t h e l o c a t i o n of t h e

h o u s i n g u n i t s .

~ l l of t h e abbve

T a b l e 5 above 8 shows t h a t o u t o f 104 who

i n d i c a t e d t h a t low-cost Hous ing u n i t s i n Anambra

I

4

9 0

3. 7

86.5

1 0 4 1 100%

78

t h a t i t was a s a r e s u l t of poor s i t i n g of t h e

h o u s i n g u n i t s 4 or 3.7% a t t r i b u t e d t h e c a u s e to

i n a b i l i t y of t h e s t a t e government t o p r o v i d e

n e c e s s a r y i n f r a s t r u c t u r e w i t h i n t h e l o c a t i o n of t h e

h o u s i n g u n i t s . The r e m a i n i n g 90 or 86.7% r e s p o n d e d

t o t h e o p t i o n w a l l of t h e above" which means t h a t

b o t h p o o r s i t i n g o f t h e h o u s i n g u n i t s and i n a b i l i t y

of t h e s t a te government t o p r o v i d e n e c e s s a r y

i n f r a s t r u c t u r e w i t h i n t h e l o c a t i o n o f t h e h o u s i n g

u n i t s w e r e r e s p o n s i b l e f o r p e o p l e n o t occupy ing t h e

e x i s t i n g h o u s i n g u n i t s .

Based on t h e a n a l y s i s i n t a b l e s 1,2,3, 4 and

5 t h e f o l l o w i n g i n f o r m a t i o n are e v i d e n t .

a: T h a t t h e low-income e a r n e r s r e p r e s e n t i n g t h e

p u b l i c welcomed t h e p o l i c y f o r low-Cost

Housing i n Anambra S t a t e .

b: The i m p l e m e n t a t i o n of t h e p o l i c y on Low-Cost

Hous ing was so h i g h l y p o l i t i c i z e d t h a t t h e

s o c i a l i n t e r e s t s of t h e b e n e f i c i a r i e s were

undermined.

c: he b u i l d i n g s a l r e a d y comple t ed do n o t s e r v e

t h e i r p roposed p u r p o s e o f r e d u c i n g accommodation

p rob lems b e c a u s e t h e y a r e unoccup ied a s a r e s u l t

i, F a r n e s s of t h e sites from p l a c e of work

ii. T h e l o c a t i o n o f t h e h o u s i n g u n i t s are d e n i e d

of n e c e s s a r y i n f r a s t r u c t u r e l i k e e l e c t r i c i t y

and p ipe-borne water.

iii. The h o u s i n g sites are so isolated t h a t t h e r e

i s n o s e c u r i t y f o r t h e o c c u p a n t s o f t h e houses .

As a r e s u l t of t h e s e f i n d i n g s , h y p o t h e s i s one

of t h i s w r i t e u p which s t a t e s t h a t "The p r e v a i l i n g

s o c i a l and p o l i t i c a l e n v i r o n m e n t f r u s t r a t e t h e

i m p l e m e n t a t i o n o f low-cost Housing p o l i c y n i s

conf i rmed , The above i n f o r m a t i o n i s s o l i d i f i e d by a

s t a t e m e n t made by a management s taff of t h e F e d e r a l

M i n i s t r y of Hous ing and Envi ronment i n Enugu when h e

s a i d d u r i n g a n i n t e r v i e w t h a t "Most of t h e c o n t r a c t s

for e x e c u t i n g t h e p r o j e c t of low-cost Housing w e r e

awarded t o u n q u a l i f i e d a n d i n c o m p e t e n t p a r t y

A n o t h e r r e s p o n d e n t on a n i n t e r v i e w c o n t e n d e d

t h a t t h e 'man-know-mad syndrome p o p u l a r l y known a s

" 1 . M i n N i g e r i a n p a r l a n c e took i t s t o l l i n t h e award

of c o n t r a c t s f o r t h e i m p l e m e n t a t i o n of F e d e r a l low-

cost h o u s i n g p o l i c y , H e f u r t h e r s a i d t h a t i f t h e

c o n t r a c t s f o r t h e i m p l e m e n t a t i o n of F e d e r a l low-cost

Hous ing p o l i c y had been awarded on merit, i t would

h a v e made for e f f e c t i v e imp lemen ta t ion .

F u r t h e r i n v e s t i g a t i o n s r e v e a l e d t h a t t h e

s t a t e government u s e d h e r s y s t e m of a l l o c a t i o n o f

l a n d for c o n s t r u c t i o n i n j u n g l e a r e a s a s a p o l i t i c a l

s t r a t e g y t o f r u s t r a t e t h e e f for ts of t h e F e d e r a l

Government. Now t h a t e v e n most o f t h e h o u s e s

a l r e a d y b u i l t u n d e r t h e low-cos t Hous ing scheme

are u n i n h a b i t e d , t h e b lame g o e s t o t h e , F e d e r a l

Government who i n i t i a t e d i t w h i l e i n e s s e n c e i t

was t h e s t a t e government t h a t n e v e r wan ted i t to

P r o s p e r d u e to p o l i t i c a l d i f f e r e n c e which e x i s t e d

be tween t h e s t a t e and t h e F e d e r a l Government.

HYPOTHESIS TWO

T h e i m p l e m e n t a t i o n of F e d e r a l L o w K o s t Hous ing

P o l i c y i s a f f e c t e d by i t s f i n a n c i a l management

p r a c t i c e s ,

Q u e s t i o n s 3 , 5 and 8 p r o v i d e d d a t a f o r t e s t i n g

h y p o t h e s i s number t w o ,

Q u e s t i o n 3:

D o you t h i n k t h a t w i t h y o u r f i n a n c i a l p o s i t i o n

you w i l l be a b l e t o p u r c h a s e t h e low-cos t Houses?

T a b l e 6:

O f t h e t o t a l number of 110 r e s p o n d e n t who

r e a c t e d t o t h e q u e s t i o n number t h r e e , 35 or 31.9%

b e l i e v e d t h a t t h e F e d e r a l Government c o n s i d e r e d t h e

f i n a n c i a l p o s i t i o n of t h e low-income e a r n e r s before

i n i t i a t i n g t h e o w n e r - o c c u p i e r h o u s e s for them w h i l e

7 5 r e p r e s e n t i n g 68.1% a n s w e r e d n e g a t i v e l y showing

t h a t t h e F e d e r a l Government d i d n o t c o n s i d e r t h e

Ca t e q o r y of R e s p o n s e

Y e s

N O

p o o r f i n a n c i a l p o s i t i o n of t h e low-income e a r n e r s

w h i l e e m b a r k i n g o n o w n e r - o c c u p i e r h o u s e s .

F r e q u e n c y

35

75

110

.. - Q u e s t i o n number 5 w a s p o s e d t o f i n d o u t from t h e

P e r c e n t a q e

31.9

68.1

100%

r e s p o n d e n t s w h a t may be t h e l i k e l y c a u s e of r e d u n d a n c y

i n t h e e x e c u t i o n a n d c o o r d i n a t i o n of F e d e r a l Low-Cost

H o u s i n g P o l i c y i n Anambra S t a t e . ~ u c s t i o n 5:

S i n c e t h e F e d e r a l Government d i d n o t meet t h e

t a r g e t of 8000 h o u s i n g u n i t s p r o p o s e d f o r Anambra

s tate , w h a t d o you t h i n k w a s r e s p o n s i b l e f o r t h i s ?

T a b l e 7:

C a t e g o r y of R e s p o n s e

I n a d e q u a t e f i n a n c e

Mismanagement of t h e

a v a i l a b l e f i n a n c e .

P o o r A d m i n i s t r a t i o n

L a c k of c o - o p e r a t i o n b y

t h e s ta te g o v e r n m e n t

A l l of t h e a b o v e

F r e q u e n c y P e r c e n t a g e

R e s p o n s e s a b o v e show t h a t 4 p e r s o n s r e p r e s e n t i n g

3,s of t h e p o p u l a t i o n a s s o c i a t e d t h e s h o r t - f a l l i n

t h e i m p l e m e n t a t i o n of F e d e r a l Low-Cos t H o u s i n g P o l i c y

i n Anambra s t a t e t o p o o r ~ d m i n i s t r a t i o n , 6 or 5.6%

a t t r i b u t e d i t t o l a c k o f c o - o p e r a t i o n b y t h e s ta te

government . T h e r e m a i n i n g 1 0 0 or 90.9% of t h e

r e s p o n d e n t s i n d i c a t e d t h a t t h e r e d u n d a n c y w a s n o t

o n l y c a u s e d b y i n a d e q u a t e f i n a n c e b u t a l s o b y

mismanagement *of a v a i l a b l e f i n a n c e , p o o r a d m i n i s t r a -

t i o n a n d l a c k of c o - o p e r a t i o n b y t h e s t a t e g o v e r n m e n t ,

I n o r d e r t o f i n d o u t t h e e x a c t f i n a n c i a l

p o s i t i o n of t h e F e d e r a l g o v e r n m e n t a s i t c o n c e r n s

t h e i m p l e m e n t a t i o n o f F e d e r a l Low-Cos t H o u s i n g i n

Anambra S t a t e i n t h e S e c o n d R e p u b l i c , q u e s t i o n

n u m b e r 8 w a s p o s e d t h u s .

Q u e s t i o n 8:

I n g e n e r a l , d o you t h i n k t h a t t h e F e d e r a l

l o w - c o s t H o u s i n g scheme i n Anambra S t a t e w a s

a d e q u a t e l y f u n d e d ?

T a b l e 8:

C a t e g o r y o

r e s p o n d e n t s some of who r e s e n t e d t o a n s w e r it. O u t

of 51 r e s p o n d e n t s who a t t e m p t e d t h e q u e s t i o n , 4 or

7.6% s a i d t h a t t h e p r o j e c t w a s a d e q u a t e l y f u n d e d ,

3 6 or 70.8% were of t h e o p i n i o n t h a t t h e p r o j e c t w a s

n o t a d e q u a t e l y f u n d e d w h i l e 11 r e p r e s e n t i n g 21.6%

c l e a r l y d e c l a r e d t h a t t h e y do n o t know w h e t h e r t h e

p r o j e c t w a s a d e q u a t e l y f u n d e d or no t .

F u r t h e r i n v e s t i g a t i o n i n t o t h e q u e s t i o n n a i r e

showed t h a t 33 or 64.8% of t h e 36 or 70.8 r e s p o n d e n t s

who sa id t h a t t h e p r o j e c t w a s n o t a d e q u a t e l y f u n d e d

were o n t h e s t a f f of t h e F e d e r a l M i n i s t r y of H o u s i n g

a n d E n v i r o n m e n t .

T h e i n f o r m a t i o n c o l l e c t e d a b o v e from

q u e s t i o n n a i r e c o n f i r m s t h e f a c t t h a t ;

a. T h e F e d e r a l Government d i d n o t c o n s i d e r t h e p o o r

f i n a n c i a l p o s i t i o n of t h e low-income e a r n e r s

before e m b a r k i n g on owner o c c u p i e r h o u s e s .

b. T h e F e d e r a l Government d i d n o t meet t h e t a rge t

of 8000 h o u s i n g u n i t s p r o p o s e d for Anambra

s ta te w i t h i n t h e p e r i o d s of 1979 a n d 1983 as a

r e s u l t of

(i) I n a d e q u a t e f i n a n c e

(ii) Mismanagement of t h e a v a i l a b l e f i n a n c e

(iii) P o o r ~ d m i n i s t r a t i o n

( i v ) Lack of C o - o p e r a t i o n by t h e s t a te g o v e r n m e n t ,

T h e i n f o r m a t i o n collected from records a n d

i n t e r v i e w s a1 so c o n f i r m t h e d a t a from q u e s t i o n n a i r e ,

I t w i l l be p e r t i n e n t t o recall t h a t m e n t i o n was made

a b o u t t h e f i n a n c i a l s t a n d of t h e F e d e r a l Government

for t h e F e d e r a l Low-cost H o u s i n g i n Anambra S t a t e i n

c h a p t e r t h r e e of t h i s write up, F o r e m p h a t i c a l

p u r p o s e , I s h a l l o n c e a g a i n recall a n i n t e r v i e w w i t h

t h e t h e n ~ i r e c t o r for Low-Cos t H o u s i n g programme i n

Anambra S t a t e o n t h e i s s u e of t h e f i n a n c i a l s t a n d of

t h e F e d e r a l Government f o r t h e p r o j e c t , I n t h i s

i n t e r v i e w , h e e x p l a i n e d t h a t t h e F e d e r a l Government

c 8 5

was i n a f i n a n c i a l quagmire".2 H e went f u r t h e r t o

s a y t h a t o u t of #130 m i l l i o n e s t i m a t e d f o r t h e

Programme i n Anambra S t a t e , o n l y a b o u t ~ 1 3 , 882,660

was made a v a i l a b l e by t h e F e d e r a l government a s a t

March 1983. T h i s s i t u a t i o n h i g h l y p r o j e c t e d t h e

p i c t u r e of i n a d e q u a t e f i n a n c e for t h e programme.

I n a n o t h e r i n t e r v i e w w i t h some of t h e c o n t r a c t o r s

w h o p a r t i c i p a t e d i n t h e c o n s t r u c t i o n o f F e d e r a l Low-

C o s t Hous ing i n Anambra S t a t e , t h e y compla ined t h a t

t h e F e d e r a l M i n i s t r y of Hous ing and Envi ronment found

i t v e r y d i f f i c u l t t o remit money a l r e a d y r e l e a s e d by

t h e government t o t h e c o n t r a c t o r s . T h e s e t o p

management o f f i c i a l s were a l s o a c c u s e d of d i v e r t i n g

t h e fund meant f o r t h e p r o j e c t t o t h e i r p r i v a t e Bank

a c c o u n t Number t o g e n e r a t e i n t e r e s t f o r them. Some

b o l d o n e s among them even embezzled t h e money, A l l

t h e s e b e h a v i o u r s wen t on t o c o n f i r m t h e a c t of poor

a d m i n i s t r a t i o n and mismanagement of t h e f u n d fo r t h e

programme,

HYPOTHESIS THREE

The p r o d u c t i o n c a p a c i t y of i n d u s t r i e s t h a t

P roduce b u i l d i n g m a t e r i a l s t o a l a r g e e x t e n t a f f e c t s

t h e i m p l e m e n t a t i o n o f F e d e r a l low-cost Housing p o l i c y .

Q u e s t i o n s 9 and 1 0 were a s k e d t o t es t h y p o t h e s i s

Q u e s t i o n 9:

D o you t h i n k t h a t t h e r e w e r e enough b u i l d i n g

m a t e r i a l s i n Anambra S t a t e t o meet t h e demand fo r

t h e e x e c u t i o n of t h e F e d e r a l g o v e r n m e n t h o u s i n g

scheme i n t h e s t a t e ?

T a b l e 9:

- -- -- - - - - - --

A s i n q u e s t i o n 8, t h i s q u e s t i o n a lso p o s e d a

l i t t l e b i a s to t h e r e s p o n d e n t s . T h i s w a s b e c a u s e

P e r c e n t a g e

18,1

C a t e g o r y of R e s p o n s e

Yes

t h o s e of them who were n o t w i t h i n t h e c ircle of a n y

F r e q u e n c y

2 0

of t h e b u i l d i n g i n d u s t r i e s c o u l d n o t a n s w e r f o r s u r e

w h e t h e r or n o t , t h e i n d u s t r i e s p r o d u c e d e n o u g h

b u i l d i n g m a t e r i a l s f o r t h e e x e c u t i o n of l o w - c o s t

H o u s i n g x s c h e m e i n Anambra S t a t e , N e v e r t h e l e s s ,

t h e y a l l a t t e m p t e d it,

O u t of '110 r e s p o n d e n t s , 20 r e p r e s e n t i n g 1 8 ~ 1%

of t h e o p i n i o n t h a t t h e r e i s enough b u i l d i n g

m a t e r i a l s i n Anambra S t a t e t o meet t h e demand fo r

t h e i m p l e m e n t a t i o n of F e d e r a l low-cos t H o u s i n g

scheme, On t h e o t h e r h a n d , 90 or 81.9% of t h e

r e s p o n d e n t s o p i n e d t h a t Anambra S t a t e government

h a s n o t g o t enough b u i l d i n g m a t e r i a l s f o r such a

g i g a n t i c p r o j e c t t o c o n s t r u c t a b o u t 8000 h o u s i n g

u n i t s w i t h i n t h e p e r i o d s be tween 1979 and 198%.

However, f u r t h e r i n v e s t i g a t i o n i n t o t h e

q u e s t i o n n a i r e w a s made for p r o p e r a n a l y s i s . T h i s

i n v e s t i g a t i o n r e v e a l e d t h a t o u t o f 50 r e s p o n d e n t s

i s s u e d w i t h q u e s t i o n n a i r e i n b u i l d i n g m a t e r i a l

i n d u s t r i e s 48 r e p r e s e n t i n g 96% of t h e p o p u l a t i o n

r e l i a b l y s a i d t h a t t h e r e i s n o t enough b u i l d i n g

m a t e r i a l s . O n l y 2 r e s p o n d e n t s r e p r e s e n t i n g 4% of

t h e p o p u l a t i o n f e l t t h a t enough b u i l d i n g m a t e r i a l s

are produced i n Anambra S t a t e fo r t h e e x e c u t i o n of

F e d e r a l Low-Cost Housing scheme.

~ u e s t i o n 10:

I f y o u r answer t o q u e s t i o n number 9 i s no,

wha t d o you a t t r i b u t e t h i s to?

<

T a b l e 10:

Ca tegory Bf - Response

X madequate i n d u s t r i e s

t h a b produce b u i l d i n g ~ a k e r i a l s *

La& of r a w - r a t e r i a l s

ha s e r v i c e t h e e x i s t i n g i t h d u r t r i e s

U s e of obsolete maah i res

t h a t c a u s e d e l a y i n p rodue t ion ,

La& ~f t eehr r i ea l e x p e r t s

man t h e a a e h i n e s i r a l r e a d y

e x i s t i t a g i n d u s t r i e s *

Mismanagement i n t h e

e a r p a r i e s t h a t produce b u i l d i n g m a t e r i a l s *

~ l l of t h e above

P e r c e n t a g e

Response i n table 10 shaws t h a t 2 or 2*2% of

t h e r e s p o n d e n t s a t t r i b u t e d &aek of b u i l d i n g

m a t e r i a l s to i ~ a d e q u e t e i n d u s t r i e s t b a t produce

b u i l d i n g m a t e r i a l s in Amambra ~ t a t e , 4 or 4 m 5

< 89

said t h a t i t i s a s a - r e s u l t of mismamsgeWnt i n

t h e ecnnpanies t h a t produce b u i l d i n g materials w h i l e

80 or 88.8% a t t r i b u t e d t h e l a e k of b u i l d i n g m a t e r i a l s

t o i n a d e q u a t e i n d u s t r i e s for b u i l d i n g materials, l e e k

Of raw-mater ia ls t o f e e d t h e e x i s t i n g i n d u s t r i e s , u s e

Of obsolete machines i n t h e i n d u s t r i e s , l a c k of

t e c h n i c a l e x p e r t s and mismanaqcrne~t of b o t h f i ~ a n d a l

and material r e s o u r c e s i n t h e e x i s t i n g i n d u s t r i e s ,

The f a l l o w i n g i n f o r m a t i o n have beaoare e v i d e n t

from t h e a n a l y s e s i n t a b l e s 9 and 10.

a. T h e r e i s n o t enough b u i l d i n g m a t e r i a l s i n marb bra

S t a t e to e x e a t e t h e low-cost Lousing P o l i ~ y -

b. The few i n d u s t r i e s t h a t produce b u i l d i n g

materials l a e k r a w m a t e r i a l s .

am Some of t h e i n d u s t r i e s were equ iped w i t h obsolete

maehi nes*

d. The i n d u s t r i e s l a e k t e c h n i c a l e x p e r t s to man t h e

e x i s t i n g machinesr

e. T h e r e i s a t r a c e of mismanagement of b o t h fund

and m a t e r i a l r e s o u r c e s i n t h e b u i l d i n g i n d u s t r i e s

i n . Anambra S t a t e .

I n a n i n t e r v i e w w i t h o n e of tbe c o n s u l h a t

a r e h i t e a t s i n c h a r g e of t h e sites i n ~ n a m b r a state,

he s a i d t h a t n76 m i l l i o n w a s budgeted for i m ~ o r t a t i o ~

of b u i l d i n g materials fo r F e d e r a l low-aost Housing

i n t h e c o u n t r y b u t u n f o r t u n a t e l y o n l y materials 4 wor th of W35 m i l l i o n Naira w a s impor ted . T h i s is

as a r e s u l t of a d m i n i s t r a t i v e b o t t l e n e c k i ~ h e r e n t

i n o u r s o c i e t y . T h i s r e v e l a t i o n i s enough t o tell

u s t h a t t h e r e were n o t enough b u i l d i n g m a t e r i a l a

to t a c k l e t h e p r o j e c t of F e d e r a l Low-Cost Harsing.

I n a n o t h e r i n t e r v i e w w i t h a s t a f f of i r o n and

steel i n d u s t r y a t Emene, he conf i rmed t h a t cok ing

coal whiub i s t h e major raw-material r e q u i r e d i n a

steel i n d u s t r y i s i n s u f f i c i e n t i n t h e i r i n d u s t r y .

H e s a i d t h a t t h i s was as a r e s u l t of i n a d e q u a t e

p r o d u c t i o n of c o a l a t Enuqu coal mine which i n t u r n

w a s as a r e s u l t of o l d and worn o u t machines i n

o p e r a t i o n i n most of t h e i n d u s t r i e s i n t h e state.

H e f u r t h e r s a i d t h a t even t h e few working maekines

would e a s i l y be d i s p o s e d of a t t h e smallest mechanica l

f a u l t due to l a c k of t e c h n i c a l e x p e r t s .

The s t o r e k e e p e r i n t h e same f i r m d i a e l o s e d to

m e a n e v i d e n c e of o f f i d e l mismanagemetat and

c o r r u p t i o n by showing t o m e some e jeetor pumps

which h e said w e r e ordered and p a i d for a t t h e rate

91 <

of W12,500 p e r u n i t w i t h o u t t h e u a e r depar tment

r e q u e s t i n g for them, The pumps w e r e l y i n g i d l e i n

t h e warehouse a l o n g w i t h a b o u t 50 p i e a e s of

f r a c t i o n a l compressors o r d e r e d for t h e p a s t f i v e

y e a r s for t h e r e p a i r of company r e f r i g e r a t o r s which

have rusted away.

However, a l l these e c o u n t e r s i n one way or t h e

o t h e r af f e e t e d t h e p r o d u c t i o n c a p a e i t y of t h e

b u i l d i n g m a t e r i a l i n d u s t r i e s i n ~ n a m b r a State and

t h i s i n t u r n retarded t h e p r o g r e s s of work i n t h e

F e d e r a l law-cost Housing schefne.

4..2 Genera l ques . t ions :

?or a g e n e r a l e v a l u a t i o n of t h e implementa t ioa

of F e d e r a l Low<ost Housing scheme is ~ n a m b r a Sta'te,

ques t ion . number 11 is posed to the g e n e r a l p u b l i c ,

q u e s t i o n 11: . .

Hew would you assess t h e implementa t i en of t h e

F e d e r a l Government low-cost Housing scheme i n Ananbra

S ta te?

C a t e g o r y of Response , Frequensy ( P e r c e n t a g e

I t was a s u c c e s s I 2 1 1.8-

I t was a f a i l u r e I 108 I 98.2

G 92

The r e s p o n s e i n table 11 shows t h a t 2 or 1.8%

of 110 r e s p o n d e n t s b e l i e v e t h a t t h e implementa t ion

ei F e d e r a l Low-Cost Hausing i n Anambra State i n t h e

second R e p u b l i c w a s a s u c c e s s w h i l e 108 r e p r e s e n t i n g

98.2% i n d i c a t e d t h a t t h e programme w a s a t o t a l f a i l u r e .

A p r o p e r a n a l y s i s of t h e e x t e n t of t h e implementa-

t i o n of t h e scheme e o u l d be a c h i e v e d main ly by t a k i n g

a l w k a t t h e official specifications of t h e scheme

and t h e n judging t h e a c t u a l per formance a g a i n s t t h i s

baekgrsund.

C o n s i d e r i n g t h e of f ic ia l s p e c i f i c a t i o n s of t h e

scheme, i t was e s t i m a t e d t h a t a to ta l of t w o thousand

hous ing u n i t s w e r e supposed to be c o n s t r u c t e d i n t h e

s t a t e e a c h year. Based on t h i s , t h e 23 local

government areas w e r e p u t i n t o t h r e e categories.

I n t h e first c a t e g o r y , t h e number of bousing

u n i t s on e a c h site w a s s p e c i f i e d to be a t t h e rat io

of 10 t h r e e bedroomf la t s to 50 o n e bedroom f l a t s

e v e r y y e a r ( 30: 50).

Harever , a p r e f e r e n c i a l t r e a t m e n t w a s g i v e n

to areis where t h e r e are much l a n d and enormous

p o p u l a t i o n e x p l d s i a n of t h e b e n e f i c i a r i e s of t h o

< 93

p r o j e c t , Sueh areas i n c l u d e Nswkka, OR^ t s h a

and A b a k a l i k i Loaal Government headquarter6.

These Local Government A r e a s formed t h e Secrond

ca t ego ry w i t h 10 t h r e e bedroom f l a t s to 100 one

bedroom f l a t u n i t s ( l o t 100) ,

Enugu, t h e c a p i t a l of Anambra State w a s ,

connidered d i f f e r e n t l y w i t b a ra t io Of 200 three

bedram f l a t u n i t s to 300 one bedroom f l a t un i t s .

The reason for t h i n d i s p a r i t y hinged on t h e faat

t h a t Enugu i s t h e Estate c a p i t a l w i t h t h e m a j o r i t y

of c i v i l s e r v a n t s of a l l c a t e g o r i e s l i v i n g t h e r e

t h u s making Reusing problems t h e r e more complex

than o t h e r areas.

How%9e@, d a t a c o l l e c t e d fran t h e Federa l

Min in t ry of Housing and Emviroment Enugu

presen ted t h e c o n s t r u c t i o n work done as f o l l w s t

Category I;

T a b l e 12s

) Names Of

I

r Local O w t n

/ 1. Aguata

I

*. I' 3. j Awqu

10. ) Ikwo /I

'!

12. li I h i a h

I d e m i l i

N j i k o k a

Nkanu

Nnewi

~ j i ~ i v a r

U d i

lo. of WLkA ng wws. expected for 1 yr

l 0. w i l t rnder

Dhase I - 50

50

50

so

50

50

SO

so

50

SO

50

9

50

50

50

50 - SO

total No Expected

'or 4 (roe

240

-. I

umber - ,c tue- 1~ I

u i l t - *

50

50

50

0

50

50

58

so

SO

so

so

50

50

00

50

00 - 50

< 95

The above d a t a when e m p u t e d would g i v e r T o t a l

number of e s t i m a t e d h o u s i n g u n i t s = 4,560, T o t a l

number of hous ing u n i t s a c t u a l l y b u i l t 900.

#umber ef u n b u i l t h o u s e s - 4,560

- 900 - 3.660

I n e s s e n c e , 900 or 19.7% Rousing u n i t s were b u i l t

u n d e r c a t e g o r y o n e of t h e redere1 Law-Cost H a s s i n g

scheme for t h e p e r i e d of f o u r y e a r s w h i l e 3,660 or

80.8% h o u s i n g u n i t s remained u n b u i l t ,

C a t e g o r y I1

Under c a t e g o r y I1 w e have t h e f o l l o w i n g L o c a l

Government Areas - Nsukka, ~ b a k a l i k i a n d Oni tsha .

T a b l e 13:

No. Of 1 b u i l t u n d e r

1 p h a s e I

Names of NO. Of N 0 0 N 0. u n d e r b u i l t

L o c a l G o v t s p h a s e p h a s e I

Housing u n i t s e x p e c t e d

far 1 y r

Bop T o t a l b u i l t No, u roder e x p e c

ted

p h a s e for I V 4 y r s

Number A c t u a l l y

B u i l t

T o t a l number of housing u n i t s e sh imated fort 1,320

T o t a l number of housing u n i t s a c t u a l l y b u i l t t 300

Number of u n b u i l t h o u u e ~ - 1320

In c a t e g o r y I1 of F e d e r a l ~ a - b o s t H o u d n g scheme

i n Anambra S t a t e , 300 or 22.7% of t h e e s t i m a t e d number

of hous ing u n i t s were b u i l t w h i l e 1020 r e p r e s e n t i n g 77.3%

w e r e u a c o n s t r u c t e d .

C a t e g o r y I1 I:

T h e o n l y local government u n d e r t h i s c a t e g o r y w a s Emgu

which was t h e c a p i t a l of Anambra S t a t e .

T a b l e 14:

Under t h i s c a t e g o r y , 100 hous ing u n i t s r e p r e s e n t i n g

5% of t h e e s t i m a t e d number of housing u n i t s were

comple ted w h i l e 1900 or 95% remained uncons t ruc ted .

T o t a l number of hous ing u n i t s e s t i m a t e d fort 2000. T o t a l

Number ~ c t u a l l y

B u i l t

100

T o t a l No. Expec t e d for 4 y r s

, 2000

No. b u i l t u n d e r

b a s e

IV

-

No. b u i l t u n d e r

phase

111

-

No. b u i l t u n d e r

phase

I1

-

No. b u i l t u n d e r

phase

1

100

blame of Local

Govt Area

E nugu

NO. Of Housing u n i t s e x p e c t e d for 1 y r

200: 300

500

number of housing u n i t s a c t u a l l y b u i l t r 100.

Number of u n b u i l t houses - 2000

J u d g i n g t h e o v e r a l l achievement a g a i n s t t h i s

background t h e f o l l o w i n g s h o u l d a e r v e as t h e summary.

T a b l e 15s

C a t e g o r i e s of I T o t a l number Number Of I

T o t a l 1 7.880 1.300

Hausing u n i t s

C a t e g o r y I

P e r c e n t a g e

I n g e n e r a l , a t o t a l number of 6,300 hous ing u n i t s

of hous ing

u n i t

e x p e c t e d i n

t h e state

4,560

r e p r e s e n t i n g 16.4% was b u i l t i n Anambra s t a t e u n d e r t h e

housing

u n i t s

b u i l t

900 =

F e d e r a l Low-Cost hous ing scheme w h i l e abwt 6,580 or

83,6 remained u n c o n s t r u e t e d till date.

The last q u e s t i o n i n t h i s c h a p t e r i s q u e s t i o n

number 1 2 which w a 6 a sked to f i n d art what t h e p u b l i c

i n g e n e r a l feel a b o u t t h e implementa t ion of F e d e r a l .

government Low-cost Housing i n Anambra State.

q u e s t i o n 123

Give o t h e r r e a s o n s for y o u r r e s p o n s e to

number 11 q u e s t i o n above.

?run t h i s s t a t e m e n t , v a r y i n g o p i n i o n was

r e c e i v e d which were summarired below t h u s $

T h e f a i l u r e of t h e p r o j e c t was a t t r i b u t e d to

1. P o o r p l a n n i n g and co-ord ina t ion of t h e

lmplementa t i o n programme.

il, P o l l t i c i s a t i o n of t h e p r o j e c t by b o t h t h e

F e d e r a l and S t a t e government.

iii, I n a d e q u a t e f u n d i n g and mismanagemeat of t h e

a v a i l a b l e fund.

i v , I n a d e q u a t e p r o d u c t i o n and i m p o r t a t i o n of

b u i l d i n g materials for t h e e x e a t i o n of t h e

p r o j e c t .

re Low morale and p r o d u c t i v i t y of implementing

agencies.

. v i m ~ n s u f f i c i e n t p r o j e c t s u p e r v i s i o n and or

monitoring.

CHAPTER FIVE

QISCUSSIONS, CONCLUSIONS AND RECOMMENDATIONS

I n t h i s c h a p t e r , t h e major r e s u l t s of t h e s t u d y

were d i s c u s s e d and c o n c l u s i o n s drawn. The main t h e s i s

of t h e s t u d y is t h a t t h e implementa t ion of t h e F e d e r a l

Government Low-Cost Housing p s l i c y of t h e Second

R e p u b l i c i n Anembra s t a t e was n o t e f f e c t i v e l y

coord ina ted . Thus o n l y f e w houses were c o n u t r u e t e d

fo r t h e programme and t h e f e w houses so c o n s t r u c t e d ,

remained unoccupied i n most of t h e sites.

I n c h a p t e r one, t h e r e s e a r c h e r p r e s e n t e d t h e

i n t r o d u c t o r y a s p e c t of h e r s tudy. E x i s t i n g r e l a t e d

l i t e r a t u r e was reviewed i n o r d e r t o f i n d where o u r

s t u d y f i ts i n t o t h e e x i s t i n g knowledge. The

methodo log ice l approaches which t h e r e s e a r c h e r u s e d

i n c o n d u c t i n g t h e s t u d y and a n a l y s i a g t h e f i n d i n g s

w e r e alsa d i scussed .

C h a p t e r t w o d w e l t on t h e c o n c e p t s Of p a & i r y

implementa t ion and t h e a n a l y s i s of N i g e r i a n Housing

P o l i c y 1979 - 1983. Here t h e o b j e c t i v e s of t h e

F e d e r a l Low-Cost Hausing i n N i g e r i a w e r e h i g h l i g h t e d .

C h a p t e r t h r e e focused on problems and p r e s p e c t s

of Anambra s t a t e F e d e r a l Low-cost Housing p o l i c y

implementat ion.

<

100

I n c h a p t e r f o u r , t h e r e s e a r c h e r carried o u t t h e

t e s t i n g of h y p o t h e s i s p o s i t e d i n c h a p t e r one based on

t h e a n a l y s i s of t h e d a t a c o l l e c t e d from q u e ~ t i o n n a i r e ,

i n t e r v i e w s and o b s e r v a t i o n s ,

Based on t h e a n a l y s i s of d a t a c o l l e c t e d t h e

f o l l o w i n g were d i s c o v e r e d to be t h e m i i n problems of

implementa t ion of F e d e r a l Low-Cost Houning i n ~ n m b r a

S ta ter

i, P Q O ~ p l a n n i n g and co-ord ina t ion of t h e

implementa t ion programmes.

ii, P e l i t i c i s a t i o n of t h e p r o j e c t by b o t h t h e

F e d e r a l and state g o v e r m e n t s .

iiim I n a d e q u a t e f u n d i n g and mismanagesent of a v a i l a b l e

fund.

iv. I n a d e q u a t e p r o d u c t i o n and i m p o r t a t i s n of b u i l d i n g

m a t e r i a l s for t h e e x e c u t i o n of t h e p r o j e c t .

v, Low morale and p r o d u c t i v i t y of implementa t ion

agencies .

v i , I n s u f f i c i e n t * p r o j e c t s u p e r v i s i o n and or moni tor ing .

v i i , Cor rup t ion .

i. Poor plann inq and co-ordi n a t i o n of t h e implementa t ion prwranune

I t i s p e r t i n e n t for u s to r e c a l l t h a t t h e N a t i o n a l

P a r t y of N i g e r i a t h a t i n i t i a t e d t h e F e d e r a l .Low-Cost

< 101

Housing programme i n t h e Second ~ e p u b l i c d id so i n

o r d e r t o f u l f i l t h e i r e l e c t i o n campaign promise to

t h e masses. T h e r e was no d e l i b e r a t e p l a n t o embark

on t h e p r o j e c t r a t h e r , t h e government had i n mind to

c o n v i n c e t h e p u b l i c t h a t t h e r u l i n g p a r t y is t h e

r i g h t one so long 8s it abides by i t s e l e c t i o n

m a n i f e s t o of WHousing and food for allwe

One of t h e t o p management off icials i n t e r v i e w e d

by t h e r e s e a r c h e r a t t h e F e d e r a l M i n i s t r y of Housing

and Environment contended t h a t , fran a v a i l a b l e r e c o r d s ,

t h e r e was a k i n d of f e a s i b i l i t y s t u d y c a r r i e d o u t i n

r e s p e c t of t h e programme b u t t o t h e best of h i s know-

l e d g e and u n d e r s t a n d i n g , t h e s t u d y is n o t detailed

enough for such j i d g a n t i c programme as t h e F e d e r a l

Government low-cost Housing, T h e r e was no a d e q u a t e

underground s t u d y on how to a c q u i r e a p p r o p r i a t e

t echno logy for implementa t ion , a d e q u a t e r e s o u r c e i n

terms of human and material needs and also a d e q u a t e

b u g e t a r y a l l o c a t i o n of fund to t h e p r o j e c t ,

P o l i t i c i a n s on t h e i r effort to win e l e c t i o n s , over

a m b i t i d u s l y set p o l i c y g o a l s j u s t to invoke s e n t i m e n t s

i n t h e masses and a t t r a c t t h e i r votes . T h a t was j u s t

t h e case w i t h t h e F e d e r a l low-cost Housing programme

i n N i g e r i a a s a who le and Anambra state i n p a r t i c u l a r .

I n s h o r t , a l l t h e a r rangements made for t h e

implementa t ion of F e d e r a l low-cost hous ing w e r e

h u r r i e d l y made w i t h l i t t l e or no room left for f u t u r e

u n c e r t a i n t i e s .

ii. P o l i t i c i s a t i o n of t h e project by b o t h F e d e r a l and S tate qoverrunents.

P o l i t i c a l consensus w a s l a c k i n g i n t h e

implementa t ion of F e d e r a l Low-Cost Housing P r o j e c t i n

Anambra S t a t e . T h i s w a s as a r e s u l t Of t h e d i f f e r e n c e

i n p a r t y of t h e t w o major a c t o r s i n t h e implementa t ion

p r o c e s s - The F e d e r a l and t h e s ta te governments. The

F e d e r a l government was be ing c o n t r o l l e d by t h e

N a t i o n a l P a r t y of N i g e r i a w h i l e Anarnbra S t a t e w a s

c o n t r o l l e d by t h e N i g e r i a n P e o p l e s Pa r ty . The NPP

government i n Anambra state s a w t h e s u c c e s s f u l

implementa t ion of t h e F e d e r a l Low. cost Housing i n t h e

state a s something t h a t would b r i n g p o p u l a r i t y to t h e

p a r t y a t t h e c e n t r e and t h u s win t h e v o t e r s to t h e i r

s i d e i n subsequen t e l e c t i o n s . The state government

therefore d i d e v e r y t h i n g p o s s i b l e and most d e s t r u c t i v e

to f r u s t r a t e t h e efforts of t h e F e d e r a l g w e r n m e n t to

a c h i e v e t h e hous ing o b j e c t i v e s .

The first a c t i o n t a k e n by t h e s t a t e government

t o f r u s t r a t e t h e implementa t ion of t h e F e d e r a l Low-Cost

Housing i n Anambra state was to loc& t h e c ~ n s t r U c t i o n

4 103

site a t s o c i a l l y dejected a n d j u n g l e areas w i t h o u t

t h e c o n s i d e r a t i o n of t h e b e n e f i c i a r i e s . T h e s ta te

government had t h e g u t t o do t h i s as a r e s u l t of t h e

l a n d u s e decree of 1978 which stated t h a t a l l t h e

l a n d i n a state is e n t i r e l y u n d e r t h e c o n t r o l of t h e

state government. I n order to a c h i e v e t h i s s e l f i s h

objective of t h e i r s , t h e Anambre s ta te government

b l u n t l y closed t h e i r e y e s a g a i n s t t h e i n t e r e s t of t h e

b e n e f i c i a r i e s - t h e law-income e a r n e r s , who a t l e a s t

would l i k e t o reside i n areas which are i n h a b i t e d . . :

by o t h e r p e o p l e , a p l a c e n e a r t h e i r work ing p l a c e ,

m a r k e t or c h u r c h a n d a p l a c e w i t h social 8 a m e n i t i e s r

On c o n t r a r y , my a n a l y s i s on tables 2 a n d 3 of my

c h a p t e r f o u r i n d i c a t e d t h a t t h e s t a t e government d id

n o t e v e n h a v e t h e b e n e f i c i a r i e s i n mind let a l o n e

c o n s i d e r i n g t h e i r social i n t e r e s t . T h i s goes o n to

c o n f i r m t h e s t a t e m e n t t h a t t h e p o l i t i c a l i n t e r e s t of

t h e p e o p l e i n power took p r i o r i t y over t h e social

i n t e r e s t of t h e b e n e f i c i a r i e s .

Hawever, d e s p i t e t h e f a c t t h a t t h e s t a t e

government c o n t r i b u t e d immensely t o t h e f r u s t r a t i o n

of t h e F e d e r a l low-cost Hous ing i m p l e m e n t a t i o n i n

Anambra S t a t e , t h e F e d e r a l government had h e r own

C 104

blame, The F e d e r a l government sys tem of award of

c o n t r a c t for t h e law-cost Housing p r ~ j e c t was h i g h l y

p o l i t i c i s e d , F o r i n s t a n c e , t h e award of c o n t r a c t for

t h e implementa t ion of F e d e r a l low-coat Housing was a n

e x c l u s i v e r i g h t of t h e Tenders Board of t h e F e d e r a l

M i n i s t r y of w o r k s and Housing i n t h e state b u t

c o n t r a r y t o t h i s s p e c i f i c a t i o n , i t was a l l e g e d t h a t

t h e t o p p o l i t i c a l office h o l d e r s by-passed t h i s Board

and awarded c o n t r a c t s to p a r t y l o y a l i s t s moat of who

were n o v i c e s i n b u i l d i n g c o n s t r u c t i o n . To crown

i t a l l , a f i e l d o f f i c i a l i n t h e t e c h n i c a l u n i t d u r i n g

a n i n t e r v i e w i n 1991 contended t h a t , c o n t r a r y to t h e

a d v i c e of t h e t e c h n i c a l u n i t of t h e F e d e r a l M i n i s t r y

of Hausing and Environment, t h a t t h e suppl&&r of t h e

government*^ b u i l d i n g materials and c o n t r a c t o r s be

i n t e r v i e w e d before t h e award of c o n t r a c t s , t h e

p r e s i d e n t i a l l a i s o n officers awarded t h e c o n t r a c t s

w i t h o u t c o n t a c t i n g t h i s u n i t .

iii. I n a d e a u a t e Pund ins and Hismanacmment of t h e a v a i l a b l e fund:

The g l o b a l a s p i r a t i o n of p r o v i d i n g housing f o r

e v e r y Miger ian had been t h e dream of t h e a u t h o r i t i e s

b u t i r o n i c a l l y , amidst scarce r e s o u r c e s and competing

needs. ~ v e r y t h i n g b e i n g e q u a l , t h e F e d e r a l government

would w i s h to p r o v i d e w a t e r , Educa t ion , H e a l t h , Food

and s h e l t e r for mankind. A c t u a l l y t h e y are w s r t h w h i l e

o b j e c t i v e s t o p u r s u e depending on t h e a v a i l a b l e

r e sources . The government i n t h e p a s t had a lways

part icipated i n p r o v i s i o n of hous ing accommodzation

t o t h e i r s e n i o r workers through t h e staff Housb

l o a n i n g scheme t h u s t e n d i n g to l e a v e t h e problem of

hous ing t h e poor t o t h e f e w p r i v i l e d g e d shylock^

p r o p e r t y owning class.

When t h e F e d e r a l government c l e a r l y r e c o g n i z e d

t h e n a t i o n o s H a r s i n g problem, t h e S h a g a r i ~ d m i n i s t r a t i o n

embarked on Low<ost Housing scheme i n t h e y e a r 1980.

I n t h i s programme, t h e F e d e r a l government was t h e

o n l y s o u r e e of f i n a n c e due t o t h e fact t h a t t h e

b e n e f i c i a r i e s of t h e scheme are t h e p o p u l a t i o n of

people w i t h less access to f i n a n c i n g mechanism.

However, t h e F e d e r a l government so f a r h a s n o t

been able to meet u p t h e f i a n c i a l commitment r e q u i r e d

by t h e programme. I n fact , o u t of 10 c o n t r a c t o r s

h a n d l i n g t h e p r o j e c t who I i n t e r v i e w e d , 80% of them

e q u i v o c a l l y s t a t e d t h a t l a c k of fund w a s mainly

r e s p o n s l b l e for t h e s t a g n a t i o n of t h e housing p o l i u y

i n t h e s t a t e . Th'ey f u r t h e r s a i d t h a t a p a r t from t h e

30% m o b i l i t a t i o n fee p a i d t o them and t h e s u b s e q u e n t

f u l l payment released to them a t t h e comple t ion of

C 106

t h e first phase of t h e p r o j e c t , t h a t t h e F e d e r a l

government h a r - n o t made any e t h e r payment t o them.

S a n e even complained t h a t t h e y have n o t got t h e i r

f u l l payment for t h e first phase of t h e p r o j e c t

completed. Those who had s t a r t e d work on t h e accord

phase ef t h e p r o j e c t complained t h a t t h e F e d e r a l

M i n i s t r y of Housing and Environment k e p t promis ing

them of t h e payment b u t so f a r , no payment have

been made on t h e job.

T h e c o n t r a c t o r s also complained t h a t c o n t r a r y

t o t h e F e d e r a l Government p r o p o s a l t h a t t h e banking

aystem i n t h e c o u n t r y w i l l encourage t h e b u i l d i n g

i n d u s t r i e s , t h e banks were v e r y c o n s e r v a t i v e i n t h e i r

approaches to housing f inance . T h i s was a s a r e s u l t

Of t h e l o n g p e r i o d of repayment which was a minimum

of f i f t e e n years . The e o n t r a c t o r s argued t h a t t h e

banks p r e f e r r e d t o g i v e l o a n s t o e x p a t r i a t e firms

and v e r y few Ind igenous b i g firms. 'Phis however

caused a big f i n a n c i a l set-back to t h e c o n t r a c t o r s .

The r e s p o n s e i n t a b l e 7 Of t h e r e s e a r c h e r ' s

d a t a a n a l y s i s s o l i d i f i e d t h e f a c t t h a t t h e r e was

i n a d e q u a t e f i n a n c e and mismanagement of t h e a v a i l a b l e

ones. One hundred o u t of one hundred and t e n

r e s p o n d e n t s r e p r e s e n t i n g 90.9% were of t h e o p i n i o n

t h a t b o t h i n a d e q u a t e f i n a n c e , mismanagement of

a v a i l a b l e o n e s , p o o r a d m i n i s t r a t i o n a n d l a c k o f

c o - o p e r a t i o n b y t h e s t a t e government a n d b a n k s

contributed immensely to t h e i m p l e m e n t a t i o n p rob lems

Of t h e F e d e r a l Low-cost Housing scheme i n Anambra

State.

I n a n i n t e r v i e w w i t h t h e t h e n Director of t h e

programme i n t h e s t a t e on t h e i s s u e of f i n a n c e , h e

e x p l a i n e d t h a t t h e F e d e r a l government w a s i n a

f i n a n c i a l quagmi re as a r e s u l t of t h e m o n o c u l t u r a l

n a t u r e of o u r economy. H e f u r t h e r e x p l a i n e d t h a t ,

Out of t h e 2.5 b i l l i o n estimated for t h e programme,

i n t h e c o u n t r y , o n l y a b o u t W607, 750,000 was made

available as a t March 1982. I n Anambra S t a t e i n

P a r t i c u l a r , t h e sum of H i 3 0 m i l l i o n was b u d g e t e d . .

for t h e programme b u t a b o u t W19, 882, 6602 had b e e n

made available for t h e scheme. C o n t r a s t i n g t h e

estimated f i g u r e s a g a i n s t t h e a c t u a l sum p r o v i d e d

reveals t h a t t h e problem of i n a d e q u a t e f i n a n c i n g

was a cri t ical factor i n t h e p r o g r e s s of work o n

low-cost h w s i n g scheme i n Anumbra State.

i v I n a d c a u r t e p r e d u c t i o n and I m p o r t a t i o n Of m i l d i n q materials for t h e e x e c u t i o n Of t h e P r o j e c t .

T h e r e was n o t enough b u i l d i n g m a t e r i a l s i n

A n m b r a s t a t e t o meet t h e demand fo r t h e implementa-

t i o n of low-cost Housing saheme, I t was d i s c o v e r e d

i n table 9 t h a t 90 o u t of 110 r e s p o n d e n t s , r e p r e s e n -

t i n g 8 1 , s conf i rmed t h e above a s s e r t i o n , However,

80 r e s p o n d e n t s o u t of 90 who responded p o s i t i v e l y

i n table 9 a t t r i b u t e d t h e l a c k of b u i l d i n g m a t e r i a l s

t o i n a d e q u a t e i n d u s t r i e s for b u i l d i n g materials,

l a c k of r a w m a t e r i a l s t o s u p p o r t t h e e x i s t i n g

i n d u s t r i e s , u s e of obsolete machines i n t h e i n d u s t r i e s ,

l a c k of t e c h n i c a l e x p e r t s and mismanagement of b o t h

f i n a n c i a l and m a t e r i a l r e s o u r c e s i n t h e e x i s t i n g

i n d u s t r i e s ,

When t h e r e s e a r c h e r v i s i t e d t h e i r o n and steel

i n d u s t r y a t Emene, a s taff i n a n i n t e r v i e w conf i rmed

t h e i s s u e of s c a r c i t y of raw materials when h e said

t h a t ook ing c o a l which i s t h e major raw-material

r e q u i r e d i n a steel i n d u s t r y i s i n s u f f i c i e n t . H e

f u r t h e r said t h a t l a c k of , c o k i n g c o a l was as a

r e s u l t of i n a d e q u a t e p r o d u c t i o n of coal at EnUgU

which i n t u r n was t h e effect of o l d and worn-out

machines i n o p e r a t i o n i n most of t h e i n d u s t r i e s i n

t h e state.

N e v e r t h e l e s s , t h e F e d e r a l government d i d n o t

e x p e c t t h e b u i l d i n g i n d u s t r i e s i n t h e c o u n t r y t o

p r w i d e a l l t h e needed b u i l d i n g materials for t h e

e x e c u t i o n of t h e F e d e r a l low-cost Housing. I t made

a r rangements for i m p o r t a t i o n of some b u i l d i n g mate ria lo^

I n f o r m a t i o n g a t h e r e d from one of t h e c o n s u l t a n t

a r c h i t e c t s i n c h a r g e of t h e sites i n Anambra s t a t e

r e v e a l e d t h a t o u t of W78 m i l l i o n budgeted for

i m p o r t a t i o n of b u i l d i n g m a t e r i a l s for F e d e r a l Low-Cost

Housing i n N i g e r i a as a who le , o n l y W35 m i l l i o n was

u s e d w h i l e t h e rest were embezsled by t h e p e l i t i c i e n s

who m i s d i r e c t e d t h e fund t o procurement of p r i v a t e jets

to s a t i s f y t h e i r s e l f i s h d e s i r e s . Even t h e c o n t r a c t o r s

awarded w i t h t h e c o n t r a c t of impor t ing t h e s e b u i l d i n g

m a t e r i a l s c o n t r i b u t e d a l o t t o t h e f l o p of t h e p r o j e c t .

Wost of them n e v e r e n s u r e d t h a t t h e i t e m s bought w e r e

d e l i v e r e d to t h e government. I n s p i t e of t h e agreement

of t h e c o n t r a c t o r s w i t h t h e F e d e r a l W i n i s t r y of Housing

and Environment t h a t a l l t h e materials of approved

s t a n d a r d . a h o u l d be made a v a i l a b l e i n t h e r e q u i r e d

q u a n t i t y to t h e M i n i s t r y on or before t h e 3 0 t h day of

December 1980, most Of t h e m failed to meet u p w i t h the

dead l ine . U n f o r t u n a t e l y , t h e F e d e r a l government

d i d n o t c a r e t o compel them to d o t h a t .

when o n e of t h e f i e l d officers w i t h t h e F e d e r a l

M i n i s t r y of Housing and ~ n v i r o n m e n t Enugu was b e i n g

i n t e r v i e w e d , h e r e v e a l e d t h a t even sonre c o n t r a c t o r s

h e l p e d to f r u s t r a t e t h e implementa t ion efforts of t h e

F e d e r a l government. H e a l l e g e d t h a t t h e s e c o n t r a c t o r s

c o l l u d e d w i t h t h e t o p o f f i c i a l s of t h e government t o

d e l i b e r a t e l y reject t h e impor ted b u i l d i n g material.

on t h e g r a u n d s t h a t t h e y were n o t good. T h e s e

rejected impor ted m a t e r i a l s were l a t e r d i v e r t e d t o

P r i v a t e u s e by t h e b i g wiggs. I wonder t h e n how

m a t e r i a l s which were n o t good fo r p u b l i c consumption

w e r e good far p r i v a t e use. However t h e i m p l i c a t i o n

of t h i s development on t h e scheme i n t h e state was t h e

b i g gap c r e a t e d between t h e t a r g e t and t h e a c t u a l

number c o n s t r u c t e d .

V. Low morale end P r o d u c t i v i t y of I m ~ l e m e n t i n q Aqencies

When w o r k e r s l a c k i n c e n t i v e s , i t d e m o r a l i z e s

t h e i r s p i r i t s and t h i s i n t u r n effects t h e i r produc-

t i v i t y . V r o o m s expec tancy t h e o r y of m o t i v a t i o n states

t h a t WPeople w i l l be m o t i v a t e d t o d o t h i n g s t o a c h i e v e

some g o a l s t o t h e e x t e n t t h a t t h e y e x p e c t t h a t c e r t a i n

< 111

a c t i o n s on t h e i r p a r t w i l l h e l p them a c h i e v e t h e

goal . I n a s e n s e , t h i s i s a modern e x p r e s s i o n of

what M a r t i n L u t h e r obse rved c e n t u r i e s a g o when he

s a i d t h a t t teveryth ing t h a t i s done i n t h e wor ld i s

done i n a n t i c i p a t i o n n . 3

On embarking on F e d e r a l law-cost Housing i n t h e

Second Repub l ic , t h e c o n t r a c t o r s w e r e v e r y e n t h u s i a s -

t i c hoping t h a t by t h e t i m e t h e y had completed t h e

p r o j e c t , t h e i r palms would be w e l l g r e e z e d w i t h p l e n t y

of Naira. Some of t h e c o n t r a c t o r s who w e r e b o r y a n t

enough d i d n o t even w a i t t o o b t a i n t h e i r m o b i l i z a t i o n

fee before t h e y s t a r t e d c o n s t r u c t i o n . L i k e o n e o l d

adage which s a y s t h a t "it i s n o problem g i v i n g a

monkey water to d r i n k , t h e problem lies i n g e t t i n g

back t h e c u p w i t h which i t drank t h e water". These

c o n t r a c t o r s got d i s a p p o i n t e d when t h e F e d e r a l

government d e l a y e d b o t h t h e s u p p l y of t h e promised

b u i l d i n g materials and t h e i r payment to t h e e x t e n t

t h a t some of t h e c o n t r a c t o r s a r e s t i l l be ing awed

by t h e d e f u n c t government f o r t h e work a l r e a d y done.

Host-of t h e c o n t r a c t o r s a f f e c t e d by t h e above

s t a t e m e n t were those who succeeded i n comple t ing

t h e f irst phase of t h e p r o j e c t and embarked on t h e

second phase.

The s i t u a t i o n w a s wor sen by t h e a t t i t u d e Of t h e

p o l i t i c i a n s who w e r e a c c u s e d of making payments tQ

g h o s t c o n t r a c t o r s who n e v e r a p p e a r e d i n a n y of t h e

c o n s t r u c t i o n sites, So a l l t h e s e a n m a l i e s d e m o r a l i r e d

t h e h o n e s t a n d d i l i g e n t c o n t r a c t o r s who t h e n decided

t o abandon t h e i r c o n t r a c t s f o r l a c k Of fund ,

I t must be r e a l i x e d t h a t t h e r e p u t a t i o n of t h e

imp lemen t ing body of a n y p r o j e c t d e t e r m i n e s t h e s u c c e s s

or f a i l u r e of s u c h p r o j e c t . A g e n c i e s t e n d t o associate

more and s u p p o r t a n imp lemen t ing body w i t h a r e p u t a t i o n

f o r a c h i e v e m e n t t h a n w i t h a n agency which i s n o t o r o u s

for l o w pe r fo rmance fram which t h e y t e n d t o wi thd raw

s u p p o r t i n order t o a v o i d bad r e f l e c t i o n ,

T h e a t t i t u d e of t h e p o l i t i c i a n s n o t w i t h s t a n d i n g ,

t h e management p a i d d e a f ears t o a d e q u a t e p l a n n i n g ,

l a n d a c q u i s i t i o n , p r o v i s i o n of s u f f i c i e n t p r o j e c t

s u p e r v i s i o n , and o b t a i n i n g n e c e s s a r y l e g i s l a t i o n , A l l

t h e s e i n o n e way or t h e o t h e r c o n t r i b u t e d t o low morale

on t h e s t a f f whfch i n t u r n r e d u c e d t h e e f f e c t i v e n e s s

of t h e p r o j e c t o p e r a t i o n .

V I : 1;suf f i e i e n t Crolect ~ u ~ e r v i s i o n a n d / o r M o n i t o r i n g

I t h a s earlier been men t ioned t h a t t h e F e d e r a l

LOW-cost Hous ing p r o j e c t i m p l e m e n t a t i o n l a c k e d p r o p e r

p l a n n i n g a n d c o - o r d i n a t i o n . T h i s i n t u r n a f f e c t e d

t h e s u p e r v i s o r y and moni to r ing a s p e c t of t h e

implementa t ion , ~ c c o r d i n g to Harold Koontr et el , f

el , t h e b a s i c c o n t r o l p r o c e s s i n v o l v e s t h r e e s t e p s

which inc lude .

i. E s t a b l i s h i n g s t a n d a r d s ;

ii. Measuring performance a g a i n s t t h e s e s t a n d a r d s

iii. C o r r e c t i n g d e v i a t i o n s f ran s t a n d a r d s and p l a n s 4

However, s i n c e p l a n s v ary i n d e t a i l s and

complex i ty and s i n c e managers c a n n o t u s u a l l y watch

e v e r y t h i n g , s p e c i a l s t a n d a r d s a r e e s t a b l i s h e d .

S t a n d a r d s by d e f i n i t i o n s imply means cr i ter ia of

performance.

I n t h e case of F e d e r a l low-cost Housing programme

i n Anambra state and i n N i g e r i a i n g e n e r a l , o n l y f e w

s t a n d a r d s w e r e set. The o n l y o u t s t a n d i n g s t a n d a r d

set was i n t h e a r e a of a r c h i t e c t u r a l d e s i g n w h e r e one

bedroom and t h r e e bedroom f l a t s w e r e proposed

r e s p e c t i v e l y th roughou t t h e country. I n a n i n t e r v i e w

w i t h one of t h e t o p off ic ia ls of t h e F e d e r a l M i n i s t r y

of Housing and Environment on t h e i s s u e of t h e l a p s e s

i n the implementa t ion of t h e F e d e r a l Low-cost Housing

p r o j e c t h e contended t h a t t h e F e d e r a l government

s h o u l d be h e l d r e s p o n s i b l e because t h e y f a i l e d to

g i v e t h e programme n e c e s s a r y l e g i s l a t i v e backing,

H e cited a n example w i t h t h e a g r e e m e n t w r i t t e n

be tween t h e s u p p l i e r of t h e i m p o r t e d b u i l d i n g

materials a n d t h e H e d e r a l M i n i s t r y of Housing a n d

Envi ronment , I n t h e ag reemen t , i t was r e a c h e d t h a t

a l l t h e materials of t h e app roved s t a n d a r d would be

made a v a i l a b l e i n t h e r e q u i r e d q u a n t i t y t o t h e

M i n i s t r y on or before t h e 3 0 t h d a y of December 1980.

Hawever, some of t h e s e s u p p l i e r s f a i l e d to meet u p

w i t h t h i s d e a d l i n e b u t no legal a c t i o n was t a k e n to

r e p r i m a n d them.

I n h i s own view, Dapo O l a a e b i k a n c o n t e n d e d t h a t

n p o l i c y imp lemen t ing a g e n t s t e n d t o be i n s i n c e r e on

t h e r e p o r t s t h e y g i v e t o t h e a u t h ~ r i t i e s * . ~ Thi., i t .

h a s b e e n observed to be t h e r e s u l k of t h e i r i n v o l v e -

ment w i t h t h e c o n t r a c t o r s i n v o l v e d i n b u i l d i n g of

t h e s e h o u s i n g u n i t s . T h i s p e r h a p s was why L t , C o l

A l i y u Kama, t h e t h e n ~ d m i n i s t r a t o r of t h e F e d e r a l

Hous ing A u t h o r i t y , o n c e o p i n e d t h a t t h e F e d e r a l

g o v e r n m e n t ' s h o u s i n g programme f a i l as a r e s u l t of 6 l a p s e s i n i t s i m p l e m e n t a t i o n r e p o r t s n . Even when

t h e r e i s a d e q u a t e m o n i t o r i n g of any p r o j e c t

i m p l e m e n t a t i o n t h e r e p o r t c o u l d be distorted by t h e

m o n i t o r i n g a g e n t s o n a l i t t l e t i p off by t h e

c o n t r a c t o r s .

However, t h e F e d e r a l law-cost Housing programme

i n Anambra S t a t e and N i g e r i a i n g e n e r a l was k i l l e d

n o t o n l y because t h e r e was i n s u f f i c i e n t moni to r ing

and s u p e r v i s i o n b u t because t h e r e was a gross i n s i n o e r i k y

By t h e m o n i t o r i n g committee who c o l l u d e d w i t h t h e

c o n t r a c t o r s to wake unfounded r e p o r t s *

VII: Corrup t ion :

F r a u d u l e n t p r a c t i c e s t ook t h e i r to l l on

implementa t ion of F e d e r a l Low-cost Housing p r o g r a m e

i n Anambra state. These i n c l u d e r e c r u i t m e n t of

u n q u a l i f i e d c o n t r a c t o r s , payment f o r jobs n o t done,

ghost c o n t r a c t s , f o r g i n g of r e c e i p t s , d i v e r t i o n of

p u b l i c fund to p r i v a t e u s e and so on*

I t was observed t h a t c o n t r a c t s were awarded

i n d i s c r i m i n a t e l y to p a r t y l o y a l i s t s who are comple te

n o v i c e i n b u i l d i n g c o n s t r u c t i o n . T h i s s i t u a t i o n was

h a r a r d o u s to t h e implementa t ion of low-cost Housing

p a l i c y as t h e e x p e r t s l a te r c a l l e d by t h e s e c o n t r a a t

w i n n e r s e x p l o i t e d t h e i r ignorance . Some of them

r e j e c t e d t h e impor ted materials on t h e g rounds t h a t

they. were n o t good. U n f o r t u n a t e l y , t h e s e rejected

f o r e i g n materials were i r o n i c a l l y d i v e r t e d to t h e i r

own p r i v a t e use.

A s a r e s u l t of b r i b e r y and c o r r u p t i o n t h e

prices of t h e b u i l d i n g s w e r e akyrocke ted to more

t h a n twice t h e a c t u a l p r i c e . T h i s was t o g i v e

r o o m for enough k i c k b a c k s to t h e a d m i n i s t r a t o r s

who award t h e c o n t r a c t s . I n e v i t a b l y , i n a

s i t u a t i o n where c o n t r a c t s are o v e r p r i c e d , and

* k i c k b a c k s @ o f f e r e d for award of c o n t r a c t s

implementa t ion c a n n o t be e f f i c i e n t as such

c o n t r a c t s would normal ly go to t h e h i g h e s t

* bidddr* and n o t t h e most competent.

Egonmwan i n h i s own view a b o u t emrrup t ion

h a s t h i s to say , W h e n c o r r u p t i o n p e n e t r a t e s t h e

implementa t ion p r o c e s s , p o l i c y becomes muta ted

and t h e desired goals may n o t be achieved. There

may be no performance a t a l l as much of t h e money

p a i d for t h e e x e c u t i o n of t h e project would have

been d o l e d o u t i n bribes as w a s t h e case i n t h e

c o n t r a c t s awarded to p a r t y l o y a l i s t s d u r i n g t h e

Second R e p u b l i c i n Nigeria". 7

C o r r u p t i o n as i t affected t h e F e d e r a l Low-cost

Housing p r o j e c t i n Anambra reached i t s c l imax i n

p r e s e n t t i m b when a l l t h e z i n c s , l o u v r e s , s a n i t a r y

wares and o t h e r r e m w e a b l e b u i l d i n g m a t e r i a l s

u s e d i n a l r e a d y c o n s t r u c t e d few houses were

l o o t h e d i n most of t h e sites. T h i s w a s as a

r e s u l t of t h e i s o l a t e d n a t u r e of t h e sites which

made t h e h o u s e s u n i n h a b i t a b l e .

I g b o - E t i t i , Nsukka and Ezeagu L o c a l Government ,

Areas a r e examples of sites t h a t w i t n e s s e d such

v a n d a l i z a t i o n .

I t i s t h e r e f o r e g l a r i n g t h a t b r i b e r y and

c o r r u p t i o n c o n s t i t u t e d a s e r i o u s s tumbl ing b lock

t o t h e implementa t ion of F e d e r a l Low-cost Housing

p r o j e c t i n Anambra state i n p a r t i c u l a r and N i g e r i a

i n genera l .

From t h e e x p o s i t i o n s so f a r , i t h a s been

obse rved t h a t p o l i c y implementa t ion is a t e d i o u s

p r o c e s s t h a t r e q u i r e d a p p r o p r i a t e critical d e c i s i o n s

t a k e n a b o u t g o a l d e f i n i t i o n , implementa t ion s t r a t e g y

and r e s o u r c e a l l o c a t i o n by t h e p rox imate d e c i s i o n

makers .

I n t h e case of low-cost housing p o l i c y , i n

N i g e r i a a s a whole and Anambra s t a t e i n p a r t i c u l a r ,

t h e major o b s t a c l e s t h a t e x i s t e d i n t h e implementa-

t i o n undoub ted ly i n c l u d e d i n a d e q u a t e f i n a n c e , poor

p l a n n i n g and l a c k of e x e c u t i v e c a p a c i t y .

However, t h e e v i d e n c e of a c t i v i t i e s d e l i b e r a t e l y

embarked upon for t h e purpose of p r o v i d i n g s h e l t e r

for t h e needy i n N i g e r i a h a s been more of r h e t o r i c s

t h a n i n a c t i o n . w h i l e t h e e x e u s e t h a t t h e governments

a r e s t r a p p e d of f u n d s may n o t be d e n i e d , o u r p a s t

records i n t h e a r e a of s h e l t e r have been such a s to

s u g g e s t t h a t t h e r e h a s never r e a l l y been a

c ~ p r e h e n s i v e l y co-ord ina ted p o l i c y on a n a t i o n a l

l e v e l , T h i s i s as a r e s u l t of t h e h u r r i e d n a t u r e of

o u r p o l i t i c i a n s i n f o r m u l a t i n g p o l i c i e s ,

On t h e i s s u e of low-cost Housing i n N i g e r i a , eve ryone

knows t h a t t h e d e c i s i o n was made i n a n adhoc manner

as a n e l e c t i o n m a n i f e s t o by t h e ~ a t i o n a l P a r t y of

N i g e r i a , The government i n h e r p a n i c measure t o g e t

h e r promise f u l f i l l e d embarked on t h e implementa t ion

w i t h o u t thorough ly l o o k i n g i n t o t h e problems end

consequences of such endeavour.

U n f o r t u n a t e l y , Low-cost hous ing h a s e l u d e d us.

What w e have had so f a r are r e l a t i v e l y e x o r b i t a n t

hous ing schemes, el i t ist and uncoord ina ted , much

beyond t h e f i n a n c i a l r e s o u r c e s of low-income e a r n e r s .

A t p r e s e n t , i t is i m p o s s i b l e for any Borrower t o

ever comple te repayment because of t h e mounting .

I n t e r e s t rates and c r i p p l i n g c o n d i t i o n s g i v e n by

t h e mor tgage Banks, "It i s much e a s i e r t o climb

mount E v e r e s t a c c o r d i n g t o I f e d i Chuma, t h a n t o

a c q u i r e certificate of occupancy f o r a p i e c e of l a n d -

i n Nigeria". 8

Even when i t is e a s y f o r you to borrow money

and o b t a i n a c e r t i f i c a t e of occupancy, how are you

s u r e t h a t your money can purchase you t h e r e q u i r e d

b u i l d i n g m a t e r i a l s which most of them have i n c r e a s e d

by ( t h r e e hundred) 300% i n p r i c e , A l l t h i n g s be ing

e q u a l , how do you p r o c u r e l a b o u r , u n d e r such

e x p e n s i v e l a b o u r c h a r g e s as i s now t h e case? The

i r o n y of i t a l l i s t h a t i t Is t h e same governmental

u n i t which promised a f o r d a b l e hous ing t h a t create

t e d i o u s b u r e a u c r a t i c measures t h a t h i n d e r hous ing

d e l i v e r y and also f r u s t r a t e s p r o s p e c t i v e l a n d l o r d s .

I t i s based on t h e s e c o n s t r a i n t s t h a t a governor

i n Lagos S t a t e i n t h e y e a r 1987 completed some

b u i l d i n g i n i t i a l l y p lanned for Low-income e a r n e r s

and d e c i d e d t h a t such shou ld be g i v e n to t h o s e who

c a n ' a f f o r d them. H e f u r t h e r s t a t e d t h a t " t h e

r e a l i t i e s of time was t h a t t h e p r o v e r b i a l common man

c o u l d no l o n g e r d e f r a y t h e Mortgage on t h e houses 9

alloted themw, According to him, "It is no g r e a t e r

l o v e f o r t h e common man i f he i s g i v e n a burden h e

w i l l n o t be able to carryn. With t h i s s t a t e m e n t i t

i s o b v i o u s t h a t t h e s a i d b u i l d i n g s were handed o v e r

t o t h e shylock l a n d l o r d s who can afford them and t h e y

i n t u r n , lord it o v e r t h e low-income e a r n e r s worsening

t h e i r accommoda t i~n s i t u a t i o n .

However, hous ing is a socio-econamic problem and

demands fram p e o p l e i n deve lop ing c o u n t r i e s a r e for

a n o p p o r t u n i t y for f u n c t i o n a l hous ing n o t for q u a l i t y .

A s such , t h e s i g h t and s e r v i c e s approach must be cost

e f f e c t i v e and a f f o r d a b l e . I n o u r p r e s e n t day hous ing

scheme, t h e t a r g e t g roup a r e t h e low-income peop le who

occupy t h e slums. But , by t h e look of t h i n g s , t h e hope

of e v e r owning a house or l i v i n g i n d e c e n t o n e s by t h i s

g r o u p of p e o p l e k e e p s r e c e d i n g a s t h e y e a r 2000

a p p r o a c h e s w h i l e SHELTER AFRIQUE, t h e Nairobi based

Housing Company keeps proposing shelter for a l l p e r s o n s

i n t h e c o n t i n e n t by t h e y e a r 2000.

I t i s t r u e . t h a t hous ing p o l i c i e s i n t h e real

s e n s e of t h e word d i d n o t s t a r t e a r l y i n N i g e r i a , but

i f t h e p o l i c i e s have been w e l l implemented s i n c e t h e y

s t a r t e d , t h e impact of t h e efforts made would have

been felt , a t least to cor respond w i t h t h e amount of

money t h a t had been i n v e s t e d i n it.

C o n s i d e r a b l e a s some of t h e efforts may be,

hous ing e x p e r t s still b e l i e v e t h a t t h e y are devoid of

t h e i n g r e d i e n t s of a c o h e r e n t , comprehensive,

co -o rd ina ted and w e l l a r t i c u l a t e d N a t i o n a l Housing

P o l i c y , They a r g u e t h a t such p o l i c y a p a r t from be ing

w e l l a r t i c u l a t e d shou ld s p e c i f y , t h e o b j e c t i v e s as

w e l l a s t h e s t r a t e g i e s for a c h i e v i n g them,

The n a t i o n h a s p a i n f u l l y r e a l i z e d t h a t t h e n a t i o n ' s

w e a l t h i s n o t u n l i m i t e d ; a s a r e s u l t h e r numerous p l a n s

and programmes i n c l u d i n g housing have had to be t a i l o r e d

t o f i t i n t o t h e realities of t i m e , To a c h i e v e t h i s ,

p r o p e r f e a s i b i l i t y s t u d i e s w i l l be carried o u t i n o r d e r

t o ma tch t h e f i n a n c i a l c a p a c i t y of t h e government w i t h

t h e needs and d e s i r e s of t h e people,

The problem of impor ted b u i l d i n g materials posed

a n i n t e r a c t a b l e r i g h t m a r e i n t h e implementa t ion of

low-cost housing scheme i n Nigeria i n t h e Second ~eplblic.

I t is,therefore n e c e s s a r y t h a t N i g e r i a owned b u i l d i n g

material i n d u s t r i e s be r e s o u r c i t a t e d to m e e t t h e need

of c h e a p b u i l d i n g materials i n t h e country. M r , Michael

Ovonlen of t h e ~ s s o c i a t i o n of Housing C o r p o r a t i o n s of

N i g e r i a s h a r e s t h i s view when h e s a i d t h a t o n e bousing

122 c

p o l i c y w i l l work i n N i g e r i a , u n l e s s government made

a c o r r e s p o n d i n g check on t h e s o a r i n g cost of b u i l d i n g

m a t e r i a l s n . 10

Land u s e Decree which p o s e s a n unnecessa ry

i n h i b i t i o n t o development efforts s h o u l d be reviewed

t o e n a b l e i n d i v i d u a l s o b t a i n land. Houses b u i l t by

government a r e u s u a l l y b u i l t a t a v e r y slow pace and

are o u t r a g e o u s l y ve ry expensive. I n d i v i d u a l s have

succeeded i n b u i l d i n g better and cheaper houses and

a t a faster r a t e t h a n t h e government. S o t h e govern-

ment s h o u l d therefore encourage t h e growth of owner

b u i l t houses.

The government shou ld also be encouraged t o

e n f o r c e a ~ec ree w h i c h makes i t mandatory for

o r g a n i s a t i o n s having a manpower s t r e n g t h of a b o u t 200

p e o p l e and above t o p r o v i d e houses for t h e i r s taff .

T h e r e is need for n a t i o n a l concensus i n a d d r e s s i n g

i s s u e s of p o l i c y implementat ion. F o r i n s t a n c e , it is

n e c e s s a r y t o deve lop sound and c o n s i s t e n t p o l i c y

implementa t ion s t r a t e g i e s a s a g a i n s t t h e p r e v i o u s

p r a c t i c e o f deve lop ing a new set of cstrategies for

each p l a n period.

T h e r e i s need t o d e c e n t r a l i s e t h e mortgage

i n d u s t r i e s i n order t o make l o a n s more accessible

a n d l o a n i n g o p p o r t u n i t i e s wider , A p a r t from

c r e a t i n g more mortgage i n d u s t r i e s , efforts s h o u l d

be made t o r e d u c e t h e i n t e r e s t r a t e of t h e l o a n s

t o a c o n s i d e r a b l e l e v e l which c o u l d be a f f o r d a b l e

by t h e law-income e a r n e r s . When t h i s i s done, a

g r e a t e r p e r c e n t a g e of t h e p e o p l e r would own t h e i r

own houses end t h e r e w i l l be no need f o r r e n t

e d i c t s . Horeso, when t h e r e are more houses t h a n

t h e r e a r e t e n a n t s r e q u i r i n g them, t h e n t h e r e n t w i l l

c o n t r o l itself.

The government s h o u l d encourage o u r l o c a l

i n d u s t r i a l i s t t o i n v e s t i n t h e r u r a l a r e a s a s t h i s

w i l l h e l p to deconges t t h e u rban p o p u l a t i o n and t h u s

ameliorate t h e housing problem i n o u r u r b a n c e n t r e s .

Moreso, i f t h i s i s done, t h e h a r d s h i p t h a t is

e x p e r i e n c e d i n t h e procurement of l a n d for housing

w i l l be minimized s i n c e i t is much easier to a c q u i r e

l e n d for housing i n t h e rural a r e a t h a n t h e

u r b a n i z e d areas.

T h e r e i s need for a committed and d e d i c a t e d

n a t i o n a l i s t l e a d e r s h i p of t h i s na t ion . I t i s o n l y

t h i s t y p e of l e a d e r s h i p t h a t can pursue meaningful

s t r a t e g i e s and tactics t h a t w i l l be g e a r e d towards

t h e o v e r a l l t r a n s f o r m a t i o n of t h e economy.

Above a l l , implementa t ion of government p o l i c i e s

s h o u l d be backed by a p p r o p r i a t e moni to r ing and

l e g i s l a t i o n t o a v o i d p r e v a i l i n g adhoc and r e a c t i o n a r y

method of d e a l i n g w i t h t h e n a t i o n ' s problem.

~ l t h o u g h one c a n a r g u e t h a t N i g e r i a n s c a n n o t

compare themse lves w i t h p e o p l e of t h e first wor ld

c o u n t r i e s i n terms of t h e l e v e l of t h e i r development

b u t t h e y c o u l d stil l have r e l e v a n t s o l u t i o n s to such

p e r s i s t e n t problems a s t h a t of hous ing by employing

t h e s e r v i c e s of o u r t e c h n i c a l e x p e r t s i n e s t a t e

s u r v e y i n g and p r o j e c t v a l u e r s t o h e l p them have a

p r o p e r f e a s i b i l i t y s t u d y of a p r o j e c t b e f o r e

embarking on it.

I a m a P o s t g r a d u a t e S t u d e n t i n t h e Sub-Department

O f P u b l i c ~ d m i n i s t t a t i o n and L o c a l Government of

U n i v e r s i t y of N i g e r i a , Nsukka. I am c a r r y i n g o u t a

s t u d y on t h e implementa t ion of F e d e r a l LowKOst

Housing scheme i n t h e former Anambra S t a t e .

Kindly , s u p p l y m e w i t h a c c u r a t e i n f o r m a t i o n as

t h e s u c c e s s of t h e p r o j e c t w i l l depend on t h e

a u t h e n t i c i t y of t h e i n f o r m a t i o n c o l l e c t e d .

I p l e d g e t h a t , b o t h your i d e n t i t y 'dnd your

i n f o r m a t i o n w i l l be h e l d i n t h e strictest confidence.

NAMEs Ugwuanyi Am#, ( H r s ) - Reg. NO. ? ~ / H P ~ / 8 9 / 8 3 7 0

INTRODUCTION t

i) Kind ly supp ly a p p r o p r i a t e i n f o r m a t i o n a s t h e y

a f f e c t q u e s t i o n s a-f.

11) Tick ( t o t h e r e s p o n s e t h a t a p p e a l s t o your

i n t e r e s t i n t h e rest of t h e ques t ions .

......... a) S t a t e of O r i g i n : ........... (b) Age2

.... ................ C) .Occupation: ( d l Employers

e) Rankt .....................m ( f ) Length of service

1. I n y o u r o p i n i o n , do you t h i n k t h a t t h e p u b l i c

welcomed t h e F e d e r a l government p o l i c y for

law-cos t Hous ing i n Anambra State?

2, D i d t h e S t a t e government c o n s i d e r t h e i n t e r e s t

of t h e bene f iciarics w h i l e making a c h o i c e of

t h e site for c o n s t r u c t i o n ?

3, DO y w ' t h i n k t h a t w i t h y o u r f i n a n c i a l p o d t i o n

yau w i l l be able t o p u r c h a s e t h e low-cos t Houses?

4 D o you feel t h a t po l i t i ca l i n t e r e s t of t h e p e o p l e

i n powor took p r i o r i t y over t h e Social i n t e r e s t

i n t h e e x e c u t i o n of t h e F e d e r a l Low-cost Hous ing

programme i n Anambra State?

5, S i n c e t h e F e d e r a l government d i d n o t m e e t t h e

b r g e t of 8000 h a u s i n g u n i t s p roposed f o r 1

Anambra S t a t e w h a t do you t h i n k waa r e s p o n s i b l e

fo r t h i s ?

(a ) f n d a d e q u a t e f i n a n c e /7 (b) Mismanagement

f i n a n c e /- (c) Poor a d m i n i s t r a t i o n /

( d l l e e k of co-opera t ion by t h e S t a t e

( e l ~ l l / ((a) ~ 1 1 of t h e above /7

6, Pram your o b s e r v a t i o n , do you t h i n k t h a t t h e

houses a l r e a d y b u i l t under t h e F e d e r a l government

low-cost Housing scheme i n Anambra s ta te have

s e r v e d t h e i r proposed purpose of r e d u c i n g

accommodation problem?

(a) Y e s (b) NO-

7 0 I f your answer t o queskion s i x i s ao, why d o you

t h i n k t h e purpose h a s n o t been achieved? 7-

(a) Poor s i t i n g of t h e housing u n i t / /

(b) I n a b i l i t y of t h e S t a t e government t o

p r o v i d e n e c e s s a r y i n f r s t r u c t u r e w i t h i n t h e - l o c a t i o n of t h e hous ing u n i t s / /

( c ) A l l of t h e above

8. I n g e n e r a l , do you t h i n k t h a t t h e low-aost

hous ing scheme i n Anambra State w a s a d e q u a t e l y

funded by t h e F e d e r a l government?

Y e s

9. DO you t h i n k t h a t t h e r e were enough b u i l d i n g

m a t e r i a l i n Ananbra S t a t e to meet t h e demand for

t h e e x e c u t i o n of t h e F e d e r a l Government hous ing

scheme i n t h e state?

(a) Y e s

G 128

10. I f you answer t o q u e s t i o n number e l e v e n ( 9:) is

N o , what d o you a t t r i b u t e t h i s to?

( a ) I n a d e q u a t e industries t h a t produce b u i l d i n g

m a t e r i a l s 7 (b) l a c k of raw m a t e r i a l s t o

bem&-. t h e e x i s t i n g i n d u s t r i e s /7

(c) U s e of o b s o l e t e machines t h a t c a u s e d e l a y i n

p r o d u c t i o n ( d l Lack of t e c h n i c a l e x p e r t t o man

t h e machines i n a l r e a d y e x i s t i n g i n d u s t r i e s L/

( e l Mismanagement i n t h e companies t h a t produce

b u i l d i n g m a t e r i a l s i n t h e S t a t e n

( f ) ~ l l of t h e above

11. Mow would you assess t h e implementa t ion of t h e

F e d e r a l government low-cost Housing scheme i n

Anambra S t a t e ?

( a ) I t was a s u c c e s s (b) I t was a f a i l u r e .

12. Give o t h e r r e a s o n s for your r e s p o n s e t o number

$a@vefl q u e s t i o n above.

INTERVIEW GUIDE

The F e d e r a l Low-cost Housing scheme w a s a scheme

embarked upon by t h e F e d e r a l government i n t h e Second

R e p u b l i c th roughou t a l l t h e states.

I n y o u r o p i n i o n d o you t h i n k t h a t t h e scheme i s

n e c e s s a r y i n Anambra State?

What r e a s o n have you for your answer?

DO you t h i n k t h a t t h e programme was ex tended t o

Anambra S t a t e ?

I f y e s , was t h e r e a n a d e q u a t e f e a s i b i l i t y s t u d y

before t h e implementa t ion of t h e po l i cy?

Were t h e housing u n i t s p lanned i n owner-occupier b a s i s ?

?ram t h e a v a i l a b l e r e c o r d s , how many housing u n i t s

w e r e proposed f o r Anambra a t a t e ?

Haw much money w a s released to e x e c u t e t h e p r o j e c t

i n Anambra s t a t e ?

I n your o p i n i o n , do you t h i n k t h a t t h e money r e l e a s e d

was enough to c a r r y o u t such a j i j a n t i c p r o j e c t ?

Who awarded t h e c o n t r a c t s for t h e b u i l d i n g s ?

Were t h e c o n t r a c t s j u s t i f i a b l y awarded to t e c h n i c a l

e x p e r t s ?

11. I n your o p i n i o n , d o you feel t h a t t h e F e d e r a l

government a c h i e v e d t h e low-cost Housing o b j e c t i v e s

i n Anambra S t a t e ?

312. Give r e a s o n s for your answer.

BIBLIOGRAPHY

BOOKS - E a s t e n , D o , The P o l i t i c a l system, N e w York, A l f r ed

k n o f f , 1953.

Egonmwan, J e A m P u b l i c P o l i c y ~ n a l ~ s i s , ~ o n c e ~ b and A p p l i c a t i o n , S.W.0. ~ k a a n d B r o t h e r s press, 6' Aka street, ?.NeB 1611, Ben in c i ty , - 1991;

Eme Awa

Koontz ,

0 , P o l i c y a n d ~ d m i n i s t r a t i o n ; The N i g e r i a n E x p e r i e n c e i n P rob lems o f N i u e r i a n ~ d m i n i s t r a t i o n ed. Humphrey Nwosu N, , F o u r t h Dimension P u b l i s h e r s , Enugu.

Harold et el, P r i n c i p l e of Manaqement, McGraw H i l l , I n c , U n i v e r s i t y of C a l i f o r n i a ; - L o s Ange le s , 1972.

L a s w e l l , H,D. and Kap lan , A. Power a n d Society, New Haven Yale; U n i v e r s i t y p r e s s , 1960,

Mwosu, H.N, P o l i t i c a l A u t h o r i t y a n d M i a e r i a n C i v i l S e r v i c e . F o u r t h Dimension p u b l i s h i n g Coo Enugu, 1977,

R i c h a r d , Ross - P o l i c y Process i n politics i n Enqland , ed, Gabriel , A, Almond, B o s t o n - L i t t l e Brown a n d Company, I n c , , 1964.

S t r e n R,E, Housing t h e poor u r b a n ~ f r i c a n P o l i c y , politics and B u r e a u c r a c y i n Hombasa; I n s ti t u te of I n t e r n a t i o n a l S t u d i e s ; U n i v e r s i t y of ~ a l i f o n i a p r e s s , 1980,

V e r m a , ' S,?. Modern P o l i t i c a l T h e o r y - V i k a s p u b l i s h i n g House; New D e l h i , 1980.

L

JOURNALS

~ d e n i y i Em00 WHousing t h e Urban masses i n N i g e r i a n ~ o u s i n q i n Wiqeria ~ d i t t e d by Onibokun J o u r n a l NISER-Ibadan, 1985.

E x e c u t i v e office of t h e p r e s i d e n t Depar tment of I n f o r m a t i o n ; MHousing for A l l " , Government p r e s s ; L a g o s , 1980.

F e d e r a l M i n i s t r y of I n f o r m a t i o n , H Y e a r s of Achievement a n d p r o g r e s s " , Government p r e s s ; Lagos , 1982.

F e d e r a l M i n i s t r y of Hous ing a n d Envi ronment Enugu. P r o g r e s s R e p o r t on t h e F e d e r a l Low-cost Hous ing scheme i n Anambra state; J u n e 1983.

Joel, A. Thompson; WImplementing workmenn s compensa t ion programmes i n t h e s t a t e s n , ~ d m i n i s t r a t i o n and S o c i e t y . V o l e 1 4 , NO. 2, Augus t 19820

K o e c h l e r C o r t u s T. P r o j e c t p l a n n i n g and Management T e c h n i q u e s n , P u b l i c ~ d m i n i s t r a t i o n Review volume 43, Number 5, ~ e p t e m b e r / O c t o b e r 1983.

Obayiuwana F.O.S. Manscaement i n Niseria - A j o u r n a l of N i g e r i a n I n s t i t u t e of Management, M a r c h / ~ p r i l , 1986.

P e t e r Bowden. P rob lems of Implemen ta t ionn P u b l i c A d m i n i s t r a t i o n a n d Development Journal, vole b, 1986.

W i l l i a m s W. " Implemen ta t ion , a n a l y s i s and assessment# . P o l i c y ~ n a l y s i s 1 (summer), 1975.

NEWSPAPER AND MAGAZINES

Adeyemo, Michael a n d Nnambudiri C.N.S. WCo-ordination and- c o n d r o l i n P u b l i c s n t e r p r i s e s m ~ a i l y Times, J a n u a r y 13, 1975.

Ch ina , E.C. ~ c a d e m i c S t a r . Vo1.2, No. 7 September 1977.

I f e d i , Chima WLow-I ncome Housing P o l i c y and implementation^. B u s i n e s s Concord, March 27, 1987.

Mouror Daudu WThe F e d e r a l Government Housing; A dream u n r e a l i z e d n Sunday Concord, J u n e 5, 1983.

Oduoza, Hyacinth. '@Developing Housing f i n a n c e i n N i g e r i a " B u s i n e s s Concord, May 29 1987.

O l a s e b i k a n , Dapo. @@Hausing Beyond p o l i c i e s and Debatesm. Times I n t e r n a t i o n a l Sept . 7, 1987.

0 j e l a b i , K. WLow-cost Housing now f o r t h e "richm, N a t i o n a l Concord, May 28 1987.