ADDRESSING THE URBAN HOUSING PROBLEMS OF NIGERIA IN THE 21ST

CENTURY.
J. A. Onyike M.Sc, M.Phil, ANIVS, RSV.
Acting Head, Department of Estate Management,
Imo State University, Owerri.

INTRODUCTION/BACKGROUND.

The 20th Century saw a number of failed attempts by the Governments of Nigeria to

provide adequate housing to majority of Nigerians. Consequently, the 21st Century

Nigeria inherited a serious problem of inadequate housing, resulting from many years of

neglect, undeveloped housing finance system, limited supply of long term funds, low

household income levels, high unemployment, high inflation rate, high interest rate on

mortgages, high cost of land and building materials, poor planning and poor

implementation of housing policies and programmes, existence of administrative

bottlenecks that make the processing and securing of approvals for building plans,

certificates of occupancy and other necessary government permits very difficult, and the

unmitigated corruption in the allocation of government land within the framework of the

Land Use Act, cap.202 LFN 1990 (Ogwu, 2006; Akomolede, 2007; Onyike, 2007). The

situation is compounded by the high incidence of corruption in all other relevant sectors

of the Nigerian economy and the lack of adequate political will by the government to deal

with the housing problem. There is also a conflict of objectives among the major actors in

the housing industry namely, the funding institutions and the developers on one side and

the consumers of housing on the other side. The profit maximization objective of the

developers and funding institutions tends to conflict with the affordability of housing to

the housing consumers, especially the low-income earners.(Draft National Housing

Policy,2004), with the Government standing by as a disinterested umpire.

The current population of Nigeria is over 140 million (Nigerian National Population

Census, 2006 ) and still rising at an annual growth rate estimated at 3.2% (allAfrica.com,

2 October, 2008).

As a result of the above, Nigeria has a large and ever-increasing housing deficit which

stood at approximately 8 million housing units in 1991 and 12-14 million housing units in

2007 (Acceler8now.com, 2007; Akeju, 2007; Aikhorin,2008). A more recent estimate

puts the figure even higher at 16-17 million housing units (Olusegun Adeniji of FMBN

quoted by Sombo, 2007; Financial System Strategy 2020, 2008; Uroko & Akintola,

2008). At an average cost of N2.5million per housing unit, Nigeria would require

N35trillion to fund a housing deficit of 14million housing units.

Nigeria’s urban housing problems manifest in overcrowding, slum housing and the

development of shanties in virtually every major Nigerian city. The housing problems

vary from inadequate quantity and quality of housing to the attendant impact on the

psychological, social, environmental and cultural aspects of housing. Housing is capital-

intensive. The cost of adequate housing is currently beyond the reach of most Nigerians.

This, thus, brings in the financial dimension - the question of the affordability of housing.

The challenge becomes not only to provide the houses but to make the houses affordable

to the average Nigerian worker.

SHELTER, HOUSING, ADEQUATE HOUSING AND AFFORDABLE HOUSING.

Before going further, there is need to get the premise right. Shelter, as we know it, is a

structure, permanent or makeshift, designed basically to protect the occupant against the
elements and intruders. We want more for our fellow Nigerians than just shelter. Housing

is much more than mere shelter. There are quality, comfort, social and community

amenity aspects which go with housing. Housing embraces all the social services and

utilities that go to make a community or neighborhood a livable environment (National

Housing Policy, 1991). Housing is bound up with concepts such as shelter itself, privacy,

location, environmental amenity and investment (Aribigbola, 2000). Housing which

satisfies these concepts can be considered adequate. In consonance with the above, the

Draft National Housing Policy 2004 has defined housing as “the process of providing a

large number of residential buildings on a permanent basis with adequate physical

infrastructure and social services in planned, decent, safe and sanitary neighbourhoods to

meet the basic and special needs of the population”. Housing affects the health,

productivity and well-being of a person. It has effect on the labour force of a country and

consequently, the performance of the national economy. This important commodity,

housing, must not only be available but also affordable.

Affordable housing is that housing which can be acquired from household income

without sacrificing any of the other essential needs of the household. According to Struyk

(2005) “housing affordability is the ability to purchase a dwelling of the appropriate size

and minimum physical and sanitary standards and still have sufficient income to enjoy at

least the minimum consumption of other essential goods and services”. In Australia,

Canada, New Zealand and the United States of America, a commonly accepted guideline

for housing affordability is a housing cost that does not exceed 30% of a household’s

gross income ( Struyk, 2005; WIKIPEDIA, 2007). A recent study based on the salary
structure of public servants in Nigeria showed that no public servant in Nigeria below

salary grade level 13 in the Federal Civil Service and salary grade level 16 in the Imo

State civil service can afford a property costing N4.75million on a 25 year mortgage at

6%, if he devotes 50% of his salary per annum to housing (Onyike, 2007). At 18%

mortgage rate, only a Federal Permanent Secretary or his equivalent on grade level 17

can afford the same house. This shows that in the absence of some assistance, adequate

housing is unaffordable to most law-abiding Nigerians.

Factors which influence or contribute to housing affordability include current and

lifetime household income, house prices and rents, nominal and real interest rates, labour

market conditions which determine security of employment and income, mortgage and

rent payments, and the housing supply constraints which may affect the ability of the

market to respond to excess demand for housing (Onyike, 2007; The Treasury New

Zealand, 2008).

Having considered the above, we can now look at the efforts made by Government in the

past to house Nigerians.

HOUSING EFFORTS IN THE 20TH CENTURY.

An attempt at proffering solutions may not be well informed, if we do not first look at the

efforts made in the past at tackling the problems, not minding that they failed to achieve

the desired result. We run the risk of recycling the mistakes of the past if we ignore them.

Therefore, we will quickly go through the major ones.

Government intervention in housing began in Lagos in the 1920s in response to the

outbreak of bubonic plague. This resulted in the construction of a few segregated housing
estates for expatriates and few selected essential indigenous staff. The other notable

developments during the Colonial era were the establishment of the Nigeria Building

Society (NBS) in 1956 and the creation of some Housing Corporations. The NBS did not

achieve much owing to poor funding while the housing corporations were unable to

extend their services to the low-income earners (National Housing Policy, 1991).

In the Post-Independence era (1960-1979) a major land reform aimed at improving land

availability for development took place, namely the Land Use Decree of 1978. The Land

Use Decree (now Act) unfortunately has failed to achieve this important objective. The

Federal Housing Authority (FHA) was established under Decree No. 40 of 1973 to,

among other functions, implement housing programmes approved by the Federal

Government. It should be noted that the FHA could only complete 30,000 housing units

in 35 years! (FMBN’s Acting Managing Director Felix Koyenikan as quoted by Afrique

en ligne, 2008). In 1976, the NBS was transformed to the Federal Mortgage Bank of

Nigeria, which subsequently became the apex institution of the Nigerian mortgage

financial system.

During the Second Republic (1979-1983), the Federal Government made a number of

bold attempts to address the housing problem. In 1979, the World Bank-assisted urban

development programme was launched in Imo and Bauchi States resulting in the

development of a few sites and services schemes in those states. Other states preferred

infrastructural development and went for the Infrastructure Development Fund. The

National Low-Cost Housing Programme was launched during this period but ended up a

big failure. Some of the reasons advanced for the failure included the adoption of a single

house design for the entire country, irrespective of the differences in culture and climate;
the distribution and choice of sites bore little relationship to the effective demand for

housing; and the houses were allocated not according to need but to satisfy political party

patronage (NHP,1991).

The Post-Second Republic era (1984-1999) saw the launching of the National Housing

Policy 1991 and the establishment of the National Housing Fund (NHF) vide Decree No.

3 of 1992. The main strategy of the Policy was the establishment of the NHF scheme to

mobilize loanable funds from workers, which would be disbursed via the primary

mortgage institutions (PMIs), with the FMBN as the apex/supervisory body (Draft NHP,

2004). The 1991 Policy created a two-tier institutional financial structure, with PMIs as

primary lenders and the FMBN as the apex institution with a supervisory role over the

PMIs (Aribigbola,2008). The supervisory role was taken over by the Central Bank of

Nigeria in 1997. Various roles were created for the three tiers of government and other

government institutions and agencies such as FMBN, FHA, State Housing Corporations,

Ministries and Departments towards achieving the goal of “housing for all by the year

2000”. The NHF scheme and hence the 1991 Policy failed to achieve its objective.

Ogwo(2006) gave the reasons for the failure as follows:

i. Banks and insurance companies refused to contribute/invest in the NHF for what they

described as “unattractive terms” while the regulators of the scheme in the financial

industry, namely the Central Bank of Nigeria and the NAICOM, did nothing. The

commercial and merchant banks were reluctant to apply their funds, sourced short-

term, to housing on long term.

ii. The Federal Government which should have been the prime mover had not yet

contributed to the Fund.

iii. There is lack of support from Government agencies and stakeholders many of whom

have refused to deduct and remit staff contributions to the Fund. Many State

Governments have stopped deducting or remitting their staff contributions to the

Fund.

iv. Difficulty in land acquisition and the corresponding high cost of land transfers in

Nigeria, and

v. The FMBN is not empowered to prosecute any defaulters of the NHF Act.

In all, the various efforts of Government to provide affordable housing for majority of

Nigerians in the 20th Century failed. The causes of this failure have already been

summarized in the opening paragraph of this paper.

ADDRESSING THE URBAN HOUSING PROBLEMS IN THE 21ST CENTURY.

The 21st Century opened with the realization of Government that the earlier efforts have

failed to provide adequate and affordable housing for the vast majority of Nigerians. In

2002, the Government published the White Paper on the Report of the Presidential

Committee on Urban Development and Housing which came up with far-reaching

recommendations. A Ministry of Housing and Urban Development was created to

facilitate the realization of the objective of housing for all Nigerians. In 2004, a draft new

National Housing Policy was produced. This draft is still making the rounds and has not

yet been signed into law. Given that home ownership in Nigeria is currently put at 10%

compared to 72% USA, 78% UK, 60% China, 54% Korea and 92% Singapore and

outstanding mortgage loans at just 0.5% (2005) of GDP compared to 77% USA, 80%

UK, 50% Hong Kong, 33% Malaysia and 61% Singapore (Financial System Strategy
2020, 2008), a lot of work needs to be done for Nigeria to approach the standards

achieved in the developed world. The Yar’adua Government appears serious about

leading Nigeria to the promised land. A number of committees and think tanks are

working to fashion out the best ways and strategies for achieving the objective. Recently,

the National Assembly inaugurated a committee to review the Nigerian Constitution.

There is no better time than now to address issues of far-reaching importance as housing.

It is my belief that the following suggestions/recommendations will help significantly in

solving the urban housing problems of Nigeria in the 21st century.

1. Land Reform/Review of the Land Use Act.

It is generally believed that the Government has abused the trust of the people as far as

the Land Use Act cap 202 LFN 1990 was concerned. The Act has become an obstacle

rather than an enablement to development and therefore needs to be reviewed to improve

the availability of land for housing development. Nationalization of land should be

reversed. The Land Use Act or any future land reform legislation should not form part of

the Nigerian constitution; this will make any necessary amendment of the law easier to

achieve thereby making the law responsive to the needs of the times. Apart from the

problem of corruption and abuse of trust which has bedeviled the application of the Act,

there is the ownership issue which rendered the use of bare land as security for loans very

unattractive and risky to the financial institutions. The Act provides for compensation for

unexhausted improvements. Revocation of the right of occupancy over undeveloped

land, technically, does not attract any compensation except for the ground rent paid in the

year of the revocation; the Government which graciously permitted you to occupy her

land will not pay compensation when she takes back what was hers in the first place.
This, therefore, rendered bare land an unsafe and unacceptable security for a mortgage

loan, thereby reducing the potential for raising funds for additional housing development.

The requirement of governor’s consent should be expunged from the Land Use Act to

facilitate easy transfer, assignment and foreclosure of mortgages which are essential for

the efficiency of the mortgage market. A new land reform which guarantees private

ownership of property without compromising government’s right of eminent domain is

hereby proposed, to increase land availability and improve accessibility of funds for

housing development.

2. Review of fiscal and monetary policies to reduce inflation and interest rate.

High inflation and high interest rates constitute a disincentive to property development

and investment. With inflation rate at 14% and maximum lending rate at 17.92% in July

2008 (allAfrica.com, 2008) new housing would be unaffordable to most Nigerians.

Inflation and interest rates must be reduced to single digits. The Government should work

hard to achieve low inflation and low interest rates in the 21st century.

3. Creation of a viable secondary mortgage market.

It is impossible to provide adequate and affordable housing for the overwhelming

majority of Nigerians, namely the low and middle income earners, without viable long-

term lending arrangements, which can only be achievable if there is a viable secondary

mortgage market. The secondary mortgage market is therefore a sine qua non for mass

improvement in the availability of housing. True and sustainable secondary market

development cannot proceed unless and until the primary market is able to produce a

sufficient volume of high quality mortgages to meet the servicing and performance

requirements of investors (Lea, 2000). There should be a large scale securitization of

mortgage portfolios to create mortgage-backed securities for the secondary market. The

recent floatation of a ^100 billion mortgage bond for the purchase of Federal Government

houses is a step in the right direction. The Federal Mortgage Bank of Nigeria should

become a major operator in the capital and secondary mortgage markets to ensure access

to adequate funding and create investor confidence in the Nigerian mortgage industry.

This is the case in the United States where Freddie Mac and Fannie Mae are the

primary/controlling banks which provide the necessary backing to mortgage-backed

securities in the USA secondary mortgage market system. There is need however to

firstly amend all laws critical to housing investment to facilitate the issuance of housing-

related instruments such as mortgage-backed securities(MBS) and real estate investment

trusts(REIT) which will be traded on the secondary mortgage market. The laws include

the Land Use Act (Decree 6, 1978), the National Housing Fund Act 1992, the Federal

Mortgage Bank Act (Decree 82, 1993), the Mortgage Institutions Act (Decree 53, 1989),

the Trustees Investment Act 1962, the Nigeria Social Insurance Trust Act 1993, The

Insurance Act 2002, The Investment and Securities Act 1999, the Federal Housing

Authority Act 1990, Land Instrument Registration Act, and Conveyancing (Capital

Market Databank SEC Nigeria,2005; Mabogunje, 2006; Soludo, 2007).

A new FMBN law should give legal backing to the bank to operate as a secondary

mortgage institution with right to issue mortgage securities. Pension and insurance

companies should be mandated to release much of their long term funds to the mortgage

market.

To further improve liquidity, the National Housing Fund (NHF) contributions should be

raised to 5% of monthly income and deducted at source: a new FMBN law should give
the bank the authority to prosecute any defaulters, for non-payment, non-remittance,

under-payment or under-remittance of NHF contributions. As observed by Sanusi (2003),

the NHF contributions can be integrated into the personal income taxation system such

that “a defined proportion of taxes paid are allocated to the housing fund pool, as is done

in Singapore”. This, I believe, will significantly reduce the degree of default.

The minimum asset base of any operating PMI should be raised to ^500 million; the

figure for an average PMI should indeed stand at ^1 billion. This will build confidence in

the investing public and will indeed attract larger deposits and patronage to the mortgage

finance industry.

The absence of a clear-cut foreclosure law scares some investors and funding institutions

from the housing sector. The very long delays in the disposal of cases in our law courts

make property investment a nightmare to many investors. The adoption of non-judicial

foreclosure process in cases of mortgage contracts, as practised in some countries, is

essential for proper functioning of a secondary mortgage market in Nigeria(Akeju, 2007).

The use of lands tribunals for such matters is hereby recommended.

It is necessary to sound a note of warning! One of the causes of the subprime mortgage

crisis in the USA was that due to securitization, mortgage loans with high risk of default

could be originated, packaged and the risk readily transferred to investors in securities

(Wikipedia, 2008). The secondary mortgage market in Nigeria must be strictly regulated

to avoid catastrophic consequences.

4. Creating a National Credit Database.

A nationwide credit database that can provide credit information of all individuals that

enjoy financial services in Nigeria is not available (Akeju, 2007). As a result, the
financial institutions in trying to establish the financial background and credit worthiness

of the loan applicants, take several days or weeks to process most loan applications. A

development of a nationwide credit database which will make credit scoring of

prospective loan applicants possible has the potential to reduce the loan processing period

to a matter of hours. It will also encourage the financial institutions to extend their loan

facilities beyond the few well-known rich people. Going by the USA experience,

however, the success of this system depends very much on the integrity of the credit

scoring agencies. Two major credit scoring agencies in the USA are the Equifax and the

Trans Union. The most widely-used credit scoring system in the United States is the

FICO system which attach scores to various aspects of the loan applicant’s credit profile,

namely: previous credit performance, current level of indebtedness, time credit has been

in use and types of credit available to the applicant in the past, and pursuit of new credit

(number of enquiries) by the loan applicant.

The building up of the required databank and the associated networking in Nigeria will

take some time. In the interim and until the national credit database is in place, the

government should provide guarantees in form of mortgage insurance to lenders to

encourage lending to the lower income people. The USA government, an avowed

advocate of the free market, is precisely providing similar guarantees today in response to

the “financial meltdown”.

5. Improving Land Registration.

Land registration is still a very frustrating experience in most States of Nigeria. It is

expensive, inefficient and time-consuming. The process is very prone to corruption. The

introduction of the Geographic Information System (GIS) in land registration will solve
most of the afore-mentioned problems. The initial cost of establishing the system is quite

high but the enormous benefits make the system very cost-effective. The experiences in

both Abuja and Lagos where the GIS has been implemented are very encouraging. Other

States should quickly follow their example.

6. Compassionate Urban Renewal.

Slum areas are the breeding grounds for diseases, crimes and other socially-deviant

behaviour. Slum clearance is necessary to improve the quality of life in such areas. Slum

clearance, however, must have a human face. Driving away the slum dwellers without

providing an alternative and better accommodation for them elsewhere is a sin against the

people’s fundamental human rights.. The ugly experience of Maroko is still fresh in the

minds of many Nigerians. Urban Planning in the 21st Century must provide for the poor

and weak in our society.

7. Cost-saving house designs.

A cost-to-design approach is necessary for low-cost housing to be achieved. Affordability

must guide the designing of houses in the 21st century. According to Alao (2008) the

starting point for the design of affordable housing unit is to establish the affordable rent

for the area in which the project is to be located. Affordability through design also entails

the determination of the best property development methods available to achieve cost

reduction without compromising quality. The design must also be sympathetic to both the

physical and cultural environment. A good design should aim at achieving affordability,

marketability and durability of the finished product.

8. Cooperative Housing.

An idea akin to housing development efforts in the African traditional setting is the

pooling of resources to develop houses by members of a given social group for the

benefit of their members. Members contribute into a common pool for a pre-arranged

order of housing development for members; this form of development strategy is most

applicable among low-income earners for cheap, albeit adequate low-cost housing.

9. Social Housing.

Social housing refers to rental housing which may be owned and managed either by the

State or non-profit organizations, or a combination of the two, with the aim of providing

affordable housing (Wikipedia, 2007). For majority of the low income earners rented

accommodation, subsidized or non-profit, will provide the adequate and affordable

accommodation. The Government should through direct funding provisions or negotiated

tax waivers assist the housing corporations and certain private developers to provide

social housing to alleviate the housing problems of majority of the urban low income

earners.

10. Government-funded infrastructural development.

The Government should encourage increased housing development by providing access

roads, power, water and drainage facilities to proposed housing development areas. The

developers will then channel available funds to provide the houses proper and thus

quickly realize the houses.

11. Sites and services schemes.

The provision of basic infrastructure such as access roads, power, water and drainage

facilities will significantly reduce the cost of housing development. Sites and services
schemes involves the allocation of serviced or partly developed plots to people. The plot

allocation is usually accompanied with mortgage loans provided with terms and

conditions tailored to suit the income flow of the average allotee, to facilitate the

development of the plots. This is especially helpful in low income housing and thereby

recommended as a useful option for the upper category of low income earners.

12. Strict development control.

The inability of the Government to enforce development control is one of the major

reasons for the deterioration of housing and housing infrastructure in most urban areas in

Nigeria. Development control should be implemented devoid of adverse vested interest,

to ensure that good housing quality is maintained.

13. Taxation.

The hoarding of available residential land by monopolist land owners increases the cost

of land and hence the cost of housing. Residential land banks should be taxed to make it

unattractive to delay land development unnecessarily.

Essential building materials should enjoy tax subsidies to achieve reductions in their

market prices thereby reducing the cost of housing development.

The Presidential Committee on Affordable Housing has suggested that developers who

construct more than 150 housing units a year should enjoy tax holidays while companies

who invest in housing should enjoy 50% tax relief (Onwuemenyi, 2008). This is a

welcome idea at this early stage, to attract more investment into housing.
14. Research on local building materials.

Readily available local building materials should be studied and improved to render them

suitable for producing cost-effective and durable houses. Such improved local materials

will significantly reduce the cost of housing.

15. Responsive industrial policy:

There should be a policy to locate certain categories of industries in the rural areas to

discourage rural-urban migration which creates pressure on available urban housing

stock. To enhance the appeal of this policy, Government should improve the access roads

to such rural areas and provide necessary support to ensure adequate availability of land

for such projects, subject, of course, to fair compensation.

16. Economic empowerment.

An economically empowered population is essential for a viable housing industry. To

enable payment for housing the present and prospective homeowners should have good

and sustainable means of income. The economy should be strong enough to provide jobs

to guarantee the payment of rents and mortgage premiums.

17. Anti-corruption measures and a responsive judiciary.

Corruption militates against the success of, even, the best of policies. The Nigerian nation

has suffered greatly from corruption; best thought-out policies and projects have

collapsed .as a result of this national malaise. Contract costs are fraudulently inflated,

incompetent contractors are favoured over and above experienced and capable hands,

projects are sabotaged for narrow personal gains, etc. Bribery in whatever name is not

good for the system. Badly-executed projects are certified satisfactory by corrupt

Government and company officials. What ever we are proposing for housing in the 21 st
century can only succeed as planned if corruption is kept under control. The judiciary

should be up and doing. Justice delayed is justice denied. Delays in the courts have

turned profit-making projects to loss-making ones. The long arms of the law must be

made to reach both the rich and poor alike. Justice in the housing industry must be quick

and right because of the enormous cost implications of unnecessary delays and injustice.

CONCLUSION

It is my candid opinion that the above recommendations, if implemented, will help in

solving the urban housing problems of Nigeria in the 21st Century.

Thank you.

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