University of Nigeria Virtual Library

Serial No ISBN 1 85628 456 5

Author 1

MBA, A.H.C

Author 2 Author 3

Title

Public Housing Policies and Programs: An Analysis

Keywords

Description

Public Housing Policies and Programs: An Analysis

Category

Environmental Science

Publisher Ashgate Publishing Ltd

Publication Date 1993

Signature

Planning, housing and !and policy

Edited by ROEEXT 3'. TAYLOR As:;ociate Profixsor i\lontclair Statc, ,Yt.w Jersey

Avebury Aldershot Brookfield USA Hong Kong . S i : ~ g ; ~ p m - Sydney

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Prinrcd snct Bound In CJrc,lr Britain by hrhcnacurn P r c r ~ Lrd, Sz-.vcasrle upun Tyne.

Acknorrledgen~en ts

Chapter 1 - 1. C'

I::+lp+::c?;..>~ ; j ' : r T. ' :r

PART CAVE: THE CONTEXTUAL OVERV!E!V 11 C h p t ~ r 2 13

The Eblicy Ccnmt R o k r t CV. Xylor

Chcpter 3 2;i The Historiial Contwt I i~xr - t W Taylcr

PART RVO: URBAN Pl-AlMVNG ~:3 Chzpter 4 r . 1 7 ,,

U r h n P!~nning and D ~ d o p m e n t 'liaron Arum Braimah

Chapter 5 57 Piysical PI~.nning Framewcrk. An Overview Kunlg Adzr.~ji

Chcrpter 6 62 Economic Planning artd Ph!:sical Planning: An Intz~!r,--.4 ,A?prcoch Timc:hy 0. Egunjobi

CI:apk?r 7 72 The Transport System and ,Socia-Econsnic Develcy ct Harold Chike Flba

Chapter 8 83 Flqional Planning and Rural Development Timothy 0. Egunjobi

Chapter 9 95 Trainiry Txun Plangers in a h p r c s s ~ d Economy Kmle Ac'entji and 0.): @meye

R4RT THREE: FfOUSlNG 10i Chapter 10 103

Urbani;.a.ion Trmds and 1-lorising Louis C. Urneh

PUBLIC HOUSING POLICIES AND PROGRAMS: AN ANALYSIS

Harold Chike Mba

The Federal and State Governments of Nigeria have on many occasions adopted housing programs and policies which have considerably affected both the pattern and quality of real estate and urban development in Nigeria. Some of these measures have included: establishment of government residential areas (GRA's) for top gwernment officials; provision of housing of low income workers in government cotporations; estnhlishrnent of housing corporations for provision of public housing; est iblishrnent of home financing institutions; enactment of rent control legislation; and adoption of housing p rwams largely geared towards increasing the supply of housing f x low and medium income groups through direct construction. All the above programs have their merits and demerits, the extent to which they have been succestes or failures i , dealt ~bith in this chapter.

Like most other developing countries, Nigeria suffers from an acu e shortage of standard housing. Although the problem exists both in the rural and urban areas, it appears to have become much more serious in the urban areas. This is duc mainly to rapid urban growth, associated with rural-urban migration and accelerated socio- economic development. The effects have been adverse. Overcrowding, high rents, slums and Fquatter settlements, have become common features of the s r h m I~zdscape. Evidence from any urban center in Nigeria will surely validate this asser- tion. Data from the Third National Development Plan has shown that 72.5% of the households in Lagos occupy one room. while the average number of persons per room was 3.8. In Ibadan, 47.3% of the households occupied one room with 2.1 persons per room. In Benin city, only 24.9410 of the residents were served by tap water while the

- . a .

Whatever the merits and demerits of GRA's, they have set the pattern for . - development of private real estate, especially the "country home," among the Nigerian ? . . elite. Because of the high cost of land in urban areas, such estates which are very

extravagant in land space, are hardly found in private holdings in the cities and towns. However, it has become the ultimate desire of the Nigerian elite to build expensive estates in their rural home towns. Most importantly, the GRA's have conspicuously stood out as modern neighborhoods developed alongside the dominant, but poorly planned parts of the major urban areas. They, indeed, constitute enviable alternative urban forms for Nigeria.

Housing for Low Income Workers in Government Parastatair

The housing program for low income workers employed in government corporations originiated from the need for providing houses for the large number of white and blue collar workers who could not find decent and suitable accomodation near their places of work. Some of these included low income employees of Nigerian Railway Corpora- tion, the Post and Telegraphs Department, the Nigerian Ports Authority, the Nigerian Coal Corporation and a few others. The estates are usually monotonous row houses which provide one to two bedrooms and a living room for each family. The older types of public housing belonged to his category. In spite of the comparatively small number of these estates, they have made an impact on housing in Nigeria.

Low-Cost Public Housing Provision by Housing Corporations

The first recorded attempt by government to provide public housing for the poor was the establishment in 1928 of the Lagos Executive Development Corporation (now known as the Lagos State Development and Property Corporation). This multipur- - pose agency was created by the Government under the Lagos Town Planning Or- dinance (Chap: 95 of the Laws of the Federation of Nigeria) to clear unsanitary buildings and rehouse displaced persons in the area of Oko-Awo after the plague of that year. The corporation was empowered to establish housing units in metropolitan Lagos, and had by 1939 cleared about 20 hectares of land the north shore of Lagos. It had also drained the swamp on the island, which had become a major source of land for urban development.

The main activity of the corporation gained prominence in connection with the Lagos Central Planning Scheme of 1951 which required slum cizarance in Central Lagos and the subsequent development of the area for commercial activities (William et al. 1968). This involved the clearing of 28 hectares of densely populated residential, commercial, and industrial areas of Lagos which housed more than 30,W people. Another major achievement of the Lagos Executive Development Corporation in-

- corresponding figure for Kano was 21.6%. . - - As a result of the acute shortage of housing in major cities and towns of 9 . - Nip+, the average worker pays about 40% of his month ly salary in rent. The urban

w o r k has for a long time needed considerable relief from high housing costs. The fed& and state governments of Nigeria have historically ieft the issue of housing p r d n to individuals and the private sector.

Government Residential Areas

Onedlhe most significant of the governmental housing programs which have consid- eraFraCfectcd the development of housing and real estate development in Nigeria is the rstablishment of estates, generally known as government residential areas (GRls).

These estates were areas initially set out as residential districts for former Brihh colonial administrators who were coming to Nigeria in large numbers during the htt 1920's. These were people recruited to serve in the British Colonial Ad- minkations. They also included the executives of key commercial firms, such as the Unitd Africa Company (U.A.C.), Societe Compagnie Occidentale LAfrique ( S . C D A . ) , Compagnie Francaise de L!Afrique Occidentale (C.F.A.O.), G.B. Olivant, an6 Mr. Holt.The GRA's were established with the top European executives in mind, and mf r rmed to the western style of single family housing. The areas are park-like ~ i t h h n d a n t ground space per parcel. The density of housing in these areas is about one n i t per two hectares, although there are slight variations between cities. Since houss are located at the center of the lot, they could not be subdivided. The urban plarmcr, Max Lock (1%7),. referred to these developments as "well placed, historic and mturc but wasteful sites." Since Nigerian independence, most of these estates ha\-eT&n occupied by top ranking Nigerian government officials. The Ikoyi area and some areas of Victoria Island in the dominant city of Lagos are examples of these govaarnent residential areas. They are also found in virtually all major towns in Ni* The residents of these government residential areas pay a small f i e d percent- age d their annual salaries as rent, making housing in this area highly subsidized. C o d e r i n g the amenities which the residents enjoy and the exorbitant costs of p h t y owned houses, these government houses constitutg an attractive bonus to their nccupants. The fact that top government officials enjoy the luxury of expensive estam and pay less rent than officers in the lower income range who have to secure r e d apartments from private real estate entrepreneurs, has been much critici7cd. M o m r , the maintenance of the park-like surrounding of these gobcrnment estates is dra by l a h r provided by government. Although such favorable terms were intended to cmwage expatriates to stay and work in Nigeria, the top Nigeria elites who now occqthese estates have continued to enjoy these rather extravagant amenities.

cludal the Surulere-Housing Estate which was designed partly to provide temporary residesrial housing for households displaced from the slum area of Central Lagos. H-r, the Surulere housing development eventually became a permanent residen- tial aca for these displaced households because of a number reasons. First, most of the e n a l owners of the redeveloped area could not afford the re-settlement cost of the sks because the cost of cornpensarion and re-purchasing of the developed land had h m e prohibitive. Second, the slum clearance project was never actually com- pletd and has remained uncompleted to date. By 1962, the slum clearance ~ o r k had s t 6 and a United Nations Assistance Team involved in the project estimated that larger expenditures were needed to complete work on the 2R hectare sire (William, 195.31 Third, the area available for re-occupation had been reduced in size after pr&n was made for roads and commercial dcvcloprnent. Nevertheless, the S u r u h housing estate did provide housing opportunities for a cross cection of in- cwnqoups, and by 1976 had housed a population of 150,000 (Abi~dun, 1976).

Further attempts at mass housing in Lagos have included the high density rwideetial developments in Apapa, and low density developments in Ikeja and Vic- toriaH1snd. The llupeju Estate in Lagos was planned in 1965 for both residential and indsrial developments. About 89 hectares of the 190 hectare-site was devoted to hieh bcorne residential layouts, while the remaining 101 hectares were devoted to inddal layouts. Moreover, during the late 1970's, new housing estates for both low and middle income groups were planned and located in the following areas of Lagos mebqmlis: Obga, near Tkcja; Amuwo Odofin; Epe; Ikorodu and Badagty. Futher- morr,satellite towns were designed and constructed within the metropolitan area of Lagm These have helped increase the housing supply in Lagos. MOS~ significantly, thest satellite towns have left their charateristic features on the morphology of M-litan Lagos.

In the southwestern part of Nigeria, the Western Nigeria Housing Corpora- tiw uas established in 1958 by the old Western Nigeria Govenrnent solely for the purpese of stimulating home ownership. The corporation developed both residential and idustrial estates for freehold and leasehold acquisition. The estates developed ind&ed the Bodija Estate in badan and the Ikeja Housing and Industrial Estates, Thc mitial development in B d i j a consisted of 500 model houses of varying types c o m c t e d on 203 hectares of land. However, private entrepreneurs acquired land and ki l t their own houses in the estate. By 1976 there were about 1,200 houses a c d a t i n g about 10,000 people (Abiondun, 1976).

Meanwhile, the Ikeja residential and indusrrial estates in Lagos, which were init- in 1960, had covered an area of about 122 hectares of residential housing and a h 203 hectares of industrial establishments. To date, thc !kcja Industrial Estate h o w the greatest concentration of industrial establishments in Wigeria.

The housing development activities of the Western Nigeria Housing Corpora- tionmere not limited to Bodija and Ikeja. A total area of 164 hectares was acquired in

s i of providing modern and adequate housing to supplement the lack of housing sm resulting from the ravages of the war. An initial target of 100,000 housing units was&. With the creation of additional states in 1976, the name of the authority was ckmged to Anambra State Housing Development Corporation and developed a nurn- b e d estates. The Trans-Ekulu Housing Estate situated at the northern part of

contains 745 housing units of various types which were developed in five phas. The Abakpa-Nike Housing Estate located at the northmeastern fringe of E+u was developed in two phases, and contains a total of 361 housing units of vsrkms types. The Niger Head Bridge Housing Estate contains a total of 3 9 housing uds, and occupies a smaller land area than the Abakpa-Nike Housing Estate.

In northern Nigeria, the Northern Nigeria Housing Corporation was cstab- I I in the middle of the 1960's. n o major housing schemes can;= into cxktence by JW, the Kaduna Housing Estate and Estate Pilot Scheme. Although the Kaduna Hcaing Estate was originally built as low cost housing, it has been upgraded into e a r junior government quarters. In fact, most of the estates attracted middle iarme people, although originally planned for low income workers. Currently, alI of tk states of Nigeria have their own housing corporations. These corporations have h charged with the responsibility of providing housing and residential estates in tkvarious states. The impact of their activities on urban development in Nigeria has bm~ phe nomenal. The succeeding sections of this chapter will deal mainly with the hoaing programs of the Federal Government of Nigeria.

7Te Federal Housing Authority

Tk Federal Housing Authority was created by decree No. 40 in 1973 and charged ni& the responsibility of providing housing for low and moderate income civil ser-

in the towns and cities. Several houses were built by the Housing Authority and d! at subsidized rates to the general public. Moreover, purchasers had considerable periods of time within which to complete their payments.

T k functions of the Authority included: ri) the preparation and submission to thegovernment of propsals For the National

Housing Program;

fiii) the making of recommendations to the government an each aspect of urban and regional planning, transportation, communications et cerera, as may be relevant to the successful execution of programs approved bv gwcrnment;

fii) the execution of such housing programs as may be approved by the government.

The first phase of the housing program was launched in September 1973. The -am which was entirely funded and implemented by the Fcderal Govcrnment also

provided such infrastructural facilities as roads, water, sewage, electricity and other utilities within the estates. However, the FHA operated through the state governments whose responsibility it was to make land available for construction of housing and associated infrastructure. Moreover, the FHA was responsible for the establishment of standards for designs, award of contracts on the recommendation of the state governments, inspection of on-going projects and disbursement of funds for work done. The FHA made paymenb for completed projects on the basis of a Certificate of Completion submitted by the state &wcrnments. Initially, all available designs made by the state governments were adopted. However, a consulting firm was later com- missioned to provide designs for all categories of dwellings.

The first phase of housing units were made available to renters at rents that would amortile the project over 25 years. Aboilt 81% was allocated to housing con- struction, while the other 19% was allocated to infrastructure. Administrative and physical problems delayed the allocation of the completed units. Nevertheless, the designs of both the buildings and layouts did set the pattern for a new type of residen- tial development.

The Federal Mortgage Bank of Nigeria

The Federal Mortgage Bank of Nigeria was established by decree No. 7 in 19n. The bank was to grant long-term credit facilities to individuals who wished to acquire their own homes. The bank was aIso to grant long-term credit facilities to other mortgage institutions so as to enable them to make comparable credit facilities available to ind'niduals.

The bank had the power to accept long-term deposits and savings from mortgage institutions, trust funds, the post office and private individuals. An interest- ing aspect of the legislation was that the bank was empowered to guarantee loans from private investment sources for building development. It could also provide guarantees of promissory notes and other bills of exchange issued by licensed banks in Nigeria and to discount such notes or bills. This decree also empowered the new bank to carry out research to improve housing patterns and standards both in urban and rural areas of Nigeria.

Currently, the bank operates three categories of loans: social loans; economic loans; and cornmerical loans. Social loans are generally granted for private residential units with a maximum cost of 30,000 naira. These loans are also available to housing corporations for construction of housing units within the 30,000 naira cost range. Moreover, the loans are available for houses built by federal and state housing corporations. In addition, two-unit residential developements within the cost range of 30,000 to 65,000 naira qualify for the loan.

The terms of repayment of the loans are more X h a l for individuals than for

. hnusing corporations. For individuals, the repayment p e r i d is 20 years. Housing cor- porafions are allowed a repayment period of I0 years. The maximum loan grantable to housing corporations is 90% of the cost or value of the project, whichever is lower. Moreover, the interest rate falls within the 6% to 7% range.

On the other hand, economic loans are grantabie for private residential units which are: either for rental purposes or cost more than the 65,000 naira housing estates not covered by social loans; mixed estates; and building materials. Economic loans are also available to federal or state housing corporations for the above pur- p s a . The repayment period for economic loans is 15 years with a moratorium of 3 mon~hs from the date of the last installment payment. The interest rate allowed is 9% for a maximum loan of 85% of the cost of the project.

Distinct from economic loans are cornmercizl loans. These loans are usua!!y available for the following types of development: office complexes; specilized build- i n s and other commercial developments. Commercial loans are also available to federal and state housing corporations for the above mentioned types of development. Thc interest rates payable for the various catego ries of loans differ. Residential and rnkd residentialkom mercial developments attract a loan of 10% for a repayment period of 10 years, while all other types of developments attract a loan of 11% for a repayment period of 7 years.

Rent Control Legislation

Because of the immense disparity between the demand and supply of houses in most urban areas of Nigeria, rents paid for housing are high. Complaints by Nigerians both in [he press and radio have compelled the federal and state governments to pass rent control decrees since 1973. The rent control decrees place ceilings on the maximum rent5 that can be paid for houses of specified patterns and dimensions.

Although the rent control edicts appear initially to be successful, their effec- tiveness does not last long because of some difficulties in implerncntation. First, rent control Ieads to discriminatory pricing in the renting of houses. Estate owners often rent wt their houses to people who ngee to pay high rents for which no receipts are issued Second, the enforcement of the rent control edicts can hardly succeed where there is excess demand and under-supply of housing. Third, as same of the people who are supposed to enforce the decrees are themselves landlords interested in high rent market structure, it is quite difficult for them to be effective in discharging their duties.

in 1973, the Federal Nigerian Government decided on providing a housing rent subsidy to public servants. Individuals were to secure suitable accomodation which was to he inspected and approved by officials of the Federal Ministry of Works. This privilege was grossly abused, even from the very beginning, by people who moved

- into expensive houses. Consequently, the Federal Government modified the policy and decided to give direct cash subsidy to individuals. Although people in the lower income groups spent most of their cash payments on housing, some people in the higher income groups used their subsidy for other purposes.

A second Rent Control Edict was passed in 1976 by the Federal Government with a view to improving the execution of earlier edicts. Unfortunately, this edict did not do much better than the previous one. Whatever the merits of rent control decrees, they appear to have been detrimental to the development of real estate in Nigeria. The decrees reduced the incentive for further housing construction and pur- chasing, especially in periods of rising costs of building materials. Real estate entrepreneurs complained that they could make little or no profits from their invest- meqts. In fact, during the initial stages of the enforcement of the Decree, verv few new estates were being developed. Some real estate developers and builders began to look into other types of businesses. Although the motive behind the rent control edicts was often applauded by renters, the effect was often deleterious to the goal of an ex* panded rental housing stock.

Housing and Urban Development in Relation t o National Development Plans

Although the Federal Government did not make any elaborate statements about irs involvement in housing and urban development in the First and Second National Development Plans (1962-74), it showed some concern for the housing needs of urban dwellers half-way through the Second Plan period. The first nationwide housing pro- gram was initiated in 197'2 by the Gowon Administration. A total of 54,OOO housing units were proposed for all the state capitals of the country. In order to facilitate the implementation of housing programs in Nigeria, the Federal Housing Authority was established in Im. The initial federal housing target was then increased from 54,000 to 60.000 units. Although only about 25.8% of the proposed units were actually corn- pleted by the end of the plan period, the program did make a significant impact on the development of real estate, housing and urban development in the state capitals.

During the Third National Plan Period (1975-81), the Federal Government stated that it had accepted it as part of its social responsibility to participate actively in the provision of housing for the nation. The objective was to achieve a significant increase in housing supply. It was hoped that this would reduce the #st of housing, and thus make i t affordable to lower income groups. The objective was for the average worker not to pay more than 20% of his monrhly income on rental accomodation (Federal Republic of Nigeria, 1975). Measures taken to achieve the &OVE objective included: the direct construction of housing units by the federal and state governments for leasing and selling at subsidized rates; the increase in construction of quarters for government officials; and the expansion of credit facilities to promote housing con-

- - - - stminn.

In order to facilitate efforts at housing construction, increased investments were made in the domestic production of cement and other essential building makids . Increases were also made in the imported quantities of these materials so as to sllpplement local ones. The total amount earmarked for housing deveveIopment by the Fcderal and Srate Governments during this plan period was 1.837 billion naira. Of thisamount, the Federal Government was to provide asum of 1.650 bi l l io~

During the plan period, further consolidation of the Fedral housing programs was &served. The Murtala Mohammed Administration, which incrcsed the number of sues in the country from 12 to 19, budgeted 2.5 billion for construction of 202,W new busing units throughout the country. These new units were to be constructed in all tk state capitals. While the states were charged with the responsibility for thc implementation of the projects, the Federal Housing Authority was responsible for rnonitoriting the construction activities At the end of the plan period, only 12% of the schduled housing units were actually constructed. However, the succeeding Shagari Admhistration initially appeared to have been determined to solve Nigeria's housing prokkms.

The Fourth National Development Plan (1981-85) not only highlighted the F e h l Government's commitment to provision of UX),000 housing units annually, but also mntained elahorate policy statements on urban and rural development. The F e h l Government's estimated investment in the housing sector during the plan p e a was about 1.6 billion. Three types of schemes were provided for in the plan. In the fast scheme, 2,000 housing units were to be constructed annually in each state of the amntrv, including Abuja. This implied that 40,000 housing units were to be built for rht whole country annually during the plan period. Unlike the pteceding program, whit21 was impIemented through the states, the Federal Ministry of Housing and En+mment sent its staff directly from Lagos to the states to implement the scheme. Duriq the same period, the Federal Housing Authority embarked on construction of 141M) low cost housing units throughout the country. The second scheme was the devrt.7prnent of serviced plots for leasing to individuals, who could then arrange to comruct thcir own houses. This marked the beginning of a radical shift from the prokus direct construction strategies. The third scheme was the setting up of the Ni-n States Urban Development Project, which involved extensive infrastructural expsion activities. The project, which was to involve the Federal Government and all the Pate Governments, was to be funded partly by these governments and partly by thexnrld Bank.

R:; the end of the Shagari Administration in 1983, many of the housing units prqpaed for the various states of the country had been completed, and were awaiting al la ion. Due to the difficulty in securing land for the scheme in Bendel State, only a srna!! percentaee of the housing units slated for that state were actually completed. The World Bank schemes had taken off in Irno and Bauchi States, where thcir impacts

are still evident. More states have since started benefiting from the World Bank cooperative effort.

However, one of the major criticisms against the housing program introduced and implemented in the Fourth National Development Plan was the indiscriminate and uncoordinated location of the housing projects. Although some of the projects were properly located within the precincts of viable urban and rural communities, several of them were arbitrarily located in isolated areas. Layouts of completed and vacant housing units are often notice2 in some bushlands along the major expressways of the nation.

Problems in the Implementation of Housing and Urban Development Programs in Nigeria

Housing and urban development programs and activities in Nigeria are plagued by some basic problems. These problems include poor financing and land acquisition difficulties. Although there are quite an appreciable number of commercials banks in Nigeria, they have usually been reluctant to grant loans to peoplc in the lower income group. Even some individuals who have adequate collateral do not easily secure as much funds as they would need to significantly increase the quantity and quality of housing. Although different types of financial institutions have been established to overcome the home financing difficulties, the problem remains largely unsolved. This is essentially because some of those institutions are also poorly funded.

The second problem that has been identified as being detrimenral to im- provement of housing, real cstate and urban development in Nigeria is land acquisi- tion difficulties. The problem was, in the recent past, so serious in the eastern and western parts of Nigeria that the Land use Decree [now an Act) had to be enacted by the Federal Government in 1978. The extent to which the Act has been successful has been quite controversial. It has often been argued that the Act has not facilitated the process of acquisition of land by the government. Development projects are still being delayed due to land disputes. Moverover, the procedure for securing certificates of occupancy is not only cumbersome but also time-consuming. The objectives of the Acr were the facilitation of land acquisition by government for development purposes and minimizing land speculation and the resultant escalation of land prices. However, the Act has not succeeded in solking land acquisition problems in Nigeria. Land prices have continued to escalate. There is, indeed, great need for review and modification of the Land Use Act so that it can achieve itsstated objectives.

The Impact of Public Housing Programs on Urban Form

Although the administration of public housing programs in Nigcria has accelerated

. the-pwth of urhan areas, the desired partern of development has not been achieved. Most of the programs have not been productive. For example, the slum clearance s c h of Central Lagos lacked the expertise it needed both in its planning and imphentation. The achievement is still partial. The costs and benefits of the projects werrmt properly appraised.

Moreover, the alternative development provided at the Surulere housing es- tabbad by 1970 posed enormous circulation problems in that area of Lagos. People had i the past often spent several hours in traffic. The development of SuruIere esralr did not adequately take cognizance of later population and employment god in the area, with regard to circulation patterns. As a means of solving the reming circulation problems, the Federal Government had by 1973 embarked on c o m a i o n of a series of overhead bridges in the problem areas of Surulere.

Anothcr important effect of poorly planned public housing programs has beathe rapid spread of layouts that are not functionally reIared ta the master plans of thc general urban areas in which they are located. A United Nations Assistance T m to Nigeria has since advised that public housing programs should be Iinked to c w h e n s i v e urban plans in which industrial, commercial, residenrial developments, urbservices, and utilities are properly integrated.

However, public housing programs have resulted in substantial increase in the d o n ' s housing stock. The Federal Government's declared interest in improve- m m of the housing quality in the nation is itself a noble idca. The problems which h a s k e n discussed in this chapter are not necessarily caused by the philosophies on whim the different programs were based. They are, in fact, caused by the manner in w h i i the programs were executed. For example, although most of the public housing sch- were aimed at aiding low income groups, the rent usually charged after the comction of the housing units was so high that lower income groups could hardly affad the payment. These public housing units were eventually occupied by middle inarc groups. The lower income groups usually had no alternative but to move to the urbfringes where they live in squatter settlements. This, in itself, is counter-produc- ti=- urban development in Nigeria.

Cmdusion and Recommendations

As i most developing countries, the majority of Nigerians need better housing. There is isdequate public education with respect to housing and urban development. The F e M Government should, in the future, make more effort to integrate housing and w b development projects with national development plans. Housing should be re+d not only as part of the social needs of peole, but also as one of the gener. atndeconornic growth in the country.

Most of the past public housing programs had favored people in the higher income groups. However, these people constitute only a small proportion of the

- nation's population. Projects aimed at providing low-cost housing for the lower in- come groups have usually been far too expensive. Cheaper housing units should be constructed with iocal building materials. This will enable the governments to put up large quantities of housing units necessary for alleviating the acute shortage of stand- ard housing in Nigeria.

More liberal policies shouId,be adopted with a view to improving the quantity and quality of housing, especially in the urban areas of Nigeria. There is need for more self-hclp housing programs in the country. These should be supervised by trained and knowledgeable local government staff.

Comprehensive master plans of all urbar, areas should be prepared wirh a view to allocating land uses. Industrial and commercial estates should be established in strict compliance with zoning laws. Industrial estates should be located away from residential areas. Housing for industrial and commercial uses should be controlled so that they can conform to specified standards.

Public residential housing projects should be located in areas where they are needed. They should never be located far away from viable socio-economic activities, which was one of the mistakes in the housing programs executed during the Fourth National Plan Period. Several public housing layouts were improperly located in iso- lated bushlands across the nation. These layouts have remained desolate. Standard criteria for location of socio-economic activities should be used as guidelines for future location of public housing projects and facilities.

There is no doubt that with more purposeful planning and targeted commit- ment, public funds expendcd for housing will yield more fruitful results. More Nigerians will live in better housing, and the urban areas will become more functional and aesthetic.

%hknrc . Charlc!.. 'Ruml lkwlopnicnl and I'lanninp in a I)cprc*scd Ikonnnry.' I'npcr prcscnlcd a1 llrc 14111 ( '0SlYWI:SCl~ O l ~ l l l l : ,k'lGl:KlAS I S S I T I ~ ~ l l ~ U1:l'OWS 1'l.ASSI~IZS. Ilmdan, 1083.

Adcfnlnlu. l ) .n . . 7'u.n Caws Stodics of thc Vcrtiral T)i\~rilwtic~n of 1)usl l h r ing Occurcnrr (>I I ln rn~n t~an I l a x w c r Srgcria."ll:CII. XoTli ZI. Inpr>s. IIH&

Adcplmln. 0.. 11111 l \ ~ l ' A ( : l ' 0 l ~ \ ~ l ~ i l < ~ l ' l l O S O S l l l l i IZUItAI. IX'OS0\4Y 0I:OSI 11's l)l\ ' lSlOS 01 ' U'lLVllXX SlCilil<lA, t'npuhli\hcd Ph.1). I)ir\crinlion. Vni \~nlf ) .o l ' I ' c~n\ . 1V72.

Atlrrrji. I:.. 'lhc Managcrncnl nl Urban and Kc~innnl Planning.' l l l l i 0UAR'l'lilU.Y JOUUSAI. 01: '

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