1.1 BACKGROUND OF THE STUDY
Shelter is essential to man as food and clothing. It by ranks occupy the second position of the hierarchy of mans needs (maslow, 1954).
Housing does not necessarily mean mere shelter, i.e. a place t cover ones head from the harsh climatic condition; rather, it includes the infrastructures and services which make a dwelling unit habitable. The basic dwelling units which the individuals strive to put up require a substantial part of their resources which invariably might have gradually acquired and saved up over a long period of time. Housing for modern days is such that calls for the mental and physical and social health of the habitants. Also such that will call for the emotional security and social status of the individual. Better and standard houses for man will not only gratify the heart of the individual, but will also help to improve productivity. There is nothing which earns one prestige than a decent house with a serene environment. Houses today in this country are being demanded for different purposes.
Hence housing in the urban centre of Nigerian cities is being demanded for multipurpose uses. They are either used for residential, administrative (used as offices), and for commercial and industrial purposes. They can also be used for ancillary purposes like for schools, churches or charity homes. In all of the above mentioned purposes, housing serves the main function of securing man and his properties. But of all the above mentioned purposes for which houses are put to, residential purpose remains the most sought after.
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The problem of housing in Nigerian cities is enormous and complex, manifesting apparently. In most of the urban centres, the problem is not only that of quality, but also the poor quality of the available housing units and the environment. The influx of people into the cities has called for an increase in the demand for residential housing over the supply. The resulting effect of this is the increased rate of overcrowding in houses and increasing pressure on the infrastructures and facilities and the rapidly deterioration of the environment. The shortage of houses in this regard has attracted the concern of the various governments in the provision of this commodity to its citizenry.
1.1.1 PUBLIC SECTOR INTERVENTION IN HOUSING DEVELOPMENT Housing is undoubtedly one of the most important needs of man, the lack of which will threaten his comfort and existence. Housing provision is hence, very necessary to the masses. Housing in this context includes the structures which man lives, the infrastructures and services provide therein and the physical environment in which the structure is situated. In less developed counties like Nigeria, quality housing is out of the reach of the increasing population. This is evident in the percentage f the populace living in substandard houses, in slum and squatters settlement.
Housing development requires a substantial amount of an individual’s savings; and only very few individuals have enough to save after catering for their daily needs. And because of the individual’s inability to produce or provide this much needed commodity for them, the government have opted to step in the scene to ameliorate this ugly situation and to take up the challenge of providing adequate housing for its populace on account of the huge expenditure involved.
Since quality housing improves the health and welfare of the people, its provision is therefore seen as a social service by the government and this will lead to improved productivity and wealth of the nation Public sector intervention in housing provision in Nigeria is designed to meet the needs of the society and has been largely through direct housing construction, began with the construction of staff quarters and then to the construction of low cost houses for the low income earners of the economy. However, the target set (quantity) each time has never been met, houses built have always been too costly for the target group(low income earners) and in most circumstances, abandonment has always been the end result. This project research is therefore aimed at taking an in-depth and incisive look at the public sector intervention in housing development and why public housing projects always end up in abandonment.
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1.2 STATEMENT OF PROBLEM
The problem of abandoned housing projects in this country has become a reoccurring action in public sector housing development in our cities. It has necessitated the decay of infrastructures in our cities especially port Harcourt which is often over spilled with population resulting from the presence of oil companies, railway and sea port terminals and other administrative centres. This, then calls for migration of people into the city to seek for white collar jobs and greener pastures. This invariably means intense pressure on the number of available houses, thus creating a shortage in the supply and rising demand for the commodities.
The most agonizing aspect of this research project is the challenge which the government has accepted by stepping into the scene to provide houses for its citizens at affordable prices and halfway into the project, it is abandoned. This has created a problem which sought an in-depth study into what is responsible for the abandonments. Talking of the position of the government in this respect, one needs not for any reasons hesitate for a moment that projects undertakings by the government will be abandoned because of her position to raise funds necessary for the completion of a projects embarked upon easily. Also the manpower and technical knowhow is exclusively at the reach and disposal of the government.
Decent housing is synonymous to good health and also the lack of housing will have many side effects on man. This is evident I in port Harcourt which by her position in the economy of the nation, play host to many oil companies who are in dare need of housing for accommodation and who are prepared to pay the rack rental value of the property. Thus, Port Harcourt has been the only city in rivers state bearing the housing burden of the state, harbouring about 98% of the socio-economic activities in the state. The result of this is overcrowding of the city in which slum and squatters settlement, environmental pollution, traffic congestion, ill health and other anti-social behaviours like crime, drug abuse, and juvenile delinquencies in children has taken the order of the day. 1.3 AIMS AND OBJECTIVES
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1.3.1 AIM
To study the abandoned project syndrome of public housing development and its impact on housing supply in Port Harcourt
1.3.2 OBJECTIVES
To identify key factors affecting housing need in port Harcourt To identify or determine the causes of abandoned public housing development To examine the areas benefiting from public housing development To make necessary recommendations to curb the menace of abandoned housing projects 1.4 JUSTIFICATIONS OF THE STUDY
This research work is important to the various governments, ministries and other parastatals responsible for housing development in Nigeria. In view of the dare need for residential and the shortage in the supply of such in the city, and by the virtue of the nature of the city coupled with the intervention of the citizens and the approach which have ended up in abandonment, this study has therefore been justified in order to study abandoned projects syndrome of public housing development and its impact on housing supply. Also to search for its causes, judging from the enormous benefits of housing to man and the national economy and also with the view to seeking for measures to be taken to address the problems of abandonment of public housing development and its associated effects on the economy 1.5 RESEARCH QUESTIONS
This research work will attempt to answer the following questions: i.Why should the government step in for the provision of housing to the people? ii.What is responsible for the abandonment of national housing Policy">government housing projects? iii.What are the effects and impact of this on the people?
iv.What should the government do to get rid of abandoned housing projects?
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1.6 SCOPE OF THE STUDY
Abandonment of public housing development in Port Harcourt has become a canker worm that has eaten deep into our national economy. This research work is intended to study all abandoned housing projects in rivers state and with particular references to the FEDERAL MINISTRY OF WORK AND HOUSING, HOUSING SCHEME AT ALODE-ELEME. It is also worth mentioning that the research attempts also to look at the efforts of various governments in providing accommodation to the citizens through direct housing construction which would end up in abandonment. 1.7 LIMITATIONS OF THE STUDY
While undertaking a study of this nature, one is prone to encounter some sets of limitations in as much as it entails public participation and personal contribution to the study. This work is intended to cover all abandoned public housing projects in port Harcourt, but for time and finance, the work is limited to just a few of the abandoned projects in port Harcourt. Other constraints include the reluctance of certain officers in making available documents and plans, even information required. It has been a well known attitude of the average officers towards releasing vital information for studies of this nature was very evident
CHAPTER TWO
2.0 LITERATURE REVIEW
2.1 INTRODUCTION
L.S. Burns and L. Grebler in their book “the housing of nations(1977)” stated that “no aspect of public policy causes more frustration than housing. Almost everywhere, the gap between intention and achievement is wide”. They ranked housing high among the problems classified as “wicked” or slippery of definitions and nearly impossible of resolutions 2.2 MEANING OF HOUSING
The Longman dictionary of contemporary English defined housing as an act or action of providing a place to live. However housing in all its ramifications mean more than just a place to live. The word housing’’ is used as both the process and product of creating shelter for human being. Jor Genser(1982).
(Oyu, 1980) defined housing as the totality of human living environment. Montgomery and Mandelker(1979) have also pointed out the multi dimensional nature of housing since according to them, the concept of housing connotes not just four walls and a roof, but also other aspects too. It includes a specific location in relation to works and services, neighbours and neighbourhood, property rights and privacy provision, income and investment opportunities. It is more than just mere shelter since it embraces all social services and utilities that go to make a community or neighbourhood a liveable environment, it is now a right.
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Ebie(2009).
Adegbite(1987), describes housing as the entirety of the living conditions including physical shelter, the provision of basic infrastructures and services, i.e. road network, electricity. Pipe-borne water and communication systems at costs affordable by the beneficiaries. Housing could also be seen as that which calls for the mental and physical health of the inhabitant. In 1970, the UN committee reiterated that housing forms part of the necessary frame work that shapes up and supports the life of an individual, the family and other primary groups because it organizes and distributes amenities of fundamental value to the individual and the group. (Burns and Grebbler, 1977).
Housing provides shelter, protection and setting for many basic biological and social processes necessary for sustenance of life(Morris and Winter, 1978) It has been sustained by research that housing effects both mental and physical health and that living in a socially undesirably housing exerts adverse social and psychological effects on mankind (Mitchell, 1970) 2.3.0 BACKGROUND OF HOUSING DEVELOPMENT IN NIGERIA
2.3.1 THE COLONIAL PERIOD
During the early colonial period, the housing activities and policies of the government mainly on the provision of quarters for their expatriate staff and for selected indigenous police etc. This period saw the establishment of government residential areas (GRAs) as well as a few African quarters. No effort was made by the government to build houses for either rent or sale and little was done to order the growth of settlements outside the government residential area.
Some efforts at housing development that were made arose from critical situations in which the hands of the colonial government were forced to act, these crisis instances were: a) As a result of the bubonic plague this ravaged Lagos in the early 1920. The Lagos executive development board (LEDB) was created in 1928, and charged with the responsibility for the effective planning and development of the capital city of Lagos. After 1954, the LEDB attempted to solve the problems of public housing on the metropolis by undertaking the following schemes: i.Workers housing estate and re-housing estate, Surulere.
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ii.Akinsemoyin and Eric Moore housing estate, Surulere.
iii.Workers housing estate phase II, Surulere.
iv.Freehold housing schemes and sites and services estate at Surulere, Apapa, South-West and South-East Ikoyi, Ilupeju and Isolo.
b) The railway strike of 1945 which forced government to build workers estate in Surulere at the outskirts of the then, capital city of Lagos (Gbaje, Randle Avenue and Akinele extension)
c)In preparation for the independence, the slum clearance of central Lagos resulted in the building of additional houses in Surulere adjoining the workers’ estate. It was the first real attempt at housing and urban renewal by the government.
In 1956, the Nigerian building society (NBS) was created. Its mortgage operations achieved limited success because of poor funding and response to the saving scheme of the society. The encouragement of African civil servants to home ownership was through the African staff housing scheme introduced in 1956. Prior to independence, regional governments created housing corporations to provide housing for its people. It is to the credit of these housing corporations that they formed the basis of modern housing estates in Nigeria, through the construction of houses. Also by operating loans and saving schemes, the housing corporations were therefore the forerunners of the present day primary mortgage institutions (PMIs).
Their efforts at home ownership for the low income groups met with qualified success.
2.3.2 THE POST INDEPENDENCE PERIOD (1960-1979)
In 1964, the association of Housing Corporation of Nigeria was formed. The pioneer members were Lagos Executive Development Board, Western Nigeria Housing corporations, Northern Nigeria Development Corporation and Eastern Nigeria Housing Corporation. The influx of people into Lagos at independence and the sudden expansion of Port Harcourt as a result of the emergence of the oil industry, revealed a looming urban housing shortage. Then the chorus for the need for housing to accommodate workers began to grow louder at meetings. This awoke the government and led to the establishment of federal agencies in housing and urban development that exist up till today.
Around that time, the LEDB included in its programme, a financial provision which was to come from the federal government for the building of a low income housing estate which today stands along Eric Moore road in Surulere, Lagos. During the period immediately after independence, emphasis was placed on the five yearly development plans as the vehicle for economic development and growth. The housing sector however, suffered complete neglect in the first two plans with the outbreak of the civil war in 1967.
The housing situation fell under the radar, was neglected and suffered deterioration. In 1971, the National Council on housing consisting of all state commissioners responsible for housing was established. This marked the first significant and direct attempt by the Federal Government to intervene positively in the area of housing. This was followed in 1972 by the establishment of the National Housing Programs. 2.3.3 THE SECOND NATIONAL DEVELOPMENT PLAN PERIOD
In the second National Development Period, the Federal Government through an enabling decree, intended to construct 59,000 dwelling units with 15,000 in Lagos and 4,000 units in each state of the Federation. This Federal Housing Authority was created in 1973 to coordinate a nationwide program. Also in May 1972, the fountains of the African staff housing scheme was taken over by the newly established staff housing board for the purpose of granting loans to civil servants to enable them build or purchase their own houses,. The loan was subject to a maximum of #40,000- #80,000. 2.3.4 THE THIRD NATIONAL DEVELOPMENT PLAN PERIOD (1975-1980)
The third national development plan contained the most significant statement of the government in the housing sector. The Federal Government decided to participate directly and actively in the provision of housing, rather than leaving it principally to the private sector. A total of #2.6 billion was earmarked for the implementation of the various projects. During this period, a total of 202,000 dwelling units were programmed for construction, comprising of 50,000 units in Lagos and 8,000 units in each of the other nineteen states. It is pertinent to note that by the end of the plan period, less than 15% of the houses had been completed. In 1975, a new Federal Ministry of Housing and Urban Development and Environment was created and charged with the responsibility of initiating and co-ordinating policies in housing related areas.
Within this period, the following panels and committees were constituted specifically to deal with some of the problems of housing and housing delivery. i.The committee on standardization of house types and policies was set up in 1975 and this marked the first attempt by government to recognize the housing problems of the low income group, who earned less than #3000 per annum. The recommendations of the committee resulted in the acceptance of the low income housing concepts and strategies of the World Bank for Reconstruction and Development (IBRD).
ii.The Rent Panel (1976) was to review the structure and level of rent in the country. Their recommendations resulted in the establishment of state rent tribunal which have proven ineffective in controlling rent. iii.The Land Use Panel (1977) examined the various tenure and land ownership systems in the country and their recommendations led to the promulgation of the Land Use Decree No.6 of 1978, which was a major step in land reform aimed at making land readily available for development.
In 1977, the Nigerian Building Society was converted to the Federal Mortgage Bank of Nigeria with a capital base of #20million which was later increased to #150million in 1979. The impact of the Federal Mortgage Bank of Nigeria during this period was not very significant and most of its loans went principally to selected members of the middle income and high income groups.
2.4 THE CIVILIAN ADMINISTRATION (1979-1983)
The increasing deficit of urban housing as well as its continuous deterioration in the rural areas dictated the high priority rating given to housing by the defunct civilian administration. An elaborate national housing programme was embarked upon in 1980 based on the concept of affordability and citizen participation. The target group was the low income earners whose annual income did not exceed #5,000 for the one bedroom core houses and also the middle income earners with an annual income not exceeding #8,000 for the three bedroom house.
A total of 40,000 units were to be constructed annually nationwide with 2,000 units to be located in each state and the Federal Capital Territory (FCT).
Out of the states’ allocation, 80% was earmarked for the low income earners. However, by June 1983, only 32,000 units had been completed while the overall achievement was only 20%. It is pertinent to note that mid-way through the implementation, the second phase of the programme was commenced comprising 20,000units of two bedroom core houses also for the low income group. This phase of the programme failed to take off in most states.
2.4.1 THE FOURTH NATIONAL DEVELOPMENT PLAN PERIOD (1980-1985) Although about #1.9billion was budgeted for housing by the Federal Government in the fourth national development plan, an estimated sum of #600million was expended on the implementation of the national low cost housing programme. In view of this level of investment, the impact of the programme on the overall housing market was negligible. The following factors were responsible for the failure of the direct construction programme: i.The adoption of a single design for the entire country irrespective of the varied cultural and climatic differences. ii.The distribution and choice of sites bore little or no relationship to the effective demand for housing.
The sites for the programme numbered over four hundred and this was clearly beyond the executive capacity in our construction industry. iii.Most sates politicised the whole affair and therefore offered land to the Federal Government in very remote areas with poor terrain. This singular fact delayed implementation and increased the cost of infrastructural development considerably iv.The appointment of contractors was based principally on party patronage rather than on capability and experience. The issue of nominated suppliers did not have the desired effect of making building materials readily available and cheap to contractors. The whole concept was be devilled with fraud and non performance and; v.Some chairmen of states land use allocation committee were politicians who allocated some of the houses to party members who neither had need for them nor could be classified as low income earners.
In addition to the Federal Government Direct Construction Programme, the Federal Housing Authority (FHA) was mandated to construct houses on commercial basis for the medium income and high income earners groups. About 350 units were to be built in each state and the Federal Capital Territory. This also met with limited success. In 1979, the World Bank assisted Nigerian States Urban Development Programme (NSUDP) was negotiated. The major objective of the scheme was to lay the foundation for a national low cost housing programme and to set in motion, broader urban renewal schemes. The scheme took off impressively in Bauchi State at an estimated cost of #24.6milliom, while the contract for the Imo state project was signed at a cost of #63.8million. However, it was found that other states had priorities different from those of the scheme and so the programme was transformed into the Infrastructure Development Fund (IDF) programme.
2.5 THE NATIONAL HOUSING POLICY
The National Housing Policy was launched in 1991 to address the acute housing problem in Nigeria. From available statistics, the magnitude of the housing problem in the urban areas of the country is such that 5million new housing units will be required to meet the existing and future needs up to the year 2000 A.D. The housing situation in the rural areas where about 65% of the population resides is even more unsatisfactory. It is also estimated that a total of about 32million units of new housing will be required to meet the housing need in the rural areas of Nigeria by the year 2000A.D.
However it is realised that the housing problem in the rural areas is mainly that of qualitative improvements in terms of sanitation and infrastructures for existing housing stock in these areas. The amount of the essential services may be approximated to the equivalent cost of producing about 3million units. This brings about the total housing need of the country in urban and rural areas to about 8million housing units. In setting out the goals and objectives of the national housing policy, housing must be seen in the context of overall national development in relation to:
i.Social development
ii.Generation of employment opportunities
iii.Geographical distribution of population
iv.Location of industrial, commercial and agricultural activities.
2.5 THE GOALS AND OBJECTIVES
The goals should be concise, achievable and acceptable to the generality of the populace. Its goals must include a time frame or target date in relation to when adequate evaluation of performance or lack could be made considering the FCT that Nigeria cannot isolate herself from the international community, the goals of the national housing policy must hover around the United Nations Resolution, which calls for shelter for it by the year 2000
2.5.2 GOALS
The goals of this policy formulated in 1991, was to ensure accessibility to adequate and affordable housing for all Nigerians by the year 2000.
2.5.3 OBJECTIVES
Specifically, the objectives are to:
a)Develop and sustain the political will of government for the provision of housing b)Develop an efficient land administration system to make land ownership available, accessible, secure and easily transferable at affordable price; c)Provide adequate and affordable housing finance to all Nigerians by developing efficient primary and secondary mortgage markets; d)Establish an efficient administrative, legal and regulatory framework to enforce the control and monitoring of housing delivery; e)Reduce the cost of production of houses by developing and promoting appropriate designs, use of materials and production technologies in the housing sector;
f)Add 10million new homes to the national housing sector stock g)Encourage and promote best environmentally friendly practices in housing delivery; h)Improve the quantity and quality of rural housing, co-operative housing and housing for special groups; i)Improve the quality of rural infrastructure and its environment; j)Establish the national housing and urban development regulatory commission to provide overall coordination and advancement of the sector; k)Ensure that all persons who offer professional services in the built environment are appropriately registered with the relevant professional regulatory body in Nigeria, and; l)Establish an institutional framework for sustainable maintenance and facilities management process
2.5.4 STRATEGIES
The strategies for attaining the above mentioned objectives are to: i.Confer secure registerable, duly insured and marketable title on land through the following:
Establishing an efficient and transparent land title transfer system;
Simplifying existing land procedures for effective title and consent delivery;
Strengthening existing capacity for an efficient national land information system and its decentralization to states and local government, and;
Establishing a title insurance system.
ii.Provide site and services to open up new areas
iii.Provide funding for a detailed empirical research study for the establishment of an efficient primary market. iv.Enforce the National
Housing Fund (NHF) contributions for both the public and private sectors. v.Recapitalize the federal mortgage bank of Nigeria to an appropriate level as prescribed by the central bank of Nigeria from time to time so as to provide a linkage between the mortgage market and the capital market. vi.Recapitalize the primary mortgage institutions (PMI) to an appropriate level as prescribed by the Central Bank of Nigeria from time to time. vii.Encourage Ministries, Departments and Agencies (MDAs) to place funds deposits with the PMIs. viii.Establish an effective administrative, legal and regulatory framework to enforce the control and monitoring of housing delivery by having a national housing and urban development commission that would regulate and control the housing and urban development sectors.
ix.Design appropriate home ownership for the no-income, low and middle income groups under social housing as well as co operative housing schemes by implementing pilot schemes and control projects. x.Design and implement measures to encourage investment in affordable rental housing. xi.Enact laws and make regulations that ensure that all buildings insured in Nigeria are produced or certified by Nigerian professionals in the built environment. xii.Enact and enforce all the provisions of the National Building Code (NBC).
xiii.Enforce the use of only certified local building materials for housing construction. xiv.Enact and enforce the provisions of the National Building Code (NBC).
xv.Review and update as at when necessary, the provisions of the following acts to make them more effective and enforceable, namely, the:
Mortgage institutions Act;
Federal mortgage bank Nigeria Act
Trustee investment Act;
Insurance Act;
National housing fund Act
Employees housing scheme (special provisions) Act
Federal government staff housing board Act.
Other strategies shall be to:
i.Promote the growth and sustainability of the Real Estate Developers Association of Nigeria (REDAN) and other similar institutions through granting of incentives such as tax holidays, concessionary interest rate on construction of mass housing or separate prudential guideline on lending to the real estate sector; ii.Promote the growth and sustainability of the Building Material Producers Association of Nigeria (BUMPAN) and other similar institutions through grant of fiscal incentives to small and medium scale local manufacturers of building materials in order to enhance local production as part of medium and long-term plan for minimising dependence on imported building materials; iii.Promote appropriate and cost effective design of houses for different parts of the country to satisfy peculiar local consideration and preferences;
iv.Promote and encourage partnership between research institutions and private organizations, including encouraging private sector organisations and other entities to finance research work related to innovations in design, local materials and their applications, as part of their corporate social responsibility; v.Build an average of one million new homes every year to boost the national housing stock; vi.Ensure that at least 40 per cent of the new homes are built in the rural areas and the remaining in the urban areas; vii.Provide incentives (take-off grants, credit support, supply of land, subsidizing consumption and supply) and the necessary legal and regulatory environment to attract Public-Private Partnership (PPP) and Public – Public Partnership (Pb-Pb-P) in mass housing development; 7
viii.Provide new homes through a sustainable housing delivery framework involving direct development, public-private partnership, public-public partnership, social housing, cooperative housing, rental housing, regeneration, new town development and sites and services; ix.Convert available government unused lands for the construction of new homes; x.Pay all outstanding compensations on land acquisitions and promptly pay adequate compensation for all new acquisitions; xi.Complete all on-going and abandoned government housing projects, such as the National Housing Programme and provide the complementary infrastructure.
