FINAL REPORT
Documentation of lessons learnt in the
Sustainable Cities Programme in Nigeria
NATIONAL REPORT
Centre for Human Settlements and Urban Development
(CHSUD),
Federal University of Technology, Minna
Nigeria
June 2005
TABLE OF CONTENTS
1.0
INTRODUCTION ..................................................................................................................................... 3
1.1
Background ........................................................................................................................................ 3
1.2
Sustainable Cities Programme in Nigeria.................................................................................. 4
1.3
Institutional Setting .......................................................................................................................... 6
1.4
Aims and objectives of the Review ............................................................................................... 6
1.5
Scope of the Studies ......................................................................................................................... 7
1.6
Structure of the Report ................................................................................................................... 8
2.0
METHODOLOGY .................................................................................................................................... 9
2.0
METHODOLOGY .................................................................................................................................... 9
2.1
Methodology for the Study ............................................................................................................. 9
2.2
Limitations and Constraints ....................................................................................................... 10
3.0
FINDINGS ............................................................................................................................................... 11
3.1
Improving Environmental Information and Expertise ........................................................ 11
3.1.1
Data Collection and Profiling ............................................................................................. 11
3.1.2
City Profiling .......................................................................................................................... 12
3.1.3.
Overview of Stakeholders Identification and Involvement........................................ 17
3.1.4.
Establishing EMIS and Training of Operators ........................................................ 20
3.2.
Improving Environmental Strategies and Decision Making ......................................... 24
3.2.1.
Working Groups and their Characteristics ................................................................... 24
Table 2: SIP Working Groups Profiles ........................................................................................................ 27
3.2.2. Identification and Mobilisation of Working Group Members ........................................ 28
3.2.3.
Identification of Priority Environmental Issues .......................................................... 29
3.2.4.
Clarifying Selected Priority Issues .................................................................................... 30
3.3
Agreeing on Strategy and Action Plans for Implementation ..................................... 30
3.3.1.
Clarifying Strategy Options ........................................................................................... 31
3.3.2.
Formulation of Action Plans .......................................................................................... 32
3.3.3.
Consideration of available Resources and Implementation Options ............... 35
3.4.
Follow-up and Consolidation ................................................................................................. 38
3.4.1.
Institutionalizing Environmental Planning and Management ........................... 39
3.4.2.
Institutionalizing Inter-Agency Coordination .......................................................... 43
3.4.3.
Local Government Training and Capacity Development ...................................... 44
.4.0
RECOMMENDATIONS ................................................................................................................... 45
4.1
Information and Expertise ........................................................................................................... 45
4.3
Action Planning ............................................................................................................................... 46
4.4
Working Groups .............................................................................................................................. 46
4.5
Demonstration Project ................................................................................................................... 46
4.6
Follow-up and Consolidation ...................................................................................................... 47
4.7
General Recommendations .......................................................................................................... 47
5.
GENERAL CONCLUSION .................................................................................................................. 50
2
1.0 INTRODUCTION
1.1 Background
Nigeria has a long history of urbanization which predates the
colonial period. Cities like Kano, Zaria, Ibadan, Abeokuta, Ile-Ife,
Ijebu-Ode and Benin-City have their origins in the pre-industrial
and pre-colonial period. During colonial and post colonial period
Nigeria witnessed rapid urbanization and the growth of a dense
network of urban centres, which served as regional headquarters,
state capitals, administrative and commercial centres. The
percentage of the total population living in urban centres with
more than 20,000 inhabitants increased from less than 15 percent
in 1950 to 23.4 percent in 1975 and 43.3 percent in year 2000.
By the year 2010, more than half of Nigeria’s population will be
living in urban centres.1 It is also estimated that by the year 2000
some 17 cities in Nigeria would have had a population of one
million people each. Already, Lagos has a population of 15 million
people in 2004.
The consequences of rapid urbanization in Nigeria are manifested
in the cities through urban environmental problems accompanied
by several socio-economic and employment, underemployment
and increasing urban poverty. Others are housing shortages,
inadequate infrastructure and formation of slums. For example,
investment in basic urban infrastructure and services has failed to
keep pace with population growth. Consequently, provision of
services such as piped water supply, sanitation, solid waste
management, electricity etc. are grossly inadequate. In the year
2000, only about 55 per cent of the urban population has access
to clean portable water and most cities are grappling with the
problems of inadequate sanitation and solid waste collection and
disposal.
In order to adequately address these problems, the Federal
Government approached some multilateral agencies and
international organizations like the World Bank, African
Development Bank and the United Nations Human Settlements
Programme (UN-HABITAT) for technical and financial assistance.
Various programmes and projects have been designed and
implemented by the donor organizations in collaboration with the
1
Mabogunje A. L. 2001 Nigeria and the Global Urban Governance Campaign
3
Federal Ministry responsible for Housing and Urban Development.
These included the Nigerian States Urban Development
Programme (NSUDP) in 1979, Infrastructure Development Fund
Project in 1987 and Community Based Urban Upgrading Project in
2002, with the Assistance of the World Bank. The Sustainable
Cities Programme first implemented in Ibadan, through the
Sustainable Ibadan Project, in 1993 by the UN-HABITAT and
replicated in Kano and Enugu in 1996. The SCP concept was
subsequently used in the preparation of the Karu Development
Strategy in 2001, under the joint supervision of the World Bank
and UN-HABITAT.
1.2 Sustainable Cities Programme in Nigeria
In response to the widespread problems experienced in rapid
expanding cities globally, UN-HABITAT launched and implemented
a Sustainable Cities Programme (SCP) in the early 90's. The city of
Ibadan, Nigeria, was among the first 18 global demonstration cities
where the concepts and principles of Environmental Planning and
Management (EPM) were demonstrated. The EPM recognises the
importance of sustainable human settlements and the vital
contributions that productive and sustainable cities can make to
social and economic advancement. It also recognises the fact that
Environmental
degradation
obstructs
the
development
contributions of cities and environmental degradation is not
inevitable. SCP/EPM therefore employs cross-sectoral coordination,
decentralisation of decision-making and broad-based participatory
approaches to development management in cities.
All the cities participating in the global Sustainable Cities
Programme share a common approach, which reflects the
characteristics of the Sustainable Cities Programme. These are:
 Central focus on development-environment interaction;
 Broad-based participation by public, private and community
group sector;
 Concern for inter-sectoral and inter-organizational aspects;
 Reliance on bottom-up and demand-led responses;
 Focus on process: problem-solving and getting things done;
 Emphasis on local capacity building
On learning of the SIP experience, the cities of Kano and Enugu
expressed interest and commitment to become SCP cities. Their
4
entry into the programme was facilitated by the Urban Development
Bank of Nigeria (UDBN) and the Sustainable Cities Co-ordination
Unit of the Federal Ministry of Works and Housing (FMW&H). UNHABITAT provided financial and technical assistance for the
preparation of project documents for SIP Extension and the new
initiatives in Kano and Enugu. The UNDP supported this
programme with funding allocation under Programme Support
Objective.
Another project, Karu Development Strategy (KDS), was
implemented in Karu, Nasarawa State between 2001 and 2003
with the assistance of the Cities Alliance Initiative and the
technical support of the World Bank and the UN-HABITAT. The
preparation of the KDS process adopted the Sustainable Cities
Project (SCP) Environmental Planning and Management (EPM)
approach as the tool with which to establish priority issues,
identify, sensitize and mobilize all stakeholders as well as improve
their capacity to address the issues and develop strategies for
managing rapid urban growth.
The SCP in Nigeria is aimed at supporting the cities as well as
developing a program for National Institutions' Capacity Building
Programme for Enhanced Urban Environmental Management.
The three SCP cities in Nigeria are at different phases of
demonstration of EPM applications:
 Implementation of strategies and action plans through
demonstration projects in Ibadan;
 Reporting on city consultation and establishing working
groups in Kano and Enugu and
 Reporting of city consultation and establishment of working
groups in the Karu Development Strategy (KDS) Project.
5
Figure 1 Map of Nigeria showing SCP Cities
1.3 Institutional Setting
UN-HABITAT has been the executing agency for the implementation
of the Sustainable Ibadan Programme (SIP) and has provided
technical assistance for the preparation of the replication phase of
the Sustainable Cities Programme in Nigeria and the preparation of
the project documents and detailing of the MOU for each of the
outputs. UNDP Nigeria has been the collaborating agency working
with UN-HABITAT to support the Federal Government of Nigeria
implement SCP in Nigeria.
At the National level, the SCP programme is coordinated by the
Sustainable Cities Programme Coordinating Unit in the Federal
Ministry of Housing and Urban development. At the city level the
SCP projects are owned by the local governments and managed
through the Technical Support Units but are coordinated by the
respective state governments.
1.4 Aims and objectives of the Review
The United Nations Human Settlements Programme (UNHABITAT), in collaboration with the Institute for Housing and
Urban Development Studies (IHS), has embarked on the
evaluation, analysis and documentation of lessons of experience
learned in the field of sustainable development in eight SCP
Countries that were operational over the period 1992-2002. The
Assessment study is aimed at:
6
Providing important out-puts to be used to improve the EPM
implementation and policy application processes, capacitybuilding efforts, tool development and adaptation, and
materials for training.
Developing an institutional framework and networks for
sustained EPM support and institutionalising SCP's
normative functions.
Providing an information base for IHS to conduct a detailed
analysis of the applications of EPM instruments in Nigeria to
determine the most appropriate capacity building agenda,
among others.
It is important to emphasise that the evaluation would examine
how SCP Tool Books and Implementation Instruments were used
in the SCP cities in Nigeria. The SCP Tool books have been
designed for general application in all cities, with suitable
modification, to any specific local context. Local application in
this sense means that the details of the tool and its use can be
modified to suit important variations among city situations. The
basic tool concepts, however, remain unchanged because they are
valid for the full range of different city circumstances2.
The general objectives of the study are:
(i)
Establishing how SCP cities made optimum use of the
available implementation instruments and tools in
applying the SCP/EPM process,
(ii)
Analysing how the capacity of local stakeholders were
strengthened as well as the impact of EPM process on the
urban environment and management,
(iii)
Documentation of the lessons of experience learned from
the SCP projects in Nigeria, and
(iv)
Providing general and specific recommendations on best
practices
1.5 Scope of the Studies
2
UNHABITAT - Tools to support participatory Urban Decision Making
7
The scope of the assignment covers the following:
(i)
Lead
and
co-ordinate
the
self-assessment
and
documentation of the application of EPM instruments in
Nigeria in the cities of Ibadan, Enugu and Kano as well as
the co-ordination unit in the Federal Ministry of Housing
and Urban Development,
(ii)
Support the Institute for Housing Studies (IHS) in
analysing the information on documentation of the
application of EPM instruments in Nigeria and
(iii)
Preparing the final report thereabout, and liaise with UNHabitat SCP Global Team
1.6 Structure of the Report
The Report is divided into three chapters. The first chapter covers
introduction, aims and objectives of the study as well as the
structure of the report. Chapter two covers the methodology used.
The third chapter contains the findings of the self assessment
exercise. It covers areas of improving environmental information
and expertise, improving environmental strategy and decision
making, agreeing on action plan for implementation and follow-up
and consolidation.
Chapter four contains conclusions of the self assessment exercise
on the application of the EPM Implementation Instruments as well
as the SCP handbooks. It briefly highlights the tools that were
useful, the gaps identified recommendations on how the tools
could be improved and the lessons learnt.
Annexes – the city-specific reports are attached as annexes to the
main report as follows:
 Annex I Ibadan
 Annex II Enugu
 Annex III Kano
 Annex IV Karu
 Annex V Report on the SCP Co-ordinating Unit in the
Federal Ministry of Housing and Urban
Development
8
2.0
2.1
METHODOLOGY
Methodology for the Study
The Self Assessment Exercise on Use of EPM Instruments in the
Sustainable Cities Programme in Nigeria was first introduced to
all the relevant organisations and officials involved in the
management of the SCP project, by the Task Officer from UNHABITAT on a Mission to Nigeria. The idea was discussed with the
SCP co-ordination unit in the Federal Ministry of Housing and
Urban Development, the city officials and consultants through a
joint meeting held in Abuja in September 2004. Another meeting,
organised by the Centre of Human Settlements and Urban
Development (CHSUD), was held in Minna in November 2004 with
City Managers and the City Experts and the UN-HABITAT
Support Office (HAPSO) in Nigeria, to discuss the approach and
methodology for the study.
The centre, CHSUD, prepared/customised the self-assessment
instruments to be used by the cities. A City expert was appointed
for each of the four cities who were to work with the project
managers to conduct the self assessment excise. Provisions were
made for supervisors to ensure a hitch free exercise.
The
principal investigative device was a field survey carried out in the
in the four cities – Ibadan, Enugu, Kano and Karu. This basically
comprises of analysis of project documents, interviews,
participatory assessments and focussed group discussions as
elaborated below:
(i)
Literature and Desk Review - All relevant documentation on
the SCP project in the cities were collected, collated, studied
and reviewed. These include the SCP project proposals, city
consultation reports, environmental profile, documentation
reports on demonstration projects, replication and up-scaling
as well as other relevant reports on training initiatives and
capacity building.
(ii)
Interviews - Interviews were conducted with Project Support
Team (PST)/anchoring institute, Working Groups, Local
Training Institutes, City Council members and staff,
beneficiary groups and relevant development management
organisations to obtain relevant information to answer the
9
research questions. At least one representative of each
stakeholder working group was interviewed in each of the
cities. In addition, interviews were conducted for officials of
the Federal Ministry of Housing and Urban Development for
the National Coordinating unit.
(iii)
2.2
Participatory Assessments were conducted with the Working
Groups, with the guidance of the City Expert, for the selfassessment.
Limitations and Constraints
The study was carried out between October and December 2004.
This period coincided with the Ramadan or Muslim fasting period.
This made it difficult to organize an all stakeholders meeting in
Kano.
10
3.0
FINDINGS
This chapter focuses on analysing the various issues connected
with the
operationalisation of the
SCP/EPM process
implementation instruments and tools in Nigeria. The adoption,
adaptation and manipulation of the instruments to achieve the
set objectives of the SCP are illustrated with practical experiences
of the Sustainable Ibadan Project (SIP), Sustainable Kano Project
(SKP), Sustainable Enugu Project (SEP) and Karu Development
Strategies (KDS) process.
3.1
3.1.1
Improving Environmental Information and Expertise
Data Collection and Profiling
Considering the preparatory activities and efforts made in
gathering the necessary information required as input into the
preparation of the Project Document for the implementation of the
Sustainable Cities Programme (SCP) in Nigeria, initially titled
Managing the Sustainable Growth and Development of Ibadan, it
was established that the improvement of environmental
information and expertise actually started with the preparation of
the Project Document. More so, it was observed that some factfinding missions were made to Nigeria by UN-HABITAT officials
and Consultants before the Project Document was prepared.
Though the Project Document was prepared by UN-HABITAT and
jointly signed by the representatives of both the Federal Republic
of Nigeria and the UN-HABITAT to serve primarily as an
instrument of mutual agreement between the two parties, it was
for a long time the only reference document on the goal, objectives,
targets, outputs and activities of SCP. It also contained basic
guidelines on the
project administration, management,
implementation and related technical matters.
The usefulness of the Project Document for the implementation of
the Sustainable Ibadan Project as a major and only formal source
of information, especially at the take-off of the Sustainable Cities
Programme in Nigeria in 1994 was recognised and highly
appreciated. The consensus was that the information and
guidelines in the Document assisted greatly in the implementation
11
of SCP between 1994 and 1998 before the official instruments and
SCP Tool Books were published.
Realizing the importance of this Project Document as a supporting
instrument, similar documents were subsequently prepared for
the Sustainable Kano and Enugu Projects. In all those projects,
the endorsement of these documents by the representatives of the
Federal Government of Nigeria and UN-HABITAT marked the
beginning of the implementation of the SCP/EPM process by the
participating cities. Thus the preparation of these various City
Specific Project Documents marked the beginning of the gathering
of information and data required for managing the sustainable
growth and development of Ibadan, Kano and Enugu Cities. The
information contained in these documents subsequently facilitated
the take-off of each project in Nigeria.
3.1.2
City Profiling
As an integral activity and requirement for the implementation of
the SCP/EPM process, all the participating cities in Nigeria,
namely Ibadan, Kano, Enugu and Karu, had a City
Environmental Profile prepared. It was however noted that the
content, presentation, volume, uses and relevance of the various
City Environmental Profiles reflected the process adopted for
their preparation and most importantly the level of adherence to
the recommended guidelines for their preparation.
The Ibadan City Environmental Profile was prepared by an
international non-governmental organization in 1994 before the
publication of the Source Book on preparing the SCP
Environmental Profile. This particular EP was compiled by a
group of academicians from the University and the Polytechnic in
the city. The exercise was basically assumed to be an academic
one. Thus no working group was set up and other key actors
and stakeholders were not involved in its preparation. The
information gathering process for the preparation of this Profile
was not used to sensitise or mobilize stakeholders for the
SCP/EPM process. Most of the data and information were
obtained from books and secondary sources. Probably, being
erroneously assumed to be an academic exercise, the document
contained more than required diverse information on urban
12
environment, development and environment interactions as well
as the setting for environmental management.
The contents of the Ibadan City EP were assessed to be
disjointed, repetitive and too academic. Members of the working
group that attempted to use the Profile found it too voluminous
and intimidating to read. The City EP was, however, well
distributed to all the State and Local Government agencies and
organisations.
Although the members of the various
environmental issue specific working groups which were later set
up after the City consultation had access to the document, it was
hardly used because the information provided were not properly
synthesized and articulated.
Meanwhile, the Ibadan City EP is already being revised and a
new document will soon be prepared. The revision is being done”
bottom-up” starting with the preparation of separate individual
EP for each of the eleven (11) Local Governments in Ibadan City.
The data and information from these Local EP’s are being put
together to form a detailed, useful and relevant Ibadan City EP.
The collection of data and information for the preparation of each
of the Local EP was broad based. All the major sectors were
informed in the exercise that was effectively used to sensitise and
mobilize support for the implementation of the Sustainable
Ibadan Project.
The Kano City EP was produced in 1998 and was later revised in
2003.
The revision was carried out to improve on the
information and data contained in the earlier EP. It also afforded
the opportunity to ensure the participation of key stakeholders
and actors in the updating of information on environmental
issues of concern in the City. The revised Kano City EP was
prepared by a consultant with the active involvement of the
representatives of the public, private and popular (community)
sectors in the City. Thus the information and data gathered
came from various sources and sectors. The new Kano City
Profile was assessed to be more current, relevant and useful for
the implementation of the SKP. In fact a summary of this
particular EP was written in the local language, Hausa. Few
copies of the revised Kano City EP were produced and hence its
distribution was limited to only few agencies of the State
Government.
13
It was also noted that there were some variations in the priority
environmental issues identified when the Kano City EP of 1998
was used at a consultative meeting and when the revised City EP
of 2001 was used at the City consultation held in 2004 with the
active participation of those that used the initial report. The
observed differences in the prioritized environmental issues were
attributed to the importance of updating the information and
ensuring a broad based participation of major stakeholders in
the gathering of information and eventual preparation of the
Kano City EP.
Enugu City EP was also prepared by a Consultant with the
information and data gathered from officials of State and Local
Governments, individuals from the private sector as well as some
NGOs and institutions of higher learning in the City. All the key
environmental and related developmental issues in Enugu City
were covered by the City EP. However, the data and information
on the issues documented were very scanty and superficial.
More information than what was documented were said to be
readily available on the issues in the various sectors of the
Enugu. Furthermore, the Profile did not contain maps and other
useful graphical representation which could have been used to
illustrate some of the environmental issues.
The contents and volumes of the report were moderate as
a result of adherence of the Consultant to the guidelines in the
relevant source book on the City EP.
The collection of
information and data for the preparation of the Enugu City EP
was deliberately used to sensitise and mobilize the stakeholders
for the implementation of the Sustainable Enugu Project. Few
copies of the City EP were produced and distributed among the
key Ministries and agencies in the State. Of note was the
adoption of the City EP by the Enugu Environmental Protection
agency (ENSEPA) as its major working document with regard to
Enugu City.
In preparing the Karu Development Strategy (KDS), the
principles of the Environmental Planning and Management of the
Sustainable Cities Programme were adapted in the collection of
data and preparation of a profile for Karu. In view of the fact
that the KDS was designed to improve the capacity of
14
development management institutions in Karu, to effectively
manage rapid urban growth and promote sustainable economic
development, the Karu Profile, therefore focused on collection of
data and information on socio-economic development related
issues. The key issues specifically covered included the economy
and employment, land development, urban services management
and also governance and management institutions.
The
difference between the contents of Karu Profile and the EPM
Profile is carefully documented in Table I.
TABLE 1: Difference between the contents Karu Profile and EPM
Profile.
Serial
No.
1.
2.
Karu Profile
EPM Profile General Outline
Background
Regional/Locational
Setting, socio-economic
setting
Economic
and
Employment Trends
3.
Land Use and
Development
4.
Urban
Management
Governance
Management
Institutions
5.
Land
Services
Background
geophysical
conditions,
Socio-Economic Setting, etc.
Status
of
the
Urban
Environment-Environmental
Resources
and
Environmental Hazards
Development/Environmental
Interactions
The
setting
for
Environmental Management
and
Karu Profile was based on the data and information collected
from the stakeholders and actors in the Karu Project area. The
data was collected from various sources which included the
communities, NGOs, Karu Local Government, Karu Planning
Area Development Authority and some other Federal Institutions.
The collection of data and information for the Karu Profile was
carried out with the deep involvement of the stakeholders. For
the purpose of convenience and to make the exercise
participatory, Karu Area was divided into manageable units
called constituencies. This made information sharing very easy
15
and focused. Constituency consultative meetings were equally
held though out the area to ensure that the data and information
gathered were authentic and supported by everybody that had
legitimate stake or interest in the area. The preparation of the
Profile was explored to sensitise and mobilize the stakeholders to
participate in the project. The Karu Profile was very moderate in
size and its contents were found to be very useful. Maps and
other useful graphical representations were extensively used to
elucidate some data and information. Some of these maps were
even obtained from various sources outside Karu and Abuja
region.
The CEP prepared for all the four (4) projects assessed, the
EP for each city/project was found to be the only document that
provided basic information and data on the interaction between
environment and development. Each Profile was extensively
used in identifying and clarifying environmental issues concern,
which were focused upon at the subsequent City consultations
held at the various cities. Some of the problems and constraints
observed in the preparation of CEPs in Nigeria are highlighted as
follows:
(i)
The preparation of the EP was a new concept in physical
planning; at least in Nigeria, hence it took a lot of efforts to
convince those whose inputs were required for the Profile to
understand its purpose, usefulness and relevance to
environmental planning and management. Thus, it was very
difficult to get the information and data required from the
affected stakeholders.
(ii)
The misconception that the preparation of CEP was an
academic exercise. This perhaps explained the reason why
the consultants appointed for the preparation of the Profile
were all academicians from the higher institutions located
within the affected cities.
(iii)
The preparation of the CEP was not effectively used to
sensitise and mobilize stakeholders in the affected cities.
Thus, series mobilization had to take place after the
preparation of the CEP. It was noted that individual persons
were appointed to prepare the CEP for Kano and Enugu,
while an international NGO and group of consultants were
16
contracted for Ibadan and Karu respectively. The consensus
opinion was that reputable institutions and not individuals
were better positioned to prepare the much needed CEP. The
reason being that the institutions are very much likely to
have a wide range of experts required to prepare a
meaningful and useful CEP.
(iv)
None of the projects assessed had devised or established any
mechanism for constantly improving and updating the
information and data in the various CEP. The main reason is
that the concept of EP is relatively new and not yet properly
appreciated or even carefully integrated with the existing
physical and environmental planning process in the country.
3.1.3.
Overview of Stakeholders Identification and Involvement
The identification and involvement of stakeholders in the
implementation of the SCP projects were based on the guidelines
provided by the SCP/EPM tools and process implementation
instruments. Initially, the stakeholders were limited to the
public sectors, essentially, the agencies of Federal, State and
Local Governments in the affected towns. But with better
understanding of the participatory concept of EPM process, the
definition of the stakeholders was extended to include the private
and popular sectors.
More thorough analysis and identification of stakeholders, as
recommended in one of the published tools on “Stakeholder
Identification and Mobilisation” was carried out after the
identification of environmental issues of concern in the
participating cities. The stakeholders were then identified and
mobilized for the projects on the basis of how they were affected
by the environmental issues, expertise and information
possessed as well as the implementation instruments they
controlled.
Simple classification/categorization, of using public, private
and popular sectors, was adopted/explored by the participating
cities to identify the key stakeholders that were mobilised for the
application of EPM process. Various activities carried out to
sensitise and mobilize the stakeholders included sectoral briefing
sessions, meetings (formal and informal) including publicity in
the project both print and electronic media. Series of sectoral
17
briefing sessions were held in Ibadan City to identify and
mobilize key stakeholders who should be actively involved in the
application and implementation of the SCP/EPM process. In
carrying out these sectoral briefing sessions, the whole sectors
such as, health, education, financial institutions, nongovernmental organisations (NGOs), market traders and informal
business groups, trade guides, community development
associations, traditional rulers and chiefs, community based
organisations, manufacturing and industrial sectors and donor
agencies.
Representatives of each sector were briefed and
properly sensitized for the project. These fora also provided
opportunities to identify the key actors in each sector who were
finally mobilised to participate in the project.
It was noted that in Kano City, the initial identification and
mobilization of the key stakeholders was spearheaded and
funded by the Office of the Governor of Kano State. The officials
of the Kano State Government, Urban Development Bank of
Nigeria and the TSU of SIP organized and carried out a two-day
briefing session on the SCP (EPM process).
A similar one-day briefing session of the representatives of
the sectors and communities was also organized in Enugu City at
the beginning of the project for identification and sensitization of
the stakeholders. As a follow up to this, specially organized
sectoral and general briefing sessions, the TSU Units of the city
projects held meetings with various members and associations
that made up the sectors. Several informal meetings were also
organized and explored to share information and convince some
recalcitrant key stakeholders. The sensitization and mobilization
activities were generally very effective as many stakeholders were
successfully convinced to participate in the application and
implementation of the SCP/EPM process.
It was noted in Ibadan, Kano and Enugu cities that some
stakeholders voluntarily approached the offices of the three
projects and declared their interest to participate and be part of
the projects.
In Ibadan City, the Bodija Market Traders
Association and Oke-Offa Babasale Community in the core area
of Ibadan as a group made representation to SIP-TSU to
participate in the project. In Kano City, it was recorded that
about ten community organisations approached SIP between
18
year 2000 and 2004 to join hands with the SIP-TSU to address
environmental issues of concern in their communities.
Following the identification and successful mobilization of
the key stakeholders by the TSU Units of the city projects, they
were made to actively participate in the application of the EPM
process in various ways. Some of them were made members of
the Project Steering Committee, Project Technical Coordinating
Committee and Environmental Issue Specific Working Groups.
As recommended in the project documents and the SCP
implementation instruments and tools, the stakeholders who
were made member of the Steering Committee were found to be
those who have the necessary political clout to mobilize the much
required political support for the projects as well as those who
have the technical and financial resources needed for the
implementation of the SCP. In all the participating cities, the
Steering Committees were made up of political representatives in
the various State Governments, Technical or Senior Officials of
the relevant agencies of the Federal, State, and Local
Governments. Community Leaders and the private sector were
equally represented on the committees. The assessment exercise
observed that in the SKP, its Steering Committee was a high level
policy making body, whose membership included the Governor of
the State, Secretary to the State Government, Commissioners of
the relevant Ministries and Heads of Parastatals and other
organisations of the State. The political influence of these
members made the project to have a high level political support
and visibility.
The Steering Committees for SIP and SEP were headed by
one of the Chairman of the Local Governments within the cities.
This was due to the strong sense of ownership of the project,
especially, by the eleven (11) Local Governments in Ibadan City.
These Local Governments were saddled with the responsibility of
implementing the project while the State Government saw its role
basically as that of a facilitator. To further reinforce their role as
the implementing agencies all the Chairmen of the eleven (11)
Local Governments in Ibadan formed a Project Coordination
Committee for the SIP under the chairmanship of one of them
who was collectively elected as the Project Coordinator by all of
them.
19
The involvement of the key decision makers in Governments
(State and Local) had made it possible for the project to have
access to substantial financial resources from the various arms
of Government represented on the Committee. The Committees
met several times in a year to discuss matters affecting the
implementation of the projects in the participating cities. The
members of the Committee were involved in mobilizing political
support and financial resources for the application and
implementation of the EPM process in their respective city
projects. These projects also afforded most members of the
Committee, especially representatives of the private and civil
sector and civil society, the first opportunity to work closely with
Government officials (public sector).
Thus from a careful assessment of the participating SCP cities,
Ibadan, Kano and Enugu in Nigeria, the stakeholders identified
and mobilized for the projects came from the public and private
sectors as well as the civil society. It must be noted that the
identified stakeholders were also made members of the
environmental issue specific working groups, which were
established for the application of the EPM process in the SIP,
SKP and SEP. The nature and composition of the membership of
the working groups including the roles played by the key
stakeholders in the groups are discussed in other sections of the
report.
3.1.4.
Establishing EMIS and Training of Operators
EMIS, which is basically an electronic information system for
storing and managing spatial information on urban environment
according to the EPM process, was unknown in Nigeria, prior to
the participation of Ibadan, Kano, Enugu and Karu in the SCP of
UN-HABITAT. Much information about the usefulness and
application of the system for urban environmental management
were obtained through strong advocacy of the system by UNHABITAT and UNEP. This had engendered the interest of all the
participating cities to establish EMIS in their project offices.
Meanwhile, the SIP, SKP and SEP had acquired the basic
electronic information technological equipment required to
establish the EMIS. These included sets of computers, GIS
software, digitizing tables and digitizers, computer printers and
20
pen plotters. All these equipment were purchased by the UNHABITAT for the three participating cities. While Ibadan City took
the delivery of the equipment in 1997, Kano and Enugu Cities
took theirs in 2001.
The assessment revealed that all the Cities had made
necessary efforts to establish the EMIS. However, it was only the
SIP and SKP that had made some significant progress in this
regard. For instance, to facilitate the establishment of the EMIS in
Ibadan, digitized maps of Ibadan City were produced on scales of
1:25,000 and 1:50,000 in addition with some thematic maps.
Thus, it was possible for SIP to generate various maps for
development planning. Furthermore, Oyo State Government had
purchased its own set of GIS equipment purposely to establish an
EMIS at the State level. The GIS facility at the SIP had influenced
the Oyo State Government to set up a GIS laboratory in the Survey
Department of the Ministry of Lands, Housing and Survey towards
the establishment of an EMIS at the State level. Also, in SKP Kano,
some thematic maps were produced by the TSU with the GIS
equipment to support the State Government on decision making
process. Some of the thematic maps included the maps showing
the electoral/administrative Wards in the Kano Metropolitan area,
distribution of primary and secondary schools, rehabilitated roads
and bridges in the City. Unfortunately in SEP, the equipment had
not been put into productive uses.
Some decisive steps were taken in SIP to develop the much-needed
human resources/manpower that would establish the EMIS and
manage it accordingly achieve the set goal. For instance, it was
reliably gathered that the SIP entered into some contractual
agreement with the Regional Centre For Training in Aerospace
Survey (RECTAS) in 1995 to prepare some digitized maps for
Ibadan City and carryout some training and capacity building
workshops in mapping and the use of GIS for the management of
environmental information. Thus, in 1997 about 57 participants
from various public agencies, private organization, education and
research institutions attended training workshops on EMIS
organized by SIP TSU in collaboration with RECTAS.
The
necessary technical backup was provided by the EMIS expert from
UN-HABITAT during the training. A workshop on GIS/EMIS was
also held in 1997 by a Consultant from the University of Ibadan
for selected officials from the Ministries and agencies of State and
the eleven (11) Local Governments in Ibadan City.
21
In SKP three training sessions on the application of GIS and EMIS
were carried out for the key stakeholders in Kano City. The
training programme was for the SKP TSU and members of
Mapping Working Group, the second was for policy makers on the
usefulness of GIS/EMIS to decision making process and the final
was a training of trainers workshop for representatives of both the
public agencies and private sector organisations.
The only training programme on EMIS in SEP was carried
out in 2002 for the officials of the SEP TSU and members of the
Mapping Work Group. These training sessions were provided after
the installation of the GIS equipment by the EMIS Expert from
UN-HABITAT.
The assessment of the projects revealed that the training and
capacity building programmes carried out towards the
establishment of the EMIS were most successful in SIP. This was
due to the full exploitation of the available technical expertise in
RECTAS and the University of Ibadan (which is one of the higher
institutions in Nigeria offering a postgraduate course in GIS). In
addition, there was strong institutional collaboration and
cooperation promoted by a well balanced and appropriate
membership of the Mapping and EMIS Working Group of SIP. The
membership of the Group was made up of the producers and
users of maps from all over the country within and outside the
State and was ably headed by the Surveyor General of Oyo State.
More so, that the office of the Surveyor General in each State is by
statute the custodian of all maps within its jurisdiction.
Furthermore, the right personnel with appropriate professional
training and academic qualifications in relevant disciplines to
EMIS were also members of the TSU of SIP.
Meanwhile, the only constraint which militated against the
progress of SIP with regard to the establishment of the EMIS was
mainly due to the constant break down of the equipment and lack
of a competent firm in Ibadan that carries out necessary repairs
any time the system developed technical faults or in need of
repairs and maintenance.
It was observed that the training programmes on GIS/EMIS
were less elaborate in SKP and SEP. SKP has, however, formed a
Mapping Working Group similar with that of SIP) in terms of
22
recomposition of the membership. This Group had helped to
produce some useful maps for decision makers in Kano State
purposely to demonstrate the relevance of the EMIS in effective
decision making process.
Not much success has been recorded in SEP in the attempt
to establish EMIS and even train operators. Progress could not be
made due to lack of personnel either in the TSU or in any of the
relevant agencies of the State Government. The equipment has
not been explored at all and hence the EMIS grossly under
utilized.
To conclude, the assessment revealed that all the
participating cities in SCP and Karu have used and explored the
EPM tools and instruments to gather and improve environmental
information on their various cities through the preparation of City
Profiles, Maps and Reports on several environmental and socioeconomic issues of concern. Some of the offices of the TSU of the
projects have become resource centers for environmental
information. Furthermore, based on assessment, the EPM tools
and instruments on stakeholders identification and involvement
have been effectively explored and used to analyse identify and
mobilize those key stakeholders that should be actively involved in
the application and implementation of SIP/EPM process by the
participating cities. It was established that those who really had
legitimate stake or interest in the implementation of the project
from the public, private and popular (Civil) sectors were identified
and mobilised through briefing sessions, meetings, workshops and
publicity of the projects in prints and electronic media. Those
stakeholders were involved in the projects either as members of
Policy Making Committees or the environmental issue specific
Working Groups established by the TSU of each city.
It was established by the assessment that none of the
participating cities in SCP and even Karu had established the
EMIS. Progress in this particular area had been very limited and
generally disappointing. With the exception of SIP that had access
to trained and qualified personnel for EMIS activities the others
were really lagging behind in this area. Quite a lot of work and
support is required if the cities would have to establish the EMIS
and train the much needed operators for this very important
activity for the improved of environmental information.
23
3.2.
Improving
Making
Environmental
Strategies
and
Decision
It was gathered from the assessment reports that all the
participating cities in the SCP/EPM process carried out
necessary activities and made necessary efforts to improve the
process of formulating environmental strategies and making
decision, which were expected, to impact on urban environment.
Using the guidelines provided by the SCP tool books and
implementation instruments, environmental issues specific
Working Groups were set to clarify and address identified
prioritised environmental issues in the city. These Working
Groups were made up of the key stakeholders and actors which
were identified and mobilised for the implementation of the
project. The key features of the Working Groups and their
activities leading to improved environmental strategies and
decision making, as assessed, are documented below:
3.2.1.
Working Groups and their Characteristics
As required for the improvement of environmental strategies and
decision making in the application of EPM process, the SIP, SKP,
SEP and Karu established and used environmental issue specific
Working Groups to clarify and formulate strategies to address
various environmental issues identified at the city consultation
and other various stages at the projects. The Working Group
concept was explored as a mechanism for bringing key actors
and stakeholders from different sectors together for broad based
active participation in the clarification, resolution of conflicts and
as well as formulation and implementation of strategies to
address identified environmental problems. All the Working
Groups established by the projects/cities were based on the
prioritized environmental issues of concern identified at the City
Consultations held in each City. However, some Working Groups
were set up later as deemed necessary. As indicated in Table WG
1 the SIP set up five (5) environmental issue specific Working
Groups namely:
 Ibadan Water Supply WG,
 Ibadan Waste Recycling WG which was later
transformed to Ibadan Waste Management WG
 Ibadan Mapping and Environmental Information WG
24
 Environmental
Planning
and
Management
Institutionalisation WG and
 Bodija Market Area Environmental Improvement WG
Some of these WGs were split into sub-WGs by the members of
the main WGs mainly to ensure efficiency and effectiveness.
These Sub-WGs were thus able to look at the issues at both city
and community levels. As recommended by the tool on Working
Group Process, it was noted that the SIP also formed a
coordinating WG whose membership consisted mainly of the
Coordinators of all the issue Specific Working Groups which were
established by the Project.
As documented in Table WG 2 the SKP established five (5)
Working Groups on Water
Supply, Waste Management, Urban Mobility Housing and
informal sector as agreed to at the City Consultation held in
2003. Furthermore, the SEP set up three (3) WGs on Water
Supply, Sanitation and Waste Management Unplanned and
Uncontrolled Urban Development. Although several environment
and socio-economic issues were identified and prioritized at the
Karu City Consultation in 2002 only one (1) WG on Business and
Economic Development was set up immediately. This was
because this issue was of utmost importance to the key
stakeholders and actors in the project area.
The assessment and analysis of the nature and composition of
the Working Groups revealed that the members of the Groups
were representatives of the public, private and popular sectors.
Specifically, the WGs were made up of senior officials of the
Federal, State and Local Government agencies, representatives of
the manufacturing organisations, financial institutions, lecturers
from higher institutions, NGs, traditional rulers and chiefs,
community based organisations, Labour Union and Trade Guilds
to mention a few. The cross Sectoral and inter-organisational
nature of the membership of the Working Groups is clearly
confirmed by the composition of the Ibadan Waste Management
Working Group which is shown in Table WG 3
Members of the Working Groups were carefully selected on the
basis of their legitimate stake or interest in the environmental
25
issue of concern to be addressed by the WG. According to the
assessment, members of the WGs were those who possess
important information and expertise required to address the
identified environmental issues, those whose interests are
affected by the problem and the strategies and action plans to be
evolved as including those who have the implementation
resources required to implement the plans prepared by the
Groups. Interestingly, all the cities in the course of applying the
EPM process developed some working relationship with the
Polytechnics, Universities and Research Institutions within their
Cities. Some prominent institutions that worked closely with SIP
were the Ibadan Polytechnic, University of Ibadan and Nigerian
Institute of Social and Economic Research (NISER). In SKP
lecturers of Bayero University actively participated in the
activities of the project while the members of staff of Enugu State
University of Technology (ESUT), University of Nigeria (UNN) and
others supported the SEP in various ways. However, deliberate
efforts were made to ensure that none of the Groups was
dominated by a particular interest group or sector. It was
noticed that there was no gender balance in the WGs, in fact,
only 5% of the members of the WG were women.
The coordinators of the Working Groups were carefully selected
by the members of each group. The coordinators varied from
influential
senior
Government
officials,
Academicians,
Engineering Consultants, Community Leaders and those who
were the political clouts required to mobilize resources and get
things done. Furthermore, the selection of members was based
on their perceived contribution to solve the identified
environmental problems and not their educational background.
Both literates and illiterates were made members of the WGs in
all the participating cities. In fact, the working sessions were
conducted in the common tribal languages (Yoruba, Hausa and
Igbo) where deemed necessary. The members of the Working
Groups did not generally see themselves as a group of experts or
technocrats. They saw themselves as a group of people bounded
together by an environmental problem and spurred into action by
common vision or goal of finding solutions to the identified
problem.
On the average the membership six of the WG ranged from about
12 people to as many as 37 people. The WG of SIP with the
26
highest number of members was the Institutionalisation of EPM
Working Group with about 37 members. The size of the Group
simply reflected the complexity of the task of making EPM a
routine practice by a wide variety of agencies and organizations
in the City.
The assessment revealed that the membership of the WGs was
reviewed regularly. New members were added and some were
moved to another WG as the need arose. For example in SIP,
Medical Practitioners such as nurses and Doctors were added to
the Ibadan Waste Management WG when the Group had to
evolve strategies to deal specifically with the menace of biomedical waste from health clinics, hospitals and maternities in
Ibadan City. Generally, the Working Groups had been very
active and their activities are discussed later in the report.
Table 2: SIP Working Groups Profiles
S/No.
1
Take-Off
Dates
Working Group
Bodija Market Area Environmental
January
1996
Improvement:
(a)
Bodija
Market
Waste
Management
Sub-WG.
(b) Bodija Market Water Supply SWG.
(c) Bodija Market Road/Drainage SWG.
(d)
Bodija
Improvement
Sub-WG.
Market
Toilet
(e) Bodija Market Food Safety SubWG.
2
(f) Bodija Market/Women Welfare
Sub-WG.
Ibadan Waste Recycling
3
SIP Coordinating
4
Ibadan Water Supply:
(a) Akeu Spring Water Development
(b) Mini Water Works Development.
(c)
Odo-Ona/Gada
Community
Water and
Sanitation
(d)
Deep
Well/Borehole
Development.
Who inaugurated the
WG
SIP
and
Bodija
Community
Development
Association
Membership
17
17
20
17
Feb.
1996
Feb.
1996
Feb.
1996
13,
Feb.
1996
May
1996
April
1996
13,
Jan.
1996
April
1996
Jan.
1996
June
1996
Feb.
1996
19,
The Group
14
25,
The SIP
33
17,
The TSU/SIP
April
6,
27
13,
Professor Shrider
Engr. Adesiyi
SIP
13,
SIP
Professor Egunjobi
SIP
18
15
17
2,
9,
8,
SIP/TSU
15
14
8,
SIP/TSU
SIP
SIP
17
15
13
(e)
Ibadan
Development
5
6
Spring
Water
Environmental
Planning
and
Management
Ibadan
Mapping
Information
Committee
1996
Feb.
8,
1996
Feb.
8,
1996
May
14,
1996
January
1996
TSU/SIP
37
TSU/SIP
19
Source: Anyaogu, 1999.
Table 3 Working Groups Established in Kano, Enugu and Karu
City
Working Group
Kano
1.
2.
3.
4.
5.
1.
2.
Enugu
Karu
Date of
Establishment
2004
Water Supply
Waste Management
Urban Mobility
Housing
Informal Sector
Water Supply
2004
Sanitation
and
Waste
Management
3. Unplanned and uncontrolled
Urban Development
1. Business
and
Development
Economic October 2003
3.2.2. Identification and Mobilisation of Working Group Members
It was gathered from the assessment exercise that various approaches
and methods were explored by the participating cities in the SCP to
identify and mobilize the members of the WGs set up for the application
and implementation of the SCP/EPM process. The key methods
included:
 Sectoral briefing sessions
 Meetings (Formal & informal)
 Consultative Fora
 Workshops (on clarification of identified environmental
issues)
 Training Programmes
 Publicity (using print and electronic media)
28
Some of the members of the WGs were identified, informed and
familiarised with the SCP process and projects through the aforesaid
sensitisation and mobilisation activities. Most of the people that joined
the Working Groups did so because of their willingness to be part of the
process to find lasting solutions to some of the perennial urban
environmental problems being encountered in their various settlements.
What attracted some members to the WGs was also the noble idea of
the Government to involve other sectors in jointly addressing
environmental issues of concern in their abode. This was found to be a
significant departure from the previous approach of the Government to
urban environmental planning and management. More so, hitherto only
the agencies of Governments had been responsible and believed to have
(all) the wherewithal to deal with urban environmental problems.
A careful analysis of the WGs revealed that some members of the WGs
voluntarily worked into the TSU of the projects to indicate their
intention to join some WGs of their interest. They volunteered to
participate because they had some useful expertise or information,
which they believed, will assist in clarifying the identified environmental
problems and evolving effective strategies to address the environmental
problems. On the whole, the SCP tool on the identification of WG
members for SCP/EPM process provided was a useful guide for the TSU
of the participating Cities to identify, inform and mobilise the key
stakeholders to participate in the WG process.
3.2.3.
Identification of Priority Environmental Issues
Identification of priority environmental issues in Kano and Enugu was
done through the Environmental Profile Document where the
consultants preparing the document discussed with the various
stakeholder groups in both the public and private sectors. The Profile
usually presented a long list of problems which were prioritised, first,
by the members of the collaborative group. Proposition papers are
written elaborating the problems, causes and effects as well as
proposing various solutions.
Discussions were held at the City
consultation and the issue further prioritised in order of importance.
Some issues outside the profile could be identified and included in
priority listings. For example, in Kano during the city consultation,
stakeholders brought up the problem of traffic accidents and air
pollution in the city due to high number of motorcycles, numbering over
one million and also the need to raise more revenue to address the
29
environmental issues.
In Ibadan, Kano and Enugu, some
neighbourhoods/communities approached the TSUs with localised
problems usually of access road, provision of potable water, drainage
etc. These were usually accepted and working groups set up to address
the issues raised.
The issue of EMIS and production of base maps were recognised by the
EP profiles and these got automatic acceptance by TSU’s and UNHABITAT. In each of the cities therefore, a Working Group on Mapping
and EMIS was constituted. Further prioritisation of issues was done by
the working groups.
3.2.4.
Clarifying Selected Priority Issues
Priority issues agreed to at the City Consultation were further examined
in detail by the Working Groups. In Ibadan, the working groups used
the proposition papers and other information generated as well as
facilitation by POLYCONSULT to clarify the environmental
issues/problems to establish their nature, causes and effect as well as
examine strategic options for addressing them. The WGs used such
criteria for prioritisation as health impact, availability of resources to
address the problems commitment of the stakeholders etc.
In Kano, the proposition paper on Water Supply was considered well
thought out and a very useful working document for the WG. In fact
the State Water Board approached SKP for that particular presentation
to be aired on the local television. This was done and it became a
powerful information tool for the project.
3.3
Agreeing
Implementation
on
Strategy
and
Action
Plans
for
Out of the 4 cities being assessed, only Ibadan has reached Phase II
Strategy and Action Planning and Phase III Follow-up and consolidation
of the SCP Process. Most of the National experience will therefore be
drawn from the SIP Project. The issue of strategy formulation through
a participatory process is new in Nigeria. It is a special area involving
technical, institutional and financial considerations. The TSU therefore,
engaged the services of Consultants, POLYCONSULT, to assist all the
SIP Working Groups in the preparation of strategies, action plans and
concrete bankable proposals. Their support no doubt contributed
immensely to the success recorded in terms of the preparation of
30
implementable Strategies and Action Plans that ultimately resulted in
the implementation of demonstration projects.
In addition, there was a deliberate effort to locate the WGs within the
premises of the agency of government in charge of the programme. The
WG on waste management held its meetings in the premises of the
Waste Management Authority. This provided the members of the WG
opportunity to study and understand the problems, first hand and
consider the various options for remedying them. The WGs formulated
issue specific strategies on Solid Waste Management, Water Supply and
the Institutionalising of EPM.
Despite this advantage, the process itself, as was rightly observed in
Ibadan was fraught with lots of delay and time consuming arguments.
These tend to arise either as a result of the unwillingness of Agency of
government, in charge of the programme to take on additional
responsibilities. Sometimes, the representative of the Agency may not
have the authority to agree to the Action Plan on behalf of the Agency,
without first clearing with his bosses. Another source of delay can be
attributed to the relative newness of the SCP approach and the absence
of a National Framework for its implementation and replication at state
and local government levels.
3.3.1.
Clarifying Strategy Options
The available expertise and technical support within most WGs makes
the identification of policy options and their possible effects on the
issues, before them, easy. Similarly, the attempt, in Ibadan, to put
together all Action Plans into a form of revolving “Urban Strategic
Environmental Development Plan for Ibadan” has the potential of
assisting to clarify other Strategy Options, as the relative impact of the
different policy options on other related issues can be easily identified.
Clarification of issue-specific policy options brings a clearer
understanding of costs and benefits for different stakeholders and of
"trade-offs" for the city as a whole. The WGs in Ibadan had a better
understanding of the issues, their effects and policy options available as
a result of guidance by POLYCONSULT, the Consultancy arm of Ibadan
Polytechnic that was contracted to assist them. They were, therefore,
guided to consider the pros and cons of each policy option for various
stakeholders, and to agree on the selected option, objectives and targets
as well as a set of interim goals to guide phased interventions. The
31
WGs also considered the policy reforms and institutional strengthening
issues necessary to support the implementation of the agreed
strategies.
3.3.2.
Formulation of Action Plans
In Ibadan Action Plans were prepared from the issue specific sector
strategies agreed upon. In formulating the Action Plans cognisance is
taken of all, present and potential, actors i.e. stakeholders and
implementers, together with the technical; managerial and financial
resources available to them and their specific roles in the
implementation of the action plan. Similarly, measurable targets were
set; and resources required to implement each actions were defined as
shown in table 4.
Table 4: Strategy and Action Plan for Waste Management
S/No.
1
Strategy
Utilization of sustainable
purpose-built waste storage
facilities
2
Minimization of disposable
waste
3
Embark on Waste Recycling
for Optimum Utilization of
Resources
Actions Implementing Agencies
(i) Design and produce
durable, portable and
appropriate containers
at affordable cost for
storage of domestic and
Hazardous waste.
(ii) Procurement of
approved containers for
waste storage.
(i) Packaging of
consumable goods with
re-usable.
(ii) Base user charges for
WM containers service
on quantity of waste
generated
(i) Facilitate separation of
solid waste into various
Components.
(ii) Provide
infrastructures for
development of cottage
Industries for recycling of
paper, metal, plastic,
glass &
Organic waste at
neighborhood and
disposal sites
32
ISWMA, Private Refuse
Collectors, LG, Educational
and Research Institutions, All
Stakeholders
IBSWMA, Private Sector,
Community, Private Refuse
Collectors.
IBSWMA, Manufacturing
Industries, Communities,
NGO, External Support
Agency, SEPA
4
5
6
Legislate and enforce
appropriate laws for enduring
waste management
Involvement of Private and
Popular Sector on Waste
Management
Operationalize the Systematic
Collection of Waste
(i) Enforce all existing
and future laws,
regulations on waste
management;
(ii) Legislate appropriate
laws, regulations to
foster:
(1) The use of approved
containers for waste
storage;
(2) Payment of user
charges for waste
management
Services based on
quantity.
(iii) Public participation;
and
(iv) Effective storage,
collection and disposal of
hazardous waste.
(i) Participate in the
management of waste.
(ii) Participate in the
initiation and
enforcement of
Regulations on waste
management.
(i) Engage adequate and
skilled manpower.
(ii) Procedure locally
appropriate technological
equipment and waste
management vehicles.
(iii) Leasing of
State Government, ISWMA,
LGs, Community.
Private and Popular Sector,
LG.
LG, ISWMA, Private Refuse
Collectors, Industrialist,
Medical Practitioners, SEPA,
Ministry of Health.
equipments.
(iv) Establish guidelines
and procedures for
collection, transportation
and disposal of waste in
the core, planned and
market areas.
(v) Control storage,
collection and disposal of
hazardous wastes.
7
Provision and maintenance of
environment-friendly disposal
facilities
(i) Identify, select and
acquire suitable sites for
waste disposal.
(ii) Develop and treat
disposal sites as sanitary
landfill.
(iii) Purchase
appropriate equipments
for the treatment of
33
ISWMA, LGs, SEPA
Disposed wastes.
(iv) Provide motorable
roads to the site and
other infrastructures
needed on the site.
8
Public enlightenment for
effective waste management
(i)
Literacy campaign.
(ii)
Publicity for
approved relevant Laws
and Regulations.
ISWMA, SEPA, Ministry of
Information, LG, ANFE,
Community Media
Organization, Educational
and Research Institutions.
(iii) Promotion of waste
management practices.
9
Capacity for Sustainable
Waste Management
(i) Training and
retraining of personnel.
ISWMA, SEPA, Educational
and Research Institutions.
(ii) Liaison with External
Support Agencies.
10
Mobilization of Financial
Resources for Waste
Management
11
Cost Recovery Mechanism for
Sustainable Waste
Management
12
Establishment of Waste
Management Information
System
(i) Financial provisions
in the annual budgets.
(ii) Sharing of cost of
provision of infrastructure
through development
levies.
(iii) Waste Management
Relief Fund.
(iv) Loan.
(v) Foreign grants.
(i) User charges.
(ii) Loan repayment.
(iii) Fines.
(iv) Set up Community
Waste Management
Committee.
(i) Create unit within
ISWMA for data
collection, collation,
analysis and
dissemination.
(ii) Engage relevant
staff and equip Waste
Management
Information Unit.
ISWMA, SEPA, Community,
Private Sectors, UDBN, NIDB
and other Financial
Institutions, External Support
Agencies.
All Stakeholder
ISWMA
Getting the Agencies of government in the WGs to agree to the Action
Plan tends to constitute a significant source of delay. Implementation of
the strategies and Action plans for Waste Management, Water Supply
and Bodija Market Environmental Improvement were anchored in
Ibadan Solid Waste Management Authority, WCOS and Ibadan North
LG, respectively, they still require the approval and consent of higher
34
Authorities - State Ministries that supervise their operations, who are
not members of the WGs.
The WGs consider various resources and implementation instruments
for the implementation of agreed action plans. For example, community
projects executed in Ibadan took into account labour and financial
resources of the communities as well as the technical and managerial
skills of its members. Many private consulting firms had played
important roles in the formulation of issue specific strategies and the
preparation of action plans. In Odo Akeu Spring development, a private
engineering consulting company, located within the community,
provided inputs in project design, construction and supervision valued
at over US$6,000.
Implementation instruments that were used in Ibadan includes Annual
Budgets, mostly used by State and Local Governments and their
agencies; regulatory mechanisms by Oyo State Water Corporation and
the Ibadan Solid Management Authority; Education and information
campaigns through seminars, workshops, brochures and technical
papers. The WGs also used capital improvements in strategic places
like the Bodija Market as instruments for implementing action plans
and identified projects.
3.3.3.
Consideration of available Resources and Implementation
Options
Availability of adequate resources for the implementation of duly
prioritized projects by the WGs has remained a source of considerable
problem to SIP. There is, however, the willingness of the stakeholders at
the community level to make their financial contribution available, as at
when due. This is but a very tiny percentage of the total project cost.
Since the state and local governments nearly always claim to be cash
strapped, SIP has to resort to seeking support from International
Agencies, such as UN-HABITAT, UNDP, WATSAN, UNICEF etc. A profile
of financial contributions for implementing such SIP projects is shown
in table 4.
Out of a total of $1,123,000.00 expended by SIP n projects, only $
223,000.00 (19.9%) was contributed by the Oyo State Government and
the 11 Local Governments of the State.
35
Table 4: SIP Financial Contributions
DONOR
UNCHS-HABITAT
UNDP
Oyo State Government
Local Governments
Total
Source: Taiwo (2000)
AMOUNT
CONTRIBUTION
$800,000
$100,000
$107,000
$116,000
$1,123,000
PERCENTAGE
CONTRIBUTION
71.24
8.90
9.53
10.33
100.00
The SIP has used various methods to mobilise funds for the
implementation of approved demonstration project.
Apart from the
seed project money, meant to support TSU and the projects software
requirements, resources were generated in cash and in kind for the
implementation of various demonstration projects as shown in Table 6.
The resources came from various local communities, the private sector,
state and local governments as well as international support agencies.
Table 6: Financial and others Resources Generated for Demonstration Projects in Ibadan
Project
1. Odo Akeu Spring
Development
Actors Involved
1. State Department of
Rural Development
Resource Committed by Actors
 2 Hand pumps
2. Ibadan North East LG






₦100,000.00 ($1,250)
Building Equipment
Labour
Project Design
Construction Supervision
Other Technical Inputs



₦350,000 ($4,375)
Technical Inputs
Community Mobilization for Sanitation
3. Private
(Engineering Consultant) in
the Community.
4. UNICEF
5. WATSAN
2. Borehole
Development in
Bodija Market
3. Development of
Organic Waste
Conversion
(Compost) Plant
1. SIP Trust Fund
2. UNICEF
3. Communities
1. State Project Coordination
Dept. (World Bank
Assisted) Project.
₦300,000 ($3,750)
 Provided the rig, borehole casings,
labour and technical know-how.
Total Estimated/
Cost of Project
₦750,000.00
($9.375)
Cash input
₦500,000.00 ($6,250)
Other inputs estimated at
₦250,000.00 ($3,125)
₦425,000.00
($5,312)
(₦125,000.00) ($1,562)
Over ₦7 million
₦5.5 million ($68,750)
2. Ibadan Solid Waste
Management Authority.
₦1.0 million ($12,500)
3. Ibadan North L.G.
Land
4. UNICEF
Materials (200 bags of cement), wheel
barrow (20), Spades (20), shovels (20) and 1
borehole (₦300,000) ($3,750); Community
training.
36
($87,500)
5. University of Ibadan
6. Ministry of Agric. &
Natural Resources.
7. Community Members
Equipment fabrication, training and technical
know-how.
Political support and product marketing.


Labour.
Political and moral support.
Source: Ayorinde,2004.
It should be noted that the active involvement of a wide variety of public
and private, formal and informal stakeholders in Ibadan has provided
valuable implementation resources in the form of local knowledge,
manpower, in-kind economic and financial inputs. In addition, the
Ibadan Project Trust Fund (SIP TF) was established in 1997, to channel
financial and technical resources from the private sector for the
development of Ibadan. SIP TF uses key, high profile and trustworthy
individuals from the private sector as trustees of the Fund. This gave
them the impetus to mobilise and channel private sector resources for
SIP demonstration projects.
3.3.4.
Capacity and Commitment to Implementation
The Action Plans agreed upon by the WGs considered the capacity and
commitment of each actor in the implementation of the recommended
plans. While the local communities have the local knowledge, labour
and some little financial resources, they lack the authority and
implementation instruments particularly the statutory powers and
regulatory instruments. This made the WGs to allocate regulatory
functions, legislation and policy reforms to public institutions especially
the Oyo State Water Corporation, Directorate of Food, Roads and Rural
Infrastructure in the case of Water supply. Similar functions were
assigned to Ibadan Solid Waste Management Authority and State
Environmental Protection Agency in the case of solid waste
management.
The poor institutional and technical capacity of the local governments
was always taken when assigning specific roles to them in the
implementation of agreed Strategies and Action Plans.
Local
Governments were given prominent role of political leadership,
mobilisation of resources as well as bringing about institutional
changes in the way things are done.
The project also capitalised on the positive attitude of the various Trade
Associations in Bodija Market in Ibadan; Bodija Community
Development Association and other communities to bring about
37
changes in the way services are delivered. This is a change from direct
government service provision, or failure to provide service, to new form
of public-private partnerships. It also placed cost recovery, maintenance
and management of boreholes and other water facilities in the hand of
the private sector. This new approach of public-private partnerships is
finding its way in other places such as Karu where business groups
that make up the Business and Economic Development Committee
(BEDC) are working with state and local governments to improve service
delivery, urban governance and generation of revenue.
The TSU did not only examine current capacity but took measures,
through training, to build the capacity of all stakeholders to discharge
their assigned roles effectively. In October 1999, for example, the TSU
with UNDP funding, organised Training of Trainers Workshop to
popularise the Strategies and Actions Plans for waste management
developed by the working groups.
3.4.
Follow-up and Consolidation
The ability to consolidate the gains of SCP process is hinged on the
efforts of the TSU to improve the capacity of the stakeholders to actively
participate in the EPM process as well as sustaining their interest in it.
This can be achieved through awareness building, training and capacity
building as well as effective implementation of priority projects, and
disseminating such success stories.
The SIP has organised more than 16 seminars and workshops for all
categories of stakeholders (see Table 7). In addition, it executed the
following:
 Commissioned POLYCONSULT in 1996 to provide institutional
support to all SIP WGs,
 Commissioned,
in
1996,
a
3-man
study
team
on
Institutionalization of Environmental Planning and Management
Process in Ibadan, and
 Commissioned the Regional Centre for Training in Aerospace
Survey (RECTAS) in 1996 to produce maps for Ibadan.
Table 7: The SIP Seminars and Workshops Held Between Nov. 1996 and Dec. 1999
S/No.
1
2
3
Title of Seminar/Workshop
Workshop on the institutionalization of EPM process in Ibadan
EPM Seminar for Technical Consultancy Group
EPM Seminar for Coordinating Working Group
38
Date
Nov. 24, 1996
March 5, 1997
March 18, 1997
Venue
D’Rovan
FCT, Ogere
FCT, Ogere
No. of
Participant
141
14
20
4
5
6
7
8
9
10
11
12
13
14
15
16
EPM Seminar for Ibadan LG, SIP Committees
EMIS Workshop
Water Strategy
1st GIS Workshop
Waste Strategy Discussion and Brainstorming Session
Waste Issue Workshop
Waste Issue Workshop
Tripartite Review
Brainstorming Session on Monitoring and Evaluation
2nd GIS Demo-Workshop
Ibadan North-West LG Mini Consultation
GIS Training
The Fiscal Planning and Budgeting for EPM by LG
March 20, 1997
April 8-9, 1997
April 10, 1997
April 15, 1997
April 24, 1997
April 25-30, 1997
May 13-14, 1997
May 29, 1997
June 12, 1997
July 1-2, 1997
Sept. 9-10, 1997
April, 1998
December 1999
FCT, Ogere
D’Rovans
D’Rovans
D’Rovans
FCT, Ogere
D’Rovans
D’Rovans
D’Rovans
FCT, Ogere
FCT, Ogere
D’Rovans
SIP Office
SIP Office
30
95
15
70
20
129
130
26
15
15
200
20
180
Source: SIP, 2000.
Apart from the initiation of training and capacity building by SIP, the
body has to its credit many publications that are of immerse value to
practitioners of the Environmental Planning and Management and
other stakeholders. These publications are: 8 number Reports, 6
Number Resource Papers, 6 Number Discussion Papers and 2 Number
Evaluation Reports.
The inability of SIP to implement many of its projects, and the
breakdown of some of its EMIS equipment, has reduced its ability to
effectively build on its gains and ensure consolidation of the EPM
process. Had the capacity building training for EMIS, started In Ibadan,
Enugu and Kano been sustained, the full benefits of EMIS would have
become manifest at the state and local government levels, the gains
would have been consolidated in all the cities.
However, it must be noted that outputs of the project in the form of
strategies and Action Plans on Water Supply; Environmental Profile of
each of the 11 Local Governments; establishment of SIP Coordinating
Working Group, with representation from all the 11 Local Governments
to assist the WGs and act as their Think Tank; and for Waste
Management are clear indications of attempts to consolidate the gains
of the WGs successes in these areas.
The same is true of the
establishment of SIP committee in each of the eleven local
Governments. Perhaps, if a National mechanism exists to provide
technical and financial support, follow-up and consolidation process
would have been given the desired boost in Ibadan, which would have,
in turn, serve as a catalyst to the replication of SCP in Nigeria.
3.4.1.
Institutionalizing
Management
Environmental
39
Planning
and
Nigerian cities have been using traditional planning approach in
addressing urban environmental and management issues of concern.
However with the introduction of the SCP in Ibadan, Kano and Enugu,
things have begun to change. In Ibadan for example, the EPM process
has come to be accepted by the key stakeholders, the State and Local
Governments inclusive. The 11 local governments have demonstrated
their willingness and acceptance of the EPM process as well as its
institutionalisation by establishing an SIP Committee in each respective
Local Government Area. The Local Government SIP Committees were
responsible for making the EPM process a routine practice in the Local
Governments. The objective of each LG SIP Committee was to initiate,
implement and coordinate environmental development activities in the
Local Government. The local governments have also been providing
funds to the TSU to carryout its routine activities.
There is also considerable interest and effort to replicate the SCP in
other towns of Oyo State. Following the appreciation of the principles
and intent of the SCP as demonstrated by the SIP, a few Local
Governments in Oyo State outside the eleven (11) Local Governments
involved in the SIP have shown their intention of replicating the
experience in their own Local Governments. The TSU of the SIP, at
various occasions in the past, has honoured invitations to brief and
sensitize various stakeholders many local government areas.
The Oyo State Government has, in principle, accepted to actively
support the replication of the SIP experience in other major cities of the
State. To commence this initiative, the State Government has started
appropriating funds for the replication exercise in its yearly budgetary
provision since the year 2003. It has also set up a sub committee
known as ‘Technical Committee’ under the auspices of the SIP Steering
Committee to work out the modalities for replication exercise. The
Technical Committee has met and fashioned out modalities for the
replication of the SIP experience in four (4) cities namely Oyo town,
Ogbomoso, Saki, and Eruwa.
In addition, Oyo State is planning to organize a State-wide Consultation
on the replication of the SCP/EPM Process in the State that will draw
participants from all the Local Governments in the State as well as from
other sectors in the last quarter of this year.
40
In Kano, Enugu and Karu, there were strong evidence of changes,
both attitudinal and organisational I accepting SCP principles. In all
these cities, changes were noticed in the areas of better information
collection and sharing, collaboration between agencies in charge of
development management and the identification and involvement of
stakeholders in decision making and development process.
At the National Level, in Nigeria, the replication of the SCP/EPM
process started informally in 1995 following the Ibadan City
Consultation meeting. The Federal Ministry of Works and Housing and
the Urban Development Bank of Nigeria (UDBN) were well represented
at the City Consultation and had useful discussions with officials of
UN-HABITAT and the Project Team at Ibadan. The involvement of the
Federal Ministry of Works and Housing arose out of the fact that the
Ministry has statutory responsibility for coordinating and monitoring
urban development activities nationwide. On its part, UDBN got into the
programme in a bid to strategically position itself for the delivery of
services to the cities and in particular to the Local Governments.
By 1997, two years after the take off of the SIP, the Federal Government
had taken a keen interest in the SCP and had formally expressed the
desire for replication in other cities to UN-HABITAT. With the assistance
of UN-HABITAT and UNDP in Nigeria, the SCP was accepted as one of
the priority areas in which the Government of Nigeria was desirous of
UNDP assistance under the 5th Country Cooperation Framework
(CCF1). The SCP falls under the component National Management of
Socio Economic Development (NMSED). The central focus of the UNDP
assistance is on capacity building for urban management and
development of human settlements through strengthening of Local
Governments and maximizing community participation. This is where
the SCP/EPM is anchored.
The expected output of the Sub-Programme is the consolidation of the
Sustainable Ibadan Project and replication process in Kano and Enugu
during the period 1998 to 2001. In addition, the SCP/EPM was to be
replicated in give (5) additional cities during the same period. However,
over the period, implementation of the UNDP Assisted Programmes has
been very slow, including the SCP/EPM Process replication, due to
political instability and poor coordination at the national level. As a
result, the replication exercise was limited to Kano and Enugu Cities
during this period which has the programme implementation period
extended to the year 2003.
41
To coordinate the Sustainable Cities Programme at the National Level,
the Federal Ministry of Works and Housing (FMW&H) established a SCP
Coordinating Unit in 1997. The Unit achieved considerable progress in
setting the strategies for the replication process. Notable among these
are:
 Negotiating the SCP/EPM Process replication with the
National Planning Commission (NPC) and UNDP and
ensuring its acceptance into the 5th Country
Cooperation Framework (CCF1).
 Assisting in the preparation of Project Documents for
the extension of the Ibadan Project and Start-up of
Kano and Enugu Projects.
 Promoting the replication of the SCP/EPM Process in
five (5) additional cities, which will be funded under the
CCF1.
 Providing technical support to
replication at the Federal level.
the
EPM
Process
To strengthen the SCP Coordinating Unit at FMW&H, the former Project
Manager of the Sustainable Ibadan Project, Mr. Soji Taiwo was
contracted in the year 2000 by UNDP to support the unit as EPM
Adviser. This was in view of his wide experience in the EPM process and
the need to beef up the technical capacity of the Unit. It is pertinent to
note that the technical support being provided by the SCP Coordination
Unit and Technical Support Unit (TSU) at both the Federal and City
levels is indeed limited, as officials in these units have only received
limited briefings and exposure on the programme. The gap in the
delivery of technical support is, however, covered by support from UNHABITAT and EPM Adviser appointed and attached to the SCP
Coordination Unit.
However, in spite of the institutional arrangement at the national level,
very little achievement has been recorded on ground. Out of the seven
cities identified by the SCP Coordination Unit as likely cities to join the
programme (Abuja, Lagos, Onitsha, Port-Harcourt, Kaduna, Maiduguri
and Sokoto) since the year 2000, none have joined.
42
The shortcomings could be attributed to a lack of coherent national
policy and strategy of replicating SCP in Nigeria. It also had to do with
the dismal performance of Enugu and Kano in the SCP through their
inability to produce tangible benefits after participating in the SCP for
over 5 years (See Table 8).
Table 8: Phases of the
Implementation in Nigeria
Item
EPM PROCESS
Ibadan
Enugu
Karu
3.4.2.
Process
and
Time
Frame
Phase I
Phase II
Phase III
Assessment and Start- Strategy and Action Follow-up
up
Planning
Consolidation
3-21 Months
15-21 Months
4-8 Months
18 months
48 months
48 months
(Jan.1994-Oct. 1994)
Kano
EPM
Jan. 1996 – Dec. 1999)
72 months
Started in 2004
(1997-2004)
Started in 2004
54 months
July 1999-2003)
Started in 2003
13 months
(August
2002-Oct
2003)
of
and
(Feb 2000 – 2004)
-
Institutionalizing Inter-Agency Coordination
The current effort of SIP to use key Agencies of the Oyo State
Government as anchoring institutions in its effort to institutionalize
EPM process, has the added advantage of facilitating the
institutionalization of inter-agency coordination. Agencies such as:
 Water Corporation,
 Ibadan Waste Management Authority,
 Department of Survey in the Ministry of Lands, Housing and
Survey, and
 Department of Town planning in the Ministry of Environment and
Water Resources are examples of such agencies extend variety of
assistance to SIP.
The use of these agencies as anchoring institutions has helped in
institutionalizing the EPM process in Ibadan in diverse ways. For
instance, the WGs on Water Supply and Waste Management were
provided meeting venues within these agencies at one time or the other
and the strategies and action plans on water supply and waste
management in Ibadan evolved by these WGs have avail the two
agencies with useful tools to assist them in their operations.
43
The fourth agency of government used as an anchoring institution is
the State Town Planning Department. This Department is under the
Oyo State Ministry of Environment and Water Resources and is the
supervising agency of the State Government for the project. This simply
means that the Project is under the direct supervision of the State Town
Planning Department. By this placement, the Project has an added
advantage of receiving prompt and direct attention and support from
the Oyo State Government. Because of this arrangement the project has
been receiving monthly running cost for the SIP office for over 7 years.
In addition to the anchoring institutions, the projects institutional set
up, especially the Steering and Technical Committees, which are made
of officials from both the states and local governments as well as the
private sector has helped in establishing and consolidating inter-agency
cooperation and collaboration through information sharing and
consensus decision making.
3.4.3.
Local Government Training and Capacity Development
Local government training and capacity building are vital components
of the institutionalization process of EPM. It is on record that both
Ibadan and Kano have been implementing various types of training
programmes for local government officials. The effort of SIP dates back
to inception of the project in 1995. Other efforts of SIP include mini
consultations held in January 1995; November 1996; and a series of
Seminars and Workshops between November 1996 and December
1999. It is not clear the extent to which the train received by the local
government officials have improved their performance through the
development of requisite skills, understanding and routinely applying
them in to decision making in environmental and urban management
and planning.
.
44
4.0 RECOMMENDATIONS
Virtually all the actors (Consultants the cities of Kano, Karu and Enugu,
TSUs of the three cities) involved in the implementation of the SCP in
Nigeria have made use of Tools books, tools and the Implementation
Instruments, in varying degrees, depending on their needs. To that
extent, there is a considerable consistency in the content and, perhaps
quality of the Profiles. Both the Consultants and TSUs relied heavily on
the, related, Tools in at the preparatory stages and in the mobilization of
stakeholders; organizing and conducting their City Consultation;
establishing and supporting Working Group process; and formulating
issue-specific strategies and action plans. Many issues were encountered
in the process. These include:
4.1 Information and Expertise
With the exception of Ibadan where the Environmental Profile was
prepared without consultation and participation of the stakeholders, the
other cities seemed to have managed to produce Profiles that most
stakeholders, especially those in the private sector and civil society,
identified with. They also provided vital information which could be used
by the WGs in Kano, Enugu and Karu. However, very little use seemed
to have been made by the state and local government officials and
Agencies. This can be attributed to low capacity in such Agencies and the
relative newness of the EPM process.
The establishment of EMIS in Ibadan, Kano and Enugu was not only to
provide a very important data base but to provide an effective means
explaining the causes and effects of environmental problems of the cities
to the stakeholders. Some of the EMIS equipment in the cities have
broken down, without the prospect of repairs or replacement. This
perhaps shows that stakeholders, especially the state and local
governments, have not yet fully understood the benefits of EMIS.
4.2 Improving Environmental Strategies and Decision Making
Lack of funds to sustain the operation of WGs and other vital duties
appear to be the universal complaint of all TSUs. Similarly there is near
always the inadequacy of funds to implement priority projects. In most
cases, the communities and other civil society associations involved in
the projects are able to meet their financial commitments to the project.
This in practical terms represents only a small percentage of the total
45
project cost. Some how the governments are still not as forth coming in
their financial contribution to projects as is expected of them. The none
implementation of projects not only tend to demoralise the stakeholders,
but have the overall effect of reducing their willingness to play their part
in ensuring improvement in environmental strategies and decision
making.
4.3 Action Planning
SIP has been successful in facilitating the formulation of Action Plans, in
terms of identifying all actors; technical, managerial and financial
resources required. It has not been as successful in ensuring that those
who are to foot the bills for the projects do so as at when required. This
has tended to frustrate the implementation of their projects and their
eventual, replication. There is a need to establish a funding mechanism
for projects that come out of this, elaborate, process. This is the kind of
incentive that will facilitate a nation-wide replication and consolidation
within the state and local government. This can be achieved within the
context of a carefully developed National Framework.
4.4 Working Groups
Experience in Ibadan has shown that members of working groups when
adequately facilitated can ensure the success of the EPM process.
However, many members of WGs did not show commitment and
dedication due to lack of adequate incentives. Without adequate
incentive, such as seating allowance and snacks during long sessions, it
is difficult to see how the WGs can be made to function effectively.
Experience has shown that majority of the stakeholders simply cannot
afford to spend the time required to deliberate on issues relevant to the
WG, without such incentives. These are areas of assistance to be
extended to a participating city from the National level, or to mandate the
state and local governments to provide their TSUs.
4.5 Demonstration Project
Lack of funds has hindered the implementation of many demonstration
projects in Ibadan. The negative effect is that many communities will
require a lot more persuasion to appreciate the benefits of SCP/EPM
process. Demonstration projects are vital to ensuring the effectiveness of
environmental strategies and decision making.
46
4.6 Follow-up and Consolidation
Just like it is observed, in Ibadan, that the if SCP/EPM process is located
in the within the state administration, as against the local government, it
is equally our view that unless there is an effective National Framework,
perhaps back by appropriate legislation at national level, the follow-up
and consolidation at the local and state government levels will continue
to suffer, due to lack of commitment and financial support. This is the
reality in Nigeria, despite the seeming contraction.
4.7 General Recommendations
Nigerian experience has shown that most of the Implementation
Instruments are yet to be extensively used, to allow for an in depth
assessment of their use and effectiveness or otherwise, by all concerned.
Varieties of factors have been responsible for this situation. Firstly, the
Environmental Profile of Ibadan was prepared with hardly any
consultation with the stakeholders. The Profile was adjudged lengthy and
too complicated for most stakeholders to understand. A real effort had to
be made, later, to sensitize and mobilize the stakeholders.
Secondly, SIP was at its infancy when the decision to replicate it in Kano
and Enugu was made by the Federal Government of Nigeria. The Urban
Development Bank of Nigeria (UDBN) was instrumental to this decision.
The bank itself was, then, in a serious search for effective mechanisms
for building the capacity of the local governments, an integral component
of funding their infrastructure projects. As a subsidiary of the then
Federal Ministry of Works and Housing, it was easy for the bank to make
a case for the replication to the Minister of State, in whose portfolio both
the bank and the Division of Urban Planning, in charge of the SCP, at
federal level, were. The decision to replicate was political, which did not
take cognisance of the sequential nature of the process and the expected
role of the Implementation Instruments to ensure the effectiveness and
sustainability. Though both the (UDBN) and Kano State Government
(KNSG) officials benefited from the visits of the Chief Technical Adviser,
appointed by UN-Habitat for the SIP, his visits were too few and too short
in duration, to build the capacity the officials (UDBN and KNSG) of the
vital role of the Implementation Instruments in the EPM process. It was
equally UDBN that promoted the replication of SIP in Enugu, to Enugu
State Government.
47
Thirdly, the Federal Ministry of Works and Housing (FMWH), as the line
Ministry in charge of urban development and environment, has the
responsibility of developing a national framework for the implementation
of SCP in Nigeria. Their responsibilities include the establishment of an
effective strategy for replicating the experience of SIP; the use; adaptation
of the Implementation Instruments; the development of indigenous tools;
and the institutionalization of the EPM process, based on the
Instruments. However, the FMWH only managed to establish National
SCP Coordinating Unit in the Urban Development Division, at the
insistence of the then Director of Lands and Urban Development (DLU).
The schedule itself was assigned to an officer, who was already in charge
of most of the donor funded projects of the Ministry. His work schedule
did not allow him enough time for the SCP programme. Evidently, the
Unit was not properly established nor effectively funded to be able to
discharge its responsibilities of, among others, providing technical
support to the TSU and facilitating structured replication of SIP in other
Nigerian cities. This factor has been, substantially, responsible for the,
seeming, inability of FMWH, to develop a national framework for the
implementation of SCP and its replication in other Nigerian cities; for
ensuring the customization of the Implementation Instruments and
Tools and their use by the TSUs and the State and Local Governments
involved, in the implementation of SCP and EPM process; and for forging
vital
inter
ministerial
collaboration,
between
FMWH
and
Intergovernmental Affairs required to ensure the institutionalization of
the EPM process. The Federal Ministry of Intergovernmental Affairs
supervises the operation of the states (36) and local governments (774)
including the training and capacity building of the officials.
Fourthly, the appointment of a National SCP Adviser by UN-Habitat to
facilitate the replication of the programme in Nigeria cannot be described
as successful. It would appear the officials of FMWH saw him as stepping
on their jurisdictional toes and as such did not provide him the enabling
environment to effectively carry out his assignment. He eventually
resigned in frustration.
Fifthly, virtually all the Project Managers and most of the staff of the
TSUs were posted to the projects from the Ministries. Without proper
training on the SCP, EPM process and the use of the Implementation
Instruments, they all tend to revert to the laid down procedures in
government in managing the TSU and the various stages of the EPM
process. These tend to be top-down and driven by the expertise of the
professionals, often without consultation with and participation of the
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stakeholders. As such Project Managers have tended to be posted to
other assignments in quick succession that the staff of the TSU become
confused and unable to effectively discharge their responsibilities. This
has tended to provide confusing signals to the stakeholders, most who
had earlier been mobilized; had participated in the information gathering
process during the preparation of the Environmental Profile; and had
become aware of the SCP process and concepts.
Sixthly, as a result of lack adequate knowledge of SCP and the EPM
process, and the role of the TSU in facilitating the process, the State
Governments have tended to assign other functions to the TSU. In Kano
Metropolitan Area for example, the TSU, at a point, became directly
involved in the implementation of community based infrastructure
projects such as the construction of drainage channels and access roads
etc.
These factors have combined to reduce the ability of the TSU to make
effective and intensive use of the Implementation Instruments and Tools.
This has severely reduced the chances of carrying out an in-depth
assessment of which tools were useful; what gaps were identified; how
they can be improved; and the future capacity building agenda to be
proposed, relative to the experience of using the Implementation
Instruments and Tools.
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5.
GENERAL CONCLUSION
Two critical things need to happen in Nigeria if the country is to drive the
full benefits of SCP and to institutionalize EMP process at state and local
government levels. First of all an institutional framework has to be
established at the federal level for the implementation of SCP. The
Federal Government should establish a Division, within the newly
established Federal Ministry of Housing and Urban Development, of
Urban Environmental Management, to be charged with the responsibility
of policy formulation and setting standards for the states and local
governments. It will also establish national criteria to guide all cities
interested in joining the SCP and replicating the experience of SIP. It will
develop a capacity building programme for the states and local
governments, based on the use of the Implementation Instruments and
Tools; and funding mechanism to support all preparatory processes
including financing demonstration projects.
The Division in particular and the Federal Ministry of Housing and
Urban Development has to develop an effective, inter-ministerial
collaboration with the Federal Ministry of Intergovernmental Affairs,
which supervises the operation of States and Local Governments and is
responsible the capacity building of their officials. It will become
extremely easy to achieve the following objectives that critical to the
sustainability and institutionalization of the SCP and EPM process, by
making a more extensive and effective use of the Implementation
Instruments and Tools:
i. Selection of states and local governments to participate in SCP;
ii. Identification of stakeholders in participating local governments;
iii. Increasing awareness of participants about the SCP process and
concepts;
iv. Develop Environmental Profile that all stakeholders will identify
themselves with and will attract requisite funding for its
implementation and political support from all tiers of government
(federal, state and local); and
v. Identifying key environmental issues and their management
implication.
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