© Arts and Social Science Research, Vol.

12 No 2 (December, 2022) 129

AN ASSESSMENT OF THE EFFECTS OF HOUSING POLICY

ON THE DEVELOPMENT OF THE LOKOJA METROPOLIS

David Kumije,1
Rosemary Nneoma Barnabas2
Ikani Achimugu3

ABSTRACT
This study assesses the effects of housing policy on the development of
the Lokoja metropolis. Both primary and secondary data were used for
the study. In achieving the objective of this study, the authors x-rayed
the concomitant effects of housing affordability viz-a-vis the efforts of
the most recent administrations of Kogi State in housing provision.
Premised on the Orthodox Market Theory, the study discovered that
indeed the increasing cost of building materials arising from
inflationary trends has significantly affected housing affordability in
Lokoja Metropolis. Therefore, among others, the study recommends
that government should be more responsive to the housing needs of the
people in the provision of quality housing, especially in the adoption of
low-cost housing schemes to facilitate and strengthen the linkage
between the government and the masses. The study also suggests the
introduction of a Skill Development Fund to equip the communities and
businesses with the relevant skills required to raise funds for the
provision of quality housing

Keywords: Effects, Housing Policy, Development, Metropolis, and

Affordability.

1 David Kumije is with the Department of Public Administration at Prince

Abubakar Audu University, Anyigba. Kogi State. Nigeria,
[email protected]
2Rosemary Nneoma Barnabas is with the Department of Public Administration at

Prince Abubakar Audu University, Anyigba. Kogi State. Nigeria.

3 Ikani Achimugu is the Deputy Registrar (Council Secretariat) Prince Abubakar

Audu University, Anyigba. Kogi State. Nigeria.

130 © Arts and Social Science Research, Vol. 12 No 2 (December, 2022)

INTRODUCTION
Housing is one of the three basic needs of man and it is the most
important for the physical survival of man after the provision of food
(Turner, 1983; Munonye, 2009 and Olayiwola, 2005). It has a profound
influence on the health, efficiency, social behaviour, satisfaction, and
general welfare of the community. Okedele (2009) opined that, in the
evaluation of man's comfort, growth and development, it is inevitable
that housing is considered a critical element.
This issue was highlighted at the United Nations Conference on
Human Settlement (Habitat 1) which was held in Vancouver, British
Columbia, Canada in June 1996 and during the international year of
shelter for the homeless in 1987. This emphasizes the importance of
providing adequate and affordable houses in every human society and
dispensation. The United Nations Organisation (UNO) (1996) affirms
this by declaring that housing is very crucial to the survival, welfare,
and health of individuals.
Consequently, serious attention has been given in many
developing countries to housing problems and housing policies to
address the problems. Nigeria ranks among the rapidly urbanizing
countries in Africa and the challenges therein, especially in the
provision of adequate housing and basic services (FMR&UD, 2003).
With a population of 140 million people plus (preliminary census, 2006)
Nigeria is the most urbanized country in population in black Sub-
Sahara Africa. The United States Census Bureau projects that the
population of Nigeria will reach 264 million by 2050 and that Nigeria
will be the 8th most populous country in the world (Wikipedia, 2007).
Over the years, governments had embarked on several housing
intervention programmes, intending to make housing available and
affordable to the majority of the population. These housing
interventions are reflected in the annual budgetary provisions for
housing urban development, and the establishment of an institutional
framework for housing development (Diogu, 2006). According to
Aribigbola (2009), despite the various efforts of government,
individuals and agencies both locally and internationally to improve
housing provision in Nigeria, housing problems particularly shortage
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and affordability persist. This lends credence to the growing

international concern over the issue. It is on this premise that the major
objective of the paper is to assess the efforts of two regimes of Kogi State
in addressing this predicament.

PROGNOSIS
Lokoja town progressively metamorphosed into a metropolitan
city immediately after the creation of Kogi State in August 1991. The
rapid increase in population, coupled with an increase in the rate of
urbanization had led to the unplanned and uncontrolled expansion of
Lokoja town. Consequently, this scenario has caused tremendous
pressure on civic infrastructural systems, generated housing problems,
and an unkempt environment among others. There are increasing rise
in slum conditions which has un-denied consequences on the socio-
economic lifestyle, health of residents, and the general outlook of the
town. Uncontrolled development has led to haphazard development
and excessive densification of the plot area in Lokoja.
Ola, (2015) maintained that although it is a State Capital that has
a development plan, residential plots were allocated by the local chiefs
who sell out land without any improvement in the form of provision of
community facilities. Most of the houses were constructed without
planning approval or permit. The majority who did not get permits saw
no reason to do so, a sign of a lack of awareness or lack of measures to
compel them to do so.
Apart from the unauthorized construction, there have been
developments, which though legally authorized, are unplanned and
disorderly. The reasons for this can be traced to several factors, such as;
inadequacy of development control rules, absence of proper authority
to enforce development control rules, and lack of monitoring of the
development. This made Bentinck (2000) describe such an area as an
administrative twilight zone. The Town Planning Board, the Local
Government Council, and communities execute various responsibilities
in the fringe areas of Lokoja; but which are not structured to handle the
challenges of urbanization. This condition gives room for the informal
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process of land use development to thrive as government-level actors

lack the capacity to execute their mandates.
The resultant effect of the above is the increasing cost of housing.
Generally, the cost at which the house reaches the market will go a long
way to determining affordability. The income of an employee
determines his ability to afford a house. Where per unit cost of building
is abnormally high as we have today, the simple implication is that few
people will be able to afford it (Bello, 2008). The limited finance
available will not be able to spread around the potential homeowners.
Accordingly, the gap between income and shelter costs in Lokoja is
increasingly very wide. This has eliminated low-income earners from
the housing market. According to Bello (2008), the high cost had been
attributed to the following: the rising cost of building materials, the
inflation rate in the economy, high space and quality standards adopted
by designers, fees of professionals involved in designs and construction,
excessive profit of contractors among others.
The average income of Nigerians is too low to support the
construction of buildings within a short or even medium period
(Opaluwa, 2010). Many even find it difficult to cope with regular and
prompt rent payments. This makes the aspiration of the average Lokoja
person to own a house or occupy an adequate rented apartment.
Ademiluyi and Raji (2008) explain that a recent World Bank report
noted that two of the most critical urban development issues facing
Nigeria are the financing of urban infrastructure and the institutional
arrangements for housing delivery in urban centers. This is true of
Lokoja Metropolis. The provision of basic utilities and services
particularly housing is partly the responsibility of the government,
which has been handicapped in recent times by declining political will
and corruption. ,

CONCEPTUAL CLARIFICATION
Housing
Housing refers to the physical structure that man uses as shelter and the
facilities/ amenities and other aspects of the social environment which
link man with his remote and immediate environment. Housing is not
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only a building hut that comprises all inbuilt amenities that make life
comfortable for the inhabitants (Zanuzdana, 2012). It embraces all the
environmental qualities that make a particular dwelling unit livable.
The escalating housing problems are the resultant health
problem that has made the government see the need for intervention
leading to the formulation of the Nigeria National Housing policy
whose ultimate goal is to ensure that all Nigerians own or have access
to decent housing accommodation at affordable cost. Although all
countries regardless of the average standard of living, there is a large
section of the population that cannot afford what can be regarded as an
adequate standard of housing.
Nigerian government over the years at every level of
government recognizes the fact that housing problems are multi-
faceted, the most visibly tackled of these problems is that of quantitative
deficiency of houses in stock. Each prospective government realized
that the most vulnerable group when it comes to housing deficiency is
the low-income group. Irrespective of the realization of this not
objective, the low-income group in the country is still bedeviled with
the myriad of housing problems notable among which include
quantitative deficiency and their inaccessibility to decent housing. It is
not uncommon to conclude that the poor for the reason of affordability
cannot access decent accommodation. Government programmes on
housing over the years are claimed by the government to be directed
towards helping the poor to meet their housing needs, none of these
programmes have succeeded in ameliorating housing challenges
confronting the poor, from direct construction of low-income housing
to site and services scheme of government, adequate housing remains
elusive for the low-income group.

HOUSING POLICY
A policy is a conscious system of principles meant to guide
decisions and secure rational objectives. A statement of intent is
generally implemented as a procedure through programs. It is a
guideline provided by the government which is aimed at meeting
specific objectives or needs that may entail fiscal, institutional, legal,
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and regulatory frameworks. Policy according to Sulyman, (2000) is a

statement on paper by the government or an establishment as regards
the way and manner in which identified problems could be mitigated.
Because of this, different sectors of the economy have policies that are
used in tackling peculiar problems.
Housing policy can therefore be seen as a tool that is used in
overcoming housing problems, and consequently for the achievement
of sustainable housing. Housing policy can therefore be seen as a
statement of intent to achieve given housing objectives.
The housing policy of the colonial era was characterised by the direct
provision of housing through the provision of staff quarters for
expatriates and other indigenous staff of the multinational
organisations and the administrative officials of the colonial
government.
The housing policy in the 1980s and 1990s placed more emphasis
on building societies and mortgage provisions. In all of these, the rural
areas were neglected, leaving the qualitative issues in this part of the
country unattended whereas the housing stocks in the urban areas were
improved upon (Ibimilua and Ibitoye, 2015).
Housing shortage in urban centers accentuated by a high rate of
urbanization prompted this selective attention by the government. The
military era improved the housing delivery policies met on ground. The
period between 1979 and 1983 witnessed tremendous improvement in
the provision of public housing. Direct construction of supposedly low-
cost housing was vigorously pursued, while governments at both the
state and the federal levels set specific targets of delivering a large
number of low-cost housing units. The laudable goal and the vigour at
which this was pursued were marred with harp corrupt practices and
politicization of the scheme. Houses delivered then ended up being too
expensive and indirectly inaccessible to low-income earners, while most
at then were built in poor locations. The military coup of 1984 though a
necessary evil truncated the housing delivery target of the civilian
government. The military era that came on board (1984-1999) equally
showed a pious intention of meeting the housing needs of the poor.
Housing finance seems to preoccupy the policy framework of the
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successive governments of this era. This was enhanced by the

promulgation of the Mortgage Institutions Decree No 53 of 1989. The
decree promoted the realization of the major and specific objectives of
the National Housing Policy.

HOUSING AFFORDABILITY
Agbola (2005) noted that for housing to be affordable for low-
income earners, it must be tailored to the total income level. Inexpensive
housing is used to define dwelling units whose total housing budgets
are considered reasonable to a group of people in a definite salary scale.
Housing becomes affordable only if it meets the 30% test (Adediji, 2006).
A review of city housing in Nigeria points out that rental fee accounts
for about 60% of the income of an ordinary worker with the remaining
40% for food, clothing, health, transportation, and other requirements;
a percentage that tosses the wage earner into extreme insufficiency.
This completely ignores the United Nations' description of
inexpensive housing. Affordability is hence the fundamental of any
societal housing scheme. If the system is not low-cost, then it is not
justifiable. Adedeji (2006) stated that a household survey in Nigeria
indicates that accommodation takes a generous portion of a salary
earner and has remained a standard for judging any regime’s
performance in the socio-economic and political spheres of a country.
The private sector understands housing from a broad viewpoint
than the public sector, because humans are measured by the kind of
houses they live in and their location. This means that the category of
house one occupies is a measure of his/her personality and economic
worth in society. In Nigeria, the drive toward achieving housing for all
is continuously becoming an illusion due to the size of the population.
With about 200 million in population and an estimated housing need of
over 1 million which is always rising as the day goes by, this has become
a hard task.
A great number of city residents in Nigeria live in shanty towns
and derelict homes short of simple conveniences, unhygienic
surroundings, and water. With the emergence of a different National
Housing plan and the resurgence of numerous primary mortgage
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institutions (PMIs) in the last 15 years, either as independent or as

businesses of depositary organizations coupled with an aggressive
operation of the private developers, the housing needs are far from
being realized (Nubi, 2000).

FACTORS AFFECTING HOUSING AFFORDABILITY IN NIGERIA

Factors such as high rural-urban migration, High cost of
building materials, difficulty in purchasing land, poor maintenance of
existing buildings, and poor implementation of government policies are
key among the various factors affecting the shortage and provision of
affordable housing.
Measures such as the provision of basic amenities (light and
water, etc); the use of good building materials that have longevity; and
access to credit facilities to assist the building of their houses with a low
or possibly no interest rate will in no doubt be the needed panacea.
In metropolitan cities such as Lokoja, high rural-urban migration is a
major factor contributing to the shortage of affordable housing. High
population growth drifts constantly to urban areas, with corresponding
inadequate measures for the provision of affordable housing for the
populace giving rise to slum and squatter housing; an offshoot of
overcrowding that results in high building density and high occupancy
rate. Thus, the large population of people in the urban centre is a
continuous challenge to the accessibility of affordable housing in its
urban cities.
There are always changes in population as a result of people
migrating into the urban cities of Nigeria. Migration is said to occur
both on a short-term or long-term basis depending on the conditions in
which people find themselves. As a result, the proportion of the
Nigerian population living in urban centres has increased
phenomenally over the years. This has created severe housing
problems, resulting in overcrowding, shortage of housing, and a
situation in which about 60% of Nigerians can be said to be 'houseless
persons'.
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Moreover, poor planning and maintenance of existing buildings

contribute significantly to the shortage of affordable housing. For a
structure to remain durable, there must be a good maintenance policy
in place. Where buildings are not maintained and have been allowed to
deplete for a very long time, the rehabilitation and renovation become
costly and capital intensive, and sometimes properties are abandoned
rendering them unusable and depleting the existing housing stock.
Similarly, arising from poor maintenance culture, most occupants also
destroy their houses and associated facilities to a condition where they
become inhabitable and are eventually abandoned. In some cases,
houses are subject to a high risk of fire incidents, thus houses are
engulfed by fire, especially during the dry season, and left abandoned.
These buildings are not rehabilitated both by individuals or the
government and over a long period the properties completely
deteriorates, decay, and are destroyed.
The use of inferior building materials is another factor resulting
in the shortage of affordable housing. Buildings rapidly decay because
of the use of poor quality (inferior) building materials in the
construction; this largely impacts the life expectancy of the existing
housing stock and the long-term durability of the buildings. This
depletes existing housing within a few years, thereby not meeting any
aim towards sustainability, and not addressing the needs of the present
generation as well as that of future generations.
Furthermore, high rental costs are identified as another
significant factor with many people usually commenting that people
living in government low-cost housing estates are mostly middle-
income earners. This is because government housing programmes in
terms of building design do not respond to the targets of the low-income
population in the long term and has resulted in the middle and high-
income earners who have the finance to highjack the completed
developments
More worrisome is the fact that the majority of the populace has
difficulty purchasing land to build, lack of finance, access to credit
facilities, lack of insurance policies to share risk, high cost of labour to
build, and high cost of building materials as a major drawback to
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providing, building and owning a house. The Nigerian Land Use Act of
1978 vests all land in the government making this an obstacle to land
available for housing development. Unfortunately, in the Lokoja
metropolis, there is no mechanism for risk sharing and insurance
policies that will encourage banks and other financial institutions to
extend mortgage loans to people at the lower income level.
This is because Nigerian financial institutions settle for lending
to the rich. There is also an absence of a National credit database that
can provide credit information for all individuals that enjoy financial
services in any form. With the Nigerian building industry largely
dependent on imported foreign building materials and considering the
current economic crises of the country resulting in high exchange rates;
there is a drastic rise in the cost of building materials. These factors have
significantly hindered the provision of affordable housing.
Accordingly, it could be safe to aver that the government is
responsible for the challenges facing the provision and shortage of
affordable housing. Inadequate provision of basic infrastructure by the
government, corruption, poor implementation of housing policies, and
economic melt-down are identified as key reasons why the government
should be held responsible. It is worth mentioning that, over the years,
the Nigerian government has enacted various housing policies and
programmes aimed at providing affordable housing. These
programmes have been unsuccessful because of corruption; a situation
where contractors divert and embezzle money meant to execute a
project and leave it abandoned. Most housing programmes lacked
continuity with changes of government, and inadequate funding of
most of the projects have all led to the shortage and or provision of
affordable housing.

OBJECTIVES OF THE NATIONAL HOUSING POLICY

It is pertinent here to state the objectives of the National
Housing Policy because the ultimate goal of the Policy is to ensure that
all Nigerians own or have access to decent housing at an affordable
cost by the year.
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To achieve this laudable goal, the Government decided to pursue the

following policy objectives among others:
i. Encourage and promote active participation in housing delivery
by all tiers of government;
ii. Encourage greater participation by the private sector in housing
delivery.
iii. Establishment of an appropriate institutional framework to
facilitate effective planning in housing supply;
iv. Restructuring all existing public institutions involved in housing
delivery at the federal and state government levels to make them
more effective and responsive to the needs of all Nigerians;
v. Reviving existing laws and regulations, such as the Land Use
Decree, the planning laws, etc., to facilitate housing provision;
vi. Improving the finances and strengthening the executive capacity
of local governments to enable them to contribute more
effectively to housing delivery;
vii. Upgrading and rehabilitating low-quality or sub-standard
houses in urban areas as a step towards improving the quality of
the environment;
viii. Providing sites and services to facilitate home ownership and
orderly urban and rural development.
KOGI STATE GOVERNMENT HOUSING POLICY
In concrete terms, Kogi State has no Housing Policy as a draft
but rather domestication of the National Housing Policy which
mandates states to leverage upon. The goal of the housing policy is to
adequately house everybody in good housing, in a good environment,
and at an affordable cost. Successive regimes in the state have made
concerted efforts in light of the above for example, Governor Idris
Ichalla Wada (2011-2016), constructed 272 units of Housing Estate in
2014 at Lokoja for the flood victims and pledged to replicate the same
to all the Local Governments affected by the natural disaster in the state.
Again, under his regime, the Kogi State Property Development
Corporation built over 200 Housing units in 2014 at Crusher-Felele, the
outskirts of Lokoja along the Lokoja-Okene-Abuja Expressway.
Furthermore, by the first quarter of 2015, his Government signed a
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Memorandum of Understanding (MOU) with the Public Private

Partnership (PPP) to construct 405 Houses for civil servants in the State.
Accordingly, by the end of 2015, the two phases of 105 and 170
Housing units had been completed. This was to be given out to civil
servants in the state at a moderate cost of 3 million naira for one
bedroom, 4.5 million naira for two bedrooms, and 6 million naira for
three bedrooms (The Graphics March 2016). Unfortunately, his 4-year
regime came to an end in January 2016 having lost the gubernatorial re-
election bid in the last quarter of 2015. As part of the efforts to ensure
affordable houses for all in Kogi State, the regime of Governor Yahaya
Adoza Bello (2016 to date) has signed a memorandum of understanding
(MoU) in partnership with a private developer, Onyx First Risers
Limited, to provide 1,000 units of an affordable housing scheme in the
state.
There has not been practical actualization of this. It should not
be forgotten that the major problem that often hampers the
implementation of government projects is the lack of budgetary
allocation and funding. The signing of a Memorandum of
Understanding (MOU) without cash-backing is more of political
propaganda which successive Nigerian Governments are known for.
SUMMARY
The rapid increase in population in the Lokoja metropolis is due
to the influx of rural/urban migration as a result of Lokoja being the
State capital is the cause of the rapid increase in housing challenges. In
the cause of the fieldwork, it was revealed that housing affordability is
a major challenge as more and more people are not able to access
housing because of cost. Moreover, the study shows that the failure of
the government to understand the housing needs of the people has
increasingly made the government unable to meet the housing needs of
people.
What is more, the cost of building new houses due to the
inflationary price of building materials was discovered to be a major
challenge. The study equally revealed that the cost of housing in the
Lokoja metropolis has increased the living standard of the people. On
© Arts and Social Science Research, Vol. 12 No 2 (December, 2022) 141

housing policy, the study discovered that majority of people in the

Lokoja metropolis are ignorant of the existence of Housing Policy.

According to the study, the major challenges in the

implementation of the Housing Policy include but are not limited to
inadequate funding for housing, cost of building materials, and lack of
continuity of government policies. Lastly, the study revealed that
strategies for effective implementation of the Housing Policy in Kogi
State include among others, the institution of a well-monitored housing
fund and that government should muster more political will and be
practically responsive to the housing needs of the people.

CONCLUSION
Housing is a basic necessity of life without prejudice to economic
conditions. Despite this, the housing problem is universal. In Nigeria, it
exists in urban and rural places. The housing problem in urban places
takes the form of slum dwellings, homelessness, overcrowding,
squatter settlements, and substandard housing units. In rural areas,
poor housing quality, deficient environmental conditions, as well as
inadequate infrastructural facilities, are the order of the day.
The policy instrument is one of the ways of tackling housing
problems. In this sense, the Kogi State government should rise to
address housing problems. The government should spell out a line of
action in its housing policy to include construction technology, housing
finance, land and infrastructure, building materials, labour
management, housing allocation, monitoring, and review.

The Nigerian housing policy was well conceived with the

fundamental elements of feasibility, affordability, and the limited time
frame required for the completion of the programmes. To some extent,
the various policies and programmes of housing in Nigeria have been
able to make significant improvements in housing production and
delivery. The housing policies provided guidelines for housing
construction, maintenance, and delivery. Kogi State Government
should key into these aforementioned programmes.
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Although the policies and programmes are besieged by

shortcomings like poverty, ever-increasing costs of construction and
building materials, homelessness, weak institutional frameworks for
housing delivery, administrative bottlenecks in plan approval and
collection of certificate of occupancy, programme monitoring as well as
review, the political will of government can make a considerable
difference. To this end, this study recommends the conscientious will of
the government in being responsive to the housing needs of the people.
Accordingly, it could leverage on supply of infrastructural facilities,
encouragement of the use of local materials, as well as low-cost housing
scheme. Other recommendations are finance of housing policies and
programmes, slum upgrading, institutional support for housing
construction and delivery, implementation, monitoring, evaluation,
and re-appraisal of policy. These are the canons of sustainable housing.

RECOMMENDATIONS
The major aim of housing policy is to solve housing problems.
In order to achieve this, there is a necessity to enhance the workability
of the policy. Consequently, the state housing policy (if available)
should be reviewed periodically to make it functional and acceptable.
Apart from this, to attain effective housing delivery, there should be
access to land, finance, and building materials. This should be
complemented by the provision of infrastructure, and housing
maintenance, as well as the encouragement of insurance companies in
building and selling houses at affordable prices. Also, the
implementation of housing policy should take cognizance of low-
income earners. Consequently, there should be a provision for low-cost
houses for low-income families.
In considering the low-income earners, local building materials
should be encouraged. Moreover, realistic housing objectives must
consider slum upgrading, periodic repair, and maintenance, as well as
urban renewal. Housing delivery strategies should include institutional
frameworks, housing finance, low-income rural housing, and urban
prototype government housing. Apart from government intervention,
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the private sector should be encouraged in housing production with the

aid of incentives, loans, and subsidies. In addition, the Federal
Mortgage Bank of Nigeria which is saddled with the responsibility of
guiding and controlling the operations of mortgage institutions should
be empowered financially to perform more regulatory functions in the
housing market.
Furthermore, building land should be readily available and
accessible to potential builders. Similarly, the process of building plan
approval and issuance of a certificate of occupancy should be made
faster and less cumbersome. Also, mass production of building
materials should be encouraged. This will make the materials to be
affordable to the poor. Apart from mass housing, another feasible
solution to the housing problem is to encourage individuals to build
their own houses with the aid of a low-cost scheme. Above all, the
government should facilitate the development of the Building Materials
Producers Association of Nigeria (BUMPAN), the Real Estate
Development Association of Nigeria (REDAN), and other associations
in the housing industry. Finally, public policy decision-makers need to
understand the relevance of policy research as an important ingredient
of housing delivery. Such research should focus on the goal and
objectives of the housing policy vis-a-vis its implementation,
monitoring, and review. These are the concomitants of sustainable
housing policy.

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