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BUILDING CLEAN CITIES IN NIGERIA: AN EXPERIENCE OF DEVELOPING THE NEW FEDERAL CAPITAL CITY, ABUJA, NIGERIA

Tpl. Nathaniel Atebije FNITP Deputy Direc tor ,

Monitor ing and Enforcement Divis ion, Deve lopment Contro l Department , Abuja Metropol i tan Management Counci l (AMMC),

Federal Capita l Terr i tory Adminis trat ion, (FCTA), Abuja-Niger ia

Tpl. Sherif Y. Razak. MNITP

Ph.D Scholar, School of Built Environment (SoBE)

University of Salford, Greater Manchester, UK. s.y.razak@edu.salford.ac.uk, sherif_razak@outlook.com

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1.0 Introduction

Abuja became the administrative headquarters of Nigeria as a result of visible evidences that

Lagos was constrained and overloaded with responsibilities beyond its physical capacity.

There were constraints on availability of land for development and expansion as well as

imminent environmental insolvency. The military administration under the leadership of

General Murtala Mohammed took a decision to set up the Aguda Panel to seek out possible

areas for the relocation of the seat of government to relieve Lagos of the pressure. This

Panel recommended Abuja which had the advantages of sparse population, vast virgin land

and geographically central within the nation. This recommendation was accepted by the

government and physical planning consultants were commissioned to prepare the regional

and masterplan for the Territory and the City respectively. In the concept of the plan, the

City was designed to be aesthetically pleasant, legible and clean.

However, in the course of implementation, challenges in logistics, technical capacity and

paucity of funds and to some extent political will made it difficult for plans to be realized as

originally envisaged. These constraints led to indiscriminate developments, impunity, and

abuses which made the City to loose its planned form, shape, size and beauty.

The agencies of government have been on their beats in the effort to restore the image

originally conceived through re-planning, controls and sanctions. These are said to have

caused some discomfort on citizens as they lose their illegally built structures to demolition

and other city management enforcement activities. The activities of the agencies of

government have become lessons of experience in restraining illegal developers and

demanding pro-activeness, courage and professionalism in the way planners carry out their

assignments. But on the whole, the City of Abuja gets better by every action of the agencies

responsible for its management.

This chapter takes an overview of the root causes of urbanization in Abuja and its impact on

the process of development. It projects the efforts of government to restore and maintain

sanity in the development process and to re-create the aesthetic pleasantness as well as

issues related to health, economy, safety and convenience of the dwellers in the City.

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1.1 THE CHALLENGE OF URBANIZATION

Increasingly, the trend of growing suburban sprawl, traffic congestion, urban crime/security

challenges and sanitation problems in cities in the global south region is on the rise with diverse

implications on excessive use of land, loss of productive time due to prolonged travel time, traffic

accidents, air pollution and environmental challenges. These situations and implicit challenges no

doubt impact the sustainability index of global south cities.

Evidences show elaborate plans which provide framework for the effective development of these

cities. The provisions of these plans include designated green spaces for creating equilibrium

between physical development and natural systems. The spatial and functional differentiation of

uses permitted by the application of zoning and landuse distinction has created mobility patterns

that generate trips between activities (UNHSP, 2009). This, therefore, makes the efficacy of the

plans rather equivocal. Notwithstanding, the performance levels of these plans have helped to create

framework for the development of compatible landuses in these cities.

The plans have produced sub-optional results expressed in the challenges, and the persistence of

similar trends and symptoms. The trend of these challenges in this region may not be astonishing, as

several research evidences have recognized that cities in the global south region are institutionally

weak (UNHSP, 2009) with widespread challenges of spatial development which ramifies inefficient

usage of land, unplanned informal development and activities on roadway corridors, traffic jam,

traffic accidents and air pollution.

Several studies posit that the challenges facing these cities may further be worsened as a result of

the prediction that majority of the urban population growth through to the next half of this century

(2050) will take place in institutionally weak cities in the region (UNHSP, 2008). The trends may

undoubtedly further stress and exacerbate the prevailing challenges in this region to negatively

impact on the quality of human settlements in terms of their functionality, hygiene, aesthetic quality

and cleanness. This is because, the current responses to this unprecedented population growth has

been poorly anticipated and managed as evident in the increasing development of informal

settlements and activities which impact on the clean and green character of the suburban areas. By

this, the impact of planning has been majorly felt in the inner part of cities in the region, even the

core cities are already showing evidences of ineffectual response to the stress of urban population

growth in view of the lean resources and weak institutional capacities.

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This chapter intends to examine the institutional framework and capacities deployed to implement

the plans for the City of Abuja and the effectiveness of the strategies especially in the face of the

rapid population growth. It is further intended to proffer suggestions to address observed challenges

in the implementation process.

2.0 BACKGROUND

Unequivocally, rapid urban population growth in the global south cities has emerged as stressors to

the efficient functioning of cities. The evidences provided by the UNHSP report, revealed

urbanization as the major factor compelling institutional change across cities (UNHSP, 2011,

Matthews, 2011).

2.1 Unprecedented Trends of Urban Population Growth

Today, we live in a rapidly urbanizing world with several research evidence illustrating that cities

are growing at unprecedented rate. In line with studies by the UN-Habitat, it was posited that in

2008, half of human populace lived in cities, and it is predicted to rise to 70% by 2050. According

to the prediction, the global north region will have 86% of its population as urban residents, global

south region will have 67% urban dwellers, and within the global south region, the increase is

expected to be 61.8% and 66.2% in Africa and Asia respectively (UNHSP, 2008). In further

illustration of the huge magnitude and consequences of this movement, it was reported that “the

world would have to build one city of 1 million people every five days for the next 42 years to

accommodate the massive rural-to-city migration and the natural population increase that follows”

(Cohen cited in Pierce and Johnson 2008). Similarly, it is predicted that by 2025, twenty-six (26)

mega cities withholding more than 10 million persons will emerge, in which 22 of the mega cities

will be located in developing countries (UNFPA, 1999 cited in Jenks, 2000). Further, it was posited

that the bulk of the new urban growth, will occur in small and medium-sized often institutionally

weak cities of 500,000-2,000,000 persons (UNHSP, 2009).

While some cities are experiencing low growth rates (1-2%) and contributing less to urban

population growth trends (e.g. Kolkata, Chennai Recife, Algiers, Alexandria, Maputo and Lusaka),

other are experiencing high population growth with annual rate of over 4% (e.g. Bamako, Abuja,

Kinshasa, Ouagadougou and Sana’a). See figure 2.1.

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Source: Adapted from Pravettoni, UNEP/GRID-Arendal (2011) (http://www.grida.no/graphiclib/detail/urban-growth-

rate- in-africa_12bb)

Figure 2.1: Urban Growth Rates in Africa

These current trends suggest that their population will double in about 17 years. Shenzhen and

Shangqui cities in China experienced exceptionally high annual growth rate of 17% in the 1990s

(UNHSP, 2008). All these cities including Abuja will indeed experience this phenomenal growth

and will increasingly need public investments and leverage of existing weak institutional capacities

to cater for this phenomenal growth. These evidences indicate that majority of the fast growing

cities are located in the global south region. In the absence of strategic policy response and

initiatives to anticipate and address this present and predicted population growth, the trend may

undoubtedly have implication on spatial development, mobility demand and resource consumption

and the cleanness of the city especially for cities in this region.

2.2 Stress and Implications of rapid urban population growth.

With cognizance to the trends described above, the implications have been described as varied with

diverse consequences that inhibit the efficient functioning of the city. These include sprawling

suburban development, informal development and activities on designated un-developed open

spaces, roadway corridors, traffic congestion and urban heat island effect.

i). Sprawling informal suburban development

The inadequate capacities of institutions in this region permit poor timing and anticipation of urban

population growth. This therefore led to the growth of informal suburban spatial development in

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cities to absorb the pressure of unprecedented population growth (Satterthwaite, 2007).These

suburban settlement growths are majorly characterized by informal, un-regulated and unplanned

development with poor services which depicts dormitory settlement of low income spectrum. These

trends are not only attributed to stress created by unprecedented population growth but largely

because the capacities of planning institutions are inadequate to cope with providing plans and

services to shape the growth and development of the suburban settlements.

ii). Informal development and activities on designated open spaces

The growth of informal developments and activities (shanties, on-street trading) on designated

green spaces and road corridors generate the flow of un-anticipated vehicular and pedestrian trips

and therefore inhibits the effective functioning of the land uses. This situation results in part from

the lack of effective plan monitoring and enforcement mechanism, and partly due to the differences

in the priorities of successive governments, and the lack of sustained acceleration of efforts and

initiatives directed at realizing the goal and objectives of the city plan. The trend no doubt typifies

the character of the inner part of most global south cities due to the ineffective institutional

capacities (UNHSP, 2008) and, therefore, dwarfs the sustainability index.

iii). Traffic Congestion

It has become increasingly unequivocal that mobility in cities is a critical enabler of economic

growth and development in cities. The corresponding mobility demand stemming from the

unprecedented urban population growth in cities of this region has been matched with ineffectual

adhoc responses that emphasize permissive environment for the proliferation of automobile usage

(Schaefer and Victor, 1997; WBCSD, 2004; Fulton 2004;) at the expense of integrated public

transport system. With this situation held constant, the situation is further exacerbated by the further

reduction of the effective capacities of roadways by informal activities and generation of wastes on

the streets by street hawkers and itinerant traders. Traffic congestion therefore results in majority of

the roadways especially during peak hours, and this impact on travel time which culminates into

economic loss, and transport related air pollution and greenhouse gas emissions.

iv). Urban Heat Island Effect

The trend of growing informal activities on designated open/green spaces, and the sprawling spatial

pattern in majority of the suburban settlements of global south cities bring to fore the impact of

urban heat island. The predominance of hard surfaces and reduced level of green surfaces spur the

creation of urban heat island. This effect is further revealed by the trend of increased surface air

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temperature stemming from global climate change impacts. Thus, with the continuing trend of

predominance of hard surfaces, which is permissive to the growth of urban heat island, the

disequilibrium in the microclimate of these global south cities, and the extremities from increased

surface air temperature is imminent.

The aggregation of these implications on the nature and system of cities in the global south region

reflects significantly low level of achievements in terms of the cleanliness and greening. Global

north cities are located in the developed region. The challenges of cleaning and greening of cities

are less obvious, because institutional capacities to implement the provision of plans abound and are

effective. The challenges of urban heat island in this region may be obvious in cities characterized

by extensive sprawl and predominance of hard surfaces (Oke 1973; Raven, 2011).Without a

substantial leverage in the capacities of global south cities, the resulting externalities from the trends

described above may continue to inhibit the optimum functioning of these cities and further

deleverage the sustainability index of cities in these regions.

2.3 The Concept of Sustainable Urban Development, and Clean and Green character in cities.

Notwithstanding the varied illustration of the challenges implicit to sprawling spatial pattern of

cities in literatures, the consensus on shifting from this pathway has been rather equivocal.

Increasingly, in the realm of policy initiative, smart growth approach that emphasizes the concept of

sustainable development and efficient use of resources is gaining recognition as illustrated by the

acceptance of the arguments that low density cities promote excessive use of energy by the 1992

United Nations Conference on the Environment and Development (UNCED) held in Rio de Janeiro

(Brazil). The European Green Paper 1990 equally promoted the idea of compact cities (Mindali et

al. 2004, cited in UNHSP, 2009).

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Environmental Efficiency

Source: Adapted from Poverty-Environment Partnership 2012.

Figure 2.2: The Sustainable Development Principles: Inclusive Green Economy combines Inclusive Growth with Green Growth to reduce poverty and inequality.

The environmental challenges created by cities have become increasingly relevant, because of

international concerns about the global environmental problems, which resulted from the

Brundtland Report in 1987 and the Rio Earth summit in 1992 about sustainable development.

According to the report of the World Commission on Environment and Development (WCED),

sustainable development is defined as “a process of change in which the exploitation of resources,

the direction of investments, the orientation of technological development, and institutional change

are all in harmony and enhance both current and future potentials to meet human needs and

aspiration” (WCED, 1987). Therefore human development (economic and social) need to integrate

the consideration of the natural systems (environment) in decision making in order to minimize the

externality on the quality of natural elements (i.e. air, water, land, plants, living being and other

natural resources etc.) and sustain the optimal functioning of the natural system.

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As opined by American Planning Association (APA 2012), smart growth is not a single strategy but

rather a combination of various urban and regional planning strategies that could be implemented

together to achieve sustainable urban development. As identified by Litman (2012), and Calthorpe

(1993), some of the smart growth strategies include: Transit Oriented Development, Bus Rapid

Transit, Travel Demand Management, Eco-city and New Urbanism. In sum, cities that envision

sustainable urban development pathway have shown examples of the application of combination of

some or all of these planning strategies.

A critical character of sustainable development and livable city is cleanliness. The concept of

cleanliness is a fundamental urban planning objective of landuse planning which seek to achieve

compatibility in landuse character and development. Since the late 1980s, the concept of sustainable

development has assumed increasing relevance in the realms of city development and management.

Sequel to the Rio Earth Summit in 1992 and the WCED Report 1987 on sustainable development,

the need to mainstream sustainable development into urban planning as a tool to efficiently achieve

city development and management objectives has increasingly assumed the centre of discourse in

both research and policy realms. The three (3) principles of sustainable development (i.e. inclusive

social growth, green economy and environmental efficiency and cleanness) encapsulate social,

economic and environmental dimensions. They provide the framework within which to anchor the

goal of achieving a clean city as briefly described below.

i. Inclusive Social Growth.

By aligning the development of cities towards city-wide inclusive growth, the city plan addresses

the challenges of biased growth and development. With cognizance to the housing sector, the

provision of housing stock, basic infrastructure and services to all parts of the city in response to

population growth will prevent the growth of informal development in the sub-urban areas and

prevent the polarization of the city along income spectrum. This, therefore, provides safety nets for

low income spectrum that cannot access the market competitively driven housing stock (Poverty-

Environment Partnership, 2012). With this, the development of informal settlement is averted, and

the related externalities and implication of un-clean character of such development is prevented.

Hence, the achievement of clean city by eliminating the tendencies for spontaneous and unplanned

informal housing development has proved to be potent in resolving these problems though with

much pain. This is especially relevant in view of the unprecedented urban population growth in the

Federal Capital Territory of Nigeria.

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ii. Green Economy.

In line with the sustainable development agenda, the development of the green economy in cities

seeks to achieve more outcomes with less resource. This is achieved in part by a strategic

framework to the city’s economy which integrates all sectors (small, medium and large) and driven

by renewable energy sources which generate less externality (Poverty-Environment Partnership,

2012).

With an elaborate framework that integrates all scale and sectors of the city economy, it therefore

presents the opportunity for all spectrum of the city residents to be engaged within the city plan.

This therefore prevents the tendencies for the growth of informal activities in undesignated places

within the city and by extension ensures the city growth and development of the economic activities

and the cleanness of the city thereby facilitating the achievement of orderliness and cleanness in the

development of landuse in the city.

iii. Environmental Efficiency and Cleanness.

The achievement of environmental cleanness in cities can be attributed to the initiative that ensures

cleanness in terms of solid, liquid and gaseous wastes. The three “3Rs” Strategy of Reduce, Reuse

and Recycle directed at shaping and addressing consumption pattern in city is key to achieving this

goal (UNEP, 2004). The “Reduce” component of the strategy seeks to reduce use of resources by

ensuring the use of the right type and quantity of resources (e.g. renewable energy for lighting), the

externalities are reduced, and environmental impact is minimized thereby achieving a clean

environment in cities. The “Re-Use” and “Recycle” components of the strategy, however seek to

achieve the use of material that can be re-cycled and re-used as against non-biodegradable materials

which are costly to dispose. The example of community involvement in waste recycling programme

in Curitiba, Brazil is notable, with waste collection by residents of neighbourhoods in return for

public transport ticket from the municipal authority (UNHSP, 2009). This initiative largely ensured

the effective cleaning of solid wastes in the city neighbourhoods, free up the disposable incomes of

residents (by issuance of public transport tickets) and reducing the cost of running the waste

recycling programme, hence, ensuring the cleanness in city.

It is also imperative to note that within the environmental dimension of sustainable development,

the Eco-city Concept and the Clean Development Mechanisms (CDM) are relevant. The Eco-city

seeks to achieve increased landuse between (green and brown agenda in city), spatial development

in city with increased emphasis on green spaces to create the equilibrium that lower the micro

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climate in city (Jabareen, 2006; UNHSP 2009). This also serves as sink to sequester Green-house-

gas emissions from various sources in the city. On the other hand, the CDM seek to ensure

deliberate support for developments that are capable of contributing to the reduction of carbon

footprint in cities and the reduction of Green-house-gas emission level (UNFCC, 2001, UNHSP

2011).

In sum, by aligning the development and management of cities towards the strategies illustrated

within the inclusive social growth under the social dimension, the green economy under the

economic dimension, and the environmental efficiency and cleanness under the environmental

dimension of sustainable development agenda cities will not only achieve the objective of a clean

city, but all inherent benefits of sustainable urban development that ramifies the social, economic

and environmental facets of cities.

3.0 BUILDING A CLEAN FEDERAL CAPITAL CITY FOR NIGERIA AND ITS

CHALLENGES.

The Federal Capital Territory (FCT), Abuja was created in 1976 to be the administrative capital of

Nigeria. It is situated at the geographical centre (epicentre) of Nigeria. As the seat of the National

Government, Abuja is serving as a nexus which propel continued growing agglomeration (See

Figures 3.1 and 3.2).

Source: Abuja Geographic Information Systems (2011). Source: Abuja Geographic Information Systems (2011).

Figure 3.1: Abuja in the National Context. Figure 3.2: The Core-city Abuja and the Area Councils

   

     

       

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Source: FCDA Urban and Regional Planning Department, 2009.

Figure 3.3: Location of Development Phases of the Federal Capital City, Abuja.

3.1 The Abuja Plan and its implicit Clean and Green City elements.

The Abuja Master Plan was prepared in 1979. The idea of a new capital city was as a result of the

physical constraints and near environmental insolvency which was imminent in Lagos. Despite a lot

of investments in Lagos, managing the city was becoming intractable due to the ever-building

population which was not matched by the provision of adequate accommodation, employment and

engineering infrastructure to maintain a reasonable level of environmental sanity and aesthetics. Its

underlying philosophy largely was premised on the principles of the Garden City, which possesses

intrinsic clean and green elements. The Federal Capital City was conceived on some basic

principles and aspirations. These principles included equal citizenship, a beautiful and functional

city, environmental conservation, effective regional development and rapid economic growth. The

goal of the plan was to provide a successful living environment, which expresses Nigerian National

unity as well as ensuring an environment which is responsive to Nigerian urban tradition and life

styles. Ultimately, the city was designed to be:

Phase II Phase III

Phase IV

Phase I

 

 

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• Imageable - enforcing the city’s purpose, organization and symbolism;

• Efficient - possessing the ease with which the purpose of government business and

individuals can be carried out; and,

• Flexible - ease with which growth and change can be accommodated.

It is important to note that these goals are still valid and have formed the broad base on

which the developments within the territory must be anchored.

With the intension of building a ‘world class city, comparable to those in developed economies and

in pursuit of the above stated goal, detailed development plans were made for various sections of

the City and they are being enforced. Invariably, we can say that Abuja was planned to be clean, to

be built clean and maintained clean.

3.1.1 Green Elements.

Sequel to detail case reviews of new cities that emerged at the time of preparing the Abuja Plan, it

was conceived with broad goal and objectives for achieving a clean and green city. This green

element of the plan is illustrated using the broad Land use Plan for the Phase I of the city, Sector

Plan and the Central Area District Concept Plan (See Figures 3.4, 3.5 and 3.6)

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Source: FCDA (1979, p. 3).

Figure 3.4: Broad Land Use Concept Plan

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Source: FCDA (1979, p. 15). Figure 3.5: Residential District Concept Plan

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Source: FCDA (1979, p. 9).

Figure 3.6: Central Area District Concept Plan

In the plan for Phase of the City of Abuja (see Figures 3.4 and 3.5), green areas are designated using

the natural character of the land harnessing the endowments such as river and stream valleys, hills

and mountainous areas as well as others created to punctuate the developments with greenery and

softness. This illustrates that the provisions of the plan consist of intrusive elements to permit the

development of a green city.

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3.1.2 Mechanisms provided by the Masterplan for maintaining a Clean City.

Conceptually, Abuja was planned to be beautiful, to be built beautifully, maintained and sustained

to have the character of beauty. The primary evidence of beauty of a city is its cleanness. In the

development of the city, elaborate infrastructure has been provided to support to support the

disposal and management of solid and liquid waste.

The city plans consist of a central sewage system to which all developments are linked. However,

this infrastructure is developed in phases. This explains why some parts of the city are yet to be

connected. The collection of liquid wastes from buildings and storm water, into the sewer facilitates

effective management of liquid waste with a view to promoting the health and hygiene of the city

inhabitants and the cleanness of the city. The liquid waste treatment plant is located in Wupa

District. The plant collects wastes from the city central sewer for treatment and eventually

discharged into the river system after it has been tested to be free from bacteria. This plant ensures

that the natural ecosystem is not endangered by harmful waste discharges.

Solid wastes are collected through house-to-house collection by designated licensed waste

collection contractors using compactor vehicles. These waste collection firms in turn dispose of

these wastes at designated dump sites, which are under the control of the Abuja Environmental

Protection Board (AEPB). Transfer Stations and properly engineered landfill sites are to built in

designated locations to improve on the current methods on waste collection and management.

Incidentally, the spontaneous development of informal activities on designated open spaces and

roadways within the inner city of Abuja has been found to be a re-occurring phenomenon which

negates the efforts at keeping Abuja clean and green. These activities consist majorly of artisans

workshops and street trading (See Figures 3.6 – 3.7).

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Source: Author’s Field Work (2013).

Figure 3.7: Illegal Motor Park on Road Verge

Source: Author’s Field Work (2014). Figure 3.8: Containers used as illegal Warehouse and Shops on Road Corridor in Apo Mechanic Village

From the above illustration, these activities generate both pedestrian and vehicular traffic, without

any traffic control mechanism. Such flow of persons who seek for services into these areas inhibit

free flow of traffic and result in traffic congestion. Further, these activities also occupy spaces

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designated for green open development and therefore inhibit the realization of the planned green

spaces and the balance in micro-climate expected from green space within the cities.

4.0. CHALLENGES TO THE DEVELOPMENT OF A CLEAN FEDERAL CAPITAL CITY.

The efforts at developing and keeping a clean Federal Capital City have faced several challenges. These are briefly enumerated in the following section.

i. Allocations made on un-serviced layouts and those without engineering design

e.g. Dawaki, sections of Asokoro and Maitama Extension. Areas without

infrastructure have been allocated to interested developers. Closely related to this are

incidences of fake layout plans and approvals from some unscrupulous persons

bought into by unsuspecting public and double allocation of plots. Owners of such

titles are usually not allowed to develop until the infrastructure is installed or the

challenges on titles are resolved. In the process, sub-standard developments ensue.

Attempts to clean up such places through the process of demolition are usually faced

with stiff resistance. When physical confrontations against government officials fail,

illegal developers resort to the use of court injections to frustrate the enforcement

process. In some instances, some of the illegal developers maintain the status quo as

dictated by the court to the extent that dilapidation and obsolescence render such

structures a challenge to the quality of its environment. One of such cases is the

abandoned structure by the junction of Nnamdi Azikiwe Expressway and the

Parkway, next to Zankli Hospital in Utako District of Abuja.

ii. Indigenous villages to be re-settled. The initial policy in the masterplan to resettle

indigenes of the Federal Capital City in the process has suffered several shifts.

Indecision, logistic issues, scarcity of funds and inadequate political will have not

allowed the implementation of the resettlement policy effectively. The enclaves of

the City occupied by the indigenes have been characteristically dirty and unkempt.

Following this is the attitude of the village heads to illegally grant titles to non-

indigenes who also build without approval. When sanctions are applied to rid the city

of the dirtiness they have created in their environments, sentiments are whipped up

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in favour of those carrying out these illegal activities until the proposed clean-up

programmes are frustrated. This has kept such enclaves perpetually dirty.

iii. Conflicting land use plans by the Department of Urban and Regional Planning

(DURP) Master Plan and Abuja Geographic Information Systems (AGIS)

purpose clause inserted on conveyance of titles. There are cases of conflicting

landuse plans between the Department of Urban and Regional Planning of FCDA

and Abuja Geographic Information Systems. It has been observed that ‘purpose

clauses’ given on conveyance of titles to beneficiaries by Land Administration

Department of AGIS are sometimes at variance with the approved detailed landuse

plans issued by Department of Urban and Regional Planning. In other instances, in

the process of generating mapping information, AGIS altered the landuses on parcels

of land. This has caused a lot of conflict that many times affected the process of

granting approval. Delays suffered in this process creates rooms for illegal and

incompatible developments and eventual court proceedings when the developer

becomes aggrieved. There are pockets of such developments in the city which reduce

the cleanness of the city.

iv. Decision on Commercial Street (e.g. Aminu Kano Crescent, Adetokunbo Ademola

Crescent, Gana Street) and development of Service Centres. In the course of

developing the city, and due to failure in logistics, and as a response to pressure to

the pressure for spaces for commercial, religious, educational and other

complimentary services, developers illegally changed the uses of their buildings.

Others were granted approval to change landuses after submission of approved

environmental impact assessment report in favour of the change. The impacts of

these changes on the streetscape have been tremendous through the attraction of

traffic to such environments beyond the designed capacities for the roads. Traffic

congestions, hawking, noise and other nuisances have also been attracted to these

environments. A consultant was hired to study the possibilities of legalizing the

changed landuses and prepare plans for the amelioration of the impacts. The details

of the reports are yet to be made known to the public and the recommendations yet to

be implemented.

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The cleanness of streets with converted landuses can only be improved when the

infrastructure on the streets are improved to accommodate the changes introduced.

v. Inadequate staffing, office accommodation and capacity of staff to supervise,

monitor and enforce requirements for city cleanness. The staff strength of the

agencies saddled with the responsibility of cleaning the city is lower than needed.

Equipment are insufficient and to some extent, the professional capacities of some of

the staff is either low or they lack continuous education or retraining. These can be

improved upon through adequate funding, purchase of required equipment and

further training of staff.

5.0 GOVERNMENT RESPONSE TO REDERESSING ISSUES OF CITY CLEANNESS IN ABUJA.

The FCT Administration noted seriously the challenge of elements which were inconsistent with the

plan for the City especially squatter settlements and illegal developments. These include setting up

Committees to study and recommend effective strategies for cleaning up and enforcing the

beautification of the Federal Capital City. Some of the committees set up to look into the issues

included the following:

i. The Major Umar Ndayako (rtd) Special Task Force on structures built on sewer lines,

water mains and illegal structures – 1994.

ii. The Sabo Ago FCT urban tribunal of 1997.

iii. The Sabo Ago Committee on the Review of Abuja master plan 1999.

iv. The Muhammed Alkali Investigation Committee on plots of land allocated within the

Federal Capital City (FCC), designated as green areas, status of revoked plots and

changes of ownership of land covering the period 1996 – 98.

v. Dr. Adekunle Ayo Ministerial Committee on illegal structures in the FCC 2000.

vi. Dr. Linus Ofoegu Investigation Committee on land records 2002.

vii. The Muhammed Alkali Task Force on the restoration and enforcement of Abuja Master

Plan 2004.

Despite the extensive work of the Committees, not much action was taken on their

recommendations. In the year 2005, Abuja Metropolitan Management Agency (later known as

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Abuja Metropolitan Management Council) was created by the Nasir el-Rufai administration of the

Federal Capital Territory Administration. The Abuja Metropolitan Management Council (AMMC)

is responsible for the coordination and supervision of the Department saddled with the

responsibility of managing the city. It also has a service unit to other departments of the AMMC for

the purposes of Human Resources Development, Financial Management, the granting of permit for

public/private development, and the monitoring/enforcement of physical development activities in

line with the provision of the Abuja Master Plan and other Development Control guidelines.

The AMMC provides guidelines for the improvement of the aesthetics of individual and public properties. It is involved in the planning and installation of signboards, billboards, street names, signs, house numbering, telecommunication masts and other amenities/conveniences. And it applies, manages and maintains all FCTA offices, national monuments, secretariats and other buildings in the FCT with a view to providing a liveable environment.

The AMMC ensures that street lights and drainages are functional, and it ensures the provision of estate services for and on behalf of the FCTA. It also promotes and provides adequate park resources and recreational site development/management, including tree planting, reclamation of green areas, vegetation control and emergency management. And the purpose of these is to create a humane environment in the Garden City Setting of Abuja. the following departments execute the overall mandate of AMMC.

• Administration and Finance • Development Control • Facilities Management • Parks and Recreation • Urban Affairs

5.2 MAJOR FUNCTIONS OF THE COUNCIL

Ø To initiate and formulate policies that would guarantee efficient service delivery by it's own constituents Departments.

Ø To oversee and co-ordinate the activities of all departments under it's authority. Ø To ensure proper maintenance and management of the city's infrastructural facilities, utilities

and services in a sustainable and cost effective manner. Ø To cooperate and encourage interaction between similar organizations and agencies

responsible for city management at local and international levels. Ø To brief and advise the Federal Capital Territory Administration (FCTA) from time to time

on matters relating to city management.

5.2.1 Department of Development Control

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The department was established to guide, direct and control physical development in the FCT. Specifically, the department performs the following functions:

Ø Granting official permit for all forms of physical development and private and public, and monitoring same to ensure suitability of completed development structures for human habitation.

Ø Granting of setting out permit, stage approved permit and continued monitoring to ensure proper implementation vis-à-vis ensuring that there is no undue deviation from the approved building plan in the process of construction.

Ø Planning and installation of street furniture for example, signage, billboards, signboards, telecommunication masts and other amenities and conveniences with a view to avoiding barrenness of street-sides and accentuating the aesthetic qualities of streets and enhancing their commercial potentials. .

Ø Monitoring and enforcement of physical development in line with the provisions of the master plan and other development control guidelines with a view to minimizing undue change of landuse which may have ripple effects on the beauty of street-scape.

Ø Providing of guidelines for the improvement of aesthetics of individual and public properties and over all street scape.

The activities of Development Control is one of the institutional measures to promote development in line with the provisions of the masterplan and to sanction un-approved developments which are non-compliant with the masterplan thereby enhance the cleanness and aesthetically pleasant capital city for Nigeria.

5.2.2 Department of Facilities Maintenance & Management The Department of Facilities Maintenance Management is one of the institutional measures established by the government to curb dilapidation of public facilities within the city. It is responsible for the maintenance and management of public infrastructure in FCT. The function of this Department is both preventive and prescriptive to minimize deterioration of public facilities and utilities. These include public buildings and infrastructure.

5.2.3 Department of Parks and Recreation

The Department of Parks and Recreation emerged from a task force on the accelerated greening of Abuja to a full fledged Department to oversee the planning, development and management of green areas, open spaces, conservation zones and recreation land uses of the Federal Capital Territory. Especially, the department was designed to complement the activities of other departments in the development of the territory on line with best global best practices.

There is no gain-saying that this department has played a great role in the development of Abuja to keep green areas in their form and beauty. Examples of such impressionable activities include the Millennium Park, Wonderland, street-sides, zoo and many others.

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5.2.4 Department of Urban Affairs

Urban Affairs Department was created at the inception of the Council to deal with disaster/emergency management such as fire outbreaks, flood control and management and other activities that have direct impact on city management.

5.2.5 Abuja Environmental Protection Board (AEPB)

Abuja Environmental Protection Board (AEPB) recently placed under the supervision of AMMC is

charged with waste collection and management of the FCC. It is backed by the enabling legislation

Act no. 10 of 1997. The Abuja Environmental Protection Board (AEPB) coordinates all activities

and stakeholders concerned with the collection, disposal and management of waste in Abuja. The

Board is charged with the following responsibilities.

In furtherance to the performance of the duties of this Board, there has been effective management

of liquid and solid wastes, clamp-down on street beggars and hawkers who litter the street with

loiterers and solid wastes.

5.3 DEMOLITION OF ILLEGAL STRUCUTRES AS AN INTERVENTION TO BUILDING CLEAN FEDERAL CAPITAL CITY.

5.3.1 Shortly after the commencement of implementation of the masterplan, distortions crept in by illegal developers. These actions had negated the principles upon which the idea of a new Federal Capital of equal citizenship, a beautiful and functional city, environmental conservation, effective regional development and rapid economic growth was based when it was conceived in 1976. Various forms of irregular and undesirable physical developments emerged. They include the following;

i. Corner Shops and Structures in Green areas and Flood Plains. These were meant to be temporary stop gap measures aimed at providing commercial facilities for residential neighbourhoods ahead of proposed integrated neighbourhood shopping centres as usually indicated in the title documents issued to beneficiaries. Unfortunately, most of the allottees under the scheme put up illegal mansions for all sorts of activities including residences, hotels, places of worship, schools etc. Most of the network of green areas, recreational parks and flood plains were invaded by these structures and used for other incompatible activities. A total number of 1,552 cornershops were enumerated in this category and they were demolished.

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ii. Encroachment on Rights of Way of Existing Roads, Walkways and Undeveloped Road Corridors. These constituted sore sights along entry points into the City and major arterials and as hide-outs for miscreants especially within undeveloped road corridors. A total of 36,480 illegal structures and slums built on transit way corridor and Expressways were identified and removed.

iii. Buildings on Utility Lines. Underground water and sewer lines were built upon by unwary developers. While most of these structures were fences, others were buildings. In the absence of underground Cadastral maps some of the said buildings were inadvertently approved and developed; such buildings were later discovered to be on utility lines, with the production of underground ‘as built’ cadastral map. This was the justification for the payment of compensation to developers under this category whose buildings were demolished.

iv. Structures on Sites for Community Facilities and Services. A total number of 23,124 structures located on various sites designated for community facilities. These include those in Chika, Nyanya-Karu, Karmajiji, Guzape/Abbatoir, etc. They were made to give way to enable designated development to be constructed.

v. Structures that were threats to Safety and Security. A number of disasters were experienced in some parts of the territory. Flooding occurred in Jiwa, Gwagwa and Kubwa. These occurrences were traceable to illegal developments in some ecologically sensitive areas such as flood plains. Further to this, the physical organization of these settlements was haphazard to the extent that rescue operations could be difficult to provide in times of natural disasters. Similarly, some illegal settlements such as Ruga, Area 1 (Dagba), Mabushi, Abattoir served as enclaves for criminals. A total number of 12,015 structures in this category were identified and appropriately sanctioned.

vi. Revoked Plots. Revocations of titles to land were invoked on plots whose earlier allottees violated aspects of conditions for the right of occupancy or for purposes of overriding public interest. Consequently, some of the plots were re-allocated to new beneficiaries. A total number of Eighty-two (82) structures in this category were identified.

vii. Dilapidated and Abandoned Structures: A number of uncompleted and abandoned structures all over the City were considered as security risk, health and environmental hazards as well as criminal hideout. In the year 2011, over 400 of such buildings were identified in the City and were advertized in the newspapers for the owners to resume on site after structural integrity tests on the buildings. This attracted a lot of the owners of these structures to regularize their building plans and amend. A good number of these buildings have been completed and providing accommodation for various uses.

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viii. Physical Development on Circulation Areas and Parking Lots within Markets (12,500): Erection of structures on parking lots and areas meant for circulation in major markets within the City led to over-crowding, congestion and threat to public safety in the markets. 12,500 illegal structures mostly steel containers were identified and removed.

ix. Unapproved Change of Land Use by Developers: This became rampant and it created inhibitions to the implementation of the Master Plan. Areas earmarked for residences, schools, health facilities and recreational purposes were largely sacrificed thereby heightening the non-availability of or inaccessibility to accommodation, basic social facilities and leisure outlets. In this category, 389 cases were enumerated.

The effective performance of the schedules of these Departments of AMMC has given the City the level of sanity and cleanliness it presently has or else it would have been chaotic. However, there is a lot of higher expectation in terms of the level of cleanness of the city.

The spate of demolitions of illegal developments to keep the city clean has been a continuous

process with the Development Control Department. These activities have been carried out without

fear and favour irrespective of personalities involved. For example, sometime in 2009, a total of 140

houses in an illegal estate were demolished and in 2011, another set of 296 buildings illegally

constructed in an estate along airport road in Abuja were also demolished. Illegal structures built by

high government officials have been removed to show that nobody is allowed to break development

regulations in the City. In the first half of the year 2014, innumerable quantities of illegal buildings

and shanty structures in various parts of the city were demolished to pave way for the manifestation

of the beauty of the city of Abuja. Some recent details are in the Table 4.1 below and photographs

Plate 5.1, 5.2, 5.3 and 5.4.

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Table 5.1: Summary of Activities during the Inter-Departmetal Special Clean-Up

Programme.  S/N DISTRICT ITEMS REMOVED

Batchers Shanties

Construction Wastes

Block Ind.

Auto W/Shop

Veh. Towed

Car Wash

Illegal Parks

Others

1 Garki 1 & 2 9 12 - - - - - - 2 Airport Road

1 (Ruga) 3,227 - - - - - - -

3 Airport Road 2 (Kuchingoro)

42 - - - 2 - - -

4 Airport Road 3 (Lugbe)

148 - 5 8 - - - -

5 Airport Road 4 (Gosa)

104 - 4 3 - - - -

6 Airport Road 5 (Inst. & Research District)

15 - - - - - - -

7 Apo 5 - - 4 - - - - 8 Kagini 5 - - - - - - - 9 Kubwa 331 - - - - - - - 10 Bwari (Dawaki,

Dutse Alhaji and Lower Usuma Dam

346 - - - - - - -

11 Katampe 9 - - 2 - - - - 12 Durumi 24 - - - - - - -

TOTAL 4,265 12 9 17 2 - - - GRAN

D TOTAL 4,305

Source: AMMC 2014.

Source: Author’s Field Work (2014).

Figure 4.1: Removing one of the Tents (Event Centre) in Wumba

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Source: Author’s Field Work (2014).

Figure 4.2: Cleaning up Apo Mechanic Village

Source: Author’s Field Work (2014).

Figure 5.3: Burning some of the Solid Wastes on Site.

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Source: Author’s Field Work (2014).

Figure 5.4: Cleaning Road Verge with Over-grown Grasses and Litter

5.3.2 Government Response to the greening of recovered green open spaces

This efforts here include the greening efforts such as the accelerated greening by the FCTA directed

at greening all spaces reclaimed from informal activities on designated green open spaces (See

Figure 4.5 and 4.6).These efforts are known to contribute to the significant improvement in the

micro-climate of the city.The Department of Parks and Recreation, AMMC has made efforts to

manage the designated green spaces by leasing out these as parks to private firms to develop them

into recreational and conservation spaces. By this, all the designated green spaces can be

appropriately utilized and therefore contribute to the overall goal of cleaning and beautifying the

city.

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Source: Author’s Field Work (2014). Figure 4.5: Allottees take over Cleaned-up Sites and prepare it as Plant Nursery.

Source: Author’s Field Work (2014). Figure 4.6: Allottees take over Cleaned-up Sites and prepare it as Plant Nursery.

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Despite these efforts and the pains of removing illegal structures to both the developer and the

public agency in charge of demolition, the illegal developers continue un-abated in their vicious

activities to deface the city environment and deprive it of the cleanliness it was created for.

Therefore, regardless of the resources committed into this exercise, the trends of these informal

activities are still repeated over- time. The reoccurrence/re-appearance of these activities and

development over time may indicate that there are challenges in the institutional capacities of

agencies responsible for planning and managing the city.

5.3.3 Other Activities Towards Cleaning The City Of Abuja.

The following activities are part of routine procedures to maintain the environmental and aesthetic qualities of the City of Abuja.

a. Mass removal of re-emerging illegal structures on sites earlier cleared and new sections of indigenous villages in and around the Federal Capital City. In view of nuisance, hindrance to infrastructure provision and security flash points that such areas constituted, the removal has had to

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be consistent while taking into account the complaints of the indigenous community over the impact of their non-resettlement on their livelihood.

b. Fast-tracking of Building Plan Processing. In view of the complaints against slow pace of approval of building plans which impacts on the integrity of the City for doing business, Building Plan approval process has been invigorated through the reduction in time spent to two weeks barring major queries arising from such submissions. This has led to an improvement in the number of plans processed and revenue generation.

c. Restructuring of the Department for enhanced monitoring of development against illegality and greater overall efficiency.

d. Procurement of operational machines and equipment such as tippers, bull dozers and pay loaders.

6.0 RECOMMENDATIONS

To facilitate the development of clean cities in Nigeria, it is important to align with the strategies of

inclusive social growth, promote green economy and environmental efficiency and design city

management agendas to achieve them. This requires visionary design and development concepts by

town planners and related professionals, pragmatic and diligent enforcement of designs.

The FCT Administration needs to expedite action in the provision of infrastructure in areas that land

titles have been issued to developers to promote clean development in such places. It is believed

that as a panacea to further occurrence of such challenges, the Land Swap Programme was

introduced. Though the policy appears laudable, it would have been more effective if it started with

a pilot programme rather than a full-scale development as being pursued presently. Further to this,

land allocations should not be on application but on expression of effective capacity to develop. It

has been observed that some allottees who have been holding titles to plots for over fifteen years

have not developed them. Their intensions are for speculation. It is recommended that any title held

for more than three years in areas that have serviced with minimum infrastructure be revoked and

given to persons who have the capacity to develop. This will facilitate closing up development

islands which pervade the city, enforce its harmony and promote cleanness.

Indigenous settlements within the City of Abuja are characterized by filthiness and environmental

degradation. The slow pace of the resettlement programme is greatly affecting the quality of

environment in the city. The Department of Resettlement and Compensation of FCTA needs to

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develop a more pragmatic approach to the project of resettlement. To plan to build all the

resettlement centres and relocate the affected population at once, does not appear feasible. The

resettlement programme needs to be phased. The success of one phase and lessons learnt from

implementation of that will create good basis for the development of other phases. Though it is

generally believed that the major challenge to resettlement is funding, it is also believed that

prioritization and phasing are the technical issues frustrating it. This could have been minimized if

the developments are tailored with the available resources at any particular time. It is therefore

recommended that the programme of development for resettlement sites be reviewed to ensure that

sections are completed with available resources at any particular period of time and the requisite

population resettled. With this approach, it is believed that the problem of resettlement will be

accomplished within the next fifteen years, and the city will be able to run on a clean and beautiful

platform.

Conflicting land use plans by the Department of Urban and Regional Planning (DURP) Master Plan

and Abuja Geographic Information Systems (AGIS) purpose clause inserted on conveyance of

titles. There is the need for each department to perform its own schedule conscientiously without

infringing on the schedules of other departments. This should also be done while working with the

tenets of collaboration and cooperation. By this, it is important to ensure that AGIS is not involved

in preparing any landuse plan or altering any plan already made by the Department of Urban and

Regional Planning, neither should it be seen to be involved in creating any layout plan and

allocating same to developers without consultations with relevant departments. It is important too,

that plots be allocated in conformity with the specified landuses to avoid delays in building plan

approval.

It is recommended that the provisions of the consultancy work on change of landuse in some

areas in the city be released and possibly implemented if approved. Its implementation should

be accompanied with robust infrastructure that has the capacity to address the anticipated

environmental stress.

The issue of staffing, provision of conducive working environment, motivation, capacity building,

provision of equipment and funding are critical to building and maintenance of clean cities.

Budgetary provisions should be made for these services annually and back up by release of funds as

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at when needed to facilitate implementation of plans. It is difficult to believe that the pool of town

planners in the country today are not being effectively deployed to make relevant contributions to

building the city of our dream to the standard it requires.

7.0 CONCLUSION

This chapter has demonstrated that rapid urbanization is responsible for the influx of people to

Abuja. This has led to multiple reasons that do not allow the City to grow in line with the

anticipated programme. Haphazard developments and constructions without approval are elements

that play serious roles in making the city to lose its integrity of cleanness. Public authorities rose up

to the need through accelerated planning approvals, demolition of inconsistent structures and

developments from any part of the City irrespective of the number involved and whoever owns it.

With courage and high level of commitment and professionalism, the City can be revived to become

the city that those who laid the foundation stones can look back and appreciate.

It may be observed that the efforts to address these challenges are adhoc and not strategic, as such,

the efforts and initiatives to achieve cleanness in the Federal Capital City have only achieved short-

term outcomes, with the symptoms and contributing factors re-occurring after a while.

What is required to achieve a clean Federal Capital City for Nigeria is mainstreaming of the

sustainable development agendas which presents a strategic framework that integrate all the facets

(Social, economic and environmental dimensions) relevant to achieving clean and green character in

city. By institutionalizing this framework, urban planning institutions in Abuja becomes leverage to

ensure the sustained acceleration of set initiatives to achieve clean and green cities.

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