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An Overview on Land Use in Nigeria

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 AN OVERVIEW ON LAND USE IN NIGERIA
Olatunji4 S.A.;Asani3 M.A; Adie2, D.B; Oke1, I.A; Otun2, J.A; Lukman2,S and A.A. Odetola5;

1
Department of Civil Engineering, Obafemi Awolowo University, Ile-Ife, Nigeria okeia@oauife.edu.ng;
2
Department of Water Resources and Environmental Engineering, Ahmadu Bello University, Zaria, Nigeria
3
Department of Urban and Regional Planning, Ladoke Akintola University, Ogbomoso, Nigeria;
4
Department of Urban and Regional Planning, Obafemi Awolowo University, Ile-Ife, Nigeria
5
Department of Urban and Regional Planning, Osun State College of Technology, Esa-Oke, Nigeria

ABSTRACT
Cities are of enormous political, social, cultural and economic importance in various countries in which
they are located. Land value is one of the major determinants of the morphology of these cities. This paper
examined the relationship that exists between various land value determinants in Nigeria. Using factor analysis
and principal component techniques, it showed that a high level of co-variation existed between factors of land
value such as accessibility, rent, and transport improvement, quality of neighbourhood, infrastructural facilities
and government regulations. The need for land use planners to consider these land value determinants in putting
land into optimum use were highlighted. The paper revealed that although land use planning and policies and
mechanisms are in place in the city, they are not fully implemented and do not have any significant effect on
land accessibility. Reinvigoration of land use policies including amendment of the land use act was advocated.
It was concluded that there is a need for planners to consider the land value determinants in planning
for optimum use of land.

INTRODUCTION AND THEORY

Residential land use, among the various competing urban land uses, is the largest consumer of land in
urban areas. Consequently, it is usually the focus of urban research. This has been confirmed through the works
of many urban researchers like Park Burgess and McKenzie (1925) on American cities particularly in Chicago,
Mabogunje (1968) on Lagos; Ayeni (1968) on Ikere-Ekiti and Jos respectively; Sada, (1975) on Lagos;
Frishman (1977) on Kano; Olaore (1981) on Kaduna; Okpala (1981) on Enugu and Onitsha. Other studies on
the importance of residential land use in urban areas include those carried out by Onakerhoraye, (1984) on
Benin; Omirin (1998) on Lagos; Okewole (1998) on Bodija; Egunjobi (1999) on Nigerian cities generally and
Olayiwola (2000) on sustainable city development in Osun State, Nigeria (Olayiwola et al., 2005).
Most of these studies show that urban areas are of enormous political, social, economic and cultural
importance to the various countries in which they are located. The importance of cities in societal development
is due to their unique role as centres of innovation, adoption and diffusion and growth points. Cities therefore
propel the growth of societies and are able to attract to themselves large numbers of people from the hinterlands.
The centripetal nature of the cities creates intense pressure on the economic and spatial structure of urban
systems such as on services and facilities like hospitals, educational institutions, housing, transport,
telecommunication systems and energy supply. This is because the provisions of these facilities are expanding at
rates slower than the rates of growth of the urban population thus creating a wide margin between demand and
supply of urban infrastructural facilities and services. The market forces of demand and supply, especially of
land and housing, are basic factors influencing variation in land values in urban areas. Abiodun (1985),
elucidates this point further and argued that the rapid increase of urban population in Nigeria had brought with it
many problems associated with the difficulties of providing basic infrastructures. The study of Abiodun (1985)
revealed that perhaps the most outstanding of all these problems is that of providing adequate facilities for the
population. In support of this claim, Onibokun (1985) stressed the importance of the quality of residence. He
stated that housing, as a unit of the environment, has a profound influence on the health, efficiency, social
behaviour, satisfaction and general welfare of any community. Housing Onibokun stressed, reflects the cultural,
social and economic values of a society, as it is the best and historical evidence in a country. It stimulates the
growth of the national economy (Olayiwola et al., 2005).
This assertion has been confirmed through the recent works of Egunjobi (1997) in which the studies
demonstrate that the philosophical and practical attention developed in the area of urban housing in the way it
affects our life. The way housing is structured in cities are capable of affecting and indeed do affect our lives
both positively and negatively. The growth of the economy generates physical development of which residential
area is critical. This most often results in increase in values of land due to increase in demand, in a situation
where there is scarcity of available land in the market. The aforementioned statements call for adequate research
into residential land value in order to guide policy directions of government institutions and individuals
(Olayiwola et al., 2005).
It is widely recognized that many theories have been formulated in the study of urban systems. These
theories are both descriptive and quantitative in nature. Among the models that have helped to explain city
morphology are the Burgess (1925) Concentric Zones Model; Hoyt’s (1939) Sector Model; and Harris and
Ullman’s (1945) Multiple Nuclei Model. These three models are described as ecological models. Other models
include the Social Area Analysis and Factorial Ecology. Some of the models are not so general but they deal
with specific urban features. Wingo’s (1961) and Alonso’s (1964), land use models are micro economic models
of urban land value. While earlier works of Richardo and Von Thunen (1893), presented some notable theories
on agricultural land use, Winch (1945), Zipf’s (1949), and Chapin (1965) “Least Effort Principle” were
formulated to explain urban mobility. Firey (1947) introduced the role of culturally rooted values and social
behaviour in the determination of the city structure; while Kno’s (1962) study on Topeka confirmed the spatial
variation in land values in cities (Olayiwola et al., 2005). In the area of urban land values, the concept of
accessibility has been adopted by scholars to structure the value of urban lands. These efforts had their origins in
the early works of von Thunen and Richardo (Herbert, 1982). The principle of Bid Rent functions was
established by Hurd (1903), and this has been confirmed by later works (Ratciliffe, 1949; Alonso, 1964); among
others. The summary of their findings confirmed that the nature of the city land uses is a process that changes
with the economy. This has also been confirmed with recent literatures on urban land uses with particular
reference to case studies of Nigerian urban centres as discussed below. Many of the studies relating to urban
residential areas carried out in many parts of the world were done under social cultural, economic and political
situations different from the Nigerian situation. Therefore, their adoption to the Nigerian situation cannot
provide a perfect explanation to Nigeria’s urban problems. The outcome of such researches could only be used
as guides to solving problems in developing countries generally and in Nigeria in particular. To solve problems
of residential land use in Nigeria, there is the need for local researches to unravel the peculiarities of our own
situation (Olayiwola et al., 2005).
In the Nigerian context, considerable amount of works have been done by scholars in various
disciplines to explain the determinants, structures and effects of residential land use in Nigerian urban areas. For
example, Mabogunje (1961, 1962); undertook the ecological analysis of Lagos and the growth of residential
districts in Ibadan. In his discussions, he identified and classified the major residential districts in Lagos and
Ibadan. He concluded that the growth of these cities were due to growth by fission and spatial expansion.
Mabogunje’s works also showed the relevance of the multiple Nuclei Model as applicable to Lagos and Ibadan
(Olayiwola et al., 2005). Sada (1968) examined the effects of political factors on the geography of Lagos. He
noted that the emergence of Lagos as a liveable city was as a result of the political decision which made it a
capital city in 1914. He added that with the difference in jurisdictional areas within the city and the associated
varying levels of resources, the city has become a complex city. Sada concluded that the supply of different
services is bound to make the city differentiated along many socially related lines. Also in 1972, Sada
investigated the residential land uses in Lagos during which he explained the relevance of traditional models. He
identified the major land use determinants and classified the residential land use in Lagos into high grade,
government housing districts and commercial housing. Ayeni’s studies (1968) and (1979) were on Ikere-Ekiti
and Lagos respectively (Olayiwola et al., 2005). He researched into the trend in the development of built –up
areas of Ikere-Ekiti and Lagos. He also attempted the residential location model of Lagos metropolis during
which he established the general framework that could be used for the planning of Lagos metropolis. Other
studies on urban structures in Nigeria included that of Frishman (1977) on growth pattern of Kano, Okpala’s
(1981) study of Onitsha and Enugu focused on residential mobility. Onakerhoraye’s (1984) research into the
factors influencing the spatial structure of Benin. Recent studies are those of Olaore (1991); in which he
researched into values of land and rentage of shelter in Kaduna. Okewole (1997) research highlighted some of
the socio- culturally based characteristics of the core areas of Yoruba towns. He highlighted the environmental
modification made by the inhabitants of Bodija Estate, a planned residential setting in Ibadan. The modifications
he stressed were adapted by the inhabitants in their quest for personal environmental fit (Olayiwola et al., 2005).
Omirin (1998) researched on accessibility to residential land in Lagos. While Morenikeji (1998) and Adedibu et
al. (1998) studies were on the growth pattern of residential land use and how they affect rental values in Ilorin
and Minna, respectively. It is therefore evident from the literatures reviewed above that there exist very few
studies which address the relationship between land and land values in Nigerian urban areas. However, the few
available literatures on land use and land values are in isolated forms. None of the available literatures have
dealt comprehensively with the factors influencing residential land values in the study area. It is on this note that
their study attempts an investigation into the characteristics, rentals, sales and factors influencing residential
land values in metropolitan Lagos. The study also put forward some suggestions on how to improve public
access to affordable residential apartments in the study area (Olayiwola et al., 2005).
Aribigbola (2007) stated that land has been identified as a function of virtually all forms of production
(Ratcliff, 1976). Land is required for various uses in both the urban and rural areas of all society. As nations
grow in size and rural areas become urban centers and urban centers become large metropolitan areas, there is
always increased competition as well as demand for land for different purposes. This requires adequate planning
and control to ensure harmonious development and functional efficiency of these uses and settlements.
Conceptually, the Von Ludwig Bettalanffy’s (1971) General System Theory provides an appropriate framework
for comparing the mutual interdependence of land use policies, accessibility to land and integrated land use
management systems. Akin to the General Systems theory where everything affects everything else are the
trans-boundary effects of local and regional policies on land and allied resources, which today have assumed
remarkable currency. Consequently, local policies are no longer viewed in their isolationist context, but within
the broader framework of constraints and opportunities afforded by the 21st century information technology.
According to Ratcliff (1976), as a common factor and denominator in the framing and execution of the social
and economic policies of nations, in the allocation, use and management of land should be done to guarantee
access and equity, which the Land Use Act (1978), aimed to achieve in Nigeria. In particular, population
increases arising from uncontrolled natural births and rural-urban migration, and a growing commercial sense,
have combined to re-orientate the traditional communal land holding status of the Nigerian lands (Ola, 1983).
From the planning perspective, land represents a mosaic that ought to be regulated to ensure
conformity and balance of the built environment (Bailey, 1975; Ratcliff, 1976). However, the general
inefficiency associated with majority of the developing countries’ land policies, and the absence of secure
tenure, adequate land management capacity among others, have been cited by Bernstein (1994), Hardoy and
Satlerwaite (1989), as serious problems precipitating existing land crises in these countries. Inappropriate
instruments and weak institutional structures are among the cavalcade of problems plaguing the commodity.
However, the existence of crises in the Nigerian land market is paradoxical, if not an anathema, judging from
the whooping 913,072.64 square kilometers of land that lay to be shared among the estimated 140 million
Nigerians (neglecting the hills, rivers, swamps, and other uninhabitable areas). Nonetheless, the existence of
crises in the Nigerian land market could be traced to rapid and uncontrolled migration, natural increase and
urbanization, existing socio-cultural cleavages, lack of secure tenure, inadequate information, inappropriate and
inefficient land policies and instruments, weak institutional structures and lack of land management capacity,
among other factors (Bernstein, 1994).
The literature on urban land markets began with the work of Isard (1956), Alonso (1964), Muth (1961),
Mills (1967) and others. The literature reveals that land is a factor of production, essential to the provision of
urban housing and infrastructural services and production of agricultural foods (Agbola, Olatubara and
Olorunfemi, 2002,). At the same time, land is demanded as a financial asset (Salazar et al, 1990). Conventional
explanations have blamed indigenous people for being conservative and strongly inclined towards traditional
land use practices which constraints the promotion of alternative land uses (eg., Forestall, 1966; SferYonis,
1993; Rasul,2005) . Such simplistic explanations are not satisfactory, because studies from a number of societies
such as Kenya (Tiffen and Mortmore, 1994), Nepal (Thapa, 1998), Java in Indonesia (Angelsen, 1995), and
Thailand (Turkelboom et al., 1996) suggest that indigenous people do adopt sustainable land use practices when
the necessary policy and institutional supports are available (Rasul, 2005). Geertz (1963) showed that when a
policy environment is unfavorable, population pressure may lead to ‘involution’, where existing systems are
continued through internal readjustments instead of moving to the next hierarchical level of intensification. It is
now increasingly realized that policies and programmes to promote sustainable land use should be based on a
firm understanding of the past and how past policies and courses of action have conditioned existing land use
practices (Bryant, 1997). Thus, Rasul (2005), analyzed how changes in policies and laws have influenced land
use in Bangladesh’s Chittagong Hill Tracts (CHT), Asia. On the operation of the land markets, Dowall (1989),
in his study of housing markets in Bangkok, contended that an ample supply of land, strong competition among
developers and builders, and adequate supply of finance are necessary conditions for the efficient operation of
the land market, especially in the fastest growing cities of the developing countries. These three conditions
apply to urban land markets (Salazer et al, 1995).
 Conceptual construct on urban land use generally draws from three different descriptive and prominent
classical theories of Burgess (1925), Hoyt (1939) and Harris and Ulman (1964). These models were developed
to generalize about the patterns of urban land use found in early industrial cities of the United States. One of the
earliest attempts to model the nature of urban land use was presented by E.W Burgess in 1925. The concentric
zone model articulated by him states that as city grow; it expands radically around the Central Business District
(CBD) to form a series of concentric circles. The operating mechanism of the concentric circle model was the
growth and radial expansion of the city with each zone having a tendency to expand outward. The model was
based on ecological principle of invasion and succession and therefore, was designed as both statement of
function zonation of urban growth (Murdie, 1971). In Hoyt‘s model, the central business district remains as a
circular form at the centre of the city while residential area of similar socio-economic status originating near the
centre tend to migrate in sectors towards the urban fringe. (Murdie, 1971). Socio-economic status then varies
according to an angular measurement about the city center. The multiple nuclei model as applied to urban areas
was first suggested by R.M. Hurd and R.D. Mckenzie and later elaborated upon by C.D. Harris and E.L Ullman.
According to Murdie (1974), the basic notion of this model is that urban land uses concentrate around several
nuclei rather than a single core. It is an amalgam of Burgess and Hoyt’s model with the addition of multiple
nucleus, there are many nuclei in the city. That the central business district is not necessarily located at the
geometric centre of the city, but may be off to one side, other nuclei may be centers of industry, wholesaling,
education, etc.
On land use planning and controls: Levy (2003) identified two major ways in which a municipality
may shape its pattern of land use. According to the author, these are the public capital investment and legal
controls over the use of privately owned property. In this context, public capital investment creates specific
facilities which make up part of the total land use pattern; while land use control embraces subdivision
regulations which essentially control the manner in which new land is subdivided and placed on the market for
development and zoning ordinances. Besides, other land use control measures identified in the literature include
site planning review, architectural review (building planning) and historical preservation. With regards to land
management, the UN-Habitat Conference of 1976 held in Vancouver, Canada, recommended public land
management and control as the surest way of ensuring efficient and equitable distribution of land resources.
Thus, public land management is expected to among other things; guarantee equitable distribution of land rights
on the basis of non-commercial criteria; empower government to ensure a more judicious, orderly and healthy
development of urban areas; guarantee cheaper and easier access to land for both public and private land
development; and curb speculation which was believed to be the main cause of escalating land prices in the
periphery of urban areas (Omirin, 2003).
Land Use Act In Nigeria
By virtue of the provisions of the Land Use Decree, all lands located in the territory of each State are
vested in the Governor of the State to be held in trust for the benefit of the citizens. Although the Land Use Act
does not mention any specific matter relating to desertification, the fact that the consent of the Governor is
required as a prerequisite to alienation of any right to the landed property is a clear indication that the
Government can control the use of the land through the provisions of the Law. The Governor (where the land is
in urban area) or the Local Government Authority (where the land is in rural area) may refuse to grant consent
for the use of land that is fragile or that may be prone to desertification.
 In Nigeria, the literature on urban land use indicates a strong adherent to the conventional land use
planning approach. Most major cities including Lagos, Kaduna, Port Harcourt, Onitsha, Enugu, Aba and some
in other parts of Niger Delta region have been developing with the conventional land use approach (Jiboye,
2005). This has generated diverse urban problems manifesting in the form of deterioration of cities into slums,
pollution, congestion, unsanitary condition and epidemics. Nigerian cities are reputed to be the dirtiest, most
unsanitary, least aesthetically pleasing and dangerously unsafe for living (Agbola, 2002). They are characterized
by non-functioning infrastructural facilities, most poorly governed, intensively dotted with illegal structures,
while physical growth and development of the cities had not been properly managed or controlled (Aluko,
2000). According to Falade (2003), land use plans for most cities often seek to make life better for the masses
living in cities as a major goal, but the reality of the case is that these lofty and laudable goals are never
achieved. Thus, people in urban areas wallow not only in abject poverty, but they also do not live in planned
urban areas, which are “orderly safe, convenient and healthy living environment’ that is promised as the gains of
land use planning (Falade, 2003; Baba, 2003). In addition however, past studies of land use in Nigeria have
focused on availability of land for physical development and the evaluation of acceptability or otherwise of the
Land Use Act, 1978 of (Olaore, 1983, 1985; Uchedu, 1979; Udo, 1990). Some focused on analysis of the
provision of the implementation of the Act (Egunjobi, 1990; Omotola, 1984; and Otonio, 1985), while
Onibokun (1995) examined the relationship of the law to urban land use planning and urban land prices and
urban spatial pattern. Adeniyi (1987) contended that the use and misuse of land over time and space are
indicators of cultural, economic, political and technological attributes of users and the laws under which they
operate, while Omirin (2003) emphasized that access to land is a function of physical, economic, institutional
and contextual factors Constraints to access can therefore emanate from any of these sources.
From the perspective of land users Omirin (2003) asserted that accessibility comprises of availability of
usable land, affordability, the convenience with which the cost of the land can be paid without undue financial
strait, security of tenure, the assurance that possession, occupation, development and use of the land will be free
from intrusion, conflicting claims, disturbance and sudden loss, and ease of transaction.
The literature reveals that recent analyses of urban land markets shows a growing concern for policy
and regulatory issues but lacks a robust framework capable of showing how land markets functions, the major
policy and regulatory constraints that affect efficient land operation (Agbola, et al 2002). In addition past studies
have also not adequately focused the effect of institutional structure and government policies on land
accessibility and ownership, and the functioning of the urban land market that is germane to sustainable land use
planning and city development in contemporary times.
Therefore, Agboola et al (2002) was germane to understanding urban land use dynamics in context of
developing world by empirical determination of the factors influencing urban land and housing markets. The
focus on empirical determination of the predictors of urban land markets variables will afford a richer
understanding of the major determinants of land markets and their effects on land ownership and management
that could aid and facilitate design of realistic land use planning policy in Nigeria and similar developing
societies.
Land Use Planning in Akure
Formal land use planning and management in Nigeria began in 1863 with the enactment of the Town
Improvement Ordinance by the colonial government (Federal Government of Nigeria, 1863). The ordinance was
meant to control development and urban sanitation in Lagos, then the federal capital of Nigeria. However,
modern planning could be said to begin in the country in 1946 when the Nigerian Town and Country Ordinance
was enacted. Western Region where Akure was located enacted its own Town and Country Planning law that
forms chapter 123 of the laws of Western Nigeria. This law among other provisions established Town Planning
Authorities (TPAS), which were to control and guide the orderly development of the settlements within their
jurisdiction by approving proposals for physical development and the preparation of development schemes and
land use plans (Olujimi, 1993). In March 1979, as a result of the poor staffing situation and non-availability of a
staff pension scheme, Ondo State government abolished the Area Planning Authorities (APAs) including Akure
Area Planning Authority. In its place, a unified town planning control system was adopted which centred all
town planning activities in the Town Planning Division of the Ministry of Lands and Housing. Following the
centralisation of planning in Ondo State in 1979, the responsibility of planning Akure was taken over by the
state government and the Town Planning Division (now Department of Urban and Regional Planning) of the
Ministry of Works and Housing. As a result of the need to guide and control development of the city as a state
capital and to also cope with the rapid growth of the city, a private planning consultant was commission by the
state government to prepare a master plan for the city. The plan that covers the period 1980 – 2000 was
completed in 1983. The plan was reviewed in 1998 .by the officials of the ministry. At present, the planning,
control and management of land in the city is undertaken by the Departments of Urban and Regional Planning,
Land Services and Survey, Ministry of works, Lands and Housing, Akure. They discharge different but
complimentary functions. The Department of Land Services is responsible for allocating public lands, issuance
of Certificate of Occupancy (C.of O.) and management of government lands and estates in the city. The
Department of Urban and Regional planning is responsible for the preparation of government layout plans and
development schemes, approval of development plans (i.e. building plans, layout plans, etc) and general
physical development control through its Area Urban and Regional planning Office in the city. Whereas, the
Survey Department is in charge of mapping government lands, vetting and approval of survey plans prepared by
private consultants in the city(Aribigbola, 2007).
Land Use Policies in Akure
Land policies are the rules, customs and regulations guiding the use, allocation, distribution, planning
and management of land resources. The Federal Military Government of Nigeria issued a land use Decree (No6)
(Now Land Use Act) of March 1978, which purports to take over the ownership and control of land in the
country thereby providing a uniform legal basis for a comprehensive national land tenure system. It is a national
land policy that seeks to streamline the ownership, acquisition and disposition of land. Before the promulgation
of the Act there are differences between different parts of the country. With regards to tenure laws the cardinal
principle of all customary land tenure in Nigeria is that land belongs to all the people who may be held by
families, communities and individuals. The right of access is based on the privilege of being a member of the
family or community. Acquisition under the customary law used to be through cultivation, building, fencing and
the like. There were no coherent and comprehensive land policies for Nigeria before the Land Use Act of 1978.
the entrance of the Land Use Act on to the Nigerian land scene was essentially to remove the obvious serious
inequality and insecurity associated with the land tenure system (Ola, 1984), and to facilitate an arrangement
that would revolutionize the country. Thus, in March 1978, the Federal Government of Nigeria (FGN)
promulgated the Land Use Decree (LUD) aimed at radicalizing land ownership and land development in Nigeria
(Onibokun, 1995). Government and individuals approached communities for land for farming, housing or
planning services etc., with all the socio-cultural implications. With respect to strategic town planning services
such as the preparation, implementation and management of planning schemes, however, the Town Planning
Ordinance gave the planning authorities the power to expropriate lands for the preparation of planning schemes,
(and to compensate for the expropriation), and wide powers too, to regulate the manner and type of
developments on the schemes in order to ensure that lands are used and developed in the best planning
principles(Aribigbola, 2007).
The Land Use Decree 1978 was instituted to achieve a number of objectives prominent among them
was to solve the problems of lack of immediate availability of land for use when required by all concerned; curb
the activities of land speculators. In sum it was introduced to remove bitter controversies resulting at times in the
loss of lives and limbs, which the land is known to be generating, streamline and simplify the management and
ownership of land in the country, assist the citizenry, irrespective of his social status to realize his ambition and
aspiration of owning the place where he and his family will live a secured and peaceful life, and enable the
government to bring under control the use to which land can be put in all parts of the country and thus facilitates
planning and zoning programs for particular use. By the promulgation of the decree in Nigeria in 1978,
ownership and management of land was transferred to the government from individuals and communities in
which hitherto resides ownership and control of land (Aribigbola, 2007).
Another important area of government policy that impinges upon urban land use planning and
management, relates to the articulation and implementation of housing and urban development policy. Public
intervention in housing in Nigeria began in the colonial period following the outbreak of bubonic plague in
Lagos in the 1920s. During the period 1900 to 1960, government involvement was centered essentially on the
provision of quarters for expatriate staff and for selected indigenous staff. In order to address the growing
housing shortages and affordability problems in Nigeria, in recent times, a number of housing policy initiatives
have been articulated and introduced. The National Housing Policy launched in 1991 had as its ultimate goal,
ensuring that all Nigerians owned or had access to decent housing accommodation at affordable cost by the year
2000. The main objective of the policy was to make the private sector the main vehicle for the organization and
delivery of housing products and services (Yakubu, 2004).It should be added that at target year of the policy
(i.e. 2000), that the policy could not make the anticipated impacts on the built environment as a result of some
factors associated with inadequacies of the PMIs, lack of access to land and title to land and problem of
mortgage loan affordability among others (Okewole and Aribigbola, 2006). The recognition of the growing
housing problems in both the rural and urban areas of Nigeria and the acceptance of the failure of the expired
1991 National Housing Policy prompted the federal government of Nigeria to set up a 15- man Committee to
review existing housing policy and articulate the New National Housing Policy (NNHP) of 2002. The 2002
NNHP has as its primary goal of ensuring that all Nigerians own or have access to decent, safe and sanitary
housing accommodation at affordable cost with secure tenure through private initiative, that is Real Estate
Developers on the basis of mortgage financing. In sum, there is disengagement of public sector in housing
provision to that of private. One unique aspect of the housing and urban development policies in Nigeria is that
the policy made it mandatory for states and local governments to create sites and services plots that are to be
sold to members of the public. Besides the policy recommended a review and amendment to the land use Act
was discussed. However, field investigations revealed that Akure South Local Government where Akure is
situated did not discharge this function (Aribigbola, 2007).
The Nigerian Urban and Regional Planning Decree of 1992 was promulgated on 15th December 1992.
Some the salient provision of the decree is that it made plan preparation and administration compulsory at the
federal, state and local government levels. Under the law, land use plans are to be prepared by the federal, states
and local governments. It also assigned responsibilities to the three tiers of government. In 1999, the Ondo State
government enacted the state’s version of the 1992 National Urban and Regional Planning Law known as Ondo
State Urban and Regional Planning Edict. Edict number 2 of 1999. The edict created State Urban and Regional
Planning Board and Local Planning Authorities at the state and local government levels respectively. Thus
various plans including land use plans are expected to be prepared that have widespread implications on
accessibility cost and use of land in Akure. In Ondo state, the states housing and land policy that seeks to
improve the housing infrastructure and delivery by eliminating a number of problems including shortages of
housing and access to land among others was articulated (Ondo State, 2005). Other policies that relate to land
management in Akure include the sites and services programme, the infrastructure fund IDA project and urban
Renewal and Slum Upgrading programme (Aribigbola, 2007).
Land Use Planning And Mechanism In Akure
Following the centralisation of planning in Ondo State in 1979, the responsibility of carrying out land
use planning tasks was taken over by the state government and the Town Planning Division (now Department of
Urban and Regional Planning) of the Ministry of Works, Lands and Housing. As a result of the need to guide
and control development of the city as a state capital and to also cope with the rapid growth of the city a private
planning consultant was commissioned by the state government to prepare a master plan for the city. The plan
that covers the period 1980 – 2000 was completed in 1983. A major component of the master plan of the city is
that it was accompanied by a comprehensive broad land use plan for the city. However, field investigation
revealed that most of what was propped in the land use plan was not implemented. In a recent study in the city it
was found that majority of residents of the city are unaware of the existence of the master plan for the city
(Aribigbola, 2006). The implication of this is finding is that people who are not aware of the existence of a land
use guide for the city in which they own land are not likely going to comply with its requirements and
specifications.
Besides, the preparation of master plan for the city, another major instrument for planning in the city is
the use of layout plan, where parcels of land are sub-divided into plots of various sizes and for different uses
such as residential, industrial, commercial, public and semi public uses by public and semi public institutions ,
private individuals, families and communities. In this regard, members of the public particularly families are
required to submit their proposed layout plans to the Area Urban and Regional planning Office for planning
approval. Investigations revealed that to date, a total of 641 residential layout plans have been processed and
approved in Akure by members of the public as against 20 by public and semi-public organizations in the town.
Approved layout plans are required before planning permissions are granted to developer to commence physical
development. The process of approval of layout starts with submission of proposed subdivision plan. The plan is
scrutinized by officers of Area Urban and Regional Planning Office to determine the conformity of the proposed
plan with planning requirements and standards. Where a plan falls short of planning standards, it is returned to
the promoter for necessary corrections and amendment. When the promoters have complied with all
requirements, such layout plans are accepted and recommended by the Area Urban and Regional Planning
Officer to the Director of Urban and Regional Planning at the state ministry of Works, Lands and Housing for
approval. The above procedure subsists with reference to building plan approval except that the Area Urban and
Regional Planning Officer is the approving Authority. However, the officer is expected to forward major land
use proposal and development projects such as industrial, commercial, institutional and public uses to the
Director for approval. Such development requires other vital documents such Environmental Impact Analysis
Report (EIAR) before planning approvals are granted to use such land for the proposed development.
Another area in which the planning office functions in the city, is the area known as ‘Protest and Petition”. In this
case, any member of the public that is disturbed by his neighbor with regards to use and misuses of land is permitted to
report to the planning office, where an officer of the ministry is deployed to investigate and report to the office for
intervention and possible settlement. Furthermore, the Department also carries out development control where the city
according to the Area Urban and Regional Planning Officer for Akure, the city is divided into six zones; and Zonal
Inspectors are appointed to go round their zones daily to identify and stop contravention. This activity according to the
ministry is hampered by inadequate facilities such as motor vehicles and motorcycles that are required for constant patrol of
the zones by site Inspectors. At present, the Akure Area Urban and regional Planning Office does not have vehicle of any
kind that can be used to monitor land use activity in the city. Yet building plans are approved daily by the office. Thus,
development is springing up haphazardly without planning permission and in contravention of land use planning regulations
and requirements. The consequence of this motivated the Urban and Regional Planning Department to undertake demolition
of illegal structures in Akure in 2004. However, the demolition exercise was stopped by the state Governor because of the
negative political image that was attached to the exercise. Thus, development control in the city is mostly limited to approval
of plans and when aggrieved individuals come forward to report contravention (Aribigbola, 2006; 2007).
Abbas et al (2010) assessed the Changes in land use/land cover in Kafur local government area of Katsina state,
Nigeria over 13 year period. The study made use of Land use/land cover map of the study area for1995 and Google earth
imagery of 2008. The image and the map were digitized into GIS environment using Arc view 3.2 GIS software for analysis.
A paired t-test analysis was also used to see if there was significant change in the land use/land cover between 1995 and
2008.The study revealed that open space covered 13.56 square kilometers of the land area and constituted 34.00% in 1995
which constituted the most extensive type of land use/land cover in the study area. The increasing population and economic
activities were noted to be putting pressure on the available land resources. The paper highlights the land use/land cover
types, the change over the years and the causes of the change. The importance of remote sensing and GIS techniques in
mapping and change detection was also highlighted. Figure 1 (a, b and c) presents location of Karfur local government in
Katsina State , land use in the local government in 1995 and 2008 respectively (Abbas et al., 2010).
Akintola and Gbadegesin (1997) reported that Changes in land-use practices around four impounded water
reservoirs and their effects on reservoir water quality were investigated in a part of the southwestern Nigerian savanna.
Using data obtained over a period of 15 years, the results of our analyses indicate that although the levels of the water quality
parameters investigated are still within the WHO standards for drinking water, there is evidence of an increase in the
concentrations of nitrate, nitrate-nitrogen and total dissolved solids over time. These rises could be attributed to an increase
of between 900 and 1150% in the land area devoted to arable farming around the reservoirs. The conversion
from forest vegetation to farmland not only induced the decomposition of native organic nitrogen but also has
led to an increasing use of nitrogenous fertilizers which has caused the increase in the nitrate content of the
reservoir water. The findings of this study call for a timely intervention in land-use practices around the
reservoirs in order not to jeopardize the main source of human water supplies in the area.
 (b )
(a)

(c)

Figure 1 Location of Karfur Local Government in Katsina State

(a) Map of Katsina
(b) Land use of Karfur local government in 1995
(c) Land use of Karfur local government in 2005
 Oluseyi (2006) documented that Urban land uses had been increasingly subjected to changes of different
forms, sorts and types since urban explosion of the 1970s. People move to cities en-mass from the rural
hinterland to the cities in anticipations to benefit from urban economy. However most Nigerian cities are not
planned and thus are not prepared fro the surge in urban explosion that resulted from the rural urban migration
and the biological growth that made most Nigerian cities what they are today- a decadence of humanity. The
changes in these residential land uses in urban area are subject of research discourse for a long time. This paper
seeks to evaluate urban temporal changes in a typical traditional settlement in Nigeria-Ibadan. The techniques of
remote sensing to evaluate land use land cover changes were employed and a projection into 2023 was done
using marcov change model. The density classification and the change rate were utilized in correlation analysis
to identify the relationship between the density types at the base year with the rate of change in the study area. It
was observed that there are considerable dynamic changes in Ibadan metropolis and the major contributor to
changes is the vegetal cover, low density and sprawl development. There are growths by fission within n even
the high density areas and the catchments area for rivers are also location for urban spatial growth or change.
It was concluded by suggesting ways to tame haphazard urban growth that characterizes Ibadan and major urban
settlement in Nigeria.
Ehiorobo and Audu (2010) reported that Most of Nigeria’s Oil and gas reserves are located within the
Niger Delta region. As a result of oil exploration and exploitation by both national and multinational oil
companies, construction of export pipelines, Tank farms and other oil facilities, a lot of farm land is lost or
forfeited. In addition, as a result of waste generated, water is polluted, biotic and aquatic environment are
degraded. As a result of the Land Use Act of 1978 which vest in the government, the rights of ownership of all
states lands which were originally communal lands and were administered by traditional rulers and families,
compensations are paid only for crops and improvements on lands acquired in the course of oil exploration and
exploitation. Two issues are involved in land acquisition under the act; these are legal and technical issues. The
legal issues deal with the right of the individual and communities in the ownership of the land parcel within the
oil producing areas while the technical issue deal with survey documents prepared showing land ownership
(cadastre plan) and the limit of acquisition (Usually claims survey plans). Legal and technical issues on land
ownership within the Niger Delta region of Nigeria and how they affect adequacy or otherwise of compensation
paid to land owners was discussed. The effect of poor and improperly channelled compensation on development
within the region and the creation of a data base for appropriate compensation of land owners and development
of the region are discussed. Lack of adequate maps and cadastral plans for Land administration was found to be
a hindrance to land resource management within the Niger Delta region. The study revealed the major causes of
the current crisis within the Niger Delta region of Nigeria stems from long term neglect, poor and lack of
purposeful and sincere development. The paper recommends the abrogation of the land use act and payment of
compensation for lands and improvement on lands where oil exploration and exploitation activities are carried
out to communities and the need to develop infrastructure and cottage Industries.
Lagos has grown in population of about an estimated 14 million people today and has extended its
direct sphere of influence to about five local governments in the neighbouring Ogun State. Beyond the influence
on her neighbours, Lagos as a global city has the whole world as its area of influence. If the question is asked,
where is legal city called Lagos and what are its boundaries? There will properly be as many answers as there
are respondents since the metropolitan area has not covered only 12 of the 20 Local Governments in the State,
but equally extended to adjourning states. The above reality is actually what led to the discussion of the issues of
planning of Lagos to be referred to as a regional planning issue rather a strict legal city planning issues. The
reality of this is what led to the involvement of the Federal Government and governments of Lagos and Ogun
States in the organization set up under Professor Akin Mabogunje to look at the issue of Lagos Mega-city.

Spatial Growth: As a result of the history (a former Federal Capital of Nigeria), physical features, the process
of growth (Lagos State Government land policies), Lagos initially had 3 major directions of growth – Badagry
Abeokuta, Ikorodu – and Shagamu (with the introduction of the Lagos-Ibadan expressway). However, between
1979-83 when the road to Lekki corridor started growing. This corridor because of its closeness to the central
business district on Lagos Island, and the high income residential areas of Ikoyi and Victoria Island has
developed in the fashion of the multiple Nuclei theory into a finger consisting of the affluent in society. This
initial tendency was enhanced by the growth of the private sector which continues to reinforce the tendency.
While this was going on in Lekki Peninsula, the other direction of the city was largely ignored by the planning
of the city and developments developed haphazardly. Lagos therefore has haphazard development in all these
directions and the immediate adjacent towns of Sango, Mowe, Ogijo etc, had a large input of people who built
with planning or supply of any urban infrastructure!

Slums: As a result of the process of growth of the city, overrunning established towns with their traditional
settlements and rulers, the city now encompass a large number of traditional settlements which now paints the
picture of blighted areas dotted in different parts of the city calling for renewal. With increasing population,
difficult terrains were built upon e.g. Ajegunle, Makoko, Iwaya, Badiya etc. which are now constitute part of the
network of slums in the city. By the time the master plan of metropolitan Lagos (1980-2000 A.D) was prepared,
only 42(No) slums were identified. At this time only 6 of these slums were in Ikeja Local Government. By
1998 where I carried out a study of blighted areas in Ikeja, it has increased to 22. Today nobody can say
exactly, the number size and population living in blighted areas in metropolitan Lagos.

Housing: Lagos exhibits the best of architecture and the simplest (houses on stake). There is a good variety of
the Brazillian architecture in central Lagos, to the very modern on Victoria Island and Lekki Peninsula. The
architecture has been copied from all over the world. They depict extreme affluence and the deepest
deprivation.

Industrial Provision: As a result of lack of planning, industries are juxtaposed within residential areas. Apart
from a few purpose built industrial estates like Ikeja, Oshodi, Matori, Yaba and Ikorodu estates, most of the
industries are located in Sango-Otta in Ogun State, the neighbouring state. This occurred largely because of the
policies of the Lagos State Government which imposed heavy fees on industrial land in Lagos. Recently
however, the export free zone is being developed on the Lekki Peninsula and this apart from providing
employment will help to reverse transport movements in Lekki corridor.

Commercial Land Use: The original Central Business District of Lagos is located on Lagos Island (around
Martins, Nnamdi Azikwe and Marina Streets). As a result of combination of factors – traffic congestion,
insecurity and permissive planning – about half of purely residential neighbourhoods of Victoria Island are now
offices. A conscious effort was made to create another central business district in the Alausa area of Ikeja, but
the government itself started the dismantling of the CBD when it created housing estates on part of the land and
did not put the infrastructure early enough. The opportunity to have developed city centres in metropolitan
Lagos when the Lagos State Government did not pursue the development 35 urban centres identified in the
1980-2000 master-plan. With permissive planning, if non-planning, commercial activities are located
haphazardly even in high brow residential enclaves. Gardens were changed into residential plots. For instance,
Victoria Island which was designed with about 30% open space has no single one today. In the area of tourism,
Lagos is blessed with beautiful beaches which are not developed enough. The issue of security is another
determent. The present government is making efforts to reverse this.

Environment: Solid waste disposal is being tackled vigorously and the city is wearing a better look. The issue
of air pollution is still much around.

Other Urban Basic Services: Water supply through government mains does not reach more than 20% of the
population though efforts are on to improve the situation. However, it must be pointed out that the water supply
to Lagos is from Ogun State and the reservoir (Adiyan water reservoir) is equally in Ogun State. Drains and De-
flooding – The present Government in Lagos State is making great efforts to deal with this problem.

Employment/Informal Economy: This is a subject that is a very serious problem as a result of the fact that a
lot of the people coming to the city does not have the skill or mental orientation to live in a global city. The jobs
are not expanding as fast as the population. Added to this is the fact that our physical planning has no answer
for the informal economy. They are driven from road side and other unapproved places but to nowhere in
particular.

Urban Governance: Since the year 1999, there has been a high degree of transparency and some level of
participation (information) of government plans and policies. However, the Local Government has not been
allowed to function as a proper level of Government. Furthermore, the physical planning system has refused to
decentralize its activities to the local level to the detriment of the physical development of the city.
Climatic Change: The present government is not unaware of this matter and apart from the tree planting
awareness campaign and enforcement; it sponsored a recent international conference on the subject.
Energy: As part of the consciousness of the conservation of energy, the state is encouraging more people to us
public transport. The state is also using solar energy for most of the street lights and also has an independent
power supply in place

Historical Area and Heritage: These are key elements for the city image and identity. They are relevant to
give a sense of planning and belonging to its inhabitants. City marketing is increasingly aware of the relevance
of it as an attraction factor to turn it more competitive. Planning has to consider heritage as an important asset of
cities. Developing, renewal and refurbishing policies should be put in place. So far, Lagos State is yet to
capitalize on this issue and efforts should be intensified on it.
Poverty and Poverty Alleviation: The solution to poverty is work and in this use the state Government has
been employment a lot of people, send people for skill development training, set up micro-finance
organizations. In summary in designing the Lagos mega-city, efforts must be made to use or our design to
reinforce, among others, less consumption of energy, reduce climate change, promote tourism and eco tourism,
market our heritage, encourage use of mass transit, expose crime and reduction in social inequalities.
Olayiwola et al (2005) examined the relationship that exists between various land value determinants in
metropolitan Lagos, Nigeria. Using factor analysis and principal component techniques, it showed that a high
level of co-variation existed between factors of land value such as accessibility, rent, transport improvement,
quality of neighbourhood, infrastructural facilities and government regulations. The need for land use planners
to consider these land value determinants in putting land into optimum use were highlighted.
Braimoh (2006) characterized residential land development in three regions with different population
densities in Lagos, Nigeria. Land use changes were mapped from satellite images, while logistic regression was
used to model the probability of residential land development as a function of spatially explicit biophysical and
social dataset. Residential land conversion within the low population density region occurred on the highest
elevations, in areas with the highest proportion of rural land and change in population potential, and at the
farthest distances from the central business district and designated industrial centers. Conversely, new
residential land development within the high population density region occurred at the farthest distance from
major roads, waterworks and protected forests. Higher rates of development in low to medium density regions
suggest that the dominant process of land change is extensification of residential areas. These patterns have
significant policy implications for urban management in Lagos.

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