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Civil and Environmental Research www.iiste.org

ISSN 2224-5790 (Paper) ISSN 2225-0514 (Online)
Vol.6, No.2, 2014

Physical Master-planning as Panacea to Physical Planning

Challenges in Nigeria Cities: Case Study of Abuja, Nigeria Capital
City
Dr Obinna Ubani1* Arc Emeka Mba2 & Lucy Ugwu3
1. Department of Urban & Regional Planning, University of Nigeria, Enugu Campus, Enugu
2. 2. Department of Architecture, University of Nigeria, Enugu Campus, Enugu
3. Department of Urban & Regional Planning, Enugu State University of Science &
Technology, Enugu
* E-mail of the corresponding author: obisally2004@ yahoo.com
Abstract
The need for a master plan to guide development in urban areas cannot be emphasized. There is however
criticisms against this master planning as a development strategy. This paper x-rays the relevance of master plan
using Abuja- Nigeria Capital City- master plan as a reference study area. Attempts were made to investigate the
urban challenges in Abuja as well as problems confronting master plan implementation. It was recommended
that master planning should be encouraged as a strategy to guiding development settlement development
Keywords: Master plan, Settlement, Urban

1. Introduction
The need to prepare master plans to guide the growth, development and investments in urban settlements is no
longer a contestable issue among government, policy and decision makers. This is based on the realization that
urban settlements i.e. the built environment, are reflection of the society’s social, cultural, economic,
technological achievement and aspiration. City development however involves huge resource investment by both
the public and private sectors. Government spend huge sum of money annually in the construction and
maintenance of roads, drainages, water, electricity, waste management, schools, markets etc, while individual
households and firms make daily investment on housing, transportation, industries, and commercial ventures.
All these investments and decisions can not be left unguided; otherwise the objectives of making these decisions
and investments may be defeated. Master plans that stipulates where, who, how and when urban land is to be
used to create conducive and functional environment where all elements of the city are harmonized for the
enjoyment of the citizens has to be prepared. Indeed, it is argued that master plans are the necessary conditions
for successful economic and social growth as the former rationalizes the use of the later.
A Master Plan is a comprehensive long range physical development plan intended to guide growth and
development of a community, city or region. It includes analysis, drawings, plans, reports, recommendations,
land use zones, proposals, amongst others for the community’s population, economy, housing, transportation,
facilities, recreational activities, institutional, industrial, and agricultural activities. Master plan has been defined
by eminent schools of taught depicting various knowledge and ideas of master planning as a planning tool.
According to Ogbazi, (1992), master plan is a document prepared to guide or provides an orderly development
of a city or region. The concept emphasizes on the need for a guide or point of referral to avoid chaotic
juxtaposing of structures and development.
Essagha,(1997) defined master plan in Nigerian context as an official long term document by the appropriate
federal, state or local authority as may be desirable clearly stating the direction of future physical development
plan of a place. He described the master plan as a public document made up of maps, drawings, sketches and
explanatory written reports. The maps/plans could be to direct the physical development of the area or region.
The master plan should be able to guide and direct the physical development up to next 20 to 30 years in the
planned area or city. He affirmed that a good master plan should have the following characteristics:
1. Long term plan of between 20 to 30 years.
2. Emphasis on all physical development in the area within the plan period.
3. Comprehensive in nature treating all the major areas and sectors of development plan.
4. Democratic in nature stimulated usually through public debate and contribution
5. Open to necessary amendment if the need arises. Not a concluded permanent set up. That is to say that a

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ISSN 2224-5790 (Paper) ISSN 2225-0514 (Online)
Vol.6, No.2, 2014

good master plan should be flexible enough to accommodate appropriate changes while rigid enough to
defend the core values contained in the master plan.
Kent (1984), went further to enshrine the political dimension of master planning by defining it as a general plan
or instrument through which the city council considers, debates, and finally agrees on a coherent and unified set
of long range policies for the physical development of a community. Kent stated that due to political inclinations
most of the general long range policies being paraded in developing countries as master plans have always been
failing woefully at the implementation stage.
2 Concept and Philosophy of Master Plan.
Town and Regional Planning may be as old as humanity but it was the emergence of chaotic and polluted cities
of Western Europe’s Industrial Revolution that prompted radical and dynamic concepts of master plan and urban
management. The first of these concepts was termed “modernist planning” which emerged in the later part of the
19th century and was influenced by technical and ideological considerations. The state or the ruling class were
more concerned with the ideological: using master plans to maintain their property values and excluding “less
desirable” low – income residents, ethnic minorities and traders from their areas. In the 20th century the concept
of city master plan gained more international attention in the management of chaotic, degraded and polluted
cities. Master plan emerged as the key aspect of modernist planning and detailed the city layout from its built
form to its ideal end state. Master planning still survives all over the world, albeit with some variation.
Among the greatest masters of this planning form was the Frenchman, Le Corbusier. His ideas in the 1920s and
1930s established the ideal of the ‘modernist city’: the ideal was neat, ordered and highly controlled. Slums,
narrow streets and mixed use areas were to be demolished. In the United States, Frank Lloyd Wrights of this
differed. His solution to the rapid industrialization in New York City was for low density, dispersed cities with
each family on its own small plot. In the 20th century in England, Ebenezer Howard developed the Garden City,
which represented an attempt during the Industrial Revolution to recreate village life by bringing “green back”
into the towns made up of winding roads and separate cottage residences, and through controlling the size and
growth of the town.
In Sub-Saharan Africa, diffusion master plan ideas occurred mainly through British, German, French and
Portuguese colonial influence. Imported master planning models were not applied equally to all sectors of the
urban population. For example, towns were zoned into low density residential areas for Europeans, medium
density residential areas for African civil servants and high density residential areas for the indigenous
population.
3. Review and Critique of Abuja Master Plan.
History:
The Abuja Master Plan for the physical development for the New Capital City (NCC) and Territory (FCT) was
made in the 1980s, with projections having the year 2000 as the design year. At the inception when the capital
city was chosen by Akinola Aguda Panel to be the seat of Federal Government of Nigeria away from Lagos as a
result of intractable land use problems and also serving dual purpose of the seat of Federal and Lagos
Government. To give effect to the choice, in June 1997, the Federal Capital Development Authority of Nigeria
commissioned International Planning Associates (IPA) to produce a Master Plan for the new capital city and its
regional grid.
Concept of Abuja Master Plan.
The Abuja Master Plan Approved in 1979 provides the general framework to guide orderly development of the
city. The concept is based on the principle of a functional city with a crescent-shaped structure, occupying a
prominent position in the north east quadrant of the Federal Capital Territory which is emphasized by an axial
focus on the highest point of Aso Hill. The plan coordinates land use, transportation, infrastructure, housing,
light industry, commercial, recreational, Agricultural and other uses in a manner that recognizes their
interrelationship and spatial requirements. The Master Plan has four (4) phases with incremental planning model
as foundation for implementation. The Master Plan adopted incremental model of staged growth planned to
occur in stages so that construction of one sector is completed before the next is begun to reduce the impact of
noise, dust, and disruption accompanying a continuous long term construction programme. The intention of the
Abuja Master Plan is to provide maximum flexibility to accommodate a broad range of socio-economic groups
and cultural affinities.

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ISSN 2224-5790 (Paper) ISSN 2225-0514 (Online)
Vol.6, No.2, 2014

4 Urban Challenges and Responses.

TRANSPORTATION:
A major reason for the decision to relocate Nigeria’s capital city from Lagos to Abuja was the intractable
transport problems which constricted the city. The Abuja Master Plan was aimed to provide the spatial
framework, to amongst others, avoid the incidence of the Lagos transport problems. The transportation network
and road hierarchy for Abuja was envisaged to meet intra-city movement needs essential to an urban centre, and
which at the same time provide interaction with the hinterland of the Federal Capital. The road hierarchy system
was designed to include the expressway flanking the city and sector road system which provide easy access to
the various districts of the city.
However, less than five years after the Federal Capital finally moved to Abuja city, it was obvious that high
accessibility to public transportation was no longer guaranteed, as there had been delays in the development of
mass transit points. As a response to the prevailing transportation problems in the city and satellite towns, the
Federal Capital Territory Administration (FCTA) has embarked on a number of measures, which include:
(i) The launching of the Abuja Green Cab Programme under the Greater License Scheme.
(ii) The ban on commercial motorcycle (Okada) operations in the city.
(iii) Proposed development of Abuja Metro line.
(iv) The engagement of licensed transport company operators in four categories of public transport
services in Federal Capital Territory, and
(v) The launching of Abuja Urban Mass Transit Company (AUMTCO).
HOUSING:
Housing problems became so glaring at the early stages of the movement of Federal Capital from Lagos to Abuja.
The population explosion far outstripped the figures that were planned for, with adverse effects on services,
housing delivery and infrastructure. Largely because of the uncontrolled migration to the city, the influx was
much higher than planned resources resulting in development programmes being slowed down. The actions of
Federal Capital Territory Administration (FCTA), the Federal Ministry of Lands, Housing and Urban
Development, and Federal Housing Authority (FHA) have resulted in the implementation of various housing
programmes within the city and in the surrounding satellite towns. To further ameliorate the problem of housing
shortages in Abuja, the Government has solicited private sector participation in the development of various
categories of houses and housing estates in the city to provide cheap and affordable houses for the inhabitants.
Another strategy of encouraging house ownership is the sale of Federal Government houses to civil servant
occupants.
POWER SUPPLY:
Electric supply to the capital city is mainly from the national grid connection supply sources. The system
comprises transmission, substation and distribution for which Power Holding Company of Nigeria (PHCN) is to
handle 330/132kv facilities while Federal Capital Development Authority (FCDA) handles 33/11kv facilities for
the various districts of the city. The bulk of the power comes from Shiroro hydroelectric generation plant in
Niger State. Moreover, electric power supply in Abuja is still grossly inadequate as the incessant power failure
still persists.
WATER SUPPLY AND HEALTH CARE:
The Federal Capital Territory water scheme was based on a system of tanks located at the north-eastern
perimeter highlands to facilitate distribution flow by gravity through feeder and distribution mains. The
treatment plant is located at Lower Usuma Dam. Presently, the water scheme has not been able to supply enough
water to adequately serve the entire territory. About 60% have access to clean water (pipe-borne water and
boreholes). Residents in satellite towns and squatter settlements use alternative sources (wells, streams,
boreholes, and water vendors). The on-going water scheme of the Federal Ministry of Water Resources, which is
to serve the city from Gurara, is expected to increase potable water supply to the territory.
Residents have access to good health services.
SECURITY AND SAFETY:
Abuja is no more a safe city as crime rates and bomb blasts have been tasking security operatives to rise to the
challenges. Modern techniques such as regular vehicle patrols, security check points, public enlightenment and
use of effective up – to – date communication gadgets are employed in crime detection and prevention.

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ISSN 2224-5790 (Paper) ISSN 2225-0514 (Online)
Vol.6, No.2, 2014

RESETTLEMENT:
One of the challenges of the development of Federal Capital City is the resettlement policy of the government.
The initial resettlement policy for FCT as envisaged was to move out all the original inhabitants of the area and
resettle them outside the territory. This was in line with the principle that all Nigerians have equal access to land
and other benefits without any person or group of persons being able to insist on ancestral or primordial rights.
However, due to the facts that the population of the FCT was grossly underestimated, Government realized the
prohibitively high cost of wholesale resettlement and compensation. The decision was taken to resettle and
compensate only the villages in the areas actually required for the development of the city. This change in policy
has created certain problems leading to the emergence of pockets of slum settlements such as Karmo, Idu,
Gwagwa etc. within the city.

CRITICISM OF ABUJA CAPITAL CITY MASTER PLAN:

However, in spite of the numerous achievements which have been made in the physical development of Abuja
since its implementation began in 1980, there have been significant distortions and unwholesome deviations
which inhibit the full realization of the provisions of the master plan. These distortions and deviations are being
corrected through the on – going demolition of illegal structures and settlements; and the restoration of the green
belts, open spaces, parks and gardens, and sewage channels. The defects and limitations of Incremental Planning
model used in Abuja Master Plan include the following:-
• The incremental Planning model is not a comprehensive planning strategy.
• It favours democratic political system where the term of offices is short and eligibility is by
election. Thus, if the tenure of particular office is 4 years, any one seeking election will also be
interested in short term city planning model in which the gestation period will be short term. The reason
is that such model will promote short term project which will enhance his or her chances of being re –
elected. This city planning model presents a true picture of most developing countries.
• Incremental model is myopic, reactional, and conservative.
• It can not handle adequately city planning issues that require a complete break from the past.
• It is a dis –jointed, dis –centralized and fragmented planning strategy.
• Since town planning is defined as a future oriented process, it has been argued that incremental
planning model used in Abuja Master Plan is a negation to the planning process.
Other limitations in Abuja Master Plan approach include the following:-
• Abuja master plan placed more emphasis on economic planning rather than physical planning.
There was lack of cooperation and coordination between the efforts of economic and physical planners.
The inevitable conflicts between physical and economic planners reduce the effectiveness of the plan.
Both, working at cross purposes, led to deficiencies in goal attainment and inefficiency in cost
effectiveness. For instance, in Aminu Kano Crescent at Wuse II, most of the residential apartments have
been converted to commercial centres.
• Self interest in relaxing standards, controls, and regulations in housing construction there by
resulting in the on – going collapsing of buildings in Jabi, Gwarinpa and other districts of Abuja, and
• Bureaucratic bottlenecks in land acquisition in Abuja.

PROBLEMS FACING MASTER PLAN IMPLEMENTATION

The preparation of master plan for a city does not ensure implementation of the proposals as conceived by the
plan. In most developing countries, master plan is fast loosing its usefulness as tool for controlling development
as many master plans have been prepared without implementation. An efficient master plan must have
comprehensive implementation framework based on judicious allocation of financial and institutional resources
in a coordinated manner to ensure successful implementation. After completion of all the elements of the plan,
special attention is needed to focus on implementation tools. These tools include legal protection of the plan,
capital improvement programme, zoning regulations, land sub-division regulations, building regulations amongst
others.
Based on the above submission, some of the critical challenges facing master plan implementation in Nigeria

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include:-
• Lack of finance to fund the implementation of long range plans, against the general practice of
annual budgeting and planning in Nigeria
• Outrageous cost of implementation
• Political reasons/lack of political will for implementation
• Weak legal basis for plan implementation
• Weak institutional set up to coordinate planning and lack of coordination among government
departments
• Bad plans which lack merit for implementation
• Lack of proper dissemination of information about master plans, a situation whereby the
average citizen does not understand the meaning of master plan, not to talk of understanding the
implications of its contents
• Lack of adequate consideration of the informal sector as active stakeholders in plan
implementation
• Lack of formal public participation in the planning process, and
• Domination of master plan committees by bureaucrats. Most master plan committees have few
technical experts with few town planners participating in studies and plan preparation process.

CONCLUSION
Growing criticism of master plan has emerged from the same part of the world in which it originated (Western
Europe and the United States) and some countries have made concerted efforts to develop alternative approaches.
In other words, new tools other than just master plan have been identified for managing urban problems in the
near future as master plan is fast loosing its own usefulness as a dynamic tool for controlling urban development.
However, over the past two decades, several international development agencies have attempted to resolve the
problems of master planning in developing and transitional countries by introducing special programmes and
processes into local government system. The aim of these programmes has been to attempt to make local
authorities more responsive to other stakeholders, and to attend to particular urban issues which are considered
important. In recent years, some of these “sector action plans” have focused on poverty, gender, crime and safety,
health, heritage and the environment, among others.
Some of the most important of these sectoral programmes include:-
• Safer City Programme
• Localizing Agenda 21 Programme
• Sustainable Cities Programme
• The Disaster Management Programme
• The Healthy City Programme
• Global Campaign on Urban Governance
• Global Campaign on Secure Tenure
• City Development Strategy
• The Compact City Approach, and
• New Urbanism
Most of the new and innovative approaches to master planning mentioned above are moving in the direction of
normative principles for urban planning.

REFERENCES
International Planning Associates (IPA), The Master Plan for Abuja the New Federal Capital of Nigeria,
February 1979.

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Federal Ministry of Housing and Urban Development (FMHUD), Sustainable Urbanization and Urban
Development in Nigeria: Challenges and Responses, FMHUD 2006.
New Federal Capital of Nigeria, Abuja February 1997.
Soferetu – Amana – Osot (1982): Urban Transportation Study of the New Federal Capital City Abuja, Final
Report.
Cities Alliance “Cities without Slums”, 2006 Annual Report.
UN-HABITAT for a Better Urban Future, Global Report on Human Settlement 2009.
Essagha A. (1997), Urban Planning, Principle and practice.
Felix, A. I. (Edited) (1998) Master Planning Approach to Physical Development (The Nigerian Experience)
Altshuler, A. (1973), The Goals of Comprehensive Planning: A Reading in Planning Theor y, A. Faludi (ed).
Pergamos Press, Oxford.
Ogbazi . J (1992), “Urban Transportation Planning” in Principles and Practice of Urban and Regional Planning
In Nigeria, Mekslink Publishers, Nigeria.
Kent T. (1984), The Evolution of a land policy, in Taylor, R. w .(ed.). Urban Development in Nigeria, Aldershot:
Avebury

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