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 International Journal of Science and Research (IJSR)
ISSN (Online): 2319-7064
Impact Factor (2012): 3.358

Challenges of Local Government Administration in

Nigeria; An Appraisal of Nigerian Experience
Shamsuddin Bolatito1, Dr. SiddigBalal Ibrahim2
1
Master Candidate, Faculty of Business Studies, Dept. of Public Administration
Sudan University of Science and Technology, Khartoum-Sudan
2
Faculty of Business Studies, Sudan University of Science and Technology, Khartoum-Sudan

Abstract: Local Government in Nigeria faces series of critical challenges like creating critical social services and how to sustain them.
No Nation can boast of excellent performance within the public sector at the grass root if a large percentage of her rural inhabitants are
facing uncontrollable abject poverty, needs/wants, socio-economic dilemma and basic social amenities. However in Nigeria, a series of
social amenities at the grass root reveals that the third tiers of government are lacking performance in the area of service delivery, and
over the years has caused the citizens to lose both faith and trust in local government, the closet tier of government to them. The failure
of local government administration as an institution in Nigeria to solve ongoing problems of the people at the grass root further
indicates a lack of contentment in the governance and consequently retards the closeness of the people to this grass root government.
This paper looks at the reasons for the establishment of local government, functions and problems of good governance and
accountability. Factors militating against performance of local government administration in Nigeria are articulated, areas of
contribution to development are also identified and concludes that the Constitution of the Federal Republic of Nigeria should be
amended to empower Local Government authorities to provide the much needed goods and services for the people.

Keywords: Local Government, Administration, poverty, socioeconomic, grassroots, social amenities

1. Introduction to ensure development at the grass root level. This paper

adopts a descriptive approach in its presentation.
Local government administration in Nigeria has been in
existence since 1972 but its inefficiency and ineffectiveness 2. Definition of Local Government
in addressing the primary needs and wants of the people at
the grass root has made the thirds tiers of government As an element of decentralization, local government is a
irrelevance in the administration of the country lowest tiers result of devolution. Olowu (1988; 12) states: in the context
of government to the people. of literature, there are two advances to define the local
government. In aspect of comparative studies, under the
However, the efficient and effective provision of basic central government, all those national structures are regarded
amenities and social infrastructures for the people at the as central government. In the second approach, the specifics
grass root are key factors to the existence of any and particular characteristics determine local government in
government. The local government councils are required to more circumspect manner. These distinguished features
serve the public interest in areas of constructing roads, mainly focus on five following aspects: (1) legal personality,
public markets, healthcare centres, drainages, transportation, (2) localness, (3) effective participation by citizens, (4)
motor parks, building primary schools, among others. This is extensive budgetary and employing self-sufficiency in
because, local Administration is the concern of the grass root regard to bounded control from central authority, and (5)
people in the provision of social and economic amenities to particular powers to execute a variety of functions. These
the rural area where they come from, making it government attributes are significant in separating the government from
at the door step of rural inhabitants. the different forms of institutions at local level and
These functions of local government are well known and furthermore. This approach makes certain that
popularized by the constitution of the country. What seems organizational effectiveness is maintained at an acceptable
to matter most to the people of the grassroots is to see rate.
tangible results of their taxes, contributions, labor expended
and the judicious use of monthly allocation from the According to Kyenge (2013:70), the concept local
federation account to their local governments. government has been given various definitions by various
scholars. No matter how differently the concept is defined, it
These local government councils are however faced with focuses on the transfer of political powers to local areas by
series of problems and difficulties, which in the long run involving the inhabitants in the provision of basic needs in
constitutes their challenges. Identification of challenges their respective communities.
which attend these processes will lead us to proffering or
suggesting how they can be properly managed in the benefit Appadorai (1975:287) local government is government by
of the people in particular and society in general. So the popularly elected bodies charged with administrative and
therefore, this paper focuses on these challenges and executive duties in matters concerning the inhabitants of a
suggests possible solutions to these challenges in a country particular place or district.
of seven hundred and seventy-four (774) local government
councils across the six geopolitical areas in Nigeria, in order
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Furthermore, it is vital to note that these divisions of 4. The Significance of Local Government
responsibilities are done according to the political interests Administration in Nigeria
and policy related agenda. The World Bank (1989: 88) has
identified the successful correlation between the local and Local Administration refers to the administration of a
central government due to various conditions determined by community by a body which is not responsible to the local
Heymans &Totemeyer (1988: 6) as: people but to those who appoint them to govern the
community. Ugoo. E. Abba et al., (2007:17) usually, such
1) The requirement and the push for a well-built local officers are appointed by the central government, and are
government system in environment filled with seen as representatives of central government. However,
democratic support. local government is seen as government by local inhabitants
2) In the national and regional development, a mainstream freely elected to carryout programmes to improve the
role will be played by the local government. wellbeing of the people at the grass root. Administration per
3) A fair distribution of the financial resources among se, is getting things done, therefore local government
central, local and regional bodies. Administration entails the whole process of decision making
4) A distribution of human resources is done in a fair at the local government level or selected persons by central
manner between the central and the local government. or state governments to carry out certain functions for the
5) The checks and balances between central and local benefit of the local inhabitants.
government are conducted in a formal and effective
manner. Moreover, it is argued that without the local government,
6) The information sharing and flowing among all levels there cannot be considered any political system to be
are in an accurate and consistent pace and the comprehensive and complete (Mawhood, 1993: 66, and
consultation is precise and complete. Wraith, 1964:118). Three distinct reasons are put forwarded
7) The expansion of democracy exists in the all in order to create the awareness about the vitality of local
dimensions of government, such as the participation of government and these reasons are as following:
all citizens to a full extent at the levels of administration
and government, irrespective of any gender and race a. Training platforms so that masses are politically educated,
biases. b. Training foundation for the development of strong
8) Harmony in social and political aspects. political leadership, and
9) Clearly mentioned affairs among various levels of c. System ensures that accountability of government is
government and the potential for pressure exertion at maintained.
the local level so that central government alters
legislation. These considerations even make more crucial and strengthen
10) The fundamental principles of government are trust and the role of local government. Therefore, these reasons are
honesty. explained more in depth below.
11) Ability to adopt innovations.
(A) Mass’ political education’s training ground:
In the designing of sound democratic political system, local The foundation and formation of local government is
government should be viewed as the cornerstone as it serves affirmed and advocated because it is a fundamental source to
as a cardiac vehicle on specific level to ensure able and train the masses about mobilization and political education.
conscientious citizenship. Tocqueville (1935: 631) states that, meetings of town are
linked with freedom as the science is closely linked with the
3. Objectives of the Paper primary schools. Government is brought among people’s
reach as it assists men toward using and enjoying the
The main objective of the paper is to examine the challenges facilities. Marshall (1965: 59) is more dynamic in explaining
facing the administration of local governments in Nigeria. the following as: A sound and healthy political awareness is
Other specific objectives include: the fundamental objective cannon of local government. The
member of mass public realizes to identify the inaccurate
1) To examine the reputation of the Local Government demagogue, citizens learn to avoid voting for the
performance in its quality social services. representatives who are incompetent or corrupt, they learn to
2) To examine the nexus between the third tiers of debate on the agendas in more effective and healthy manner,
government and citizenry. to establish the relationship between the expenditures and
3) To scrutinize local government delivery of high quality revenue, and they also learn to think for future. According to
of social services in the Southwest from 2008 to 2012. Holm (1971: 61) Local government is seen as an another
4) To examine issues mitigating against local government bureaucratic government organisation when masses directly
performance in Nigeria. participate in local politics and councillors of local
5) To suggest appropriate recommendations within the government work in political consciousness by executing
context of the identified problems. and aiming to intensify public awareness toward local
politics.

(B) Political leadership’s training ground:

The basic foundation for political leadership is served in
shape of training provided by local government, particularly
for those individuals who intent to further prosper their
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career in national politics, and Laski (1931: 31) suggests, “if a) The Consideration and the making of recommendations to
M.P’s (members) prior to their entry were officially a State commission on economic planning or any similar
permitted, allowed to serve tenure of three years on local body on;
grounds, they would attain the experience of foundations so I. The economic development of the State, particularly in
essential to prosper. There are few certain advantages in this so far as the areas of authority of the council and of the
reason, but it cannot be entirely conceived that law makers State are affected, and
with a little experience in politics surrounded by local II. Proposals made by the said commission or body;
government are improved national legislators than those b) Collection of rates, radio and television license;
who lack it. Undoubtedly, the participation in local c) Establishment and maintenance of cemeteries, burial
administration provides breakthroughs to councillors to avail grounds and homes for the destitute or infirm;
experiences in politics, especially since the government is d) Licensing of bicycles, trucks (other than mechanically
influenced by the involvement of councillors in the politico- propelled trucks), canoes, wheel barrows and carts;
mechanism. e) Establishment, maintenance of and regulation of slaughter
houses, slaughter slabs, markets, motor parks and public
(C) Capacity of Government Accountability: conveniences;
In general perspective, local government is viewed as a f) Construction and maintenance of roads, streets, street
defence mechanism, especially against subjective power by lightings, drains and other public highways, parks,
government, which means that any unsound concentration of gardens, open spaces, or such public facilities as may be
power merged at the centre can be unhealthy for progress prescribed from time to time by the House of Assembly of
and this is prevented by the local government. The a State;
oppression due to the power constrained at centralization is g) Naming of roads and streets and numbering of houses
discouraged by means of local government as it claims to do h) Provision and maintenance of public conveniences,
so and therefore Smith (1985: 27) argued that, “There is sewage and refuse disposal;
correctness in this regard that greater level of accountability i) Registration of all births, deaths and marriages;
can be restored by means of local democracy. It can be said j) Assessment of privately owned houses or tenements for
that local democracy have greater control than public the purpose of levying such rates as may be prescribed by
corporate, appointed agencies and field administration. The the House of Assembly of a State; and
element of ‘elective’ relates citizens with bureaucrats who k) Control and regulation of:
make the entire procedure more meaningful as i. Out–door advertising and hoarding;
accountability is more visible in local government. Activities ii. Movement and keeping of pets of all description,
of political nature inside local government, such as elections, iii. Shops and kiosks,
pressure of political nature, formulating rules, public debate, iv. Restaurants, bakeries and other places for sale
publicity that bridges the gap among citizens and their v. Laundries, and
responsible administration, as well as the provision of vi. Licensing, regulation and control of the sale of liquor
opportunities for the handling of grievances.”
Under section 2 of the Fourth Schedule, the functions of a
5. Functions of Local Government in Nigeria Local Government Council shall include participation of
such council in the Government of a State as respects the
The Local Government system, composed of democratically following matters:
elected Local Government Councils, is guaranteed under the
1999 Nigerian Constitution, section 7. Based on this section a) The Provision and maintenance of primary, adult and
7, the 1999 Nigerian Constitution provides for the functions vocational education;
of a Local Government Council under its Fourth Schedule. b) The development of agriculture and natural resources,
This schedule tends to derive mainly from the Basic and other than the exploitation of minerals;
Constitutional Transition Provisions (Decree 15 of 1987). c) The provision and maintenance of health services; and
Thus, functions of Local Governments are categorised into; d) Such others functions as may be conferred on a Local
Government Council by the House of Assembly of the
i. The Exclusive list; and State.
ii. The Concurrent list.
Local government administration also carries out
The exclusive list of functions is those functions that are informative functions such as enlightenment, development
solely performed by Local Governments, while the projects, administration, democratic and leadership initiative
concurrent list of functions are those that the Local and maintenance of peace, law and order in the locality
Government performs in collaboration with State and (Awotokun 2005). In addition to the above, the local
Federal Governments. The State and/or Federal Government government administration also provides the following
can also perform these functions on behalf of Local functions:
Governments until Local Governments are in a position to
perform such functions. According to the Fourth Schedule 1 I. Inspection of meat and abattoirs;
of the 1999 Nigerian Constitution, The main functions of a II. Provision of nursery, primary and adult education
Local Government Council are as follows: III. Provision of scholarship and bursaries award
IV. Provision of public libraries and reading rooms;
V. Agricultural and animal health extension services and
veterinary clinics, fire service
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VI. Lighting and drainage; Council, who are mostly stooges and appendages of the state
governor. Even when elections are held, the ruling party in
6. Challenges and Problems of Local the state and the state government, in particular, rigs and
Governments in Nigeria manipulates the election process to favour their preferred
candidates. It is a clear case of who pays the piper dictates
6.1 Corruption the tune. This again creates inefficiency of administrative
performance and diversion of local government functions, as
One of the fundamental problems of contemporary Nigeria well as oriented programs for the local people.
is corruption. It has thrived, progressed and flourished
unabated. Corruption has been institutionalized to the point 6.4 Unskilled Workers
of accepting it as a part of our system. Albeit corruption is
ubiquitous, it is found all over the world, but the degree of Local government in Nigeria are faced with the problem of
its manifestation varies from system to system (Lawal and inadequate skilled workers such as engineers, accountants,
Oladunjoye, 2010: 232). Corruption is the greatest bane of medical doctors, town planners, statisticians, etc. Reasons
local government administration in Nigeria. At the for this unfortunate development are that, there is a very low
grassroots level, corruption has been canonically image of local government in the minds of these
accommodated, entertained, and celebrated within the professionals. Again, there is lack of job satisfaction that can
system. In the local government setting corruption is keep them in the local government. Most skilled and
misnomerlabelled and euphemistically referred to as qualified personnel’s and professionals prepare to gamble
“Egunje” (a slogan which means “illegal offer” in Nigeria) their luck either in private organisations or establish their
and a major hindrance to good government. own firms rather than risk staying at the local government
where there are no incentives, and they may be wasted away.
It has been identified as one of the problems confronting This has forced local governments to depend on unskilled
effective local government administration in Nigeria, also labour. For example, some are diploma and certificate
non-adherence to provisions of the financial memorandum holders who cannot defend the certificates they hold. These
(FM), conspicuous consumption of the part of the local circumstances are a great challenge to local government
officials, lifestyles that are not commensurate with official efficiency. People who don’t know their left from their right
sources of income, imposition of leaders on the local in what they do can hardly be productive and effective.
government through corrupted political process and low
wages of local government officials (Ali, 2008). Some of the 6.5 Inadequate and Poor Budgetary Allocation:
areas where corruption thrives in local government in
Nigeria include the following: Local governments in Nigeria are known to suffer from
inadequate and poor budgetary allocation. This is done by
a) Inflation of prices of bought items; deliberate cut-offs of budgetary allocation to the local
b) Over estimation of cost of projects; government by some States Governors either for political
c) The ghost worker syndrome; reasons or absolute corruption. The siphoning of funds
d) Poor financial base and limited revenue through frivolous activities and fictitious contracts to their
e) Award of contracts and subsequent abandonment; party members and friends greatly affects the financial needs
f) Payment of huge sums of money to political godfathers; of local governments. This is one of the major reasons why
g) The age-long belief by the officials that people are local government in Nigeria usually performs below
ignorant, illiterate and unenlightened; expectation, thereby making the third tiers of government
h) Lack of accountability meaningless and lacking the diffidence of democracy.

6.2 Lack of Autonomy 6.6 Administrative Inefficiency

Autonomy simply refers to freedom, independent, free from Local governments in Nigeria suffer from administrative
external and remote control but in Nigeria the reverse is the inefficiency and ineffectiveness resulting from low
case, Local Government are totally independent, they are educational qualifications of staff, poor motivation,
managed by the federal and state governments who autocratic leadership, poor work environment, etc. The
dominate over the local government administration through management and control of finances is a central factor in the
the state government offices of local government affairs, the management of local governments. The quality and
ministry of local government, and the local government promptness/effectiveness of local government services
service commission. All these government agencies are depend on the quality and quantity of workers in the system.
denying the autonomy of self-dependent administration of Politically, politicians divert from their campaign promises
Local Government in Nigeria. through scheming of ways to remain in office and swell their
private financial bank accounts with public funds from the
6.3 Leadership problem local government. They abandon principles of good
governance and democratic ideals that are fundamental in
In most states in Nigeria, the ruling party appoints and promoting administrative efficiency in order to satisfy their
blesses the candidate who must run for election at the local selfish desires.
government level. Without their blessings, such candidates
cannot win an election. The various state governments also
appoint caretaker chairmen for the Local Government
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6.7 Lack of provision of Basic Social Amenities This recommendation has, expectedly, been generating
varied reactions from all over the country. It has, once again,
The decline in delivery of social services for the people at brought into bold relief the disaffection of many Nigerians
the grassroots is perhaps, felt more by common people. This with the local government system, which is widely believed
revealed that the local government administration has failed not to be effectively playing the role expected of it.
in meeting the basic needs of the people – good roads,
metro-transport, potable water, regular electricity supply, There is no debating the fact that local councils in many
sanitations and rehabilitation of local road under their local parts of the country have shown themselves to be a major
jurisdiction, qualitative healthcare delivery and education. drainpipe of the nation’s scarce resources. With the
Close on the heels of this is poor or non-maintenance of exception of a few shining examples, the councils are
existing social services. Local Governments appear to have regarded as looting centres, where nothing seems to be
failed in this respect thereby leading to strong voice for the happening. In many states, elected and appointed council
cancelation or eradication of the third tiers of government officials, and their cohorts in the civil service, reportedly
which is Local Government Administration in Nigeria. gather at council headquarters monthly to share allocations
from the Federation Account and disperse, only to return the
7 Scope and future of this study following month to share that month’s allocation and
disperse again. As things stand today, nearly all the
Local government as the third tiers of government should functions designated by the constitution as responsibilities of
not be scrapped or changed rather it should be strengthened, the councils – from primary education and primary
democratized and the federal government should enact laws healthcare to environmental sanitation – have virtually been
that promote transparency and accountability at all level of abandoned. But, the failure of the councils to live up to the
governance, most especially, at the local level of expectations of Nigerians and the constitution may not
governance. In this regard, it will, be crucial to strengthen require an outright scrapping of the system, because it is the
institutions of horizontal accountability and empowerment nearest to the masses’.
of civil society organizations to monitor the performance of (http://sunnewsonline.com/new/?p=62782, Editorial on May
Local governments officials and report any found wanting to 9, 2014)
anti-corruption agent. Moreover, there is a great need to
reform the structure of government at all levels (Federal, The editorial in the said newspaper (The Sun) concludes that
State and local government) in Nigeria to be accountable to ‘Scrapping the councils, for instance, does not have to
the masses of the people that elect them to the political translate to automatic retrenchment of existing workers,
office. because those statutory functions which are currently not
being carried out by the councils, would still have to be
The cases reviewed in this work are series of short-comings carried out, and the states should not need to employ new
and mal-administrations of local government in Nigeria workers to carry them out. Our appeal to all stakeholders is
ranging from lack of initiative that improves the lives of the that they should altruistically evaluate the pros and cons of
inhabitants reflecting the lost priority to provide better this recommendation, without losing sight of the fact that we
services like portable water, adequate good roads, drainage need a tighter, more efficient and more transparent system of
facilities, health care centres, and standard education with governance. This is the only way we can be sure that our
state of the art technologies, vocational training, and other common wealth is used for the common good of Nigerians
social services as a means to attaining good services in every nook and cranny of the country, instead of ending
provisions to the masses of the people under their up in the pockets of politicians and unscrupulous civil
geographical area for effective development at the grassroots servants.’(http://sunnewsonline.com/new/?p=62782,
level. These, if done, will enhance efficient and effective Editorial on May 9, 2014)
service delivery at the grassroots level and sustaining its
future. 8 Policy Implications and Recommendation
As reported in the Sun online Newspaper, May 9, 2014; This paper explored the challenges confronting the local
‘The Committee on Political Restructuring and Forms of government administration in Nigeria and its failure to meet
Government of the ongoing National Conference has the basic and social services provisions of the people at the
recommended the scrapping of the local government tier of grass root. It also presents an appraisal on Nigerian
government, and the delisting of the 774 existing local experience with the third tiers of government administration
councils from the Nigerian Constitution. at the grass root. The paper also focused on social service
delivery most especially at the local level. It presented an
If that recommendation scales through, all the councils will empirical analysis of co-production as a way forward in
be disbanded, and they will cease to be a constitutional third ensuring effective and efficient delivery of social services,
tier of government. They will consequently no longer most especially, road, water, electricity, healthcare and
receive statutory allocations from the Federation Account. education. Governance crisis has not only engendered
Responsibility for the duties now carried out by the councils poverty and hardship; it has robbed people of their happiness
would pass to the respective states, giving the country a two- and left them hopeless. In concluding this paper, some
tier system of government comprising the federal suggestions are offered that will stem the tide of governance
government and the state governments. crisis and launch Nigeria on the path of effective and
efficient delivery of key social services to the citizenry most
especially at the local level. The recommendations are:
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I. The crisis of governance that gave birth to the crisis of The overall effect is the improvement in the wellbeing of the
service delivery has to be tackled headlong and with general populace of the country mostly the last populace.
sincerity. There is need to embark on effective Politically, Local Government serves as a ground for
decentralisation policy that would discourage over- inculcating democratic political ideas and a training ground
concentration of power and resources in the central for future political leaders with correct democratic ideas and
government. values that can continues to move and project the country
II. Centralisation has to be jettisoned. Concentration or forward from its present third tiers of government.
over-concentration of power in the central government
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