ACTA UNIVERSITATIS STOCKHOLMIENSIS / STOCKHOLM STUDIES IN HUMAN GEOGRAPHY 17 139 Onyanta Adama/ Governing from Above Governing from Above The focus in this study is on governance in Nigeria’s new cap- ital city of Abuja. The Abuja city government, like many oth- ers, is seeking to reduce its role in service delivery but it faces many challenges. Some are related to the position of Abuja in Nigeria’s history and national politics. Others have to do with the complex set of relations and power structures at the local level. The government saw the relocation to Abuja as an opportunity to propel the country into modernity but things have not turned out as planned. Contrary to the intention of the goverment and planners, Governing from Above Abuja houses the fastest growing slum in the country, Nyanya. This settlement provides the setting for the discussion of the forms of Solid Waste Management in Nigeria’s governance in this study. These forms are brought out by examin- New Capital City of Abuja ing solid waste management, a sector which, due to the many ac- tors involved and its high visibility, is the choice for studying gov- ernance in service provision. Drawing on the concepts of space INHUMAN GEOGRAPHY STUDIES –STOCKHOLM 17 AUS Onyanta Adama and place and a variety of methods, including interviews, this dis- sertation shows how governance in Abuja is, contrary to common notions, conducted at higher levels with prominent roles given to federal institutions while the municipal government, community and households remain largely invisible. Onyanta Adama is a member of the research programme on Peo- ple, Provisioning and Place in Africa at the Department of Human Geography, Stockholm University. This work is her doctoral dis- sertation. [email protected] ISSN 0349-7003 ISBN 978-91-85445-67-7 Stockholm University STOCKHOLM UNIVERSITY Governing from Above Solid Waste Management in Nigeria’s New Capital City of Abuja Onyanta Adama Stockholm University Abstract This doctoral dissertation examines how the symbolic character of a relocated capi- tal city influences and intersects with local conditions to shape the governance struc- ture and relations in service delivery. The focus is on Abuja, the new capital city of Nigeria, and the sector studied is solid waste management. Abuja was planned to avoid the numerous problems facing other Nigerian cities. Contrary to the intention of government and planners, the city now houses the fastest growing slum in the country. There are various possible explanations for these outcomes but this study pays particular attention to the conception of Abuja as a symbol of national unity. The ‘good governance’ agenda is often promoted by the World Bank and donors as a way of handling the numerous challenges facing African governments, inclu- ding service delivery. A major expectation of the agenda is that local governments manage the urban development process in conjunction with an array of institutions ranging from the private sector to community groups and households. An underlying notion is that of a minimalist national state. This is not the case in Abuja, where governance is conducted at higher levels and the municipal council remains largely invisible. This is manifested in solid waste management, where the municipal coun- cil has no jurisdiction over the sector. In addition, community groups and house- holds play very minimal roles in the governance of services. Drawing on the con- cepts of space and place, the study concludes that the types of institutions found and their roles and relations are shaped by the national function of the city and the local power relations. The study draws on primary and secondary data. Interviews were conducted with state officials, community leaders, households and interest groups, such as the priva- te sector. Secondary data were obtained from government documents, studies and newspaper reports. Key words: governance, space, place, solid waste management, relocated capital city, Abuja, Nigeria © Onyanta Adama, Stockholm 2007 ISSN 0349-7003 ISBN 978-91-85445-67-7 Printed in Sweden by Universitetsservice US-AB, Stockholm, Sweden, 2007 Distributor: Almqvist & Wiksell International Cover photographs: Top; The Labour Camp in Nyanya. Bottom; The Federal Secretariat in the Central Areal. Photos by Onyanta Adama This book is dedicated to my late father, Adakole Adama. Contents List of Figures..................................................................................................................8 List of Tables ...................................................................................................................8 Acknowledgements .........................................................................................9 Chapter 1 Introducing the Study ...................................................................13 Introduction....................................................................................................................13 The Municipal Solid Waste Management (MSWM) Problem........................................17 The Research Problem and Questions.........................................................................18 Research Approaches...................................................................................................30 Choice of Research Strategy...................................................................................30 Space/Place.............................................................................................................31 Choosing the Case Study Area ...............................................................................33 Why Waste?.............................................................................................................35 Data Collection.........................................................................................................36 Data Analysis ...........................................................................................................39 Chapter 2 The Study Area ............................................................................41 Introduction....................................................................................................................41 The National Context.....................................................................................................42 Introducing Abuja...........................................................................................................45 The Nigerianization of Abuja .........................................................................................48 Planning and Implementation ..................................................................................49 Historical and Social Practices.................................................................................52 The Production of Nyanya.............................................................................................54 Summary .......................................................................................................................58 Chapter 3 Governance: A Space and Place Perspective.............................61 Introduction....................................................................................................................61 Capital Relocation and State Space Production ...........................................................62 Mental Spaces: Nation building ...............................................................................62 Territorial Spaces: Rescaling State Spaces ............................................................64 Decentralization versus Centralization..........................................................................67 Forming Partnerships ....................................................................................................71 The Composition......................................................................................................72 Power Relations.......................................................................................................73 Resistance ...............................................................................................................78 The Gender Dimension............................................................................................78 Popular Participation .....................................................................................................82 The Urban Community and Local Politics................................................................83 Summary .......................................................................................................................86 Chapter 4 Creating Dominant Spaces: Relocating and Administering the Capital ...........................................................................................................87 Introduction....................................................................................................................87 Improving Administrative Functions ..............................................................................88 Political Will and Authoritarianism .................................................................................89 Abuja as a Symbol of National Unity.............................................................................90 Creating Institutions and Administration........................................................................92 Summary .......................................................................................................................98