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Transcript of Nigeria_Before the Oil Runs Dry_101210
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Please read the important disclosures at the Disclosures section of this note.
Prepared and distributed by Dunn Loren Merrifield Limited, a firm regulated by the Securities and Exchange Commission of Nigeria.
DUNN LOREN MERRIFIELD
Nigeria | Economy | Special Commentary
Friday, 10 December, 2010
Nigeria: Before the oil runs dry
Tola [email protected]
Sonnie [email protected]
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DUNN LOREN MERRIFIELD 2
Special Commentary|Before the oil runs dry
Tola [email protected]
Sonnie [email protected]
This note was prepared against the backdrop of the recent approval for anincrease in Nigerias minimum wage and its consequences on public sectorfinances, especially for the federating states. Whilst the arguments for and againstNigerias debt profile continue, we believe the assessment, viability and sustainability ofthe current model of funding Nigerias federating states remains largely ignored. In ouropinion, this is fundamental to Nigerias ability to achieve and sustain economic growthand development in the long run.
Regardless of the sheer volume of funding disbursed since the inception ofNigerias federal revenue allocation system, basic infrastructure still remainnon-existentor at best veryweakwhile states continue to receive the monthly FAAC
allocations. In general, given that recurrent expenditure consumes c. 68 percent ofstates total expenditure, the vast majority of states barely have enough funds left todevelop infrastructure that will attract investments and aid growth and development.
In our theory, the concept of incentive compatibility can be used to describe theset of rules or procedures for which, in this case, states within a countrycollectively agree and find that it is within their best interest to act in unison toachieve an agreed set of goals.
Unfortunately, we believe this may never be achieved with Nigerias currentrevenue sharing mechanism due to the low incentive it creates for states to wantto aggressively seek other revenue generating options to improve theirrespective IGRs.The country therefore needs to develop a structure that incentivises
and supports states to generate revenues. This is critical to the development ofinfrastructure in Nigeria, before the oil runs dry.
Nigeria: Before the oil runs dry
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Special Commentary|Before the oil runs dry
CONTENTS
BACKGROUND .............................................................................................................................................................. 4
INCENTIVE COMPATIBILITY..................................................................................................................................... 10
THE LAGOS STATE EXAMPLE .................................................................................................................................. 13
CONCLUSION............................................................................................................................................................... 23
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TABLE OF FIGURES
Figure 1: Current structure of states' revenue profile ............................................................................................. 6
Figure 2: FAAC distribution to the 3 tiers of govt. (%) ......................................................................................... 6
Figure 3: FAAC Disbursements & ECA Withdrawals, Nbn ......................... .......................... ........................... .. 7
Figure 4: ECA balance, Jan '09 - Sep. '10, $bn ........................... ........................... ..................................... ............. 7
Figure 5: Incentive Compatibility Cycle .............................................. ........................... ...................................... ... 10
Figure 6: Proposed revenue allocation model ........................ ........................... ............................ ......................... 11
Figure 7: Lagos State: IGR vs. Statutory Allocation, (Nbn) ................................... ............................ ................ 13
Figure 8: Lagos State: IGR (Nbn) vs. Statutory Allocation as a % of total revenues ........................ ............. 14
Figure 9: Lagos State: Recurrent vs. Statutory Allocation, N'bn .........................................................................14
Figure 10: Lagos state: Summary of finances, N'bn ..............................................................................................15
Figure 11: Nigeria: Land mass distribution .......................... ........................... .......................... .............................. 16
Figure 12: Nigeria: Gross federation account revenues (Nbn) ........................... ........................... ..................... 17
Figure 13: Nigeria: Oil receipts per capita, US$, 1980-2009 ................................................................................18
Figure 14: Nigeria: Oil receipts per day, US$'mn, 1980-2009 ........................ .......................... ............................19
Figure 15: Nigeria: Oil production, mbpd, 1980-2009 .........................................................................................19
Figure 16: Hypothetical state: Funding structure (Scenario 1) ............................................................................20
Figure 17: Hypothetical state: Funding structure (Scenario 2) ............................................................................21
Figure 18: Nigerian states revenue profile: Current (A), proposed (B) ........................ .......................... ............22
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BACKGROUND
This note was prepared against the backdrop of the recent approval for an
increase in Nigerias minimum wage and its consequences on public sectorfinances, especially for the federating states. Whilst the arguments for and
against Nigerias debt profile continue, we believe the assessment, viability and
sustainability of the current model of funding Nigerias federating states remains
largely ignored. In our opinion, this is fundamental to Nigerias ability to achieve
and sustain economic growth and development in the long run.
At present, states receive a substantial portion of their income average of c.
N3.4 billion as at June 2010 - from the Federation Account AllocationCommittee (FAAC), which is the body responsible for disbursing revenues that
accrue to Nigerias federation account; the account credited with Nigerias oil
and non-oil revenues, and from which disbursements are made to the three tiers
of government federal, state and local. For example, between January 2009 and
November 2010, FAAC has distributed c. N7.6 trillion (c. $50.6bn) to the
federal, state and local governments. Of particular concern is the accelerated
depletion of the nations Excess Crude Account (ECA), a saving-for-the-rainy-
day account set up by the previous administration for the excess of the actualselling price of the countrys oil over the budgeted price. At present, the ECA
stands at c. $460 million from $20 billion in January 2009, indication
disbursements of over US$19 billion c. N2.9 trillion within the period.
Between January
2009 andNovember 2010,
FAAC has
distributed c. N7.6
trillion (c.
US$50.6bn) to the
federal, state and
local governments.
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Figure 1: Current structure of states' revenue profile
Source: DLM Research
As indicated in figure 1 above, most states in Nigeria are predominantly funded
by allocations from the federation account, whilst internally generated revenues
(IGR) remain weak and inconsequential in some states.
Figure 2: FAAC distribution to the 3 tiers of govt. (%)
Source: Fed. Ministry of Finance, DLM Research
On the average, statutory allocations to states from the federation account is c.
25.8 percent of total disbursements while allocations to the federal and local
governments are 40.6 and 20.1 percent respectively.
13% Derivation
VAT
ECA
Statutory
allocation
IGR
Revenues from Federation Account State Revenues Generation
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Jan-09 M ay-09 Sep-09 Jan-10 M ay-10
Others
Local Govts.
State G ovts.
Fed. Govt.
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Figure 3: FAAC Disbursements & ECA Withdrawals, Nbn
Source: Fed. Ministry of Finance, DLM Research estimates
As shown in figure 3, withdrawals from the ECA are responsible for the spike in
FAAC disbursements, resulting in a rapid decline in the accrued savings from
excess crude revenues.
Figure 4: ECA balance, Jan '09 - Sep. '10, $bn
Source: DLM Research estimates
0
5
10
15
20
25
Jan-09 M ay-09 Sep-09 Jan-10 M ay-10 Sep-10
0
100
200
300
400
500
600
700
800
Jan-09 May-09 Sep-09 Jan-10 May-10
FAACdisbursements
ECAwithdrawals
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Regardless of the sheer volume of funding disbursed since the inception of
Nigerias federal revenue allocation system, basic infrastructure still remain non-
existent or at best very weak while states continue to receive the monthly FAAC
allocations. In general, given that recurrent expenditure consumes c. 68 percent
of states total expenditure, the vast majority of states barely have enough funds
left to develop infrastructure that will attract investments and aid growth and
development. This has led to a assumed impression that many states in Nigeria
live for FAAC allocations as their entire economic viability is dependent on the
federal government.
As a result of the latest increase in minimum wage, states have indicated the
preference to vest the power to resolve labour issues within a state and by the
state government, as opposed to the federal government as is the current
practise. The Exclusive List contained in the Nigerian constitution empowers
the federal government to deliberate on all labour issues including trade unions,
industrial relations; conditions, safety and welfare of labour; industrial disputes;
prescribing a national minimum wage for the Federation or any part thereof; and
industrial arbitration. But, as states seek greater autonomy within the
federation, it becomes important that each state begins to seriously look inward
to improve economic viability.
We therefore believe that states in Nigeria need to urgently begin to develop a
funding model with a long term view of reducing their economic dependence on
the federal government. This is also critical to each states ability to access the
debt capital market for project financing. In our opinion, the current practice of
securing repayments to investors in state bonds with an irrevocable standing
payment order (ISPO) may be tested extensively in the years ahead if states
continue to maintain weak IGR profiles whilst recurrent expenditure continues
to increase.
In general, given
that recurrent
expenditureconsumes c. 68
percent of states
total expenditure,
the vast majority
of states barely
have enough
funds left to
develop
infrastructure
that will attract
investments and
aid growth and
development.
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In our theory, a hitherto uneconomically viable state should be able to challenge
other economically viable states for the location of industries and other
institutions for the creation of jobs and increase in revenues that accrue to the
host state. Our theory indicates that this is possible following the
implementation of deliberate economic reforms that seek to develop and sustain
infrastructural development, which in turn attracts investments. This we believe
is an area where fiscal policies such as taxes amongst others, may be well utilised
to drive economic growth, as in most progressive countries.
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INCENTIVE COMPATIBILITY
In a distributed or open environment where agents are self-interested and goaloriented, they might pursue any means available to them to maximize their own
utility. That could lead to undesirable situations where some agents would try to
influence the solving process towards solutions that are more preferable to
them, but not necessarily acceptable to others, or sub optimal to all in any case.1
In our theory, the concept of incentive compatibility can be used to describe the
set of rules or procedures for which, in this case, states within a country
collectively agree and find that it is within their best interest to act in unison toachieve an agreed set of goals.
Figure 5: Incentive Compatibility Cycle
Source: DLM Research
___________________________________
1 Artificial Intelligence Laboratory at the Swiss Federal Institute of Technology, Lausanne.
Infrastructuraldevelopment
Attracts new &viable private sector
investments
More revenues tothe state via taxes
etc
Increase in state
IGR
Additionalinvestments in
revenue-generating
ro ects
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Special Commentary|Before the oil runs dry
Figure 6: Proposed revenue allocation model
Source: DLM Research
At present, most states rely heavily on the federal purse for revenues as shown
on the left side of the diagram above. Truth be told, this situation does not
encourage states to aggressively seek ways of generating revenues internally as
the incentive is weak.
However, as depicted in figure 6, the right side of the diagram shows a situation
where a states investments in infrastructure attract private sector growth, which
consequently leads to increase in revenues (generally taxes) that will accrue to the
state. Thus, making the states revenues more robust, independent and
sustainable.
One of the key assumptions of our theory is that states will adopt a judicious
application of FAAC allocations in the years ahead to develop infrastructure and
consequently attract investments. This should be done by gradually scaling back
the burgeoning public sector and investing FAAC allocations into hard and soft
infrastructure that will support the expansion of private sector activities.
Private
Sector
State
Govt.
Investment in infrastructurefuels private sector growth
Private sector growth leads toincrease in revenues to state
Federal Govt. /FederationAccount
StatutoryAllocation
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Special Commentary|Before the oil runs dry
Why is this required? Besides the increasing global awareness for the need to
develop alternative sources of energy, we also consider that, according to the
Department for Petroleum Resources, Nigerias crude oil would not last beyond
25 years at the current rate of depletion. In addition, the oil-producing Niger
Delta region of the country remains a flash point as seen by the recent
resurgence in militancy in the region, regardless of the governments amnesty
plan. Therefore, in the long term, a states viability within the polity rests on its
ability to generate internal revenues to sustain growth and development and
financial independence.
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Special Commentary|Before the oil runs dry
Figure 8: Lagos State: IGR (Nbn) vs. Statutory Allocation as a % of total
revenues
Source: Lagos State Government, DLM Research estimates
Our analysis further revealed that statutory allocation to the state is significantly
less than recurrent expenditure, which is an average of c. N72 billion per annum
and would have resulted in an average annual shortfall of N34 billion. However,
the states strong IGR sustains much of the growth in total receipts and
investments in infrastructure.
Figure 9: Lagos State: Recurrent vs. Statutory Allocation, N'bn
Source: Lagos State Government, DLM Research estimates
0.00
20.00
40.00
60.00
80.00
100.00
120.00
2004 2005 2006 2007 2008 2009
Av. Recurrent expenditure
Av. Statutory allocation
Recurrent expenditure
Statutory allocation
N34 billion average annual shortfall
34.0
161 .6
40.0%
26.2%
20.0%
25.0%
30.0%
35.0%
40.0%
45.0%
0 .0
60.0
120.0
180.0
20 04 2 00 5 2 006 2 0 07 2 00 8 2 0 09
IGR
Statutory allocation tototal receipts
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Special Commentary|Before the oil runs dry
Figure 10: Lagos state: Summary of finances, N'bn
Source: Lagos State Government, DLM Research estimates
Using the Lagos state as a benchmark, it is evidently possible for states to
generate at least 1x the size of their respective statutory allocation received from
the federal purse. It has also become obvious that increased investments in
infrastructural development will result in an increase in IGR as the state
continues to attract new investments whilst existing companies/institutions
thrive.
Consequently, states should adopt the doctrine: if I dont attract the right form of
businesses to my state, I will not have any revenues such revenues to the state by way
of taxes and levies. With this doctrine imbibed, states will then aggressively seek
to increase their IGRs and invest in infrastructural development and the cycle
will evolve. (See fig. 5)
0
50
100
150
200
250
2004 2005 2006 2007 2008 2009
Total receipts
Capex
IGR
Recurrentexpenditure
Statutoryallocation
States should
develop a mind-set
of if I dont attract the
right form of businesses
to my state, I will not
have any revenues
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DUNN LOREN MERRIFIELD 16
Special Commentary|Before the oil runs dry
The foregoing therefore highlights the following critical issues about Nigerias
current funding model:
Is the current allocation mechanism optimal for incentivising the states,economy and infrastructural development? This has to be assessed
against the backdrop of the possible elimination of state and private
sector incentive compatibility as states continue to rely solely on the
federal purse for revenue generation.
The 80-20 rule (Pareto principle) is indirectly operating in Nigeria asapproximately 12% of the land mass generates 74% of federal revenues.
At present, the nine oil producing states in Nigeria have a land mass of
c. 111,937 sq. kilometres which accounts for 12 percent of Nigerias
total land mass of 923,768 sq. kilometres. The states are Abia, 6,320 sq.
km.; Akwa Ibom, 7,081 sq. km.; Bayelsa, 10,773 sq. km.; Cross River,
20,156 sq. km.; Delta, 17,698 sq. km.; Edo, 17,802 sq. km.; Imo, 5,530
sq. km.; Ondo, 15,500 sq. km. and; Rivers, 11,077 sq. km.
Figure 11: Nigeria: Land mass distribution
Source: DLM Research estimates
Abia, 0.7%
Akwa Ibom,0.8%
Bayelsa,1.2%
Cross River,2.2%
Delta, 1.9%
Edo, 1.9%
Imo, 0.6%
Ondo , 1.7%
Rivers, 1.2%
Other states,87.9%
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Special Commentary|Before the oil runs dry
According to the Central Bank of Nigerias economic report in July 2010, oil
revenues from these states have accounted for 74 percent of federal revenues
whilst non-oil revenues have contributed 26 percent.
Figure 12: Nigeria: Gross federation account revenues (Nbn)
Source: CBN, DLM Research estimates
In this case, our theory compares a country to a company where all divisions are
expected to contribute to group revenues. Any other practice would suggest an
imbalance in the companys revenue generation strategy and that certain
divisions are not viable thereby hindering overall company growth.
To address this imbalance, each division will need to add to the revenue of the
company or country. This we believe can be dealt with by re-directing FAAC
allocations into infrastructure development to create jobs and private sector
opportunities; at the same time adjusting the size of the public sector to a more
manageable level.
0
100
200
300
400
500
600
700
800
Jan-10 Feb-10 Mar-10 Apr-10 May-10 Jun-10 Jul-10
Total revenues
Oil revenues
Non-oil revenues
Strong positive correlationbetween movements in oiland total revenues
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DUNN LOREN MERRIFIELD 18
Special Commentary|Before the oil runs dry
OIL REVENUES:RES IPSA LOQUITUR2
In our analysis of Nigerias oil revenues over the last 30 years, it was deduced
that the countrys real oil proceeds per capita declined by c. 69 percent to 80
cents in 2009 from $2.7 in 1980, indicating an effective drop in the nations real
wealth regardless of the increase in nominal oil revenues over the years.
Figure 13: Nigeria: Oil receipts per capita, US$, 1980-2009
Source: BP Statistical Review, DLM Research estimates
For our analysis, we considered data on the spot prices of Nigerias crude oil
over the last 30 years which indicates that in 1980 the country sold its prime
commodity at $36.98/barrel with production levels at c. 2.059 million barrels per
day (mbpd) resulting in revenues of c. $76.14 million per day. As at December
2009, Nigerias crude was sold at c. $63.35/barrel whilst production levels were
at c. 2.061mbpd leading to revenues of c. $130.55 million per day.
When this nominal increase is weighed against the increase in population from c.
74.5 million in 1980 to c. 158 million in 2010, the result is a 51.9 percent decline
in real income. This is not sustainable.
__________________________________________
2 Res ipsa loquitur is a Latin term meaning the thing speaks for itself.
0.00
0.50
1.00
1.50
2.00
2.50
3.00
1980 1985 1990 1995 2000 2005 2010
Oil receipts per capita,2009 $ terms
Oil receipts per capita,Money of the day $ terms
over the last 30
years, it was
revealed that thecountrys real oil
proceeds per capita
declined by c. 69
percent to 80 cents
in 2009 from $2.7 in
1980
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Special Commentary|Before the oil runs dry
However, when oil prices are adjusted for relative value of US$1 in 1980
compared to 2009 value, Nigerias oil in 1980 was sold at $96.28/barrel in 2009
dollar terms whilst income would be $198.24 million per day. Therefore, the
country earned more from oil in 1980 i.e. $198.24 million per day and $2.7 per
capita, than it earns today 2009: $130.55 million per day and $0.8 per capita.
Figure 14: Nigeria: Oil receipts per day, US$'mn, 1980-2009
Source: BP Statistical Review, DLM Research estimates
Figure 15: Nigeria: Oil production, mbpd, 1980-2009
Source: BP Statistical Review, DLM Research estimates
when oil prices are
adjusted for relative
value of US$1 in
1980 compared to
2009 value the
country earned more
from oil in 1980
than it earns today
0.0
0.5
1.0
1.5
2.0
2.5
3.0
1980 '82 '84 '86 '88 '90 '92 '94 '96 '98 '00 '02 '04 '06 '08
Average production = 1.939mbpd
0.0
50.0
100.0
150.0
200.0
250.0
1980 '82 '84 '86 '88 '90 '92 '94 '96 '98 '00 '02 '04 '06 '08
Oil receipts per day2009 $ terms
Oil receipts per dayMoney of the day $ terms
$198.2mn/day
$130.5mn/day
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Special Commentary|Before the oil runs dry
While oil production levels have remained fairly stable over the last 30 years (fig.
15), other factors such as population, size of the public sector and leakage in the
system have increased significantly.
We went further in our analysis to estimate what Nigeria would need to earn
from crude oil sales in the years ahead for revenues and oil proceeds per capita
to match the levels achieved in 1980 against the backdrop of a young and
growing population, increasing public sector spending profile and weak or non-
existent investments in infrastructure.
Our estimates indicate that oil proceeds per capita in 1980 is 3.2x that of 2009.
Therefore, the countrys crude would have to sell at $204.3/barrel assuming
production levels remain constant to generate oil proceeds of c. $403
million/day and oil proceeds per capita of $2.7. The possibility of this
occurrence is remote.
Overall, our theory posits that incentives are necessary to grow Nigerias overall
income; therefore the following scenarios would apply to a hypothetical state
where:
Significant share of state revenues is from federal purse (Scenario 1)Figure 16: Hypothetical state: Funding structure (Scenario 1)
Source: DLM Research estimates
N'million p.a. Contribution, %
Revenues:
- Statutory Allocation 20,000 89
- IGR 2,500 11
22,500
Expenditure:
- Recurrent 18,000
- Capital 6,000
24,000
Surplus/(Deficit) (1,500)
Our estimates
indicate that oil
proceeds per capita
in 1980 is 3.2x that
of 2009. Therefore,
the countrys crude
would have to sell at
$204.3/barrel assuming production
levels remain
constant to
generate oil proceeds
of c. $403
million/day and oil
proceeds per capita
of $2.7.
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Special Commentary|Before the oil runs dry
For this state, dependence on statutory allocation for its fiscal operations
results in a N1.5 billion deficit. This is because its recurrent expenditure
consumes c. 80 percent of total receipts while capital expenditure
required for infrastructural development and growth - is 27 percent of
total receipts. Consequently, the states deficit will be financed by
borrowings, which places further constraints on development as a
growing debt profile indicates a gradual increase in debt servicing
payments; the opportunity cost being investments in infrastructure.
For this state, we further assume that it has a young population with
median age of c. 19 years whilst c. 44 percent of the population isbetween 0 14 years of age. Therefore, beyond the debt that will be
inherited by the significant portion of the current population,
infrastructural decay and the attendant social problems will most likely
result from this funding model.
Deliberate shift in revenue drive to growth in internal revenues(Scenario 2)
Figure 17: Hypothetical state: Funding structure (Scenario 2)
Source: DLM Research estimates
N'million p.a. Contribution, %
Revenues:
- State Taxes 25,000 71
- Federal Allocation 10,000 29
35,000
Expenditure:
- Recurrent 18,000
- Capital 16,00034,000
Surplus/(Deficit) 1,000
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Special Commentary|Before the oil runs dry
In our theory, the calculated shift in the funding structure with an
emphasis on increasing IGR would result in a robust income profile and
surplus. As seen in figure 17, IGR contributes 71 percent to total
receipts while contribution from the federal purse is 29 percent.
Consequently, the states recurrent and capital expenditure is c. 51 and
17 percent of total receipts respectively.
By and large, a viable and sustainable funding model that generates a
surplus increases a states attractiveness to investors and enhances its
ability to fund infrastructural development via the debt market without
exerting pressure on its finances.
If FAAC becomes a domestic infrastructure/development fund available to
exclusively fund projects in each state with the goal of making such state
independent financially, then the additional income that such state generates
makes the whole nation better off; for example:
Figure 18: Nigerian states revenue profile: Current (A), proposed (B)
Source: DLM Research estimates
Essentially, Nigeria will still earn its oil revenues but can then boast of significant
additional revenues due to the channelling of existing oil revenues into revenue
generating projects. Consequently, overall wealth to the nation can be
significantly improved by c. 3.6x i.e. N720bn/N198bn (fig. 18). In view of
historical precedents, this is arguably the way forward for the country.
(A)N'million
per month(B)
N'millionper month
FAAC Allocation 5,000 FAAC Allocation 5,000
IGR 500 IGR 15,000
Total Income 5,500 Total Income 20,000
N5bn x 36 states 198,000 N20bn x 36 states 720,000
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Special Commentary|Before the oil runs dry
CONCLUSION
If the above holds, perhaps Nigerias economic and political administratorsshould strongly consider evolving the current system into one that stimulates
healthy competition, provides incentive compatibility to states to create their
own revenues and increase the overall wealth of the nation. Currently, 23 of
Nigerias 36 states are running fiscal deficits. Lagos is the only state that
generates IGR exceeding statutory allocation i.e. IGR to statutory allocation
ratio of 2.1x (6yr average). This states IGR to statutory allocation ratio was 1.5x
in 2004 and had increased to 2.8x in 2009 as a result of policies targeted at
growing IGR.
Whilst we acknowledge that all states may not perform like Lagos state, we are
inclined to enquire as to what incentive does a state, say Niger state, have to
enable it attract a blue chip multinational, Nestle for instance, to set up a best-in-
class production facility in Minna, the state capital. The multiplier effect of such
a development on employment and other economic activities will subsequently
result in an improvement in the states revenue profile
The foregoing indicates a critical need to move Nigeria towards sustainable
economic development. Unfortunately, we believe this may never be achieved
with Nigerias current revenue sharing mechanism due to the low incentive it
creates for states to want to seek other revenue generating options to improve
their respective IGRs. The country therefore needs to develop a structure that
incentivises and supports states to generate revenues. This is critical to the
development of infrastructure in Nigeria, before the oil runs dry.
The country
therefore needs todevelop a structure
that incentivises
and supports states
to generate
revenues. This is
critical to the
development of
infrastructure in
Nigeria, before the
oil runs dr .
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Special Commentary|Before the oil runs dry
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