Are states and local governments in the country agents
of development or mere conduit pipes for channeling proceeds of federation
account allocations? That is the question that stares everyone in the
face in view of recent revelations about the finances of most of the 36 states
of the federation. While the 1999 Constitution as amended designs the state as
vehicle for the actualization of the fundamental objective and directive
principles of state policy as enunciated in chapter two of the Constitution, the
operation of the component units of the federation as captured in the ground
norm has maintained a continuous slide from the ideal since 1999. Coming
from a state of abyss under the military, it was permissible however that the
finances of the states were at the most unstructured level at the start of the
current Republic.
But
overtime, it has continued to emerge that the states are doing more of rent
seeking than actual management. Fewer states are turning in anything tangible
in terms of Internally Generated Revenue (IGR), while many have completely left
the collection of such to touts and political hangers on, as evidence of
political patronage.
Many of the states resorted to the bond
market, which in actual fact means spending much of your future earnings today.
The
effect of the growing rush for the bond market too will not take eternity to
show. From the second term of the Fourth Republic, starting from 2003, some
signs of distress were beginning to surface in the management of state
finances. The coming into force of the Debt Management Office (DMO) in 2000
created the much needed statistics that provided insights into the financial
health of the states. Much attention could, however, not be directed at
that because of the battle to free Nigeria itself from the shackles of debt it
got entangled in on the platforms of Paris and London Club of Creditors. With
Nigeria practically out of the huge debt profile in 2006, concerns shifted to
domestic debts and the growing state indebtedness. Right now, the situation is
not only worrisome to managers of the economy; it has been described as
critical. Chairman of the Revenue Mobilization Allocation and Fiscal Commission
(RMAFC), Mr. Elias Mbam said at a senate public hearing held to look into the
state of indebtedness of the states that states have become rent seekers,
solely living on proceeds of federation account, which are also further tied to
bank debts, foreign debts and bonds.
The
public hearing was sequel to a motion on the growing bankruptcy in the states
moved by Senator Olubunmi Adetumbi on October 27, 2011. The Senator had called
the attention of the Senate to the growing concern for the finances of the
states and the danger of insolvency facing the 36 states of the
federation. Quoting a study of the Nigerian Governors’ Forum (NGF), the
Senator noted that 20 of the 36 states are faced with prospects of unstable and
unfavourable financial standing, based on the high percentage of their wage
bills in relation to the total revenue accruable. The motion was unanimously
accepted by the Senate, which immediately assigned a Joint Committee including
Committees on National Planning, Finance, States and Local Governments and
Appropriation to conduct a public hearing and report its findings to the
plenary.
According
to the scary statistics submitted by Senator Adetumbi, only four states of the
federation can be said to have healthy state of accounts. They are Abia,
Akwa-Ibom, Anambra, and Jigawa. While records show that Abia spends 14 percent
of its revenue on personnel cost, Akwa-Ibom and Anambra spend 12 per cent on
the same, while Jigawa spends six percent on personnel costs. Imo (19 per
cent), Kwara (18 per cent); Lagos (18 per cent); Kebbi (16 per cent); Delta (15
per cent) are regarded as operating within the tolerable status, while six
states are regarded as completely distressed.
On that list include Kano; Sokoto;
Niger; Zamfara; Katsina and Osun.
The statistics presented from the Governors Forum Labour
Policy Report for 2011 further indicates that Kano expends 126 percent of its
revenue on personnel costs, Sokoto, 62 percent and Niger 56 percent. Zamfara
spends 54 percent of its revenue on personnel costs, while Katsina and Osun
spend 50 percent each of their earnings on personnel costs to stand rooted on
the distressed cadre. States that spend between 48 and 30 percent of their
total revenue on personnel costs are regarded as being in critical state
and they include Ekiti(48 per cent); Plateau(44 per cent ; Benue(42 per
cent); Edo(42 per cent ); Borno(41 per cent); Adamawa(40 per cent ); Cross
Rivers(39 per cent ); Enugu(39 per cent); Taraba (38 per cent); Ogun(37 per
cent ); Kogi(32 per cent); Yobe (32 per cent); Ebonyi(31 per cent); Ondo(31 per
cent) and Kaduna(30 per cent), while states which spend from 27 and
20 percent of their earnings on personnel costs are regarded as unhealthy. They
are Oyo (27 per cent); Bauchi (26 per cent); Bayelsa (24 per cent); Nasarawa
(24 per cent); Gombe (23 per cent) and Rivers (20 per cent).
Senator
Adetumbi further submitted that states have now become social employers of
labour with unsustainable high work force which makes service delivery almost
impossible. With a weak private sector, he projects that the economy would be
in further danger even as states become financially insolvent and increasingly
handicapped to finance the real sector and drive growth.
He
also presented statistics to further trouble the discerning minds. States have
encumbered themselves with bonds from the capital market, much of them long term.
The records on ground show that Lagos alone had participated in the financial
bonds on three occasions, with a N15 billion bond in 2002 and two other series
including N50 billion as the first series and another N57 billion bond in the
second series. Other states on the bond market list include Imo(N18.5
billion)Kwara(17 billion); Bayelsa(N50 billion); Ogun N50 billion);Niger(N6
billion); Kaduna (N8.5 billion); Ebonyi(N16.5 billion); Delta(N5 billion);
Kebbi(N3.5 billion); and Yobe (N2.5 billion). Osun has disclosed that it will
take N50 billion to finance its 2012 budget. With such huge financial burden,
it is apparent that the states are not only living from hand to mouth, but are
mere appendages of the government at the centre. The Senator submitted that the
infrastructural deficits in the states has continued to put pressure on the
major urban centres with attendant migration and worsening crime rate. But to
the Senator, the fear is not in borrowing but the absence of proper procedures
which further exposes the borrowed funds to misuse.
In
an interview with The Friday Edition, Senator Adetumbi insisted that states are
really enjoying the bad patch of the economy and that there is the need to
urgently revise the trend.
He
said of the motion: “That motion has brought to the fore the fiscal challenges
that most states of the federation are facing. A situation where some states
are spending as high as 126 percent of their internally generated revenue on
wages meaning that they have to borrow to meet up. Others spend between 60 and
80 per cent of their total revenue as personnel cost, leaving less than 20 per
cent for capital expenditure, that is not acceptable in a developing country
where the running of the bureaucracy is costing more than what is required to
open up the economy.
“Because
you open up the economy through education, service delivery, infrastructure and
the enabling environment for businesses to run. l am not, however, surprised
that most states are now going to the capital market to raise funds but why do
you need to borrow even at a very high percent if your internally generated
revenue and the money coming from the federation account are enough for you to
do what you want to do. They are raising bonds to finance infrastructure
projects because there is a gap in their revenue that is not enabling them to
do as much capital projects as the development of their states is calling for.”
The
Senate reasoned along with Adetumbi and committed the motion to further
scrutiny by the Joint Committee. On March 14, the committee gathered
stakeholders at the Hearing Room One of the Senate main building to discuss the
unfolding scenario of bankruptcy in the states.
RMAFC
Chairman and the Debt Management Office did not deviate from the submissions
presented by the Senator from Ekiti North on the Senate floor last October.
Chairman of RMAFC, Elias Mbam corroborated the findings of the Senator when he
declared that the states had so far been living on funds they did not generate.
He
stated that most states had mortgaged the monthly allocations from the
federation account, due to heavy loans and bonds burden. According to Mbam,
besides the local debts, most states have also exposed themselves to foreign
debts and bonds, which have practically mortgaged the monthly allocations they
receive from the Federation Account.
RMAFC
said that as at the end of last year, the 36 states and the Federal Capital
Territory (FCT), Abuja were owing about N339.9 billion (about $2.165billion),
which it said was making it difficult for them to finance developmental
projects and grow the economy of the states. That is besides the states’
indebtedness to local banks in short term borrowings and the exposure to the
capital market.
The
RMAFC submitted at the hearing: “Records available to the commission from the
Debt Management Office (DMO) showed that as at December, 2011 the total
external debt stock of all the states (multilateral) stood at $2.165billion,
while that of the Federal Government stood at $3.5billion and a domestic stock
of N5.622trillion for the Federal Government alone. The commission considers
this profile as high.”
Mbam
also said that as a result of the huge debt profile, there have been consistent
deductions from the allocations of most of the states of the federation for settling
external and domestic debts and the bonds. He said that the development was an
indication that most of the state governments had collaterised their share of
the monthly Federation Account receipts to service debts.
Another
trend which is worrisome to managers of the nation’s economy is the fact that
most of the debts owed banks by states were tied to Irrevocable Standing
Payment Orders (ISPOs) issued to the Accountant General of the Federation to
deduct directly from their monthly statutory allocations.
Mbam
said: “The implication is that these debt overhangs weigh heavily on the
monthly allocations due to the states thereby preventing them from meeting
their minimum basic obligations to the citizens.”
According
to him, deficit budgeting has become a serious challenge for most states,
noting that even though deficit budgeting is tolerable within an acceptable
limit, its endless application has endangered and forced the state governments
to resort to excessive borrowing in order to meet their basic expenditure
demands.
He
said these excessive borrowings continued even when where the states had
obviously no capacity to pay back.
The
chairman of RMAFC stated that the consistent demand by the states for their
share of the Excess crude revenue account is an indication of the desperate
financial position of the state governments to get funds in order to meet costs
of governance.
He
said: “For instance, the sum of $1.5billion was shared in three equal
installments from the excess crude account in 2011 alone out of which states
received the sum of $400.8million.”
He
told the joint committee that between 2009 and 2011 all the states had a gross
statutory allocation of N2.66trillion out of which N266.89billion was deducted
as total foreign and other loans within the period with varying degrees of
effect on the allocations.
Mbam
noted that noticeable indicators of financial distress in states include the
cries by states that they could not pay the new national minimum wage in the
face of the task to provide minimum services to the citizenry.
“This
is a critical sign that the finances of most states and local governments were
unhealthy. Today, most states have not been able to implement the new minimum
wage. This challenge has made state executives to call for the review of the
Revenue Allocation Formula in favour of states.
“Equally,
they have also called for the removal of fuel subsidy which they also believe
would enhance the revenue accruing into the Federation Account and invariably
the statutory allocations to their respective states and local governments,” he
said.
Mbam,
however, recommended that the National and State Assemblies should consider
appropriate legislations limiting the total exposure of states to external and
domestic borrowing to not more than 20 per cent of their monthly allocations
from the Federation Account.
“In
addition, such borrowing should be for economic projects. Furthermore, there
should be strict compliance to the relevant provisions of the Borrowing by
Public Bodies Act,” he said.
As
a way of redressing the obviously parlous state of finances of the states, the
Revenue Mobilisation Chairman said that governments at all levels should
diversify their economic base in order to enhance internally generated revenue,
just as he called for a review of exclusive and concurrent legislative lists in
the constitution with respect to the responsibilities of the Federal, States
and Local Governments for appropriate revenue allocation.
“The
cost of governance should be reduced drastically by cutting down recurrent
expenditure, particularly, the number of aides, ministries, departments,
agencies, wastages, etc. There should therefore be more emphasis on capital
projects,”
Mbam
said, adding that allocations from the excess crude account should be targeted
at economic projects that have direct impact on the people while relevant
government institutions should be strengthened to effectively monitor and
ensure full compliance with the extant laws in the use of public funds.
As
the Senate is currently awaiting the verdict of the Joint Committee on the way
out of the near certain insolvency by the states in the aftermath of the public
hearing, some stakeholders are further expanding the frontiers of the argument.
Last
month, Senator Nurudeen Abatemi-Usman, Vice Chairman, Senate Committee on Niger
Delta Affairs also extended the barricades of the argument on the indebtedness
of the states when he presented a bill before the Senate seeking to ensure
autonomy for local governments in country in view of the grinding poverty
staring the states in the face.
Senator
Abatemi-Usman said that financial autonomy for local government areas in the
country would give room for rapid growth and development at the grass-roots
level. Though the bill is a variant of the Constitution amendment bills being
put together by the Senate committee on constitution review, Abatemi believed
that the urgency of the matter, as a result of the insolvency ravaging the
states and the certain determination of the states to drag the local
governments into the pit mandated him to present it immediately. What the
Senator appeared to be saying was that if the states go down with the local
governments tied to their aprons, the fate of national economy itself is in
doubt.
The
senator representing Kogi Central said in the lead debate that the autonomy
granted local governments through the 1976 Local Government Reform had been
whittled down considerably over the years and that most states of the
federation had misinterpret section 7 of the 1999 Constitution to suit their
whims. According to him, local governments had been prevented from functioning
the way they should due to financial strangulation by the states.
He
submitted: “Local governments have, over the years, suffered from the continued
whittling down of their powers, and state governments had continued to encroach
upon what would normally have been the exclusive preserves of local governments
and consequently there has been a divorce between the people and government at
their most basic levels.
“There
is no gainsaying that the critical roles of local governments have indeed been
impaired, in fact, out-rightly subverted because of corruption in some
instances by states. In other cases, the process of disbursement of the
accruable funds, as allocated from the Federation Account to the respect
beneficiary local councils often get grossly abused; while some states deduct
certain percentages before the release of the balance, in the name of servicing
social amenities and infrastructure, which are non-existent, in most cases,
others simply hold on, at will.”
He
declared that the termination of the joint state and local governments’
accounts will help to substantially eradicate the anomaly. The senator stated
further that the delay in release of council funds and deductions by the states
had become tools in suppressing the efficiency and service delivery by local
governments across the country.
But
all stakeholders know that yanking the local governments off the apron strings
of the states would not come as an easy task. The Senate and, indeed, all
stakeholders must be on the alert if the idea is to be achieved in that
direction.
Source: Nigerian Tribune