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Implementation and Compliance Challenges to the Nigerian National
Building Code: Evidence from Borno State
Machina M. A.¹, Ahmad S. U.², Sani Abdulkadir², Ashiru M. A.², Usman M. G.², Kwami I. A.², Bello A.
S.²
1
Department of Building, University of Maiduguri, Maiduguri-Nigeria.
2
Department of Building, Tafawa Balewa University, Bauchi-Nigeria.
DOI:
https://doi.org/10.51583/IJLTEMAS.2026.150500173
Received: 24 May 2026; Accepted: 29 May 2026; Published: 11 June 2026
ABSTRACT
The Nigerian National Building Code (NBC) offers comprehensive, centralized regulations to guide
construction, ensure structural integrity, and promote sustainability. This study investigates the level of
implementation of the NBC within Borno State, evaluating five major barriers identified in the literature for field
criticality. Using a mixed methods approach with a purposive, maximum variation sampling technique, 320
building projects were selected to assess compliance with 13 key areas of the NBC, involving 450 respondents
comprising developers, contractors, clients, construction professionals, and royal fathers. Data were sourced
through structured questionnaires and face-to-face dialogues. Field investigation revealed that the NBC is only
partially domesticated in Borno State. Data on the five barriers showed overall reliability (α = 0.888). Based on
their Relative Importance Index (RII), the barriers were ranked in descending order of criticality as: Stakeholder
Non-Compliance and Cultural Resistance; Economic Factors; Legal and Regulatory Bottleneck; Weak
Institutional Capacity; and Corruption and Enforcement Failures. Further Chi-Square analysis revealed a
significant difference in compliance levels between public and private building projects. Public projects
complied with 83.96% of the NBC provisions, while private projects showed only 16.04% compliance. It is
concluded that the Borno State Government has failed to enforce code compliance effectively in private projects,
leaving residents vulnerable to unsafe, low-quality, and structurally unstable construction. Recommendations
include the full domestication of the NBC and the establishment of an independent, statutory commission to
oversee code enforcement, among others.
Keywords: Nigerian National Building Code, Implementation, Enforcement, Compliance, Borno State
INTRODUCTION
The National Building Code
A national building code is a comprehensive, centralized set of regulations and technical standards adopted by a
federal government to guide the design, construction, alteration, and maintenance of buildings throughout a
country (CORBON/NIOB, 2011). It establishes minimum, mandatory standards to protect public health, safety,
and welfare, preventing structural failures and ensuring sustainability (Fika et al, 2025; Dutum, 2025). These
regulations, comprising technical specifications and administrative controls, guide builders to ensure safety, as
inherent imperfections in construction can lead to risks (Saulawa, 2022; Umar et al, 2026). As a guiding
document, it aims to increase awareness of building standard compliance, emphasizing its role in professional
practice and public protection. Furthermore, it highlights that adherence to these standards is critical, supported
by a framework of inspections and accountability (CORBON/NIOB, 2011; Osamudiamen et al, 2025a).
The National Building Code in Nigeria
The National Building Code (NBC) in Nigeria was initiated by the Federal Ministry of Works and Housing in
1987, finalized by stakeholders in 2006, formally approved by the Federal Executive Council later that year, and
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launched for operation in 2007. It was primarily established to address the growing crisis of building failures
and unsafe construction practices (Osamudiamen et al, 2025a). According to CORBON/NIOB (2011), the key
driving factors for the establishment of the National Building code in Nigeria included (1) The absence of
planning of towns and cities; (2) the rising, high-profile incidence of collapsed buildings, particularly in Lagos
State, which caused significant loss of life and property, necessitating a standardized, enforceable code; (3) the
reliance on non-professional (quacks) to execute projects, alongside the use of substandard and untested
materials, which exacerbated structural safety concerns; (4) a dearth of referenced design standards for
construction professionals; and (5) a lack of maintenance culture. While a national code is established by the
federal government, it requires adoption by state and local governments to be enforced locally.
Aims and Objectives of the Study
The aim of this study is to assess the implementation of, and compliance with, the Nigerian National Building
Code (NBC) in Borno State, identifying challenges and recommending strategies to enhance the safety of the
built environment. Its objectives are:
(i) To evaluate the level of implementation of, and compliance with, the NBC by building professionals and
developers in Borno State.
(ii) To identify the legal, institutional, and technical barriers hindering effective NBC implementation in Borno
State.
(iii) To recommend strategies to overcome identified barriers for improved building safety and enforcement.
LITERATURE REVIEW
Structure of the Nigerian NBC
The Nigerian National Building Code is made up of four parts, containing fifteen sections in total, which are
numbered serially within their respective parts as follows.
• Part 1: Administration (Sections 1-3): Covers citation, definition, and the establishment of the Building Code
Advisory Committee (BCAC).
• Part 2: Technical (Sections 4-12): Divided into four stages (Pre-design, Design, Construction, Post-
construction), covering building classifications, materials, and professionals.
• Part 3: Enforcement (Section 13): Focusses on the control of building works.
• Part 4: Schedules and References (Sections 14-15): Includes appendices, sections, and referenced standards.
Table 1: Placement of NBC Sections According to their Respective Parts
PART 1 ADMINISTRATION
Section 1 - Citations and Commencement
Section 2 - Interpretations, Definitions, and Abbreviations
Section 3 - The Establishment of a Building Code Advisory Committee
PART II TECHNICAL
Section 4 - Building Design
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Section 5 - Building Construction Classifications
Pre-Design Stage:
Section 6 - Environment and General Building Requirements
Design Stage:
Section 7 - Architectural Drawing Requirements
Section 8 - Civil/Structural technical design Requirements
Construction Stage:
Section 9 - Services Engineering Design Requirements.
Section 10 - Building Material and Components Requirements
Section 11 - Building Construction Requirements
Post Construction Stage:
Section 12 - Post Construction Requirements
PART III ENFORCEMENT.
Section 13 - Control of Building Works
PART IV SCHEDULES AND REFERENCES
Section 14 - Referenced Standard
Section 15 - Compliance Forms
SOURCE: Federal Republic of Nigeria (2007)
Table 1 illustrates the placement of the sections according to their respective parts.
State-Level Model of NBC in Borno State
The National Building Code was established to unify building standards across Nigeria, setting minimum
requirements for safety, structural integrity, and professional responsibility (Conifer, 2025). In Bono State, the
implementation of this code is localized through the establishment of the following laws:
1. Borno State Urban and Regional Planning Law 2001: This is the primary legislation governing
development permits and construction in the state (Borno State Government, 2002).
2. Borno State Land Use Regulations 2022: These regulations govern the use of land, requiring proper
documentation such as a Certificate of occupancy (C of O) before development (Borno State Government,
2022).
3. Borno state Right of Way Regulation 2023: This specifically regulates the installation and maintenance
of structures within designated right of way (Borno State Government, 2023).
4. Borno Geographic Information Service (BOGIS) Law 2019: It established BOGIS as the central
authority for managing land records and facilitating permit process (Borno State Government, 2019).
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Regulatory Bodies for State-Level Model NBC in Borno State
In Borno State, while the primary enforcement body for the Borno Geographic Information Service Law 2019
and Borno State Land Use Regulations of 2022 is the Borno Geographic Information Service (BOGIS), the
Borno State Urban and Regional Planning Law 2001 and the Borno state Right of Way Regulation 2023
are enforced by the Borno State Urban Development Board (BOSUDB). Both organizations work in conjunction
with each other and other relevant state government Ministries, Departments and Agencies (MDAs) for the
enforcement and realization of objectives of these laws (Borno State Government, 2019).
• The Borno Geographic Information (BOGIS). This organization is primary responsible for administering,
managing, and enforcing land-related matters. It handles land management, title registration and tenure
certification, Right of Occupancy application, and land database. The organization holds under the jurisdiction
of the Executive Governor (Borno State Government, 2019 & 2022).
• The Borno State Urban Development Board (BOSUDB). It is the primary regulatory agency responsible for
urban planning, building development, and enforcing urban regulations, often functioning under the supervision
of the Ministry of Land and Survey and working closely with BOGIS for spatial planning and land use
compliance within urban areas, particularly focusing on issuing development permits and enforcing the Right of
Way. The board oversees the installation, placing, or maintenance of telecommunications network facilities
within the state and charges fees based on the Borno State Right of Way regulation 2023 (Borno State
Government, 2022 & 2023).
In essence, while BOGIS oversees land tenure, title certification, and GIS data, BOSUDB focuses on building
approvals and urban environmental control.
Problems of NBC Implementation at State Level
According to Osamudiamen et al (2025a), the implementation of the Nigerian National Building Code (NBC) at
the state level is largely hindered by a lack of legal domestication, weak institutional capacity, and widespread
non-compliance. Since building control is a residual matter under Nigeria’s federal system, Umar et al (2026)
added that, the code lacks automatic nationwide enforceability and requires individual states to pass enabling
legislation to be effective. Major key problems identified in literature can be grouped as follow:
1. Legal and Regulatory Bottlenecks
• Failure to Domesticate the Code: Many state governments have not passed enabling laws to adopt the NBC,
leaving it largely as a toothless bulldog of advisory guidelines rather than a legally binding requirement
(Osamudiamen et al, 2025a; Umar et al, 2026).
• Conflicting Jurisdictions: In several states, local governments and state planning departments issue permits
independently, creating confusion, conflict, and regulatory gaps (Umar et al, 2026).
2. Weak Institutional Capacity
• Underfunding and Understaffing: State building control departments frequently lack the financial resources,
technical personnel, and equipment necessary for regular, effective site inspections (Osamudiamen et al, 2025;
Fika et al, 2025).
• Lack of Autonomy and Training: Regulatory bodies often lack independence and have staff who are untrained
in the code’s specific provisions or its latest updates (Osamudiamen et al, 2025b).
• Obsolete Material Testing: State-level laboratories are often poorly equipped or non-existent, making it difficult
to test for standard-compliant materials (Fika et al, 2025).
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3. Corruption and Enforcement Failures
• Corruption and Bribery: Enforcement is weakened by corruption and political interference, with non-compliant
projects frequently obtaining approval through illegal means (Conifer, 2025).
• Sporadic Inspections: Building control officials often fail to monitor construction sites effectively, leading to
unauthorized construction or deviations from approved plans (Fika et al, 2025).
• Weak Prosecution: Fines for non-compliance are frequently too low to deter offenders, and prosecutions for
violations or building collapses are rare (Conifer, 2025; Fika et al, 2025).
4. Stakeholder Non-Compliance and Cultural Resistance
• Dominance of the Informal Sector: According to Osamudiamen et al (2025a), over 70% of construction
activities are handled by the informal sector, which operates outside of official regulatory oversight.
• Low Awareness and Ignorance: Many developers, builders, and artisans, especially in rural areas, are unaware
of the NBC’s standards or technical requirements (Fika et al, 2025).
•Cultural Resistance: In some regions, traditional building practices and local materials (e.g., mud/thatch) are
favored over modern code-compliant methods (Osamudiamen et al,2025a).
5. Economic Factors
•High Cost of Compliance: Economic pressures, including inflation and high building material costs, lead
developers to cut corners and use substandard materials to reduce expenses (Osamudiamen et al, 2025a; Fika et
al, 2025; Umar et al, 2026)
2.5 NBC Enforcement and Compliance Mechanism Areas Relevant to the Study
2.5.1 Establishment Code Enforcement Units
On the establishment of the Code Enforcement Committee, subsection 13.1.1.1 of the NBC states that:
“There shall be established in all Federal, State and Local Government Urban Development Agencies, a Code
Enforcement Division /Section/Unit in their Development Control Department.”
On credential and identification of Code Enforcement staff and their office building, subsection 13.1.1.3.13
further stated that:
“The Code Enforcement Division/Section/Unit and authorized representatives shall carry proper credentials and
identification of their respective office for the purpose of inspecting any and all buildings and premises in the
performance of duties under this Code, and shall be appropriately attained in an approved form.”
Pre-Design Stage of the Building
Subsection 13.2.1.1 of the NBC requires that the owner of any intended building project should possess “(i)
Perimeter survey and topographical survey of the site, and (ii) The Development Permit for the proposed
development obtained from the Planning Authority.”
Design Stage of the Building
Subsection 13.2.2.1 gave the requirements for the design stage of the building as “Working drawings and
specifications prepared by registered design professionals.”
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Construction Stage of the Building
In subsection 13.2.3.1 the NBC gave the major requirement at the construction stage as “the contract documents.”
However, Subsection 13.2.3.2 insisted that, “The Code Enforcement Division /Section/Unit shall ensure that the
above requirements are submitted with application for building approval.”
Post-Construction Stage of the Building
The requirements for the post-construction stage of the building as stated in subsection 13.2.4.1 are “(i)
Certificate of Fitness for Habitation, (ii) As-Built Drawing, (iii) Building Maintenance Manual, and (iv) Building
Condition survey Report.
Notice of Completion of Various Stages of the Building
Subsection 13.6.1 stated that, “A person carrying out building works shall give the Code Enforcement
Division/Section/Unit notice in writing of:
(i) The commencement of work, at least seven days, in advance.
(ii) The completion of any stage of work, not more than seven (7) days after such completion.
(iii)The completion of the building, not more than (7) days thereafter……”.
Site Signboard
In addition to regulations on ‘notices’ to be served to the Code Enforcement Agency on the completion of various
stages of the building work, subsection 13.6.1 further stressed that “Before the commencement of any
construction works, a site signboard showing the names and addresses of the client, professionals and contractor
involved in the project shall be erected in a place to be seen clearly by the general public.”
Inspection of On-going Building Work
Subsection 13.7.1 stated that “All construction or work for which an approval is required shall be subject to
inspection by the Code Enforcement Division/Section/Unit…”. However, subsection 13.7.2 pointed that “it shall
be the duty of the person carrying out the work authorized by a permit to notify the Code Enforcement
Division/Section/Unit that such work is ready for inspection.”
Inspection Record Card
Another important requirement of the NBC in the construction of building projects is the ‘Inspection Record
card’. Subsection 13.7.4 stated that,
“Work requiring a building permit shall not be commenced until the permit holder or his agent have posted an
Inspection Record Card to allow the Code Enforcement Division/Section/Unit to conveniently make the required
entries thereon regarding inspection of the work. This card shall be maintained in such position by the permit
holder until certificate of use and habitation has been issued by the Code Enforcement Division/Section/Unit.”
Certificate of Use and Habitation
Subsection 13.3.11.1 pointed out that “A building or structure hereafter erected shall not be used or occupied in
whole or part until the certificate of use and habitation shall have been issued by the Code Enforcement
Division/Section/Unit.”
Execution and Supervision of Building Works
The key subsections on workmanship and supervision are as follows:
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(i) 13.12.2: All building works shall be generally supervised by a registered architect and engineers in line with
their inputs.
(ii) 13.12.3: Any contractor who is engaged to carry construction work in accordance with this Code shall certify
the professional registration laws of the country.
(iii) 13.12.4: The management of the execution of the building work including the supervision of artisans and
tradesmen shall be carried out by a registered builder.
Compliance Form
The Compliance Form is an attestation form signed by construction professionals upon completion of every
stage of a project, testifying that the stage concerned has been completed in accordance with the mandates of the
Code. The compliance forms listed in the Code are: (i) Setting Out Compliance Form, (ii) Foundation/Basement
Compliance Form, (iii) Superstructure Compliance Form, (iv) Roofing and Closing Compliance Form, (v)
Mechanical Installation Compliance Form, (vi) Electrical Installation Compliance Form, (vii) Finishes
Compliance Form, and (viii) Stop Work/Removal/Discontinuation Notice.
Research Gap
Long before the advent of the Nigerian National Building Code (NBC), many of its provisions were already in
practice within both the public and private building sectors to safeguard the safety and welfare of end-users
(CORBON/NIOB, 2011; Ogunbiyi, 2014; Sholanke and Adisa, 2025)). In reality, the NBC simply organizes
these rules and standards to systematically regulate project execution, aiming for adoption as a binding legal
document by all stakeholders.
Unfortunately, because building is a “residual matter” under Nigeria’s federal system, adoption of the NBC is
not compulsory for state governments. However, the majority of literature featuring the NBC, such as Fika et al
(2025), Osamudiamen et al (2025a), Mba et al. (2025) and Umar et al (2026), has been concerned only with the
domestication of the code at the state level, failing to investigate the actual level of utilization and compliance
with the code’s provisions on physical projects within localities, regardless of whether or not the code is formally
adopted in that area. This study bridges this gap by identifying key areas in the NBC and investigating their
actual level of implementation and compliance on 320 randomly selected building projects in Borno State. In
addition, the study categorizes the projects into public and private to investigate if any significant difference
exists in compliance levels between the two types of projects.
METHODOLOGY
Distribution of Questionnaires and Collection of Data
This study adopted two concurrent, mixed-method phases to investigate the NBC in Borno State. Phase one
examined the criticality of five factors driving poor implementation, while phase two assessed compliance with
thirteen core NBC areas across the state’s 27 local government areas.
Using a purposive, maximum-variation sampling strategy, key informants with high-level experience in building
construction were selected to ensure a balanced perspective. Data collection concluded upon reaching thematic
saturation, with findings triangulated against documentary evidence to ensure reliability and minimize volunteer
bias.
The five categories of respondents in the study are (1) Developers, (2) Contractors, (3) Clients, (4) Construction
Professionals, and (5) Royal Fathers. Table 2a and 2b illustrate the pattern of distribution and collection of the
questionnaires in the two phases of field work.
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Table 2a: Distribution and Collection of Questionnaires in Phase I
No. of
Question
naires
Developers
(Group A)
Contractors
(Group B)
Clients
(Group C)
Construction
Professionals
(Group D)
Royal
Fathers
(Group E)
Total
Percentage
(%)
Administ
ered
50
120
60
100
120
450
100
Received
37
91
44
76
89
337
75
Table 2b: Distribution and Collection of Questionnaires in Phase II
Types of Building Works
Public Building Works
Private Building Works
Total
Percentage
(%)
No. of Questionnaires
Administered
200
120
320
100
No. of Questionnaires
Returned
192
113
305
95
To improve data quality, researchers held face-to-face meetings with all respondents to explain the questionnaire
requirements. Furthermore, to ensure data accuracy in Phase II, only building works completed within the last
two years were included. Notwithstanding, the percentage of questionnaires retrieved from the field (75% in
Phase I and 95% in Phase II) is sufficient for further statistical analysis, considering Moser and Kalton’s (2023)
assertion that survey results may be biased or of negligible value if the response rate falls below 30-40%.
Data Presentation
A 4-point Likert scale was employed to measure the criticality of factors in Phase I, and a binary ‘Yes’ or ‘No’
scale was used in Phase II. The data collected from the field for both phase I and II are presented in Tables 3 and
4, respectively.
Table 3: Distribution of Retrieved Responses in Phase I
FACTOR
ASSESSMENT
RESPONSE
Developers
Group A
Contractors
Group B
Clients
Group C
Professionals
Group D
Royal Fathers
Group E
Total
Legal and
Regulatory
Bottleneck
Very Satisfied
19
49
25
42
39
174
Satisfied
9
19
9
11
22
70
Dissatisfied
6
18
7
19
17
67
Very Dissatisfied
3
5
3
4
11
26
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Total Response
37
91
44
76
89
337
Weak
Institutional
Capacity
Very Satisfied
18
51
20
48
39
176
Satisfied
11
19
9
12
17
68
Dissatisfied
6
17
12
10
19
64
Very Dissatisfied
2
4
3
6
14
29
Total Response
37
91
44
76
89
337
Corruption
and
Enforcement
Failures
Very Satisfied
17
48
26
21
32
144
Satisfied
13
23
12
14
17
79
Dissatisfied
4
15
5
25
28
77
Very Dissatisfied
3
5
1
16
12
37
Total Response
37
91
44
76
89
337
Stakeholder
Non-
Compliance
and Cultural
Resistance
Very Satisfied
27
51
31
41
69
219
Satisfied
5
20
5
20
12
62
Dissatisfied
3
13
4
10
7
37
Very Dissatisfied
2
7
4
5
1
19
Total Response
37
91
44
76
89
337
Economic
Factors
Very Satisfied
27
54
31
38
48
198
Satisfied
6
18
7
21
23
75
Dissatisfied
3
10
4
10
13
40
Very Dissatisfied
1
9
2
7
5
24
Total Response
37
91
44
76
89
337
Table 4: Distribution of Retrieved Responses in Phase II
S/No.
FACTOR
RESPONSE
Public Building Works
Private Building Works
Yes
No
Total
Yes
No
Total
1.
Establishment of Code Enforcement
Division/Sec/Unit.
0
(0%)
192
(100%)
192
0
(0%)
113
(100%)
113
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2.
Presentation of Site Layout Plan and
Development Permit.
192
(100%)
0
(0%)
192
17
(15%)
96
(85%)
113
3.
Production of Working Drawings &
Specifications.
192
(100%)
0
(0%)
192
50
(44%)
63
(56%)
113
4.
Presentation of Building Approval.
192
(100%)
0
(0%)
192
18
(16%)
95
(84%)
113
5.
Presentation of Certificate of Use &
Habitation.
192
(100%)
0
(0%)
192
7
(6%)
106
(94%)
113
6.
Notice of Commencement & Completion
of Various stages of the Work.
192
(100%)
0
(0%)
192
17
(15%)
96
(85%)
113
7.
Placement of Construction Site Signboard.
105
(55%)
87
(45%)
192
49
(43%)
64
(57%)
113
8.
Inspection by Officials in the Course of the
Work.
192
(100%)
0
(0%)
192
27
(24%)
86
(76%)
113
9.
Issuance of Inspection Record Card.
0
(0%)
192
(100%)
192
0
(0%)
113
(100%)
113
10.
Engagement of Registered Architect and/or
Engineer for Supervision.
92
(48%)
100
(52%)
192
61
(54%)
52
(46%)
113
11.
Engagement of Registered Builder for
Construction Site Management.
92
(48%)
100
(52%)
192
21
(19%)
92
(81%)
113
12.
Registration of Contractor by Corporate
Affairs Commission.
103
(54%)
89
(46%)
192
28
(25%)
85
(75%)
113
13.
Issuance of Compliance Form.
0
(0%)
192
(100%)
192
0
(0%)
113
(100%)
113
TOTAL
1544
952
295
1174
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Data Analysis
Phase I Field Study
(a) Ranking of Factors
As shown in Table 3, respondents rated their perception of those five factors identified as responsible for poor
implementation the NBC in Borno State. Responses were categorized as Very Satisfied (4), Satisfied (3),
Dissatisfied (2), or Very Dissatisfied (1).
To determine the ranking of the factors, we will use the Relative Importance Index (RII) method.
(i) Formula
The RII is calculated using the following formula:
RII =
=
W here:
W = Weight given to each factor by the responses (e. g. for “Very Satisfied”, Weight = 4)
n
3
= Number of responses for “Satisfied” (Weight = 3)
n
2
= Number of responses for “Dissatisfied” (Weight = 2)
n
1
= Number of responses for “Very Dissatisfied” (Weight = 1)
A = Highest Weight (4)
N = Total number of responses (337 for all factors)
In this context, “Very satisfied” indicates the highest impact of the factors, and “Very Dissatisfied” indicates the
lowest.
Calculations
Factor 1: Stakeholder Non-Compliance and Cultural Resistance
n
4
= 219, n
3
= 62, n
2
= 37, n
1
= 19, N = 337
∑w = (4x219) + (3x62) + (2x37) + (1x19) = 876 + 186 + 74 + 19 = 1155
RII =
1155
4337
=
1155
1348
= 0.8568
Factor 2: Economic Factors
n
4
= 198, n
3
= 75, n
2
= 40, n
1
= 24, N = 337
∑w = (4x198) + (3x75) + (2x40) + (1x24) = 792 + 225 + 80 + 24 =1121
RII =
1121
4337
=
1121
1348
= 0.8316
Factor 3: Week Institutional Capacity
n
4
= 176, n
3
= 68, n
2
= 64, n
1
= 29, N = 337
∑w = (4x176) + (3x68) + (2x64) + (1x29) = 704 + 204 + 128 + 29 = 1065
RII =
1065
4337
=
1065
1348
= 0.7901
Factor 4: Legal and Regulatory Bottleneck
n
4
= 176, n
3
= 70, n
2
= 67, n
1
= 26, N = 337
∑w = (4x176) + (3x70) + (2x67) + (1x26) = 696 + 210 + 134 + 26 = 1066
RII =
1066
4337
=
1066
1348
= 0.7908
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Factor 5: Corruption and Enforcement Failures
n
4
= 144, n
3
= 79, n
2
= 77, n
1
= 37, N = 337
∑w = (4x144) + (3x79) + (2x77) + (1x37) = 576 + 237 + 154 + 37 = 1004
RII =
1004
4337
=
1004
1348
= 0.7448
Final Ranking
Based on the Relative Importance Index, the factors are ranked from highest to lowest impact as shown in Table
5.
Table 5: Ranking of Factors in Phase I.
Rank
Factor
RII
1.
Stakeholder Non-Compliance and Cultural Resistance
0.8568
2.
Economic Factors
0.8316
3.
Legal and Regulatory Bottleneck
0.7908
4.
Weak Institutional Capacity
0.7901
5.
Corruption and Enforcement Failures
0.7448
(b) Cronbach’s Alpha Reliability
Cronbach’s Alpha (α) measures the internal consistency (reliability) of the 5 factors (items) responsible for poor
implementation of the NBC.
Formula:
α = (k/k−1) (1−∑S
i
²/S
T
²)
Where k (Number of items) = 5 and (S
i
²) (Variance of each item), calculated as Var (Item 1) = 199.7; Var (Item
2) = 211.7; Var (Item 3) = 200.3; Var (Item 4) = 141.7; and Var (Item 5) = 159.2
∑S
i
² (Sum of item variances): 199.7+ 211.7 + 200.3 + 141.7 + 159.2 = 912.6
S
T
² (Variance of the total score): Calculated based on the total response, the variance of the 5-item sum is
3152.
Final Calculation: α = (5/5-1) (1-912.6/3152.0); α = (1.25) (1-0.2895); α = 1.25 x 0.7105; α = 0.888
Final Answer: The Cronbach’s Alpha is 0.888
3.3.2 Levels of Compliance with NBC of the two types of Projects in Phase II
To determine the level of compliance between Public and Private Building Works using categorical (Yes/No)
data, the Chi-Square Test of Independence is the most appropriate statistical tool. Additionally, the Percentage
Contribution to Overall Compliance Method is expected to provide further insights into the compliance levels
of the two projects types.
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Compliance Level by Chi-Square
(i) Contingency Table (Observed Frequencies)
First, we sum all ‘Yes’ and ‘No’ responses for public and private building works to create a total contingency
table (the sums are shown on the last row of Table 4).
Table 5: Contingency Table
Yes (Compliant)
No (Non-compliant)
Total
Public
1544
952 (2496 – 1544)
2496
Private
295
1174 (1469 - 295)
1469
Total
1839
2126
3965
(ii) Hypotheses
Null Hypothesis (H
0
): There is no significant difference in compliance levels between public and private
building works.
Alternative Hypothesis (H
a
): There is a significance difference in compliance levels between public
and private building works.
(iii) Calculation of Expected Frequencies (E)
E =
E
1,1
(Public, Yes): =
24961839
3965
= 1157.65
E
1,2
(Public, No): =
24962126
3965
= 1338.35
E
2,1
(Private, Yes): =
14691839
3965
= 681.35
E
2,2
(Private, No): =
14692126
3965
= 787.65
(iv) Chi-Square Calculation (x
2
)
x
2 =
Σ
Public-Yes:
1544115765
2
115765
=
38635
2
115765
=
14926632
115765
= 128.94
Public-No:
952133835
2
133835
=
38635
2
133835
=
14926632
133835
= 111.53
Private-Yes:
29568135
2
68135
=
38635
2
68135
=
14926632
68135
= 219.07
Private-No:
117478765
2
78765
=
38635
2
78765
=
14926632
78765
= 189.51
Total x
2
= 128.94 + 111.53 + 219.07 + 189.51 = 649.05
Conclusion
Degree of Freedom (df): (Rows – 1) x (Columns – 1) = (2 – 1) x (2 – 1) = 1.
Critical Value: At a 0.05 significance level (p < 0.05) and df = 1, the critical value is 3.841.
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(b) Compliance Level by Percentage Contribution to Overall Compliance
Total Compliance (Yes) = Public (1544) + Private (295) = 1839
Therefore, Public Building works Contribution:
1544
1839
x 100 = 83.96% and
Private Building works Contribution:
295
1839
x 100 = 16.04%
INTERPRETATION OF RESULTS
The tabulated results In Table 5 indicate that, among the five factors identified as responsible for the poor
implementation of the NBC in Borno State, respondents considered “Stakeholder Non-Compliance and Cultural
Resistance” to be the most critical, requiring immediate attention. “Economic Factors” ranked second in
criticality, followed by “Legal and Regulatory Bottlenecks” in third. ”Weak Institutional Capacity” was ranked
fourth, while “Corruption and Enforcement Failures” took the fifth and final position. Additionally, an alpha
coefficient of 0.888 represents an excellent level of internal consistency (which generally ranges from 0.70 to
0.95) among the five factors. This means the questionnaires and the five factors reliably measure the overarching
construct of the study.
Regarding compliance with the NBC, Since the calculated x
2
value (649.05) is much greater than the critical
value (3.841), we reject the null hypothesis and conclude that there is a statistically significant difference in
compliance levels between public and private building works. Public works have a higher observed “Yes”
compliance (1544) compared to private works (295) across the assessed factors. This means, public building
projects demonstrate significantly higher adherence to the listed regulatory factors (83.96%) compared to
private building works (16.04%), particularly in areas of documentation and inspection (Factors 2 – 6, 8).
Notably, both sectors show zero compliance for the creation of a Code Enforcement Unit (Factor 9) and
Issuance of Compliance Form (Factor 13).
DISCUSSION
The ranking of the factors responsible for the poor implementation of the Nigerian National Building Code
(NBC) in Borno State is driven primarily by the severe and ongoing security challenges facing the region.
Stakeholder Non-Compliance and Cultural Resistance (0.8568) is ranked highest because, in a state
significantly disrupted by the Boko Haram insurgency, urgent, informal, and hasty reconstruction often bypasses
regulatory oversight in favor of traditional or makeshift methods. This is followed closely by Economic Factors
(0.8316), where high poverty levels, inflation, and the immense cost of rebuilding infrastructure destroyed in the
conflict (estimated in the trillions) force developers to cut costs and ignore quality standards. The Legal and
Regulatory Bottleneck (0.7901) is critical due to the lack of local domestication of the national code and
disruption of normal administrative functions by the insurgency. Weak Institutional Capacity (0.7901) stems
from a severely stretched civil service and damaged infrastructure, preventing effective monitoring,
enforcement, and building control in many areas. Finally, Corruption and Enforcement Failures (0.7448) are
exacerbated by the chaotic environment, where systematic vulnerabilities allow non-compliant structures to be
erected without penalties.
Public projects in Borno State achieve an 83.96% compliance rate with the National Building Code (NBC) due
to mandatory, multi-layered oversight from the Borno State Urban Planning Development Board (BSUPDB) and
Borno State Geographic Information Service (BOGIS), alongside strict requirements for professional, registered
architects, engineers and builders. These developments are further strengthened by adequate, dedicated funding
that ensures the use of standard, quality materials and a lower reliance on unqualified workers.
Conversely, private buildings show a 16.04% compliance rate, hindered by high, burdensome cost for permits
and professional fees that drive developers toward cheaper, non-standard materials. This sector faces weak
enforcement due to the vast scale of informal construction, often compounded by lack of awareness, insufficient
documentation, and a reliance on unqualified builders.
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CONCLUSION AND RECOMMENDATION
The Nigerian National Building Code (NBC) is a set of mandatory rules and standards regulating the design,
construction, alteration, and maintenance of structures to ensure public health, safety, and general welfare. It is
expected to be domesticated into state laws. While Borno State partially acknowledges the NBC by enforcing
local development control regulations, it has not fully codified it into state law. Analysis of field data using
Relative Importance Index (RII) ranked the five key factors responsible for poor implementation of the NBC in
Borno State as: Stakeholder Non-Compliance and Cultural Resistance; Economic Factors; Legal and Regulatory
Bottleneck; Weak Institutional Capacity; and Corruption and Enforcement Failures. Additionally, a Chi-Square
test conducted on 320 building projects to assess compliance with some key areas of the NBC revealed a
significantly higher level of compliance among public projects (83.96%) compared to private projects (16.04%).
Therefore, it is concluded that the Borno State Government has largely failed in its duty to enforce code
compliance in private projects, leaving residents vulnerable to unsafe, low-quality, and structurally unstable
buildings. To address these issues, the following actions are recommended:
Full Domestication of the NBC: The Borno State Government, through the State House of Assembly, should
formally enact a tailored “Borno State Building Regulations Act” to provide all regulatory Ministries,
Departments, and Agencies (MDAs) the legal authority to enforce the NBC compliance. Furthermore, the state
government should initiate massive education campaigns via local media, traditional leaders, and religious
institutions to highlight the safety benefits of the NBC.
Enhance Enforcement Capacity: The Borno State House of Assembly should pass legislation to establish an
independent, statutory commission to oversee the enforcement of the NBC in collaboration with state MDAs.
This commission should be shielded from political interference to ensure strict adherence and the prosecution of
violators. The commission must be staffed by high-caliber judges, lawyers, and engineers, and include a
designated courtroom for trials.
Strengthening Institutional Capacity
• Training & Technology: State and local government building inspectors should undergo training on modern,
safe construction techniques, and digital tools should be deployed to tracking approval and inspection processes.
• Increase Staffing: State and local governments should recruit more qualified inspectors and professionals
(engineers, architects, and builders) to improve surveillance, particularly for private building projects.
• Whistleblower Mechanism: An anonymous reporting system should be established to report corrupt practices
or unsafe construction to the Borno State Ministry of Housing.
Addressing Economic Factors:
• Incentivize Compliance: The government should offer incentives such tax rebates, expedited approval
processes, and reduced permit fees for compliant private developers.
• Simplified Guide for Small Builders: Simplified, illustrated building guidelines should be developed for
small-scale residential builders who may lack the capacity to interpret the full code.
• “One-Stop-Shop” Approval: A single, transparent, “One-Stop-Shop” desk should be established for building
approvals to reduce the logistical, cultural, and procedural burden on private developers.
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