REVISED DRAFT NATIONAL SOCIAL PROTECTION POLICY

FEDERAL REPUBLIC OF NIGERIA

Federal Ministry of Finance, Budget, and National Planning
ABUJA

June, 2021

i
 TABLE OF CONTENT

Contents

TABLE OF CONTENT .................................................................................................................. ii

FOREWORD ................................................................................................................................. vi
PREFACE ..................................................................................................................................... vii
ACRONYMS ................................................................................................................................. ix
EXECUTIVE SUMMARY ............................................................................................................ x
LIST OF TABLES ....................................................................................................................... xiv
LIST OF FIGURES ...................................................................................................................... xv
CHAPTER ONE ............................................................................................................................. 1
1.0 Introduction .......................................................................................................................... 1
1.1 Objectives ............................................................................................................................ 1
1.2 Objectives of the Policy Review .......................................................................................... 2
1.3 Context of Nigeria: Issues and Current Realities in Social Protection Programme in
Nigeria............................................................................................................................................. 2
1.3.1 Older Persons................................................................................................................ 3
1.3.2 Youths........................................................................................................................... 3
1.3.3 COVID-19 .................................................................................................................... 4
1.3.4 Persons with Disabilities (PWDs) ................................................................................ 4
1.3.5 Children, Girls and Women .......................................................................................... 4
1.3.6 Emergence of Urban Poor ............................................................................................ 4
1.3.7 Humanitarian Crisis ...................................................................................................... 4
1.3.8 Role of Private Sector ................................................................................................... 4
CHAPTER TWO ............................................................................................................................ 6
General Overview of Social Protection .......................................................................................... 6
2.1 Understanding Social Protection.......................................................................................... 6
2.1.1 The Concept of Social Protection ................................................................................. 6
2.1.2 Social Protection Models .............................................................................................. 7
2.2 Rationale for social protection policy as foundation for building a SP System .................. 8
2.2.1 The Constitution and Social Protection ...................................................................... 10
2.2.2 The National Development Frameworks and Social Protection ................................ 10
2.2.3 International Agreements and Social Protection ........................................................ 10

ii
 2.2.4 Definition of Social Protection ................................................................................... 11
2.2.5 Approaches to Social Protection................................................................................. 11
2.2.6 Guiding Principles: The Political Economy of Social Protection .............................. 12
2.3 Social protection initiatives in Nigeria including lessons from 2017-2020, National Social
Protection Policy ........................................................................................................................... 12
2.3.1 Current Social Protection Programmes ...................................................................... 12
2.3.2 Lessons Learnt in the Implementation of 2017 – 2020 Social Protection Policy....... 16
2.3.2.1 Policy Relevance..................................................................................................... 16
2.3.2.2 Adequacy ................................................................................................................ 16
2.3.2.3 Coherence ............................................................................................................... 17
2.3.2.4 Inclusiveness ........................................................................................................... 17
2.3.2.5 Efficiency ................................................................................................................ 18
2.3.2.6 Effectiveness ........................................................................................................... 18
2.3.2.7 Impact ..................................................................................................................... 18
2.3.2.8 Sustainability........................................................................................................... 19
2.3.3 Gaps in the National Social Protection Policy............................................................ 19
2.3.3.1 Key Gaps................................................................................................................. 20
2.3.3.2 Reform Measures for Social Protection Programmes ............................................. 22
CHAPTER THREE ...................................................................................................................... 23
Overview of the situation analysis - Poverty and Vulnerability in Nigeria .................................. 23
3.1 Overview of poverty .......................................................................................................... 23
3.2 Social risk and vulnerability profile ................................................................................... 24
3.3 Challenges for poverty alleviation and reduction of vulnerability .................................... 25
CHAPTER FOUR ......................................................................................................................... 27
Strategic Framework of the National Social Protection Policy .................................................... 27
4.0 Introduction: Minimum Package of Protection.................................................................. 27
4.0.1 Prioritization and Progressive Realization of Policy Measures.................................. 27
4.1 Policy Vision...................................................................................................................... 28
4.1.1 Long Term .................................................................................................................. 28
4.1.2 Short Term .................................................................................................................. 28
4.1.2.1 Short and Medium Term............................................................................................ 28
4.1.2.2 Policy Objectives ....................................................................................................... 28
4.2 Strategic orientation of the Policy...................................................................................... 29
iii
 4.2.1 Social Assistance & (Social Care) .............................................................................. 29
4.2.2 Social Insurance.......................................................................................................... 30
4.3 Complementary measures (Assumptions) for SP policy effectiveness ............................. 31
CHAPTER FIVE .......................................................................................................................... 32
Implementation Framework and 3/5-Year Action Plan ................................................................ 32
5.1 Results Frame of the Policy (Impact, Outcome, Indicators…) for a 3/5-Year Action
Plan 32
5.2 Institutional Arrangement Including Coordination and Implementation System .............. 32
5.2.1 The Key Stakeholders and Roles ................................................................................ 33
5.2.1.1 The Federal Government ........................................................................................ 33
5.2.1.2 The National Social Protection Council ................................................................. 33
5.2.1.3 Sub National Social Protection Framework .............................................................. 34
5.2.1.4 The Local Government Areas (LGAs) ...................................................................... 34
5.2.1.5 Traditional Rulers/Community Leaders .................................................................... 34
5.2.1.6 Civil Society Organisations and Community Based Organisations .......................... 34
5.2.1.7 Private sector ............................................................................................................. 34
5.2.1.8 International Development Partners (IDPs) .............................................................. 35
5.2.2 Regulation and Dispute Resolution ............................................................................ 35
5.2.3 Institutional Development .......................................................................................... 35
5.3 Implementation system mechanisms ................................................................................. 35
5.4 Targeting and Registration ................................................................................................. 37
5.5 The Single Register System ............................................................................................... 37
5.6 Graduation and Exit ........................................................................................................... 38
5.7 Monitoring, Evaluation and Reporting .............................................................................. 38
5.8 Performance Measurement ................................................................................................ 39
5.9 Reviews .............................................................................................................................. 39
5.10 Risks to the implementation of the NSSP ...................................................................... 39
5.10.1 Socioeconomic and Demographic Factors ..................................................................... 39
5.10.2 Funding ....................................................................................................................... 39
5.10.3 Insecurity .................................................................................................................... 39
5.10.4 Sustainability issues.................................................................................................... 40
5.11 Mitigation strategies ....................................................................................................... 40
5.12 Financing the Policy .......................................................................................................... 40
iv
 5.12.1 Potential Funding Source (Resource mobilisation) Including Existent Fiscal Space 40
5.13 Effectiveness of Social Protection.................................................................................. 40
CHAPTER SIX ............................................................................................................................. 41
CONCLUSION ............................................................................................................................. 41

v
 FOREWORD
Nigeria has had inspiring political and economic progress in some time past, but the economic
progress was truncated by 2 recessions between 2015 and 2020. Democratization has enhanced
political stability, creating a more conducive environment for carrying out reforms needed to grow
the economy. The economy initially responded positively with a consistently high growth rate
leading to the current estimated Post-Rebased GDP of US$510 billion. Nigeria has not recorded
significant progress in translating this impressive economic performance into improved well-being
for the generality of Nigerians during the periods of growth. The recession periods were critical as
it affected all facets of the economy and increased the poverty situation of the country. The
Government is committed to doing more in addressing the issues of poverty, income inequality,
malnutrition, unemployment, social exclusion, and insecurity, amongst others. Despite
fluctuations in crude oil price and production, especially during the time of COVID-19 pandemic,
Nigeria’s economic growth was mainly driven by the non-oil sector to keep the Real GDP growth
unchanged in recent times.
As a people, Nigerians have demonstrated resilience in the face of many challenges (natural and
man-made). It is our desire that fewer Nigerians face similar challenges in the future. It is our
responsibility to foster a more inclusive development pathway for the country. This prompted the
revision of the National Social Protection Policy.
The revision of the National Social Protection Policy is consistent with our national aspirations of
lifting 100 million Nigerians out of poverty in the next 10 years. It provides a framework for
promoting social justice, equity and inclusive growth. It is a transformative tool for addressing
poverty, unemployment, social and economic vulnerabilities, inequality and exclusion and other
threats to sustainable development. While population growth will continue to be a determining
factor for our economic, social and political progress, this revised Policy will harness available
resources into investments in people, our most valuable asset, in order to optimize our human
capital potentials.
I congratulate the Ministry of Finance, Budget and National Planning for this initiative and for
revising this Policy. There is no better legacy than policies that spread hope and prosperity to the
economically disadvantaged and most vulnerable in the society. I also acknowledge the support
provided by the Save the Children, UNICEF, WFP, UNDP, FCDO, ILO, and other Development
Partners in the revision of the Policy. It has strengthened our partnership in addressing some
contemporary global challenges. In line with the principle of federalism, I urge all States and Local
Governments in the Federation to align their social protection interventions with this revised
Policy.
I am, therefore, delighted to present the revised National Social Protection Policy to the Nigerian
people. I believe that every Nigerian has a dream for a better future that guarantees a life of dignity.
This Policy provides the framework for empowering those that are constrained in one way or the
other to realize their dreams. In a few years to come, I believe their future will be transformed and
Nigeria will be more prosperous.
Muhammadu Buhari, GCFR
President, Federal Republic of Nigeria

vi
 PREFACE
NATIONAL SOCIAL PROTECTION POLICY
The Social Protection Policy for Nigeria is an umbrella policy framework that incorporates related
social agenda paradigms intended to reduce poverty and provide a life of dignity for all citizens.
Social protection is a multi-sectoral and multi-disciplinary approach that contributes to poverty
reduction, articulating policy priorities of government towards sustainable development. It is in
this context that the Ministry of Finance, Budget and National Planning, (Budget and National
Planning arm) the coordinating organ of all projects, programmes and policies of government, was
given the task to anchor the revision of the National Social Protection Policy with the active
participation and contribution of all stakeholders in both public and private sectors at the federal
and subnational levels. It is, therefore, a national policy derived from national consultation and
consensus. The policy document was enriched by inputs from an array of professional and
technical experts and institutions, especially the Social Development department in the Ministry,
the Nigerian Institute of Social and Economic Research (NISER), as well as the leadership
provided by the top management of the Ministry.
Nigeria’s increasing population and widespread poverty necessitated government’s concern for
concerted efforts to address poverty issues in the country in order to reduce the scourge of poverty
and improve the general well-being of all Nigerians. The policy seeks to pursue this through
enhanced reduction of inequality and inequity as well as the provision of social incentives. This is
imperative to foster human-centred approach to development so as to enhance investment in
human and social capital. Development through good health and education, good governance
including sound macro-economic milieu, among others, are essential for the promotion of
inclusive growth, equality, security and a life of dignity.
Both the federal and state governments, in different scales and at different dimensions have been
implementing social protection projects and programmes to cushion the effect of poverty in their
domains. But the absence of an effective coordination and collaboration mechanism has
increasingly gained importance as a source of concern. Though the various social protection
programmes have yielded some results, a greater degree of achievement is possible with more
deliberate, concerted and programmatic actions guided by an umbrella policy.
In producing this policy, state-wide consultations were embarked upon to harness and harvest ideas
of all stakeholders through publicized workshops in all the geo-political zones and focused group
discussions. This process enlisted assurance of a people-centred policy with the commitment of
both the executive and the legislature.
The Federal Government will continue to count on the support of all partners in the implementation
of this policy. By and large, the policy will facilitate reversal of the pervasive and persistent
poverty and improve the living standards of all members in the society. The policy builds on
existing institutional and programmatic efforts of all tiers of government and hopes to consolidate
on-going approaches and strategy-oriented interventions that will propel tracking of key
performance indicators and targets. The primary responsibility for implementing the policy will
be that of all tiers of government with the active support of the private sector, including the civil
society organisations.

vii
In conclusion, the policy invites government at all levels, national and sub national legislatures,
the private sector, the civil society and the international community to provide support for it within
the context of national development goals.
The production of this policy document benefited significantly from support from Save the
Children, UNICEF, ILO, WFP, UNDP, and the World Bank. The contribution of MDAs, at the
Federal and State level, academia, CSOs, stakeholders and the international community are duly
acknowledged.
Prince Clem Ikanade Agba
Minister of state, Budget, and National Planning

viii
 ACRONYMS

ANC Ante Natal Care

AU African Union
BODFOW Business Development Fund
CBHIS Community Based Health Insurance Scheme
CBN Central Bank of Nigeria
CBT Community Based Targeting
CDGP Community Development Group Program
CSO Civil Society Organisation
CSWYE Community Service, Women & Youth Employment
COPE Care of the Poor
DRF Drug Revolving Funds
ECCDE Early Childhood Care Development and Education
FHI Family Health International
GDP Gross Domestic Product
GIS Graduate Internship Scheme
HIS Health Insurance Scheme
HIV Human Immuno-Deficiency Virus
LEMC Local Government Emergency Management Committee
LGA Local Government Area
MCH Maternal and Child Health
MDA Ministries, Departments and Agencies
MDGs-DRG Millennium Development Goals Debt Relief Grant
MPR Monetary Policy Rate
MSE Micro and Small Enterprise Development
MSS Midwives Service Scheme
NEMA National Emergency Management Agency
NPA National Priority Agency
NSPP National Social Protection Policy
NSPS National Social Protection Strategy
NV, 20 :2020 Nigerian Vision 20:2020
PLWHA People Living With HIV and AIDS
SEMA State Emergency Management Agency
SP Social Protection
UBE Universal Basic Education
UN United Nations
UNICEF United Nations Children’s Funds
UN-SPF United Nations- Social Protection Floor
USAID United States Agency For International Development
VCT Voluntary Counselling and Testing
WB World Bank
WOFFEE Women Fund for Economic Empowerment

ix
 EXECUTIVE SUMMARY
The National Social Protection Policy (NSPP) is designed to show the commitment of the
Government of Nigeria to the effective mobilisation and efficient utilisation of national resources
to improve the quality of life of its citizens. The NSPP has been developed using a bottom-up
approach. It has benefitted from the insights of wide consultations with stakeholders and experts.

The policy draws its premise from the 1999 Constitution of the Federal Republic of Nigeria (as
amended) which under the Fundamental Objectives and Directive Principles of State Policy,
Chapter 2 (Sections 16 & 17) provides the basis for the provision of social protection in the
country. The policy also emphasises the direct application of international agreements ratified by
Nigeria. These include the Universal Declaration of Human Rights (1948), relevant UN and ILO
conventions, and the African Charter on Human and Peoples’ Rights (1981), and Nigerian Vision
20: 2020 which envisages an equitable society to which social protection can contribute.

For the purposes of this Policy, social protection is defined as:

A mix of policies and programmes designed for individuals and households throughout the life
cycle to prevent and reduce poverty and socio-economic shocks by promoting and enhancing
livelihoods and a life of dignity.

Therefore the overarching goal of the National Social Protection Policy is to establish a gender-
sensitive and age-appropriate framework to ensure a minimum social floor for all Nigerian citizens
for a life of dignity.

Objectives
To achieve this goal, the specific objectives of the Policy are to:
1. reduce poverty among the people vulnerable to being poor;
2. empower the poor and people vulnerable to economic shocks;
3. enhance human capital development to ensure a life of dignity;
4. provide guiding principles for managing social protection projects and programmes;
5. promote social cohesion, equity and growth inclusiveness;
6. ensure citizens have access to basic social services and infrastructure;
7. provide social welfare and improve food security and nutrition;
8. ensure decent employment and sustainable livelihood;
9. protect individuals and households from shocks that can make them fall into extreme
poverty; and
10. promote synergy and coordination among all social protection intervention agencies.

It is the responsibility of government to ensure that no citizen falls below the minimum level of
social and economic wellbeing, security and dignity enshrined in a Social Protection Floor. The
policy will be implemented based on prioritisation of intended beneficiaries in the short term, and
progressively in the long run to accomplish the principles of universality.

States will have flexibility to give priority to one or other interventions. Not all of the interventions
need to be addressed at the same time. Moreover, states can implement additional measures if they
so desire as the NSSP only establishes a minimum.

x
The policy measures are classified into 5 categories as follows:

Social Assistance
Policy objective 1: Social assistance & (social care) to support the poorest and most vulnerable
group including children, people living with disability and the elderly in attaining an improved
standard of living.

Policy Measure 1: Free school meals will be provided to all pupils in public primary schools.

Policy Measure 2: Provide scholarship, learning materials, uniforms and cash transfers for
children in poor households and children living with disabilities.

Policy Measure 3: All children and adults living with disabilities have access to free health care,
education, and required special services and assistive devices.

Policy Measure 4: Provide free health care services for pregnant women, lactating mothers,
children under-5, the aged (people over 60 years old) and people living with disabilities.

Policy Measure 5: Labour based cash transfer/Public Works Programmes for Youths, persons with
disabilities and the unemployed.

Policy Measure 6: Provide cash transfers, food transfers, food vouchers to families and cash for
work schemes which are activated at the onset of emergencies.
Policy Measure 7: Provide non-contributory pensions for all citizens over 60 years of age, as well
as cash and food grants for poor families, orphans, street children, and others vulnerable to harmful
cultural practices.

Policy Measure 8: User fees removal for selected basic social services including education,
health for poor and vulnerable citizens

Social Care
Policy Objectives 2: To provide support for distressed Family and enhance home based care for
the vulnerable.
Policy Measure 1: Provide health services, psychosocial support, and counselling to survivors of
violence against persons, child labour, child abuse, child rape, and human trafficking.

Policy Measure2: Provide free capacity enhancement programs for home care workers and Offer
psych-social counseling opportunities to distressed families and long term home health care givers
Social Insurance
Policy Objective 3: Social insurance including support for the poorest and most vulnerable
against risks and shocks

xi
Policy Measure 1: Universal access to Health Insurance Scheme (HIS) or CBHIS and or other
social health insurance schemes.

Policy Measure 2: Contributory pensions available to all citizens 60 years of age and above.

Policy Measure 3: Insurance for unemployment including for maternity, paternity, disability,
accident,

Policy Measure 4: Provision of child grant for children in poor and vulnerable households

Policy Measure 5: Insurance for Crops/livestock providing compensatory support in the event of
contingencies to be activated during economic shocks

Labour Market Intervention

Policy Objective 4: Labour market regulations

Policy Measure 1. Job search services including systemic sharing of work opportunities for
unemployed persons seeking for job

Policy Measure 2: Job training, upgrading and adapting jobseekers’ skills

Policy Measure 3: Provide support for sustainable livelihood through skills training, access to
land, inputs for smallholder farmers, affirmative action for youth and women’s employment, and
access to financial services for micro and small enterprises and cooperatives.

Policy Measure 4: Unemployment insurance and non-cash unemployment benefits to job seekers.

Policy Measure 5: providing unemployment subsidies (health insurance exemptions, reduced

medical fees; education fee waivers; food subsidies; housing subsidies and allowances; utility and
electricity subsidies and allowances; agricultural inputs subsidies; and transportation benefits)

Complementary measures (Assumptions) for SP policy effectiveness

This is to provide supporting measures mainly for the availability of services to ensure
effectiveness of social protection measures – elements of social protection floor -

Policy Measure 1: availability of quality schools especially in poorest areas

Policy Measure 2: Availability of functional health infrastructures accessible to the poor and
vulnerable

Policy Measure 3: Availability of other services, including accessible markets, goods, and so on

xii
Strengthening Social Protection System

Policy Objective 5: Strengthen Social Protection System with reinforced institutional framework
legislation and regulation.

Policy Measure 1: Develop and utilize National Social Register for Poor and Vulnerable adequate
for beneficiaries’ selection for social protection programmes, especially non contributory.

Policy Measure 2 Effective coordination mechanism backed by adequate management

information system (MIS)

Policy Measure 3: Develop legislation and regulatory framework Policy that will culminate into
assented bill/law by the president.

Policy Measure 4: Provide a legal framework that specifically protects intended beneficiaries
including children through inheritance rights, birth registration, childcare services and breast
feeding.

Targeting and Registration

One of the fundamental principles of the NSSP is universality. The NSSP establishes a social
protection floor for all Nigerians. However, in order to ensure universality, some individuals,
families, and groups may need to receive special attention. In these cases, States will have the
flexibility to establish targeting schemes and canvassing mechanisms to find the intended
beneficiaries for their own programmes.

Graduation and Exit

A key goal of the NSSP is to ensure a minimum standard of living and a life of dignity to all
Nigerians. Intended beneficiaries like the disabled and the elderly will be sustained in the
programmes as long as the person is disabled and for the elderly throughout their old age. The
NSPP will employ a beneficiary or intervention level exit strategy for graduating beneficiaries
from the programmes or continuing support depending on the category of the beneficiary. During
the latter stages, beneficiaries will be linked up with other complementary programmes to further
enhance their social and economic capacities.

Coordination and Integration

The interventions will be delivered in a coordinated manner to ensure that all stakeholders are
engaged and have clearly defined roles and responsibilities. To achieve coordination and
integration, government shall establish an institutional framework made up of national, states and
non-state actors. A single register system will be adopted to ensure effectiveness and efficiency of
the programmes.

Monitoring and Evaluation

Effective Monitoring and Evaluation (M&E) systems shall be put in place for providing evidence
on the impact of projects and programmes. Government has already established structures to
support M&E in Nigeria.

xiii
 LIST OF TABLES

Table 2.1 Social Protection Interventions Implemented at both the federal and 12
state levels in the last few years.

xiv
 LIST OF FIGURES

Figure 3.1 Age Pyramid 23

Figure 4.1 Taxonomy of social protection instruments 28

xv
 CHAPTER ONE
1.0 Introduction
Social protection has recently become a veritable instrument in the African development agenda
which Nigeria has embraced. Traditionally and structurally, unemployment (formal or informal),
underemployment, informal employment and poverty in all its dimensions have been persistently
high in Nigeria. This has resulted in inequities, high and unnecessary morbidity and mortality, and
low levels of education and productivity which hinder sustainable development. An integrated
social protection system will contribute to addressing the causes and manifestations emanating
from these challenges.

This revised National Social Protection Policy (NSPP) has now been developed using a bottom-
up approach. It has benefitted from the insights of wide consultations with stakeholders and
experts. It seeks to place within the reach of Nigerians the maximum benefits of social protection

The overarching goal of the current policy was to establish a gender-sensitive and age-appropriate
framework to ensure a minimum social protection floor for all Nigerian citizens for a life of
dignity. The policy aims at the attainment of the goal by providing guidelines for:
a. establishing universally acceptable platform of social protection activities for all the
stakeholders as well as coordination of same at all levels of government;
b. effective resource mobilization, resource management, and sustainability
c. awareness creation, advocacy and mobilization of support for social protection as a
viable development framework
1.1 Objectives
To achieve this goal, the following specific objectives were set to:
a. reduce poverty among the people vulnerable to being poor;
b. empower the poor and people vulnerable to economic shocks;
c. enhance human capital development to ensure a life of dignity;
d. provide guiding principles for managing social protection projects and programmes;
e. promote social cohesion, equity and inclusive growth;
f. ensure citizens have access to basic social services and infrastructure;
g. provide social welfare and improve food security and nutrition;
h. ensure decent employment and sustainable livelihood;
i. protect individuals and households from shocks that can make them fall into extreme
poverty; and
j. Promote synergy and coordination among all social protection intervention agencies.

Social protection is a multi-sectoral and multi-disciplinary approach that contributes to poverty

reduction, articulating policy priorities of government towards sustainable development. It is in
this context that the Ministry of Budget and National Planning, the coordinating organ of all
projects, programmes and policies of government, was given the task to anchor the production of
the National Social Protection Policy with the active participation and contribution of all
stakeholders in both public and private sectors at the federal and sub-national levels. It is, therefore,
a national policy derived from national consultation and consensus.

1
Nigeria’s increasing population and widespread poverty necessitate government’s concern for
concerted efforts to address poverty issues in the country in order to reduce the scourge of poverty
and improve the general well-being of all Nigerians. The policy seeks to pursue this through
enhanced reduction of inequality and inequity as well as the provision of social incentives. This is
imperative to ginger human-centred approach to development so as to enhance investment in
human and social capital. Development through good health and education, good governance
including sound macro-economic milieu, among others, are essential for the promotion of
inclusive growth, equality, security and a life of dignity. Both the federal and state governments,
in different scales and at different dimensions have been implementing social protection projects
and programmes to cushion the effect of poverty in their domains.
The current National Social Protection Policy (NSPP) was approved by the Federal Executive
Council in December, 2017. Its implementation commenced in 2017 and ending in December,
2020. There is the need therefore to review the policy.
1.2 Objectives of the Policy Review
The main objective of the review is to accommodate emerging issues on social protection so that
Nigeria will flow with the Global trend in social protection programmes across sectors at both the
national and sub-national levels of government. Specifically, the current National Protection policy
document (2017-2020) deserves a review for the following reasons:
i. The policy recommended its review for every four years and the implementation of
the policy is currently in the 4th year.
ii. Nigeria needs to see the COVID-19 pandemic as an opportunity to strengthen her
social protection programmes as well as intervention strategies to accommodate all
relevant actors and sectors of the social protection.
iii. There is the need to further define roles and responsibilities of all key players
particularly with the emergence of the Ministry of Humanitarian Affairs, Disaster
Management and Social Development.
iv. There is also need to revisit the method of data capturing of the poor and vulnerable
to provide for a comprehensive peculiarities of Nigeria typology and demography;
v. There are global emerging issues that require social protection interventions.
vi. The review also presents an opportunity to strengthen and clarify the
implementation arrangements of the policy which will include development of a
costed plan, M&E framework and coordination strategy.
1.3 Context of Nigeria: Issues and Current Realities in Social Protection Programme in
Nigeria
Nigeria is a multi-ethnic and culturally diverse federation. It has a three-tiered government
consisting of the federal government, thirty-six states, the federal capital territory, Abuja and 774
local government areas. With a population of approximately 206 million,1 Nigeria has the largest
population on the continent. More than half of its population, 111.5 million people, are younger
than 20 years.2 With a fertility rate of 5.41 children born per woman and a population growth rate

1
(UN Data, 2020)
2
(United Nations Department of Economic and Social Affairs, 2019)

2
of 2.6 per cent, the national population is estimated to reach 400 million by 2050. This offers
potential for economic development and growth.
Poverty is widespread and deepening in Nigeria. 51% of the population, about 105, 057, 896
people live in extreme poverty in Nigeria with urban and rural poverty incidence being 52.1% and
18.1% respectively (World Poverty Clock, 2020; EPRI, 2020). According to national data, in 2019,
40 per cent of the population, equal to 82.9 million individuals, lived below the national poverty
line of USD 355 USD.3 98 million of that number live in multi-dimensional poverty according to
the United Nations Development Programme (UNDP, 2019). According to the World Bank
(2019), 49.9 per cent of Nigerian households lived below the international poverty line of US $1.9
per day in 2018. In addition to monetary poverty, multi-dimensional poverty is also high and
affects about 50 per cent of the population. Multi-dimensional poverty takes into consideration
deprivations in aspects including education and health, as well as access to water and sanitation.
Although it is often associated with monetary poverty, it draws a more comprehensive picture of
the population’s living conditions since critical aspects of well-being are captured. These include
key well-being, health and education indicators in Nigeria.
It is in the context of the above that Nigeria is implementing social protection programmes to
alleviate poverty and also prevent people from further falling into poverty. In the course of
consultations with various stakeholders, some emerging issues and present realities were brought
to the fore. Those issues are discussed below.
1.3.1 Older Persons
The rights of older persons to social security and to an adequate standard of living to support their
health and well-being, including medical care and necessary social services, as laid down in many
international human rights instruments, such as the Universal Declaration of Human Rights
(UDHR), 1948, and the International Covenant on Economic, Social and Cultural Rights
(ICESCR), 1966 is conspicuously missing as a critical component in the implementation of the
NSPP. Although there are guarantees like pensions and gratuities for those in the formal sector,
the overwhelming majority in the informal sector are left in the lurch. For the NSPP to work
effectively, conscious preference must be given to the basic needs of older persons.
1.3.2 Youths
The youths make up the bulk of the population of the country. Youth unemployment and under-
employment are serious realities that needs to be confronted. Closely associated with youth
unemployment are youth restiveness, drug abuse, cybercrime, and youth migration. To harness the
potentials of its youthful population, attention should be given to making youth engagement a focal
point of the policy. From ensuring quality education to providing opportunities for meaningful
engagement, the youths should be helped to become the drivers of an economy that will usher in
a period of innovation and prosperity. The recent EndSARS protest is a testimony to the fact that
special attention need be paid to issues relating to the youths in the country.

3
This data does not include data for Borno. Here, data could not be collected randomly due to security constraints
and thus only data from accessible and secure households was collected. (National Bureau of Statistics, 2019)

3
1.3.3 Global Health Security (Including COVID-19 Pandemic)
The outbreak of the pandemic this year exposed the vulnerabilities of our healthcare system and
the limitations of the NHIS. Were Nigeria faced with the proportion of the pandemic experienced
in the Western world, the healthcare system would have been overrun, with many lacking the cover
they need to access healthcare for themselves and their loved ones. Now is the time to make use
of the opportunity given us to build a robust healthcare system that will ensure access to healthcare
for the last Nigerian.

The pandemic also showed the dire need to scale up our social protection programs. The majority
of Nigerians became vulnerable, relying on handouts. Some have been irrevocably thrown into
poverty. The pandemic showed that the social protection program has to move beyond the transfer
of N5000 to entire households considering minimum expenditure basket.
1.3.4 Persons with Disabilities (PWDs)
Persons with disabilities are not a homogeneous group. It is important to recognize the diversity
of persons with disabilities and that women, men, youth, older persons and persons with different
types of disabilities are affected differently. Women, children and older persons face an even
higher risk of discrimination, violence and exploitation. Persons with disabilities include those
with long term physical, mental, intellectual or sensory impairments which, in interaction with
various barriers, may hinder their full and effective participation in society on an equal basis with
others. Persons with disabilities have largely not been dealt with as a group with unique
peculiarities. More often than not they are lumped together without special attention given to their
need and challenges.
1.3.5 Children and Women
Children, girls and women make up a vulnerable segment of the society that should be given
special attention. The NSPP was not implemented in such a way to ensure balancing and take into
account how these groups are disproportionately affected by such things as poverty, crises and
crimes.
1.3.6 Increasing Number of Urban Poor
The COVID-19 pandemic has revealed that the poor and vulnerable in Nigeria are not limited to
the rural areas. The urban centres in Nigeria are also full of people who are very vulnerable to
economic shocks, especially those who engages in the informal sector and thrive daily income for
the sustenance of their households. These urban poor became manifest during the lockdown, the
aftermath of the pandemic. The implementation of social protection going forward, therefore,
should take cognizance of this large group of people, and their concerns addressed.
1.3.7 Humanitarian Crisis
The country is facing an unprecedented humanitarian crisis ranging from the Boko Haram
insurgency in the Northeast, to banditry in the Northwest, to kidnappings in different parts of the
country, to herdsmen-farmers clashes in the central part of the country. These waves of
displacement, including hither-to unheard of occurrences, have seriously tested the social
protection system in the country. These crises have forced many into a situation of displacement,

4
with many seeking refuge in IDP camps or in neighboring countries. Refugees, IDPs, and returnees
are in need of humanitarian assistance.
The Boko Haram insurgency, banditry, kidnappings and clashes between herdsmen and farmers
have led to the internal displacement of over 2.8 million individuals in the country. Additionally,
the country is host to over 68,000 refugees and 3,000 asylum seekers.

1.3.8 Role of Private Sector

The recent overwhelming display of philanthropy and corporate social responsibility in the wake
of the COVID-19 pandemic showed the potentials inherent in the private sector. The Coalition
Against COVID-19, CACOVID and other individuals and organizations donated materials worth
billions of naira. The renewed awakening of CSR spirit can be harnessed to drive Social Protection
in the country.

5
 CHAPTER TWO

General Overview of Social Protection

2.1 Understanding Social Protection

2.1.1 The Concept of Social Protection
Social protection, first as a norm, and then much later, as a concept has been a vital source of
support for the members of the society that are most indigent or those exposed to the risk of
unexpected events or the uncertainties of life. It can be argued that social protection then is as old
as man because the basic idea inherent in the concept has been an integral fabric of the life of early
societies in Africa and Asia as well as that of Medieval Europe; Family members always willing
to lend a helping hand in times of financial woes, the working class taking care of the older
population and agricultural communities coming together to form cooperatives that serves as a
network of support for individual farmers.
The concept of social protection has been variously defined and described by numerous authors,
each definition often been an adaption tailored towards the specific objective of the author, but
nonetheless having ideas that are held in common. It would be instructive to consider a few of
these definitions and come up with a working definition that captures the essence of this paper,
with particular emphasis on the multi-faceted Nigerian problem and its contemporary importance
in addressing the recent economic recession.
The African Union defined Social Protection as a "package of policies and programmes with the
aim of reducing poverty and vulnerability of large segments of the population. This it does through
a mix of policies/programmes that promote efficient labour markets, reduce people's exposure to
risks, and contribute to enhancing their capacity to protect and cover themselves against lack of or
loss of adequate income, and basic social services.” (African Union Documents, 2007)
The European Report on Development regarded it “as a kind of insurance policy against poverty
and a tool for delivering social justice, as well as a means of promoting inclusive development.”
It went further by saying it “is an expression of solidarity and cohesion between the haves and
have-nots, between governments and citizens, and even between nations.”
It is instructive to note from the above definitions that Social Protection is a tool of the government
of a nation to drive development and ensure social justice. It is also a tool of expressing
camaraderie within members of a society, ‘the haves and have-nots’, bridging the gulf that exists
between the groups; or as it is said in the local parlance ‘giving back to the society’. Lastly, it is a
tool used by wealthier nations to lend a helping hand to less fortunate ones, a tool of redistribution
of the world’s wealth. It has also been argued in some quarters that it a means the Developed
Nations are using to assuage their conscience for the roles they have played in the impoverishment
and underdevelopment of the Developing Nations.
For the purpose of this policy document, Social Protection will be defined as the programs and
initiatives taken by the government of Nigeria, organizations (profit and non-profit) as well as
individuals for the purpose of addressing vulnerabilities, assisting the poor, providing cover for
members of the society in the case of unexpected events, or otherwise setting the minimum

6
standard of living for citizens in its sphere of influence. It can also be said to be a veritable tool in
the hands of authorities for the redistribution of wealth and the engendering of the spirit of
inclusiveness and togetherness.
2.1.2 Social Protection Models
From the above, it can safely be said that the objectives of Social Protection varies, and it is often
dependent on the society and its intended beneficiaries. The objective(s) of the specific social
protection program will in turn determine the design of the instruments for its delivery and its
implementation.
Norton et al. (2001) categorized social protection into two broad ways which are conventionally
recognized; Social assistance and Social insurance.
The work described Social assistance as public actions which are designed to transfer resources
to groups deemed eligible due to deprivation. Deprivation may be defined by low income, or in
terms of other dimensions of poverty (e.g. social or nutritional status).
It went on to describe Social insurance as social security that is financed by contributions and
based on the insurance principle: that is, individuals or households protect themselves against risk
by combining to pool resources with a larger number of similarly exposed individuals or
households.
The World Bank (2003) in Sule (2015) coined the idea of Social Protection as Social Risk
Management (SRM), indicating also how to manage those risks. Below are a summary of the
strategies and a brief explanation of each concept
Prevention Strategies are strategies that are implemented before a risky event occurs. This
increases people’s expected income and reduces income variance, both of which increase general
welfare. Preventive social protection interventions typically form part of measures designed to
reduce risks in the labour market, notably the risk of unemployment, under-employment, or low
wages due to inappropriate skills or malfunctioning labour markets.
Mitigation Strategies aim to address the risk before it occurs. Whereas preventive strategies
reduce the probability of the risk occurring, mitigation strategies help individuals to reduce the
impact of a future risk event through pooling over assets, individuals, and over time. For example,
a) Diversification of investments, a household might invest in a variety of different assets that yield
returns at different times (for example, two kinds of crops that can be harvested in different
seasons), which would reduce the variability of the household’s income flow. Other examples are
formal and informal insurance mechanisms, i.e. risk sharing. While formal insurance benefits from
a large pool of participants, which results in less correlated risks, informal insurance has the
advantage of low information asymmetry.
b) Hedging has an increased importance for financial markets (e.g., forward exchange rate
contracts) and is based on risk exchange or payment of a risk price to somebody for assuming that
risk.
c) Coping Strategies are designed to relieve the impact of the risk once it has occurred. The main
forms of coping consist of individual dissaving, borrowing, or relying on public or private
transfers.

7
Holzmann (2003) in Sule (2015) went further to group social risk arrangements, used under these
social risk management strategies. They are mainly three of these arrangements.
Informal arrangements are arrangements that have existed since the dawn of mankind. When
market institutions haven’t come into existence, households have taken the initiatives to protect
themselves using informal networks, like their families, community, or through personal
arrangements of self-insurance and self-protection. Examples of this kind of arrangement include:
the buying and selling of real assets (such as cattle, real estate, and gold), informal borrowing and
lending, crop and field diversification, the use of safer production technologies, storing goods for
future consumption, mutual community support arrangements, and kinship arrangements through
marriage.
Market-Based Arrangements are arrangements when individual households take advantage of
market-based institutions such as money, banks, and insurance companies when these are
available. However, in view of these instruments’ limitations due to market failure, their usage
will be initially restricted but will rise with financial market development. Because formal market
institutions are reluctant to lend to households without secured earnings, Microfinance Institutions
are also an important instrument of social risk management.
Public Arrangements for dealing with risk came into being with the development of the modern
welfare state but are relatively scarce and have very limited coverage in the developing world for
fiscal and other reasons. When informal or market based risk management arrangements do not
exist, break down, or are dysfunctional, the government can provide or mandate (social) insurance
programs for risks such as unemployment, old-age, work injury, disability, widowhood, and
sickness. The mandatory participation in a risk pool can circumvent issues of adverse selection, in
which individuals with low risk profiles avoid participation in insurance pools due to premiums
while individuals with high risk profiles join in order to gain access to payouts. Since these
programs typically apply to those in formal employment, their coverage in developing countries
is generally low. On the other hand, governments have a whole array of instruments to help
households to cope after a shock hits. These include social assistance, subsidies on basic goods
and services, and public works programs.
A consideration of the Social Protection models will readily reveal that the common form of social
protection practiced in Nigeria is the Social Assistance model and it is generally delivered through
the Public Arrangement strategy. This work will therefore critically assess the problem of social
protection in the Nigerian context, drawing heavily on the models that have been developed from
Independence.

2.2 Rationale for social protection policy as foundation for building a SP System
The Federal Government of Nigeria recognises the increasing relevance of social protection in
engendering citizens’ rights to a life of dignity and promoting human and economic development.
During the last decade in particular, and among developing countries, social protection has
emerged as a viable policy framework employed globally to address poverty, social and economic
vulnerabilities, inequality and exclusion, and other threats to sustainable development.

Recognising that economic growth alone is insufficient to bring about the change needed in the
country, Government seeks to adopt a balanced framework that promotes inclusive growth,
equality and security as well as ensure a life of dignity.

8
The 1999 Constitution of the Federal Republic of Nigeria (as amended) under the Fundamental
Objectives and Directive Principles of State Policy, Chapter 2 (Sections 16 & 17) provides the
basis for the provision of social protection in the country.
The current NSPP, which is undergoing review, was formulated in the context of the NV 20:2020.
The key aspirations of the development framework are:
a. optimizing human and natural resources to achieve rapid economic growth; and
b. Translating that growth into equitable social development for all citizens with improved
living standards.
This Policy considers social protection goals as congruent with national development aspirations
whereby expenditures on social protection are necessary investments in people.

Accordingly, the Policy provides the framework not only to understand the vulnerabilities of the
poor, but also as a measure to mobilise the assets and capabilities of individuals, households and
communities for a sustainable human development.

In the same vein, the almost immediate past development plan for Nigeria, Economic Recovery
and Growth Plan (ERGP) also recognized the need to invest in the people in the form of social
protection. It acknowledged that economic growth is beneficial to society when it creates
opportunities and provides support to the vulnerable. It is in the light of this that the need to invest
in the Nigerian people by increasing social inclusion, creating jobs and improving the human
capital base of the economy is categorically stated in the Economic Recovery and Growth Plan
(FRN, 2017).

In order to make room for social inclusion, the Federal Government promised to continue to
provide support for the poorest and most vulnerable members of society by investing in social
programmes and providing social amenities. Targeted programmes aimed at reducing inequalities
among Nigerians were initiated. In order to improve human capital, the Federal Government
promised to invest in health and education to fill the skills gap in the economy, and meet the
international targets set under the UN’s Sustainable Development Goals (SDGs). The ERGP was
also to improve the accessibility, affordability and quality of healthcare and roll out the National
Health Insurance Scheme across the entire country among others (FRN, 2017).

In order to achieve the above, National Social Investment Programme was established in 2016
with the aim of addressing the prevailing issues of poverty and hunger among targeted vulnerable
groups which include youths, women and children. The total sum earmarked for its implementation
was 500 billion naira (FGN, 2018). To effectively address the differential socio-economic status
among the targeted groups, four programmes were established under the National Social
Investment Programmes with each of these programmes targeting a particular group of interest.
These are Home Grown School Feeding Programme, N-Power, Conditional Cash Transfer
Programme and Government Enterprise and Empowerment Programme; while Home Grown
School Feeding Programme was targeted at school children; N-Power targeted at unemployed
youths, especially graduates; Conditional Cash Transfer Programme targets households at the base
of “poverty pyramid”; and Government Enterprise and Empowerment Programme was meant for
“traders, artisans, enterprising youth, farmers and women in particular. All these programs must

9
have had their root in the National Social Protection Policy approved by Federal Executive Council
(FEC) in 2017.

The goals and objectives of SP should reflect the notion of distributive justice and the importance
of providing better access to quality services and a stable means of income to the poor and
vulnerable people in Nigeria.

2.2.1 The Constitution and Social Protection

The 1999 Constitution of the Federal Republic of Nigeria (as amended) under the Fundamental
Objectives and Directive Principles of State Policy, Chapter 2 (Sections 16 & 17) provides the
basis for the provision of social protection in the country. The basic principles include the State’s
obligations to:
a. secure the maximum welfare, freedom and happiness of every citizen on the basis of social
justice and equality of status and opportunity; 16, 1 (b);
b. provide suitable and adequate shelter, suitable and adequate food, reasonable national
minimum living wage, old age care and pensions, and unemployment, sick benefits and
welfare of the disabled; 16, 2 (d);
c. ensure that all citizens have the opportunity for securing adequate means of livelihood as
well as adequate opportunity to secure suitable employment; 17, 3 (a) and
d. Ensure that provision is made for public assistance in deserving cases or other conditions
of need. 17, 3 (g).

2.2.2 The National Development Frameworks and Social Protection

The revised NSPP is formulated in the context of the ERGP and the current Medium Term
Development Plan. The key aspirations of this development framework are:
c. optimizing human and natural resources to achieve rapid economic growth; and
d. Translating that growth into equitable social development for all citizens with improved
living standards.

This Policy considers social protection goals as congruent with national development aspirations
whereby expenditures on social protection are necessary investments in people.

Accordingly, the Policy provides the framework not only to understand the vulnerabilities of the
poor, but also as a measure to mobilise the assets and capabilities of individuals, households and
communities for a sustainable human development.

2.2.3 International Agreements and Social Protection

The NSPP draws inspiration from International Agreements and Conventions to which Nigeria is
signatory and have direct bearings on social protection, notably:
a. The Universal Declaration of Human Rights which enshrines right to social security
(1948);
b. The African Charter on Human and People’s Rights and the African Charter on the Rights
and Welfare of the Child which advance social protection with the human rights approach
(1981);

10
 c. The Convention on the Rights of the Child which specifically emphasises children’s rights
to social protection (1989);
d. The UN Convention on the Elimination of All forms of Discrimination Against Women
(1995);
e. The Millennium Development Goals (MDGs) and its successor, Sustainable Development
Goals (SDGs) with its commitment to poverty reduction;
f. The African Union (AU) Livingstone Transformative Agenda (2006) which incorporates
the Universal Declaration of Human Rights; and ILO Conference on Social Protection
Floor Recommendation, 2012 (No. 202) which recommended that member States establish
and maintain social protection floors as a fundamental element of their national social
security system.
g. ILO Convention 102 which sets minimum standard on social security
h. African Union Convention for the Protection and Assistance of Internally Displaced
Persons in Africa (Kampala Convention) (2009).
This Policy considers social protection as both a right and an empowerment instrument and
therefore provides the framework for all the stakeholders to work together to fulfil the fundamental
rights of citizens as endorsed nationally and globally.

2.2.4 Definition of Social Protection

In the context of this policy, Social Protection shall mean:

A mix of policies and programmes designed for individuals and households throughout the life
cycle to prevent and reduce poverty and socio-economic shocks by promoting and enhancing
livelihoods and a life of dignity.

In the light of the above, social protection covers a set of policies and programmes, or tools of
social justice targeted at large segments of the population to provide people with stable access to
a means of income and quality social services, including affordable healthcare and education, in
order to reduce people’s exposure to the risks of poverty and inequality.

2.2.5 Approaches to Social Protection

The NSPP adopts a lifecycle approach. This approach has the following major features:
a. All individuals pass through a life cycle with different stages of life, defined by age
brackets as follows: 0-5, 6-14, 15-24, 25-64, a 65 years and above;
b. Social protection interventions are age-appropriate and recognise the need to arrest the
build-up of risks and vulnerabilities throughout the life cycle. Therefore, the interventions
systematically target all stages of life such that the socioeconomic situation in one phase
does not transmit to the next phase and cumulative benefits are achieved across
generations;
c. Social protection interventions address multidimensional and crosscutting issues as well as
temporary and structural deprivations, shocks and vulnerabilities; and
d. The guiding principles for social protection include prohibition of discrimination and unfair
treatment of citizens due to their age, sex and other classifications.

11
2.2.6 Guiding Principles: The Political Economy of Social Protection
Social protection is a component of political economy. The NSPP has been developed within some
established principles as follows:

I. The Principle of Redistribution

The Principle commits to the redistribution of resources to progressively reduce the gaps in
inequality using important means of resource redistribution and provision of non-market services
and opportunities to ensure social order and stability. In this direction, Government shall reduce
poverty through social transfers and provision of social support and services.
II. The Principle of Universal Basic Needs.
This Principle states that all humans have universal prerequisites for successful and critical
participation in social life, and that human needs are the universal preconditions for participation
in social life. Government, therefore, affirms the right of every Nigerian to the satisfaction of their
basic needs, especially in the areas of education, health, food security and employment.

III. The Principle of Citizenship

The Principle stipulates that the purpose of the state is for the good of the citizens. All citizens,
without distinction of status or class or gender, should be offered some minimum standard of living
in relation to an agreed range of services. Government shall, through its relevant agencies, carry
out citizenship-related activities to ensure effective delivery of services to the populace.
IV. The Principle of Human Rights.
Social and economic rights guarantee the right to life. Social protection rights are valued as much
as other human rights. Accordingly, Government shall ensure implementation of the provisions of
Chapter IV: Fundamental Rights of Nigerian Citizens as enshrined in sections 33-46 of the 1999
Constitution of the Federal Republic of Nigeria as amended.
V. The Principle of Social Control
The Principle emphasises the important role of social control in maintaining social stability and
cohesion which are necessary for the well-being of the individual and groups in a given society.
Government shall consciously use appropriate social protection instruments to discourage actions
that could lead to social dislocation and problems.
VI. Principle of Social Inclusiveness
Social inclusiveness demands that increasing provision be made for economic, social, political and
cultural opportunities for citizens’ participation in the normal activities of their society without
stigma or discrimination. Government shall take necessary measures to widen access and increase
participation.

2.3 Social protection initiatives in Nigeria including lessons from 2017-2020, National
Social Protection Policy
The draft 2004 and FEC approved 2017 Nigeria Social Protection Policies adopted a life-cycle
approach and gender sensitive by recognising both economic and social risks including job
discrimination and harmful traditional practices. It presented a social protection response
organised around four main themes: social assistance, social insurance, child protection and the
labour market.

2.3.1 Current Social Protection Programmes

12
In revising the current NSPP, it is imperative to review existing social programmes. A mapping of
the current social protection landscape in the country indicates that a number of different actors
are involved in the funding and implementation of activities, including government, donor
agencies, international NGOs and civil society organisations. The majority of the programmes fall
under social assistance-type programmes, with a few in-built social insurance and social equity
programmes. The Federal Government-led social protection includes the following programmes:
a. Programmes under the National Social Investment Programme (NSIP), which are; the
Conditional Cash Transfer(CCT), Home Grown School Feeding Programme (HGSFP),
N’Power, and Government Enterprise and Empowerment Programme (GEEP)
b. National Health Insurance Scheme (NHIS)
c. In-Care of the Poor (COPE), which is targeted at extremely poor households (those headed
by a female, the elderly, physically challenged, and fistula or HIV/AIDS patients) with
children of school-going age;
d. the health fee waiver for pregnant women and under-fives (funded by the MDGs-DRG
and provided on a universal basis); and
e. The Community-Based Health Insurance Scheme (CBHIS) (re-launched in 2011 after
previous design challenges),

At the State level, social protection programmes cover a range of broad interventions, which are
implemented by government Ministries, Departments and Agencies (MDAs) and/or funded by
international donors. These include:
a. labour market programmes;
b. social insurance programmes;
c. social assistance and welfare programmes;
d. microfinance programmes;
e. child protection, survival and development interventions; and
f. Health programmes.

The following table summarizes some of the main social protection interventions implemented at
both the federal and state levels in the last few years.
Table 2.1: Social Protection Interventions Implemented at both the federal and state levels in the
last few years.
Federal/States Programmes Objectives
Federal Government Conditional Cash Transfer To improve consumption of the
(NASSCO/NSIP/NCTO (CCT) poorest of the poor households
Federal Government N’Power To provide employment for
(NASSCO/NSIP/NCTO unemployed youths
Federal Government Government Enterprise and To provide soft loans to market
(NASSCO/NSIP/NCTO Empowerment Programme men and women, and those in
(GEEP) MSMEs
Federal and State Home Grown School To provide one meal for primary
Governments Feeding Programme school on daily basis to improve
school enrolment

13
Federal Social Insurance for To provide social insurance For
Government/FMLE/NSITF Employment Injury those who sustain permanent
injury during the course of work
Federal and State Pension Scheme for Retired To have access to income in old
Governments/PENCOM people age
Federal and State MOA Fertilizer market Allows poor farmers have access
stabilization programme to subsidized fertilizers in their
localities
Federal and state MOA Growth enhancement Poor farmers receive 50% subsidy
scheme on fertilizers for a maximum of
two bags through the use of the
mobile phones(e-wallet)
NAPEP(2 States in the six Home Grown school To increase enrolment, retention
geopolitical zones of the feeding(HGSFHP) and completion roles of primary
country) school
NAPEP/OSSAP- In care of the To break intergenerational transfer
MDG(started in 2007) people(COPE), currently of poverty and reduce the
rd
on the 3 phase vulnerability of the core poor in
the society
NDE (a)vocational skills, The NDE programme is to combat
development programme unemployment in Nigeria
(b)small scale enterprise
programme
(c)Rural Employment
promotion programme
(d)special public work
programme
SURE-P (a)maternal and child To cushion the effect of the partial
health care removal of the fuel subsidy,
(b)public works(FERMA) reduce unemployment and poverty
(c)vocational training in Nigeria
(d)GIS
(e) CSWYE
Federal Government U-WIN To encourage entrepreneurship
and reduce unemployment
Federal Government National Programme on To significantly and rapidly
Immunisation improve routine immunization
coverage on a sustainable bases
and reduce disease burden arising
from vaccine preventable disease
Federal Government Nigeria Youth Employment To improve human development
and social support among the poor and reducing
operations intergenerational poverty by
delivering immediate employment
to youth and empower them for
future jobs

14
Ondo(2009 to date) ABIYE(safe motherhood To ensure that infant and maternal
programme) mortality is brought down
drastically in Undo state within 2
years of establishment
Nasarawa and Taraba Women in Agriculture To empower women and reduce
programme vulnerability
Adamawa Local Apprenticeship To reduce youth unemployment,
Scheme skill acquisition
Jigawa Multipurpose women Empowerment of women
centres
Lagos Microfinance programme Women empowerment
for women
Ondo, Taraba, Bauchi and Donor- supported OVC Human capital development
Sokoto programme
Ekiti Cash transfer programme Improve living condition of the
for elderly elderly citizens
Jigawa Cash transfer programme Reduce street begging and
for the person with improve socio economic
disabilities wellbeing of beneficiary
Bayelsa Child development account Improve school enrolment and
retention
Ondo and Kaduna Millennium village project For poor peasant farmers with the
aim of accessing fertilizer at
appropriate time and at subsidized
rate
Benue, Bauchi, Kano, The fairly nutritional To increase enrolment, retention
Lagos and Cross River support programme(FNSP) and completion roles of primary
school
Katsina, Yobe, Jigawa, RTIF plumpy nut, To treat moderate and severe acute
Kebbi, Zamfara and emergency nutrition malnutrition
Sokoto programme
Kogi Community-based Health To protect the form all sector and
Insurance Scheme(CBHIS) marginalized group against the
burden of high out-of-pocket
health expedition
Kano, Bauchi and Katsina Conditional cash To reduce girls drop-out rates due
transfers(CCTs) for girls to early marriage, specifically in
education the transition period from primary
to secondary school
Zamfara and Jigawa The Child development To reduce infant mortality and
Grants Programme(CDGP) stunting
Osun Osun Youth Empowerment To tackle unemployment and
Scheme(OYES) energise the economy of the state
Cross-River CCT for poor households

15
 Ondo/Lagos Free transport for school Human capital development
children up to secondary
level

2.3.2 Lessons Learnt in the Implementation of 2017 – 2020 Social Protection Policy
Introduction
Some of the lessons learnt as a result of implementing the NSPP of 2017 – 2020 in the areas of
relevance, adequacy, coherence, inclusiveness, efficiency, effectiveness, impact and sustainability
are discussed below. Emerging social protection issues and realities, as well as identified gaps in
the national social protection policy implementation over this period are also presented.
2.3.2.1 Policy Relevance
The relevance of a programme pertains to the extent to which the programme objectives are
continuously consistent with the needs of the recipients or beneficiaries. Relevance is also
measured if objectives and the programme design are suitable and continue to be so in changing
environments. There is a unanimous agreement that the programme in the policy document are
very relevant in the Nigerian context. The National Social Protection Policy was therefore seen as
a welcome development to lift many out of poverty, while at the same time providing social safety
nets for the vulnerable so that they do not fall into poverty. The idea to ‘reach the farthest first’
was especially considered to be laudable. Closely related to the above is the lesson learnt from the
exposure of the vulnerability of the whole economic set-up by the COVID-19 Pandemic. The
reality that more Nigerians could enter into poverty as experienced from the lockdown occasioned
by the pandemic reinforces the relevance of an effective Social Protection Policy.
The humanitarian crisis caused by the Boko Haram insurgency in the North-East, as well as
rampant banditry, religious and ethnic clashes, and kidnapping in other parts of the country also
shows the relevance of the programme. The fallout from these crises as well as the ever increasing
scale of natural hazards calls for a comprehensive National Social Protection Policy. The policy is
also in alignment with national priorities as well as international commitments of the country, for
instance, the Sustainable Development Goals. If the Policy could drive national priorities like
lifting 100 million Nigerians out of poverty and lead to the attainment of the SDGs by 2030, then
it can be considered relevant.
There were, however, some problems with the relevance of the programme, which is obscured by
the non-alignment of the policy measures with one another. The non-availability of an overall
implementation plan detracts from the relevance of the programme.
2.3.2.2 Adequacy
There are five major components of adequacy as it relates to social protection policies. A social
protection programme is deemed adequate if its benefits are provided regularly and predictably.
Secondly, these benefits should be of adequate quality to satisfy the respective needs of the
population. Thirdly, benefits should contribute to poverty reduction and equity. This implies that
depending on the type of benefit, it should either provide income security or income replacement,
facilitate access to health and other services or promote productive economic activity. Fourthly,
the benefits provided should be tailored towards addressing all risks along the lifecycle of

16
individuals. Finally, to be considered adequate, programmes should contribute towards the
achievement of national or program objectives.
Using these components as benchmarks for the NSPP being currently reviewed, it is obvious that
the programmes are not adequate. Using the first criterion, for instance to adjudge the Conditional
Cash Transfer, a component of the NSPP, it comes off as grossly inadequate. The cash transfers
are irregular at the best of times and highly erratic.
2.3.2.3 Coherence
Coherence refers to the logical arrangement of the different component parts making up the whole
policy. It also carries the thought of aligning the design of the policy to the programme objectives.
For the evaluation of this component, both the internal and external coherence are examined.
Internal coherence implies that policies and programs should be aligned to ensure that the portfolio
of interventions must be comprehensive. Additionally, institutional arrangements should exist and
be conducive for coordination across institutions involved in the design, administration, and
execution of social protection programs. If programs share administrative support functions and
can resort to shared delivery systems, this will reduce fragmentation and overhead costs. As
regards external coherence, a program is marked good if its policies are aligned with social,
economic, and sectoral policies. Policies and programs should be aligned to ensure that
interventions complement each other. In this regard, the policy objectives of the NSPP were
coherent. There were policy measures that were tied to actionable plans and then aligned to the
overall policy objectives. Overall, there is collaboration and coherence between the actors involved
in the design and implementation of the policy measures at the federal and state levels. On external
coherence, the lessons show that the NSPP is aligned to both national and international goals and
aspirations such as the SDGs, Nigerian Constitution, Nigerian VISION 20:2020, the ERGP and
other commitments.
While the program is generally perceived as coherent, there is need for the principal actors' further
collaboration with other stakeholders. There is also the need to further strengthen the operational
program coherence. There are still important operational components that are not yet in place. An
example is the lack of a clearly defined M and E structure and costed operational plan. The absence
of such frameworks militates against the coherence of the program.
2.3.2.4 Inclusiveness
For a social protection policy and programmes to be considered inclusive, the entire population,
including formal and informal workers, are protected from different risks along the life cycle. To
be considered inclusive, the policy must ascertain that available benefits are provided in a non-
discriminatory way, that they pursue gender equality and that interventions and individual benefits
are accessible by and for all. Furthermore, programme design and implementation should be
suitable to meet the special needs of persons with different characteristics, circumstances, and
vulnerabilities. Some major areas of inclusiveness that should be worked on are areas relating to
the issues of Persons Living with Disabilities (PWDs) and Older Persons. The 2017 - 2020 policy
seems to lack a comprehensive provision for these groups of person. It appears they are lumped
together with the general population, without paying attention to their peculiar nature and unique
vulnerabilities. In summary, the failure of the policy to create a special status for persons living
with disabilities and older persons have hampered the otherwise good intentions in the area of
inclusiveness.

17
2.3.2.5 Efficiency
Efficiency is the measurement of how economically resources or inputs in terms of funds,
expertise, time, and so on are used to achieve results. It also relates to achieving the results in a
timely fashion. The efficiency of the current NSPP is hard to measure or quantify. There is no
Monitoring and Evaluation Framework that would be able to give specifics in terms of what was
invested, tangible results experienced, and then a measure of its efficiency considering all the
factors above. For example, although there is the national scorecard defined in the NSPP, it is not
operational as of now. The scorecard is intended to provide detailed evidence on program
performance. The non-operational status of this very important component, makes it impossible to
mark the NSPP since there are no standards to mark them against, or even concrete results to be
evaluated. In conclusion, the NSPP cannot be considered to be efficient because there is no
operational scoreboard with key performance indicators with which to measure performance
outcomes.
2.3.2.6 Effectiveness
Measuring the effectiveness of a policy refers to assessing the extent to which a policy attains its
objectives and detecting the factors that hinder or facilitates the realization of the objectives. It
also involves establishing the cause-effect relationship about the extent to which a policy produces
the desired outcome. It could be said that the NSPP has not satisfactorily achieved the intended
outcome. The desired result would have been the prevention of the identified vulnerable group
being prevented from falling into poverty and actually lifting a number of those in poverty out of
penury. One underlying cause of this is that the interventions were not designed to respond to
shocks and allowances were not provided for market realities like inflation. It became a case of
doing too much in so little time. Attention should be paid more to the underlying causes of poverty
and deprivations, instead of just throwing money at its manifestation.
2.3.2.7 Impact
The impact of a policy refers to the results or effects that is caused by or attributable to such a
policy. These effects can be short, medium or long term, and can be intended or unintended,
positive or negative. Only 36 per cent of mapped programs have been evaluated for impact. Impact
evaluations are essential to understand if programs achieve their desired impacts and to shed light
onto the programs’ relevance. Aspects that are usually investigated by impact evaluations are
reductions of poverty rates or the poverty gap, reduced extent of inequality or improved food or
education outcomes to mention just a few. Should impact evaluations not find any relevant
impacts, they are critical to explaining which modifications may be necessary and how these can
be achieved. To this end, impact evaluations are essential to make the case for social protection,
to keep programs in place or expand them, as well as to raise funding.
There were identified positive impacts resulting from the implementation of the NSPP. One direct
positive impact is the improvements that those initiatives have brought to the lives of the
beneficiaries. Programs like the Home Grown School Feeding Program, Conditional Cash Transfer
Schemes like Trader Moni and Farmer Moni have improved the economic standings of some
individuals and nutritional needs of some pupils.
A related but unintended fallout from the first is that Nigerians are becoming aware of the
obligation of Government at all levels to invest in Social Investment Programs and that their lives

18
can be improved through such programs. This is capable of increasing citizens' consciousness and
making them participatory in the processes of governance as well as holding their leaders
accountable.
Another positive impact is that the NSPP has changed the social protection landscape in Nigeria,
at all levels of governance. Almost all the current Social Protection Programs at both the Federal
and State levels draw from the NSPP. So while the NSPP has its limitations, it started a revolution
in the social protection landscape and things can only get better from here.
One negative impact of the program is the feeling of non-inclusion that some eligible individuals
not currently benefiting from the program have. Observing first-hand the positive impact on the
beneficiaries makes them feel excluded. Compilation of a comprehensive and inclusive list has
been advocated to mitigate this negative impact.
The impact of the NSPP is not felt by the generality of Nigerians. Inequality continues to widen
and all the indices of poverty are on the increase. This may explain the impatience of the majority.
Many respondents felt the impact is too little, and too slow.
As a whole, the policy and the programmes implemented therein made some marks on the direct
beneficiaries of its intervention programs, and changed the social policy landscape. However, the
bulk of Nigerians are yet to feel the impact of the various interventions.
2.3.2.8 Sustainability
Sustainability is the degree to which the services or processes continue in the face of a decline or
discontinuation of inputs in terms of funds, materials, training etc. provided by the original
source(s). One major step that will ensure sustainability is the need for entrenchment of the NSPP
by making it into law. If it becomes law, it is reasoned then that successive administrations will be
under obligation to continue with the programs and gradually build on the gains.
A good indication of the tendency of the NSPP to survive is the political will to continue with it
demonstrated by the present administration and the eagerness of Development Partners to
constantly improve the process. The clamoured for more by the citizens can also make its removal
by any succeeding administration unpopular, thereby increasing its chances of survival.
A major reason why projects are abandoned after a few years of implementation is often because
of lack of resources from the original source of funding. A good way to therefore sustain the
initiative is to come up with innovative ways of funding. Looking in the direction of the private
sector and trust funds managed by seasoned technocrats who have no link to politics can drive
fund generation and sustainability. Already, the private Sector has to some extent rendered support
to the National Social Protection Program. In this wise, the contributions by the Health Care
providers in National Health Insurance Scheme (NHIS) and the Pension Fund Administrators
(PFA) and Pension Fund Custodians (PFC) are commendable
The Political Will to support Social Protection is encouraging. The Development Partners are
assisting to review and improve the Policy to meet with best practices at different jurisdictions.
When the Policy is translated into legislation as intended, Social Protection in Nigeria will continue
to be sustained without further reliance on Development Partners.
2.3.3 Gaps in the National Social Protection Policy

19
In response to strong economic inequalities and vulnerabilities, the federal government of Nigeria
has identified social protection as a strategic tool to address the nation’s development challenges.
To that effect, the federal government has been investing in social protection by developing and
approving a National Social Protection Policy (NSPP) in 2017. However, gaps have been identified
in the NSPP therefore the need for a review.
2.3.3.1 Key Gaps
Some of the gaps identified may not be restricted to but include:
i) Coverage of Various Population: The National Social Protection Policy cover only a
small fraction of the poor and vulnerable populations. Despite the national policy speaking
about a creation of a social protection floors and the life cycle approach, there is an existing
gap in coverage particularly among children; the working class population specifically in
the informal sector etc. Besides, the policy has not made provisions for people with
disabilities and the chronically ill. No Child Grant provisions, social security – contributory
and non-contributory; Health Insurance etc. The policy categorized older persons as 65
years and above. Thus, in line with the draft National Policy on ageing and international
best practices, older persons should be from age 60 and above. Policy objectives must
understand the intersection of gender and disability in its gender mainstreaming and speak
to each differently.
ii) Governance Structure: There is no clear and coordinated governance structure in the
implementation of the NSPP. Inadequate coordination also results in a lack of, or
inadequate referral mechanisms for beneficiaries, which are vital to ensure that the needed
services are provided. Therefore, Social protection is highly fragmented as there is no clear
and coordinated governance structure. Provision is made for programmes to be
implemented in silos with very limited linkages, coherence and communication between
stakeholders. Current policy, programmes and systems have not effectively exploited
potential synergies between programmes and maximize the developmental and multi-
dimensional impacts that social protection can have on multidimensional poverty. Current
policy does not provide for the inclusion of PWDs in the governance structure. With the
establishment of the disability commission, PWDs should be included. There is need for
Mandate Mapping to determine the roles of each MDA.
iii) Financing: Though there is an improvement in financing social protection interventions,
much still needs to be done as the level of financing remains inadequate in comparison to
the overall need and raising poverty levels. In addition, there is no clear system/mechanism
to track how much funding is going into the sector directly from government and also from
partners, including tracking outflows or expenditure. Furthermore, there is inadequate and
untimely, non-disaggregated data that informs fiscal space analysis to facilitate the timely
release of funds to meet urgent and critical challenges. A number of partners have come
into the sector and provided support particularly in terms of TA and in some cases direct
support to beneficiaries. Besides, there is as yet no institutionalized budget for social
protection besides the IDA credit. There is therefore a need for fiscal space analysis for
social protection to determine the appetite of government and its financing capacity for
social protection in Nigeria.

Considering the massive numbers of Nigerians that require one form of social
protection or the other, the funding is inadequate and there is a dire need for increased

20
 funding of these programs in order to expand the number of beneficiaries and ensure that
many more people benefit from the impact of the social protection programmes.

iv) Systems, Capacity and linkages to states: Development of an integrated or potentially

common system for targeting, monitoring and evaluation, payment, and information
management is critical for maximizing the efficiency and impact of social protection in
Nigeria. Over the last few years the government has increased investments in systems
including the development of the comprehensive social register and the payment system of
the cash transfer programme. However, human capacity at the state level is still inadequate
and needs to be incorporated in the NSPP to ensure its sustainability. A community based
approach should be fully adopted in terms of determining the poorest of the poor at the
community level. Department in charge of Social Development at LGA levels should be
made responsible for the implementation of SPP and where such departments do not exist,
it should be created.

v) Monitoring and Evaluation (M&E) Mechanism and participatory management:

Continuous, systematic process for collecting, analysing and using information to track the
policy implementation efforts to assess whether the related activities are progressing
according to plans, and the efficiency with which the stated goals and objectives are being
achieved is still missing. Periodic evaluation of the policy cycle geared towards the
assessment of the impact of various programmes as articulated n the policy goals through
the use of user friendly tools has not been initiated till date. Involvement of independent
and experienced experts in the field of M & E should be regularly carried out at the Federal,
States and Local Government levels. There is absence of tools for monitoring and absence
of periodic evaluation with clear indicators and defined deliverables in the short, medium,
and long-term. There is as yet no costed implementation plan for social protection with
result framework, nor is there a framework which define implementing partners or
government operational plan as a consolidated plan of action.
vi) Definition of Social Protection: There seems to be a tiny gap in the definition of Social
Protection and a bit of confusion around social protection and social investment, this needs
to be clarified in this revised policy framework. This gap includes the absence of
vulnerability to socioeconomic, and environmental shocks. The definition of the SPP did
not incorporate issues relating to environment.
vii) Social Protection Research and use of evidence: Not much of Research and
Development; harnessing learnings to inform policy change and programme improvement.
There is absence of grants for research and development on social protection matters.
viii) Non-Integration of the National Gender Policy into the NSPP: The National Gender
Policy represents the goal shift from women empowerment framework to gender equity
and equality, not only as a stand-alone goal but as a necessity for development, peace,
security, general well-being and poverty reduction. NGP also ensures that gender
consideration are effectively integrated into all aspect of government policies, activities,
programmes and resource allocation. It is yet to be integrated into the NSPP
implementation.
ix) Environmental issues should be mainstreamed

21
 x) Legislative framework that specifically protects intended beneficiaries including children
should also include women through inheritance rights, birth registration, child care services
and breastfeeding.

2.3.3.2 Reform Measures for Social Protection Programmes

2.3.3.2.1 Gender Mainstreaming
Progress on gender equality is recognized as a critical factor in achieving the SDGs. Hitherto, the
social protection agenda has generally been presented in terms of categories of poor and excluded
social groups, differentiated according to age, health status and relationship to formal labour
markets. Social protection measures will be designed to respond to different gender-specific
categories of risk, which include:
a. health risks (e.g. maternal and infant mortality, disease);
b. life-cycle risks (e.g. childbearing, divorce, widowhood);
c. household economic risks (e.g. increased expenditure for social obligations such as
marriage and funerals); and
d. social risks (e.g. exclusion, domestic violence, crime).
e. Specific interest groups such as: child/youth centered organizations, women
and girls, older persons, PWD, IDPs/refugees, returnees and migrants, etc.
Gender will have to be mainstreamed into all aspects of policy and programme designed for social
protection, including targeting, linkages with complementary services, institutional arrangements,
awareness-raising, and monitoring and evaluation. Issues that enhance the livelihoods and life of
dignity in reproductive rights of men and women need to be prioritized.

2.3.3.2.2 The Aged

The aging persons are an important component of every country’s demographic strata, deserving
social protection like other age cohorts. The population of older persons in the world is increasing
at a very rapid rate. Government’s approach to social protection of the elderly is mainly through
social security limited to formal employment. It is for this reason, that social assistance to the aged
is being emphasized in this policy.
2.3.3.2.3 Multi Sectoral Approach
The social sector components are inter-related. Population growth affects the demand for education
and health services. Education enhances appreciation for health and population programmes,
healthy pupils are likely to learn more. Successful implementation of social sector programmes
depends on development in other sectors such as infrastructure and agriculture. The underlying
causes of malnutrition are household food insecurity, poor access to health services, sanitation and
inadequate caring practices. Good governance is needed to bring together all these sectors and
identify their different roles, priorities and institutional requirements. The increase in the
communication link between personnel in these sectors will facilitate a multi sectoral approach to
development. Government will ensure that Nigerians participate in a stable and growing economy,
with an improved delivery of social services that is realistic, resources based and consistent with
the National Development plans and aspirations.

22
 CHAPTER THREE
Overview of the situation analysis - Poverty and Vulnerability in Nigeria
3.1 Overview of poverty
Nigeria has a population of approximately 206 million, out of which 40 percent (about 83 million)
live below the poverty line while another 25 percent (53 million) are vulnerable. The likelihood of
Nigeria’s vulnerable population falling into poverty is exacerbated by the deleterious impacts of
COVID-19 already manifesting in increasing unemployment and under employment (World Bank,
2020).
Inequality is high is adversely affecting poverty reduction efforts. Inequality is manifested in terms
of income and opportunities. The lack of job opportunities is a major cause of high poverty,
regional inequality, and social and political unrest. At the beginning of 2020, it was estimated that
some 2 million Nigerians would fall below the poverty line because of incongruencies between
population growth and economic growth. But with the COVID-19 pandemic, an additional 5
million Nigerians are projected to fall into poverty bringing the total new poor in Nigeria to 7
million (World Bank, 2020).
At present, 98 million Nigerians live in multi-dimensional poverty according to the United Nations
Development Programme (UNDP, 2019). According to the World Bank (2019), 49.9 per cent of
Nigerian households lived below the international poverty line of US $1.9 per day in 2018. In
addition to monetary poverty, multi-dimensional poverty is also high and affects about 50 per cent
of the population. Multi-dimensional poverty takes into consideration deprivations in aspects
including education and health, as well as access to water and sanitation. Although it is often
associated with monetary poverty, it draws a more comprehensive picture of the population’s
living conditions since critical aspects of well-being are captured. These include key well-being,
health and education indicators in Nigeria.
Poverty seems to be the most basic of all deprivations and arguably the worst stripper of human
dignity. It is also the root cause of most denial of human and child protection rights. The
multidimensional poverty index (MPI) in Nigeria is high at 0.303 (OPHDI, 2017).
Multidimensional Poverty Index (MPI) across domains varies widely with the most deprived State
being Yobe with an MPI of 0.635, followed closely by Zamfara State with an MPI of 0.605. This
is in stark contrast to the situation in the South-West which has two of the least deprived states –
Lagos and Osun, with MPIs of 0.035 and 0.043, respectively (OPHDI, 2017).

All the regions of Nigeria, except for the North-East recorded a decline in the poverty incidence
during the period 2013- 2016. The South-West region performed particularly well and managed
to cut the poverty rate by more than half during this period, while poverty levels remained
particularly high in the North-East and North-West regions at 47.6% and 59.0%, respectively.
Importantly, the North-East was the only region to have registered an increase in the incidence of
poverty from 45.56% to 47.56%over this period. This accounted for the region’s shrinking middle
class and the largest increase in income inequality, as measured by the Gini Coefficient, over this
period (UNDP, 2018). Inequality, measured by the Gini coefficient, increased from 0.36 to 0.42
between 2011 and 2016.4

4
(World Bank, 2019b)

23
The intensity of poverty, which measures the percentage of dimensions in which poor people are
deprived is highest in northern Nigeria with the North-East at 44%, just one percentage point below
the North-West region where the intensity of poverty is 45% and three percentage points above
the North central region where the intensity of poverty is 41% (NBS/UNDP, 2018).
3.2 Social risk and vulnerability profile
Nigeria’s demographic presents a social risk and contributes to the vulnerability of Nigeria. At an
annual growth rate of 2.6% per annum, Nigeria’s population is projected to hit 402 million by 2050
(Worldometer, 2021). For majority of the population engaged by the subsistence economy, there
is little or no growth in per capita income. Further, population growth exerts pressure on the
environment which sustains human life. For example, population growth causes soil erosion,
nutrient exhaustion, rapid deforestation, and other problems which render the land unusable for
agriculture.
Nigeria ranks 7th in the global population and dependencies ranking. More than half of its
population, about 111.5 million people, are younger than 20 years.5 42.54% of the population is
said to be between the ages 0-14. Children aged 0-4 years, 10- 14 years and youth between 20-24
form the bulk of the population.

Nigeria 2018
Male Female
100+
90 ‐ 94
80 ‐ 84
70 ‐ 74
Age Group

60 ‐ 64
50 ‐ 54
40 ‐ 44
30 ‐ 34
20 ‐ 24
10 ‐ 14
0‐4
20 15 10 5 0 5 10 15 20
Population in Millions
Source: Population structure, Index Mundi (2019).
Figure 3.1: Age Pyramid
As shown in the population pyramid, the majority of the population fall between 0-24 years. This
high youth population and high dependency ratio combine with high rates of unemployment and
slow economic growth to create conditions that exacerbate the risk of children and youth suffering
5
(United Nations Department of Economic and Social Affairs, 2019)

24
from deprivations and poverty thus increasing their vulnerability. Nigeria has an economic growth
rate of 1.5%. An estimated 2 million children in Nigeria suffer from severe acute malnutrition,
with 32% of children under 5 suffering from stunted growth. About 10.5 million children aged 5-
14 years are not in school, with 1 in every 5 children out of school in the world being a Nigerian.
Thousands of children from poor homes, mostly 15-17 years are in domestic labour. Around
70,000 children under the age of 5 die annually of diarrhoea due to lack of access to clean water.

The principal measure of human development is the Human Development Index (HDI). Nigeria
ranked 0.534 in 2018 (UNDP, 2018) which puts the country in the low human development
category of 158 out of 189 countries and territories. Between 2005 and 2018, Nigeria's HDI value
increased by14.4 percent. All the North-Eastern states have HDI scores below the national average,
ranging from a high of 0.4286 in Taraba to a low of 0.3238 in Bauchi, a figure less than half that
of Lagos State at 0.6515, the State with the highest HDI score. In Nigeria, life expectancy at birth
is 52.2 years. Nigeria is ranked 178 in the world in life expectancy (NPC, 2019; WHO, 2018).
3.3 Challenges for poverty alleviation and reduction of vulnerability
Sustained economic growth and equitable income distribution are generally prescribed as the most
effective tools for poverty alleviation in developing countries. While Nigeria has attempted to
apply these tools, only mixed success has been achieved and development challenges still exist.
The challenges are classified as recurring and emerging. Recurring challenges to poverty
alleviation and vulnerability reduction include unplanned or uncontrolled population growth,
demographic transitions and migration, environmental issues such as environmental degradation,
poor governance and other structural issues. Emerging issues include dwindling oil revenues and
the technological change from fossil fuels, global trends in development and trade, and the impacts
of the COVID-19 pandemic.
Poverty remains high in Nigeria because of failures in social service delivery systems and the
widespread lack of basic infrastructure. Slow poverty reduction rate in Nigeria is directly linked
to the weak resilience and high vulnerability of livelihoods, particularly in the agriculture sector.
About half of the Nigerian population works in the agriculture sector, a sector which boasts only
2 percent growth per annum since 2010 and is insufficient to keep up with the population growth.
Stagnating production and productivity in the farm sector are key reasons for continued high
poverty levels. Half of the people working in agriculture belong to the poorest 40 percent of the
population.

Four out of five Nigerians are own-account workers, mostly in the agriculture and services sector.
Data on sectoral composition of GDP clearly marks the importance of the services sector, which
contributed 52.5% to the nominal GDP in 2018. However, sectoral growth of the services sector
has been below 2 percent for the last three years, and services contribution to nominal GDP has
gone down from 58% in 2015 to 52% in 2018. The growth in the services sector, which is
dominated by small and medium enterprises (SMEs), has been constrained by a subdued demand
and limited lending. High- growth sectors such as telecommunications are not particularly labor
intensive and are too small to absorb demand for nonfarm employment, even with high growth
rates (World Bank, 2019). Weak labor market integration of youth from poor homes, as they
transition from education to work, is aggravated by an inefficient skills development system,

25
especially in the informal sector. Therefore, Nigeria suffers from a segmented labor market for
youth.

In summary, lack of basic infrastructure, poor social service delivery outcomes, weak resilience in
the agriculture sector, stagnating productivity in the farm and non-farm sectors, mismatches
between youth aspirations and employment opportunities available in the economy, poor education
and health services utilization, weak governance, climate change, and conflict have contributed
significantly to the poverty situation in the country.29 Both location and the demographic structure
of the household also play a significant role in defining a person’s poverty status.

26
 CHAPTER FOUR
Strategic Framework of the National Social Protection Policy
4.0 Introduction: Minimum Package of Protection
Government shall implement a transformative social protection framework, which takes into
consideration both economic and social forms of vulnerabilities. This will be based on a framework
whereby social protection will promote social equity and inclusive growth. The framework
includes four levels of social protection provisions:
a. Protective (protecting households’ income and consumption, which includes social
assistance programmes such as cash transfers, in-kind transfers, fee waivers to support
access to basic and social services);
b. Preventive (preventing households from falling into or further into poverty, including,
health insurance programmes, subsidized risk pooling mechanisms);
c. Promotive (promoting household’s ability to engage in productive activities and increase
incomes, for example, through labour-based cash transfer schemes/public works
employment schemes, agricultural inputs transfers or subsidies, cooperatives, etc.); and
d. Transformative (addressing social inequalities and discrimination, which include, for
example, core social protection programmes which tackle gender inequality and promote
child rights and linkages to awareness-raising programmes or tackling discrimination).
Government shall ensure that no citizen falls below the minimum level of social and economic
wellbeing, security and dignity enshrined in a Social Protection Floor. Based on constitutional
provisions and international benchmarks, this Social Protection Floor for Nigeria shall be a
minimum essential level of social rights, services and facilities that all citizens should enjoy as
explained in section 3.2.

4.0.1 Prioritization and Progressive Realization of Policy Measures

The purpose of the social protection system envisaged in this Policy shall be oriented towards a
long-term vision, with a perspective of twenty years, drawing on evidence from international and
regional experiences which show that comprehensive and sustainable social protection systems
cannot be built in the short term. To achieve medium and long term objectives of the NSPP will
take time and substantial resources. Against this backdrop, the policy actions and plans will be
rolled out in three overlapping phases: short, medium and long terms.
In the short and medium terms, the Policy will develop institutional frameworks and allow the
implementing MDAs to administer interventions that should be scaled up or expanded in the long
run to engender universal coverage within context of priority interventions.

In the long run, the NSSP shall establish minimum standards of coverage for all Nigerians to be
progressively realized. Individual States will be able to implement and achieve these minimum
standards at their own pace within 20 years. Also, States will have the flexibility to give priority
to one or another element, not all of the interventions need to be addressed at the same time.
Moreover, States can implement additional measures if they so desire as the NSSP only establishes
a minimum. This Policy embraces and supports other Government initiatives on pensions and
social insurance.

27
4.1 Policy Vision
4.1.1 Long Term
With regard to the long-term measures, Government through implementing MDAs will plan its
strategies in accordance with the provisions in the United Nations Social Protection Floor (UN-
SPF), which guarantees a universal minimum package that adopts a life-cycle approach. The UN-
SPF consists of the following elements: access to education and essential health services; income
security through family or child benefits; unemployment benefit; and income security in old age
(social pension)

In the long run (by 2030), the country through successful implementation of social protection
programmes should be able to increase the nation’s HDI by 30%, reduce MPI by 40%, and reduce
Child Poverty by 30%.

In the long term, Government and partners will be committed to sustainable funding, using
appropriate mechanisms that provide predictable and institutionalized funding to social protection.
For Nigeria to achieve the objectives of the NSPP, some policy measures and policy objectives,
which are described below, will have to be put in place.

4.1.2 Short Term

4.1.2.1 Short and Medium Term
Government will provide a Basic Minimum Social Protection package in the short to medium term.
For the short term measures, attention will be focused on the prioritized areas of interventions and
in achieving these, the policy objectives and strategies discussed below will be applied to guide
the implementing MDAs. The following are expected to be achieved within the next 3 – 5 years.
4.1.2.2 Policy Objectives
a. Poor pregnant women and children under 5 have access to free essential health care
b. Family/child transfers aimed at facilitating access to nutrition, education and health care
for the poor.
c. Targeted income support for the poor and unemployed in active age groups, especially
through cash-for-work and other labour intensive programmes; and
d. Citizens in old age category (above 60 years old) and people with disabilities enjoy income
security through pensions and transfers granted to ensure their income is not below the
national poverty line.
e. Income security through the extension of social insurance schemes to workers in informal
economy
Figure 4.1 below gives a vivid description of the types of social protection programmes to be
implemented within the context of this policy document.

28
Figure 4.1: Taxonomy of social protection instruments

Social Protection

Non‐contributory Contributory

Social Labour Market policies

Social Assistance Social Care
Insurance and interventions

Social Public works Fee waivers Subsidies > Family > Health insurance Active: Passive:
programmes > For basic > Fuel support > Insurance for: > Work sharing > Maternity
transfers > Cash for work health/ > Food services ‐ Unemployment > Training benefits,
> Cash > Food for education > Home‐based ‐ Maternity/ > Job‐search injury
transfers work care paternity services compensation,
> Vouchers > Vouchers for ‐ Disability and sickness
work ‐ Work accidents benefits for
> In‐kind > Old age pension those in work
transfers > Crop/livestock > Changes in
(including insurance legislation
school (e.g. minimum
wage, safe
feeding) working
Source: Adapted from O’Brien et al. (2018)

The policies below describe the minimum interventions to provide a social protection floor to all
Nigerians.

4.2 Strategic orientation of the Policy

4.2.1 Social Assistance
Policy objective 1: Social assistance & (social care) to support the poorest and most vulnerable
group including children, people living with disability and the elderly in attaining an improved
standard of living.

Policy Measure 1: Free school meals will be provided to all pupils in public primary schools.

Policy Measure 2: Provide scholarship, learning materials, uniforms and cash transfers for
children in poor households and children living with disabilities.

Policy Measure 3: All children and adults living with disabilities have access to free health care,
education, and required special services and assistive devices.

Policy Measure 4: Provide free health care services for pregnant women, lactating mothers,
children under-5, the aged (people over 60 years old) and people living with disabilities.

Policy Measure 5: Labour based cash transfer/Public Works Programmes for Youths, persons with
disabilities and the unemployed.

29
Policy Measure 6: Provide cash transfers, food transfers, food vouchers to families and cash for
work schemes which are activated at the onset of emergencies.
Policy Measure 7: Provide non-contributory pensions for all citizens over 60 years of age, as well
as cash and food grants for poor families, orphans, street children, and others vulnerable to harmful
cultural practices.

Policy Measure 8: User fees removal for selected basic social services including education,
health for poor and vulnerable citizens

4.2.2 Social Care

Policy Objectives 2: To provide support for distressed Family and enhance home based care for
the vulnerable.
Policy Measure 1: Provide health services, psychosocial support, and counselling to survivors of
violence against persons, child labour, child abuse, child rape, and human trafficking.

Policy Measure2: Provide free capacity enhancement programs for home care workers and Offer
psych-social counseling opportunities to distressed families and long term home health care givers
4.2.3 Social Insurance
Policy Objective 3: Social insurance including support for the poorest and most vulnerable
against risks and shocks

Policy Measure 1: Universal access to Health Insurance Scheme (HIS) or CBHIS and or other
social health insurance schemes.

Policy Measure 2: Contributory pensions available to all citizens 60 years of age and above.

Policy Measure 3: Insurance for unemployment including for maternity, paternity, disability,
accident,

Policy Measure 4: Provision of child grant for children in poor and vulnerable households

Policy Measure 5: Insurance for Crops/livestock providing compensatory support in the event of
contingencies to be activated during economic shocks

Policy measure 6: Employment injury benefits for workers in active service.

4.2.4 Labour Market Intervention

Policy Objective 4: Labour market regulations

Policy Measure 1. Job search services including systemic sharing of work opportunities for
unemployed persons seeking for job

30
Policy Measure 2: Job training, upgrading and adapting jobseekers’ skills

Policy Measure 3: Provide support for sustainable livelihood through skills training, access to
land, inputs for smallholder farmers, affirmative action for youth and women’s employment, and
access to financial services for micro and small enterprises and cooperatives.

Policy Measure 4: Unemployment insurance and non-cash unemployment benefits to job seekers.

Policy Measure 5: providing unemployment subsidies (health insurance exemptions, reduced

medical fees; education fee waivers; food subsidies; housing subsidies and allowances; utility and
electricity subsidies and allowances; agricultural inputs subsidies; and transportation benefits)

4.3 Complementary measures (Assumptions) for SP policy effectiveness

This is to provide supporting measures mainly for the availability of services to ensure
effectiveness of social protection measures – elements of social protection floor -

Policy Measure 1: availability of quality schools especially in poorest areas

Policy Measure 2: Availability of functional health infrastructures accessible to the poor and
vulnerable

Policy Measure 3: Availability of other services, including accessible markets, goods, and so on

4.4 Strengthening Social Protection System

Policy Objective 5: Strengthen Social Protection System with reinforced institutional framework
legislation and regulation.

Policy Measure 1: Develop and utilize National Social Register for Poor and Vulnerable adequate
for beneficiaries’ selection for social protection programmes, especially non contributory.

Policy Measure 2 Effective coordination mechanism backed by adequate management

information system (MIS)

Policy Measure 3: Develop legislation and regulatory framework Policy that will culminate into
assented bill/law by the president.

Policy Measure 4: Provide a legal framework that specifically protects intended beneficiaries
including children through inheritance rights, birth registration, childcare services and breast
feeding.

31
 CHAPTER FIVE
Implementation Framework and 3/5-Year Action Plan

5.1 Results Frame of the Policy (Impact, Outcome, Indicators…) for a 3/5-Year Action
Plan
It is essential to put in place a continuous and systematic process for collecting, analysing, and
using information to track policy implementation efforts and to assess whether the related activities
are progressing according to plans, and to determine the efficiency with which the stated goals and
objectives are being achieved. This process will be underpinned by the new National Development
Plan M&E framework.

There is the need to designate tools for monitoring and periodic evaluation with clear indicators
and defined deliverables in the short, medium, and long-term. The M&E framework that will be
developed to accompany this policy will clearly elaborate on indicators relating to inputs, outputs,
outcomes, and impacts.

5.2 Institutional Arrangement Including Coordination and Implementation System

Institutional Framework for Coordination and Integration
Social protection policy will be delivered in a timely, harmonised, and effective manner. There
will be inclusive processes soliciting the inputs of all stakeholders with clear resolve and
assignment of roles and responsibilities for policy making, implementation and regulation.
Resonance and sustained partnerships will be developed between a diversity of stakeholders
including CSOs that represent the best interests of the intended beneficiaries. Partners will commit
to a common set of standards for financial management, targeting of beneficiaries, reporting as
well as monitoring and evaluation.

To achieve policy coordination, the Federal Government shall establish an institutional framework
that will effectively and efficiently oversee the social protection policy across the country.

A Governing body drawn from state and non-state organisations shall be appointed to ensure that:
a. the NSPP mainstreamed into national plans and the budgeting system; and
b. There is effective coordination of state and non-state actors entrusted with implementation
of social protection programmes.
In terms of integration, the social protection system will be designed in a way that ensures social
protection services are integrated, to effectively and efficiently address multi-faceted
vulnerabilities. Government MDAs and partners involved in social protection will commit to a
harmonized set of financial management procedure, audit process, advancement, monitoring and
evaluation and reporting processes, consistent with national, regional and international guidelines
and indicators for the purpose of comparing progress made in different sectors, among others.

32
5.2.1 The Key Stakeholders and Roles
The major stakeholders that will ensure the effective implementation of NSPP include the Federal,
State, and Local Governments as well as Civil Society Organizations, the private sector, and
international development partners. The detailed responsibilities of each stakeholder are specified
below:
5.2.1.1 The Federal Government
The Federal Government shall:
a. provide leadership in all aspects of implementing the policy;
b. enact legislations and provide enabling environment;
c. review Social Protection Policy;
d. ensure timely and adequate discharge of financial obligations; and
e. seek international cooperation and collaboration towards the success of the Policy; and
f. enhance the capacities of States and Local Governments for effective implementation of
the Policy.
5.2.1.2 The National Social Protection Council
The Federal Government shall set up, by an Act of the National Assembly, a semi-autonomous
body called the National Social Protection Council (NSPC) to be domiciled in the Ministry of
Budget and National Planning (MBNP) to coordinate the NSPP. The Council shall be composed
of:
a. The Honourable Ministers for Budget and National Planning as the Chairman of the
council and Minister of Humanitarian Affairs, Disaster Management and Social
Development as a co-head chairman of the council.
b. The permanent secretaries for Budget and National Planning and Humanitarian
Affairs, Disaster Management and Social Development as head and co – heads of
secretariat
c. Honourable Ministers of relevant Ministries, (including but not limited to Labour and
Employment, Health, Education, Women Affairs, Agriculture etc)
d. Representative of the organised private sector,
e. Representative of Civil Society Organizations,
f. Representative of Nigeria Governors’ Forum and ALGON,
g. Representatives of the OSSAP/SDGs Office,
h. The technical working group (TWG)
i. Special Adviser to the President on Social Investment, and
j. NIMC

The Council shall have the following functions:

33
 a. present timely annual report to the President and the National Assembly on the status of
social protection policy implementation in the country.
b. ensure periodic review of the NSPP;.
c. develop regulations on accountability measures and mechanisms;
d. provide linkages with other government oversight mechanisms and institutions;
e. ensure that sector actors prioritize social protection programmes in the annual budgets;
f. undertake/facilitate fundraising for social protection activities and capacity building; and
g. conduct overall monitoring, evaluation and review of the Policy;
h. coordinate development partners’ contribution to social protection in Nigeria in line with
the national strategy
i. promote effective inter-governmental collaboration in Social Protection programs.
j. initiate and oversee studies, assessments and evaluations to gather evidence; and.
k. work with the media on advocacy and mobilization activities.

5.2.1.3 Sub National Social Protection Framework

States are to adopt and adapt the Policy and provide matching grants for the implementation of the
programme. They are also to be involved in the implementation of the NSPP. States will have the
flexibility to replicate the structures at the Federal level.

5.2.1.4 The Local Government Areas (LGAs)

The LGAs are to be involved in the ensure implementation at the local government level and
provide counterpart support. They are also expected to be involved in mobilization, sensitization
and to participate in the monitoring and evaluation process.

5.2.1.5 Traditional Rulers/Community Leaders

Implementing MDAs shall ensure the Involvement of community level governance structures in
delivery of the social protection services in LGAs and communities shall support effective
programme implementation and build community confidence in collective action.

5.2.1.6 Civil Society Organisations and Community Based Organisations

Civil Society Organisations including CBOs and workers’ organizations are important to the
monitoring and evaluation of the NSPP. These organisations are accountable to their constituents
who are mostly the beneficiaries of social protection programmes. They shall work through their
respective LGAs as partners to ensure that the policy achieves the intended objectives, support
transparency and accountability mechanisms on the social protection process, and improve
communication and information sharing to inform people about their rights and obligations. They
will be expected to support policy and programme development through evidence-based research.
They are also to be involved in Third Party Monitoring.

5.2.1.7 Private sector

34
Undertake the implementation and Monitoring and evaluation of social protection programmes.

Increase Corporate Social Responsibility (CSR) efforts towards social protection.

Provide technological support for the digitization of social protection programmes.

Provide finance for other aspects of social protection.

5.2.1.8 International Development Partners (IDPs)

The Federal Government shall collaborate extensively with IDPs in the implementation of the
NSPP. The specific functions of IDPs shall include
a. systems strengthening through provision of technical assistance;
b. research and logistic support;
c. sharing lessons from global experience;
d. capacity building at all levels for sustainability and;
e. making predictable financial commitments for effective policy delivery.

5.2.2 Regulation and Dispute Resolution

The implementing MDAs shall have in place internal mechanism shall handle all matters relating
to complaints, disputes, fraud and fraudulent practices while other issues outside their jurisdiction
should be referred to the appropriate judicial and enforcement institutions.

5.2.3 Institutional Development

Institutional development is critical to the achievement of the implementation of the NSPP.
Therefore, Government and partners shall invest in developing the capacities of institutions for a
sustainable social protection at all levels of government and across MDAs.

The scope and nature of capacity building and institutional support shall be based on needs
assessment of the capacity of all relevant institutions that will be involved in the policy and
implementation of social protection interventions.

An action plan in line with the objectives of the national institutional development strategy will
outline the necessary actions to improve the capacity to deliver the social protection. This will
include, but not limited to the following:
a. plans to adequately provide resources to key departments responsible for administration of
on-going social protection programmes with trained staff, ICT equipment and vehicles;
b. technical assistance for mentoring relevant staff of implementing agencies by development
partners; and
c. training modules and process manuals shall be developed for guidance on the
administration of social protection programmes.
5.3 Implementation system mechanisms

35
Transparency and accountability are critical factors in the implementation of the NSPP programs.
These ensure that the intended beneficiaries of the programmes are targeted and covered. One
way to ensure accountability and transparency is to stipulate that cash transfers be done
electronically.
Community level implementation of the NSSP programmes is strongly recommended. Community
level implementation makes it possible to identify and target the poor and vulnerable segments of
the population.
The policy should encourage the use of the social register in implementation of social protection
programmes.

Implementation should include a communication plan to increase awareness on social protection

programs.

Coverage should be expanded to include more persons in the informal sector.

The basic minimum should not be static but should be reviewed upwards with fluctuating cost of
living and relevant economic indices.

Relationships between Federal, State and LGAs should be properly synchronized to avoid
duplications, leverage on horizontal expansion and strengths of each arm. Mandate mapping may
be employed to ensure Institutional cooperation

Funding the establishment of senior citizens centres: which provide respite to working families-
this also should be seen as labor market programs for employment generation with training of
youths to undertake geriatric care services in such centres

In line with above, to implement the recommendations, strong commitment and actions are
required from the broad range of stakeholders concerned with social protection. While the
Federal/State Governments have the most significant role, other stakeholders also have important
roles. Critical stakeholders that should be engaged for the achievement of the policy
implementation would include:
o Federal/State Governments and legislatures: for policy, legislation, resource allocation
and leadership.
o Development partners: for technical assistance, best practices/build capacity, exchange
of information and coordination of actions.
o Specific interest groups such as: child/youth centered organization, women and girls,
older persons, PWD, IDP/Refugees and Migrants etc.
o Service providers: access audit, trainings and capacity building of care
providers/practitioner, disseminate information.
o Institutions: conduct research, provide client specific services, remove barriers,
conduct professional trainings, produce evidence, etc.

36
 o Private sector: support and promote diversity and inclusion, remove barriers,
philanthropy, design interventions, funding, and so on.
o Communities: challenge and improve beliefs practices, promote inclusion and
participation; Challenge violence, prevent abuse, and protect rights; create supportive
community and environment; ensure accessibility to services and facilities; promote
awareness, etc.
o Population groups affected: raise awareness, participate in schemes, forums and
research; mobilize, organize and support each other; promote rights.

5.4 Targeting and Registration

One of the fundamental principles of the NSSP is universality. The NSSP establishes a social
protection floor for all Nigerians. Thus, many of the interventions and policies explicitly promote
universal coverage (e.g. health insurance for all Nigerians). However, in order to ensure
universality, some individuals, families, and groups may need to receive special attention (e.g.
scholarships for children from poor families). In these cases, States will have the flexibility to
establish targeting schemes and canvassing mechanisms to find the intended beneficiaries for their
own programmes.
A combination of Community-Based Targeting (CBT), assessment mechanisms (means testing,
proxy means testing), broad categorical eligibility (e.g. geographic targeting), targeting by
category and life cycle (e.g. the elderly, PWD, under-5 children), household vulnerability analysis
and self-targeting mechanisms with specific emphasis on transparency and downward
accountability, among others, could be adopted by States. This approach will ensure citizens’
participation and empowerment and strengthen local ownership of social protection programmes.

Most household targeting systems involve the quasi-exhaustive survey approach. Due to its widely
adopted use and context-appropriate design, the quasi-survey approach could be employed as the
primary targeting mechanism for the social protection programme. This approach is pragmatic. It
will ensure citizen participation and empowerment, and strengthen local ownership of social
protection programmes. This may be scaled up as the economy improves. State programmes may
adopt one or a combination of any of the social protection mechanisms

Any approach States implement will be complemented with households applying for benefits on
an on-going registration basis as well as regular updating and re-certification. This will require
substantive support from the National Social Protection Secretariat (NSPS) and the State/LGA
Social Protection Committee at the State/LGA level to facilitate the registration, needs assessment
and re-certification. A combination of these two approaches will be an effective way to balance
the goals of reaching out to the poor while minimizing the costs of interviewing large numbers of
ineligible non-poor households.

5.5 The Social Register System

In order for the NSPP and programmes to be effective, the regular and reliable registration and
tracking system that is in place should be improved upon and expanded to cover more poor and
vulnerable. The National Social Register is a tool to identify and register the poor and vulnerable

37
and their socio-economic profile to inform pro-poor policies and manage social programs in an
integrated way. The social register should be updated periodically to ensure the reliability of the
data. The database will provide the necessary information for ensuring that resources go to the
intended beneficiaries.
There is also the need to integrate the Unified Register of Beneficiaries and Rapid Response
Register for the identification of the internally displaced persons and urban poor respectively, into
the NSR using technology and anonymized transaction databases.
5.6 Graduation and Exit
A key goal of the NSSP is to ensure a minimum standard of living and a life of dignity to all
Nigerians. This means that some policies and interventions will be sustained for as long as the
intended beneficiaries need them (e.g. a disability benefit will last as long as the person is disabled,
a pension for the elderly will be maintained all through their old age). Nevertheless, the NSSP also
includes policies intended to lift individuals and families out of poverty, encourage them to find
employment and engage in productive activities to earn their own livelihoods. It is therefore,
expected that the intervention programme shall empower terminal beneficiaries with productive
capacity to participate in other programmes for a period of time to develop and sustain their basic
livelihoods. During the latter stages, beneficiaries will be linked up with other complementary
programmes to further enhance their social and economic capacities.

5.7 Monitoring, Evaluation and Reporting

Effective Monitoring and Evaluation (M&E) systems are important for providing evidence on the
impact of projects and programmes. Government recognises the importance of an effective M&E
system as a tool for learning from past experience and improving service delivery while also
demonstrating results as part of accountability to key stakeholders.

Government has already established structures to support M&E in Nigeria. Therefore, a critical
thrust of the NV20:2020 is the institutionalisation of M&E across all spheres of government for
effective implementation of policies and programmes. This consideration provides a single
framework that provides the platform for assessing any programme implemented in the interest of
the Nigerian public. Therefore, the existing Nigeria’s national M&E framework will apply to
NSPP in Nigeria.

The Nigerian Constitution defines the responsibilities of the three levels of government and
supports a degree of autonomy for the State Governments in relation to the Federal Government.
The Local Governments operate as autonomous entities of the State Governments, with their
existence and source of revenues guaranteed by the Constitution. The arrangements and structures
for M&E therefore, cover the Federal and State levels. The MBNP is responsible for the overall
coordination of National M & E across all levels of government, anchoring the coordination of the
national system.

38
5.8 Performance Measurement
For the NSPP to be effective, evidence shall be provided on the extent the intended beneficiaries
are reached. Towards this end, a scorecard will be generated on the NSPP. This will be used as
input into the overall National Social Protection Report and also provide a detailed evidence of
performance.

The scorecard shall be applied to each of the policy measures described in Chapter 4. The
information collected through the scorecard will support performance-based monitoring,
budgeting, planning and coordination among implementing MDAs.

Outcome KPIs measure the progress towards the national development objectives in the different
strategic sectors in line with the New Development Plan being developed. The structure of the
scorecard caters for short and medium -term targets, hence periodic evaluation will be undertaken
to provide an understanding of the performance of the various policies and interventions.

5.9 Reviews
The NSPP shall be reviewed every 10 year to ensure it is responsive to emerging issues and
challenges, and to address fundamental challenges identified in the M&E process. The NSPC shall
facilitate the review of the Policy. All key stakeholders shall be involved in the review to ensure
that their views, perspectives, and concerns are collected and considered in the process.

5.10 Risks to the implementation of the NSSP

5.10.1 Socioeconomic and Demographic Factors

The high youth population and high dependency ratio combine with high rates of unemployment
and slow economic growth to create conditions that exacerbate the risk of children and youth
suffering from deprivations and poverty thus increasing their vulnerability. Further, poverty is
widespread and deepening in Nigeria with COVID-19 shocks projected to push an additional 5
Million Nigerians below the poverty line. These trends have far reaching implications on the
vulnerability and risk exposure of Nigerians at individual and household levels. These implications
also pose risks to the success of the programmes of the NSPP.

5.10.2 Funding
Funding constitutes a major risk for the implementation of the NSPP. Without a doubt, more
funding is needed to expand social protection coverage, but resources for funding are limited.
Innovative means must be designed to provide resources to fund social protection programmes.

5.10.3 Insecurity
Increasing insecurity across all parts of Nigeria constitute a significant risk to the implementation
of the NSPP. Insecurity and the attendant displacement of people makes targeting of beneficiaries

39
cumbersome. Also, increasing insecurity increases the risk and vulnerability of Nigerians and thus
increases the social protection burden.

5.10.4 Sustainability issues

The NSPP is yet to be gazetted by the National Assembly. This raises concerns about the
sustainability of the NSPP in the case of a regime change or other changes in the political space.

5.11 Mitigation strategies

To mitigate these risks, it is recommended that the NSPP be quickly assented to by the National
Assembly. Further, the National Single Register should be expanded to accommodate the newly
displaced in an around insecurity hotpoints. Further, digitization of the programmes of the NSSP
will ensure that the poor and vulnerable can be reached directly wherever they may be in the case
of displacements.

5.12 Financing the Policy

Cost of the 3/5-year action plan of the policy
This is going to be contained in the costed work plan to accompany this policy document.

5.12.1 Potential Funding Source (Resource mobilisation) Including Existent Fiscal Space
Novel sources of funding should be explored for the NSSP programmes. One suggestion is setting
aside a percentage of the taxes from Information and Communication Technology (ICT)
companies to fund the NSPP. Another suggestion to ensure sustainable financing is to agree on a
proportion of the GDP that will be set aside for SP implementation, where the money is to be
sourced should also be clearly stated. Policy makers must be convinced that it is important to invest
on Social Protection.
Alternative financing for social protection can be sourced through the reallocation of public
expenditure, designating a proportion of taxes on luxury items for social protection, using fiscal
and foreign exchange reserves and adopting a more accommodative macroeconomic framework.
There is also the need to establish a social protection trust fund to collect a proportion of corporate
profits.
More advocacy is required to mobilize and galvanize CSR efforts of the Private Sector towards
Social Protection in Nigeria. Synergies should be created between the Private Sector and the
Agencies of Government responsible for administering Social Protection.

5.13 Effectiveness of Social Protection

While current social protection interventions have targeted and benefited the “active poor” or the
“working poor”, it has made little impact on a large number of poor (and perhaps growing number)
population. The impact of having an “un-reached” excluded intended beneficiary is such that these
groups will forever be trapped in the inter-generational cycle of poverty which will jeopardize the
achievements of national poverty reduction and development goals.

40
Therefore social protection initiatives to improve and enhance access to basic social services will
be highly dependent on the effectiveness of the achievement of sectoral policies.

CHAPTER SIX
CONCLUSION
Social protection is a veritable tool for reducing poverty and vulnerability in Nigeria. In order to
meet up with the aspirations of the current administration to lift 100 million Nigerians out of
poverty in the next ten years, implementation of social protection programmes will play a key role
in achieving this.

Effective programme implementation will depend on sound policy. This policy document
presented the framework and guiding principles for social protection programmes in Nigeria. The
policy provided the context for social protection programmes in Nigeria, described the poverty
and vulnerability profile of Nigeria and discussed the emerging issues that will shape social
protection programmes implementation in Nigeria. The document further outlined policy
measures, implementation and coordination mechanisms as well as innovative funding sources for
social protection programmes.

In conclusion, poverty and vulnerability in Nigeria will be greatly reduced if the measures outlined
in this policy document are followed.

41