An overview of power sector laws, policies and reforms in Nigeria

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AN OVERVIEW OF POWER SECTOR LAWS, POLICIES AND REFORMS IN NIGERIA
BY
Zubairu Gatugel USMAN, Serkan ABBASOGLU
Department of Energy Systems Engineering, Cyprus International University, Nicosia, Cyprus.
Abstract- This paper is concerned with Nigeria’s
energy sector challenges and reforms put forward
by the Government to tackle the challenges. Laws
and policies aimed at addressing the various
energy generation, transmission and distribution
challenges bedevilling the energy sector are stated
and explained. Various strategies were employed
by the Government which include encouraging
private sector participation, diversification of the
energy generation sources and promoting energy
efficiency for sustainable development. The
Government has spent billions of dollars since
2003 in the construction of new power generation
facilities, transmission lines and distribution
centres to boost the power supply and at the same
time initiated the process of selling off the existing
facilities to private investors. Also, the Energy
Commission of Nigeria embarked on programs
and strategies aimed at boosting energy
generation from renewable sources. On the other
hand, the commission focus on the need for energy
efficiency on both demand and supply side to
reduce greenhouse gas emissions and viability of
energy systems. The renewable energy sector was
boosted by the implementation of various
renewable energy generation projects such as the
Lekki biogas plant, the Katsina wind farm and
the establishment of renewable energy research
and development centres across the country.
Keywords: Electrical energy laws; Energy policies
and reforms; Energy potentials; Nigeria.
I. INTRODUCTION
Nigeria is endowed with abundant renewable and
non-renewable energy resources like solar, wind,
biomass, crude oil, coal, natural gas and bitumen.
Manuscript submitted March 25, 2014 and accepted June 06, 2014.
ISSN: 2221-4267
Paper code: ATE-80414027
Asian Transaction on Engineering vol.4, June 2014.
The two authors are with the Department of Energy Systems
Engineering, Cyprus International University, Haspolat - Nicosia,
Mersin 10 Turkey.
Z. G. Usman (usman.gatugel@yahoo.com)
S. Abbasoglu (sabbas@ciu.edu.tr)
The country’s oil production is currently 2.5 million
bbl /day but less than 17% of total oil produced is
allocated to the country’s three oil refineries with
total installed capacity of 445,000 bpd [1].
The International Monetary Fund (IMF) estimated
that revenue from crude oil and natural gas export
accounted for 96% of the country’s total export
revenue in 2012 [2].
This means that only a fraction of Nigeria’s total oil
and gas production is made available for domestic
use, making the majority of the country’s population
who cannot afford to buy generators to rely heavily
on wood fuel for their energy needs.
The absence of reliable energy supply rendered the
rural populace socially backward and their economic
potentials untapped. The country’s proven energy
reserves are shown in the table below.
Table 1. Nigeria's energy reserves and potentials
(2005) [3].
Resources type Reserves
Crude oil
40.0 billion barrels
Natural gas 5.2 trillion Nm3
Coal and lignite 2.7 billion tonne
Tar sands 31 billion barrels of oil
equivalent
Hydropower (large
scale)
10,000 MW
Hydropower (small
scale)
734 MW
Wood fuel 43.1billion tonnes/year
Animal waste 61 million tonnes/year
Crop residue 8.3 million tonnes/year
Solar radiation 3.5 to 7.0 Kwh/m2/day
Wind 2 to 5 m/s (annual
average) at 10m height
Nigeria is the largest oil producer in Africa and holds
the largest natural gas reserves on the continent. It
was the world's fourth leading exporter of liquefied
natural gas (LNG) in 2012.
However, its gas-dominated electricity grid still
experiences frequent collapse due to inadequate gas
supply, obsolete infrastructures and inconsistent
Government policies.
Despite the availability of these resources, majority
of Nigerians continue to experience epileptic power

supply. An estimated 62% of Nigerians rely on wood
fuel for their entire energy needs resulting in massive
deforestation [3] [4]. This trend is worsening in rural
areas due to the communities having no access to
electricity and increase in poverty. The National
Electricity Survey carried out in 2006 indicated that
majority of the southern zones are connected to the
national grid. More than 60% of households in the
South-East were connected to the grid while South-
South’s figure was 61.2% and South-West’s 78.1%.
The households in the North-East had the least access
to electricity among the six zones in the country. The
study further revealed that 38.1% of the rural
populace, 12.1% of the rural poor and 29.8% of the
urban poor in Nigeria had access to electricity.
The epileptic nature of the country’s electricity
propelled the rich to rely heavily on generators which
caused the use of petroleum products to increase by
75% in 2012, but the less privileged had no option
rather than wood fuel for their energy needs [5].
The country’s electricity consumption per capita in
2012 was 12 watts/person which is very low
compared with most countries in the world like
Brazil with 268 watts/person, Spain 645 watts/person
and South Korea 1,038 watts/person in the same year
[6]. The heavy reliance on wood fuel for energy
makes Nigeria a country with high energy intensity
of 0.36 koe/$5p compared to Turkey with 0.11
koe/$5p and Egypt 0.18 koe/$5p [7].
The US Energy Information and Administration
estimated that traditional biomass and waste
accounted for 83% of Nigeria’s total primary energy
consumption in 2011.
Fig. 1. Total primary energy consumption in Nigeria,
2011[2].
II. LITERATURE REVIEW
According to Ladan (2009), Nigeria is blessed with
abundant renewable energy sources like wind, solar,
biomass, geothermal and hydro but the country
continue to experience epileptic power supply. Over
60% of Nigerians rely on wood fuel for their entire
energy needs resulting in massive deforestation.
Babanyara and Saleh (2010) indicate that the country
lost an average of 410,000 hectares of forest between
1990 and 2000 which culminated to an average
deforestation rate of about 2.4% per annum.
Ikuponisi (2004) argues that based on Nigeria’s land
area of 924 x 103 km2 with an average solar radiation
of 5.535 kWh/m2/day, the country can generate
power from solar energy that is 27 times the total
conventional power generation capacity in the
country.
Onakoya et al. (2013) points out that the
commercialization and privatization decree No. 25 of
1988 which was aimed at addressing the acute power
shortages at the time did not yield the desired result
due to the inability of the government to implement
the refroms. As a result, majority of Nigeria’s power
plants are working below 60% of their total installed
capacity.
According to Aliyu et al. (2013), Low power factor
and high transmission and distribution losses
estimated at 28% are main factors causing large scale
blackouts across the country. The problems
bedevilling the power sector in Nigeria stem from
decades of neglect, mismanagement and inadequate
capacity improvement.
Most of the authors focused their attention on the
challenges and potentials of power generation in
Nigeria with limited details on the recent policies
adopted by the Government to contain the crisis.
In contrast, this study discusses the various
challenges, reforms and policies recently adopted and
are being implemented by the Government to
improve the power sector performance in Nigeria.
III. POWER SECTOR POLICIES AND REFORMS
The history of electricity in Nigeria dated back to
1898 when the first generating plant with a capacity
of 60KW was installed in Lagos. In order to
effectively coordinate the electricity development,
the then-colonial government passed the ECN statute
No. 15 of 1950 to establish the Electricity
Corporation of Nigeria (ECN). By Decree No. 24 of
1st April 1972, The ECN and the Niger Dam
Authority (NDA) were merged to form the National
Electric Power Authority (NEPA) to enable a more

effective management of the power sector in the
country. In 1988, the Commercialization and
Privatization Decree No. 25 was aimed at partial
commercialization of power to address the acute
power shortages. The reform did not produce the
desired effect, since the country’s power plants with
total installed capacity of over 6,000MW as at 1998
have been operating below 60% of their total
installed capacity [8].
Majority of the Government owned power plants in
the country are performing below their installed
capacity in 2010 as shown in figure 2. This is partly
caused by lack of maintenance and underfunding by
the Government [9] [10].
Table 2 Government owned power plants in Nigeria
[9]
Power Plant Installed capacity (MW)
Kainji 760
Shiroro 600
Jebba 540
Egbin 1,320
Sapele 1,020
Afam (IV – V) 726
Ughelli 900
Omotosho I 304
Olorunsogo I 304
Calabar 6.6
Orji river 10
TOTAL 6,490.60
Fig. 2 Performance of federal Government’s power
plants.
There are independent power producers (IPPs) and
state Governments currently generating electricity in
the country as shown in table 3.
Table 3 Existing thermal power plants built by state
governments and the private sector [9].
Power Plant Installed capacity (MW)
AES 224
Shell - Afam VI 650
Agip - Okpai 480
*ASG – Ibom power 155
*RSG – Trans Amadi 100
*RSG - Omoku 150
Total 1,759
*Power plants owned by state Governments
Fig. 3 Performance of IPPs in Nigeria[9]
The enormity of the problems in the power sector
propelled the Government to form the Electric Power
Implementation Committee (EPIC) in year 2000.
This Committee prepared the National Electric
Power Policy (NEPP) in 2001 and the National
Energy Policy in 2003 with the overall theme of
optimal utilization of the nation’s energy resources;
from fossil fuels and renewable sources, for
sustainable development with the active participation
of the private sector. The policy articulated the
following decisions [11]:
(a) Extensive crude oil and natural gas
exploration and development shall be
pursued,
(b) Extensive development of electric power to
make reliable electricity available to 75% of
the population by 2020 and to broaden the
energy generation options.
The committee established the National Independent
Power Projects (NIPP) in 2004 as a fast-tract
government funded initiative to stabilize the power
sector and drafted the Electric Power Sector Reform

Act (EPSRA) 2005. The EPSRA proposed the
incorporation of an initial holding company called
Power Holding Company of Nigeria (PHCN) to
assume assets and liabilities of NEPA. Between 2004
and 2007 contracts worth $13.28 Billion for the
construction of power plants, associated transmission
lines and substations were awarded under the NIPP
[12]. Majority of the power plants conceived in 2004
mentioned below, are sited in the oil producing states
of the Niger delta to help stem gas flaring by the oil
companies [13].
Table 2. Power stations funded through the NIPP in
2004 [12] [13].
S/n Power plant Capacity
1 Calabar Power Station 561 MW
2 Ihovbor Power Station 450 MW
3 Sapele Power Station 450 MW
4 Egbema Power Station 338 MW
5 Gbarain Power Station 225 MW
6 Omoku Power Station 250 MW
7 Alaoji Power Station 1,074 MW
8 Geregu II Power Station 434 MW
9 Omotosho II Power Station 500 MW
10 Olorunsogo II Power Station 750 MW
Four out of the ten power stations listed in table 2,
have recently been commissioned but some of them
are still not operating at full capacity. Geregu II with
an installed capacity of 434 MW, is only generating
144 MW and also Olurunsogo II with installed
capacity of 750 MW is currently generating 562.5
MW.
In late 2007, two more hydroelectric power projects
were initiated by ministry of power. They are the
Zungeru Hydroelectric Power Project with a capacity
of 950 MW and Mambila Hydroelectric Power
Project with a capacity of 2600 MW.
The EPSR Act, 2005 has 3 components [13] [14]:
1) The creation of the Power Holding
Company of Nigeria (PHCN) to assume the
assets, liabilities and employees of NEPA.
2) The breaking up of PHCN’s three hydro and
seven thermal generating stations, a radial
transmission grid (330 kV and 132 kV); and
eleven distribution companies (33kV and
below) and the partial transfer thereto of the
assets, liabilities and staff of PHCN to these
companies and preparing them for
privatisation
3) The establishment of the Nigerian
Electricity Regulatory Commission (NERC)
The absence of a cost-reflective tariff is one of the
reasons for the failure of the power sector to serve
Nigerians in the past three decades. Fully efficient
cost recovery is mandated by S.76, EPSR Act, 2005.
The NERC drafted the Multi Year Tariff Order
(MYTO) which envisages an efficient tariff system
that gives the consumer right to a reliable electric
service and transparent billing at the same time
ensuring that the investor has reasonable return on
investments. Grid metering at various identified
points in the transmission grid shall be installed,
tested and commissioned [15] [16].
Between August 2006 and June 2007, twenty
licenses were issued to Independent Power Producers
(IPPs) in different parts of the country. Altogether,
they are expected to add about 8,000 MW of
electricity to the national grid when they are
completed.
The Government completed the privatisation of 11
distribution and the generation companies and
handed them over to their respective buyers in phases
between November 2013 and February 2014. As
stipulated in the EPSR Act, 2005 both the generation
and distribution companies were sold to private
investors and the Nigeria Bulk Electricity Trading
Plc. (NBET) was established as part of the roadmap
for Power Sector Reform of August 2010 to act as a
broker between the independent power producers
(IPPs) and the distribution companies. The NBET’s
role is to purchase power from the IPPs and resale it
to the distribution companies [17].
As part of its plan to improve the power supply, the
Government established the National Atomic Energy
Commission (NAEC) in July 2006, which upon its
inception drafted the country’s nuclear roadmap. The
roadmap is a three-phase framework which aims to
generate 1,000 MW of electricity through nuclear
power by 2017 and to increase this to 4,000 MW by
2027 [3] [13] [14].
IV. RENEWABLE ENERGY POTENTIALS IN
NIGERIA
Nigeria has high potential to harness energy from
renewable sources since it lies within the tropic of
Cancer where there is abundance of sunlight. The
country’s annual average daily solar radiation is
about 5.535 kW/m2/day, varying between 3.5
kW/m2/day at the coastal areas in the south and 7.0
kW/m2/day at the northern boundary [18] [19]. The
country receives about 4.851x 1012 kWh of energy
per day from the sun. This is equivalent to about
1.082 million tons of oil equivalent (mtoe) per day,
and is about 4 thousand times the current daily crude

oil production and 13 thousand times that of natural
gas daily production based on energy unit. Based on
the country’s land area of 924 x 103 km2 and an
average of 5.535 kWh/m2/day, Nigeria has an
average of 1.804 x 1015 kWh of incident solar energy
per annum. This annual solar energy insolation value
is about 27 times the country’s total conventional
energy resources in energy units.
Also wind energy is available at an annual average
speed of 2.0 m/s near the coast to 5.0 m/s at the
height of 10m in northern parts of the country.
Nigeria possesses enormous potential to utilize
energy from the wind and the sun for electricity
generation. The potential for bioenergy development
is equally high because roughly 74 million ha of
Nigeria’s total land (98 million ha) is arable and
about 60% of the arable land is lying idle [3] [20]
[21] [22] [23].
V. ENERGY EFFICIENCY AND RENEWABLE
ENERGY POLICIES
The national energy policy of 2003 came up with the
Renewable Energy Master Plan for Nigeria (REMP)
in 2006 [11] [13] [14]. The REMP articulates:
 Nigeria’s vision for achieving sustainable
development,
 A road map for renewable energy to help
achieve this vision;
The plan recognized the need to strengthen and
diversify the country’s energy sources and encourage
the participation of the private sector in energy
production and supply. The ECN which was
established by Act No. 62 of 1979 and amended in
1988 and 1989 was consequently reinvigorated with
a statutory mandate for strategic planning and co-
ordination of national policies in the field of energy
in all its ramifications.
By this mandate, the Energy Commission of Nigeria
is the apex government organ empowered to carry
out overall energy sector planning & policy
implementation, promote the diversification of the
energy resources through the development and
optimal utilization of all the sources, including the
introduction of new and alternative energy resources
like Solar, Wind, Biomass and Nuclear Energy [18].
Based on recommendations from energy
commission, the Government established national
inventories to estimate the annual emissions of
greenhouse gases in the country for every 3 years
starting from 1988. The estimates indicated that CO2
emissions have been dominated by the energy sector.
Gas-flaring, electricity generation and transport
sectors are the most significant ones. Nigeria’s CO2
emission is the highest in Africa, contributing 3% of
global emission while the whole of Africa contributes
only 4% [24].
Energy Commission of Nigeria established five
energy research centres across the country to carry
out research on renewable energy. The centres are
[3]:
1) The University of Nigeria Nsukka National
Centre, responsible for research in
renewable energy and solar.
2) The Usman Danfodiyo University Sokoto
Energy Research Centre, responsible for
research in renewable energy and solar.
3) The University of Lagos, National Centre
for Energy Efficiency and Conservation
4) The University of Ilorin National Centre for
Hydropower Research and Development
5) Abubakar Tafawa Balewa University
Bauchi Centre for Petroleum Research and
Development.
The present total contribution of renewable energy to
the energy mix as a result of concerted efforts by the
energy commission in collaboration with the research
centres grew up to about 35 MW composed of 30
MW small hydropower and 5 MW solar PV which is
still relatively low compared to what is obtained in
most developing countries around the world. But the
Government has several targets it aims to achieve by
2025: Wind: 40 MW, Solar PV: 500 MW, Biomass-
based power plants: 400 MW, Small-hydro: 2, 000
MW [24].
Also the energy commission has been collaborating
with several donor agencies, multinational
companies, environmental agencies, ministries and
some non-governmental organisations to raise
awareness on energy efficiency and renewable
energy systems in Nigeria. Some of these projects are
as follows:
A. Urban mass transit
The phenomenon of rapid urbanization in Nigeria's
big cities creates a mobility problem for the cities'
residents. Nigeria’s vehicle importation has been
increasing at the rate of 15 to 20% annually from
2004 and increased to 45% in 2012 [25]. To improve
the capacity to manage the transport sector in the
Lagos metropolitan area and to enhance efficiency
and effectiveness of the public transport network in
Lagos, the Lagos State Government got funding from
the world bank and some donor organisations to

provide mass transit buses on special lanes along the
major streets in the City known as Bus Rapid Transit
"lite" systems, commonly referred to as "BRT-lite”.
The system provide better and more sustainable
travel options at a low cost for commuters around the
city ferrying around 20,000 people per day. It has
been very successful and had contributed to a
considerable reduction in transit time, traffic and
GHG emissions [26].
B. Pilot campaign for energy efficiency lamps
The ECN in collaboration with United Nations
Development Program (UNDP) and the Federal
Ministry of Environment launched a grand campaign
for energy efficient lamps. They distributed one
million Compact Fluorescent Lamps (CFLs) to
households, businesses and public service buildings
leading to peak reduction of 38 MW of electricity in
Abuja and Lagos. The project also launched a unique
end-use metering campaign across Nigeria to better
assess the current level of efficiency of appliances
used in the country [24].
C. Energy generation from waste-materials
The locally made biogas plant is constructed in Lekki
Local Council Development Area of Lagos state with
funding from the Federal Ministry of Environment
and United Nations Development Programme. The
plant converts water hyacinth and other local organic
waste to produce fertiliser and at least 10KVA
electrical energy. The main objective of the project is
to establish a locally based waste management
strategy in the area to reduce waste, generate energy
and improve livelihoods [27].
D. 10MW Katsina wind farm project
In line with the Government’s policy of promoting
renewable energy, a wind map for the entire country
has been developed, indicating numerous viable sites
for the deployment of wind turbines for power
generation. A contract for the construction of a
10MW Wind Farm at Lamban Rimi Village in
Katsina state was awarded by the Federal
Government in 2009. The configuration consists of
37 x 275 kW wind turbine generators mounted at a
height of 55m on an inclinable tower. The project has
been fully funded until now and its implementation
has progressed very smoothly [28].
As at October 2013, peak demand forecast by the
federal ministry of power stood at 12,800 MW
whereas the total power Generated fed into the grid
was 3,418.60 MW. Nonetheless, the Government
aims to generate about 10,000 MW of electricity by
2015.
VI. CONCLUSION
Nigeria has been experiencing acute power shortages
in the last three decades despite having enormous
energy resources. It is estimated that only 38% of the
country’s population have access to electricity
leaving the remaining 62% to rely heavily on wood
fuel for their daily energy needs resulting in massive
deforestation. The country’s population more than
doubled within the last three decades, from 75
million to 173 million. But the amount of power
generated by all the country’s power generation
facilities made up of 22% hydro and 78% thermal
power plants with total capacity of 6,976 MW is still
less than 4,000 MW. This can barely serve even 10%
of the country’s growing population which is
estimated to reach 300 million by 2030. Nigeria’s
electricity consumption per capita in 2012 was 12
watts/person which is very low compared with most
countries in the world like Brazil with 268
watts/person, Spain 645 watts/person and South
Korea 1038 watts/person in the same year. The heavy
reliance on wood fuel for energy makes Nigeria a
country with high energy intensity of 0.36 koe/$5p
compared to Turkey with 0.11 koe/$5p and Egypt
0.18 koe/$5p. Although the Government took some
steps to address the problems in the power sector
such as; the enactment of the energy sector law of
2005 which resulted in the establishment of the
Nigeria Electricity Regulatory Commission, the
Nigeria Bulk Electricity Trading Plc and the
privatisation of the generation and distribution
companies owned by the Government. These steps
taken by the Government have positive impact on the
entire sector. But the desired goals can only be
achieved if renewable energy generation is given
more emphasis as the country is endowed with
abundant renewable energy sources. For instance; the
country’s average annual solar radiation of 5.535
kWh/m2/day if harnessed properly, can generate 27
times the country’s total energy generated by the
conventional energy sources. Renewable energy
sources like; solar, wind and biomass should be
harnessed to compliment the conventional energy
sources in power generation to help meeting the
massive electricity demand in the country.
Further studies should be carried out to evaluate the
performance of the power sector after the completion
of the privatization process. This will shed more light

on which of the policies and reforms implemented
are yielding the desired effects.
ACKNOWLEDGMENT
The Authors would like to thank Dr. Neyre Tekbiyik
Ersoy for her time and academic support in the
preparation of this paper. Also Energy efficiency
policy should be strengthened and applied to both
demand and supply sides.
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Serkan ABBASOGLU: The author received B.Sc.
and M.Sc. degrees on Mechanical Engineering from
Yildiz Technical University, Turkey in 1997 and
1999, respectively. He received his Ph.D. degree on
Mechanical Engineering form Eastern Mediterranean
University, Cyprus at 2006. He worked as invited
researcher in Freiberg Technical University,
Germany between 2001 and 2002 with DAAD
scholarship.
He was assigned to Assistant Prof. position in 2007
and to Associate Prof. position in 2011 by Cyprus
International University (CIU). He is head of Energy
Systems Engineering Department and also
Coordinator of Rector’s Office in CIU.
He is working on Energy Management, Renewable
Energy and Energy Efficiency topics since 2004. He
has 6 SCI indexed papers and more than ten other
international publications in these fields.
Assoc. Prof. Dr. Abbasoglu, is an acredited
Energy auditor by Association of Energy Engineers,
an active member of Renewable Energy Council of
Northern Cyprus, also members of Association of
Energy Professionals in Northern Cyprus, Chamber
of Mechanical Engineers, and Energy Efficiency
Agency of Northern Cyprus.
Zubairu Gatugel USMAN: The author received his
B.Eng. degree in Electrical and Electronics
Engineering from the Federal University of
Technology, Yola-Nigeria in 2005. He is now doing
his MSc. Energy Systems Engineering in Cyprus
International University, Nicosia- North Cyprus. He
worked with Energovod Engineering Limited from
2006 - 2010 as a project Engineer in the construction
of Alaoji-Calabar 330KV double circuit transmission
line and Afam-Port Harcourt 330KV double circuit
transmission line. He works as a part time consultant
in electrical and power systems with mutual
infrastructure limited. The author joined Kaduna
Polytechnic in August 2010 as a lecturer in the
department of Computer Engineering. He is a
registered Engineer with the Council for the
Regulation of Engineering in Nigeria (COREN) and
a member of the Nigeria Society of Engineers (NSE).