Project Finance in Nigeria: Overview | Practical Law

Project Finance in Nigeria: Overview | Practical Law

A Q&A guide to project finance in Nigeria.

Project Finance in Nigeria: Overview

Practical Law Country Q&A 2-635-7375 (Approx. 23 pages)

Project Finance in Nigeria: Overview

by Chinedu Kema, Partner, Adeleke Alao, Senior Associate, Ibiwunmi Adeyeri, Senior Counsel, and Adeniran Segun, Associate CounselAdepetun, Caxton-Martins, Agbor & Segun
Law stated as at 01 Dec 2022Nigeria
A Q&A guide to project finance in Nigeria.
This Q&A is part of the global guide to project finance. Areas covered include: market overview, regulatory framework and regulatory considerations; methods for structuring the financing; corporate vehicles; forms of security; contractual protections; insurance arrangements; typical risks; use of PPPs or PFIs; social, ethical and environmental issues; ownership rights to natural resources and minerals; foreign investment; choice of law and jurisdiction; and recent developments and reform.

Market Overview

1. What types of projects make use of project financing in your jurisdiction? What have been the most significant project finance deals in the past 12 months?

Types of Projects

Project financing is predominantly used to finance activities in the energy sector and in infrastructure. In the energy sector, project finance is typically used to fund the development of new projects, capital and operating expenditures and expansion projects. In terms of infrastructure, project finance is employed in financing the construction and operation of power projects, concession arrangements for building and maintaining tolled roads (typically under a build-operate-transfer (BOT) or build-own-operate-transfer (BOOT) model) or for the construction and operation of medical or health facilities.
For project financing in infrastructure, this Q&A will focus on the project financing of a utility scale power project. For project financing in the energy sector, this Q&A will focus on the project financing for petroleum assets in Nigeria.

Significant Deals

There have been some major project finance deals launched in Nigeria recently. One notable project is the 614-kilometre Ajaokuta-Kaduna-Kano natural gas pipeline being developed by the Nigerian National Petroleum Company Limited (NNPC Limited) under a public-private partnership (PPP) structure with foreign financiers. Also, an integrated refinery and petrochemical complex is being constructed by Dangote Group in the Lekki Free Zone under a project finance arrangement. The integrated refinery and petrochemical complex is designed to refine at a capacity of up to 650,000 barrels of crude per day.

Regulatory Framework

2. What regulatory framework governs project finance in your jurisdiction?

General Laws

There are no specific laws governing project finance transactions in Nigeria. In general, project finance transactions are governed by the laws of contract, case law and company law. Fiscal legislation (relating to stamp duty on secured transactions), property law (applicable to the creation of mortgages on land, one of the most preferred security types) and insolvency legislation (applicable to bankruptcy and insolvency) also apply to project finance transactions in Nigeria. Laws governing the specific sector in which a project finance transaction is being executed also apply.

Regulatory Authorities

There are no specific government agencies tasked with regulating project finance transactions in Nigeria. However, there are certain federal and state government agencies that oversee infrastructure projects (although these agencies do not necessarily oversee project financing specifically), for example the Infrastructure Concession Regulatory Commission oversees PPP projects by the Federal Government of Nigeria.

Other Relevant Domestic Laws

The following laws and legal instruments are typically applicable to project finance transactions in Nigeria (this list is not exhaustive):
  • Infrastructure Concession Regulatory Commission (establishment) Act 2005. This law deals with private sector participation in federal infrastructure.
  • Public Procurement Act 2007. This law deals with monitoring and oversight of public procurement in Nigeria.
  • Companies and Allied Matters Act 2020. This is the most authoritative law relating to companies in Nigeria. It regulates the affairs and dealings of assets of companies generally.
  • Stamp Duties Act, Cap S8, Laws of the Federation of Nigeria 2004 (as amended). This is the primary fiscal instrument in relation to the perfection of security in Nigeria.
  • Conveyancing and Law of Property Act of 1881. This is a regional land law and regulates dealings in land in the regions.
  • Property and Conveyancing Law of 1959 (PCL). This is also a regional land law and regulates dealings in land in the regions.
  • Land Use Act, Cap L5, Laws of the Federation of Nigeria 2004. This is the most authoritative law relating to land in Nigeria. It regulates dealings in land and applies to securities on project sites.
  • Mortgage and Property Law 2010. This is a regional land law. It is only applicable to land transactions in Lagos State.
  • Registration of Titles Law. This is a regional land law. It is only applicable to land transactions in Lagos State.
  • Foreign Exchange (Monitoring and Miscellaneous Provisions) Act, Cap F34, LFN 2004. This is the most authoritative law relating to dealings in foreign currency. It applies to international project finance transactions or transactions denominated in foreign currency generally.
  • Secured Transactions in Movable Assets Act 2017. This is a piece of a consolidated legislation providing for secured transactions, as well as the registration and regulation of security interests in movable assets and related matters.

International Treaties

Double taxation treaties (DTTs) will affect the incidence of tax arising in project finance transactions in Nigeria where a transacting party is from a double taxation treaty country. Nigeria currently has DTTs with the following countries: Italy (Ari and Shipping Agreements only), United Kingdom, Belgium, Pakistan, Czech Republic, Slovakia, France, the Netherlands, Romania, Canada, South Africa, China, Philippines, Sweden, Spain, and Singapore.

Regulatory Considerations

3. Are government approvals required before financing a project? Are fees typically paid for such approval? Are there any other relevant considerations?
No government approvals are needed before procuring project finance for infrastructure financing of a utility scale power project. Also, no government approvals are needed before procuring a reversed-based lending (RBL) project finance for financing upstream transactions. However, regulatory approvals will be required for the underlying projects (for example, licences will be needed from the relevant regulatory agencies for the development of a utility scale power plant in Nigeria).
Generally, both due diligence and the relevant legal and technical assessments should be carried out before commencing a specific project, to ascertain the existence and possible adverse effects of any encumbrance on the project or project assets.
The final investment decision to proceed with a project financing is largely driven or affected by the due diligence analysis carried out before the project. Also, while obtaining project licences and permits is not specifically required before embarking on project finance, it is nevertheless fundamental to have the necessary permits and licences in place before seeking project financing. This is because the duration, scope and validity of the project (each of which is critical to structuring a project financing) are determined by the requisite licences and permits.
In project financing in the upstream petroleum sector, the security package for the transaction must be carefully structured to avoid creating security that transfers legal interests in the upstream assets in the first instance. Under Nigerian law, ownership of upstream petroleum is vested permanently with the federal government and therefore government consent must be obtained to transfer legal title in upstream assets. Consequently, the security created over an RBL project financing must be structured so that it does not transfer legal interest or title over the project assets to the financiers at the onset (unless in the case of enforcement).
In practice, the overall security package is structured around the banking case assets to secure the lenders' debt service requirements while not breaching the statutory consent requirements. The security used includes:
  • Cash flow security.
  • Charges over the assets.
  • Liens over the project accounts.
Key considerations in project finance in power projects (which are not mutually exclusive) are the:
  • Project duration (as licensed).
  • Tariffing in Nigeria's power sector.
Capital recovery in power projects is typically based over a long period of time and is primarily recovered through tariffing. Project duration is statutorily fixed as the stated period under a licence. This implies that cost recovery must be achievable within the licensed period for the project to be bankable and viable. This leads to the issue of tariffing: although the power sector has been deregulated, the tariff is still determined by regulatory instrument (albeit with consultation with stakeholders). Consequently, cash flow for determining debt service is still largely regulated and not purely market-driven. Also, the project duration in the licence is fixed (although it is possible for the licence to be renewed for another statutory term). This means that the project cost must be recoverable from the tariff charged within the fixed project duration. An unregulated market-driven tariff structure with flexible project duration would have been ideal to an investor in a utility scale power project. This is, however, not the case in independent power projects: while the project term is also statutorily fixed under the applicable licence, tariffing is purely market-driven to ensure far better returns on investment for investors.
4. Is there any requirement to file or register project documents with a regulatory authority or other government body?
There is no statutory or regulatory requirement to register project documents for infrastructure or energy project finance. However, the project documents must be stamped at the office of the Commissioner for Stamp Duties to ensure that the documents are admissible in evidence in civil proceedings, if required.
Where the project involves a security interest in a movable asset, a financing statement must be registered at the National Collateral Registry (a financing statement is a prescribed form on which information must be provided to effect registration). In addition, where the project involves the creation of a charge on the assets or undertakings of a Nigerian entity, the charge must be registered with the Corporate Affairs Commission (CAC) within 90 days of its creation.
5. Do any specific laws exist in relation to state ownership or state repatriation of assets?

State Ownership

There are generally no laws requiring the state to own an interest in a project or a project company. However, constitutionally, all lands in the states of the federation of Nigeria are vested in the governor of the state or in the Minister of the Federal Capital Territory (FCT) (in the case of the FCT, in trust for all Nigerians). The governor then grants rights of occupancy to land users (Nigerians and foreign companies).
Also, ownership of all petroleum in Nigeria is vested in the federal government. The Minister of Petroleum Resources, acting on the recommendation of the Nigerian Upstream Petroleum Regulatory Commission, then grants licences or leases to an upstream company for the exploration, prospecting and mining of petroleum. The Nigerian Government reserves the right to back into any upstream assets (typically referred to as "back-in rights"). Back-in rights are specifically codified for upstream assets (under a sole risk concession). However, the use of back-in rights is extremely rare and there are rules governing its exercise by the government. The Nigerian Government has since implemented investor-friendly policies and has entered into international treaties to secure and protect foreign investments in Nigeria.

State Repatriation of Assets

The Nigerian Investment Promotion Commission Act (NIPCA) guarantees against expropriation by precluding any government in Nigeria from nationalising or expropriating any enterprise.
The NIPCA prohibits the compulsory acquisition or transfer of the whole or part of interests held by a foreign enterprise. However, a compulsory acquisition by the federal government on the grounds of national interest or for public purpose can be carried out provided all of the following are satisfied:
  • There is payment of fair and adequate compensation.
  • There is access to the courts for the determination of the investor's interest or right and the amount of compensation to which they are entitled. An investor can resort to arbitration, including arbitration under the framework of any applicable investment treaty.
  • The compensation is payable in convertible currency.
The Constitution of the Federal Republic of Nigeria (as amended) also protects against expropriation and the Nigerian courts have severally enforced the constitutional protection.

Structuring the Financing

Main Parties

6. Who are the main parties in a project finance transaction?
For an infrastructure project financing for a utility scale independent power project (IPP), the main parties are typically the:
  • Lender(s). In a syndicated financing arrangement, the lenders are usually represented by a mandated lead arranger.
  • Facility agent. This is a lender party that administers the facility on behalf of the lenders.
  • Security agent. This also a lender party or a nominee of the lender who administers the collateral where the project financing is secured.
  • Project company. This is the primary obligor.
  • Project sponsors. These are usually the owners of the project who also stand as obligors with the project company.
  • Guarantor. In a utility scale power project, the guarantor can be the federal government or the government of the state where the IPP is located.
  • Bilateral and multilateral agencies. Bilateral and multilateral agencies can provide credit enhancements to support the project.
  • EPC contractor. This is the party that co-ordinates the design, procurement, construction, completion and delivery of the project.
  • O&M contractor. This is the party that provides ongoing operation and maintenance services.
  • Offtaker. This is the party that buys the electricity generated. In Nigeria, the Nigerian Bulk Electricity Trading plc procures power in bulk from utility scale independent power producers through power purchase agreements.
  • Feedstock supplier. This is the party that supplies the feedstock to the project. In Nigeria, most utility scale IPPs are gas-fired.
In upstream project finance, the main parties are typically the:
  • Lender(s). In a syndicated financing arrangement, the lenders are usually represented by a mandated lead arranger.
  • Facility agent. This is a lender party that administers the facility.
  • Security agent. This is also a lender party or a nominee of the lender who administers the collateral where the project financing is secured.
  • Hedging bank. This is where the loan is hedged.
  • Borrower. This is usually either the upstream company using the loan, or the entity holding the proprietary interest in the upstream asset. The borrower is usually the primary obligor.
  • Guarantor. This is usually the parent company of the upstream asset owning company.

Types of Financing

7. How are projects financed? What sources of funding are typically available?
Projects are typically debt financed using traditional project financing structures or through the issuance of bonds and debt notes by a borrower (debt notes can also be in the form of a convertible promissory note). Equity financing is also used to develop or support the development of projects. Islamic finance structures have also been used to finance projects in Nigeria.
When private sector financing is insufficient or unavailable (typically in projects with long gestation periods that are below the market benchmarked rate on investment (ROI)), depending on the size and infrastructural relevance of the project, development financing institutions (DFIs) (that is, specialised development banks or subsidiaries set up to support private sector development in developing countries) may provide additional credit support. Support can be provided by DFIs in the form of either:
  • Additional subordinated debt by the DFIs.
  • Insurance or payment guarantees from an export credit agency.
PPPs are more commonly used in infrastructure project financing. Private finance initiatives (PFIs) are also used in Nigeria. In modern infrastructural financing in Nigeria, PPPs have been adopted in quite a few projects. This is typically done by adopting a build-own-operate-transfer methodology. Information in relation to PPPs and PFIs is also provided in Question 25.
8. What are the advantages and disadvantages of using project financing to structure a construction, energy or infrastructure project?

Advantages

Advantages of project financing over other types of financing include:
  • Project financing enables project sponsors to procure new financing for a project, despite the fact that the project sponsor may already be quite leveraged (especially when the project finance is on a non-recourse or limited recourse basis).
  • Project financing enables the project sponsor to access fresh funding without the need to fund the project from its balance sheet.
  • Project financing helps the project sponsor to ring fence the assets and cash flow from a potential project to be financed from its other leveraged projects.
  • Project financing enables the project sponsors (or the project vehicle's parent company) to keep distinct accounting and keep taxation records for each project separate from other projects.
  • Project finance can be insulated from the sponsor's insolvency incident.

Disadvantages

Disadvantages of project financing over other types of financing include:
  • The project sponsor does not have a total control of the operation and management of the project.
  • Depending on the recourse structure, an otherwise viable project may not attract sufficient financial investors until it is significantly de-risked by the participation of development financing (DFIs).
  • Project finance is expensive. Capitally-intensive projects usually require the involvement of DFIs (which provide longer term facilities at lower lending rates) to take off.
  • It can take longer to reach a financial close due to complex legal documentation and contractual arrangements. DFIs often have onerous documentation and auditing requirements (which can extend the closure times as lengthy negotiations ensue).
  • Onerous compliance and reporting requirements can be placed on the obligors.

Corporate Vehicles

9. What corporate vehicles are typically used for financing projects? What are the considerations behind choosing these vehicles?
Project financing characteristically makes use of a special purpose vehicle (SPV). The SPV is typically the entity that directly operates the project.
An incorporated SPV is preferred over an unincorporated joint venture for the following reasons:
  • It has separate legal personality and can stand alone as a borrower of the debt, in place of the project sponsors.
  • Projects financed by project finance are typically projects that can be undertaken or licensed to an incorporated company and not an unincorporated joint venture.
  • It can keep its own balance sheet, separate from the other business, ventures or affiliates of the project sponsors.
  • A new SPV has no legacy liabilities.
  • The SPV provides a viable vehicle for structuring the debt and to give the lenders requisite security.
  • Equity investors can easily inject equity into the SPV to support the project development.

Documentation

10. What are the typical documents in a project finance transaction?
For most project financing transactions, documentation is divided into the:
  • Project documents. These consist of the major operating documents further to which the project is being carried out.
  • Finance documents. These consist of the loan and collateral documentation.

Finance Documents

The finance documents typically used in a utility scale power project finance include the:
  • Mandate letter/term sheet.
  • Facility agreement.
  • Common term agreement.
  • Intercreditor agreement (where there is more than one lender).
  • Accounts agreement.
  • Transfer certificate (this is issued by a lender or one of the lenders, in a syndication, in the event that a lender wishes to transfer its portion of the loan to another incoming lender).

Project Documents

For a utility scale power project finance, the main project documents are usually the:
  • Power generation licence.
  • Site lease/sale agreement (depending on the type of site acquisition).
  • Gas sale and purchase agreement (GSPA).
  • Gas transportation agreement (if applicable).
  • Power purchase agreement (PPA).
  • Grid connection agreement.
  • Ancillary service agreement with the transmission company.
  • Market participation agreement.
  • Technical support agreements.
  • Long term service agreement.
  • Technical service agreement.
  • Civil works agreement.
  • Operations and maintenance (O&M) agreement.
  • Engineering, procurement and construction (EPC) contract.
  • Put/call option agreement (if applicable).
For an upstream energy sector project financing, the main project documents are usually the:
  • Petroleum prospecting licence/mining lease.
  • Participation agreement (if applicable).
  • Production sharing contract (if applicable).
  • Joint operating agreement (JOA) (if applicable).
  • Crude handling agreements (if applicable).
  • Crude oil sale and purchase agreements.
  • Field development plan (for the upstream asset).

Corporate Documents

The most common corporate documents include the:
  • Memorandum and articles of association.
  • Shareholders' agreement.
  • Joint venture agreements.
  • Corporate approvals and resolutions.

Security Documents

The security documents typically used in a utility scale power project finance include the:
  • Composite security debenture. This creates varied security over the assets of the project and the obligors.
  • Share charge. This creates security over the shares of the project company and any other obligor company.
  • Legal mortgage. This creates mortgage security over the project site.
  • Bank account charge. This creates security over the project accounts. This can be replicated in as many jurisdictions as there are accounts deriving from the project.
  • Direct agreement. This creates a step-in right to key project documents as required (for example, the GSPA, the EPC Contract and the O&M Agreement).
  • Support and subordination agreement. If the financing is on a limited recourse or full recourse basis, lenders can require further security support from the project promoters and shareholders in the project entity under this agreement.
  • Assignment agreement. This assigns any receivable to the lenders otherwise due to the obligor under the PPA, third party contracts and insurance receivables.
  • Other agreements. This can be any other document designated as such by the lender or the facility agent (although not a security agreement in a strict sense). For example, agreements aimed at providing additional credit support.
The typical security documents used in an upstream project finance include the:
  • Composite security debenture. This creates varied security over the assets of the project and obligors.
  • Share charge. This creates security over the shares of the upstream company and any other obligor company.
  • Bank account charge. This creates security over the accounts of the borrower, given that petroleum production is typically exported and sold in the international market. This is usually replicated in as many jurisdictions as the upstream company maintains accounts from the asset.
  • Hedging agreement. This is used to hedge the prices of crude against adverse fluctuations.
  • Assignment agreement. This is used to transfer the borrower's rights to cash receivables from crude sales or insurance receivables to the lenders.
  • Other agreements. This can be any other document designated as such by the facility agent (although not a security agreement in a strict sense). For example, agreements aimed at providing additional credit support.

Security

11. What forms of security are available to protect investments? How are they created and perfected?

Forms of Security

The forms of security used to collateralise a project finance transaction include:
  • Mortgages.
  • Charges.
  • Security assignments.
  • Liens.

Perfection and Other Formalities

Security is perfected by stamping and registration. To be admissible in civil litigation, the security documents used to create the security must be stamped for duty by the Commissioner for Stamp Duties. Documents subject to stamping must be stamped within 30 days of their execution, or if executed abroad, within 30 days of them being first received in Nigeria. In practice, if two or more security documents are to be stamped based on a percentage of the loan amount, the Commissioner for Stamp Duties can, at their discretion (if all documents are for the same transaction), assess the principal security document at this percentage (although a nominal flat fee must be paid on each of the other documents).
Stamp duty is typically assessed and paid on the principal security document (the composite security debenture) at 0.375% of the amount sought to be registered, while the counterpart documents are often stamped at a nominal flat fee of NGN50 per copy. Where a loan/facility agreement is a standalone document without an accompanying security document, the rate of stamp duty payable is 0.125% of the amount to be stamped.
The security documents will attract registration fees not exceeding 0.35% of the value of the secured amount at the CAC (see Question 13).
With respect to mortgages over land, the mortgage must also be registered at the relevant land registry of the state where the property is located and consent from the state governor obtained. There are state-specific processes and fees for creation of mortgages over land.
To minimise or reduce the cost of stamping and registration of the security documents, it is not uncommon for lenders and borrowers to agree to "understamp" and secure a sum less than the full aggregate of the lenders' exposure in some cases. The security documents can then be "upstamped" in the event of default or before enforcement. The cost of upstamping is usually warehoused in a stamp duties reserve account to be controlled by the facility agent or the security agent.
As stated in Question 4, where there is a security interest for movable assets, a financing statement must be registered at the National Collateral Registry. A nominal fee is payable to register a financing statement.

Recommended Priority Searches

There are recommended searches depending on the type of collateral. For shares and other security interests over assets of a company, searches may be conducted at the CAC costing at least NG50,000. For real property, searches at the relevant state land registry where the land is situated are recommended. Costs vary by state. For movable assets, a search at the National Collateral Registry is recommended and costs NGN500. The duration of each search is not fixed and may vary subject to circumstances of each search. Generally, it is also prudent to conduct litigation/winding up searches at the relevant judicial division of the Federal High Court of Nigeria.
12. Is it possible to take third party security?
It is possible to take third party security. There are no specific risks associated with third party security. The general risks associated with taking security over the assets of the borrower, project owner or the project also apply in relation third party security. A guarantee by the third party in favour of the secured party can mitigate the project risks generally.
13. How is priority established?
Priority of debt can be subordinated by statute or contractually.
Certain debts are ranked according to statute against all other debts of a borrower (for example, outstanding taxes and wage bills of the borrower). Debts can also be statutorily preferred in the order of their registrations at the corporate registry (see Question 11).
Debts can be contractually subordinated by the lenders within the same statutory repayment ranking by using an inter-creditor agreement. Inter-creditor agreements are enforceable and they direct the treatment of the collateral provided by the borrower in the event of the borrower's insolvency. Inter-creditor arrangements are quite common in syndicated financing transactions.
14. Can an agent or trustee hold security on behalf of a group of lenders?
An agent or trustee can be appointed by a lender or group of lenders to hold security on behalf of the lenders by appointment under a security trust deed. This is usually where the lender is not in Nigeria, or in a syndicated financing, where there are multiple lenders.
15. What steps can a lender take to enforce security? Can a lender foreclose or appropriate against an asset?
A lender can enforce security in the following ways:
  • Power of sale.
  • Step-in rights.
  • Appointment of a receiver.
  • Foreclosure.
  • Enter into possession.
There are no statutory time limits for enforcing any of the above procedures. Each enforcement procedure will depend on:
  • The nature of documentation.
  • Any waivers or concessions extended by the lender.
  • The efficiency of the enforcing party.

Power of Sale

A lender can effect the sale of certain charged assets where it has been given this power expressly in the security document (for example, a lender can effect a sale of shares without recourse to the court where the lender's right of sale has arisen under the share charge and the lender has the requisite enforcement documents in its custody). If a lender does not have a power of sale under the share charge or does not have the requisite enforcement documents in its custody, it can still effect a sale of the charged shares by requesting a judicial order from the courts.

Step-in Rights

With step-in rights, the lender can step into the place of the borrower in relation to receiving the borrower's rights and receivables (and not the borrower's obligations) under an assignment agreement (for example, an assignment agreement over a borrower's bank accounts, insurance receivables, proceeds of sale and so on).

Appointment of a Receiver

The lender can realise or preserve its collateral by appointing a receiver and/or manager pursuant to powers under the security document or from the court on the application of the lender. On the appointment of a receiver and/or manager, the directors of the (borrower) company will cease to have the authority to deal with the collateral and these powers will vest in the receiver and/or manager. Receivers and/or managers have very wide statutory powers, including the power to:
  • Carry on the business or undertakings of the borrower company.
  • Sell or otherwise dispose of the charged property by public auction or private sale.
  • Do all acts and to execute in the name and on behalf of the company any deed, receipt or other document.

Foreclosure

The lender can seek an order of the court to extinguish the borrower's equity of redemption and operates to vest the legal interest in mortgaged property on the lender. Foreclosure is only enforced through judicial proceedings and applies to mortgages only.

Possession

The lender has the right to enter into and take possession of a mortgaged property. This mode of enforcing security typically applies to legal mortgages and does not ordinarily extend to an equitable mortgage. However, the power to enter into a property in default to take possession can be granted to a mortgagee contractually in the security document.
16. How does the start of bankruptcy/insolvency proceedings affect a lender's ability to enforce its security?
Under Nigerian company law, where a company enters administration or the company goes into liquidation, a transaction entered into by the company (such as a conveyance, transfer, delivery or charge over property) within three months from the commencement of winding-up proceedings can be declared invalid as a fraudulent preference.
However, a preference given to any person is not invalid unless the company which gave the preference was influenced in deciding to give it by a desire to produce undue advantage.

Direct Agreements and Contractual Protections

17. Are direct agreements, consents to assignment or other quasi-security contractual protections common?

Direct Agreements and Consents to Assignment

It is common practice for lenders to enter into direct agreement(s) or obtain consent to assignment with major project participants. Direct agreements will usually contain step-in rights specifying the events that trigger the exercise of the rights. Government entities are also usually open to executing relevant direct agreements and granting consent to assignment of contracts.

Guarantees and Other Contractual Protections

Project sponsors guarantee the performance of the borrower's obligation through corporate guarantees and sovereign guarantees for government projects. Warranties, contractual rights and receivable assignment provisions as well as other contractual protections are included in the relevant project and security documentation. For corporate guarantees, the constitutional documents of the company must permit the granting of the guarantee. For sovereign guarantees, approvals and authorisations are required from the Ministry of Finance.
Lenders are also secured by other contractual provisions which enable them to protect their investments. These include:
  • Negative covenants. These restrict the right and powers of the borrower to carry out certain activities without the lender's consent (for example, making a change to the board, declaring and paying dividends, taking new loans and so on).
  • Pre-signed enforcement documents. Lenders can (and do) require that the borrower signs documents required to enforce security in advance. This gives lenders a seamless means of enforcing security with minimal administrative hurdles.
  • Joint obligors. In contemporary project finance structures, the borrower and any guarantor or surety of the borrower tend to stand jointly as primary obligors for the loan to the lenders. Ordinarily, the lender must pursue the borrower first for the loan, and then the guarantor and sureties if the borrower fails to make good on payments. However, in this case, the lender can pursue any of the obligors for enforcement of the loan and can therefore choose the obligor with the best chance of recovering its investments (notwithstanding that the guarantor is not the borrower).
Lenders can also take assignment of the borrower's financial receivables under:
  • Power project documents (such as the power purchase agreement and the gas sale and purchase agreement).
  • Upstream sale documents (such as crude oil sale agreements).
Lenders can also take over funds in borrower's charged bank accounts.

Insurance

18. What insurance arrangements are typical for projects in your jurisdiction? How do lenders protect their interests as regards project insurance?

Commercial Risk Insurance

A utility scale power project typically requires certain commercial risk insurance in the construction and operational phases of a project. In both phases, the project company must take out insurance policies against liabilities that arise from natural disasters, damage or theft of equipment and tools, labour shortages, unexpected increase in cost of materials, accidents on the sites, shortage of building materials or feedstock (in the operational phase of the project). A utility scale power project usually requires risk insurance to cover risks from construction, transit, property damage (material damage for buildings, plants, machinery, equipment and stocks).
The insurance required in an upstream energy project is determined by the operating licence and the location of the asset(s). However, the most commonly procured insurance includes all risks cover for:
  • Commercial general liability.
  • Construction worker's compensation.
  • Comprehensive automobile's liability insurance.
  • Vessel collision liability
  • All other insurance required by regulations.

Political Risk Insurance

Political risk insurance and the support of multilateral institutions are common in financing projects in Nigeria.
19. Are lenders named as co-insured, joint insured, loss payee or additional insured?
Lenders can be named as co-insured, loss payee or additional insured under the borrower's project insurance policies. Typically, a security trustee/agent acts on behalf of the lenders. However, the foreign exchange regulations prohibit the assignment of annuities and insurance policies covering all classes of insurance to non-residents.
20. Are non-vitiation provisions common?
Insurance policies extending to project lenders are not very common. Therefore, non-vitiation clauses (for co-insured lenders) are also not common in Nigerian insurance policies, but can be requested by lenders or introduced under international reinsurance provisions.
21. How are insurance proceeds treated and applied?
Insurance proceeds can be assigned to lenders and lenders can also be named in the insurance policies as loss payee in place of the borrower (the insured).
22. Are there any restrictions on insurance over projects provided by foreign companies?
Under Nigerian insurance law generally, any insurance policy taken in relation to an insurable interest in Nigeria must first be taken out using a Nigerian insurance company unless the Nigerian insurance industry lacks the capacity to retain the risk of the portfolio. Nigerian foreign exchange regulations also prohibit the assignment of annuities and insurance policies covering all classes of insurance to non-residents. However, this does not affect the assignment of receivables.
23. Is reinsurance a feature of project financing in your jurisdiction? Are there any other aspects of project insurance that are particular to the jurisdiction?
Reinsurance is a prominent feature of project financing in Nigeria, especially where local insurance companies do not have the capacity to bear the insurable risks. The need for reinsurance is usually dependent on the project value and attendant insurable risk.

Project Risks

24. What risks are typical in your jurisdiction and how are these mitigated or allocated?
In Nigeria, project finance risks are typically:
  • Political risks. Investors are concerned about the risk of a change in government and possible change in policy direction that can adversely affect investments, especially in PPP transactions. This is mitigated by procuring sovereign guarantees from the relevant government institution sponsoring or backing the project.
  • Currency risk. There is the risk of adverse change in the exchange rate. This is typically mitigated through currency hedges.
  • Payment risk. This is typical in electric power projects where there is concern about the ability of the offtaker to meet payment obligations under the relevant power purchase agreement. This is usually mitigated by using payment guarantees. In certain instances, development financing institutions like the World Bank would also issue a partial risk guarantee.

Public Private Partnerships (PPPs)/Private Finance Initiatives (PFIs)

25. Has your jurisdiction enacted any specific legislation for enabling the use of PPPs or similar funding models such as PFIs?
There are certain federal and state laws that touch on PPPs, including the:
  • Infrastructure Concession Regulatory Commission (Establishment) Act 2005. This deals with PPPs in federal infrastructure.
  • Lagos State PPP Law 2011. This is the Lagos State PPP law.
  • Cross Rivers State Public Private Partnership Law 2010. This is the Cross Rivers State PPP law.
  • Ekiti State Public Private Partnerships Law NO. 12 OF 2011. This is the PPP law of Ekiti State.
  • Rivers State Public/Private Participation in Infrastructure Development Law. This is the Rivers State PPP law.
26. Are there any limitations on the use of PPP or PFI transactions?
PPP laws at both federal and state level are still in the process of formation, with each level of government seeking to advance their implementation. However, from a practical standpoint, the major issues arising in PPPs in Nigeria are:
  • Loan terms. The tenure of loans provided by local banks are typically not long enough to support projects with a long lead time. As a result, project sponsors seek international financing or development finance to support or refinance expensive short term local debt.
  • Multiplicity of government parties. There is no one-stop governmental agency for investors to interface with on a PPP. As a result, investors find that they deal with multiple government agencies in the same transaction.
  • Bureaucracy. There is still some level of red tape involved in the turnaround time for dealing with different facets of government establishments.
  • Non-comprehensive legal framework. The legal framework for PPPs is not developed or extensive enough to support a national approach. Different states take different approaches to PPPs and, often, there is federal participation in these projects, which further confuses the applicable legal framework.
27. How are projects involving PPPs or PFIs typically financed? How does this differ to other projects?
PPPs are mostly long-term debt financed.
The most apparent distinction between PPPs and typical debt project finance is that PPPs do not take direct security over the project assets, which are usually public infrastructure. Also, PPPs tend to have more active government involvement than other traditional project finance projects.
28. Can security be given to lenders by a concessionaire over interests in PPP or PFI projects? Does this require consents?
Security over project financing in PPPs is usually taken over the shares of the project company, cash flow or project accounts and not over the project itself. Lenders also have sovereign guarantees and direct agreement from the relevant government involved in the project, whether at state or federal level.

Social, Ethical and Environmental Issues

29. What social, ethical and environmental issues are relevant to project financing in your jurisdiction?
Nigeria has long struggled with the menace of corruption, mainly in the public sector. This has had adverse effects on doing business in Nigeria and has affected the country's risk rating by investors. However, there has been a massive surge in the country's war against corruption. New laws have been passed to combat mismanagement of public funds, bribery, corruption, money laundering and aspects of modern slavery; institutions are being revamped and there have been extensive reforms in the administration of justice to expedite the eradication of corruption. These efforts have received massive support from the international community.
Another notable initiative implemented in Nigeria in line with the strategic public sector transformation initiatives, is the Treasury Single Account Policy. This policy requires ministries and government agencies to consolidate and pay all funds due to them into a single account from which funds can be disbursed on demand subject to certain rules and procedures. This policy has significantly strengthened the efforts against bribery and corruption in Nigeria.
The Central Bank of Nigeria introduced the Nigerian Sustainable Banking Principles, which incorporate the Equator Principles into the Nigerian banking corporate governance. Some Nigerian banks are also signatories to the Equator Principles.
30. What environmental risks might be encountered? How is potential environmental liability assessed and how is liability allocated?
The environmental risks that may be encountered in exploration and development activities of an upstream asset include:
  • Atmospheric emissions.
  • Waste such as drill cuttings.
  • Drilling fluids.
  • Deck drainages.
  • Well treatment fluids.
  • Accidental oil spills.
The environmental risks that may be encountered in a utility scale power project include:
  • Noise and vibration.
  • Atmospheric emissions.
  • Wastewater discharge.
  • Air pollution.
The Environmental Impact Assessment Act (EIA Act) is the principal piece of legislation relating to environmental issues in Nigeria. The EIA Act restricts both the public and private sector from undertaking or embarking on projects without considering the effect of the project on the environment. Before embarking on any project, the project company must conduct and environmental impact assessment and provide the report to the Federal Ministry of Environment and the National Environmental Standards and Regulation Enforcement Agency, to enable them to:
  • Identify the proposed activities.
  • Perform an environmental assessment of the project while still in the planning phase.
  • Generally, the Companies and Allied Matters Act mandates directors of companies when discharging their fiduciary duties, to consider the impact of the company's operations on the environment in the community where the company carries on business operations.
  • In the petroleum industry, the recently enacted Petroleum Industry Act introduced new environmental compliance requirements for entities and projects. The recently enacted Climate Change Act aims to ensure that climate change actions are mainstreamed into national plans and programmes.
Also, some states have enacted environmental protection laws and established an environmental protection agency. Projects in those states must also comply with the state-specific environmental requirements.
The project company (licensee/lessee) must bear all the costs associated with the investigation, remediation and monitoring of the environmental impact and requirements of the project.

Natural Resources and Minerals

31. Who has title to minerals or other natural resources? Can foreign companies acquire rights to such assets?
Titles to minerals or other natural resources vest with the Federal Government of Nigeria, and any foreign company wishing to acquire rights to these assets must first be registered in Nigeria as an incorporated entity and must obtain the requisite licences and authorisations from the relevant government agencies in Nigeria. Ownership or operation over minerals/other natural resources need a licence.
32. What royalties and/or taxes are payable on the extraction of minerals or other natural resources? How is the charge calculated?
Royalties and taxes are payable to the Federal Government in relation to petroleum operations.

Taxes

  • Hydrocarbon tax and Companies Income Tax. Upstream petroleum operations are subject to Hydrocarbon tax under the Petroleum Industry Act. The Hydrocarbon Tax is chargeable at the rate of between 15% to 30%, subject to the terrain and nature of the upstream asset. In addition to the Hydrocarbon tax, upstream petroleum companies operating under the Petroleum Industry Actare also subject to companies' income tax at the rate of up to 30%.
  • Petroleum Profits Tax. Upstream petroleum companies that are not fully operating under the Petroleum Industry Act are still taxed under the Petroleum Profits Tax Act or the Deep Offshore and Inland Basin Production Sharing Contracts Act, subject to the terrain and nature of the upstream asset.

Royalties

Royalties payable by upstream petroleum companies are calculated based on the production and price of crude oil. For royalties based on production, the applicable rate is between 5% and 15% depending on the area of production. Royalties based on the price of crude oil and condensates are as follows:
  • Below USD50 per barrel: 0%.
  • At USD100 per barrel: 5%.
  • Above USD150 per barrel: 10%.
  • Between USD50 and USD100 per barrel and between USD100 and USD150 per barrel: Rate to be determined based on linear interpolation.
No royalty by price is imposed for frontier acreages.
For upstream petroleum assets that are not fully operating under the Petroleum Industry Act, the standard royalty regime is dependent on the area of production and is paid on a sliding scale ranging from 20% to 7.5%. For deep offshore assets, the royalties will be calculated on field and price bases. The field basis calculation requires a flat royalty rate of 10% of the chargeable volume of the crude oil and condensates produced from deep offshore assets, while the rate for frontier/inland basin is 7.5%. The royalty rates established by price ranges between 0 and 10% based on increases that exceed USD20 per barrel.

Niger Delta Development Commission Levy

A levy of 3% is imposed by the Niger Delta Development Commission Act 2000, chargeable on the total annual budget of any oil producing or gas processing company operating onshore and offshore of the Niger Delta area. Interests in assets located offshore in the Niger Delta will be subject to these provisions.

Host Community Development Fund

A levy of 3% if the operating expenditure of the oil and gas project company must be set aside and paid into the trust fund for the development of the host community.

Education Tax

A 2.5% education tax is imposed on the assessable profits of every company registered in Nigeria. It is a deductible item of expenditure for petroleum companies.

VAT

7.5% VAT is charged on all supplies of goods and services except goods and services expressly exempted by the Value Added Tax Act 1993 (as amended).

Nigerian Content Development Fund

Under the Nigerian Oil and Gas Industry Content Development Act 2010 (Local Content Act), 1% of every contract awarded to any operator, contractor, subcontractor, alliance partner or any other entity involved in any project, operation, activity or transaction in the upstream sector of the industry must be deducted at source and paid into the Nigerian Content Development Fund, established under the Local Content Act.
The Local Content Act also requires all operators, contractors and sub-contractors in the oil and gas industry to retain at least 10% of their total revenue from Nigerian operations in Nigerian banks.
33. Are there restrictions, fees or taxes on the export of minerals or natural resources?
Under Nigeria's export guidelines, exporters of oil or gas must ensure that, within 90 days from the date of export, all export proceeds are repatriated and credited to their export proceeds domiciliary account opened with a bank in Nigeria. The Nigerian Export Supervision Scheme (NESS) levy must also be paid.

Foreign Investment

34. Are there any incentives to encourage foreign investment in projects?

Pioneer Status

In its bid to boost financial investments in certain sectors and industries of the Nigerian economy, the Federal Government of Nigeria, in certain instances, grants tax incentives to Nigerian companies by way of a tax holiday from income tax otherwise payable on the profits accruing in, derived from, brought into or received in Nigeria.
One incentive is the grant of "pioneer status". Pioneer status is granted to a company that:
  • Carries on business in an industry that been declared a "pioneer industry" by the President of Nigeria.
  • Produces a product that has been declared a "pioneer product" anywhere in Nigeria pursuant to the provisions of the Industrial Development (Income Tax Relief) Act and relevant regulations.
Companies can apply to the President through the Minister of Trade and Investment for a pioneer certificate. If the application is successful, the President will issue the pioneer certificate to the company and the company can then enjoy pioneer status. The grant of pioneer status to Nigerian companies is intended to incentivise companies operating within the field of technological innovation or advancement to make significant capital expenditure and a reasonable level of return of profit within its formative years without having to pay income tax.

Incentives for Mining Companies

Tax incentives apply to industries regarded as "pioneer industries". Mining operations and the activities of certain elements (bitumen, lead, zinc, and iron, steel and so on) are classified as pioneer industries and are therefore subject to tax incentives.
Further to the Minerals and Mining Act, established to promote investments in the mining sector, mining companies can be given initial three-year tax holidays (among other incentives).
Tax incentives are also available through tax exemptions from the following income:
  • Profits derived from exports (provided that the proceeds from the export are repatriated to Nigeria and are used exclusively for the purchase of raw materials, plant, equipment and spare parts).
  • Profits of a company whose supplies are exclusively imported for the manufacturing of products for export (where there is a certificate of purchase of the inputs of the exportable goods given by the exporter).
  • Profits/gains of export-oriented undertakings established within an export-free (trade) zone.
  • Interest income earned by banks on loans to agricultural businesses and companies manufacturing for export.
Other tax incentives include:
  • Tax exemptions for dividends distributed by unit trusts.
  • An accelerated capital allowance of 95% in the first year in respect of replacement industrial plant and machinery.
  • An investment allowance of 15% is also granted on replacement.
  • Tax-free interest on loans to companies engaged in the fabrication of local plant and machinery provided the moratorium is not less than 18 months.
  • Capital gains tax exemption on disposal of stocks and shares where the proceeds of disposal are used to acquire shares in the same entity or other Nigerian companies within the same assessment year or the proceeds are less than NGN100 million in any 12 consecutive months.
  • 100% capital allowance for companies incurring expenditure on qualifying building, plant and equipment in respect of an approved manufacturing activity in an export processing zone.
  • Investment (dividend, rent, interest and royalty) income derived by the beneficiary from outside Nigeria and brought into Nigeria through government approved channels are tax-exempt.
  • Companies engaged in research and development activities for commercialisation are entitled to a 20% investment allowance on their qualifying capital expenditure.
  • Any company that engages wholly in the fabrication of spare parts, tools and equipment for local consumption and export is entitled to 25% investment allowance on its qualifying capital expenditure.
  • Any company purchasing a locally manufactured plant, machinery or equipment for use in its business is entitled to a 15% investment allowance.
  • Withholding tax on dividends, interest, rent and royalty due to residents from a double tax treaty country varies between 7.5% to 10% depending on the country.
  • Labelled start-ups are subject to tax incentives provided in the Nigeria Start-up Act.
35. Are there investment treaties that protect foreign investment in projects?
Nigeria has entered into various:
  • Bilateral investment treaties.
  • Treaties with investment provisions.
  • Investment-related instruments.
These international instruments (as well as the Constitution of the Federal Republic of Nigeria (as amended) and the Nigerian Investment Promotion Commission Act) are intended to attract and protect foreign investments in Nigeria.
36. What fees or taxes are payable on foreign investment in a local project company? Are payments of principal, interest or premiums on loans or debt securities held by parties in other jurisdictions subject to fees or taxes?
Withholding tax is payable on interest on loans but not on the principal. The rate of the withholding tax on interests is 10%.
There are applicable tax treaties to minimise the rate payable. The current position under Nigerian tax laws is that the withholding tax rate on interest specified in the tax laws (that is, 10%) will only apply where the rate does not exceed the maximum rate specified in the applicable tax treaty. Where the rate in the tax treaty is lower than the 10% rate specified in the tax laws, the maximum rate specified in the tax treaty applies.
In this regard, for some countries with which Nigeria has a double taxation treaty, the withholding tax rate on interest varies between 7.5% and 10%.
37. Can project companies establish and maintain foreign currency accounts, both locally and in other jurisdictions?
Nigerian companies can maintain bank accounts in local currency and internationally convertible currencies in their Nigerian domiciliary accounts.
Nigerian law allows Nigerian companies to maintain accounts abroad (subject to the laws of the applicable foreign country).
38. Are there any restrictions on the payment of dividend/repayment of shareholders' loans to a foreign parent?
There are no restrictions on the payment of dividends/repayment of shareholder loans to a foreign parent.
The Nigerian Investment Promotion Commission Act and a host of other foreign investment regulations seek to encourage and protect foreign direct investment by guaranteeing the free repatriation of income (however arising, for example, by way of dividends or loans) to the country of the foreign investor.
39. Are there restrictions on the importation of equipment or workers from abroad for use in a project?
There are no restrictions on the importation of equipment from abroad for use in a project.
Project equipment can be imported into Nigeria on the payment of applicable import duties (except in cases where the importer or the project are exempt from duties). However, for an upstream petroleum industry related project, importation of equipment and workers will be subject to the prevailing local content laws.

Choice of Law and Jurisdiction

40. Will local courts recognise a choice of foreign law or jurisdiction in a project contract or financing agreement? Are there any mandatory rules that apply despite a choice of foreign law or jurisdiction?

Foreign Law

Under Nigerian law, the parties to an agreement can choose the applicable law of a jurisdiction to govern their transaction and their preferred dispute resolution mechanism. Nigerian courts give effect to a choice of foreign law and choice of a foreign dispute resolution which parties to a contract elect to govern their transaction. Nigerian courts have held that their duty is to strictly interpret the terms of a legal and valid contract agreed between the parties and not to impute alternative arrangements that would effectively re-write the terms of the contracts.
English law is widely used to govern certain documentation in project finance, especially facility agreements.

Jurisdiction

See above, Foreign Law.

Waiver of Immunity

Waivers of immunity are enforceable in Nigeria.
41. What is the reputation and experience of local courts?
In connection with the resolution of contractual disputes, as with the general principles for the resolution of civil claims in common law jurisdictions, the Nigerian judicial process is weighted in favour of the preponderance of relevant and provable evidence and the interpretation given by the deciding judge to the mixture of facts and law presented before the court.
There is also a system of checks and balances in the Nigerian judicial system through the right of appeal of litigants to reduce potential corruption or bias in the adjudication of cases. Also, the Nigerian courts have ample experience with enforcement of security and other related issues that may arise from a project finance transaction.
42. Will the courts recognise a foreign arbitral award or court judgment?
The Nigeria Arbitration and Conciliation Act (ACA) adopts the UN Convention on the Recognition and Enforcement of Foreign Arbitral Awards 1958 (New York Convention), to which Nigeria is signatory. An arbitral award will, irrespective of the country in which it is made, be recognised as binding and, on application in writing to the Nigerian courts, will be enforceable in Nigeria (ACA).
Nigerian law also provides different procedures for the enforcement of foreign court judgments, depending on the relevant country.

Reform

43. Are there any recent or proposed legal developments affecting project finance?
The recently enacted Petroleum Industry Act provides a comprehensive legal and regulatory framework for the Nigerian petroleum industry. A key issue addressed in the Petroleum Industry Act is the establishment of a legal and regulatory framework to encourage natural gas development/projects in Nigeria.
There are some reforms in the energy sector, notably including the Presidential Power Initiative (formerly the Nigerian Electrification Roadmap) which was entered into between the Nigerian and German governments. The initiative is championed by Siemens with a view to developing and increasing local power generation to achieve operational capacity of 25,000 megawatts (MW) from the current average of around 4,500 MW.
Also, an Electricity Bill is currently being considered by the Nigerian legislature which aims to transform Nigeria's power sector. The Electricity Bill seeks to, among other things, de-monopolise the national grid to empower states to create a state-focused electricity market. This is expected to open up the Nigerian electricity sector to more energy projects.
The Nigerian government has adopted an energy transition plan setting out Nigeria's net-zero pathway with significant investment opportunities for the financing of projects in the power, transport, oil and gas, cooking and industry sectors.

Contributor Profiles

Chinedu Kema, Partner

Adepetun, Caxton-Martins, Agbor & Segun

Professional qualifications. Nigeria, Barrister and Solicitor of the Supreme court
Areas of practice. Energy and project finance.

Adeleke Alao, Senior Associate

Adepetun, Caxton-Martins, Agbor & Segun

Professional qualifications. Nigeria, Barrister and Solicitor of the Supreme court
Areas of practice. Energy and project finance.

Ibiwunmi Adeyeri, Senior Counsel

Adepetun, Caxton-Martins, Agbor & Segun

Professional qualifications. Nigeria, Barrister and Solicitor of the Supreme court
Areas of practice. Energy and project finance.

Adeniran Segun, Associate Counsel

Adepetun, Caxton-Martins, Agbor & Segun

Professional qualifications. Nigeria, Barrister and Solicitor of the Supreme court
Areas of practice. Energy and project finance.