Nairobi Metropolitan Services: Urban Governance, Infrastructure, and the Challenge of Managing Africa's Most Dynamic City

Nairobi stands at a crossroads between its identity as Africa's most dynamic and innovative city and the persistent infrastructure, governance, and service delivery challenges that threaten its liveability and competitiveness. With a population density of 6,273 people per square kilometre projected to reach 7,163 by 2027, producing 3,200 tonnes of solid waste daily, and traffic congestion costing the economy upward of KES 37 billion annually, the capital city demands governance solutions that match the scale and complexity of its urban challenges. The February 2026 agreement between Governor Johnson Sakaja and President William Ruto, a KES 80 billion intergovernmental partnership framework, represents the latest attempt to address Nairobi's infrastructure crisis through coordinated national and county government action, following the controversial Nairobi Metropolitan Services (NMS) experiment that preceded it.

The NMS Experiment: 2020-2022

In March 2020, President Uhuru Kenyatta established the Nairobi Metropolitan Services through a deed of transfer with then-Governor Mike Sonko, taking over four critical county functions: health services, transport and public works, urban planning, and development services. Led by Major General Mohamed Badi, the NMS was created amid concerns about governance failures at City Hall and the deterioration of Nairobi's infrastructure and services. During its tenure, the NMS undertook ambitious infrastructure projects including road construction and rehabilitation, upgrading of health facilities, installation of street lighting, and beautification of public spaces. However, the experiment was controversial, with critics arguing it undermined devolution by transferring constitutionally mandated county functions to a military-led national government entity without adequate legal frameworks. When Governor Johnson Sakaja assumed office in August 2022, the deed of transfer expired and all functions reverted to the Nairobi City County Government. Pending NMS projects were subsequently handed over to the Presidency in January 2024.

The 2026 Intergovernmental Partnership

The KES 80 billion cooperation agreement signed on 17 February 2026 by Prime Cabinet Secretary Musalia Mudavadi and Governor Sakaja at State House, in the presence of President Ruto, establishes a new model for addressing Nairobi's challenges. Unlike the NMS which was perceived as a takeover, the new framework is structured as a constitutionally grounded intergovernmental partnership that preserves county functions while enabling targeted national government support. Under the agreement, the national government assumes financial and operational responsibility for solid waste management, road construction and rehabilitation, water and sewerage infrastructure, public lighting, drainage, affordable housing, and the regeneration of Nairobi's rivers. The county government retains oversight of other administrative functions. The framework emphasises joint planning, co-financing, and coordinated implementation, with mechanisms for accountability and performance measurement. The agreement acknowledges that Nairobi's performance has national and international implications as the country's economic, diplomatic, and cultural capital.

Transport and Mobility Crisis

Nairobi's transport challenges represent one of the most visible and economically damaging aspects of the city's infrastructure deficit. Despite relatively low levels of private car ownership compared to developed-world cities, Nairobi experiences severe congestion driven by the high volume of matatus (public minibuses), boda-bodas (motorcycle taxis), and the absence of a well-planned mass transit system. The Nairobi Expressway, completed in 2022 as a public-private partnership with China Road and Bridge Corporation, provides a tolled alternative for motorists but has had limited impact on overall congestion due to its pricing and limited access points. The Bus Rapid Transit (BRT) system, proposed for years as Nairobi's primary mass transit solution, has progressed slowly with dedicated lanes planned along key corridors. The Nairobi Commuter Rail service, operated by Kenya Railways using refurbished diesel multiple units, provides limited coverage along existing rail corridors. Non-motorised transport infrastructure including pedestrian walkways and cycling lanes remains inadequate, despite the fact that a significant proportion of Nairobi's residents walk to work or rely on walking as their primary mode of transport.

Housing and Informal Settlements

Nairobi's housing crisis is defined by the proliferation of informal settlements that house an estimated 60 percent of the city's population on less than 5 percent of its land area. Kibera, Mathare, Mukuru, Korogocho, and Kawangware are among the largest informal settlements, characterised by overcrowding, inadequate sanitation, limited access to clean water, and insecure land tenure. The shortage of affordable formal housing has been compounded by rapid population growth, land speculation, and the failure of housing markets to serve low and middle-income residents. The national government's Affordable Housing Programme, launched under the Big Four Agenda and continued under the Bottom-Up Economic Transformation Agenda, aims to construct 250,000 affordable housing units annually, though actual delivery has fallen significantly short of targets. The Mukuru Special Planning Area declaration in 2017 provided a framework for upgrading one of Nairobi's largest slum clusters, but implementation has been slow and contested. Security of tenure remains a fundamental challenge, with many residents lacking title deeds or formal recognition of their occupation rights.

Water Supply and Sanitation

Access to reliable, clean water remains a daily struggle for millions of Nairobi residents, particularly those in informal settlements and the city's expanding periphery. The Nairobi City Water and Sewerage Company supplies water from dams including Ndakaini, Sasumua, and Ruiru, but the supply falls significantly short of demand, with water rationing affecting many neighbourhoods. Non-revenue water losses through leaks, illegal connections, and metering inefficiencies exceed 40 percent of produced water. The sewerage system covers only a fraction of the city, with most informal settlements relying on pit latrines, septic tanks, or open defecation. The absence of a comprehensive storm water master plan means that flooding during heavy rains overwhelms drainage infrastructure, causing property damage, disease outbreaks, and loss of life. The 2026 intergovernmental partnership prioritises water and sewerage infrastructure investment, recognising that these services are fundamental to public health and economic productivity.

Solid Waste Management

Nairobi produces approximately 3,200 tonnes of solid waste daily, but the city's collection and disposal systems are capable of handling only a fraction of this volume. The Dandora dumpsite, the city's primary disposal facility, has long exceeded its capacity and poses severe environmental and health risks to surrounding communities. Waste that is not collected is illegally dumped in rivers, road reserves, and open spaces, contributing to water pollution, flooding, and disease. The Japan International Cooperation Agency (JICA) has partnered with Nairobi County on a circular waste management initiative aimed at introducing waste separation, recycling, and resource recovery systems. Private waste collection companies serve higher-income areas, while informal waste pickers play a crucial but unrecognised role in recycling valuable materials from the waste stream. The transfer of waste management to the national government under the 2026 partnership aims to bring greater resources and coordination to a challenge that has defied county-level solutions.

Future Vision for Nairobi

Nairobi's future depends on whether governance reforms, infrastructure investment, and institutional strengthening can keep pace with the city's relentless growth. The Nairobi City County Integrated Development Plan 2023-2027 outlines priorities including urban regeneration, green spaces preservation, digital infrastructure, and climate resilience. The regeneration of Nairobi's rivers, particularly the Nairobi River and its tributaries, could transform blighted corridors into public amenities while addressing water pollution and flooding. Investment in mass transit, affordable housing, and decentralised service delivery through sub-county structures will be critical to ensuring that Nairobi remains competitive as a continental business hub while improving quality of life for all its residents, from the international business traveller to the informal settlement dweller navigating daily survival in one of Africa's most complex and compelling cities.