The Socio-Economic Rights and Accountability Project (SERAP) has given the Governor of the Central Bank of Nigeria (CBN), Olayemi Cardoso, seven days to account for more than N1.63tn in intervention and loan funds and explain an alleged $6.23m election-related payment linked to a purported request from former President Muhammadu Buhari.
SERAP’s demand followed findings contained in Volume II of the Auditor-General of the Federation’s 2023 Annual Report, published on August 7, 2026, which identified lapses in the management of public resources between January and December 2023.
The organisation said the report showed that the CBN had failed to recover N1.25tn in intervention loans to state governments, N116.18bn in loans to distressed and liquidated banks and N262.86bn disbursed under the Anchor Borrowers’ Programme.
It also demanded an explanation for $6.23m reportedly spent following what the Auditor-General’s report described as a fraudulent election-funding request purportedly made by Buhari.
In a letter dated September 26, 2026 and signed by SERAP Deputy Director Kolawole Oluwadare, the organisation demanded details of beneficiaries, amounts disbursed and measures taken to recover the funds.
For the Anchor Borrowers’ Programme, SERAP asked the CBN to disclose the names and number of beneficiaries and participating anchors, amounts disbursed, how the funds were utilised, monitoring arrangements and recovery measures.
On the alleged election-related payment, the organisation demanded an account of the $6.23m, publication of the findings of the CBN’s internal investigation, details of measures taken to recover the money and steps to establish responsibility for the alleged fraud.
The Auditor-General’s report also raised concerns over whether some of the funds could have been diverted for private purposes. It noted that the CBN failed to provide its 2023 audited financial statements, schedules of recoveries or lists of beneficiaries for scrutiny.
SERAP said the scale and nature of the findings required urgent, independent and transparent action concerning the custody, expenditure, accounting, safeguarding and recovery of public resources.
The organisation urged the CBN to identify those responsible, take disciplinary action where appropriate and refer suspected criminal conduct to the Economic and Financial Crimes Commission and the Independent Corrupt Practices and Other Related Offences Commission.
It also called for an independent forensic reconciliation of the sums identified by the Auditor-General.
SERAP said the CBN’s institutional independence did not exempt it from constitutional audit requirements, statutory accounting obligations, public financial oversight, access to information or investigation of credible allegations of financial misconduct.
The organisation further reminded the CBN of its obligations under the Nigerian Constitution and the Central Bank of Nigeria Act 2007 to maintain accurate accounts of its transactions, assets and liabilities. It also cited Nigeria’s obligations under the United Nations Convention against Corruption.
SERAP said Nigerians were entitled to know the whereabouts and status of public funds and urged the CBN to take steps that would promote accountability, restitution, recovery and guarantees against a recurrence of similar lapses.
The letter, read in part: “The findings involving public resources on the scale identified by the Auditor-General require credible investigation capable of establishing the facts, identifying responsibility and securing recovery where public funds have been unlawfully lost.”
“SERAP urges him and the CBN to identify those responsible for the affected public funds, take appropriate disciplinary action, refer suspected criminal conduct to the Economic and Financial Crimes Commission (EFCC), Independent Corrupt Practices and Other Related Offences Commission (ICPC) and other competent authorities, and ensure full recovery and remittance to the treasury of any diverted, lost or unaccounted-for funds.”
“SERAP also urges him and the CBN to undertake or support an independent forensic reconciliation of the sums identified by the Auditor-General, involving relevant oversight and law-enforcement institutions where necessary, and preserve all records relevant to the transactions and investigations.”
“The CBN’s institutional independence cannot reasonably be understood as immunity from constitutional audit, statutory accounting requirements, public financial oversight, access to information or investigation of credible allegations of financial misconduct.”
“The CBN has clear legal obligations to account for each amount identified by the Auditor-General, explain the basis for each transaction, identify the persons or entities that received or benefited from the funds, and disclose measures taken to investigate, reconcile and recover any amount found to have been improperly paid or lost.”
“The spending of public funds, including by the CBN, must remain subject to effective constitutional oversight, transparency and accountability. The substantial public funds identified by the Auditor-General as unrecovered, unaccounted for or otherwise requiring explanation cannot be insulated from constitutional safeguards.”
“The public interest requires meaningful oversight of withdrawals, expenditure, investment and accountability mechanisms. The ongoing management of public funds by the CBN must remain transparent and subject to appropriate safeguards.”
“According to the Auditor-General, the findings in the report variously covered the period between January and December 2023.”
“The 2023 audited report of the Auditor-General reportedly found that the Central Bank of Nigeria (CBN) failed to recover over ₦1.2 trillion [₦1,252,095,444,724.82] in ‘CBN interventions loan granted to different states in 2023.’”
“The Auditor-General fears that the money may have been ‘diverted to private purposes’ and recommends that the money be recovered and remitted to the treasury.”
“The CBN reportedly failed to ‘recover over ₦116 billion [₦116,179,000,000.00] of loans granted to distressed and liquidated banks.’”
“The CBN also failed to ‘present its 2023 audited or draft Financial Statements and schedule of recoveries and outstanding balance against loans granted to distressed and liquidated banks to the audit team for scrutiny.’ The Auditor-General fears that the money may have been ‘diverted’.”
“The CBN reportedly ‘spent over ₦262 billion [₦262,859,473,249.81] on Anchor Borrowers’ Programme meant to support farmers to ensure food production in the country.’ However, ‘the money remain in the hands of some ‘Anchors,’ which ‘could hamper the intended food-security objectives of the programme.’”
“The CBN also ‘failed to provide the list and number of beneficiaries of the programme and the impact of the programme for audit assessment.’ The CBN had ‘failed to recover the money, which is quite a significant amount.’ The Auditor-General feared that the money may have been ‘diverted to private purposes.’”
“The CBN reportedly failed to ‘investigate an alleged fraud at its Abuja Branch Office, amounting to over $6.2 million [$6,230,000.00].’ The ‘CBN internal audit disclosed that the money was spent based on a request for election funding purportedly made by the immediate past President of Nigeria [Muhammadu Buhari].’”
“However, ‘the CBN failed to make the investigation report of the alleged fraud available to the audit team for scrutiny and confirmation.’ The Auditor-General fears that the money may have been ‘lost’ and that the payments may have been ‘fraudulent.’ He wants the money recovered and remitted to the treasury.”
“The CBN also reportedly failed to ‘account for the long overdue seven (7) boxes of Awaiting Examination (A/E) Currency Notes.’ The Auditor-General fears that this ‘may lead to increase in awaiting examination currency notes’ and ‘mismanagement of funds’ and recommends that ‘sanctions [be] imposed for gross misconduct.’”
“The CBN reportedly ‘abandoned some unserviceable vehicles at its Lagos Branch.’ The Auditor-General noted that the condition of the vehicles had negatively affected the smooth operations of the branch, given the strategic roles they play for the Bank.”
“The Auditor-General fears that this ‘may lead to inefficiency in the Branch Operations and Delay in meeting critical currency operations’ and wants the CBN to ‘provide evidence of disposal [and] replacements of the vehicles.’”
“The CBN also reportedly ‘abandoned the unserviceable bullion van at its Abeokuta Branch Office.’ The unserviceable bullion van remains on the records of the branch. The Auditor-General similarly fears that this ‘may lead to inefficiency in the Branch Operations and Delay in meeting critical currency operations’ and wants the CBN to ‘provide evidence of disposal [and] replacements of the vehicles.’”
“SERAP notes that Section 15(5) of the Nigerian Constitution requires the State to ‘abolish all corrupt practices and abuse of power.’ Section 13 of the Constitution also imposes a responsibility on all organs of government to conform to, observe and apply the provisions of Chapter II of the Constitution.”
“The CBN Act 2007 establishes specific statutory responsibilities concerning the Bank’s accounts, assets, financial reporting and management. Section 7(2) of the Act places responsibility on the Governor and Deputy Governors, including responsibility for ensuring that true accounts are kept of transactions entered into by the Bank and of its assets and liabilities and valuables entrusted to it.”
“Sections 27 to 32 of the CBN Act also define the Bank’s principal powers and functions. Section 49 provides for the audit of the Bank’s accounts, while section 50 establishes requirements concerning the Bank’s annual accounts and reporting. These provisions reinforce the principle that the CBN’s financial affairs are subject to a statutory framework of accounting, audit and public accountability.”
“Nigeria has made legally binding commitments under the UN Convention against Corruption to ensure accountability in the management of public resources. Articles 5 and 9 of the Convention impose obligations on States Parties concerning the development of effective anti-corruption policies and the proper management of public affairs and public funds.”
“Identifying those responsible, ensuring that any perpetrators are brought to justice, and securing the full recovery of any missing or unaccounted-for public funds would serve the public interest and help to address impunity for the mismanagement of public resources.”
“The findings also raise broader concerns about the CBN’s compliance with principles of transparency, accountability and responsible management of public resources. Nigerians have the right to know the whereabouts and status of public funds. Taking the requested measures would advance the public interest in accountability, restitution, recovery and guarantees of non-repetition.”
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