Re-imagining community trust in primary health care service delivery in Nigeria: policy lessons from Rwanda

This article employs a structured, theory-guided comparative policy analysis to examine the persistent deficits in community trust that undermine primary health care (PHC) service delivery in Nigeria. Despite numerous reforms targeting financing and administrative structures, PHC utilization remains low and citizen confidence fragile. Drawing on policy learning theory, this study argues that Nigeria’s PHC reforms have predominantly involved first-order, instrumental adjustments, failing to foster deeper shifts in governance philosophy or state-citizen relations essential for building trust. Using Rwanda as a contrasting case, the analysis illustrates how its post-genocide PHC reconstruction leveraged second- and third-order policy learning to embed community trust within governance through co-production, robust accountability mechanisms, and deliberate institutional design. The paper identifies context-sensitive policy lessons for Nigeria, emphasizing that trust must be recognized and actively governed as a strategic resource for legitimate, responsive, and sustainable PHC systems, rather than merely a residual outcome of service delivery.