Cities Alliance Project Output

A City in Transition: Vision, Reform, and Growth in Lagos, Nigeria.

Transforming Lagos: A Mega City Addresses Its Urbanisation Challenges

P107221

A City in Transition: Vision, Reform, and Growth in Lagos, Nigeria.

Michael O. Filani

Cities AllianceUnited Cities and Local Governments

Acknowledgements

Funding for this report was made possible by Cities Alliance, for which the author is most grateful. The Foundation for Development and Environmental Initiatives (FDI), Ibadan, Nigeria where the author serves as the executive director, provided seed funding for the study and a congenial environment for executing the project.

The author appreciates the commitment and assistance of staff of the Lagos State Ministry of Physical Planning and Urban Development, particularly the role of Joseph AyodeleAdediran, Special Assistant to the Honourable Commissioner for Physical Planning and Urban Development, in making available the bulk of the relevant records, data, and information used in producing the report. He is also most grateful to the Honourable Commissioner himself,BolajiFrancisco Abosedefor his comments and explanations on the various issues discussed in the report and on the lessons derived from the reform process.

The author is particularly grateful to Professor Johnson BadeFalade, UN-Habitat Programme Manager for Nigeria, for his incisive contribution to and editing of the final draft of the report. Equally worthy of mention is the contribution ofPaul Okunnola, the programme officer of the UN-Habitat Programme Office in Nigeria (HAPSO) who assisted with the editing of the final draft.

The author also wishes to acknowledge the assistance of IjehChukunyere of the University of Ibadan, my research assistant on the project; Elizabeth Owolabi,Secretary and Administrative officer of HAPSO; and the secretarial staff of Foundation for Development and Environmental Initiatives (FDI),particularlyAbiolaElaturoti, AbimbolaAdegoke and Dupe Odegbaro for the word processing of the report.

This acknowledgement would not be complete without giving especial thanks to the Cities Alliance Secretariat staff, particularly to the Programme Manager, William Cobbett for his suggesting the concept of a study of the transformation process in Lagos, and ChiiAkporji, Communications Officer who task managed the project. Special thanks also to DeepaliTewari, Sr. Municipal Development Specialist for her sound reviews and comments.

Professor Michael O. Filani

Foundation for Development Initiatives

Ibadan, Nigeria

TABLE OF CONTENTS

Page.

Title Page

Acknowledgements i

Table of Contents ii - iv

List of Figures, Tables and Plates vAbbreviations and Acronyms vi – viii

Foreword ix

Executive Summary x - xi

CHAPTER 1: INTRODUCTION. 1

1.1 Brief Context for the Study 1

1.2 Goal of Study 1

1.3 Structure of Report 2

1.4 Concluding Statement 2

CHAPTER 2: BACKGROUND TO LAGOS MEGACITY 3

2.1 Location and Natural Environment 3

2.2 Historical Origin and Development 4

2.3 Governance and Policy 7

2.4 Economy of Lagos 9

2.5 Summary of Challenges 11

CHAPTER 3: TRANSFORMING LAGOS 13

3.1 Catalysts of Change 13

3.2 Specifics of Reforms 13

3.2.1 Political Will and Leadership 13

3.2.2 Strategic Visioning of Development 14

3.2.3 Knowledge-Based Approach to Planning 16

3.2.4 Budget Reform and Its Linkage with Activities 17

of Government Institutions.

3.2.5 Institutional Reforms for Efficient Service Delivery 17

3.2.6 Popular Participation Partnership Building 17

(i)Popular Participation 17

(ii) Promotion of PPP 18

3.2.7 Policy, Legislative and Institutional Reforms 19

3.2.8 Resource Mobilisation; Transparency and Accountability 19

3.2.9 Application of ICT in Governance 21

3.2.10 Programmatic Interventions 21

3.2.11 New partnership for African Development (NEPAD) 21

3.2.12 Sustainability 22

CAPTER 4: INNOVATIONS/HIGHLIGHTS 23

4.1 Physical Infrastructural Development 23

4.1.1 Transportation 23

(i)The Mass Transit System 23

(ii)Light Rail Transit (LRT) 28

(iii) Water Transportation 29

4.1.2 Water and Power Supply 30

(i) Water Supply 30

(ii) Power Supply 30

4.1.3 Drainage and Sanitation 32

4.1.4 Solid Waste Management 33

4.2 Urban Planning and Environment 35

(i)Urban Planning 35

(ii)Environment 39

(iii) Land 40

(iv) Housing 41

4.3 Slum Upgrading, Redevelopment and Social Transformation 43

4.3.1 Slum Upgrading 43

4.3.2 Slum Redevelopment 43

4.3.3 Health 45

4.3.4 Security 47

4.3.5 Employment Generation 49

4.3.6 Revenue Enhancement 51

CHAPTER 5: LESSONS LEARNED

5.1 Evolving Institutional Framework for Effective Service Delivery 53

5.2 Promotion of Participatory Governance 53

5.3 Putting in Place Structures for Effective Resource Mobilisation

Transparency and Accountability 54

5.4 Planning and Strategic Visioning of Development 55

5.5 Use of ICT and Data for Planning 55

CHAPTER 6: CONCLUSION. 56

References 57

Figures Page

2.1. Map of Nigeria Showing Location of Lagos State 4

2.2. Map of Lagos State Showing the Lagos Megacity and other

Districts in the State. 4

2.3. Population of Lagos showing Disparity between the

Figures of Lagos State and National Population Census 2006 7

2.4. Lagos Showing the Mainland Districts 8

4.1. The Bus Rapid Transit Network and Proposed Highway Improvements 27

4.2. Light Rail Route 29

4.3. Location of Model Cities in Lagos 38

Tables

2.1. Population of Lagos 1911-2006 in Millions 6

2.2. Household Size and Density in Some Local Government Areas of Lagos

Metropolis 12

2.3.Crime Reported in Some Local Government Areas of Lagos Metropolis 2005 13

3.1. Ehingbeti Summits and Thematic Foci 2000-2010 17

Plates

2.1 Aerial View of the CBD in Lagos Island 11

2.2 Slum Upgrading Challenges 13

4.1 Road Construction in Lagos 24

4.2 Bus Rapid Transit (BRT) 25

4.3 Existing and Predicted Modal Split in Lagos Megacity 26

4.4 Infrastructural Upgrade 28

4.5 Production of Electricity through AES Nigeria (IPP) 31

4.6 Elsewedy Electricity Transformer Factory in Agbara 33

4.7 Waste Management Facilities in Lagos Megacity 34

4.8 Market Redevelopment in Lagos 39

4.9 Redevelopment of Balogun Market to a Shopping Mall 39

4.10Environment and Physical Planning in Lagos Megacity 41

4.11 Slum Redevelopment in Lagos Megacity 45

4.12 Healthcare Delivery 48

4.13 Provision of Security Facilities in Lagos State 50

4.14 Skill Acquisition Programmes 50

Abbreviations/Acronyms

BCI / Nigerian-American Business Club Ikeja
BIR / Board of Internal Revenue
BRT / Bus Rapid Transit
BT / Bola Tinubu
CBDs / Central Business Districts
CCECC / Chinese Civil Engineering and Construction Company.
CDAs / Community Development Associations
CSA / Community Security Assembly
CSS / Central Security Surveillance
EBS/RCM / Electronic Banking System/Revenue Collection Monitoring Project
EDMS / Electronic Document Management System
FDI / Foundation for Development and Environmental Initiatives
FTZ / Free Trade Zone
GDP / Gross Domestic Product
GIS / Geographic information Systems
HSRP / Health System Reform Programme
ICT / Informationand Communication Technology
IDA / International Development Association
IHL / Ibile Holdings Limited
IPPs / Independent Power Producers
IT / Information Technology
KBA / Knowledge-based approach
LAMATA / Lagos Metropolitan Area Transport Authority
LASACO / Lagos State Assurance Company
LASAMBUS / Lagos State Ambulance Services
LASEEDS / Lagos State Economic Empowerment and Development Strategy
LASEMA / Lagos State Emergency Management Agency
LASEMS / Lagos State Emergency Medical Services
LASMI / Lagos State Microfinance Institution
LASUTH / Lagos State University Teaching Hospital
LASWA / Lagos State Waterways Authority
LAWMA / Lagos State Waste Management Authority
LBIC / Lagos Building and Investment Company
LCCI / Lagos Chamber of Commerce and Industry
LEDB / Lagos State Executive Development Board
LIRS / Lagos Internal Revenue Service
LMDP / Lagos Metropolitan Development Project
LNG / Liquefied Natural Gas Company
LRT / Light Rail Transit
LSDPC / Lagos State Development and Property Corporation
LUTH / Lagos University Teaching Hospital
LUTP / Lagos Urban Transport Project
LWC / Lagos State Water Corporation
MTEF / Medium-Term Expenditure Framework
MTSS / Medium-Term Sector Strategies
MW / Megawatts
MWAPA / Ministry of Women Affairs and Poverty Alleviation
NEEDS / National Economic Empowerment and Development Strategies
NEPA / National Electric Power Authority
NEPAD / New Partnership for African Development
NGO / Non-Governmental Organization
NITEL / Nigeria Telecommunications Limited
NRC / Nigerian Railway Corporation
OPMESA / Operation Mensa (Military Joint Police Patrol Code)
PHCN / Power Holding Company of Nigeria
PPP / Public-Private Partnership
PSP / Private Sector Participants
RRS / Rapid Response Squad
SAN / Senior Advocate of Nigeria
SHIS / State Health Insurance Scheme
SSTF / State Security Trust Fund
TMP / Transport Master Plan
TMUs / Transport Monitoring Units
TPA / 10-Point Agenda
UNDP / United Nations Development Programme
VAT / Value Added Tax

Foreword

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Executive Summary

This study is about Lagos, Nigeria, the centre of excellence and the largest conurbation in Nigeria. Despite the national controversy about population figure for Lagos megacity, it is regarded as the 18thlargest city in the world with 10.58 million people and one of the fastest growing cities of the world. Projections are that by 2015, the population of Lagos megacity is estimated to rise to 11.66 million and to 14.16million in 2020, with global ranking of 17th and 12th positions respectively (World Urbanization: Prospects: The 2009 Revision) Lagos is the economic and social nerve centre of Nigeria and the West African sub-region, accounting for 32 percent of national GDP.

Over the past several decades, the city has had to contend with the challenges that accompany such staggering growth rates.

Since 1999, however, the city’s governance has begun to improve.There is now overwhelming evidence of Lagos’s transformation from its former status as an erstwhile infamous, decayingmetropolis into a modern, beautiful, and functional city.

This report, funded by Cities Alliance, documents the critical achievements of the city’s governance over the past one-and-a-half decades, the major innovations that accompanied various reforms, the catalysts of change, and the lessons learned in the process.

Chapter 1 provides a brief outline of the study, its goals, and structure. Chapter 2 captures the origin and development of Lagos as a megacity. The city’s population grew at a modest rate between 1891 and 1963, but from 1963 till today the population has skyrocketed and the city has expanded to cover the mainland to the west and to spread northwest by more than 40 kilometers, merging with Ikeja and Agege to form a great conurbation.

Between 1967 and 1999 the country was under military dictatorship, with the exception of a civilian administration in 1979–83. Lagos witnessed unprecedented infrastructural development during these three decades. But as it faced explosive population growth without effective land-use planning and city management, the city had to contend with various developmental challenges.

From 1999 to date, the Asiwaju Bola Tinubu and BabatundeFashola administrations, through good governance and exemplary political leadership, have brought about the transformation that is now ongoing in the megacity.The essentials of the reforms that have taken place are captured in chapter 3, which discusses the catalysts of change and the reform process. In particular it outlines the 10 attributes of effective reform, which are a knowledge-based approach (KBA) to planning; budget reform (and its linkage with the activities of government institutions); popular participation and partnership building; policy change; legislative and institutional reforms; resource mobilisation; transparency and accountability; the application of information and communication technology (ICT) in governance; programmatic interventions; and sustainability.

Chapter 4 documents the critical innovations of the various reforms. The discussion is grouped under three broad headings: namely, physical infrastructural development, urban planning and environment, and slum upgrading redevelopment and social transformation.

The reform process in Lagos aimed to promote effective, equitable, participatory, and accountable governance as well as security of life and property. Such initiatives and their implementation present their own challenges from which several lessons can be learned. These lessons are presented in chapter 5, and include the need for an institutional framework for effective service delivery, the promotion of participatory governance, the establishment of mechanisms for effective resource mobilisation, increased transparency and accountability, planning and the development of a strategic vision, and the use of ICT and comprehensive datain planning.

Chapter 6, asserts that during the past one-and-a-half decades,the megacity had witnessed tremendous progress, attributable majorly to the combined efforts of the Tinubu and Fashola administrations, especially during their tenure in office The city’s transformation has resulted from good governance that has hinged, as previously noted, on responsive leadership, strong political will, a strategic vision, popular participation and partnership building, resource mobilisation, transparency and accountability, and the mainstreaming of information technology in promoting governance.But inspite of the success story told in thisreport, there remainsa need to overhaul the administration of physical planning in the state, especially the need to expand the responsibility for planning beyond the Lagos state government alone to include the local governments. With the expectation that Lagos will become the third-largest city in the world in 2015, the extent of federal government infrastructure in the city area, and the extension of the megacity into certain parts of Ogunstate require cooperation between the federal government, the Lagos state government, the Ogun state government, various local governments, and the private sector in promoting service delivery and public welfare in this burgeoning Nigerian metropolis.

CHAPTERONE

Introduction

Brief Context for this Study

Lagos, the seat of Nigeria’s government until 1986, remains the nation’s commercial capital, contributing more to its economic growth than any other city. With an estimated population of 10.58 million, the city is the most populous conurbation in Nigeria, the second-most populous and the fastest-growing city after Cairo in Africa, and currently ranked the seventh-fastest-growing city in the world (World Urbanization: Prospects: The 2009 Revision).

Until recently, Lagos,was generally written about in a negative light and frequently satirised. Cyprian Ekwensi, a Nigerian author, is known for his many stories that repeatedly portray negative images of Lagos. Among the themes covered in his writings are sex, violence, brutality, and intrigue, portraying the lives of prostitutes, shady politicians, businessmen, police officers, reporters, thieves, and others who witness the seamy side of life.The recommendation to relocate the political capital of the country from Lagos to Abuja in 1976 by the Justice AkinolaAguda Panel was due to the city’s traffic congestion, which could be attributed to bad governance that manifested in the little attention paid to land-use planning and the provisioning of essential infrastructure to accommodate the city’s exploding population growth.Today, things are different, and the city’s governance has begun to improve. There is now overwhelming evidence that new and positive happenings have begun to change this megacity, clearly manifest in beautiful new parks and improved functionality.

“The changing face of Lagos,” as it is often called today,is due to a series of transformations occasioned by a new style of governance adopted in 1999. Since Nigeria returned to democratic governance in 1999, the successive governors of Lagos state have initiated and pursued a knowledge-based approach (KBA) to critical reforms,whichhas manifested in a governance style that promotes sustainable development. These reforms span resource mobilisation, local government reform, innovative and inclusive approaches tospatial planning principles, transportation, provision of educational facilities and health-care delivery, and partnership building in development. Due to the remarkable achievements of these reforms, Lagos, once infamous for gross urban decay in the period 1967–1999, is being transformed into a modern, beautiful, functional 21st-century city.

Goal of the Study

This report is the tangible output of a critical review of Lagos’s governance over the past decade and half, and the positive, visible transformationsthat have resulted. The review was undertaken to identify relevant innovations and their impacts on urban planning and management, provision of physical infrastructure, resource mobilisation, crime prevention, employment generation and taxation, and the various critical lessons learned in implementing reforms.

Concluding Statement

Lagos is a classic example of a modern city,having metamorphosed from a smallfarming and fishing village in the fifteenth century to a bourgeoning world-class megacity in 2010, when its population rose to over 10million people. It has had to contend with the many challenges of rapid urbanisation for decades, but not until the past decade has its governance improved to the point that positive changes are now evident.

That such a populous, sprawling city could be transformed in the span of a few years might seem incredible, but the changes are real. The remaining chapters of this report seek to explore their causes and the potential of their sustainability.

CHAPTER TWO

Background to Lagos Megacity

Location and Natural Environment of Lagos

Lagos megacity, located on longitude 3024’E and latitude 6027’N, is naturally endowed and occupies two mainislands separated by creeks in theAtlantic Ocean (figure 2.1). The land area of the city region is 154,540 hectares, with 209 square kilometres (km2)(19.6 percent) covered by water and mangrove swamps (figure 2.1).

Figure 2.1 Map of Nigeria showing location of Lagos state

Source:Lagos State Government (2009) Ministry of Physical Planning and Urban Development.

Figure 2.2 Map of Lagos state showing Lagos megacity and other districts in the state

Source:Lagos State Government (2009) Ministry of Physical Planning and Urban Development

Lagos experiences tropical rainforest climate typical of southern Nigeria, with two main seasons. The first is the wet season extending from April to November, with a brief dry spell in August. The second is the dry season from December to March, which is accompanied by harmattan dry winds that can be very severe between December and early February. The city experiences high temperatures and humidity throughout the year. The hottest month is March with a mean temperature of 290 C and the coolest month is July.