A city in Transition: Vision, Reform, and Growth in Lagos, Nigeria. Michael O. Filani Cities Alliance United Cities and Local Governments Acknowledgements



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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 Alliance United 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 Ayodele Adediran, 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, Bolaji Francisco Abosede for 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 Bade Falade, 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 of Paul 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 Ijeh Chukunyere 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), particularly Abiola Elaturoti, Abimbola Adegoke 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 Chii Akporji, Communications Officer who task managed the project. Special thanks also to Deepali Tewari, 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 v Abbreviations 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

4.10 Environment 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

Information and 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 18th largest 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, decaying metropolis 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 Babatunde Fashola 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 data in 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 in spite of the success story told in this report, there remains a 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 Ogun state 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



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