URBAN PLANNING PROCESSES IN LAGOS Policies, laws, planning instruments, strategies and actors of urban projects, urban development, and urban services in Africa’s largest city URBAN PLANNING PROCESSES IN LAGOS Policies, laws, planning instruments, strategies and actors of urban projects, urban development, and urban services in Africa’s largest city URBAN PLANNING PROCESSES IN LAGOS Policies, laws, planning instruments, strategies and actors of urban projects, urban development, and urban services in Africa’s largest city This work is licensed under the Creative Commons Attribution-NonCommercial-NoDerivs 3.0 Germany License. To view a copy of this license, visit http://creativecommons.org/licenses/by-nc-nd/3.0/de/ or send a letter to Creative Commons, PO Box 1866, Mountain View, CA 94042, USA. Jointly published by: Heinrich Böll Stiftung Nigeria Fabulous Urban 3rd Floor, Rukayyat Plaza Brauerstrasse 27 93, Obafemi Awolowo Way 8004 Zürich Opposite Jabi Motor Park Switzerland Jabi District, Abuja [email protected] [email protected] www.ng.boell.org www.fabulousurban.com Editorial supervision: Monika Ummuna Editor and lead researcher: Fabienne Hoelzel Local researchers and co-authors: Kofo Adeleke, Ebere Akwuebu, Soji Apampa, Aro Ismaila, Lookman Oshodi, and Tao Salau Field research: Adetonwa Rafiat, Michael Ogunwale, Olatoye Mayowa Seun, Unuigboje Richard Emeka, Damilola Keshinro, Olabisi Sheyi, Olowu Damilola, and Asaolu Damilolu Research consultancy: Taibat Lawanson Local experts and interview partner: Olugbenga Adebola, Debo Adejana, Bongo Adi, and Megan Chapman Cover photos: FABULOUS URBAN, Fabienne Hoelzel (front: Victoria Island, back: Mushin; Lagos) Layout: FABULOUS URBAN, Fabienne Hoelzel Printing: Flippage Design Services, Lagos Printed in Nigeria (2016) CONTENTS FOREWORD 5 Monika Ummuna WHICH WAY, LAGOS? 7 INtRODUCtION, BACKgROUND AND MEtHODS Fabienne Hoelzel HOUSING, SLUMS AND INFORMAL SETTLEMENTS 13 Lookman Oshodi with Adetonwa Rafiat and Michael Ogunwale URBAN MOBILITY AND TRANSPORTATION 61 Lookman Oshodi and talao Salau with Olatoye Mayowa Seun and Unuigboje Richard Emeka SOLID WASTE MANAGEMENT 133 Kofo Adeleke with Damilola Keshinro and Olabisi Sheyi STRATEGIC PLANNING AND URBAN MEGA PROJECTS 175 Aro Ismaila, Ebere Akwuebu, and Soji Apampa with Olowu Damilola and Asaolu Damilolu GOVERNING LAGOS IN THE URBAN CENTURY: 219 THE NEED FOR A PARADIGM SHIFT CONCLUSION AND OUtLOOK Taibat Lawanson FOREWORD Monika Ummuna Imagine a Lagos with 52 kilometres off-road bicycle lanes along the numerous drainage canals and small rivers which can be used by young and old, rich and poor to relax or to go to work without the usual stress in traffic jams. Imagine clean drainage canals the banks of which would be used by women from neighbouring communities for farming and income generation. Small biogas plants converting organic waste into cooking gas and fertiliser would supply natural fertilisers for their farms. Imagine business owners – hairdressers, grinders, carpenters, printers – enjoying uninterrupted power supply throughout the day from their own solar panels, giving them a chance to increase their business activities and plan ahead. Gradually they would be encouraged to invest and employ more staff. Imagine urban slum dwellers enjoying security of tenure and starting to improve and develop their environment at their own cost. Imagine grassroots organisations like CDAs and residents’ associations having more women in their decision taking bodies and as spokespersons, allowing women to make their own choices about their economic development. Such options for a climate resilient and inclusive city development are the results of the engagement by the Heinrich Böll Foundation with civil society, academics and government representatives over the past years. But how can we push such ideas when Lagos actually lacks a coherent and integrated urban development approach: ministries are working in isolation, sometimes even contradicting each other’s policies. Also the rights and respon- sibilities of the different political entities - federal, state and local government levels - are often conflicting and their competing bureaucracies suffocate innovative ideas at once. This research project was initiated to study the legal and administrative framework guid- ing current urban planning processes in Lagos. It is intended to provide the Heinrich Böll Foundation, its partners and government representatives with the necessary data and insights about the relation between urban policies, urban interventions, the role of govern- ance and the different actors in Lagos and to finally serve as an inspiration towards a more constructive and sustainable engagement amongst all stakeholders. The extensive findings of the different chapters illustrated in numerous tables and graph- ics underline the need for a more participatory approach channeled through the revival of vibrant and powerful local governments. Supported by professional, religious and social associations well anchored in the communities, innovative and transparent local govern- ments could compete in developing the most livable environment combining green and public spaces, safe housing and growing economic opportunities. Like in many other cities in the world, urban planning in Lagos, especially when it comes to so-called mega projects, is often guided by unilateral decisions taken by politicians who want to make their city more attractive for foreign investors. The study shows that politicians need to refrain from 5 always overriding or side-lining the technical knowledge, competence and commitment of their technocrats and civil servants from the different ministries and agencies. Rather than suppressing efficient management structures by constantly creating competing agencies and institutions, all civil servants and professionals should be encouraged to embrace an in- tegrated and equitable approach. Last but not least, the majority of Lagos’ population – the urban slum dwellers – need to be integrated into the overall development plan and to get a fair share of participation: currently, they are not only living in precarious situations with- out employment and tenure security, but they also lack most basic infrastructural services which should be provided by a caring government. The findings of this research are certainly not peculiar to Lagos; they might also apply to many African cities, which are trying to cope with an increasing population, inadequate infrastructure and lacking income opportunities. More research on the visions, policies and strategies guiding the urban development of African cities and alternative options for a sus- tainable and inclusive development is needed. We hope this book will encourage Nigerian, African and international practitioners and scholars to continue the research and engage in an intense debate across borders. The Heinrich Böll Foundation’s Nigeria Office has been supporting projects and initiatives in Lagos since 1995 and sees its role as a facilitator of public dialogue around truly sustain- able development options. Heinrich Böll Foundation Nigeria, Lagos Liaison Office: Monika Umunna is a sociologist and has been living in Lagos since 1997. She has been working with the Heinrich Böll Foundation Nigeria since 1999 in various functions and is the programme manager of the “climate resilient and inclusive Megacity Lagos” programme 6 since 2011. WHICH WAY, LAGOS? INtRODUCtION, BACKgROUND AND MEtHODS Fabienne Hoelzel “Africa’s first city” was the title of a National Geographic article in January 2015, enthu- siastically describing the economic development of Lagos since 1990 and its push effect for the entire country.1 Outside observers tend to acknowledge the terms in office of Bola Tinubu (1999-2007) and his successor, Babatunde Fashola (2007-2015), as a period of improvement and progress in the development of the city.2 On the other hand, it appears as if state government’s actions were mainly directed towards making the city more attractive to investors, business travellers and tourists from abroad.3 This is also reflected in the fact that the Ministry of Economic Planning and Budget edited the main strategic planning document, the Lagos State Development Plan 2012-2015, and giant developments like the Lekki Free Zone were developed under the leadership of the Ministry of Commerce and Industry. In the interest of a well balanced city development, the Ministry of Physical Planning and Urban Development should have played an equally significant role.Attract - ing (foreign) investment seems to be a promising strategy – if it creates local jobs and the increased revenues will be reinvested locally in urban infrastructure, education and health, benefitting everybody – and has become a mainstream “recipe” in manyAfrican city regions to trigger urban development.4 UN Habitat warns that promoting economic pros- perity through such an entrepreneurial view of the city often happens at the expense of the habitat and livelihoods of the poor.5 However, “good governance” – in this context explic- itly not referring to the definition of the World Bank that is often linked to privatisation of public services – implies to guarantee the well being of all the individuals in a society. This was exactly the aim of the present study report: to gain a better understanding of the cur- rent urban governance strategies, instruments and practices in the field of urban planning and in the provision of urban services – and to understand who does really benefit