The Lagos Urban Transport Project

11-02-2014
BRT, LAMATA
01-03-2008 - 01-03-2008
An effective public transportation system in fast growing cities of the global south such as Lagos may offer a potentially cost effective form of climate change mitigation whilst also contributing to socio-economic livelihoods and the physical and mental wellbeing. Before 2008, Lagos was the only megacity in Africa without any form of organised public transport. Due to the scale of this challenge, an effective transportation system that can achieve the multiple objectives of efficiency, affordability and sustainability had to be introduced.
Knowledge buildingCommunity participation and inclusivenessPolitical ownership, collaboration and approvalFinancial sustainabilityAchieving co-benefits and balancing trade-offBuilding local capacityTransferableMonitoring and evaluation
LUTP, 2009 UITP, 2009 Integrated Transport Planning Limited, 2010

The Lagos Urban Transport Project (LUTP) popularly known as the Lagos Bus Rapid Transit (BRT) project was launched in 2008 by the Lagos state Metropolitan Area Transport Authority (LAMATA). It is a scheme launched to tackle traffic and transportation problems in the city of Lagos. Since the early 2000s, moving around Lagos for commuters was a serious challenge because, by the turn of the century, Lagos had become the sixth largest and one of the fastest growing cities in the world, struggling with an unreliable public transportation system. Lagosians relied for their mobility on a fleet of about 75,000 privately-operated 'danfo' (minibuses), together with a smaller numbers of midi-buses called 'molue' and 'kabu-kabu' (taxis) run mostly by individual operators. With close to sixteen million bus trips made daily in the city, traffic congestion is rife and public transport often costs commuters over 30 percent of their disposable income. A lack of planning and management capacity contributed to the poor level of urban transport services. The Lagos Urban Transport Project (LUTP) was designed with the objective to enhance the efficiency of the transport network in such a way that it contributes measurably to poverty reduction, and to sustainably improve the sector's management capacity including a reduction in GHG. The flagship project was the Lagos BRT service. It was introduced as a bus-based mass transit system that delivers a fast, comfortable and cost-effective service. Through the provision of exclusive right-of-way lanes and excellence in customer service, BRT essentially emulates the performance and amenity characteristics of a modern rail-based transit system, but at a fraction of the cost.

In the last five years of operations, the BRTsystem has moved more than 400 million passengers. The LUTP Following the huge success of the first phase of the project concrete plans are in place to extend the project along 8 new corridors in the state.

1. Knowledge building
The Lagos BRT project has contributed actively to learning with respecting to climate change mitigation strategies. The focal point of the project is that when it comes to cutting emissions from transportation (which is the largest contributor to greenhouse gases emissions in Nigerian cities), the only way to discourage the purchase of dirty and inefficient second-hand vehicles is to improve public transportation. The 22 km BRT-Lite corridor has triggered substantial demand for additional mass transit services to be developed in the Lagos metropolitan area, thereby contributing to learning in terms of providing a mass transport system as a form of mitigation by cutting emissions. A number of stakeholders were involved in the project ranging from institutions, finance and political agencies. Comprehensive studies have been conducted from within and outside the country to assess the impact of the BRT project. For example, the Nigeria Infrastructure Advisory Facility (NIAF) Project Completion Report, on LAMATA has shown how the use of transport planning models has led to reduced journey times and a greater ease of movement in Lagos.
2. Community participation and inclusiveness
Participation and inclusiveness on a project of this scale centers mainly on social justice, meaning how, in this case, the livelihoods of the danfo, molue, okada and kabu-kabu (taxis) drivers run mostly by individual operators have been affected by the BRT scheme. This was evidenced in the planning and operation stages of the BRT project. In the planning stages, the private road transport workers were are crucial part of the assessment and design of the system. The stakeholders engaged the commuters in order to understand their needs and incorporate them into the design of the BRT scheme. In addition, the BRT project is also gender and children sensitive. Before the addition of queues, only the strongest could push their way aboard. Now with the queuing system (waiting in lines) women can get on the buses easily. It also makes them avoid using riskier motorcycle modes due to the sitting position for women on these motorbikes. Also, children get to ride free to schools on the BRT buses. The Local authorities consider the project has been successful because of the general public’s acceptance of the scheme that has used awareness campaigns, interaction and quality service experience.
3. Political ownership, collaboration and approval
The project has worked under one single entity, LAMATA which was able to enable the system and provide a legal process as well as institutional restructuring. Before the implementation of the project all regulatory and planning authorities worked independently.
4. Financial sustainability
Two contrasting approaches were taken to financing the large buses needed for the BRT-Lite system. In one approach, 100 new buses were procured by the private sector without any direct public support. In the second, 120 buses were procured by a state-owned company and then leased to the private sector operator (an additional 40 buses were operated directly by the state-owned company). First, the scheme design gave the bank the initial “lien” (a security interest) on revenues collected from services; only the balance (after the deduction of financing costs) was passed on to the operator. The bank also was given the right to act as ticket distributor and security monitor. Second, the scheme design required the participating operators to accept collective liability for all the obligations into which they enter. Any individual default, whether by embezzlement of revenues or through vehicle unavailability (perhaps as a result of an accident or mechanical failure), would be met by an additional charge on all the remaining members. When the default was fraudulent, the individual would also lose his deposit/collateral (although this provision was deliberately set at a level that would not entail loss of all a deposit/collateral so that it would not be a deterrent to participation in the scheme). The World Bank, joined by the “Agence Française de Développement” (AFD) is currently working with its partner Lagos Metropolitan Area Transport Authority (LAMATA) to prepare a new project (LUTP 2) to help meet some of this demand, at a total cost of about $350 million. The phase 2 of the project is to automate the system by introducing online updates and ticketing for easy access by the public and expand on the railway network. The injection of funds from the AFD and the World Bank shows LUTP’s success in engaging financial support for sustaining its impacts and scaling up successful approaches. The LUTP business model has so far been profitable and has therefore become increasingly attractive to environmental and development-oriented venture funds. The LUTP approach has proved to be more sustainable than other financial aid schemes (notably grants) that rarely generate the right expertise to expand project impacts.
5. Achieving co-benefits and balancing trade-off
The LUTP has generated considerable co-benefits from many different sectors, including transport, health, environment and most remarkably employment and mitigating measures for GHG emissions. It has also contributed to income generation by reducing the urban disposable income spent on transportation from 30% to 20%. Also, by improving the road network money is saved on vehicle operating costs with minimal effect on the passengers financially. Social cohesion is also improved by reducing time spent on the road by 33% which means more quality time spent with friends and family. According to a study by the Lagos Metropolitan Area Transport Authority (LAMATA), it claims that Reduction in transport related greenhouse gas emissions was measured to be around 13% in project areas – due to the use of the buses and reduce trips of private cars. Also in terms of health and the well-being of the citizens, a reduction of 20% in road accidents was observed between 2009 to 2012 as a result of improvement in traffic management and the gradual shift from dangerous urban commuting modes such as the Okada to better public transport modes.
6. Building local capacity
The greatest strength of the LUTP project in terms of building local capacity lies in strengthening the institutional capacity of the operators. Even though the BRT-Lite system is a Lagos State Government initiative, the construction of the BRT-Lite infrastructure was contracted directly by Lagos Metropolitan Area Transport Authority (LAMATA) and not through the Lagos State Ministry of Works. LAMATA as the sole operator of the scheme therefore benefitted from national and international capacity building schemes. For example through collaboration with DFID, 5 graduate transport engineers resident in LAMATA have been trained since 2008. Also, oversight of primary traffic management and enforcement in the state lies with the Lagos State Traffic Management Authority LASTMA, a body that reports to the State Commissioner for Transport. Co-operation between LASTMA and LAMATA improved markedly in recent years, and so LASTMA was prepared to commit to the BRT-Lite scheme the significant resources needed to protect the exclusive use of its infrastructure and to manage traffic conflicts in the box junctions at the various highway merges and demerges. The cooperation of these bodies could not be taken for granted, as it is not the ‘norm’ when it comes to institutional efficiency in Nigeria.
7. Transferable
The macro-economic context of application and the problems addressed by the LUTP programme tend to be broadly similar across most sub-Saharan African countries. This is the main reason why the initiative’s replication potential is so high. Another equally important reason is the model’s intrinsic flexibility. The Lagos BRT - ‘Lite system is Africa’s first Bus Rapid Transit Scheme. The project draws from best practice examples of Bogota (Colombia) and Curitiba (Brazil) but adapts the concept of the African context. The key lessons learned are transferable to other African countries, where they could feed into the design and implementation of solutions tailored to each context. This has already been noticed as the scheme has been replicated in Johannesburg for example.
8. Monitoring and evaluation
In the first stage of the project more attention was given to improving the transportation experience of Lagosians. Four main users’ needs namely safety, comfort, affordability and a reduced journey time was the focus of the project. Figure 3: Feedback from the commuters on the performance of the BRT scheme. Source: Integrated Transport Planning Limited, 2010. It is seen that a larger percentage of the population seem to agree to the positive benefits the BRT mode of transport provides. More recently, the focus has been shifted to other elements. These include first, developing operational techniques and promote the use of ITS technology to enable safe and efficient deployment of BRT and then subsequently, planned integration of a light rail system and expansion of routes (one of them is expected to be finished in December 2014).
Funding

Source of funding

International - Bilateral

Funding description

World Bank, Agence Française de Développement (AFD) 

Author

Name: 
Rocio Diaz-Chavez
Address: 
Center for Environmental Policy, Imperial College, London.
Name: 
Hafiz Bello
Address: 
Center for Environmental Policy, Imperial College, London.

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