Decongesting Lagos State Roads (2019)

 DOCUMENT PURPOSE

By LT

Written in 2019

 “Don't bother people for help without first trying to solve the problem yourself.” Colin Powel

The purpose of this short paper is to put forward some alternative, short ,  medium to long term

solutions to decongest Lagos state roads from static vehicles, especially at major thoroughfares. Most glaring are the dead-weight trucks, parked on major bridges and roads within the state.

Hopefully, It should also provide the reader(s) with a “bird’s eye view” of some of the teething problems and solutions already attempted within state by other stakeholders and hopefully get the reader ”up to speed” and involved.

Lastly and worth a quick mention, that this paper is not about attributing blame or otherwise to any party/stakeholder, the sole objective as mentioned, is to assist, in resolving the congestion issue.

 

Many Thanks.

OVERVIEW

Currently, approximately 12,340 tankers and container-laden trucks are illegally parked in different parts of Lagos.

Not just the entire stretch of the dual carriage Oshodi-Apapa Expressway and inward Tin Can/Apapa,  as witnessed in the past, but dangerously, this menace has now moved to major thoroughfares within Lagos state.

The economic and social impact to the state and its citizens cannot be understated.  Not just

·         The countless lives at risk, due to the dead weight of the trucks.

·         The many bottle-necks & unnecessary accidents created

·         The security implications, from the incessant robberies on the bridge and around the trucks.

Not to mention the cost implications, as only when accurate costs are also attributed, can we fully grasp what the state losses each day.  One such statistic(s) as at September 2017 put the figure at N140 billion WEEKLY! {5}.

Add one of the largest truck companies, a key stakeholder, the Dangote group, was quoted as saying “We lose about N2 billion monthly to the perennial traffic gridlocks on Apapa Port roads every month” {6}.

Many functional businesses have shut down due to the unending blockade, turning many booming commercial communities in Apapa into a ghost of its former-self and spilling into all other environs {5}. 

This is most concerning, and in dire need of urgent solutions. Putting some figures as to what constitutes dead-weight on the bridges,  for example:

1.       An empty 20-feet container weighs appx 2,000 kilogrammes.

2.       A 40-feet container doubles the kilogrammes at 4,000Kg.

3.       An average truck weighs about 14,000 kilogrammes,

4.      The total weight of just 25 stationary trucks on the Ojuelegba Bridge could be around 450,000 kilogrammes. This is besides the weight of other vehicles, including loaded moving trucks to other destinations.

5.       The implication is that the four bridges on the Western Avenue area of the city – Ijora, Stadium, Ojuelegba and Abati Barracks – pack a massive 1.53 million kilogrammes plus, on an average day.

Most of the bridges were constructed during the 1970s oil boom. The nation would need $8 billion yearly to close up the huge gap in its public infrastructure and about $14 billion every year to fund infrastructure. Regrettably, current spending on infrastructure is an estimated $6 billion. {14} Moreover, the funds to build, such solid structures again, is scarce and best appropriated elsewhere

So, It is not rocket science, to say these bridges were not designed for parking such heavy dead-weight vehicles, resulting in the severe road congestion, bridge-fatigue and rapid deterioration of an already maintenance-required road(s) and bridges.

Add to this, In 2003, the Nigerian Institute of Structural Engineers noted that the parking of vehicles along the span of the bridge may result in collapse if left unaddressed.{7}

Eko bridge, which is the shortest of three bridges connecting Lagos Island to the mainland, besides the Third Mainland, Carter, Abati Barracks, Ojuelegba and Stadium bridges, serves as a major vehicular artery and the preferred route, mostly for citizens within the Ikorodu to Suru-lere  axis.  

Needless to say, citizens and private businesses within these areas bear the major brunt, due to the bridge(s) proximity and mayhem imposed on them.  Several factors and not limited to those mentioned below have contributed to the spill-over of trucks on our roads and bridges.

In no particular order, some of the contributory factors to the congestion listed below:

1.       Deplorable state of roads leading to/out of the port.

2.       The disparity between several trucking unions plus the belief as being untouchable.  Since owners of the some of the truck businesses are perceived to be highly connected in government.

3.       Some companies not complying with directives to acquire and operate holding bays, meaning they lack the capacity for the truck business.

4.       The deplorable state of some of the trucks, truck break -downs, truck accidents, truck fires etc, causing a chain reaction to already existing traffic mayhem and the never ending anguish of citizens.

5.       Some companies importing a larger number of containers than empty containers exported thereby, making the country a dumping ground for empties, taking up valuable space.

6.       Past action(s) or any intended action by NPA to suspend companies triggers the union to unleash their horde of trucks on the expressway and surrounding roads, causing horrendous traffic congestion.

7.       Friction among maritime statutory agencies due to overlapping functions

8.       The current analogue system of port operations needs to be replaced with a digital system.

9.       Despite the improved turnaround time, unnecessary delay of vessels by government officials upon arrival and before departure is still commonplace.

10.   Bureaucratic bottlenecks:  Vessels arriving at our port are first kept waiting for appx six hours, by the authorities, under the guise of searching, rummaging and performing other regulatory functions.  Whilst trucks to ferry the load(s) already creating a nuisance in and around the ports.

11.   The brutality and extortion of security personnel managing the traffic system, also a compounding factor

12.   Lack of expansion of port infrastructure despite increase in population and businesses.

13.   Little interest from the federal government in fully participating to resolve the several issues

14.    The spill-over from all mentioned, impacts all other would-be calm areas, within the state, as suffering motorists and commuters are forced to use alternative routes which are few and far between, causing more mayhem elsewhere.

15.   Other triggers, adding to congestion are closure of the Wharf Bridge from Apapa to Ijora compounding the bottle-neck.

16.   Inadequate power supply and incessant removal of management of government agencies in the nation’s maritime industry impedes the efficient running of the ports

17.   The proliferation of tank farms around the port locations, especially in Lagos, saying that they constitute a security risk to the ports and adding to trucks plying that route. See reference on Apapa Gridlock: Reps Raise Alarm; Want Relocation of over 60 Tank Farms. {12}

18.   Urbanisation also a contributory factor, worth its mention. More people now working, living and transporting within these areas mentioned, compounding the negative effects.

19.   Petroleum imports account for roughly 20% of Nigeria’s imports, and oft-time, comes in through the Lagos ports. The absence of a strong network of pipelines for transport and depots for storage has effectively rendered the other ports useless in this situation. See above issue also.

20.   The poor implementation of the nation’s Cabotage Act 2003 was one of the factors militating against the growth and development, see references below. {4}

21.   Lack of adequate regulations/directives form Federal government to reduce congestion, for example, some trucks with export goods etc, waiting on the roads to offload their cargo, can be encouraged by government designation of, the Port Harcourt or Calabar port for export of cocoa, cashew and charcoal, and those exporting melon and other items can go to Tin-Can or Apapa Wharf. Whatever the case, careful analysis of cargo and other ports infrastructure requires further investigation to aid in the ease {10}.

Many other factors yet exist. Asides, the productivity of the port should also be a major area of concern to our nation, in lost revenues.  Certainly the N300 billion declared by the NPA as total revenue for the 2017 fiscal year, can be improved {30}.

Add this to, current government policy, on the need for diversification of the economy, importers/exporters face an up-hill task and also a major barrier to entry for new business opportunities.

This supply chain inefficiency is glaring to all and needs to be fixed and quickly, the bad roads, trucking/transportation problems, ocean carrier problems etc, all lead back to the terminal (root-cause). Hence the need for short term solutions, quick-fixes are required while long term solutions underway, are also monitored. 

 

CURRENT/ONGOING (TRUCK) DECONGESTION SOLUTIONS

Introduction

Lagos State is faced with challenges in all three dimensions of sustainable development, Economic, Social and Environmental. This Lagos state congestion (trucks) issue impacts all 3, at the micro-level, resulting in huge economic, social cost, security challenges and endangering the fragile state of the economy.

Several plans are already afoot by stakeholders to rid the state of the congestion menace. Not all have been effective or successful and some even sabotaged, such as the disregard of directives by state government for the removal of trucks from the bridges.  

Some of the plans already attempted/”in implementation” are as follows:

1.       The tripartite arrangement involving the federal government represented by the NPA, the Dangote Group and the Flour Mills of Nigeria (FMN) to reconstruct the Apapa Road now completed.

2.       The commencement of construction work and closure of a section of the access road at the Barracks to Flour Mills axis, the traffic gridlock has worsened, permanently extending to the Costain Bridge, Barracks in Surulere and the Jibowu Bridge (as above, some areas now completed).

3.       Stakeholders including the Lagos State government and the Nigerian Navy met on Wednesday March 7, 2018 at the Naval Base, Apapa, they issued a 48-hour deadline, after their meeting, to all truck drivers to vacate the bridges that had become their “home” as they waited to access the port.

4.       Enforcement agencies deploy palliatives aimed at decongestion. State police manning all flash points. Regardless the congestion continued in some flash points as a result of road damage and even increased in the number of trucks and fuel tanks heading towards the Port.

5.       Long-term solution: The Lekki Deep Sea Port development including both Lagos State and the Federal Government with NPA stake-hold still ongoing.

      The reader is in the best position, to ask if any of the existing or implemented solutions have worked. As the impact of its success or failure, is visible and felt immediately by the citizens. This is why more needs to be done.

DECONGESTION SOLUTIONS (To-Be)

Lagos state’s rapid urbanization, undoubtedly has added  pressure to the states resource base, the increased demand for energy, water, sanitation and public services (transportation, education and health care) etc.

 Since 2007, more than half of the world’s population has lived in urban centres and it is estimated that the proportion will have exceeded 70 per cent by 2050. Eighty per cent of the world’s urban population will live in developing regions, especially in cities of Africa. This is why any such short/long term plans has to factor that growing population within the state for sustainable development.

 

As such, the priority will be on decongestion with value added port management strategies to aid.  Below are some solution suggestions, short term, meaning a quick-win, which we are most interested in, medium term could potentially, also be a quick win depending on nature of the solution proposed.

 

Roads repair/maintenance

1.       Short term solution: The Apapa-Wharf road has now been completed appx 14^th January 18, through Public Private Initiative (PPI) by AG Dangote, supervised by the Federal Ministry of Works and Housing. The completion of the road should bring some relief to transporters and motorist alike. Efforts should now be made to ensure other solutions mentioned below are implemented to ease congestion created and remove trucks from the roads.

2.       Medium/Long term solution: Critical is the need for all road repairs, especially on the bridges mentioned and all roads leading into the ports.

3.       Short term solution: See call up system solution below.

 

Allocate truck holding bays outside city limits

1.       Medium/long term solution: Establishment of holding bay trucks as requested by maritime stakeholders, association of maritime truck owners (AMATO). They have appealed to the federal and state governments to establish more holding bays, as well as also showing their interest in acquiring/managing one. The merits of this should also be closely scrutinised, as unions currently weld too much power {15}.

2.       Long term solution: As at the 2^nd quarter 2018, Lagos State Government announced it would immediately take over the ABAT Truck Terminal Orile-Iganmu, with a capacity of 3000 trucks for immediate repairs {16}. The project delivery date should be speeded-up and project management strategies adopted in its aid to completion.

3.       Long term solution: Other stakeholders have called for the transformation of Lilypond Container Terminal in Ijora, which can accommodate about 7,000 trucks and concessioned to a private operator as an Inland Container Depot, converted back into a truck transit park. For such capacity, one can understand why so much trucks now on the roads. This proposal requires serious attention and urgent investigation into the pros & cons.

4.       Short term solution: Temporary holding bays, using vacant lands, quickly making it useable for the trucks/ empty containers whilst long term solutions in progress. Some of these may later be converted to proper holding bays.

5.       Short/long term solution: Regulation and monitoring of any private/government holding bay is critical, otherwise we quickly reverse to status-quo.  See also enforcement below.

6.       Short/long term solution: The need for urban planners, to identify suitable locations, working in conjunction with interested private enterprise and government cannot be over-stated for any sustainable development.

7.       Long Term: Shipping companies given incentives to own their holding bays by government, as they should normally. So empty containers delivered directly to their holding bays.

 

Reduce truck waits at port, call up system for trucks in holding bay

1.       Short/long term solution: As part of measures to ease the perennial gridlock in Apapa and its environs, the Nigerian Navy introduced a “call up card system” for trucks that have business to do at the ports. This is even as the Nigerian Ports Authority (NPA) said trucks would no longer be allowed to take empty containers directly to the port {18}, this manual call up system should be improved in the short term with strict enforcement, until proper implementation of digital/automated system. Again monitored for abuse.

a.       (Medium-Long term)  NPA’s attempt to introduce a digital call up card system is in place. This should be monitored for its progress and/or delivery timescales {20}.

b.      As mentioned earlier, with the completion of the Apapa to Toll gate stretch of the expressway, this should now enhance the truck call up system, improving operations and decongesting the roads.

2.       Short term solution: Seek solutions for dual transactions, dropping off empty containers and pick up imports, adding more truck to queue. See holding bay solutions.

3.       Long term solution: Plans to increase port capacity/infrastructure should be prioritised as most urgent. See also NPA’s budget & financial statement {28}.

Increase port(s) productivity and operational time

1.       Long term solution: To put into perspective, our ports are the major gateway to international trade, not only for the country but other neighbouring land-locked countries, inclusive. In this regard, improving the current infrastructure and roadmap for expansion would not be out of place. From updating its technology, expanding its mooring facilities to accommodate more ships, cargo handling & sorting facilities, mechanical handlers etc. See also NPA’s budget & financial statement {28}.

2.       Short term solution: Improve on the implementation, security & monitoring process of 24 hour operations at the port, Even if for empty container off-loading at designated hours.

a.       Currently, the Executive Order from VP Osinbajo since May 2017 directed the Nigerian Ports Authority to immediately embark on a 24-hour port operation across the nation. Stakeholders, however, noted that the implementation of the order had not been successful due to challenges of non-availability of some key government officials to effectively carry out their duties and responsibilities, and the fact that stakeholders (importers/clearing agents etc.) did not work for 24 hours for security reasons {22}.

3.       Medium/Long term solution: Monitor delivery timelines for opening of other ports being constructed in the state and if possible, for speed-up & phased delivery.

Traffic management

1. Long term: All ports should have a traffic management/emergency plan. This plan, if in existence may not be adequate.  This plan should be a living document and should kick-in, in the event of traffic disruptions in the future.
2. Short-term solution: The NPA should encourage the use of the waterways to move cargo in barges into the hinterland since this is bound to reduce the pressure that the heavy tonnage of cargo movement put on the roads,” like Connect Rail, one of the companies licensed for barge operations has recorded 316 and 260 TEUs for exports and imports respectively.  More companies as indicated by NPA should be fast tracked to aid in this process by giving them probationary licences, based on performance.
3. Short term solution: All state/federal traffic enforcement agencies should identify all bottlenecks and congestion spots and deploy their staff to all areas from the ports to as far as Ikorodu road and all bridges mentioned, to manage the traffic. This in conjunction with security agencies.
4. Short-Long term solution: Truck/car towing vehicles stationed at identified key areas for quick removal of broken-down or non-compliant vehicles. On a long term basis, the state and NPA, should consider acquiring different types of truck towing vehicles, for speedy removal of accident or broken-down trucks. This also useful for enforcement, towing of non-compliant trucks, such as when directives are given, the trucks remain in the same place and drivers nowhere to be found.
5. See also enforcement section below, which has a close coupling with traffic management. See also recent traffic management paper 

Congestion communication Plan

1.       Short term solution: As part of the NPA and States communication strategy, a congestion communication plan should be developed, providing all relevant actions, plans, including road rehabilitation, delivery dates, holding bays in development etc. This should be communicated to all stakeholders and citizens alike on a scheduled regular basis and their websites updated to accommodate this information.

2.       Short term solution:  once a communication plan is adopted, this should trigger oft inter agency meetings between all stakeholders, which should involve some ordinary citizens for non-partial input/observation.

 

Tariff/Charges, Levies

1.       Short term solution: different areas where incentives, fines can be used to encourage and discourage stakeholders. Such as:

a.       Higher tariffs for delayed cleared containers and lower tariffs for goods cleared and dispatched promptly.

b.      Lower tariff for goods shipped to other ports (eastern flank) within the country, to attract usage.

c.       Levies on trucks with no business around the ports and on the roads, once holding bays or suitable locations identified or directives issued.

d.      Levies for truck breakdowns etc. This list is endless, but a valuable tool to use as an deterrent or incentive. Key as mentioned is proper enforcement.

Enforcement

1.       Short term solution: One cannot stress enough, that the success or failure of all suggestive solutions in this document hinge on each other. Most importantly, the need for proper monitoring and enforcement of all other solutions mentioned.  Complaints in the past, towards enforcement, depicted them as a part of the problem. The heavy-handedness and allegations of bribes for jumping queues etc, All need to be addressed promptly.

2.       Short term solution: Enforcement, such as fines for trucks milling around in search of customers should be enforced to deter re-occurrence.

3.       Medium/long term: Enforcement of fines and other punitive measures for truck breakdowns on the bridges and major roads.

4.       Short term solution: Enforcement of truck drivers maintaining a single lane while driving on the road or bridges or during work hours, so that other road users can move freely.

5.       Short term solution: Enforcement, by limiting the amount of container throughput via the port, especially for erring shippers.

  

CONCLUSION

It cannot be understated, the many attempts by different stakeholders in resolving the truck congestion menace in Lagos state.

Many of such highly commendable efforts lacked the management strategies to follow them through to fruition and further. Any congestion alleviation plan requires its equivalent compliance and enforcement strategy and is most critical to ensuring proper measurements can be obtained on its success or failure.

As witnessed, many such plans often fell short on the implementation, enforcement and continued monitoring e.g. directives from state government to remove the trucks from the bridges. And not much was done to enforce the state directives.

To this end, certain options are proposed to rid the truck congestion menace. All options are rated with an asterisk “*” to indicated the value, more asterisk means better proposal value.

 

Option 1 (*****)

Public & private partnership (PPP), the state government creates an enabling environment for T&T a private company, by entering into a PPP arrangement.

This arrangement ensures business efficiency and success, fosters private sector involvement, and ultimately spurs economic growth. It also ensures that government does what it should do best, by creating the enabling environment for business.

This PPP (contractual) arrangement will include regulations incentives, monitoring and enforcement, (RIME) for our purposes.

Incentives

·         Land incentives.

·         Tax incentives.

·         Import incentives.

1.       Land Incentives: The state government will identify suitable land along with private partner, for use as holding bays, most especially around the ports. The land should have the capacity to park 1000+ trucks, at minimum. The bigger the better, to accommodate other value added facilities, to be provided for the trucks.

2.       Import incentives for the private partner, to import tow trucks, ensuring speedy removal of broken-down trucks etc.

3.       Tax incentives to ensure business uptake, assist in getting business “up to speed”. This will aid the cost of capital by private partner in technology (call-up system integration with NPA, making suitable for use, any land identified etc.)

Regulation

1.       All trucks must maintain a strict driving lane, ideally on the slow lane, when driving on state bridges, 2 lane roads etc, except only, when overtaking

2.       All trucks within the state should be fitted with a GPS tracking, making it easy to track errant trucks with no business around the ports or parked illegally.

3.       All trucks within the state should be certified as road-worthy, otherwise, company providing such certification also liable along with truck owner for dangerous trucks on the roads.

Enforcement

·         See also enforcement section above. The success of any option implemented in this document, largely depends on its enforcement. Any regulation adopted will require proper enforcement or its value quickly eroded. Dealing with transport unions, truck drivers, is not just anybody’s “cup of tea”. Hence why the need for enforcement agencies need to work with the supervision of private partner and also be located at holding bays.

 

Option 2 (***)

This option is a Government owned option, fraught with different risks. The only private sector involvement, is the consultancy/company managing the project.

The state set-up a congestion resolution group, tasked with, not only the in-depth analysis and implementation of solutions, but the on-going monitoring, enforcement and adjustments of solution to situation “fit for purpose”.

As a minimum, the group should consist of:

1.       A Project head form the private sector, of which T&T is also well positioned to assist.

2.       NPA representative(s)

3.       Union representative(s)

4.       Maritime representative

5.       On notice, naval representative(s).

6.       On notice, Federal stakeholder representative(s)

7.       Lagos State stakeholders, of which

a.       Urban Planners

b.      Transportation

c.       Lands

d.      Enforcement agencies

e.      Finance

f.        Plus the mandate to quickly requisition other stakeholder as required.

This group will be empowered to seek quick solutions and implement, monitor existing plans, implemented solutions, and enforcement in addition to other duties.

They will exist until long term solutions, such as commencement of operations of new ports within the state.

 

Option 3

The do-nothing or continue as-is option.

 

 

 

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