2007 Urban Remote Sensing Joint Event

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GIS As a Tool for Efficient Functioning of Local Governments in Nigeria – Case Study of Ifako-Ijaye LGA in Lagos, Nigeria

Ademola OMOJOLA & Mayowa FASONA Department of Geography, University of Lagos,

Lagos, Nigeria

demola_omojola@yahoo.com,

Abstract—This study demonstrated the importance of GIS as an

indispensable tool for resource mobilization and service delivery

in LGA administration in the developing countries. The case

study area was Ifako/Ijaye, a metropolitan LGA in Lagos,

Nigeria. Attempt was made to track the spatial asset base of the

LGA using high resolution satellite imagery and GPS campaign

and the data were integrated and analysed for economic returns

within a GIS. The results show that there are about 18,947

properties (building stocks) and about 370.6km of transport

artery within the LGA. The property-facility ratio for the LGA

is as low as 9,474 for parks/recreation, 4,737 for police station

and 702 for clinics/health centres. The LGA can also make a

conservative one hundred and forty-two million naira as

internally generated revenue annually if GIS is employed. The

study also discusses how the GIS database will assist in

instituting transparency and efficient service delivery by LGAs in

Nigeria.

I. INTRODUCTION

The plank of the Millennium Development Goals (MDG) adopted in September 2000 during the 55th Session of the

United Nations General Assembly is the development of the

people. Prior to that and far back as 1974, the United Nations

Environmental Programme (UNEP) and the United Nations

Conference on Trade and Development (UNCTAD) through

the Cocoyoc (Mexico) declaration had affirmed that

development should not be to develop things, but man. The

declaration noted that human beings have basic needs

including food, shelter, clothing, and education and any process of growth that does not lead to their fulfillment or

even worse, disrupts them is a travesty of the idea of

development [8]. The whole essence of government and

governance is predicated on stimulating and sustaining

development within the society. The welfare of the people, as

has been long postulated, should be the paramount law. A

government (at any level) that shirks its responsibility of

service delivery to improve the welfare of the people has lost

its essence. One sure tool that can enable efficient service

delivery and revenue mobilization for government is

geographic information system (GIS). Much as this tool has taken over government thinking and planning in the developed

world, it is still viewed in some parts of the developing world

as a technology fit only for rocket scientists!

It is a fact that one most recurring reason often advanced in

Nigeria by successive administrations for the creation of more

local government areas (LGAs) is the need to bring

government closer to the people. In other words, the purpose is to stimulate development both in terms of the welfare of the

people and provision of infrastructure. The spatial conceptual

framework for LGA can be situated within the growth pole

theory of regional economics [9]. The growth pole, in a way,

is a method of decentralization of development. Rather than

creating a single or few urban centers with the rest of the areas

becoming an appendage feeding the center, small growth

centers can be created all over the area. These centers act as

growth nuclei from where development radiates to their

immediate peripheries, thereby preventing few sprawling

urban centers that grossly underdeveloped the peripheries. This is the local/regional economic development idea behind

creation of LGAs as the third tier of government in Nigeria.

Unfortunately, judging by past and present experiences on the

conduct and performance of LGA administrations, the LGAs

in Nigeria have not been able to act as growth nuclei which

they are supposed to be. The reasons for these are mainly

political, administrative and technical. The technical aspect of

the problem which is the concern of this paper is the lack of

data and information about the resources and materials

available to the various LGAs. An LGA is a closed entity in

space with its size, population, land uses, urban and rural communities, road networks, commerce and services and

natural resources. These are supposed to be harnessed to

generate or stimulate development within the LGA. Revenue

mobilisation to provide infrastructure is a task which every

LGA in Nigeria is supposed to take seriously because of

uncertainties and dwindling resources from the Federal

Government. A case where LGAs depend almost 100% on

revenue from the central government does not portray

seriousness. LGAs are supposed to be able to mobilise local

resources to improve service delivery and quality of life of the

people.

The LGA administration is a spatial-administrative structure which is supposed to bring development to the grassroots [11].

The lack of success in LGA administration in Nigeria can

substantially be traced to the relegation of the space concept to

the background with all attentions focused on economic

planning [10]. In those countries that have realized that

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economic planning theories are not implemented in abstract

space, no level of administration (local/county, state/regional, and central) joke with spatial data. Spatial data provides the

basic bedrock or platform on which development activities in

space rest. Reference [3] likened successive leaders in the

country to magicians for dare to plan without maps and spatial

data. It is analogous to attempt to navigate the Atlantic without

a compass. You wonder how many LGA administrators in

Nigeria can tell you off-hand the total length of roads, or the

total number of properties, or the total area of agricultural

lands in their LGA, not to talk of the more intricate details.

This spatial-illiteracy definitely reflects in all aspects of

planning – infrastructure/facility provision, revenue mobilization, service delivery, community/neighborhood

security, crime control and policing, social and emergency

responses, etc – within the LGAs. GIS is therefore required for

generating and managing spatial information for the purpose

of making space-guided decision in the LGAs.

A GIS can be defined in several ways depending on who is

describing it and what the use of the expected end-product is.

Reference [4] defines a GIS as computers based system that is

used to store and manipulate geographic information. Roger

Tomlinson, one of the pioneers of GIS defines it as a

configuration of computer hardware and software specially

designed for the acquisition, maintenance and use of cartographic data. Reference [5] sees a GIS as a powerful set

of tools for collecting, storing and retrieving at will,

transforming and displaying spatial data from the real world,

while [6] describes it by the types of space-linked generic

questions which it is designed to provide answers. Reference

[7] view GIS from the viewpoints of professionals and what

can be done with the tool. In succinct form, a GIS is an

integrated system for handling and analyzing geographical

data. The power of a GIS lies in its ability to bring both spatial

and attribute data within a common framework to form a

unified database system and compare different entities based on their common geographic occurrence through the overlay

process.

II. THE STUDY AREA

The Ifako/Ijaye, an urban LGA within the metropolitan Lagos

is the study area. It is located roughly between Longitudes

30151 to 3020E and Latitudes 60371 to 60421N. It has a total area

of about 26.5km2 and a perimeter of about 29.1km. It shares

boundary with Ikeja and Agege LGAs in the southeast and

southwest respectively, Alimosho LGA in the west and Ogun

state in the east and north (fig 1).

Fig 1: Lagos Urban LGAs showing the study area

It is one of the 16 LGAs in the Lagos metropolitan area. It has

a total population about 328,397 in 1991 [2] and a 2005 mid-

year projected population of 742,474 (using the estimated 6% growth rate for Lagos State) which translates into a population

density of 28,018. This probably makes the LGA the sixth

highest densely settled LGA in Lagos State and by any

standard one of the highest in Nigeria and in the world.

Service delivery that will in the least benefit the people in such

a densely settled LGA requires more than the traditional or

manual methods of documentation and resource mobilization

and allocation. The digital age has thrown up digital

challenges which can only be solved by applying digital

solutions. Hence, GIS is a tool which is much required for

solving resource mobilisation and allocation in such a

complex densely settled environment.

III. RESEARCH METHODOLOGY

A. Data

The main data utilised for this study is Quickbird Natural

colour high resolution imagery (fig 2). The spatial resolution

for the imagery is 60cm. It was acquired in January 2005. The

LGA administrative boundary was generated from analogue

administrative base map of Lagos State prepared by the Lagos

State Survey Directorate. Fieldwork was carried out with

Garmin S76 handheld Global Positioning Systems (GPS) to

collate data on location of facilities and infrastructure within the LGA. Attribute data on type, ownership, status, etc of the

facilities was recorded.

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B. Procedure for data analysis

1) Satellite imagery

Image processing – mainly image georectification and

enhancement- was done on the acquired imagery using ER-

Mapper software. The image was imported into Arcview GIS

software for thematic information extraction. The extraction of

informational layers was performed using the head-up

digitizing method. Head-up digitizing is a hybrid method of

image classification process that permits semi-automatic

combination of digital and manual analysis on remote sensing

data. The information classes are traced out from the image by

on-screen digitizing technique using the direct interpretation

approach described by [3]. This technique relies on the knowledge of the area to be classified. Prepared classification

scheme with codes and names for each desired informational

classes was used. Ancillary and reference data that can aid

correct delineation and interpretation was integrated with the

image data. The features of interest are identified, delineated

and classified (coded) and assigned into information classes

right on the screen.

The justification for using head-up (on-screen) digitizing

method is predicated firstly on the fact that image

classification and information extraction algorithms for high

resolution satellite data are still not fully developed within

most available commercial remote sensing and GIS software. Secondly, head-up digitizing method allows direct integration

of raster and vector ancillary data to aid image interpretation.

Fig 2: Quickbird imagery of the Study area

Thirdly, the analyst can concentrate on desired information

class of interest rather than classifying the whole area, and editing of already generated classes (or part of it) is easily

done by simply changing the assigned code or class name

using the relevant editing tools. The data layers generated

from the interpretation of the imagery include: road network,

properties/building footprints (coded as points), and open

spaces. The classification of properties into completed and

uncompleted was based on the roof condition. A completed

property in this case simply connotes a property which has

been roofed, and no more.

2) GPS Data

A GPS campaign was carried out with a hand held Garmin

S76 GPS to record the location and other information on

facilities/infrastructure available within the LGA. The attribute

of each facility was documented on field note. Table 1 shows

the classification for the infrastructures.

Table 1: CLASSES OF INFRASTRUCTURE

SN Primary Class Code Secondary Class

1 Traffic 11 Bus stop

2 Cemetery 21 Cemetery

3 Medical 31 Hospital/Maternity

3 Medical 31 Clinic/Health Center

4 Recreation 41 Fast Food Joint

4 Recreation 42 Hotel/Restaurant

4 Recreation 42 Parks/Club

5 Services 51 Commercial/Industrial Building

5 Services 52 Gas Station

5 Services 53 Religious Building

6 Market 61 Market/Shopping Center

7 School 71 Nursery/Primary School

7 School 72 Secondary School

7 School 73 Special/Higher Education

8 Police 81 Police Post

8 Police 82 Police Station

The GPS points and their attributes (on field note) were

downloaded into Microsoft excel, formatted and imported and

integrated into the GIS database within Arcview GIS.

3) GIS Analysis

Simple GIS functionality analysis including attribute

generation, re-coding and spatial statistical operations were

employed to generate results.

IV. RESULTS A. Road Networks

The statistics generated from the GIS analysis of the transport

artery extracted from Quickbird high resolution imagery for

Ifako/Ijaye LGA is shown on table 2 and figure 4.

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TABLE 2: ROAD NETWORK FOR IFAKO/IJAYE LGA

Sn Road Class Total length (km)

1 Expressway 25.3

2 Major Rd 6.7

3 Minor Rd/Street 327.3

4 Powerline 1.8

5 Rail 9.5

370.6

There is a total of 370.6km of linear transport artery within the

LGA. This consists of 25.3km of Expressway (dual carriage

roads), 6.7km of major roads, 327.3km of minor roads/inner

streets, 1.8km of powerline (with thoroughfare under them)

and 9.5km of rail.

B. Properties/Buildings Footprints

The analysis shows that there are 18,947 properties within

Ifako/Ijaye LGA (table 3 and fig 4). This consists of 17,921

completed buildings and 1,026 buildings under construction.

This indicates an average of about 41 persons per building.

TABLE 3: PROPERTIES IN IFAKO/IJAYE LGA

Property type Number

Completed 17,921

Uncompleted 1,026

18,947

Facilities/infrastructure

Three hundred and fifty-nine points for facilities were

captured during the GPS campaign within the LGA (table 4

and fig 4). This consists of 14 traffic stop points (bus-stops),

27 clinics/health centres, 42 commercial buildings (including

banks), 6 fast food joints, 35 gasoline stations and 6 hospitals.

TABLE 4: FIELD CAPTURED FACILITIES WITHIN IFAKO IJAYE LGA

Sn Facility Type No of Facility

1 Bus stop 14

2 Clinic/Health Center 27

3 Commercial/Industrial

Building 42

4 Fast Food 6

5 Gas Station 35

6 Hospital/Maternity 6

7 Hotel/Restaurant 25

8 Market/Shopping Center 33

9 Nursery/Primary School 93

10 Parks/Club 2

11 Police Post 1

12 Police Station 4

13 Religious Building 32

14 Secondary School 38

15 Special/Higher Education 1

359

Others include 25 hotels/restaurants, 33 markets and shopping

centres, 93 nursery/primary schools, 2 recreational park/club houses, 1 police post, 4 police stations, 32 recognised religious

buildings (church and mosques), 38 secondary schools and 1

special/higher education.

V. DISCUSSIONS

A. Service delivery

One key desire of LGA administrators in Nigeria is to be able

to mobilise resources both locally and from State and Federal

governments. This comes in form of what facility each arm of

administration (local, state and federal) and private individuals

are supposed to provide in the LGA. GIS help with spatial documentation of what is on ground, where are they located,

who provided them and to what extent (spatially) has it met

the desire of the people in the local government. In other

words, by knowing where a certain facility is located, we can

calculate the threshold of population that such a facility can

serve without overstretching it. For instance, it is easy to know

the extent (in kilometre) of road provided by Local, State and

Federal governments in Ifako/Ijaye LGA. We can also know

the state or situations of these roads and maintain a database

for repair and maintenance schedule for the roads. We can also

know (without stress) how many kilometres of roads are tarred

and/or un-tarred within our LGA. With these, budgeting and planning for infrastructure provision and maintenance

becomes very easy to make, defend and execute. We can also

know how many health facilities are provided by Local, State

and Federal governments together with the threshold of

population they can optimally serve and the areas where new

health facilities are required. The same applies to other

facilities such as schools, markets, police stations, fire

stations, etc.

Using our GIS data with limited attribute, a simple facility-to-

building ratio for Ifako/Ijaye LGA is shown on table 5. The

facility-to-building ratio gives an idea of how many properties (buildings) will be served by a facility. The results on table 5

show that within the LGA, there is one clinic to 702 buildings,

one commercial property to 451 buildings, one hospital to

3,158 buildings and one fast food joint to 3,158 buildings.

The LGA also has a police station to 4,737 building, one

hotel/restaurant to 758 buildings, a market/shopping complex

to 574 houses, a nursery/primary school to 204 buildings and

one secondary school to 499 buildings.

When this is translated into facility-population ratio by

multiplying the facility-to-building ratio with the average

number of people per dwelling (41), the facility-to-population

ratio is as high as one to 194,217 for police station, 129478 for hospitals, 20,479 for secondary school and 8,364 for nursery

and primary school.

The spatial distribution of these facilities (fig 3) may go a long

way to give clue to areas where new facilities are required

since sometimes, the number of facilities present may not be

as important as their spatial distribution and spread. Figure 5

shows the spatial distribution of health facilities within

Ifako/Ijaye LGA. We can assume here, for illustration

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purpose, that the LGA has provision of health facility as a

foremost priority.

Fig 3: Roads and Facilities in Ifako/Ijaye LGA

TABLE 5: FACILITY TO PROPERTY RATIO

Sn Facility Type No of

Facility

Facility to Property ratio (1:

Facility population ratio (using 41 person per dwelling)

1 Bus stop 14 1,353 55,473

2 Clinic/Health Center 27 702 28,782

3 Commercial/Indus

trial Building 42 451 18,491

4 Fast Food 6 3,158 129,478

5 Gas Station 35 541 22,181

6 Hospital/Maternit

y 6 3,158 129,478

7 Hotel/Restaurant 25 758 31,078

8 Market/Shopping Center 33 574 23,534

9 Nursery/Primary School 93 204 8,364

10 Parks/Club 2 9,474 388,434

11 Police Post 1 18,947 776,827

12 Police Station 4 4,737 194,217

13 Religious Building 32 592 24,272

14 Secondary School 38 499 20,459

15 Special/Higher Education 1 18,947 776,827

Fig 4: Properties in Ifako/Ijaye LGA Fig 5: Coverage of health facility at 500m zone of influence

2007 Urban Remote Sensing Joint Event

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In this case, if we assume that the LGA believed that the people should not go beyond 500m before they get to the

nearest basic health facility (either public or private), then the

only fully served areas in the LGA are the areas covered by

the 500m zone of influence (with grey background). All other

areas (with white background) are underserved. Thus, GIS

helps us to provide spatially efficient and effective service

delivery.

B. Revenue mobilisation

Effective mobilisation of revenue is crucial towards provision

of infrastructure and services, payment of salaries and wages, and efficient running of an LGA. A key limitation of virtually

all LGAs in Nigeria is that they do not have good idea about

the resources that are available to them which they can convert

to broaden their revenue base. Most LGAs have therefore

resulted into waiting for the fund from the federation account.

In LGA (especially urban LGAs) where the so called

“aggressive revenue drive” is carried out, much energy is

directed towards harassment of motorists, cyclists and petty

traders - the very population which they are supposed to be

responsible. Hence touts and street urchins are engaged to

collect levies. This is a result of lack of data and information

about the sources of revenue that are available to the LGAs. In this case study, if we assume that each taxable facility in

Ifako/Ijaye LGA will pay a nominal fee of N2,500 per annum

as annual due (or operating or ground rent) to the LGA, and

each property (building) will attract N7,500 as tenement rate

per annum from the LGA, then the LGA will be able to

generate about N142,952,500 (approximately US$ 1,099,634)

from this source every year (table 6).

TABLE 6: GIS ASSISTED PROJECTED LAND RESOURCE BASED

REVENUE FOR IFAKO/IJAYE LGA

S

n

Sour

ce

Numbe

Assumed

yearly

obligatio

n (N)

Accrued

annual

expenditur

e (N)

1 Clinic/Health Center 27 2500 67,500.

2 Commercial/Industrial Building 42 2500 105,000

3 Fast Food 6 2500 15,000.

4 Gas Station 35 2500 87,500.

5 Hospital/Maternity 6 2500 15,000.

6 Hotel/Restaurant 25 2500 62,500.

7 Market/Shopping Center 33 2500 82,500.

8 Nursery/Primary School 93 2500 232,500.

9 Parks/Club 2 2500 5,000.

10 Religious Building 32 2500 80,000.

11 Secondary School 38 2500 95,000.

12 Special/Higher Education 1 2500 2,500.

13 Property (Tenement rate) 18,947 7500 142,102,500.

142,952,500.

These figures are conservative estimates because the list of

facilities is not exhaustive and LGAs in Lagos presently charge about N10,000 as tenement rate annually. This revenue

estimate is also outside the money from other sources

including subvention from the federation account.

The strong point of GIS in this case is that apart from the

revenue generation, the data enables the maintenance of both

spatial (location) and attributes (owner, year, payments)

records which can be updated from time to time to increase

taxable property base. It also becomes possible to query the

database and know who owns what and a property obligation

status. In essence, no duplication of records, no redundancy of records and no mistake of record! In that case transparency

and accountability is maintained.

C. Neighbourhood security

A ratio of one police station to about 5,000 building which is

the situation in Ifako/Ijaye LGA is hardly a pass mark. With

the kind of GIS data shown on figures 3 and 4, it is easier to

introduce and monitor neighbourhood watch. Smaller level

units of administrations such as electoral wards,

neighbourhoods and enumeration areas can be created and

added to the database. With these it becomes easy to organise

the people within a neighbourhood for communal policing. This will drastically reduce crime and shift emphasis from

high peak federal policing to deep down communal

responsibility for security.

D. Environmental services

The present effort of the Lagos State government at

introducing a waste collection system where households pay

certain monthly fee is very commendable. Of course, it has

recorded only limited level of success. From investigations,

most households do not pay because they do not give their

waste to the government collector and those who pay hardly use the service. The reason simply is that there are no

neighbourhood central waste collection/transfer points where

the collectors can pick them up daily. For example, how do we

expect a fully employed household to stay and wait everyday

at home expecting the arrival of waste disposal van? This is

the result of lack of GIS data without which the scheme may

not go beyond its present level. From the simple GIS database

for this study area, it is possible to introduce waste collection

system where neighbourhood is the unit of aggregation. In

other words, it is possible to search out vacant/open lands that

fit certain pre-defined criteria within each neighbourhood

where the people can daily drop their waste bag and the collectors daily pick them up without the waste constituting a

nuisance. In that case it also becomes easy to track payment at

property and household level. This facilitates effectiveness

and transparency.

E. Social and emergency services

The GIS database shows there are no fire service station and

emergency ambulance services anywhere within the LGA.

However, GIS can be used to “search out” the best

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site/location for these services whenever they are to be

introduced. These facilities need to be located in areas that are accessible, centrally located, and that can make them highly

responsive (with less impedance - cost-time-distance).

F. Public-private partnership in service delivery and revenue

mobilisation

The in-thing in governments (at all levels) around the world

now is public-private sector partnership and participation in

service delivery and revenue mobilisation. This is being

encouraged in Nigeria in several ways. Some LGAs have even

contracted the services of private companies for revenue

collection, where a percentage of whatever is collected goes to the private companies as their fee. Much as this is laudable

and in tune with the new global thinking in revenue drive and

service delivery, the way it is done in Nigeria is far from being

transparent. The reason for this is lack of GIS data – the

knowledge of what is where. For example, if an LGA does not

know the number of commercial, industrial and service

properties within its domain, the best that can be done for

revenue projection is guesswork!. This is the exact state of all

LGAs in Nigeria. With this, the LGAs are short-changing

themselves because they cannot manage what they do not

know. A GIS will make real data available and thus help them

to make accurate and realistic revenue projections. This will therefore increase revenue and also increase transparency in

private-public partnership in service delivery.

VI. IMPLEMENTING GIS FOR LGA

GIS is an indispensable tool for routine, tactical and strategic

operations of an LGA. No modern LGA (or any unit of

administration for that matter) can possibly function

effectively without a robust GIS database to guide planning

and decision making. Implementation of a GIS within an LGA

is simple and straight forward. The cost is from low to

moderate depending on the levels of implementation and platform desired. In fact, just like computing, the cost of GIS

implementation is coming down by day. GIS is no longer a

system or idea for rocket scientists, it has become a tool for

everyday use in all levels of administration in most other parts

of the world. The expertise and training requirements are

available locally in Nigeria. The opportunities offered or

provided by a GIS for LGAs in terms of ease of planning,

revenue mobilisation, generation and allocation, service

delivery, openness and transparency in administration, etc are

far more significant when compared to the cost required for

implementation. What is required is the willingness and

commitment to implement the system.

VII. CONCLUSIONS

This study has demonstrated the importance of a GIS as a tool

efficient resource mobilization, generation, allocation and

service delivery as well as general LGA administration with a

case study of Ifako/Ijaye LGA in Lagos. The results show that

there are about 18,947 properties (buildings) and ~370.6km of

transport artery across the LGA. It also shows that the LGA

can make a conservative One hundred and Forty three million

naira as internally generated revenue annually if GIS is

employed. Both The facility-to-property ratio and the facility-to population-ratio for the LGA show poor performance. Other

desirable uses of GIS within the LGA as well as the immense

opportunities offered by GIS for conducting an efficient and

transparent local government administration in Nigeria have

also been highlighted. The LGAs are the closest to the people

and much premium and responsibility is expected from them.

The time is now for collaborative efforts between

governmental and non-governmental organisations to make

sure that LGAs in Nigeria are run with efficiency and

transparency. This is the plank of good governance and the

introduction of GIS into LGAs administration should be the first in this direction.

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