Group Exercise
Building Failure and Collapse in Lagos State – Budgeting
State of play
The occurrence of building failure and collapse has become a major issue of concern in the development of Lagos State, as the magnitude of such incidents are becoming more frequent and alarming. Studies found that building failure and collapse stem principally from hasty and faulty construction, bad design, foundation failure, low quality workmanship, lack of proper/poor supervision, inexperience (use of incompetent hands), ignorance, evasion/non-compliance with building regulations and non-enforcement of building quality, standards and controls on construction site/market, use of low quality materials, ineffective enforcement of building codes by the relevant authorities, lack of proper maintenance.Studies have also shown that 70% of the reported cases of building collapse in Lagos State stemmed from the informal sector.
Regulatory framework
Three major Acts govern building construction in Lagos State:
- Public Health Act;
- Town and Country Planning Acts;
- Building Regulation Act.
The Public Health Act deals with all aspects of health sanitation and environment, relating to the inhabitants of buildings. The Town and Country Planning Act deals with the general location and planning such as spatial distribution of buildings, highways/roads, schools, hospitals, sewage and drainage systems as well as other physical infrastructure. The Building Regulation Act controls the construction of buildings—process, materials, qualification of builders/contractors, etc.
Evidence has shown that existing regulation is meaningless without the mechanisms to ensure compliance because the incentives to construct and maintain buildings are too weak so laws are routinely disregarded.Five types of building regulatory enforcement inspectors have been assigned to carry out monitoring and compliance activities. They are:
- Safety or Building Inspectors who are local government employees;
- Specification Inspectors who are construction professionals engaged by the owner of a building under construction to ensure compliance with qualitative desires;
- Federal Government inspectors who enforce federal regulation on federal issues such as health, energy, environmental protection, on federal government funded projects.
- Public Works inspectors who are concerned with conformity with contracts and specification documents;
- Specialist Inspectors who inspect and certify certain types of critical installations such as high-strength concrete, structural welding, and highly stressed masonry, etc.
The problem
Collapsing buildings not only pose a safety risk to tenants but also have enormous costs associated for citizens, businesses and Lagos State Government. The estimated cost to government alone in 2009 was 30 billion Naira. In addition to property losses the individuals and the private sector also suffer months, if not years, of lost income when their residences or places of work collapse. Contractors and building tenants alike have attested to the ineffectiveness of the monitoring activities of construction works by the relevant government agencies. This is compounded by low levels of awareness of the existing building/planning regulations by building tenants/owners and contractors—most of whom come from the informal sector. The enforcement weakness of the relevant government agencies is a major factor leading to the growing number of cases of building collapse in the private sector, dominated by the informal sector.
It must be stressed that apart from the costs to the Lagos State government for clearing the rubble, treating injured people and other public works necessary after a building collapse, the occasional loss of lives is having devastating effects on the dwellers, the economic progress of Lagos State and the credibility/reputation of the Lagos State Administration. Immediate proactive action is needed to address the problems.
The solution
The Lagos State Ministry of Works has devised a new policy to address the recurring issue of building collapse. The Lagos State Building Safety Policy (Policy) will be implemented through the newly-formed Building Regulation, Monitoring & Enforcement Department. The Department has been established as a ‘one-stop shop’ tasked with legislation, enforcement, support and assistance, awareness raising and education and will incorporate and oversee all monitoring activities by inspectors. In addition to issuing all compliance permits and carrying out all necessary building code inspections, the Department has been tasked to achieve the following outputs:
- Increase awareness among all three tiers of government and their agencies on the need for compliance with building regulations (e.g. among contractors, sector professionals, other stakeholders and the general public) and the dangers/costs associated with their non-compliance/evasion. This might include a hotline for people to report cases of suspected violation of building codes and maintenance regulations;
- The Town Planning Authority will be incorporated into the new department and will employ competent professionals in all relevant areas for design approval while providing training in monitoring and enforcement. Monitoring visits to construction sites with a view to ensuring compliance with the approved building plans will be conducted on a regularly scheduled basis. Existing structures considered ‘at risk’ will also be inspected and evaluated for safety violations;
- The Department will focus on the informal construction sector with a view to improving their standards and sensitising them on the new Policy, understanding the importance of sound construction to building safety in Lagos State, and the use of substandard materials in building construction;
- Stiffer penalties (such as license revocation, jail and steep fines) will be enforced for owners of at-risk or collapsed buildings and criminal charges will be pursued in collaboration with the Nigerian police, in cases of gross negligence and loss of life. The Department will be responsible for withdrawing of Certificates of Occupancy (C of O) issued to owners or developers of collapsed buildings and will maintain the authority to take-over the affected properties.
Communication Objectives
- Ensure that all staff of the Ministry of Works are aware of and understand their responsibilities under the new Policy;
- Ensure that 70% of relevant staff at other MDAs are aware of and understand their responsibilities under the new Policy;
- Ensure that 70% of building owners and private sector builders— including the informal sector-- are aware of and understand their responsibilities under the new Policy.
Constraints
- Ministry of Works has only 100 inspectors for an estimated 5.5 million buildings;
- Ministry of Works has only one Public Relations Officer;
- No funds specifically allocated for communication, awareness-raising;
- Media “culture” requires payment for coverage of events, news/issues, participation in call-in programmes;
- Lagos State Government cost-cutting programme means funding for communication is limited;
- Low literacy
- 30% of Lagosians are illiterate.
- Illiteracy in the informal construction sector is 50%.
- Media access
- Only 20% of Lagosians have access to internet.
- Only 40% have access to/read newspapers.
- 65% have access to/watch TV.
- 90% have access to/listen to radio.
Group Tasks
Your team has NGN10,000,000 to spend on communication initiatives needed to meet all three (3) ofthe Objectives above over the next 6 months.
Below is a list of the costs for major media and non-media tools, events, etc.Use only these tools and costs for this exercise, do not add tools or re-calculate costs.
If your Group decides that other tools that are not listed here would be more effective, raise that with the facilitators.
The number of times you use each tool is up to you— for example, you may want to have several community meetings or news conferences. You do not have to use all tools. You may decide to use as many or as few of each tool as you wish — as long as you do not spend more than NGN10,000,000.
You do not have to spend the full amount.
Using the results of the Mapping Stakeholders exercise, your group’s job now is to choose the tools that will maximise the impact your Communications Strategy can achieve and fulfill all your objectives using only the funding available.
Radio / Costs- Public service announcements (1 minute)
- Raise awareness
- Build support
- Announce community meetings
NGN2,000,000
Local radio cost:
NGN800,000
Includes all production and airtime costs for:
10 broadcasts per/week times six (6) months;
aired at the most popular times
- Panel discussion with call-in (30 minutes)
NGN650,000
Local radio cost:
NGN400,000
Includes all production and airtime costs for:
2 broadcast per/month x three (3) months;
aired at the most popular times
- News story, standard (15-30 seconds)
- Coverage of 1 news release
NGN8,000
Local radio cost:
NGN4,000
Includes all costs for:
Each (one) story; aired on main news program
- Feature story (10 minutes)
NGN40,000
Local radio cost:
NGN25,000
Includes all costs for: One feature story; aired 2 weekend days at the most popular times
Television
(national coverage, State-run, no local languages) / Costs
- Public service announcement (30 seconds)
Includes all production & airtime costs for:
2 broadcasts/day x 1 month;
aired at peak times
- Panel discussion with call-in (30 minutes)
- 4 panelists.
Includes all costs, appearance fees for:
2 broadcast per/month x 3 months;
aired at the most popular times
- News story, standard (15-30 seconds)
- Coverage of 1 news release
Includes all costs for:
One story; aired on main news program
- Feature story (10 minutes)
Includes all costs for:
One feature story; aired on 2 weekend days at prime time;
Print media / Costs
- News articles
- Coverage of 1 news release
- Standard news story
NGN8,000 per article
Local paper:
NGN4,000per article
- Column, monthly
NGN12,000 each month
Local paper:
NGN4,000 each month
- Advert: ½-page in national newspaper
NGN250,000 each day advert runs
Includes all costs for:
Design/layout, cost of space;
- Advert: ½-page in local newspaper
NGN80,000 each day the advert runs
Includes all costs for:
Design/layout, cost of space;
Print materials / Costs
- Simplified Policy Guide
Includes all costs for:
Design/layout, printing of 1,000 copies
- Policy newsletter— every 2 months
Includes all costs for:
Design/layout, printing of 1,000 copies
- Brochure (glossy)
Includes all costs for:
Design/layout, printing of 1,000 copies
- “Myths & Facts” sheet
Includes all costs for:
Design/layout, printing of 1,000 copies
- Poster
Includes all costs for:
Design/layout, printing of 2,000 copies
- Billboards
Outside Lagos city Cost: NGN65,000
Includes all costs for:
Design/layout, printing, rental of space for
2 billboards; 3 months
Seminars/presentations, roadshows, community meetings / Costs
- Sensitisation seminar: 1 day, 20-25 people
NGN65,000 per seminar
Outside Lagos city Cost:
NGN120,000 per seminar
Includes all costs for:
Transport, lodging, food; 5 people from capitol; banners, refreshments, print materials
- Roadshow, community meetings
NGN65,000 cost per mtg
Outside Lagos city Cost:
NGN120,000 cost per mtg
Includes all costs for:
Rental of hall, transport, lodging, food; 3 people from Ministry (provincial cities only)
- Presentations, meetings with lawmakers
- Workshops (½ day) for media to educate about Policy
NGN65,000 cost per workshop
Outside Lagos city Cost:
NGN25,000 cost per workshop
Includes all costs for:
Transport, lodging, food; 2 people from Ministry(provincial cities only); print materials
News conferences / Costs
- Governor announces plans to adopt policy, put to vote in State Cabinet and State House of Assembly
- Vote scheduled in State House of Assembly
- Meetings with lawmakers
- Results of vote
- Others as needed
NGN65,000 cost per conf.
Outside Lagos city Cost:
NGN25,000 cost per conf.
Includes all costs for:
Media kits, “Transport fees” for journalistsRefreshments
Website / Costs
- Design and programming,
- Hosting and maintenance (1 year)
Other tools / Costs
- Text message campaign
Includes all costs for:
Software; sending 10,000 messages
- Simplified Policy Guide—audio version
Includes all costs for:
Voice actors, 1,000 cassette tapes
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