Lagos -
Sound Government, Sensible Budget
nelrufai@yahoo.com
el-rufai@aol.com
In continuation of our focus on state budgets’ with a view to
analyzing their viability, fiscal prudence and accountability to
citizens, the spotlight this week is on Lagos. Lagos state is one of
the 13 states in the country which have presented a fiscal
responsibility bill to the state House of Assembly, but unlike some
states which have enacted the law and barely implemented it, Lagos
State exhibits a high level of transparency and accountability in its
budget presentation which is detailed and available on the Lagos State
Government’s website.
Lagos State was created on May 27, 1967 by virtue of State (Creation
and Transitional Provisions) Decree No. 14 of 1967, which restructured
Nigeria’s Federation into 12 states. Prior to this, Lagos Municipality
had been administered by the Federal Government through the Ministry
of Lagos Affairs as regional authority, while Lagos City Council (LCC)
governed the City of Lagos. The metropolitan areas (Colony Province)
of Ikeja, Agege, Mushin, Ikorodu, Epe and Badagry were administered by
the old Western Region. The State took off as an administrative entity
on April 11, 1968 with Lagos Island serving the dual role of being the
State and Federal Capital. However, with the creation of the Federal
Capital Territory of Abuja in 1976, Lagos Island ceased to be the
capital of the State which was then moved to Ikeja. With the formal
relocation of the seat of the Federal Government to Abuja on 12
December 1991, Lagos Island ceased to be Nigeria’s administrative
capital.
Mobolaji Johnson was the first Governor of the state; however Alhaji
Lateef Jakande was the first elected Governor of the state who served
from October 1979 to December 1983 under the Unity Party of Nigeria (UPN).
More recent and significant Governors of Lagos are Buba Marwa
(1996-1999), Bola Tinubu (1999-2007) and Babatunde Fashola who was
elected in 2007.
Babatunde Fashola is a lawyer by profession who excelled in his
professional career which spanned over a decade and a half leading to
his recognition as a Senior Advocate of Nigeria. In 1999, he joined
the public service and served in various capacities with the Lagos
State Government until his rise to the position of Chief of Staff to
Governor Bola Tinubu. In his first four years in office, marked
improvements were noted within the state - the cleanliness of the
metropolis which residents and visitors could attest to, improvements
in roads and traffic within the state, improved transportation systems
with the introduction of BRT and ferry services across the state -
Fashola is without doubt, one of the few “performing” governors in the
country and it must be credited to Tinubu that politically, his
succession strategy has worked.
The ground work for most of what is visible today in Lagos was jointly
laid by Tinubu and his team including the current governor Fashola.
The result is focus and continuity in governance rather than
“witch-hunting” of predecessors which has bedeviled other "anointment
arrangements". Fashola's comparatively stellar performance in office
makes many wonder if professional politicians are best suited to
deliver on the difficult job of good governance!
Lagos is the most populous state in Nigeria with over five per cent of
the national population estimate. Ironically, it is the smallest state
in terms of land mass; the state has an area of 356,861 hectares of
which 75,755 hectares are wetlands. Interestingly, of this population,
Metropolitan Lagos, an area covering 37% of the land area of Lagos
State is home to over 85% of the State population making it a densely
populated state. UN estimates that at its present growth rate, Lagos
state will be third largest mega city in the world by 2015 after Tokyo
in Japan and Bombay in India, with a population nearing 30 million!
According to the World Bank and DFID, Lagos’ 2009 GDP is estimated at
N4.163tn. Lagos which is a mega-city is the largest contributor to the
national GDP at 18%. Lagos’ GDP ranks 6th after Cairo ($98 billion);
Johannesburg ($79 billion); Cape Town ($75 billion). Its GDP equals
that of Kenya ($29.5 billion) which has a higher population
(30million) than Lagos. Lagos boasts of a higher GDP than Cameroun
($20.6 billion), Cote d’ Ivoire ($19.6 billion) and Ghana ($15.2
billion) which have populations of 19, 21 and 24 million people
respectively.
The South-west zone of Nigeria is the most prosperous part of the
country. According to National Bureau of Statistics Poverty Profile
2012 which studied poverty incidences nationwide using 2009 and 2010
data, poverty is classified in four categories; absolute poverty
(based on daily food intake), relative poverty (determined by
household expenditure) and purchasing power parity (dollar per day).
59.1% of the people in the region live above poverty line which is
appreciable given the humongous 77.7% in the North-West region that
live well below poverty lines. 50.1% of people in the South-West
survive on about a dollar a day while only 25.4% are absolutely (food)
poor which is impressive compared to other states in the country. Gini
coefficients are used to measure income inequalities and in Lagos, a
co-efficient of -26.2% indicates a decrease in income inequalities
within Lagos State between 2003 and 2010 - something the governors
should be proud of! Lagos has the highest percentage in Nigeria
(85.4%) of people who can feed themselves. Statistics also indicate
that 40.8% of the population in Lagos live above poverty lines. Though
there is room for improvement in the poverty indices, it is much
better than states like Bauchi and Sokoto where only 16.3% and 13.6%
respectively live above poverty lines!
Lagos state is one of the few in the country which has a well detailed
and structured budget made available to the public on the state
Government’s website which is fully functional. The budgets are
properly explained and broken down by the MDAs with expenditures and
revenues properly accounted for. Also, the state posts its budget
performance reviews online which indicates transparency and
accountability in governance. It is ironic that even with the
enactment of freedom of information and fiscal responsibility acts,
most State Governments still hide their budgets and breakdowns from
the citizens of their states and the general public.
In the 2012 budget, there was an increase from the previous years’
budget of N450.8b to N491.9b (9%). The total revenue for 2012 is
estimated at N399.8b and impressively, the ordinary revenue (Lagos IGR,
other IGR, dedicated revenue, etc.) of the state is N289.7b which is
about 73% of total revenue. This is more than double of the N110.2b
that Lagos expects from the federation account in 2012. Lagos is
therefore not one of the numerous "parastatal states" that cannot pay
salaries unless the FAAC meets in Abuja! Compared to some other states
whose budgets have grown astronomically with no commensurate growth in
IGR, the budget of Lagos state has steadily increased alongside its
IGR as shown by an 8% (N262.6b to N289.7b) increase in ordinary
revenues between 2011 and 2012. So while the federal government
preaches fiscal consolidation without practicing, it is Lagos State
that is practicing it without all the noise!
Comparing both years’ budgets, there is a projected increase in
ordinary revenue (IGR inclusive) by about N27b between 2011 and 2012.
Taking the case study of Bauchi state whose budget was analyzed last
week, it’s projected increase in IGR for this year was just N1b!
Unlike the case of Bauchi state where the government spends money on
maintaining many commissioners and 924 aides that it's IGR cannot
support, Lagos State Government has 23 commissioners and 20 Special
Advisers, and yet is performing much better. In fact, looking at the
revenue earning capacity of Lagos in comparison to many states of the
federation is going from one extreme to another.
Capital expenditure for 2012 is N258.3b (53%) while recurrent
expenditure is N233.6b (47%) of the total budget. Although the ratio
does not meet the best practice of 70% for capital expenditure, it
must be acknowledged that Lagos enjoys the dual advantages of limited
geographic spread and legacy of inherited federal infrastructure, and
therefore does not need as much greenfield infrastructural investments
as other rural states. What it needs though is high levels of spending
on maintenance and running costs. These are perhaps reflected in the
higher recurrent portions of the budget.
The government, in 2012 increased its recurrent expenditures on
education from N28.4b in 2011 to N35.4b and justifiably too as there
has been continuous increase in both volumes and pass rates of SSCE
candidates from Lagos. The number of candidates who obtained five
credits in WASCE including English and Mathematics has improved from a
miserable 7.58% in 2007 to an impressive 21.11% in 2010.The 2010
National Literacy Survey also shows that Lagos has the highest
literacy rate in any language. Increased allocation of funds to this
sector is definitely a commendable step in the right direction.
The environmental sub-sector of Lagos state which receives about 6% of
the overall budget allocation, recorded a huge leap from the N335m
revenue generated in 2011 to projected N2b in 2012. This is one sector
which the residents of Lagos have felt a visible difference. There was
a slight increase in health allocation from N32.9b in 2011 to N33.3b
in 2012. In spite of the increase, the health sector is expected to
double its revenue from N393m to N655m. Works and Infrastructure
received 18% (N88.1b) of the budget reflecting investments to address
existing infrastructure deficits. The transportation sector however,
dropped in projected revenue by about N400m whereas its budgetary
allocation increased by about 11% for the same reason.
The personnel cost budget for the entire Lagos State government for
2012 is about N81.6b. This is less than one third of its IGR and less
than 5% of the federal governments (N1,600b) staff costs, yet many
would say that Lagos runs better than Nigeria these days. Departments
such as lands, environmental protection, works and infrastructure,
transportation, and even the judiciary earn sufficient revenues to
cover their personnel costs. In fact, the lands department earns
enough to cover all its recurrent expenditures while the state’s
Ordinary Revenue (N289.7b) can cover its total recurrent costs
(N233.6b) with a surplus of N56.1b. That is how a federating unit's
finances should be!
In year 2011, Lagos State High Courts alone made revenues of about
N700m and are expected to earn about N1.2b in 2012 which is higher
than the IGR of most states of the federation now depending on the
Federal Government for monthly handouts. The lesson and experience of
Lagos is this - each MDA is a revenue as well as a cost centre. Each
government department that offers services charges some fees to cover
all or part of the cost of the service. That is how to run a
department, state, or country! My admiration for the business-like way
Lagos is run is clear by now.
Lagos is only state in the country which can survive solely on its
incomes from taxation. However according to the World Bank Doing
Business rankings 2010, the state was ranked 25th out of 37 in Nigeria
in terms of ease of doing business. Lagos is not an agrarian state,
neither is it endowed with any mineral resources. It is therefore
disturbing that despite the huge amount of private sector investment
and potential, the business environment is far from friendly. The
authorities need to create a thriving environment for businesses in
Lagos especially since taxes and land charges are the major source of
fiscal sustenance of the state.
All our states should learn lessons from Lagos not only in the areas
of budget transparency but fiscal independence from Abuja, delivery of
public services, investment in education and even governance
succession. With these outlier qualities, it is not surprising that
Lagos is run by a party other than the PDP of today!