Vulnerability of Poor Urban Coastal Communities To

Environment and Urbanization
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Vulnerability of poor urban coastal communities to flooding in Lagos, Nigeria

Ibidun O Adelekan
Environment and Urbanization 2010 22: 433
DOI: 10.1177/0956247810380141
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Vulnerability of poor urban coastal
communities to flooding in Lagos,
Nigeria
IBIDUN O ADELEKAN
Ibidun Adelekan trained as ABSTRACT This paper considers the risks from and vulnerabilities to flooding
a geographer and holds a in four urban poor communities close to the coast in Lagos, Nigeria. Drawing on
Doctorate in Climatology
interviews with inhabitants and key informants and also on group discussions,
from the University of
Ibadan, Nigeria, where she it documents the scale and frequency of flooding in these settlements and the
is a Senior Lecturer and impacts, as well as the individual, household and community responses. It also
Researcher in the Department considers the factors that have contributed to increasing flood risks in Lagos,
of Geography. Her research including the uncontrolled expansion of the built-up area, the lack of infrastructure
interests are in the areas of
and the failure not only to expand stormwater drainage but also to maintain
climate–society interactions
and the human dimensions of existing drainage systems. The paper also considers changes in the frequency and
global environmental change, intensity of rainstorms on Lagos Island between 1971 and 2005, which suggest that
including vulnerability/ on average these have become less frequent but more intense.
resilience of human–
environment systems to
climate change. KEYWORDS climate change / coastal communities / flooding / Lagos / urban poor
/ vulnerability
Address: Department of
Geography, University of
Ibadan, Nigeria; e-mail:
[email protected];
ibidun.adelekan@mail.
I. INTRODUCTION
ui.edu.ng
Acknowledgment: The
Coastal cities are by far the most developed of Africa’s urban areas, and
author is grateful to two by implication have a high concentration of residential, industrial,
anonymous reviewers whose commercial, educational and military facilities.(1) One such coastal city
comments and suggestions
improved the initial version
is Lagos, the foremost manufacturing and port city in West Africa. Lagos
of a paper presented at is the hub of business and economic development in Nigeria, housing
the Fifth Urban Research around 65 per cent of the country’s industrial establishments, more than
Symposium 2009 on Cities
and Climate Change, held
65 per cent of all commercial activities and around 60 per cent of Nigeria’s
in Marseille, France. The non-oil economy; it is also home to four of the country’s eight seaports.
author’s participation at the However, indications point to urban development as being a large creator
symposium was supported
by the International of risk for much of the urban population, most especially the urban poor
Development Research who live in more hazardous physical and human environments along the
Centre (IDRC), Ottawa, coast. Rising sea levels consequent to climate change pose real threats to
Canada. Thanks are due
to Mr Tunji Odunlami coastal populations along low-lying coastal sites because of the increased
(Lagos State Ministry of likelihood of flood events;(2) furthermore, the frequency of storm surges
Physical Planning and Urban may also be exacerbated by sea-level rise.
Development) and Mrs P
I Adenuga (Lagos State The Nigerian coast is likely to experience severe effects from flooding.
Urban Renewal Agency) The low elevation and topography of the entire Nigerian coastline area
for useful discussions and make it highly susceptible to flooding, especially at high tides and during
insights on flooding and
slum communities in Lagos
the rainy season. Nigeria has been recognized as one of 11 countries with
metropolis. global port cities with high exposure and vulnerability to sea-level rise
Environment & Urbanization Copyright © 2010 International Institute for Environment and Development (IIED). 433
Vol 22(2): 433–450. DOI: 10.1177/0956247810380141 www.sagepublications.com
E N V I R O N M E N T & U R B A N I Z AT I O N Vol 22 No 2 October 2010
and storm surges.(3) Sea-level rise is indicated to have significant impacts 1. UN–Habitat (2008), “Cities
at risk from rising sea levels”,
on Africa’s many large coastal cities because of the concentration of poor in UN–Habitat, State of the
populations in potentially hazardous areas that are more vulnerable to World’s Cities 2008/2009,
such changes.(4) Earthscan, London, 224 pages,
pages 140–155.
Lagos has been categorized as one of 50 cities most exposed to
extreme sea levels, and is projected to experience a more than 800 per 2. Kabat, P and H van Schaik
(2003), “Climate changes
cent increase in population exposure by the 2070s. In an assessment of the water rules: how water
136 port cities, Lagos ranks thirtieth for exposed population to flooding managers can cope with
within the current climate scenario (the situation in 2005) and fifteenth today’s climate variability
and tomorrow’s climate
in a future climate scenario (scenario for the 2070s).(5) change”, available at www.
Flooding has been identified as one of the major factors preventing waterandclimate.org.
Africa’s growing population of city dwellers from escaping poverty, and 3. Nicholls, R J, P P Wong, V
it stands in the way of the Millennium Development Goal of achieving R Burkett, J O Codignotto, J E
Hay, S Ragoonaden and C D
significant improvement in the lives of urban slum dwellers.(6) This is Woodroffe (2007), “Coastal
because many African cities lack the infrastructure to withstand extreme systems and low-lying areas”,
weather conditions. Poor urban planning, together with other urban in M L Parry et al. (editors),
Climate Change 2007: Impacts,
governance challenges, contributes towards placing African urban slum
Adaptation and Vulnerability,
dwellers at highest risk. Poor urban planning, or the lack of planning for Contribution of Working Group
urban expansion, leads to new development in areas at risk of flooding II to the Fourth Assessment
or in areas that should be left undeveloped (for instance, wetlands) Report of the IPCC, Cambridge
University Press, Cambridge
because of their role as buffers against flooding risks. The fact that low- and New York, 976 pages,
income groups cannot find safer sites contributes to these increased pages 315–356.
risks. While economic activity and urban development often increase 4. Nicholls, R J (2004), “Coastal
the environmental pressures that lead to flooding, it is the low-income flooding and wetland loss in
the 21st century: changes
settlements and poor groups within settlements that tend to be most at under the SRES climate and
risk.(7) In Lagos, for example, it is estimated that 70 per cent of the city’s socioeconomic scenarios”,
population lives in slums characterized by extremely poor environmental Global Environmental
Change Vol 14, No 1,
conditions, including regular flooding of homes that lasts several hours
pages 69–86.
and that sweeps raw sewage and refuse inside.(8) Urban poor populations
5. Nicholls, R J, S Hanson, C
face a worsening situation because of the increasing frequency of storm Herweijer, N Patmore,
surges, combined with heavy rainfall of long duration or high intensity S Hallegatte, J Corfee-Morlot,
and the increasing inadequacy of drainage systems. J Château and R Muir-Wood
(2007), Ranking Port Cities
Although the risks faced by urban populations from climate change with High Exposure and
impacts, especially in low- and middle-income nations, have been Vulnerabilitiy to Climate
acknowledged in various regional assessments, vulnerability cannot be Extremes: Exposure Estimates,
OECD Environment Working
reliably estimated without detailed knowledge of local contexts, since Paper No 1, available at www.
vulnerabilities are so specific to each location and societal context. Too oecd.org/env/workingpapers.
little attention has been paid to the vulnerability of urban populations 6. ActionAid (2006), “Climate
to climate change, and especially to the vulnerability of their low- change, urban flooding and
the rights of the urban poor
income populations.(9) A participatory vulnerability analysis to ascertain
in Africa: key findings from
the dimensions of flood problems in poor communities in five African six African cities”, Report
cities, including Accra, Kampala, Lagos, Maputo and Nairobi, sought to by ActionAid International,
address this knowledge gap.(10) The analysis was an assessment of local available at www.actionaid.org,
8 pages.
people’s perceptions of why floods occur, how they adjust to them, who
7. McGranahan, G, D Balk and
is responsible for reducing flood risk and what action the community B Anderson (2007), “The rising
itself can take. This paper seeks to contribute to a better understanding tide: assessing the risks of
of the vulnerability of poor urban communities in Lagos by exploring climate change and human
settlements in low elevation
the links between city development (with particular reference to the coastal zones”, Environment
growth of slums) and flood risks. The impacts on, and vulnerability and Urbanization Vol 19, No 1,
of, residents of selected poor urban communities along the coast of April, pages 17–37.
Lagos as a result of the increasing risks of floods arising from climate 8. World Bank (2006), Project
Appraisal Document to the
variability and climate change are assessed within an integrated
assessment framework.
434
V U L N E R A B I L I T Y O F P O O R U R B A N C O A S TA L C O M M U N I T I E S T O F L O O D I N G
Federal Republic of Nigeria a. Conceptual framework

for the Lagos Metropolitan
Development and Governance
Project, World Bank,
The concept of vulnerability is central to the discourse on environmental
Washington DC, available at risks in the context of climate change and offers a valuable framework
www.worldbank.org, 127 pages. for this study. The Intergovernmental Panel on Climate Change (IPCC)
9. Satterthwaite, D, S Huq, M defines vulnerability as the extent to which a natural or social system is
Pelling, H Reid and P R Lankao
(2007), Adapting to Climate
susceptible to sustaining damage from climate change. Vulnerability is
Change in Urban Areas: the a function of the sensitivity of a system to changes in climate and the
Possibilities and Constraints system’s ability to adapt to these changes. These factors are considered to
in Low- and Middle-income
Nations”, Discussion Paper be largely determined by the development context, which has a strong
Series, Climate Change and influence on households’ income, education and access to information,
Cities 1, IIED, London, accessed on people’s exposure to environmental hazards in their homes and
15 September 2008 at www.
iied.org, 112 pages. workplaces, and on the quality and extent of provision for infrastructure
10. Douglas I, K Alam, M and services.(11) In urban areas, vulnerability is also greatly influenced by
Maghenda, Y McDonnell, L the extent and quality of infrastructure and public services, especially for
McLean and J Campbell (2008), vulnerable populations.(12) Within climate change and hazards research,
“Climate change, flooding
and the urban poor in Africa”, three perspectives on vulnerability are identified.(13) The first characterizes
Environment and Urbanization vulnerability in terms of exposure to hazardous events and how this affects
Vol 20, No 1, April, pages people and structures; the second views vulnerability in terms of human
187–205.
relationships rather than as physical, i.e. social vulnerability; and the
11. Wilbanks, T, P R Lankao,
M Bao, F Berkhout, S Cairncross third integrates the physical event and the underlying characteristics of
et al. (2007), “Industry, populations that lead to risk exposure and limited capacity of communities
settlement and society”, to respond. This paper adopts the integrated approach using the integrated
in Parry et al. (editors), see
reference 3, pages 357–390. vulnerability framework (Figure 1), which is considered suitable in cities
12. See reference 9. where inherent susceptibilities and resiliencies of both biophysical and
13. Dolan, A H and I J Walker social environments interact to result in observed vulnerability.
(2004), “Understanding
vulnerability of coastal
communities to climate
change-related risks”, Journal b. Data and method
of Coastal Research Vol 39,
pages 1317–1324. Four poor urban communities (Makoko, Ilaje-Bariga, Ijora-Oloye and
Marine Beach-Apapa) in Lagos were selected specifically for the study based
on their proximity to the coastline, their official classification as urban
poor communities and their annual experience of floods (Figure 2). These
four communities are potentially vulnerable to sea-level rise and climate
change given their location in a sensitive landscape. In each community,
a random sample of buildings was chosen from several streets/roads to
ensure representative coverage of the community. In each building, only
one household was interviewed since the majority of buildings in the
communities are multiple-occupancy types, sometimes housing as many
as 10 households. A total of 486 households representing approximately 14
per cent of the total population of households in the sample communities
were surveyed by trained personnel using a semi-structured questionnaire
designed for the research (Table 1). In each household, one adult who was
considered to have good knowledge of the research topic was interviewed.
The questionnaire was designed to elicit information on some of the
variables identified in the integrated vulnerability framework adopted for
the study, including the socioeconomic and demographic characteristics
of respondents, their flood experiences, flood perception, impacts and
coping strategies.
Interviews were held with key informants including leaders of
community development associations and senior government officials in
435
FIGURE 1
Integrated vulnerability framework
SOURCE: Dolan, A H and I J Walker (2004), “Understanding vulnerability of coastal communities to climate
change-related risks”, Journal of Coastal Research Vol 39, pages 1317–1324.
TA B L E 1
Distribution of respondents
Community Number of households in Households Male Female

the community* surveyed
Makoko 1,449 101 53 48
Ilaje-Bariga 1,042 160 90 70
Ijora-Oloye 513 139 99 40
Marine Beach-Apapa 524 86 45 41
Total 3,528 486 287 199
SOURCE: Author’s field survey data; *Central Office of Statistics (2006), Lagos Household Survey 2006, Ministry
of Economic Planning and Budget, Lagos State.
436
FIGURE 2
Growth of metropolitan Lagos (1900–present) and location of coastal slum communities
SOURCE: Adapted from Gandy, M (2005), “Learning from Lagos”, New Left Review Vol 33, pages 36–52 and
World Bank (2006), Project Appraisal Document to the Federal Republic of Nigeria for the Lagos Metropolitan
Development and Governance Project, World Bank, Washington DC, available at www.worldbank.org, 127 pages.
the Lagos State Ministry of Physical Planning. Group discussions with

community members were also conducted to obtain further insights into
the impacts of, and vulnerability to, floods in the different communities.
Impacts were examined at three levels – individual, household and
community. Other information that was analyzed related to the physical
characteristics of the study areas and included percentage of wetlands
and flood-prone areas, sub-standard urban planning and infrastructure.
The rainfall characteristics of particularly heavy rainstorms were also
examined.
437
II. THE COASTAL CITY OF LAGOS

Lagos is situated within latitudes 6o23′N and 6o41′N and longitudes
2o42′E and 3o42′E. The city grew from 305,000 inhabitants in 1950 to
5.3 million in 1991 and 9.1 million in 2006.(14) The United Nations World 14. National Population
Urbanization Prospects(15) projected that total population in 2010 would be Commission (1998), 1991
Population Census of
10.5 million. The growth of Lagos is primarily the result of its location on the Federal Republic of
the west coast of Africa, which has promoted the development of trade Nigeria, National Population
within its hinterland and with neighbouring and other countries; the role Commission Vol 6, Abuja,
Nigeria; also Federal Republic
of Lagos as the administrative capital of Nigeria until December 1991 also of Nigeria (2009), 2006 Census
contributed to its growth. The majority of the population of Lagos lives Final Results, Federal Republic
of Nigeria Official Gazette
within the boundaries of the six drainage basins in the eastern sections
Vol 96, No 2, Abuja, Nigeria.
of the mainland, where the primary areas of flooding affecting the most
15. United Nations (2008),
people are located. World Urbanization Prospects:
The high population growth rate of Lagos has led to unusual pressure The 2007 Revision Population
on, and unprecedented demand for, land. The inadequacy of private Database, Population Division
of the Department of Economic
and public institutions in providing housing or land for housing the and Social Affairs of the United
increasing population, especially those in the low-income socioeconomic Nations Secretariat, http://esa.
groups, has contributed to the development of slum communities. By un.org/unup.
1981, 42 slum communities or “blighted areas” had been identified
in Lagos metropolis.(16) At present, the number of slums in the city is 16. Documentation for this
estimated at about 100, housing almost 70 per cent of Lagos’ population. World Bank Urban Renewal
Project is not available. A
The majority of slum communities are located in the oldest settled areas systematic analysis of Lagos
of mainland Lagos, especially in marshy areas and near the lagoons.(17) slums was undertaken in
Of the world’s largest cities, Lagos has among the highest proportion of a 1984 UNDP study, which
population below the poverty line, with 70 per cent of its population identified 42 settlements. This
analysis of the 42 areas was
living in slums. Population densities in these slum communities range updated in 1995 in a study for
from 790 to 1,240 people per hectare, and more than 75 per cent of urban the Lagos State Urban Renewal
poor slum dwellers live in one-room households with an average of 4.6 Board by SNC Lavalin, known
as the Lavalin Report, which
persons per room. It is common for 8–10 households to live in one house confirmed the existence of the
structure, sharing common cooking and sanitation facilities. 42 settlements. See SNC Lavalin
International (1995), Lagos
State Urban Renewal Board,
Community Infrastructure
a. Urban development Upgrading Programme, study
funded under World Bank-
Metropolitan Lagos, situated on the narrow lowland coastal stretch bordering assisted Lagos Drainage and
Sanitation Project (CR2517),
the Atlantic Ocean and originally covered with mangrove swamps, has
September 1995.
experienced significant land cover changes as a result of past and present
17. Lagos Metropolitan
reclamation activities to secure land for urban development. Land Development and Governance
reclamation is achieved through filling in swamps and floodplains, and Project (LMDGP) (2006), Main
Report, Lagos State Urban
the destruction of mangroves and wetlands has reduced the flood storage Upgrading Project Confirmation
capacity of this land. In 1960, Lagos covered an area of about 200 square Survey, LMDGP, report written
kilometres, but by the beginning of the twenty-first century its contiguously by O Soyombo.
built-up area was estimated at about 1,140 square kilometres, (Figure 2)
and sections of the metropolis along the coastline have high population
densities (Table 2). With the exception of Eti-Osa local government area
(Lagos’ newly developing area of expansion that at present has 43.45 per
cent of its total area built up), other local government areas (LGA) with
coastlines have more than 50 per cent of their total area built up; at 90 per
cent, Shomolu LGA has the largest proportion. Much urban development
has taken place in Eti-Osa LGA, especially since 1983 when the Lagos state
government began to allocate the Lekki Peninsula for urban development.
438
However, alongside the planned development of this peninsula, fast-

growing poor urban neighbourhoods have emerged around existing rural
settlements. Examples of these are Aoyaya, Agugi, Ajah and Badore.
The present development of the Lekki Peninsula has been undertaken
with little or no consideration for sea-level rise and the possible risks of
flooding, making this rapidly urbanizing area and its growing population
vulnerable to sea-level rise and climate change.
An analysis of the changing land cover in the Lagos coastal area shows
that between 1986 and 2002, the amount of developed land comprising
18. Okude, A S and I A residential, industrial, commercial, transportation and other use increased
Ademiluyi (2006), “Implications from 85.4 square kilometres (43.36 per cent) to 111.9 square kilometres
of the changing pattern of land
cover of the Lagos coastal area
(56.8 per cent).(18) Similarly, natural vegetation cover, including mangrove
of Nigeria”, American-Eurasian and swamp thicket, was reduced from 59.2 square kilometres (30.1 per
Journal of Scientific Research cent) to 38.3 square kilometres (19.4 per cent), while naturally occurring
Vol 1, No 1, pages 31–37.
water bodies, including the ocean, lagoons and streams, was reduced from
19. Taiwo, O J (2009),
52.4 square kilometres (26.6 per cent) to 46.9 square kilometres (23.8 per
“Socioeconomic correlates of
the spatio-temporal variations cent) during the same period. Furthermore, between 1986 and 2006,
in wetland loss in Lagos state, wetlands cover, which is an important buffer against coastal floods, had
Nigeria”, PhD thesis, University significantly reduced in coastal Lagos (Table 3); in four coastal LGAs, there
of Ibadan, Nigeria.
was wetlands loss of 38–100 per cent during that period.(19)
TA B L E 2
Urban characteristics of local government areas in coastal Lagos
Local Total area Built-up area Built-up area Population Population density
government (km2) (km2) as % of total (2006)* of built-up area
area (LGA) area (per km2)
Apapa 26.44 13.90 52.57 222,986 15,632

Eti-Osa 193.47 84.07 43.45 283,791 3,423
Lagos Island 8.59 5.28 61.47 212,700 39,661
Lagos mainland 19.81 11.29 56.99 326,700 28,154
Shomolu 11.46 10.31 89.97 403569 39,053
SOURCE: *Federal Republic of Nigeria (2009), 2006 Census Final Results, Federal Republic of Nigeria Official
Gazette Vol 96, No 2, Abuja, Nigeria.
TA B L E 3
Wetlands loss in coastal Lagos (1986–2006)
Coastal local government Wetlands within LGA (%) Wetlands loss (%)
area (LGA) (1986–2006)
1986 2006
Apapa 14.0 8.6 38.6
Eti-Osa 41.8 25.2 39.7
Lagos Island 0 0 0
Lagos mainland 17.0 6.7 60.6
Shomolu 4.4 0 100
SOURCE: Adapted from Taiwo, O J (2009), “Socioeconomic correlates of the spatio-temporal variations in
wetland loss in Lagos state, Nigeria”, PhD thesis, University of Ibadan, Nigeria.
439
b. Environmental change and flooding

The humid tropical climate of Lagos is influenced by its coastal location
and proximity to the equator and is characterized by two distinct seasons.
The wet season occurs mainly between April and October and the dry
season during the remaining months of the year. During the rainy season,
many parts of Lagos are susceptible to flooding. The major causes of floods
in built-up areas include:
• uncontrolled expansion of impermeable surfaces resulting in
increased run-off;
• run-off responses(20) under high intensity rainfall; 20. Excess waterflow over the
• building on floodplains; land surface to lower levels as
a result of high intensity rainfall
• lack of stormwater drainage; and impervious surfaces.
• failure to maintain existing drainage systems; and
• weak institutional capacity of the urban administration.
Changes in the intensity and pattern of storms have also been listed
as factors that may influence the risks of flooding. A study of rainstorms
in Lagos for 1960–1980 showed that most were relatively light during
this period, yielding less than 12.7 millimetres of rainfall.(21) Analyses of 21. Ayoade, J O and F O
rainstorms on Lagos Island for the period 1971–2005 show that in more Akintola (1980), “Public
perception of flood hazard
recent years (1996–2005), rainstorms have been heavier, even though the in two Nigerian cities”,
number of rain days per annum has decreased. A comparison of rainfall Environment International Vol 4,
characteristics for the two periods 1971–1995 and 1996–2005 show marked pages 277–280.
differences (Table 4). While the mean annual rainfall is similar (1,697.8
millimetres for 1971–1995 and 1,647.3 millimetres for 1996–2005), fewer
rain days were recorded during the more recent 10-year period, indicating
that rainstorms in the latter period were much heavier than those of the
earlier period and resulted in more flooding.
Land use changes and subsequent changes in the hydrological fluxes
of the urban watershed have caused increasing flood hazards and risks in
many parts of the metropolis, most especially in slum communities. A study
of nine poor urban communities in different parts of metropolitan Lagos
showed that flooding is a major problem in most of them and appears to
have worsened between 2002 and 2006, with 71 per cent of respondents
reporting flooding of their streets in 2006 compared with 54 per cent in
2002.(22) Flooding in most of Lagos is compounded by the inadequacy 22. Ministry of Economic
Planning and Budget (2004),
of the drainage network within the city, which is neither functional nor
“State of Lagos megacity and
complete. Lately, the problem has reached such alarming proportions that other Nigerian cities”, Lagos
it has prompted the state government to put structures in place aimed at State Government, 134 pages.
reducing the incidence of flooding. The newly introduced programme,
TA B L E 4
Rainfall characteristics for Lagos Island
Rainfall characteristics 1971–1995 1996–2005
Mean number of rain days 112 82

Maximum number of rain days 163 105
Minimum number of rain days 76 69
Mean rainfall (mm) 1,697.8 1,647.3
SOURCE: Author’s analysis of daily rainfall data obtained from Nigerian
Meteorological Agency.
440
Operation De-flood Lagos, involves the massive de-silting and clearing of

major drainage channels through two government bodies, namely Drain
Ducks and the Emergency Flood Abatement Gang, which operate citywide.
III. VULNERABILITY IN LOW-INCOME SETTLEMENTS

Provision of good quality urban infrastructure is requisite for limiting
the risk of flooding for the whole city area, and most especially for
coastal slum settlements. Provision of basic infrastructure facilities
in metropolitan Lagos has not kept up with urban growth, including
unplanned expansion. Many residents, especially in high-density, low-
income areas, live in environmentally degraded conditions and lack
basic infrastructure and services including water supply, electricity, roads,
stormwater drainage, solid waste disposal, sanitation and quality housing.
Road systems within the slum communities are poorly maintained;
apart from the major roads that lead into the communities, most roads
are in a state of disrepair and lack all-weather surfaces. There is also the
constant challenge of stormwater management, a problem that results
from inadequate drainage channels, siltation of the existing channels
and indiscriminate dumping of solid waste within communities and
drainage channels/canals as a result of inadequate provision for solid
waste collection. Although a number of streets in the communities have
gutters, these are uncovered and constantly full of solid waste (Table 5).
The flow capacities of most drains are also inadequate for the amount of
stormwater generated during heavy rainfall. An assessment of conditions
and facilities in communities conducted by the Lagos Metropolitan
Development and Governance Project in 2006(23) showed that the majority
23. See reference 17. of slum communities, including Makoko and Ilaje-Bariga, ranked the
provision of drainage/dredging of canals foremost in their prioritization
of needed facilities, followed by roads.
In the four communities surveyed, more than 50 per cent of respondents
live less than 500 metres from the coastline. In two of the communities,
Ijora-Oloye and Marine Beach-Apapa, an even larger proportion lives less
than this distance from the ocean/lagoon coastline – 79 per cent and 71
per cent, respectively. Large sections of the surveyed communities have
been built on land reclaimed by sand infill, which therefore cannot
support solid structures. In Makoko, the dominant housing type is wooden
houses/shacks (35 per cent) followed by one-storey concrete bungalows
TA B L E 5
Prevalence of street drainage
Local government area (LGA) Uncovered concrete drains as

% of available drains
Apapa 96
Eti-Osa 65
Lagos Island 74
Lagos mainland 88
Shomolu 98
SOURCE: Lagos State Government Household Survey (2008).
441
TA B L E 6
Types of buildings in the community
Building type Makoko (% ) Ilaje-Bariga (%) Ijora-Oloye (%) Marine

Beach-Apapa (%)
Wooden house/shack 34.7 25.6 11.7 6.2

Wooden house on stilts 9.9 5.6 4.4 3.7
One storey (concrete) 21.8 39.4 19.7 16.0
Two or more storeys (concrete) 10.9 8.8 1.5 8.6
Zinc 12.9 8.8 62.0 65.4
Mud 9.9 11.9 0.7 0
SOURCE: Author’s field survey data.
TA B L E 7
Respondents’ reasons for living in the slum communities
Reason Makoko Ilaje-Bariga Ijora-Oloye Marine Beach-

(%) (%) (%) Apapa (%)
Born in the community 9.9 8.1 30.9 32.6

Family ties 16.8 31.3 18.7 22.1
Business/livelihood 14.9 18.8 35.3 20.9
Low cost of housing 34.7 19.4 2.9 16.3
Economic situation 5.9 15.6 6.5 0
No response 2.0 1.9 2.2 8.1
(22 per cent); Ilaje-Bariga is characterized by one-storey concrete bungalows

(39 per cent) and wooden shacks (26 per cent). In Ijora-Oloye and Marine
Beach-Apapa, 62 per cent and 65 per cent of houses, respectively, are built
with zinc sheeting (Table 6).
a. Socioeconomic characteristics of respondents

Respondents gave various reasons for living in the surveyed slum
communities. About 42 per cent cited existing family ties, including by
reason of birth. The low cost of housing was also a factor and in Makoko
was listed by 35.3 per cent of respondents. Economic activities were an
important factor influencing place of residence for 23 per cent of all
respondents, and in Ijora-Oloye this was important to 35.3 per cent of
respondents (Table 7).
The majority of respondents in the sampled slum communities are
tenants – 68 per cent in Ijora-Oloye and more than 80 per cent in the
other communities. The remainder are owners or squatters (Figure 3).
While 60 per cent or more of respondents in Makoko and Ilaje-Bariga
have lived in these communities for 2–10 years, more than 65 per cent
of respondents in Ijora-Oloye and Marine Beach-Apapa have lived in the
communities for upward of 11 years.
Fifty per cent of households in all four communities comprise
between four and six persons. In Ijora Oloye and Marine Beach-Apapa
442
100
Owner
90 Tenant
80 Squatting
70
60
Percentage
50
40
30
20
10
0
Makoko Ilaje-Bariga Ijora-Oloye Marine Beach
Apapa
FIGURE 3
Status of respondents
communities, however, up to 24 per cent of households comprise six to

nine persons. In all communities, an average of six per cent of households
include 10 persons or more.
A large proportion of respondents in all four slum communities are
engaged in the informal sector, with one-third being traders. In Ijora-
Oloye and Marine Beach-Apapa in particular, significant numbers of
respondents are employed as daily-paid wharf workers servicing the ports
industry, while only very few are engaged in fishing. However, in Makoko
and Ilaje-Bariga, more respondents fish the waters of the lagoon. Other
respondents are engaged in government employment (15 per cent) and as
artisans (13.6 per cent). The proportion of unemployed is relatively high
in all four communities, especially in Makoko and Marine Beach-Apapa,
where about 26 per cent of respondents are unemployed. The majority of
respondents (73 per cent) in the four slum communities have no more
than a secondary school education and eight per cent have no formal
education. Only 19 per cent have some form of tertiary education. The
low educational level of respondents is closely linked to their occupations
and consequent poor financial status.
Monthly incomes are low. In Ilaje-Bariga and Makoko, about one-
quarter of respondents earned less than N5,000 a month and fewer than
10 per cent earned more than N20,000. Income levels are relatively
higher in Ijora-Oloye and Marine Beach-Apapa, with no respondent
earning less than N5,000. About half the respondents in Ijora-Oloye
earned between N20,000 and N50,000 a month, while in Marine Beach-
Apapa, 40 per cent of respondents earned between N10,000 and N20,000.
High unemployment rates and low income levels in these communities
increase their vulnerability to environmental hazards, including floods.
443
b. Perception of floods
Of the problems listed by respondents in the surveyed communities,
flooding was ranked foremost. Other problems included bad roads,
environmental pollution/dirty environment, infestation by mosquitoes,
neighbourhood insecurity, poor electricity supplies, unemployment and
prevalence of disease. Many of these problems, for example bad roads,
water pollution, mosquito infestations and disease, are largely the result
of flooding in the communities. During floods, refuse and raw sewage
from dumpsites and drainage channels is swept into homes, which results
in all kinds of diseases. Floodwater also pollutes wells and contaminates
the water that flows through municipal pipes, which are usually damaged,
causing typhoid, cholera and hepatitis.
Flooding is more of a problem in the two communities that straddle
the ocean than in the two by the lagoon. This is because the houses in
Ilaje-Bariga and Makoko that are occupied by fisherfolk are built on stilts
in the water. For this category of urban poor, the problem of flooding
does not exist. Respondents noted that floods affected some parts of their
communities more than others. Areas close to canals/drainage channels
are especially susceptible to flooding, partly because solid wastes block
the drainage channels. In these areas, flood levels outside houses and in
the streets can be knee high or sometimes waist high depending on the
intensity of the rains and the location. Where the drainage system is poor,
flooding was noted to be more of a problem.
The year 2008 has been assessed as being the worst in Lagos since 2004
with respect to flooding.(24) In all four coastal communities, more than 24. Daily Sun (2008), “Taming
the raging floods”, 23 July,
80 per cent of respondents indicated that their communities and houses
page 8.
were flooded three or four times in 2008. Each flood event usually leaves
communities flooded for up to four days. Almost all respondents noted
that during each flood event, the level of water in their community was at
least knee high (Makoko 100 per cent of respondents, Ijora-Oloye 91 per
cent, Ilaje-Bariga 100 per cent and Marine Beach-Apapa 98 per cent).
Respondents attributed flooding to a range of causes (Table 8). More
than 60 per cent mentioned the poor drainage system. “Overpopulation”
of communities was the second most cited reason for the occurrence
of floods – with its effects being observed in the increased generation
of solid wastes, which are disposed of on the streets and in drains, and
the encroachment of buildings and structures onto otherwise illegal or
prohibited land, such as alongside drainage channels. Although Makoko
residents noted that heavy rainfall and surges from the lagoon contributed
to the occurrence of floods, fewer than one per cent of respondents saw
changing climatic conditions as a contributing factor. Makoko residents
explained that changes in the lagoon’s on-shore movement(25) were caused 25. This is the wave overwash
by the sand infill activities seen in recent times. Other factors contributing that occurs during on-shore
storms.
to flooding listed by respondents included:
• the presence of the lagoon and increases in its water level;
• overflowing of rivers;
• sand infill and land reclamation activities;
• government neglect; and
• supernatural factors.
When asked whether the frequency of flood events had increased or
decreased in the last five years, more than 75 per cent of respondents in
444
TA B L E 8
Respondents’ perceptions of the causes of floods
Perception Makoko (%) Ilaje-Bariga (%) Ijora-Oloye (%) Marine Beach-Apapa (%)
“Overpopulation” and
indiscriminate dumping of
solid waste 14.9 8.1 9.4 9.3
Poor drainage system 69.3 74.4 66.9 64.0
Negligence by government 0 0 2.9 2.3
No response/other 15.8 17.5 20.9 24.4
Increasing Variable
100 Reducing Don't know
90 No change
80
70
60
Percentage
50
40
30
20
10
0
Makoko Ilaje-Bariga Ijora-Oloye Marine Beach
Apapa
FIGURE 4
Perception of flood frequency
all four communities were of the opinion that there had been no change
(Figure 4). This response could be interpreted as either state government
efforts to address the issue of flooding through various structural
measures not having yielded noticeable reductions in flooding within
the metropolis; or that people may be adapting to the changes in flood
occurrence despite the increase in frequency of heavy rainstorms and
more floods.
c. Impacts, preventative measures and coping strategies

The impacts of floods appear to be similar at the individual, household
and community levels (Tables 9, 10 and 11). At the community level, the
445
impacts are grave and affect the functioning of the community and its
members. Because of the worsened environmental conditions that result
from flood events, waterborne diseases, hepatitis, intestinal diseases and
malaria are endemic, and all forms of productive activities are also affected
by floods. Nevertheless, respondents noted that within communities, the
impacts varied. In Makoko, for example, residents said that sections of
the community that have benefited from an improved drainage system
experienced less flooding than areas where the drainage system was poor.
At the household level, the impacts of floods on the social and
economic well-being of household members are evident. Floodwater,
a mix of drainage, surface run-off and sewage, flows into many houses,
sometimes reaching waist height. Most respondents (91 per cent) in all
four communities noted recurrent visits to health centres because of ill-
health and an increase in medical expenses as a major outcome of floods.
In addition, potable water shortages, which may be due to water pollution
and damage to water pipes following flood events, were noted by 94.5
per cent of respondents. In terms of economic/livelihood activities, 85.6
per cent of respondents in the four communities indicated that flood
events denied them job opportunities, while 8.8 per cent noted that floods
disturbed their economic activities. Because the majority of the population
in these communities depends on wages from daily work, any restrictions
on economic activities as a result of floods makes them highly vulnerable.
An impact of flooding in these poor urban communities that is
worth noting relates to the mental health of residents. Respondents in
the different communities noted that as a result of the annual flooding
of their communities, they lived in perpetual fear of future flood
events and the possible outbreak of an epidemic. The consequences of
this included loss of peace of mind, the inability to sleep well, loss of
appetite, discouragement and a feeling of being neglected. This can lead
to depression as the flood-affected population feels helpless due to the
overwhelming impacts. The mental health aspects and consequences of
repeated flooding can therefore be far-reaching, difficult to cope with,
and call for some consideration in the planning of formal responses.
TA B L E 9
Community level impacts, measures and strategies
Impact Preventative/limitation measures Coping strategies

Damage to roads Filling roads with sand using sandbags; Filling roads with sand using sandbags;
putting wood shavings on roads putting wood shavings on roads
Disruption of Construction of wooden bridges Use of canoes for transportation;
movement use of rain boots; taking unaffected routes
if available
Dirty environment Periodic environmental sanitation Communal cleaning of surroundings after
measures by community flood events
Flooding of Community members clear blocked Staying indoors; use of wooden bridges to
community drainage channels aid movement; opening up blocked drainage
channels
School children Children remain at home until floodwaters
prevented from subside
going to school
446
TA B L E 1 0
Household level impacts, measures and strategies
Impact Preventative/limitation measures Coping strategies
Damage to, and Construct drains in front of houses;

deterioration of, renovate buildings; build high walls to
buildings prevent floodwater from entering houses
Flooded houses and Fill rooms with sand/sawdust; construct Relocate to neighbour’s or relative’s
rooms trenches around houses; build high walls to house; raise household property to
prevent floodwater from entering houses higher levels; get rid of water using
buckets
Water springing Use “sandcrete” blocks to cover water Get rid of water using containers; raise
from the ground outlets in the ground; raise floor levels with floor levels with sand/sawdust
into rooms sand/sawdust
Lack of potable Rely on borehole water provided by LMDGP Purchase packaged water
water where available
Displacement from Temporarily relocate to stay with family/
homes friends; makeshift shelters in locations
not affected by flood
Loss or damage to Relocate moveable property outside the Repair or replace damaged property
household property community; keep property above flood
level
Prevalence of Self-medication; use of mosquito nets and Use of local herbs and drugs; use of
malaria and other insecticide sprays anti-malaria drugs; visit health centres
diseases
Income loss Use of structural measures to limit
due to sickness and floodwater entering houses
medical expenses
TA B L E 1 1
Individual level impacts, measures and strategies
Impact Preventative/limitation Coping strategies

measures
Poor health status resulting from Self-medication for preventative Relocate to unaffected community;
preventable sickness, including purposes, e.g. use of antibiotics; use of medicines
different skin diseases ensure personal hygiene
Social relationships affected as Flood-affected persons go out to
friends and family cannot visit or meet contacts
be invited to the house
Depression arising from economic
and social costs
Disruption of economic and Depend on sale of goods to buyers
livelihood activities within dwelling place
Scarcity of food/loss of food items Food items stored above Do without cooked food until
anticipated flood level situation improves; make do with
available resources
More money is spent on
treatment of diseases
447
An important preventative measure/coping strategy for households

is the purchase of substantial quantities of sand and broken sandcrete
blocks, in order to raise the floor levels within dwelling units. This costs
between N6,000 and N15,000 per wet season, depending on the level of
flooding experienced within the houses. Many lower-income level and
unemployed households cannot avail themselves of this coping measure
and are therefore very vulnerable to flood impacts. Another measure used
by households (82.2 per cent) is to deposit sand around buildings in order
to reduce the depth of the flood. It is estimated that households in flooded
areas incur cleaning and repair costs averaging N8,500 per household per
year.(26) 26. See reference 8, page 90.
At the time of the survey, the
exchange rate was US$ 1:145
Naira.
d. Sources of assistance
An important source of support during flood events for poor urban
households in the communities surveyed comes from family and social
networks, including community members. In the four communities, a
total of 75.3 per cent of respondents received assistance from family and
friends. Only in Ijora-Oloye and Ilaje-Bariga did respondents indicate
that they received additional help from government (10.8 per cent) and
religious organizations (6.5 per cent). The main form of assistance is the
joint clearing of waterways and drainage channels in Makoko and Ilaje-
Bariga (98 per cent) and in Marine Beach-Apapa (58.3 per cent). Five per
cent of respondents in Marine Beach-Apapa benefited from additional aid
in the form of material donations.
IV. CONCLUSIONS
Metropolitan Lagos is expanding rapidly both in area and population,
with a concomitant increase in the urban poor population in coastal
areas being at risk of flooding. Despite the challenges posed by flooding,
which are exacerbated by urban development, the vulnerability of the
urban poor to floods has not been taken into consideration in urban
planning and development. Since flooding in communities is very much
linked to the provision of adequate infrastructure and management of
the environment (including land use management), the vulnerability of
the poor urban population is highly linked to poor urban management
and government’s inability to deal adequately with the issues. An added
vulnerability faced by large sections of the urban poor in metropolitan
Lagos is the fear that the state government may evict them from land sites
deemed to be vulnerable to floods, with very inadequate or no provision
for finding alternative accommodation that meets their needs. This was
aptly exemplified by the demolition in 1991 of Maroko, a major slum
located on Victoria Island, after the forceful eviction by the Lagos state
government of the more than 300,000 residents. Among a list of reasons
given for the demolition of Maroko was the low-lying nature of the land,
which is 1.5 metres above sea level and therefore liable to flooding, and
which in the longer term, with sea-level rise, would be at risk of complete
submergence. However, this same land area was subsequently developed
into a high-income residential district of Lagos.
448
The concentration of current and likely future population on

land sites at risk from sea-level rise and storm surges and more intense
rainstorms (consequences of climate change) underscores the need to
integrate a consideration of climate into coastal flood risk management
and urban development strategies. The findings of this study can help
inform urban planners and government structures in supporting informed
adaptation to flood risks in this highly populated and expanding coastal
city. There is an opportunity to integrate climate change risk reduction
into the urban development of Lagos as more coastal settlements emerge,
learning from the current vulnerability of the urban poor population. A
range of measures to increase the adaptive capacity of the urban poor that
governments at different levels should pursue include:
• enforcement of urban planning laws;
• restrictions on land reclamation activities in newly developing areas;
• construction of more primary, secondary and tertiary drainage
systems, taking into account storm run-off responses under high
intensity rainfall;
• proper solid waste collection; and
• management and environmental education for citizens.
The enforcement of building guidelines in coastal locations is also
particularly important; but most importantly, it is imperative that a
land policy is developed that encourages the development of housing
schemes on safe sites that are affordable by low-income groups. Good
urban governance that responds to local context and characteristics is
therefore the solution to meeting the challenges experienced by poor
urban communities in the face of changing climate in a megacity such
as Lagos.
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450

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Environment and Urbanization

Vulnerability of poor urban coastal communities to flooding in Lagos, Nigeria

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International Institute for Environment and Development

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Federal Republic of Nigeria a. Conceptual framework

Community Number of households in Households Male Female

the Lagos State Ministry of Physical Planning. Group discussions with

II. THE COASTAL CITY OF LAGOS

However, alongside the planned development of this peninsula, fast-

Apapa 26.44 13.90 52.57 222,986 15,632

b. Environmental change and flooding

Rainfall characteristics 1971–1995 1996–2005

Mean number of rain days 112 82

Operation De-flood Lagos, involves the massive de-silting and clearing of

III. VULNERABILITY IN LOW-INCOME SETTLEMENTS

Local government area (LGA) Uncovered concrete drains as

SOURCE: Lagos State Government Household Survey (2008).

Building type Makoko (% ) Ilaje-Bariga (%) Ijora-Oloye (%) Marine

Wooden house/shack 34.7 25.6 11.7 6.2

Reason Makoko Ilaje-Bariga Ijora-Oloye Marine Beach-

Born in the community 9.9 8.1 30.9 32.6

SOURCE: Author’s field survey data.

(22 per cent); Ilaje-Bariga is characterized by one-storey concrete bungalows

a. Socioeconomic characteristics of respondents

communities, however, up to 24 per cent of households comprise six to

SOURCE: Author’s field survey data.

c. Impacts, preventative measures and coping strategies

Impact Preventative/limitation measures Coping strategies

SOURCE: Author’s field survey data.

Impact Preventative/limitation measures Coping strategies

Damage to, and Construct drains in front of houses;

SOURCE: Author’s field survey data.

Impact Preventative/limitation Coping strategies

SOURCE: Author’s field survey data.

An important preventative measure/coping strategy for households

The concentration of current and likely future population on

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