report of the panel of enquiry into the fire incident at city hall, lagos , june, 1998-

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LAGOS STATE GOVERNMENT

REPORT

OF THE

PANEL OF ENQUIRY

INTO

THE FIRE INCIDENT

AT

CITY HALL, LAGOS

JUNE, 1998



TABLE OF CONTENTS

Pages

CHAPTER 1 - INTRODUCTION - - - - - - - - - -

1- 3

CHAPTER 2 - findings of the panel - - - - - - - - 4-8

CHAPTER 3 - Recommendations - - - - - - - - 9 -10

CHAPTER 4 - Acknowledgement - - - - - - - -11

Annextures - - - - - - - - - - - - - - - - - - 12-26



CHAPTER 1

Introduction

By the letter of the Secretary to the State of Government No.LS/C339/S.4?128

dated 14th May, 1998, attached as Annexure I, the Panel of Enquiry into the fine

incident at City Hall, Lagos was set up under the Chairmanship of Honourable

Commissioner for Works, Engineers A, B. Piheiro.

1.0.1 Other members of the panels are:

(I) The Commissioner of Police or his representative

(II) The Permanent Secretary

Office of the Local Government Administration

(III) The Permanent Secretary

Home Affairs Office

(IV) The Permanent Secretary

Ministry of Works (with representatives the Directorates of Civil

Engineering as

(V)

Director, SSS or his representative

(VI) Drector, State Fire Service

(VII) Director, Local Government Monitoring,

Office of the Local Government Administration

Mr S. Ayilara, Director (Special Duties) Office of the Local Government

Administration to serve as Secretary.

Terms of Reference

1.0.2. The terms of Reference of the Panel are as follows:(I) to enquire into the cause(s) of the fire incident;

(II) to investigate the extent of damages to the City Hall and other vital documents

belongings to the Lagos Island Local Government and other government

agencies accommodated within the building;

(III) to investigate and ascertain the involvement of person(s)/official(s) of the

Lagos Island Local Government in the fire incident;

(IV) to determine whether or not the fire incident was an act of sabotage;

(V) to recommend appropriate punitive measures for person(s)/ official(s) foundeither remotely or directly responsible for the fire incident;

(VI) to determine the preventive measures in place against ire incidents, e.g. fire

drills and fire fighting equipment;

(VII) To ascertain the effectiveness of security system in place and the control of

movement within the building;

(VIII) To determine the extent of physical damage to the building, advise on the

estimated cost of rehabilitation and the quickest and most effective mode to be

employed;



(IX) To advise on other related areas.

Procedure

1.0.3 The Panel has its inaugural meeting on Monday, 18th May 1998 to plan and

map out the procedure to be adopted in carrying out its assignment. In view of

the short notice (2 weeks) given to submit its Report, the Panel decided to visit

the City Hall, Lagos, on the following day, Tuesday 19th May, 1988 in order to

inspect the extent of damage caused by the fire incident.

1.04 The minutes of the inaugural meeting and the Reports of the inspection visit

to the city Hall, Lagos are attached as Annexures I & II to this report.

1.05. at its inaugural meeting, members further examined the terms of reference and

observed that the task before them was enormous and as such decided to break into

four Sub-Committees were evolved:

(i) The first Sub-Committees was to determine the cause(s) of the fire incident,

with the following members:

(a) Permanent Secretary,

Home Affairs Office - Head of Sub-Committees

(b) Permanent Secretary, OLGA - Member

(c) Director, State Fire Service - Member

(d) Rep. State Security Service - Member

(e) Rep. Ministry of Works - Member

(ii) The Second sub-committee was to determine the extent of physical damages to

the building and vital documents with members as follows:

(a) Director (BASQS), Ministry of works -- Head of Sub-Committee

(b) Director (Civil Engr.)

Ministry of Works - Member

(c) Permanent secretary,(OLGA) to co-ordinate the work of the sub-committee

(iii) Members were as follows:-

(a) Permanent Secretary(OLGA) - Head of sub-committee

(b) Permanent Secretary, home affairs office -Member

(c) Rep. State Security Services -Member

Rep. of police (state command) -Member

(e)Director, Local Government Monitoring (Mr J.B Soares)to serve as secretary.



(iv)The fourth sub- Committee was to determine the preventive and

security measure to be put in place by the lagos island local Government.

Members were as follows:-

(a)Director, State fire Service -Head of sub-committee

(b)Director ( LGM)-OLGA -member

(C)Director (BASO), ministry of work -member

(d)Rep.state security service -member

(e)Rep.of the Nigeria police -member



CHAPTER 2

FINDINGS OF THE PANEL

2.0.2 At another meeting of the Panel held on Friday 21st May, 1998, the various

findings of the Sub-Committees were exhaustively deliberated upon by all members

and co-opted members of the Panel (a copy of the minutes of the meeting is attached

to the report as Annexure (IV). The findings are serialized in accordance with the

terms for reference as follows:

Cause of the Fire Incident

2.0.1 The Panel was able to establish that the fire was caused by electrical sparks

from the faulty socket of the airconditioner in the Chairman’s Study room. The rapid

spread substantial combustible materials in and around the study. For instance, about

thirty packet of exercise books meant for distribution to Primary School pupils and

other furniture items in the room were ignited by the sparks, indeed, the rapid spread

of the fire to other sections of the City Hall was aided by the suspended

woodenceiling, the combustible insulation of the abandoned central airconditioningducts and the several wooden partitions. However, the Panel observed that if the City

Hall had been adequately equipped the fire fighting gadgets commusurae amazing

that all the available fire fighting devices in the City Hall were out of order due to

poor maintenance record.

THE EXTENT OF DAMAGE TO THE CITY HALL AND OTHER VITAL

DOCUMENT BELONGING TO THE LAGOS ISLAND LOCAL GOVERNMENT

AND OTHE GOVERNMENT AGENCIES ACCOMMODATED WITHIN THE

BUILDING

2.0.2 The Panel examined the report of the technical team comprising Architects,

Structural Engineering, Quantity Surveyors and Builders from the Ministry of Works,

Secretariat, Alausa, Ikeja and found out that the following areas of the City Hall were

badly affected by the fire outbreak:

2.0.3 The Chairman’s Floor (4th Floor)

This is the floor which the fire started before spreading to other parts of the Complex.

It was understood that the fire emanated precisely from the study Room of the

Chairman. The building components affected on this floor included the following;

(i) The Partitions Block Wall

The total area of the partitioning wall affected was about 1500m2. Two types

of wall partitioning were constructed. The internal wall partitioning along

the entire corridor was made of block wall while the actual space

partitioning was made of up of veneer plywood covered on both sides of the

partitioning line.



(ii)

The Doors

All the 60 Nos standard high quality flush doors were destroyed. All thes should

be replaced with complete 100mm bras-butt hinges nd good quality mortice locks.

(iii)

Aluminum Curtain Wall

The Aluminum curtain walling on this floor was badly damaged. This covers both

the internal part of the building. The area of the nternal curtain wall is about

200m2 while the area of the external part is about 600m2.

(iv)

The Floor Finish:

The total area of the affected Chairman’s floor is about 650m2 The length of floor,

skirting is about 500metres. The damage p.v.c tiles also covered about 650m2. The

tile need polishing, preferably with emulsion polishes, so as to retain their initial

good appearance.

(v)

The Roof Finish

(vi) The roof is made of concrete with the soffit properly rendered. The affect of the fire

was so much on it that some of the reinforcements were exposed. The total area

covered on the roof is also about 650m2

(vii) Toilet Fittings

All the 9 Nos. toilets on the Chairman’s floor were completely affected with all the

toilet fittings damaged. These included the water closets, te wash-hand basins, the

urinals, the wall mirrors, the ceramic floor and wall tiles. All theses need to be

replaced.

(viii) The Services

(a)

The Electrical wiring had been damaged and all the components that were

associated with electrical installation had also been destroyed. Such

components included the switches, the sockets, the ceiling roses, etc.

(b) The airconditioning ducts were also adversely affected. These were the

elements that aided the spread of the fire. The whole air-conditioning system

needs to be over-hauled, and the damaged parts replaced.

(c) The plumbing pipes on the 4th floor was damage. Some of the materials used

were asbestos drain pipes which are highly combustible. Alternative

materials should be used to replace the asbestos pipes.

2.0.4 The Council Chamber

This is an oval-shaped structure that is centrally located between the row of

offices. It cover two structural floors that is the 3rd and the 4th floor with the

courtyards on both sides of the chamber. A lot of building components were

completely destroyed by the fire to a large extent that over 80% of the

structural reinforcement bars were exposed. Some of the components are as

follows:



(i) The Plastered Wall

The effect of the fire was much in the Council Chamber. Over 75% of the

plastered wall had chipped off and in some cases, the reinforcement bars were

exposed. The total area covered is about N3,000m2.

(ii) The Floor

The floor area covered in the Council Chamber is about 2,500m2. The terrazzo

floor material was completely shattered and the floor skirting was completely

destroyed. The mezzanine floor was not spared too and some of the plastered

area on the soffit had been chipped off.

(iii) The Joinery

Some of the joinery materials here had been twisted and completely damaged.

The balustrade on the gallery had been damage.

2.0.5. Structure Damage

The Lagos City Hall Building is a framed structure having two wings of 3 Nos.

suspended floors with a reinforced concrete roof slab. The portion of the roof covering

the Council Chamber carries a folded plate slab. The section of the building affected

by the fire is the eastern wing of the building on the third floor and the roof. The

remaining sections of the building were unaffected. A close of the structural members

in the damaged area of the building, indicated that the fire did not have any serious

adverse effect on the members excepts for minor spalling of concrete and distin

generation of the plaster underneath the soffit of the roof slab and on the sandcrete

blockwall partitions. The cracks noticed on the folded plate slab on top of the Council

Chamber were caused by the relative small thickness of the plate which eventually in

the due to the high temperature from the fire. The reinforced concrete elements (i.e.

slabs, beams, columns) in the affected portion of the building were saved due to the

fact that, sufficient insulation in terms of a combination of very thick plaster (about

30mm) and concrete cover were provided for the main tension reinforcement of the

structural elements and as a result the steel reinforced in the members were barely

subjected to the degree of temperature from the fire that would have caused their

damage.

2.0.6 The panel noted that the limits of fire resistance protection for the reinforced concrete

elements were not exceeded and as such it is safe to conclude from the preliminary

investigation that the strength of the structural members has not been impaired by the

fire.INVOLVEMENT OF PERSON(S)/OFFICIAL(S) OF THE LAGOS ISLAND LOCAL

GOVERNMENT IN THE FIRE INCIDENT

2.0.7 The panel considered the report of the Sub-Committee and observed that the Sub-

Committee painstakingly took evidence from all the staff who worked directly with

the chairman, Lagos Island Local Government and whose office was reported to be

the source of the fire incident. It also listened to eye-witness accounts from concerned

citizens.



2.0.8 It is significant after the affected staff were interrogated in turns, none of them,

except Mr. Nureni Gisanrin, the Chief typist who doubles as Confidential Secretary

to the Chairman, could be implicated. Even for Mr. Gisanrin, the guilt that would lie

against his person could be put as sheer in experience and ineptitude. This view-

point is informed by the evidence volunteered by Mr. A. Ajasa, Head of Department

(Budget & Planning) to the effect that when he first noticed the smoke coming out of

the Chairman’s study, he immediately alerted Mr. Gisanrin, who instead of making

some initial attempts at putting out the fire resorted to phoning the Fire Services. The

panel saw no criminal intent in this action moreso when the representative of the SSS

on the Sub-Committee confirmed that all the affected staff had earlier been quizzed

intensively by both the Police and the SSS and that all the elements that could sustain

a charge of sabotage or arson were conspicuously lacking.

2.0.9 Deriving from the foregoing, the panel’s position regarding this particular term of

reference are as follows:

(i) That having scrutinized all the evidences of staff of Lagos Island Local

Government, the fire incident of 30th April, 1998 at the City Hall was not an act

of sabotage. Rather the panel was of the view that the incident resulted from

total negligence on the part of staff supposedly engaged to handle the

maintenance and up-keep of facilities at the City Hall;

(ii) that the fire incident was caused by a spark from one of the air-conditioners in

the Chairman Study room;

(iii) That the spread of the fire was aided by combustible materials around the air-

conditioner ducts. These air-ducts were found to have been installed in the

ceiling of the fourth floor of City Hall.

The Preventive and Security Measures in Place against Fire Incidence

2.10 The panel having gone through the report of the Sub-Committee concluded asfollows;

(i) There was no standard fire/safety measure in place before the fire incident, i.e.

the few fire extinguisher and fire hose reels installed were defective and long

over due for replacement

(ii) There were no smoke detectors in the building;

(iii) Sprinkler system was not installed in the building;

(iv) There was no ABC automatic dry powder fir extinguisher installed in the

building;

(v)

There was inadequate water supply in and around the building;(vi) The movement of people, especially outsiders, in and out of the Secretariat

complex was not adequately controlled;

(vii) The parking lots for vehicles within the Secretariat Complex wee not properly

monitored;

(viii) There was no adequate illumination in and around the Secretariat Complex;

(ix) That the management of City Hall had not given adequate attention to the

general maintenance and up-keep of the edifice. None of the lifts was found to

be functional and it was known that the lifts had been in a state of disuse for a

fairly long time;



(x) Following from paragraph (ix) the panel was informed that the Maintenance

vote on an annual basis for the City Hall had never exceeded N750,000.00. This

pittance is invariably diverted to other uses of the Local Government Council;

(xi) Evidence abounds that no personnel either senior of junior have been put

through fire drills within the last eight years despite arrangements made by the

Office of Local Government Administration in liaison with the Directorate of

the State Fire Services to have Local Government staff tutored and drilled for

emergencies.

THE ESTIMATED COST OF REHABILITATION OF THE DAMAGE CITY HALL

BUILDING

2.1.1 The Panel considered the report of the Sub-Committee on the estimated cost for the

repair of the damaged parts of the City Hall, Lagos. The panel was of the view that

the total cost presented for the repair/renovation of part of the 4th floor and entire

Council Chamber occupying the 3rd and 4th floor damaged by the fire was on the high

side. The Panel therefore directed the Sub-Committee to explore other engineering

alternatives in bringing down the cost to a realistic and affordable level that would

be cost effective. Consequently, the Panel considered and agreed that a total sum of

Thirty Million Naira (N30,000.000.00) would be adequate to effect the

repair/renovation of the damaged part of the 4th floor of the building and a

provisional sum of Two Million (N2,000,000.00) would suffice for the

repair/renovation of the entire Council Chamber. The bills of Quantities for the

repair/renovation of the damaged 4th flor part of the City Hall building totaling

N30,053,270.00 and the status report on the repair/renovation of the burnt Council

Chamber are attached as Annexure V.



CHAPTER 3

RECOMMENDATIONS

3.0.0 The Panel, having thoroughly considered the findings recommends as follows:

3.0.1 (i) That the City Hall could do with suitable and adequate fire fighting devices,

e.g. different types of functional fire extinguishers, Automatic Fire Sprinkler

systems, smoke detectors, Fire Hose-Reels etc. which should be installed After

a detailed study of its needs in this regard by the State Fire Service Department

or a Fire Service Consults. In the same vein, the security officers of the LocalGovernment should be exposed to training on Fire Prevention and Fire

Fighting techniques. Other officers should also be exposed to fire drills

regularly;

(ii) That in view of the invaluable role of water in fire fighting, the panel strongly

recommends that the City Hall, should be provided with an alternative source

of water like a deep all-weather-borehole and a big capacity overhead tank.

This will ensure continuous supply of water in case of shortfall from the Public

source. Recommendation (i) and (ii) above should be made applicable and

mandatory to other Local Government Councils and indeed all State

Government Agencies and Establishments.

(iii) That the state Fire Services should be adequately assisted by the State

Government to acquire more modern fire fighting vehicles and equipment as

well as necessary communication gadgets. Moreover, efforts should be made

by the State Government to ensure that Fire Service Stations are located in

every Local Government Headquarters in the state;

(iv) That in order not to allow a re-occurrence of such incident in any State or Local

Government Establishment, the State Government should strongly direct that

all electrical appliances in Government Offices should be put off especially

when the occupier(s) of such office(s) are not around. Moreover, Government

should also direct that the surroundings of the City Hall, Lagos as well as other

Government Establishments should be well illuminated at night for obvious

security reasons;

(v) That the movement of persons and vehicle in and around the premises of the

City Hall, Lagos as well as other Government Establishments should be

properly regulated and monitored;

(vi) That the total sum of N30,053,270.00 (Thirty Million and Fifty Three Thousand,

Two Hundred and Seventy Naira) has been considered as a reasonable amount

to effectively carry out the repairs necessary to put the affected parts of the 4 th

floor of the City Hall back to shape. The breakdown of the figure is contained

in the report of the Sub-Committee for costing and ascertainment of damages,

attached as Annexure V to this report. This amount is recommended for

disbursement as assistance to the Lagos Island Local Government.



(vii) That a provisional sum of N200,000,000.00 (Two Hundred Million Naira) has

been considered and agreed to be adequate for the complete repair/renovation

of the damaged Council Chamber which occupied part of the 3rd and 4th floor

of the City Hall Building. Moreover, the Panel was of the view that the

repair/renovation work on the Council Chamber should be carried out in

phases subject to the availability of fund. Meanwhile the Chamber should be

cordon off from the rest of the building:

(viii) In additional to the assistance of N30,000,000.00 being provided and taking

cognizance of the provisional amount recommended for the repair/renovation

of the Council Chamber, the Panel strongly recommends that additional sum of

N25,000,000.00 by provided by the state Government to flag-off the

Rehabilitation of the Council Chamber. Moreover, the supervision and

certification of the reconstruction work should be done by the State Ministry of

Works.

(ix) That the State Fire Services Department being the Agency of Government and

responsible for provision of fire safety standards and regulations in high rise

buildings (4th floor and above) should be alive and alert to its duties by

ensuring that these Organizations comply with relevant provisions of the

decree governing fire safety requirements for such buildings.



CHAPTER 4

ACKNOWLEDGEMENT

The Chairman members of the Panel of enquiry into the fire incidents at the City Hall wish to

express our profound gratitude and appreciation to the Military Administrator of Lagos

State, Col. Muhammad Buba Marwa, for giving us the opportunity to carryout this very

important assignment. The Panel feels that if the well articulated recommendations of its

Report are considered and properly implemented by the State Government, the spale of

devastating fire incident in the State would be adequately contained.

2. The Panel also recognized the co-operation of the Chairman and officials of the Lagos

Island Local Government who assisted members during the inspection visit as well as

providing useful information to the Panel during the cause of its investigations. It is our

hope that the State Government would find the Report useful in proffering long lasting

solutions to the spate of fire outbreaks in the State.

3. Thank you.

Engineer Babatunde PinheiroHon. Commissioner for Works

(Chairman)

Alhaji B. T. Rotinwa Mr. Yomi Morgan Mr J. B. Soares

Permanent Secretary Permanent Secretary Director (Local Govt.

Office of Local Government Home Affairs Office Monitoring (Member)

Administration (Member) (Member)

Mr. Ola Okubanjo Arc. Mrs. O. O. Ejuwunmi Engr. O. OlusanyaDirector, Lagos State Director (BASQ) Director (Civil Engr.)

Fire Service (Member) Ministry of Works Min. of Works

(Member) (Member)

Mr. Michael Nwosis Mr. Larry Obiagwu

Superintendent of Police Representative of the Director.

Representing the Comm. State Security Services

Of Police, Lagos State (Member)

(Member)

Mr. S. Ayilara

Directors (Special Duties)

Office of Local Government Admin.

(Secretary)



LAGOS STATE GOVERNMENT

OFFICE OF THE SECRETARY TO THE STATE GOVERNMENT

The Secretariat

Ikeja, Lagos Nigeria

P.M.B. 21530, Ikeja Telegram: GOVLAG Telephone

LS/C.339/S.4/128 14th May, 1998

Engr. A. B. PINHEIRO,

Honorable Commissioner for Works,

Ministry of Works,

Secretariat,

Ikeja Lagos.

PANEL OF ENQUIRY INTO THE FIRE INCIDENTS AT CITY HALL

1. Please recall the fire incident of Thursday, 30th April 1988 at the City Hall, Lagos.

2. Following the Military Administrator’s visit to the scene of the unfortunate incident, h

directed that a Panel of Enquiry be set up to investigate the cause of the fire and advis

government appropriately.

3. Accordingly, you have been nominated to head the Panel of Enquiry. The members are a

follows:-

(i) The Commissioner of Police or his Representative

(ii)

The Permanent SecretaryOffice of Local Government Administration

(iii) The Permanent Secretary, Home Affairs Office.

(iv) The Permanent Secretary

Ministry of Works (with representatives from the

Directorate of Civil Engineering and Architectural Services)

(v) Director, SSS or his representative

(vi) Director, State fire Services

(vii) Director, Local Government Monitoring, Office of the Local Governmen

Administration.

Mr. A. Ayilara, Director (Special Duties) Office of the Local Governmen

Administration, will serve as Secretary.

4. The terms of Reference of the Panel are as follows:

(i) To enquire into the cause(s) of the fire incident;

(ii) To investigate the extent of damages to the City Hall and other vita

documents belonging to the Lagos Island Local Government and othe

government agencies accommodated within the building;



(iii) To investigate and ascertain the involvement of person(s)/official(s) of th

Lagos Island Local Government in the fire incident;

(iv) To determine whether or not the fire incident was an act of sabotage;

(v) To recommend appropriate punitive measures for person(s)/official(s

found either remotely or directly responsible for the fire incident;

(vi) To determine the preventive measures in place against fir incidents, e.g

fire drills and fire fighting equipment;

(vii) To ascertain the effectiveness of the security system in place and th

control of movement within the building;

(viii) To determine the extent of physical damage to the building, advised on

the estimated cost of rehabilitation and the quickest and most effectiv

mode to be employed;

(ix) To advise on other related areas.

5. I am to state that the Panel has been given 2 (two) weeks from the date of this letter for it

sittings and submission of a Report.

6. Grateful acknowledge the receipt of this letter, please.

O. O. Da-Silva (Mrs.)

Secretary to the STATE Government

Ref. No. LS/C.339.S.4/131

Office of the Secretary to the

State Government and

Head of Service,

The Secretariat, Ikeja

Lagos.

Copy to:- 13th May, 1998

The Commissioner of Police

Lagos State Command,

Old Secretariat,

Ikeja.

The Permanent Secretary,

Office of Local Government Administration,

Secretariat, Ikeja.

The Permanent Secretary,

Home Affairs Office,

Secretariat, Ikeja.

The Permanents Secretary,

Ministry of Works

Secretariat, Ikeja.



The Director

State Security Services

Shangisha

The Director

State Fire Services

Home Affairs Office

Secretariat, Ikeja.

The Director

Local Government Monitoring

Office of Local Government Administration

Secretariat, Ikeja.

Mr. S. Ayilara

Director (Special Duties)

Office of Local Government Administration

Secretariat, Ikeja.

Above and overleaf for your information and necessary action please.

O. O. Da-Silva (Mrs.)

Secretary to the State Government



ANNEXURE

INAUGURAL MEETING OF THE PANEL OF ENQUIRY ON THE FIRE INCIDENT AT THE

CITY HALL, LAGOS HELD ON MONDAY, 18TH MAY 1998 IN THE CONFERENCE ROOM OF

THE HONOURABLE COMMISSIONER FOR WORKS, THE SECRETARIAT, ALAUSA, IKEJA.

1.0 Members Presents:

(i) Engr. Babatunde Pinheiro - Honourable Commissioner for

Works - Chairman

(ii) Alhaji B. T. Botinwa - Permanent Secretary Office

of the Local Government

Administration

(iii) Mr. Yomi Morgan - Permanent Secretary

Home Affairs Office

(iv) Mr. Ola Okubanjo - Director, Lagos State Fire Services

(v) Engr. O. Olusanya - Director, (Civil), Ministry of Works

(vi) Arc. Mrs. O. O. Ejiwumi - Director (BASQS)

(vii) Alhaji A. Ogundepo - Chief fire Officer

(viii) Mr. Larry Obiagwu - Rep. State Security Services

1.1 In Attendance

(i) Mr. S. Ayilara - Secretary to the Committee

(ii) Mr. A. A. Ogundimine - Office of the Local Govt.

Administration

2.0 Commencement:

2.1

The meeting, which was chaired by the Honourable Commissioner for workEngineering Babatunde Pinheiro, commenced at 2.45p.m. The Chairman called fo

the general comments of members of the Panel in respect of the Fire incident at Cit

Hall, Lagos.

2.2 In his remarks, the Permanent Secretary, office of the Local Governmen

Administration stated that the first hand report he got when he visited the site of th

fire incident confirmed to him that the started from an air-conditioned unit locate

at the inner room of the office of the Chairman, Lagos Island Local Governmen

From there, it was further confirmed, that the fire spread to the third floor of th

building engulfing the Council Chamber. This was the situation of things before thfire could be extinguished by the fire fighters who cam from both the Federal and

State Fire Services.

2.3 In his own contribution, the State Director of Fire Service, Mr. Ola Okubanjo, stated

that the Fire Service located at Campus Square was first contacted but according to

him the water hydrant of the fire vehicle could not put off the inferno met on th

ground. The Fire Services located at Ilupeju was quickly contacted for assistance. A

this junction, the Honuourable Commissioner for Works enquired whether ther

were fire fighting devices already put in place at the City Hall which could b

engaged to put off any Fire incident.



2.4 In response, the State Director of Fire Service confirmed the existence but not

functioning firefighting equipment in the building. This further compounded the

problem of putting-out the fire.

2.5 At this juncture, the Chairman called on members to examine the terms of reference

given to the Panel and observed that the task before the Panel was not easy since only

2 weeks was given to the Panel to complete its assignment. He therefore suggested

that the Panel be broken into four sub-committees taking cognizance of the giventerms of reference. Thus we had the following sub-committees.

(i) The first sub-committee to determine the remote cause of the Fire incident, with

the following members:

(a) Permanent Secretary, Home Affairs Office - Head of Sub-Committee

(b) Permanent Secretary, OLGA - Member

(c) Director, State Fire Service - Member


(e)

Rep. Ministry of Works - Member

(ii) The second sub-committee to determine the extent of physical damage to the

building and vital documents with members as follows:

(a) Director (BASQS), Ministry of Works - Head of Sub-Committee

(b) Director (Civil Engr), Ministry of Works - Member

(c) Permanent Secretary, (OLGA) to co-ordinate

the work of the sub-committee.

(iii) The third sub-committee which was to deal with the issue of the involvement of

persons/officials connected with the fire incident and any suspected act of

sabotage. Members were as follows:

(a) Permanent Secretary (OLGA) - Head of Sub-Committee

(b) Honourable Commissioner for Works - Member

(c) Permanent Secretary, Home Affairs Office - Member


(e) Rep. of Police (State Command) - Member

(f) Director, Local Govt. Mon (Mr. J.B Soares)

to serve as Secretary

(iv) The fourth sub-committee which should determine the preventive and security

measures put in place by the Lagos Island Local Government. Members are as

follows:

(a) Director, State Fire Service - Head of Sub-Committee

(b) Director (LGM) OLGA - Member

(c) Director (BASQS), Min. of Works - Member


(e) Rep. of State Commissioner of Police - Member



2.6 At this state the Honourable Commissioner for Works called for comments from

members with regards to the composition of the above stated sub-committees. The

Permanent Secretary, Office of the Local Government Administration in his own

contribution supported the composition of the four sub-committees. He however

suggested the provision of the logistic support and the determination of the time limit

within which the four sub-committees were to submit their reports. In his reaction the

Chairman slated that the suggestion of the Permanent Secretary (OLGA) was a good

one but quickly added that the initial non-provision of the logistic support should not

stop the work of the sub-committees. He assured members that adequate provision of

logistics support would be provided. After exhaustive deliberation on the issue of

time frame within which the sub-committees were expected to submit their reports to

the panel, it was agreed that the sub-committees reports should reach the Secretariat

on or before Friday 22nd May, 1998. Furthermore, the Chairman stated that the

assignment of the Panel should be treated with utmost secrecy and confidentiality

because of its sensitive nature. Moreover, he stated that his Ministry would provide

all the logistics necessary to make the Secretariat of the Panel of Enquiry function as

required. Finally, the chairman requested the Permanent Secretary, Office of Local

Government Administration to arrange with the Chairman, Lagos Island Local

Government as to the time members of the Panel would visit the City Hall, Lagos. At

this juncture, the Permanent Secretary, OLGA stated that he would immediately get in

contact with the Chairman, Lagos Island Local Government to ensure that members of

the Panel visit the City Hall, Lagos at 8.00am on Tuesday, 19th May 1998. With the

given assurance, members of the Panel agreed to converge at the City Hall, Lagos by

8.00am on Tuesday, 19th May 1998 for the inspection.

3.0 Closing:

3.1 In absence of further discussion the meeting close at 3:15pm

Secretary to the Panel

21st May 1998



ANNEXURE III

REPORT ON THE INSPECTION VISIT TO THE CITY HALL, LAGOS ON TUESDAY

19TH MAY, 1988 BY THE PANEL OF ENQUIRY ON THE FIRE DISASTER THAT

GUTTED PARTS OF THE BUILDING.

On Tuesday, 19th May 1988 members of the Panel of Enquiry on fire disaster which

occurred at the City Hall, Lagos went on the tour of the affected parts of the building. The

Chairman, Lagos Island Local Government together with all the top functionaries of hisLocal Government were on hand by 8.30am to receive members of the Panel of Enquiry

headed by the Honourable Commissioner for Works, Engineer Babatunde Pinheiro.

Thereafter, members of the Panel together with Chairman, Lagos Island Local Government

and his officials went around the affected parts of the City Hall for on the sport assessment

of the extent of damage to the building, properties and vital documents.

2. Members of the Panel moved straight to the 4th Floor of the building where the Office

of the Chairman was located because the fire was reported to have started from the area of

the building. During the tour, the Head of the Panel of Enquiry and some members of the

Panel asked questions from some members of the staff of the Lagos Island Local Government

who could provide useful information to some vital questions. The Chairman of the Panel

also asked some questions from both the Chairman and the City Engineer of the Local

Government. The questions which were asked among others centered on:

(i) the cause of the infano,

(ii) the security and preventive measures put in place to promptly combact the fire

out-break;

(iii) what was done immediately the smoke of the fire was first noticed before it

developed to uncontrollable infano;

(iv) the regularity and steadiness of power supply by NEPA to the building;

(v) how dependable was the source of supply of water to the entire building;

(vi) the response and intervention of the Federal and State Fire Services when

distress calls were made on them e.t.c.

3. Answers were provided for the above stated questions, among others. The Chairman

of Panel thereafter informed the Chairman, Lagos Island Local Government that appropriate

sub-committees of the main Panel of Enquiry had been set up and would invite some

people/officials for questioning as considered expedient in the life course of its assignments.

He advised that anybody subsequently invited for questioning should fully cooperate so as

to enable the Panel of Enquiry carry-out its assignment to a logical conclusion. He further

said that this sort of cooperation would be in the interest of the Lagos Island Local

Government in particular and the society at large. According to the Chairman of the Panel, if

the root cause of the fire incident was ascertained, then the Panel would be in vantage

position to make appropriate recommendations to Government on measures to take to

forestall future re-occurrence of such unfortunate incident.

4. On the whole, the Panel confirmed that the Office of the Chairman of the LocalGovernment and the other adjourning Offices (L-shaped) on the same floor were badly



affected. The Council Chamber including its adjoining walls were also badly damaged by the

fire. The cost of repair of the damage parts of the City Hall, would be enormous. The total

cost according to the Head of the Panel of Enquiry, would however be determined by his

Panel. To this end, he stated that efforts would made to contact Messrs Nigersol – the main

contractor to the construction of the City Hall, Lagos. Messrs G. Cappa and some other

reputable building contractors would also be explored. The original copies of the

Engineering and Architectural Drawings of the building should be produced for the use of

Panel.

5. Before the departure of the members of the Panel of Enquiry from the City Hall,

Lagos, the Chairman of the Local Government, Mr. M.A. Obanikoro wished the Panel God’s

guidance and success on the big assignment given.

6. Finally, the Honourable Commissioner emphasized, in unequivocal terms, that for

obvious reasons of transparency, probity and responsibility, the four Sub-Committees would

be sitting at the State’s Secretary, Alausa, Ikeja. The position taken by the Honourable

Commissioner, on behalf of Panel of Enquiry, was well noted by all persons that were

privileged to be around when the four of the affected parts of City Hall was concluded.

7. The members of Panel thereafter departed for the State’s Secretariat, Alausa, Ikeja.

The Secretary

Panel of Enquiry

City Hall, Lagos.



ANNEXURE IV

THE MINUTE OF THE 2ND MEETING OF THE PANEL OF ENQUIRY ON THE FIRE

INCIDENT AT THE CITY HALL LAGOS HELD ON WEDNESDAY 20TH MAY, 1998 IN

THE CONFERENCE ROOM OF THE HONOURABLE COMMISSIONER FOR WORKS,

THE SECRETARIAT, IKEJA.

1.0

Members Presents

(i)

Engr. Babatunde Pinheiro - Honourable Commissioner forWorks- Chairman

(ii) Alhaji B.T. Rotinwa - Permanent Secretary – OLGA

(iii) Mr. Yomi Morgan - Permanent Secretary, Home Affairs

Office

(iv) Engr. O. Olusanya - Director (Civil) Ministry of Works

(v) Arch. Mrs. O.O. Ejiwunmi - Director (BASOS) Ministry of Works

(vi) Mr. J.B. Soares - Director (Local Govt. Monitoring

OLGA)

(vii)

Alhaji L.O. Ogundepo - Chief Fire Officer Representing theDirector, Lagos State Fire Services

(viii) Mr. Michael Nwosisi - Representing the Commissioner of

Police, Lagos.

(ix) Mr. Larry Obiago - Representing the Director, State

Security Service.

1.1 In Attendance:

(i) Mr. S. Ayilara - Secretary to the Pane

(ii) M. A.A. Ogundimine - Office of the Local Government

Administration

2.0

Commencement:

2.1 Immediately the meeting commenced, the Chairman of the Panel, the Honourable

Commissioner for Works, called on the Heads of the four sub-committees to present,

in turn, the reports of their findings and recommendation in concise form. In

compliance, the Heads of the four sub-committees presented the respective reports of

their sub-committees.

2.2 The reports, which covered all the areas of the Terms of Reference, were exhaustively

deliberated upon all members present. Consensus was reached on the following vitalareas:

(i) that from the evidence at its disposal, the Panel was satisfied that there was no

person(s) or official(s) remotely or directly responsible for the cause of the fire

incident that occurred at the City Hall, Lagos;

(ii) that the fire incident was caused by some sparks from a faulty electrical plug in

the study room of the Chairman, Lagos Island Local Government;

(iii) that the fire was actually fueled by some combustible materials in the study

room of the Chairman, Lagos Island Local Government e.g. the bails of Exercise

Books kept in the study room and some wooden partitions of the adjoiningoffices;



(iv) that the rapid spread of the fire was aided by some combustible insulation

around the central air conditioner ducts and the suspended wooden ceilings

along the passages and council chambers;

(v) that some staff especially those in the Chairman’s Office who were present

when the smoke of the fire was first notice were negligent. They were not quick

enough to put off the fire before it developed into an uncontrollable inferno;

(vi) that the first batch of fire fighters from the Fire Services, did not arrive at the

scene of the incident with appropriate Fire fighting, equipment to effectively

extinguish the fast spreading fire;

(vii) the costs for the rehabilitation of the damaged parts of the City Hall as

presented by the sub-committee was found to be on the highside. The Panel

following the advice given by the Chairman, directed the sub-committee to

explore other Engineering alternatives in bringing down the cost to a realistic

level that would be cost effective;

(viii) that there was no evidence to show that the security officers of the City Hall

were made to undergo regular fire drills. This would have put them in good

shape on what to do when the fire was first noticed;

(ix) that the fire fighting, equipment install at the City Hall, Lagos especially the

hose-reels and fire extinguishers were not functioning at the time of the fire

incidentl

(x) that there was no adequate and dependable source of water supply at the City

Hall, Lagos and the immediate surroundings;

(xi) that the City Hall should be compartmentalized in consonance with the various

Government and Private establishments doing business in the building;

(xii) that the movement of vehicles and person in and out of the City Hall should be

regulated and property monitored.

3.0

Conclusion:

3.1 In conclusion, the Secretary being armed with the copies of Reports of the four sub-

committees, was directed to liaise effectively with the Permanent Secretary, Home

Affairs Office, Mr. Yomi Morgan, the Permanent Secretary, Office of the Local

Government Administration, Alhaji B.T. Rotinwa and the Director (Civil Engineering)

Ministry of Works, Engineer O. Olusanya and come up with a comprehensive report

by synchronizing the various reports given. This should be presented at the next

meeting of the Panel stated for 3.00pm on Wednesday, 27th May 1998 for final

consideration before being forwarded for printing.

4.0 Closing:

4.1 The meeting finally adjourned at 1.30pm to reconvene at 3.00pm on Wednesday, 27th

May, 1998.

Secretary to the Panel



ANNEXURE V

BILLS OF QUANTITIES FOR REPAIRS/RENOVATIONS TO BURN

CITY HALL, LAGOS

ESTIMATED COST

No Description Quantity Unit Rate N K

1.01

1.02

2.00

3.00

3.01

4th Floor

Staircase

Allow the sum of N1,000,000.00 (One

Million Naira Only) for the

reconditioning of the burnt staircase,

washed and polished to finish

Demolition

Allow the sum of N1,000,000.00 (One

Million Naira only) for the demolition

of the structurally deteriorated

partitions, disconnect the outdated and

unserviced central air conditioning

system including laggings and sound

insulating materials to the service duct

and cart away all the debris as directed.

Aluminum Glazed

Curtain Walls and Windows

Allow the provisional sum for the

renovation of the curtain walls

including all the windows complete

Joinery

All timbers shall be the best of its kind

perfectly dry, well seasoned, free from

sap, cracks, waney edges, loose and

dead knots and other defects which the

supervising officer consider may render

the timber unsuitable for its purpose.

All timbers shall be of hardwood type

and preserved with solignium. Allow

for boring holes in the block/concrete

walls and raw plugged to receive nails

and make good to match the existing.

Total

Total

1,000,000.00

1,000,000.00

2,000,000.00

5,748,000.00

5,748,000.00

842,000.00



3.02

3.03

3.04

3.05

3.06

3.07

3.08

4.00

4.01

4.02

4.03

Timber Door Frame

Timbers for door frame shall be of well

seasoned hardwood supply and fix

225mm x 50mm rebated door frames

Supply and fix veneer plywood with

vertical aluminum grooved strips at

0.60m centres both measured separately

Supply and fix vertical aluminum

grooved strips at 0.60m centres as

directed

Prepare and apply two coats of Lacquer

polish on veneer plywood

Supply and fix 100mm x 50mm upright

members at 0.60m centres

Supply and fix 100mm x 50mm

horizontal timber, members framed

together at 1.20m centres

Supply and fix standard quality 44mm

thick flush doors complete with 100mm

brass butt hinges with high quality

mortice locks and covered both sided

with veneer plywood including frames

Plumbing Installation Supply and fix

the following

Twyford type or equally approved

water closet complete

Wash hand basin complete

Pipe work to the above

338

1368

2736

1368

1548

877

60

9

9

M

s.m

M

s.m

m

m

Nos

Nos

Nos

350.00

825.00

380.00

275.00

150.00

150.00

15,000.00

Total

15,000.00

5,000

Total

118,300.00

1,128,600.00

1,039,680.00

376,200.00

232,200.00

131,550.00

900,000.00

4,768,530.00

135,000.00

45,000.00

500,000.00

680,000.00



5.00

5.01

5.02

5.03

6.00

6.01

6.02

6.03

6.04

6.05

Electrical Installation

Include the provisional sum of

N3,000,000.00 (Three Million Naira

only) for electrical and lighting

installations complete

Air Condition


N2,000,000.00 (Two Million Naira only)

for Air conditioning units complete

Fire Fighting Installation


N1,500,000.00 (One Million Five

Hundred Thousand Naira only) for

firefighting equipments.

Wall, Floor and Ceiling Finishing

Wall Finishing Internally

12mm cement and sand rendering

block/concrete walls

12mm cement and sand rendering on

soffit of suspended roof slab

P.V.C. Tiling225mm x 225mm x 16mm P.V.C tiles

laid on screeded bed (both measured

separately) and fixed with an approved

standard adhesive

Allow for the removal of the burnt

existing rugs and tiles and make good

to receive new p.v.c. tiles

Tiling

Allow the provisional sum of

N650,000.00 (Six Hundred and Fifty

Thousand Naira only) for replacement

of the damaged/missing tiles size

108mm x 108mm x 6mm coloured

glazed wall tiles to B.S 1281 bedded on

cement and sand mortar both measured

separately and fixed with an approved

adhesive

500

802

802

s.m

s.m

s.m

Total

250.00

250.00

15.00

3,000,000.00

1,500,000.00

6,500,000.00

125,000.00

176,440.00

120,300.00

150,000.00

650,000.00



6.06

7.00

7.01

7.02

8.00

1.00

2.00

3.00

4.00

5.00

6.00

7.00

8.00

Externally

Allow the provisional sum of

N1,856,000.00 for replacement of the

damaged/missing marbles, washed and

polished to finish

Painting and Decorating Internal

works prepare and apply one coat of

Premier and two coats of Sandtex Mall

and sprayed Sandtex Texture Paint on

rendered walls

Rendered block or concrete walls

Soffit of rendered roof slab

Roofing

Allow the provisional sum for access to

the reinforced concrete roof structures,

remove the burnt and cracked portions

of the roof with the reinforcement

properly treated with adequate concrete

cover and finished with reinforced

concrete 1.2.4 mix with a standard

bituminous roofing felt, laid with

proper lapping and adequate dashing

all including formwork

4th Floor

Summary

Structures and Staircase

Aluminum Windows and Curtain Walls

Joinery

Plumbing Installation

Electrical Installation, etc

Finishing

Painting

Roofing

908

802

s.m

s.m

Total

700.00

700.00

Total

Total

1,856,000.00

4,160,440.00

634,900.00

561,400.00

1,196,300.00

5,000,000.00

2,000,000.00

5,748,000.00

4,768,530.00

680,000.00

6,500,000.00

4,160,440.00

1,196,300.00

5,000,000.00

report of the panel of enquiry into the fire incident at city hall, lagos , june, 1998-

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