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LAGOS STATE GOVERNMENT
REPORT
OF THE
PANEL OF ENQUIRY
INTO
THE FIRE INCIDENT
AT
CITY HALL, LAGOS
JUNE, 1998
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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
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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;
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(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.
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(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
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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.
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(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:
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(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.
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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;
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(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.
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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.
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(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.
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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)
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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;
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(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.
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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
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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.
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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
(d) Rep. State Security 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
(d) Rep. State Security Service - 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
(d) Rep. State Security Service - Member
(e) Rep. of State Commissioner of Police - Member
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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
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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
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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.
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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;
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(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
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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
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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
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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
Include the provisional sum of
N2,000,000.00 (Two Million Naira only)
for Air conditioning units complete
Fire Fighting Installation
Include the provisional sum of
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
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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