As Lagos gears up for the next round of local government elections on November 1, 2025, attention is once again turning to the elusive promise of grassroots democracy in Nigeria’s most populous state. Behind the party primaries, colorful posters, and hopeful campaign jingles lies a deeper story.

The Origins: From Colonial Rule to Grassroots Aspirations

After Nigeria gained independence in 1960, Lagos’ local governance system was anything but democratic. Local administration was controlled by appointed officials under regional oversight, with little public participation.

A real shift came in 1976, when the Murtala Mohammed military regime introduced sweeping reforms that established local governments as the third tier of government, constitutionally empowered and meant to bring governance closer to the people.

Lagos held its first serious local elections under the Second Republic (1979–1983). But the military interruptions that followed until 1999 stalled democratic development at the grassroots.

The Rise of LCDAs — and Constitutional Controversy

In 2003, then-Governor Bola Tinubu created 37 Local Council Development Areas (LCDAs) to complement Lagos’ 20 Local Government Areas (LGAs). The goal: bring the government even closer to fast-growing communities.

But there was a problem: LCDAs are not recognized by the Nigerian Constitution. That triggered a clash with President Olusegun Obasanjo’s federal government, which withheld federal funds from these new councils.

A 2004 Supreme Court ruling settled the matter, affirming that states can create LCDAs for administrative purposes, but only federally recognized LGAs can receive direct federal allocations.

Today, Lagos operates with 57 local councils (20 LGAs + 37 LCDAs), but the dual structure has created confusion around funding, autonomy, and accountability.

Debatable Democracy?

Since Nigeria’s return to democracy in 1999, Lagos has held several local government elections — in 2008, 2011, 2017, and 2021 — but these have often been accompanied by various challenges. Elections have been delayed for extended periods, with caretaker committees appointed in the interim, raising questions about democratic continuity. A notable incident occurred in May 2017 during the APC’s local government primaries at Teslim Balogun Stadium in Surulere, where violence broke out as aggrieved party members clashed with security and electoral officials over alleged imposition of candidates, destroying ballot boxes and disruption of the process. Additionally, the elections have seen consistently low voter turnout, sometimes below 10%, with recurring allegations of electoral malpractice, opposition party boycotts, and accusations of vote-rigging. The Lagos State Independent Electoral Commission (LASIEC) has also faced criticism regarding its independence and ability to conduct credible polls, amid widespread perceptions of one-party dominance in the state.

What Local Governments Are Supposed to Do:

Managing primary education and healthcare

Building and maintaining local roads, markets, and motor parks

Handling waste management and sanitation

Issuing customary marriage certificates

Facilitating community development projects

How the Money Moves

Local governments in Lagos receive funding from a combination of federal allocations, internally generated revenue (IGR), and state subventions. The 20 constitutionally recognized Local Government Areas (LGAs) collectively receive over ₦10 billion monthly in federal allocations, which are administered through a Joint Allocation Committee (JAC) under state oversight. Councils also generate revenue locally through market fees, levies, parking fines, and tenement rates. In contrast, the 37 Local Council Development Areas (LCDAs), which are not federally recognized, rely primarily on state subventions. As of 2024, the salary of a local government chairman ranges from ₦650,000 to ₦750,000 per month, while councilors earn between ₦300,000 and ₦400,000, excluding additional benefits such as housing, transport, security, and travel allowances that significantly increase the total compensation. Despite these financial inflows, many local councils struggle to provide basic services, and transparency remains a concern as budget details and expenditure reports are rarely made publicly available.

What’s Different in 2025?

For the first time in years, LASIEC released a clear election timetable early in the year. Key dates include:

Party primaries: March 15–24, 2025

Campaigns begin: May 27, 2025

Election day: November 1, 2025

Still, skepticism runs deep. Critics argue that candidates are handpicked through “consensus” arrangements, leaving voters with no real choice. In a mega-city of over 20 million people, local government should be a lifeline — the layer of governance closest to the people. Yet many Lagosians don’t know where their local council secretariat is, let alone who their representative is. The 2025 elections are another opportunity to rewrite the narrative. But unless Lagos confronts the issues of constitutional clarity, democratic legitimacy, and local accountability, the third tier of government will continue to be elusive to many.