In Kenya, motorcycles (known commonly as boda-boda) have proven to be a recurring nightmare for the authorities and citizens, just as ‘okada’ operations in Ghana have become a major concern to the country’s road traffic enforcement agencies.

The 2024 African Road Safety Seminar in Nairobi, Kenya, included a discussion on the growing issue of boda-boda in Kenya and Uganda. It was intriguing to learn that despite the ongoing challenges with road traffic crashes involving boda-bodas, there seems to be no easy solution to curb their proliferation, especially in Kenya. As a Kenyan state official puts it, “They are convenient, many and organised, yet they do not follow the rules. But you can’t stop them”.

Originating in Busia, Uganda, in 1988, boda-bodas were initially used for transporting goods across the border with Kenya. The term 'boda-boda' is derived from the English word 'border.' Since then, this mode of transportation has spread rapidly throughout East Africa.

A 2023 report from the Kampala Capital City Authority revealed that there are over 150,000 registered boda-bodas in Kampala, Uganda, alone. It is estimated that there are around three million of these vehicles in East and Central Africa. In Kenya, the boda-boda industry generates an estimated $4 million daily, according to the Motorcycle Assembly Association of Kenya. For commuters, boda-bodas are a reliable and affordable mode of transportation. Their ability to navigate traffic congestion and reach remote areas makes them a practical choice for many travellers. But the safety concerns and the contribution of boda-boda to road traffic crashes is a worrying situation that stakeholders have not yet found a solution to.

Ghana's Okada menace

Just as boda-bodas are a common form of transportation in some East African countries, ‘okadas’ are popular in Ghana (and Nigeria). As a Ghanaian, hearing discussions about boda-bodas sparked my interest in the growing number of ‘okadas’ in Ghana. Ghana may not come close to Kenya, Uganda, and even Nigeria when it comes to the number of motorcycle taxis. Yet, their rapid proliferation has also led to significant concerns about safety and public order, resulting in a complex debate about the regulation and potential ban of ‘okada’ operations. While many people appreciate the convenience and affordability of ‘okadas’, others believe that the risks outweigh the benefits.

The ‘okada’ operation itself is illegal in Ghana but every government seems to face the challenge of balancing the need for public safety with the economic interests of ‘okada’ drivers and passengers.

The legalization of ‘okada’ in Ghana remains a highly debated topic, with opposing political stances and interest groups hindering consensus. Despite the ongoing debate, the safety risks associated with motorcycle operations are a growing concern. In 2021, motorcyclist fatalities contributed to 34% of all road traffic crashes. According to the Ghana Police, this translated into 6,166 motorcycles involved in road traffic crashes between January to December 2021 with 1,282 deaths. Similarly, the Tema Police region alone recorded 65 motorcycle-related accidents in 2023. In another instance, the National Road Safety Authority reported that between January and October 2023, 89% of persons who died because of road accidents in the Upper East Region were motorcycle crash victims.

At a recent road safety event I attended, the Building and Road Research Institute noted that motorcyclist fatality is now the leading cause of road traffic deaths in Ghana, and it is on a steep rise and requires focused enforcement.

Given the circumstances of politicisation, how can enforcement be effectively implemented to address the growing problem of motorcycle accidents?

Pragia: The New Entrant

If you thought motorcycles were a problem, the chaotic situation we are witnessing on our major streets is only the beginning. It is baffling to see motor tricycles (locally called yellow-yellow, pragia etc) operating on our highways with such impunity. Despite the obvious safety risks, these vehicles continue to ply our roads with a seeming lack of action from local authorities and the police, making the operation appear legal.

While motor tricycles can be useful in remote areas that have challenges with accessibility and areas with terrible road networks, their presence on major urban thoroughfares like the Liberation Road in Accra is a nuisance and a safety hazard to both motorists and pedestrians.

These vehicles have literally taken over the streets of major towns and cities in Ghana, with drivers often exhibiting reckless behaviour, disregarding traffic rules, overloading their vehicles, and ignoring intersections. These actions pose a significant risk to the safety of pedestrians and other road users. Worse still, a lot of these drivers are under the age of 18 years.

Which way to go

The Road Traffic Regulation 2180, specifically section 128 (1,2,3), clearly prohibits the use of motorcycles and tricycles for passenger transportation. This legislation aims to ensure road safety by restricting the use of these vehicles for commercial purposes, except for courier and delivery services. The law penalizes both the driver and the passenger, reinforcing its intent to curb the misuse of these vehicles. Enforcing these clear provisions of the Road Traffic Regulation 2180 should not be a Herculean task.

However, we seem to tolerate the blatant disregard of this law, much like other social ills that we allow to fester until they become intractable problems. A prime example is how we allow petty traders to encroach on public spaces, turning sidewalks and roads into makeshift markets. If we do not act now to enforce the law, the problem will become even more entrenched. While it may be challenging to implement a strict enforcement regime immediately, taking decisive action now is crucial to prevent the situation from spiralling out of control, as in the Kenyan scenario.

Indeed, as it is often said, ‘the law, though firm, must bend to the wind of change’. Regardless of the legislative framework we have now, the law on motorcycles and tricycles in Ghana must be adaptable to evolving circumstances and societal needs. Transport and road safety stakeholders must convene to discuss the feasibility of either a complete ban or a restricted ban on these vehicles.

While a total ban may be controversial and could have significant social and economic consequences, regulating okada operations, including designated routes and safety standards, is essential to mitigate risks and improve road safety. Policymakers should be able to analyse how the system is operated in different countries and decide on what can, and cannot, work in Ghana’s situation.

For instance, Kigali has implemented a unique system where riders are not allowed to roam the streets looking for passengers. Rather, passengers must walk to specific parking zones to find available riders. We should begin to think about whether these vehicles should be allowed to ply on roads that allow a maximum speed limit of, for instance, 30 kilometres per hour, and in the hinterlands, but disallowed in busy business districts. Where they are allowed, can we have a stricter regulatory and enforcement regime?

In conclusion, to ensure the safety of our roads and protect our citizens, it is imperative to make evidence-based decisions about okada regulation, free from political interference. Delaying action could lead to a more chaotic and dangerous situation in the coming years, as gleaned from the East African situation.

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The author, Shirley Haizel-Ferguson is the Project Manager for LADA Institute, a Not-For-Profit organisation that develops, shapes & promotes legislation to advance development in Ghana & West Africa.