Nigeria

THE FIRST REPUBLIC

Preparations for building bridge over Gongola River, an infrastructure development project
Courtesy World Bank

Survey team for road construction
Courtesy Embassy of Nigeria, Washington

Nigeria became independent on October 1, 1960. The period between this date and January 15, 1966, when the first military coup d'état took place, is generally referred to as the First Republic, although the country only became a republic on October 1, 1963. After a plebiscite in February 1961, the Northern Cameroons, which before then was administered separately within Nigeria, voted to join Nigeria.

At independence Nigeria had all the trappings of a democratic state and was indeed regarded as a beacon of hope for democracy. It had a federal constitution that guaranteed a large measure of autonomy to three (later four) regions; it operated a parliamentary democracy modeled along British lines that emphasized majority rule; the constitution included an elaborate bill of rights; and, unlike other African states that adopted one-party systems immediately after independence, the country had a functional, albeit regionally based, multiparty system.

These democratic trappings were not enough to guarantee the survival of the republic because of certain fundamental and structural weaknesses. Perhaps the most significant weakness was the disproportionate power of the north in the federation. The departing colonial authority had hoped that the development of national politics would forestall any sectional domination of power, but it underestimated the effects of a regionalized party system in a country where political power depended on population. The major political parties in the republic had emerged in the late 1940s and early 1950s as regional parties whose main aim was to control power in their regions. The Northern People's Congress (NPC) and the Action Group (AG), which controlled the Northern Region and the Western Region, respectively, clearly emerged in this way. The National Council of Nigerian Citizens (NCNC), which controlled the Eastern Region and the Midwestern Region (created in 1963), began as a nationalist party but was forced by the pressures of regionalism to become primarily an eastern party, albeit with strong pockets of support elsewhere in the federation. These regional parties were based upon, and derived their main support from, the major groups in their regions: NPC (Hausa/Fulani), AG (Yoruba), and NCNC (Igbo). A notable and more ideologically-based political party that never achieved significant power was Aminu Kano's radical Northern Elements Progressive Union (NEPU), which opposed the NPC in the north from its Kano base.

There were also several political movements formed by minority groups to press their demands for separate states. These minority parties also doubled as opposition parties in the regions and usually aligned themselves with the party in power in another region that supported their demands for a separate state. Ethnic minorities therefore enabled the regional parties to extend their influence beyond their regions.

In the general election of 1959 to determine which parties would rule in the immediate postcolonial period, the major ones won a majority of seats in their regions, but none emerged powerful enough to constitute a national government. A coalition government was formed by the NPC and NCNC, the former having been greatly favored by the departing colonial authority. The coalition provided a measure of north-south consensus that would not have been the case if the NCNC and AG had formed a coalition. Nnamdi Azikiwe (NCNC) became the governor general (and president after the country became a republic in 1963), Abubakar Tafawa Balewa (NPC) was named prime minister, and Obafemi Awolowo (AG) had to settle for leader of the opposition. The regional premiers were Ahmadu Bello (Northern Region, NPC), Samuel Akintola (Western Region, AG), Michael Okpara (Eastern Region, NCNC), and Dennis Osadebey (Midwestern Region, NCNC).

Among the difficulties of the republic were efforts of the NPC, the senior partner in the coalition government, to use the federal government's increasing power in favor of the Northern Region. The balance rested on the premise that the Northern Region had the political advantage deriving from its preponderant size and population, and the two southern regions (initially the Eastern Region and the Western Region) had the economic advantage as sources of most of the exported agricultural products, in addition to their control of the federal bureaucracy. The NPC sought to redress northern economic and bureaucratic disadvantages. Under the First National Development Plan, many of the federal government's projects and military establishments were allocated to the north. There was an "affirmative action" program by the government to recruit and train northerners, resulting in the appointment of less qualified northerners to federal public service positions, many replacing more qualified southerners. Actions such as these served to estrange the NCNC from its coalition partner. The reactions to the fear of northern dominance, and especially the steps taken by the NCNC to counter the political dominance of the north, accelerated the collapse of the young republic.

The southern parties, especially the embittered NCNC, had hoped that the regional power balance could be shifted if the 1962 census favored the south. Population determined the allocation of parliamentary seats on which the power of every region was based. Because population figures were also used in allocating revenue to the regions and in determining the viability of any proposed new region, the 1962 census was approached by all regions as a key contest for control of the federation. This contest led to various illegalities: inflated figures, electoral violence, falsification of results, manipulation of population figures, and the like. Although the chief census officer found evidence of more inflated figures in the southern regions, the northern region retained its numerical superiority. As could be expected, southern leaders rejected the results, leading to a cancellation of the census and to the holding of a fresh census in 1963. This population count was finally accepted after a protracted legal battle by the NCNC and gave the Northern Region a population of 29,758,975 out of the total of 55,620,268. These figures eliminated whatever hope the southerners had of ruling the federation.

Since the 1962-63 exercise, the size and distribution of the population have remained volatile political issues (see Population , ch. 2). In fact, the importance and sensitivity of a census count have increased because of the expanded use of population figures for revenue allocations, constituency delineation, allocations under the quota system of admissions into schools and employment, and the siting of industries and social amenities such as schools, hospitals, and post offices. Another census in 1973 failed, even though it was conducted by a military government that was less politicized than its civilian predecessor. What made the 1973 census particularly volatile was the fact that it was part of a transition plan by the military to hand over power to civilians. The provisional figures showed an increase for the states that were carved out of the former Northern Region with a combined 51.4 million people out of a total 79.8 million people. Old fears of domination were resurrected, and the stability of the federation was again seriously threatened. The provisional results were finally canceled in 1975. As of late 1990, no other census had been undertaken, although one was scheduled for 1991 as part of the transition to civilian rule. In the interim, Nigeria has relied on population projections based on 1963 census figures.

Other events also contributed to the collapse of the First Republic. In 1962, after a split in the leadership of the AG that led to a crisis in the Western Region, a state of emergency was declared in the region, and the federal government invoked its emergency powers to administer the region directly. These actions resulted in removing the AG from regional power. Awolowo, its leader, along with other AG leaders, was convicted of treasonable felony. Awolowo's former deputy and premier of the Western Region formed a new party--the Nigerian National Democratic Party (NNDP)--that took over the government. The federal coalition government also supported agitation of minority groups for a separate state to be excised from the Western Region. In 1963 the Midwestern Region was created.

By the time of the 1964 general elections, the first to be conducted solely by Nigerians, the country's politics had become polarized into a competition between two opposing alliances. One was the Nigerian National Alliance made up of the NPC and NNDC; the other was the United Progressive Grand Alliance (UPGA) composed of the NCNC, the AG, and their allies. Each of the regional parties openly intimidated its opponents in the campaigns. When it became clear that the neutrality of the Federal Electoral Commission could not be guaranteed, calls were made for the army to supervise the elections. The UPGA resolved to boycott the elections. When elections were finally held under conditions that were not free and were unfair to opponents of the regional parties, the NCNC was returned to power in the east and midwest, while the NPC kept control of the north and was also in a position to form a federal government on its own. The Western Region became the "theater of war" between the NNDP (and the NPC) and the AG-UPGA. The rescheduled regional elections late in 1965 were violent. The federal government refused to declare a state of emergency, and the military seized power on January 15, 1966. The First Republic had collapsed.

Scholars have made several attempts to explain the collapse. Some attribute it to the inappropriateness of the political institutions and processes and to their not being adequately entrenched under colonial rule, whereas others hold the elite responsible. Lacking a political culture to sustain democracy, politicians failed to play the political game according to established rules. The failure of the elite appears to have been a symptom rather than the cause of the problem. Because members of the elite lacked a material base for their aspirations, they resorted to control of state offices and resources. At the same time, the uneven rates of development among the various groups and regions invested the struggle for state power with a group character. These factors gave importance to group, ethnic, and regional conflicts that eventually contributed to the collapse of the republic.

The final explanation is closely related to all the foregoing. It holds that the regionalization of politics and, in particular, of party politics made the stability of the republic dependent on each party retaining control of its regional base. As long as this was so, there was a rough balance between the parties, as well as their respective regions. Once the federal government invoked its emergency powers in 1962 and removed the AG from power in the Western Region, the fragile balance on which the federation rested was disturbed. Attempts by the AG and NCNC to create a new equilibrium, or at least to return the status quo ante, only generated stronger opposition and hastened the collapse of the republic.

Data as of June 1991

Nigeria - TABLE OF CONTENTS