The country, Nigeria, born in 1914 but conceived around 1861 metamorphosed to independence in 1960.By 1952 Federal system of government took root with northern, western and Eastern regions. Before then the pre-colonial times had seen centralized and decentralized systems of governments in the area, which later justified the famous indirect rule system of the British.
The centralized pre-colonial system of Sokoto caliphate with its hierarchical arrangements of officials and territories was found to be ideal for the indirect rule practiced by the British in the north. On the other hand the decentralized system in the east with its segmentary opposition system was ruled by creating paramount chiefs. In western Nigeria indirect rule system was relatively successful because they had some semblance of centralized system in the Oyo and Benin empires before colonial era.
At independence in 1960 the parliamentary system of the British model ushered in what might be considered as “True-Federalism”. This was so because there was clear demarcation of the exclusive, concurrent and residual lists for the operation of the three regions viz: North, West and East. In addition to the Federal constitution for the centre, there were constitutions for each of the three regions, which persisted even after1963 when the Republican constitution came on and an additional region- the Mid-west was created. Thus federalism was the order during the first republic.
Challenges of structure, unity and Development reared their heads as a result of the events of 1966. First, democracy was scuttled and seeds of instability sown with the actions of the “Seven Majors” led by Chukuma Kaduna Nzeogwu. Secondly, the attempt by Major General Johnson Thomas Ummanike Aguyi Ironsi to replace the federal Structure of the country with a unitary system pushed the country to a point of no return towards disaster. Disaster for Ironsi himself and his kinsmen and also disaster for the entire country- following a thirty months civil war that resulted in the death of around three million lives and massive destruction of infrastructure. It is in the nature of military rule everywhere in the world to turn federal systems into unitary ones, if only because of their hierarchical command structure. Despite the fragmentation of the Nigerian State, from four regions before 1966 to thirty-six states by 1996 the unitary nature of the country continued un-abated with the centre having so much power and so much resources, turning the states to mere glorified Local Governments, barely able to pay salaries, build viable infrastructure or justify their existence.
To compound matters when the military handed over power to civilians in 1979 they did so replacing the parliamentary system of Britain with the American presidential one which is several times much more expensive. The expensive nature of governance was made worse by the various fragmentations of Nigeria from four (4)regions to twelve (12) States in 1967, nineteen (19) in 1976, twenty-one (21) in 1987, thirty (30) in 1992 and thirty-six (36) by 1996 which were all carried out by the military. The only civilian state creation was in 1963. Multiplicity of states plus the expensive presidential system of Government made politics and administration not only too expensive but also unbearable.
On the economic front, the main stay of Nigeria’s economy before 1966 was agriculture and other primary products which gradually became replaced by petroleum to the ultimate extent that today almost eighty (80%) percent of Nigeria’s existence is dependent on it. This is dangerous in many ways, not least, the precarious nature of global oil market. For example, after the 1973 Arab – Israeli war the country had such massive financial wind-fall that the then leader General Yakubu Gowon said “our problem is not money, but how to spend it”. Compare that period to the first two years of Buhari’s second coming between 2015 and 2016 when global oil price plummeted from over $130.00 per barrel to under $30.00, when about 25 out of 36 states could not pay salaries.
In the social front the population of Nigeria according to the 1962 to 1963 census was fifty-five million (55m), while today we have over one hundred and eighty million (180m). Educational, health and other social facilities have all multiplied in leaps and bounds while corruption, indiscipline and other social ills have also increased beyond belief.
When all things are considered, realities on the ground show that from independence in 1960 to date great expectations were dashed and replaced by heightened frustrations which had manifested in many ways including coups and counter-coups, civil war, indiscipline, corruption, tribalism, sectionalism, religious jingoism, insecurity e.t.c The latest manifestation of all these, find expression in the last two (2) years on debates regarding, restructuring, true federalism, devolution of powers and the rest. This becomes so because the situation has come to a head that only total overhaul will suffice i.e. restructuring
It is interesting that the restructuring debate in the last two years have as many meanings as there are speakers on the issue. Some speakers want restructuring to involve the collapsing of the thirty-six states to a fewer number e.g. three regions, four regions, twelve states and so on. Others want restructuring to involve devolution of powers from the central Government to the states with accompanying fiscal implication. To them this will mean reducing items from the exclusive legislative list of the constitution to add to the concurrent and even residual lists. There are yet others who understand restructuring to mean resource control i.e. every region or state should exploit its resources, retain proceeds therefrom and only give some percentage to the federal government. for the execution of the items of a new exclusive list e.g. Defense, foreign Affairs, Currency, Communication e.t.c.
From the forgoing, Zazzau Emirate Development Association (ZEMDA) as its contribution to the current restructuring debate for the unity, progress and development of our beloved country, wishes to recommend the following:
First, the present thirty-six (36) states structure should be retained and maintained if only for harmony, stability and in the interest of the minorities of a country with more than( 300) three hundred ethnic groups. It will be absurd to revert to the pre-1966 regions when in fact on the eve of independence at the 1957 London constitutional conference, the Willink Commission was set up to come up with recommendations that will allay the fears of minorities against marginalization. Willink recommended an eight state structure (four from the North and four from the south), but which did not see the light of the day. Instead, a section on Fundamental Human Rights was inserted into the 1960 independence constitution. It is instructive to state that, the heat and furore generated on the issue of marginalization of minorities before independence was much more intense than the current restructuring debate we are experiencing today. The reason for this was understandable: in the 1950s the three regions were beset with minorities’ agitations as a result of their dominations by the Hausa/Fulanis, the Yurubas and the Igbos. In the north, the middle-belt and pre-colonial Kanem-Borno areas were not happy. In the west, the areas which in 1963 became mid-west region where agitating for independence from the domination of Yarubas. While in the east the Calabar, Ogoja and the Rivers (C.O.R.states) were being marginalized by the Igbos. To underscore the significance of the marginalization of minorities, General Yakubu Gowon created the twelve states structure in 1976 (six in the north and six in the south), which was welcomed with jubilations nationwide and which assisted in the war efforts that unified the country. The other fragmentations by Murtala in 1976, Babangida 1987 and 1992 and Abacha 1995 all enabled Nigerian’s outside the three major tribes to have access to power, self expression and also development. What is good for goose is also good for the gander- it is not only the Hausa/Fulanis, the Igbos, and the Yarubas that are entitled to dividends which Nigeria has to offer, but also the other ethnic groups in the Nigerian project. ZEMDA will however hasten to add that, it will be equally absurd to suggest that every ethnic group must have their states, for this will neither be in realm of reality nor of practicability and operationalization. For now, let the thirty-six states remain and leave the rest for future decades and centuries ahead to determine.
second, While the present thirty-six States structure remain in place, the time has come to DEVOLVE powers to them from the Centre which should be done by the National and State Assemblies by way of Constitutional amendments. Currently, there are sixty eight (68) items in the EXCLUSIVE legislative list and thirty (30) in the CONCURRENT list. Experts should decide items to be moved to Concurrent list from the Exclusive list that will ensure enhanced Unity, undiluted Sovereignty, good governance and rapid development of the country. In turn some of the items in the concurrent list should, through devolution, decentralization and de-concentration be under the purview of local Governments. Whichever of the tiers of government is responsible for a particular item should parri-passu be enabled financially to carry out the items. This will mean that the current Revenue allocation formula must be amended accordingly by the body constitutionally responsible for such.
Without prejudice to whatever experts will suggest the exclusive list must retain such items as the military, foreign Relations, communications, land use act and any such items that will make the central government invincible to threats by individuals and groups such as Boko Haram, IPOB and their ilk. State police should be allowed but with a central body that will supervise and ensure inter-state harmony.
Third, while the land use act should be left as it is today, so also revenue generation, collection and disbursement should remain as they are. However in order to reduce the pauperization of states as currently experienced, the new revenue sharing formula should be based on the new items of responsibility of a leaner exclusive list and an expanded concurrent and residual lists. Similarly, aggressive revenue generation by states based on their areas of comparative advantage must be part of the restructuring efforts. Every state must be for itself and the federation for all.
Fourth, ZEMDA is in tandem with those who argue for the restructuring of the mind. Things can no longer be business as usual in terms of corruption, indiscipline, greed and other social ills. With the pervasive nature of social media and other contemporary developments today, the lives of Nigerians are precarious and insecure akin to the Hobbesian state of nature. The only solution to this dangerous state of affairs is for Nigerians to restructure their minds by emulating the attitudes and ways of the peoples of the civilized world. Adherence to the Rule of law and Fundamental Human Rights must be practiced by both Rulers and the Ruled; otherwise, no restructuring of whatever hue will ensure the “good life” Nigerians are craving for.
Fifth, all those who ask for the restructuring of our country are in agreement that the unbearable cost of governance in our country must be addressed. The situation in which 70% to 90% of our budgets (Federal and States) go to the Recurrent rather than Capital expenses can only be allowed to continue at our own peril. Similarly, the present expenses born by our economy in the service of our operators of the Legislature, Executive and Judiciary stands reason on its head! The salaries and allowances of Federal and State legislators, Federal and State members of executive councils, Federal and State top echelon of the Judiciary e.t.c belies justice, equity and logic.
In fact Nigeria today, is one of the most inequitable countries in our world. It is argued by many that the income- inequality level measured in Gini coefficient of Nigeria is one of the highest presently. Someone posited that 1% of the richest people in our country guzzle 99% percent of its resources while the other 99% percent of the people scramble for only 1% of the remaining. A situation where the unemployment and underemployment level is staggering and of some employees being owed several months of salaries arrears while at the same time you have a couple that owns executive jets for a wife and another for her husband cannot be justified or allowed to continue. Two things can assist in reducing the inequality level: one, to substantially raise the minimum wage in both Public and Private sectors, and two, for the rich to pay their Taxes.
Six, in order to reduce the cost of politics and administration, a unicameral legislature should replace the current bi-cameral one. The new single chamber should have five (5) representatives from each of the thirty six states of the federation and two from Abuja; who should work on part-time basis and be paid accordingly.
There should not be more than thirty six ministers at the federal level and not more than ten commissioners in each state. State houses of assembly should be made up of members equal to number of their local governments; who should equally work on part time basis and be paid according to the number of sittings
All these will reduce political tension, corruption, cost of governance and eliminate do-or-die politics.
The bane of Nigeria’s life since independence had been enmeshed in tribalism, sectionalism, regionalism and above all religious bigotry. Every issue big or small is seen with the eyes of these differences especially in political, administrative, educational or even in the allocation of contracts! As far as ZEMDA is concerned for peace, unity and prosperity of the country to be ensured, the structure, rules, regulations and the attitude of the people must be right. All these will only be right with careful planning, changes and implementation. The alpha and omega of restructuring must begin with the restructuring of the minds of Nigerians. Simultaneously, the recommendations we have proffered above must be pursued vigorously and with urgency.
Balarabe, an educationist, wrote on behalf of Zazzau Emirate Development Association
