The Federal Solution: Assessment and Prognosis for Nigeria and Africa

Federalism has not been a resounding success in Africa, althoughunitary regimes have had no better record One promising politicalsystem has been the consistently federal and periodically democraticgovernment of Nigeria. The principal challenges facing Nigeria,which are not unlike those facing other heterogeneous Africancountries, are national unity, democratic politics, and socioeconomicdevelopment. Examined here are the nature of these challenges,Nigeria's responses, potential alternatives, and possible implicationsof Nigeria's experience for federal democracy in Africa.     

The Nigerian Federation at the Crossroads: The Way Forward

This article reviews the first fifty years of federal experiencein Nigeria. It distinguishes three phases: an apprenticeshipto "true" federalism phase (1954–1965), a federal dominancephase under military rule (1966–1979 and 1984–1999),and a "muddling-through" phase under civilian rule (1979–1983and 1999 to date). The first phase was characterized by politicaldevolution and intergovernmental competition, during which regionalgovernments recorded tangible results. During the second phase,successive military regimes imposed centralism and federal dominancethat kept Nigeria united but arrested progress toward consolidatingfederal democracy. Civilian administrations under the thirdphase have sought to run the federation in a muddling-throughfashion, including serious political and social tensions, modesteconomic performance, and deepening poverty. Currently, therefore,the Nigerian federation is at a crossroads and has two options:devolution or death.     

The Evolution of the Nigerian Federal Administration System

This article reviews the major consequences for the evolutionof Nigeria's public administration of the process by which the"loose" model of federalism adopted in 1954 was transformedinto one in which the national government became dominant from1966 onwards. To illustrate how this development affected theemerging public administration system, two broad themes areexamined: (1) the structure, organization, and functioning ofthe federal and subnational units and (2) issues in intergovernmentalrelations, notably the allocation of jurisdictional powers,fiscal federalism, public personnel administration, and localgovernments. The conclusion points out some of the key issuesthat are likely to dominate the Nigerian federal system duringthe next decade.     

"Federal Character" and Management of the Federal Civil Service and the Military

The "federal character" principle, which has been enshrinedin Nigeria's Constitution since 1979, seeks to ensure that appointmentsto public service institutions fairly reflect the linguistic,ethnic, religious, and geographic diversity of the country.Application of the principle in the federal civil service andthe military has amounted to a confused balancing of the meritprinciple and the quota system, based essentially on statesof origin. This has had adverse consequences for both institutionsin terms of discipline, morale, and overall effectiveness andefficiency. Faithful implementation of universal primary educationand imaginative rehabilitation of secondary and tertiary educationare required to ensure equal opportunities for all citizensto compete for civil service positions on the basis of merit.With regard to the military, only rapid implementation of theconstitutional provision on compulsory military training anda definitive end to military rule can help to reduce the salienceof the "federal character" principle.