Emergence of Nigerian Nationalism
British colonialism created Nigeria, joining diverse peoples and regions in an artificial political entity. It was not unusual that the nationalism that became a political factor in Nigeria during the interwar period derived both from an older political particularism and broad pan-Africanism rather than from any sense of a common Nigerian nationality. Its goal initially was not self-determination, but rather increased participation in the governmental process on a regional level. Inconsistencies in British policy reinforced cleavages based on regional animosities by attempting simultaneously to preserve the indigenous cultures of each area and to introduce modern technology and Western political and social concepts. In the north, appeals to Islamic legitimacy upheld the rule of the emirs, so that nationalist sentiments there were decidedly anti-Western. Modern nationalists in the south, whose thinking was shaped by European ideas, opposed indirect rule, which had entrenched what was considered to be an anachronistic ruling class in power and shut out the Westernized elite.
The ideological inspiration for southern nationalists came from a variety of sources, including prominent American-based activists such as Marcus Garvey and W.E.B. Du Bois. Nigerian students abroad joined those from other colonies in pan-African groups, such as the West African Students Union, founded in London in 1925. Early nationalists tended to ignore Nigeria as the focus of patriotism; rather, the common denominator was based on a newly assertive ethnic consciousness, particularly Yoruba and Igbo. Despite their acceptance of European and North American influences, the nationalists were critical of colonialism for its failure to appreciate the antiquity of indigenous cultures. They wanted self-government, charging that only colonial rule prevented the unshackling of progressive forces in Africa.
Political opposition to colonial rule often assumed religious dimensions. Independent Christian churches had emerged at the end of the nineteenth century because many European missionaries were racist and blocked the advancement of a Nigerian clergy. European interpretations of Christian orthodoxy also refused to allow the incorporation of local customs and practices, even though the various mission denominations themselves interpreted Christianity very differently. It was acceptable for the established missions to differ, but most Europeans were surprised and shocked that Nigerians would develop new denominations independent of European control. Christianity long had experienced "protestant" schisms; the emergence of independent Christian churches in Nigeria was another phase of this history. The pulpits of the independent congregations provided one of the few available avenues for the free expression of attitudes critical of colonial rule.
In the 1920s, there were several types of associations that were ostensibly nonpolitical. One group consisted of professional and business associations, such as the Nigerian Union of Teachers, which provided trained leadership for political groups; the Nigerian Law Association, which brought together lawyers, many of whom had been educated in Britain; and the Nigerian Produce Traders' Association, led by Obafemi Awolowo.
Ethnic and kinship organizations that often took the form of a tribal union also emerged in the 1920s. These organizations were primarily urban phenomena that arose after large numbers of rural migrants moved to the cities. Alienated by the anonymity of the urban environment and drawn together by ties to their ethnic homelands--as well as by the need for mutual aid--the new city dwellers formed local clubs that later expanded into federations covering whole regions. By the mid-1940s, the major ethnic groups had formed such associations as the Igbo Federal Union and the Egbe Omo Oduduwa (Society of the Descendants of Oduduwa), a Yoruba cultural movement, in which Awolowo played a leading role.
A third type of organization that was more pointedly political was the youth or student group, which became the vehicle of intellectuals and professionals. They were the most politically conscious segment of the population and stood in the vanguard of the nationalist movement. Newspapers, some of which were published before World War I, provided coverage of nationalist views.
The opportunity afforded by the 1922 constitution to elect a handful of representatives to the Legislative Council gave politically conscious Nigerians something concrete to work on. The principal figure in the political activity that ensued was Herbert Macauley, often referred to as the father of Nigerian nationalism. He aroused political awareness through his newspaper, the Lagos Daily News, while leading the Nigerian National Democratic Party (NNDP), which dominated elections in Lagos from its founding in 1922 until the ascendancy of the National Youth Movement (NYM) in 1938. His political platform called for economic and educational development, Africanization of the civil service, and self-government for Lagos. Significantly, however, Macauley's NNDP remained almost entirely a Lagos party, popular only in the area with experience in elective politics.
The NYM first used nationalist rhetoric to agitate for improvements in education. The movement brought to public notice a long list of future leaders, including H.O. Davies and Nnamdi Azikiwe. Although Azikiwe later came to be recognized as the leading spokesman for national unity, his orientation on return from university training in the United States was pan-African rather than nationalist, emphasizing the common African struggle against European colonialism. He betrayed much less consciousness of purely Nigerian goals than Davies, a student of Harold Laski at the London School of Economics, whose political orientation was considered left-wing.
By 1938 the NYM was agitating for dominion status within the British Commonwealth of Nations, so that Nigeria would have the same status as Canada and Australia. In elections that year, the NYM ended the domination of the NNDP in the Legislative Council and moved to establish a genuinely national network of affiliates. This promising start was stopped short three years later by internal divisions in which ethnic loyalties emerged triumphant. The departure of Azikiwe and other Igbo members of the NYM left the organization in Yoruba hands; during World War II, it was reorganized into a predominantly Yoruba political party, the Action Group, by Awolowo. Yoruba-Igbo rivalry had become a major factor in Nigerian politics.
During World War II, three battalions of the Nigeria Regiment fought in the Ethiopian campaign. Nigerian units also contributed to two divisions serving with British forces in Palestine, Morocco, Sicily, and Burma, where they won many honors. Wartime experiences provided a new frame of reference for many soldiers, who interacted across ethnic boundaries in ways that were unusual in Nigeria. The war also made the British reappraise Nigeria's political future. The war years, moreover, witnessed a polarization between the older, more parochial leaders inclined toward gradualism and the younger intellectuals, who thought in more immediate terms.
The rapid growth of organized labor in the 1940s also brought new political forces into play. During the war, union membership increased sixfold to 30,000. The proliferation of labor organizations, however, fragmented the movement, and potential leaders lacked the experience and skill to draw workers together.
In the postwar period, party lines were sharply drawn on the basis of ethnicity and regionalism. After the demise of the NYM, the nationalist movement splintered into the Hausa- and Fulani- backed Northern People's Congress (NPC), the Yoruba-supported Action Group, and the Igbo-dominated National Council of Nigeria and the Cameroons (NCNC, later the National Council of Nigerian Citizens). These parties negotiated with the British government over constitutional changes, but cooperation among them was the result of expediency rather than an emerging sense of national identity. Because of the essentially regional political alignments of the parties, the British government decided to impose a political solution for Nigeria based on a federally structured constitution.
Nigeria's first political party to have nationwide appeal was the NCNC, founded in 1944 when Azikiwe encouraged activists in the National Youth Movement to call a conference in Lagos of all major Nigerian organizations to "weld the heterogeneous masses of Nigeria into one solid bloc." The aged Macauley was elected president of the new group, and Azikiwe became its secretary general. The party platform renewed the National Youth Movement's appeal for Nigerian self-government within the Commonwealth under a democratic constitution.
At its inception, party membership was based on affiliated organizations that included labor unions, social groups, political clubs, professional associations, and more than 100 ethnic organizations. These bodies afforded unusual opportunities for political education in existing constituencies, but the NYM, which was fading out, was absent from the list of NCNC affiliates. Leadership of the NCNC rested firmly with Azikiwe, in large part because of his commanding personality but also because of the string of newspapers he operated and through which he argued the nationalist cause. In the late 1940s, the NCNC captured a majority of the votes in the predominantly Yoruba Western Region, but increasingly it came to rely on Igbo support, supplemented by alliances with minority parties in the Northern Region. The NCNC backed the creation of new regions, where minorities would be ensured a larger voice, as a step toward the formation of a strong unitary national government.
The Action Group arose in 1951 as a response to Igbo control of the NCNC and as a vehicle for Yoruba regionalism that resisted the concept of unitary government. The party was structured democratically and benefited from political spadework done by the NCNC in the Western Region in the late 1940s. As a movement designed essentially to exploit the federal arrangement to attain regional power, however, the Action Group became the NCNC's competitor for votes in the south at the national level and at the local level in the Western Region.
The Action Group was largely the creation of Awolowo, general secretary of Egbe Omo Oduduwa and leader of the Nigerian Produce Traders' Association. The Action Group was thus the heir of a generation of flourishing cultural consciousness among the Yoruba and also had valuable connections with commercial interests that were representative of the comparative economic advancement of the Western Region. Awolowo had little difficulty in appealing to broad segments of the Yoruba population, but he strove to prevent the Action Group from being stigmatized as a "tribal" group. Despite his somewhat successful efforts to enlist non-Yoruba support, the regionalist sentiment that had stimulated the party initially could hardly be concealed.
Another obstacle to the development of the Action Group was the animosity between segments of the Yoruba community--for example, many people in Ibadan opposed Awolowo on personal grounds because of his identification with the Ijebu Yoruba. Despite these difficulties, the Action Group rapidly built an effective organization. Its program reflected greater planning and was more ideologically oriented than that of the NCNC. Although he did not have Azikiwe's compelling personality, Awolowo was a formidable debater as well as a vigorous and tenacious political campaigner. He used for the first time in Nigeria modern, sometimes flamboyant, electioneering techniques. Among his leading lieutenants were Samuel Akintola of Ibadan and the oni of Ife.
The Action Group was a consistent supporter of minority-group demands for autonomous states within a federal structure, and it even supported the severance of a midwest state from the Western Region. This move assumed that comparable alterations would be made elsewhere, an attitude that won the party minority voting support in the other regions. It also backed Yoruba irredentism in the Fulani-ruled emirate of Ilorin in the Northern Region and separatist movements among non-Igbo in the Eastern Region.
The Northern People's Congress (NPC) was organized in the late 1940s by a small group of Western-educated northern Muslims who obtained the assent of the emirs to form a political party capable of counterbalancing the activities of the southern-based parties. It represented a substantial element of reformism in the Muslim north. The most powerful figure in the party was Ahmadu Bello, the sardauna (war leader) of Sokoto, a controversial figure who aspired to become the sultan of Sokoto, still the most important political and religious position in the north. Often described by opponents as a "feudal" conservative, Bello had a consuming interest in the protection of northern social and political institutions from southern influence. He also insisted on maintaining the territorial integrity of the Northern Region, including those areas with non-Muslim populations. He was prepared to introduce educational and economic changes to strengthen the north. Although his own ambitions were limited to the Northern Region, Bello backed the NPC's successful efforts to mobilize the north's large voting strength so as to win control of the national government.
The NPC platform emphasized the integrity of the north, its traditions, religion, and social order. Support for broad Nigerian concerns occupied a clear second place. A lack of interest in extending the NPC beyond the Northern Region corresponded to this strictly regional orientation. Its activist membership was drawn from local government and emirate officials who had access to means of communication and to repressive traditional authority that could keep the opposition in line.
The small contingent of northerners who had been educated abroad--a group that included Abubakar Tafawa Balewa and Aminu Kano--was allied with British-backed efforts to introduce gradual change to the emirates. The support given by the emirs to limited modernization was motivated largely by fear of the unsettling presence of southerners in the north and by the equally unsettling example of improving conditions in the south. Those northern leaders who were committed to modernization were firmly connected to the traditional power structure. Most internal problems within the north--peasant disaffection or rivalry among Muslim factions--were concealed, and open opposition to the domination of the Muslim aristocracy was not tolerated. Critics, including representatives of the middle belt who plainly resented Muslim domination, were relegated to small, peripheral parties or to inconsequential separatist movements.
In 1950 Aminu Kano, who had been instrumental in founding the NPC, broke away to form one such party, the Northern Elements Progressive Union (NEPU), in protest against the NPC's limited objectives and what he regarded as a vain hope that traditional rulers would accept modernization. NEPU formed a parliamentary alliance with the NCNC.
The NPC continued to represent the interests of the traditional order in the preindependence deliberations. After the defection of Kano, the only significant disagreement within the NPC related to the awareness of moderates, such as Balewa, that only by overcoming political and economic backwardness could the NPC protect the foundations of traditional northern authority against the influence of the more advanced south.
In all three regions, minority parties represented the special interests of ethnic groups, especially as they were affected by the majority. The size of their legislative delegations, when successful in electing anyone to the regional assemblies, was never large enough to be effective, but they served as a means of public expression for minority concerns. They received attention from major parties before elections, at which time either a dominant party from another region or the opposition party in their region sought their alliance.
The political parties jockeyed for positions of power in anticipation of the independence of Nigeria. Three constitutions were enacted from 1946 to 1954 that were subjects of considerable political controversy in themselves but inevitably moved the country toward greater internal autonomy, with an increasing role for the political parties. The trend was toward the establishment of a parliamentary system of government, with regional assemblies and a federal House of Representatives.
In 1946 a new constitution was approved by the British Parliament and promulgated in Nigeria. Although it reserved effective power in the hands of the governor and his appointed executive council, the so-called Richards Constitution (after Governor Arthur Richards, who was responsible for its formulation) provided for an expanded Legislative Council empowered to deliberate on matters affecting the whole country. Separate legislative bodies, the houses of assembly, were established in each of the three regions to consider local questions and to advise the lieutenant governors. The introduction of the federal principle, with deliberative authority devolved on the regions, signaled recognition of the country's diversity. Although realistic in its assessment of the situation in Nigeria, the Richards Constitution undoubtedly intensified regionalism as an alternative to political unification.
The pace of constitutional change accelerated after the promulgation of the Richards Constitution, which was suspended in 1950. The call for greater autonomy resulted in an interparliamentary conference at Ibadan in 1950, when the terms of a new constitution were drafted. The so-called Macpherson Constitution, after the incumbent governor, went into effect the following year.
The most important innovations in the new charter reinforced the dual course of constitutional evolution, allowing for both regional autonomy and federal union. By extending the elective principle and by providing for a central government with a Council of Ministers, the Macpherson Constitution gave renewed impetus to party activity and to political participation at the national level. But by providing for comparable regional governments exercising broad legislative powers, which could not be overridden by the newly established 185-seat federal House of Representatives, the Macpherson Constitution also gave a significant boost to regionalism. Subsequent revisions contained in a new constitution the Lyttleton Constitution, enacted in 1954, firmly established the federal principle and paved the way for independence.
In 1957 the Western and the Eastern regions became formally self-governing under the parliamentary system. Similar status was acquired by the Northern Region two years later. There were numerous differences of detail among the regional systems, but all adhered to parliamentary forms and were equally autonomous in relation to the federal government at Lagos. The federal government retained specified powers, including responsibility for banking, currency, external affairs, defense, shipping and navigation, and communications, but real political power was centered in the regions. Significantly, the regional governments controlled public expenditures derived from revenues raised within each region.
Ethnic cleavages intensified in the 1950s. Political activists in the southern areas spoke of self-government in terms of educational opportunities and economic development. Because of the spread of mission schools and wealth derived from export crops, the southern parties were committed to policies that would benefit the south of the country. In the north, the emirs intended to maintain firm control on economic and political change. Any activity in the north that might include participation by the federal government (and consequently by southern civil servants) was regarded as a challenge to the primacy of the emirates. Broadening political participation and expanding educational opportunities and other social services also were viewed as threats to the status quo. Already there was an extensive immigrant population of southerners, especially Igbo, in the north; they dominated clerical positions and were active in many trades.
The cleavage between the Yoruba and the Igbo was accentuated by their competition for control of the political machinery. The receding British presence enabled, local officials and politicians to gain access to patronage over government jobs, funds for local development, market permits, trade licenses, government contracts, and even scholarships for higher education. In an economy with many qualified applicants for every post, great resentment was generated by any favoritism authorities showed to members of their own ethnic group.
In the immediate post-World War II period, Nigeria benefited from a favorable trade balance. The principal exports were agricultural commodities--peanuts and cotton from the Northern Region, palm products from the Eastern Region, and cocoa from the Western Region. Marketing boards, again regionally based, were established to handle these exports and to react to price fluctuations on the world market. During the 1950s, the marketing boards accumulated considerable surpluses. Initially, imports lagged behind exports, although by the mid-1950s imports began to catch up with exports, and the surpluses decreased. Expansion in the nonagricultural sectors required large imports of machinery, transport equipment and, eventually, intermediate materials for industry. In time there also were increased administrative costs to be met. Although per capita income in the country as a whole remained low by international standards, rising incomes among salaried personnel and burgeoning urbanization expanded consumer demand for imported goods.
In the meantime, public sector spending increased even more dramatically than export earnings. It was supported not only by the income from huge agricultural surpluses but also by a new range of direct and indirect taxes imposed during the 1950s. The transfer of responsibility for budgetary management from the central to the regional governments in 1954 accelerated the pace of public spending on services and on development projects. Total revenues of central and regional governments nearly doubled in relation to the gross domestic product (GDP) during the decade.
The most dramatic event, having a long-term effect on Nigeria's economic development, was the discovery and exploitation of petroleum deposits. The search for oil, begun in 1908 and abandoned a few years later, was revived in 1937 by Shell and British Petroleum. Exploration was intensified in 1946, but the first commercial discovery did not occur until 1956, at Olobiri in the Niger Delta. In 1958 exportation of Nigerian oil was initiated at facilities constructed at Port Harcourt. Oil income was still marginal, but the prospects for continued economic expansion appeared bright and further accentuated political rivalries on the eve of independence.
The election of the House of Representatives after the adoption of the 1954 constitution gave the NPC a total of seventy-nine seats, all from the Northern Region. Among the other major parties, the NCNC took fifty-six seats, winning a majority in both the Eastern and the Western regions, while the Action Group captured only twenty-seven seats. The NPC was called on to form a government, but the NCNC received six of the ten ministerial posts. Three of these posts were assigned to representatives from each region, and one was reserved for a delegate from the Northern Cameroons.
As a further step toward independence, the governor's Executive Council was merged with the Council of Ministers in 1957 to form the all-Nigerian Federal Executive Council. NPC federal parliamentary leader Balewa was appointed prime minister. Balewa formed a coalition government that included the Action Group as well as the NCNC to prepare the country for the final British withdrawal. His government guided the country for the next three years, operating with almost complete autonomy in internal affairs.
The preparation of a new federal constitution for an independent Nigeria was carried out at conferences held at Lancaster House in London in 1957 and 1958 and presided over by the British colonial secretary. Nigerian delegates were selected to represent each region and to reflect various shades of opinion. The delegation was led by Balewa of the NPC and included party leaders Awolowo of the Action Group, Azikiwe of the NCNC, and Bello of the NPC; they were also the premiers of the Western, Eastern, and Northern regions, respectively. Independence was achieved on October 1, 1960.
Elections were held for a new and greatly enlarged House of Representatives in December 1959; 174 of the 312 seats were allocated to the Northern Region on the basis of its larger population. The NPC, entering candidates only in the Northern Region, confined campaigning largely to local issues but opposed the addition of new regimes. The NCNC backed creation of a midwest state and proposed federal control of education and health services. The Action Group, which staged a lively campaign, favored stronger government and the establishment of three new states, while advocating creation of a West Africa Federation that would unite Nigeria with Ghana and Sierra Leone. The NPC captured 142 seats in the new legislature. Balewa was called on to head a NPC-NCNC coalition government, and Awolowo became official leader of the opposition.
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