The Gowon Regime

The Gowon Regime

Gowon's influence depended upon his position as chairman of the Supreme Military Council, which had come into existence in March 1967. The council included top-ranking staff officers, service and police heads, state military governors, and the civilian administrator of the East Central State. Gowon also chaired the Federal Executive Council, the cabinet of ministers composed of military officers and civilian technocrats. The regime ruled by decree, although the concurrence of state military governors was sought before decrees were issued.

In October 1970, Gowon announced his intention to stay in power until 1976, which was set as the target year for completion of the military's political program and the return to an elected civilian government. Gowon outlined a nine-point program that would enable the military to relinquish control. Included in the package were reorganization of the armed forces; implementation of a national economic development plan, including reconstruction of war damaged areas, eradication of corruption; establishment of more states; adoption of a new constitution; introduction of a formula for allocating revenue; completion of a national census; organization of national political parties; and elections at federal and state levels. Criticism of the six-year plan was widespread because the agenda was so broad. Many Nigerians feared that the military planned to retain power indefinitely. The reaction of civilian politicians was particularly negative. Muslim traditionalists also expressed concerns that military rule, with its modernizing tendencies, would erode the authority of the emirates.

Foreign Policy

Gowon reaffirmed the priorities in foreign policy established at independence. These included active participation in the UN, advocacy of pan-African solidarity through the Organization of African Unity (OAU), regional cooperation, support for anticolonial and liberation movements--particularly those in southern Africa--and nonalignment in the East-West conflict. The role of Nigeria in world affairs, outside its African concerns, was insignificant, however.

Nigeria was admitted to the UN within a week of independence in 1960. It was represented on the committees of specialized agencies and took its turn as a nonpermanent member of the Security Council. One of Nigeria's earliest and most significant contributions to the UN was to furnish troops for the peacekeeping operation in Zaire in the early 1960s. By 1964 Nigerian army units, under Ironsi's command, formed the backbone of the UN force. The FMG was committed to eliminating whiteminority rule in Africa, and it channeled financial and military aid to liberation movements through the OAU.

Although there was considerable African criticism of Nigeria during the civil war, the military government resisted this pressure as interference in the country's internal affairs. An OAU statement in 1967 backing the federal position on national unity assuaged Nigerian feelings to some extent, but Lagos protested subsequent OAU efforts to bring about a cease-fire. When the war ended, Nigeria's participation in OAU activities returned to normal.

There were minor problems relating to border demarcations with neighboring countries, but these were resolved to the satisfaction of the parties involved. Relations also were mended with African states that had recognized Biafra. Particularly close ties were developed with the military regime in Ghana, which gave full support to the federal government during the civil war. In 1975 Nigeria joined other West African countries in creating the Economic Community of West African States (ECOWAS), whose mandate was the reduction of trade barriers among countries in the region. Sponsored by Gowon, the agreement was indicative of the government's concern with improving intraregional economic ties.

Nigeria played an active role in the Commonwealth, which linked Nigeria to developing countries outside Africa and complemented regional ties through ECOWAS and the OAU. Financial and technical assistance was channeled to Nigeria through the Commonwealth. The aid came from Britain, Canada, and Australia, with which Nigeria had advantageous trade relations. Nigeria's interaction with Britain continued to be cooperative, although the renewal of arms sales to South Africa, permitted by the Conservative British government in the early 1970s, caused some strain in Nigeria. Relations cooled even more because of Nigeria's apprehension over Britain's application for entry into the European Economic Community (EEC). Nigeria feared that it would suffer economically as a result of British membership in the EEC.

The FMG was committed to the principle of nonalignment, a policy initially established in the early years of independence. Acceptance of Western aid--including US$225 million from the United States in the early years of independence--tended to undermine this position. Nigeria had begun to move toward a more autonomous position in 1962, when the Anglo-Nigerian Defense Pact was abrogated. With this step, Nigeria affirmed its independence of British foreign policy to which it had adhered since achieving nationhood. The abrogation of the pact was a clear message of nonalignment. During the war, the federal government accepted assistance from both East and West. Aircraft and heavy equipment were purchased from the Soviet Union, for example, because Britain and the United States refused to supply heavy armaments. Nigeria's relations with the United States were good, largely because the United States provided financial aid and recognized the FMG during the civil war. United States ties with South Africa and Portugal caused some friction on the official level, and there was considerable criticism in the Nigerian press. The Nigerian version of nonalignment had a slightly pro-Western tilt.

Economic Development

After the civil war, the FMG moved to resurrect the six-year development plan inaugurated in 1962. The First National Development Plan charted Nigeria's transition from an essentially agricultural economy to a mixed economy based on agricultural expansion and limited industrial growth. Government was heavily involved in the economy because locally generated private investment was unable to generate sufficient capital for development. New development plans were instituted in 1970 and 1975, but the goals set in all three plans proved unrealistic.

By the late 1960s, oil had replaced cocoa, peanuts, and palm products as the country's biggest foreign exchange earner. In 1971 Nigeria--by then the world's seventh-largest petroleum producer--became a member of the Organization of the Petroleum Exporting Countries (OPEC). The dramatic rise in world oil prices in 1974 caused a sudden flood of wealth that can be described as "dynamic chaos." Much of the revenue was intended for investment to diversify the economy, but it also spurred inflation and, coming in the midst of widespread unemployment, underscored inequities in distribution. In 1975 production fell sharply as a result of the sudden decrease in world demand, and prices moved downward until late in the year when OPEC intervened to raise prices. Nigeria fully supported OPEC policies.

In 1972 the government issued an indigenization decree, the first of a number of Nigerian Enterprises Promotion decrees, that barred aliens from investing in specified enterprises and reserved participation in certain trades to Nigerians. At the time, about 70 percent of commercial firms operating in Nigeria were foreign-owned. In 1975 the federal government bought 60 percent of the equity in the marketing operations of the major oil companies in Nigeria, but full nationalization was rejected as a means of furthering its program of indigenization.

Unemployment constituted an increasingly serious problem. Large numbers of farm workers, who had gone to urban areas in search of higher wages, remained in the cities even if they failed to find jobs, while school graduates and dropouts flooded the labor market at a rate of 600,000 a year in the mid-1970s. Unemployment reached its highest levels in the crowded Igbo areas in the east, where the economy still was recovering from the effects of the war. Skilled workers were reluctant to leave the east in search of work, although eventually the shortage of skilled workers in other parts of the country began to have its effect in overcoming Igbo fears. The dangers involved in discharging large numbers of soldiers who had no job prospects made demobilization of the costly military establishment undesirable. Substantial increases in public-sector employment promised to absorb some of the soldiers, but they lacked training. These economic problems assumed an imposing political dimension. To some extent, they reflected a pattern in the world economic situation, but the popular imagination blamed corruption and mismanagement and held the Gowon regime responsible.

The regime also had to deal with a severe drought that struck the northern states between 1972 and 1974. The drought was the most serious since that of 1913-14. The drought and resulting famine affected the Sahel countries to the west, north, and east far more than Nigeria, but considerable numbers of refugees poured into Nigeria from Niger. Famine conditions also prevailed in some parts of the north of Nigeria. In the long run, however, Nigerian agriculture benefited from the rise in prices that resulted from crop failures in other parts of the Sahel. In the short run, the drought influenced policy decisions about the necessity of promoting irrigation schemes and reforestation.

Crime, Corruption, and Political Turbulence

In 1972 Gowon partially lifted the ban on political activity that had been in force since 1966 in order to permit a discussion of a new constitution that would prepare the way for civilian rule. The debate that followed was ideologically charged. Awolowo's call for a transition to "democratic socialism" made the military particularly nervous. The press, trade unions, and universities demanded a quick return to the democratic process. The call for new states was loud, but there was no agreement over how many there should be. Gowon abruptly ended public discussion, explaining that "peace is more important than politics."

The decennial census was scheduled for 1973. Under the banner "Prepare to be Counted," the military government conducted a public campaign that emphasized the technical rather than political dimensions of the exercise. The procedure was to be supervised by a committee whose members were selected carefully for geographical and ethnic balance, and computers were to be used for processing the returns. Despite measures taken to ensure a more accurate count than had been possible before, the results once again confounded demographers: the census found that Nigeria's population had increased by nearly 44 percent in 10 years, a rate of growth unprecedented in any developing country. According to the returns submitted, the north contained 64 percent of the total population, compared with 53.7 percent in 1963, a figure even then believed to be exaggerated. The 1973 census, on which representation in a new, elected parliament would be based, revived fears that one ethnic group would permanently dominate the others. It also meant that a considerable share of oil revenues would flow to the northern states under the existing system of allocation. The government failed in its efforts to sell the census as a technical exercise because the political implications were widely understood and hotly debated, despite the ban on political discussion.

The Gowon regime came under fire because of widespread and obvious corruption at every level of national life. Graft, bribery, and nepotism were an integral part of a complex system of patronage and "gift" giving through which influence and authority were asserted. Although the military had pledged to rid the government of corruption, the public became increasingly aware of abuses, primarily because of daily exposÚs in the press. In 1973 the federal government established a special anticorruption police force--the "X-Squad"--whose subsequent investigations revealed ingenious forms of extortion and fraud-- not only in government and public corporations but in private business and in the professions as well.

A major scandal that had international implications and reached the highest levels of government and the business community took place in the mid-1970s; it involved the purchase abroad of construction materials by state agents at prices well above market values. Rake-offs were pocketed by public officials and private contractors. Other scandals in hospitals and orphanages shocked the populace, while corruption in importing medical drugs whose effective dates long since had expired revealed that even the health of Nigerians was at risk.

Inefficiencies compounded the impact of corruption. In mid1975 , 400 cargo ships--250 of them carrying 1.5 million tons of cement--clogged the harbor of Lagos, which had been paralyzed for fifteen months with vessels waiting to be unloaded. To compound the error, spoiled and inferior-grade cement was concealed by mixing it with acceptable material for use in public building projects. Later, buildings collapsed or had to be dismantled because of the inferior product. New roads washed away because of bad construction and inadequate controls. In these scandals, as in others, the culprits were a combination of Nigerian businessmen, government officials, and foreign companies. Few people and few projects seemed exempt from the scourge.

Crime posed a threat to internal security and had a seriously negative impact on efforts to bring about economic development. Armed gangs, often composed of former soldiers, roamed the countryside engaging in robbery, extortion, and kidnapping. The gangs sometimes operated with the connivance of the police or included moonlighting soldiers. Pirates raided cargo ships awaiting entry to ports or unloaded them at the piers ahead of the stevedores. Drug trafficking and smuggling were prevalent. Punishment was meted out to large batches of convicted and suspected criminals, who were dispatched by firing squads in public executions meant to impress spectators with the seriousness of the offenses and with the government's concern to curb crime. These measures had no noticeable effect on the crime rate, however, but seemed rather to provoke a callous public attitude toward violence.

In January 1975, Gowon revamped the membership of the Federal Executive Council, increasing the number of military ministers. He depended more and more on a small group of advisers and became increasingly inaccessible to his military colleagues. Without broad consultation, he backed off from the 1976 date set for a return to civilian rule, explaining that to adhere rigidly to it would "amount to a betrayal of a trust" and "certainly throw the nation back into confusion." Public employees staged protest strikes in May and June that brought essential services to a standstill. The government responded by granting retroactive wage increases that averaged 30 percent, which fed inflation and led to industrial strikes as union members demanded parallel raises.

The political atmosphere deteriorated to the point that Gowon was deposed in a bloodless coup d'Útat July 29, 1975--the ninth anniversary of the revolt that had brought him to power. At the time, Gowon was at an OAU summit meeting in Kampala, Uganda. The perpetrators of the coup included many of the officers who had participated in the July 1966 coup. Even the officers responsible for Gowon's security were involved. Gowon pledged his full loyalty to the new regime and left for exile in Britain, where he received a pension from the Nigerian government.

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