Chapter One: Introduction

1.1 Background of the Study

Federalism according to K.C Wheare is the method of dividing powers so

that the central and regional governments are each within a sphere co-

ordinate and independent. He said that the characteristics of this Federal

Principle are the division of powers among levels of government a written

constitution showing this division of powers and co-ordinate not sub-

ordinate supremacy of the two levels of government with respect to their

functions (K.C Wheare 1953: 10).The practice of federalism in Nigeria is

one of the legacies the British colonial masters bequeathed to Nigeria. Local

government is born out of federalism because federalism has to do with the

division of power between the central and the component units local

government is a component in a federal system it is recognized as a third

tier of government which is charged with the responsibility at the grass root.

The local government performs certain functions assigned to it by the

constitution and the local government is to be autonomous in its own to

2

carry out all its responsibilities without interference from the central

government. The local government should do precisely the word

government in its own sphere. The evolution of local government in Nigeria

has undergone a lot of changes and all these are geared towards making the

local government a system that could serve the purpose for its creation. But

specifically in 1976 under General Olusegun Obasanjo’s regime introduced

the 1976 local government reform. The reform recognized the local

government as the third tier of government in the Nation and it is expected

to do precisely what the word local government implies that is governing at

the local level. The reforms also intend to stimulate democratic self

government encourage initiative and leadership potential and entrain the

principle of this reform for the local government to be autonomous having

the freedom to recruit and manage its own staff raise and manage its own

finances make policies laws and provide services within the limits of its

resources and functions without interference the local government system in

Nigeria still have some constraints that have impeded it’s autonomy. (Okoli

2005: 107). This research work puts in focus Ofu local government area in

3

Kogi state. It will investigate the autonomous nature of the local government

area and see the level of services that has been delivered in the area. Ofu

local government area of Kogi state was created out of Idah local

Government Area In May 1989 in the then Benue state by the Federal

Military Administration of Nigeria led by General Ibrahim Badamasi

Babangida. It has nine districts. They are; Ugwolawo Itobe Igalaogba

Ojokogbe Aloji Ejule Ogbonicha Igo Omache and Ofoke. The hand-

quarter of the goo-political entity is Ugwolawo the historical town that

provides haven for the only Federal Government College in the Kogi Eastern

Senatorial district. Graphically the local government share boundaries with

Dekina Local Government Area of Kogi state to the North while also

sharing boundary with Ankpa local government to the south. Ofu local

government equally shares boundary with Olamaboro local government area

to the South East and also sharing boundary with Ajaokuta local government

area to the west. The local government area occupies a landmass of almost

8747.5 square kilometer and a perimeter of 252.5 kilometers. The 1991

census figure of National population commission puts the population of the

4

people at 112697. The people are predominantly Farmers. The Land is

fertile for large scale production of crops like maize beans groundnuts rice

cassava melon guinea corn Barbara nuts and so on while mangoes

cashew palm trees cocoa e.t.c yield in abundance for commercialization.

The place is equally endowed with mineral resources like caoline lime

marble galena fieldpars e.t.c lie beneath the earth there in large quantity for

exploration. As it is the characteristic that is always endemic of the countries

of the Sub-Saharan Africa cultural activities are of paramount importance to

the people of Ofu. Their tourist delights include Uloko Amo Waterfalls at

Ofokopi Ugbakoji hills in Itobe Egane Waterfalls Ofakete Natural Bridge

and Ala Natural funnel.

1.2 Statement of the Problems

Local government Autonomy is meant the Freedom of the local government

to recruit and manage its own staff raise and manage its own Finances

make policies laws and provide services within the limits of its resources

and functions without interference. Before the 1976 Local Government

Reform Local Governments were under the direct tutelage of the state

5

government which vested with the exclusive powers to make and unmake

them. As a result Local Governments were subjected to excessive controls

by their respective state governments. These controls by their respective

state governments were carried out through such mediums as approval of

bye-laws and major contracts appointment of certain categories of

professional and administrative staff approval of annual estimates and loan

proposals and funding through grants-in-aid. These control measures posed

negative consequences as they culminated into delays which in turn

frustrated many important policies and programmes in the local government

area. In addition state governments created modified dissolved and

suspended local government councils at will. The states had the power to

abolish their local government system. In fact local government existed at

the mercy of the state.

The autonomy of local government in Africa countries such as Nigeria is

more in theory than in practice. As Olowu (1988:71) succinctly puts it:

6

Most government has opted for the direct

control by central government of their local

governments through a battery of legal

financial and administrative controls... So

called “local government” units of central

governments or worse still exist as parallel

institutions to the government’s field

administration controlled by both the

central and field units.

The heavy dependence of local governments in Nigeria for instance on

statutory allocation from the Federal government whittles down the

autonomy of the former. It puts local government at the mercy of the federal

government. Furthermore successive Nigerian governments (both federal

and state) have interfered in the actual functioning of the local government.

For instance between 1984 and late 1987 local government councils were

abolished and the administration of the affairs of the local government were

placed entirely on the sole administrator. Again in 1994 the elected local

government council were disbanded by the military government of General

Abacha and replaced with caretaker committees (Ezeani 2004). Also the

financial autonomy of local governments has on many occasions been

tempered with by the state governments. This is currently the case in Nigeria

7

were some state governments confisiticate federal allocations to the local

government and give whatever amount they like to the chairman to run the

local government. (Ezeani 2004:86). Despite these for reaching measures

as recommended by the 1976 local government reform thereby making it the

bedrock of modern local government system in Nigeria One can safely

assert that the local government still has some constraints that have actually

impeded its success. These in the view of Olugbemi (1986) can be

summarized as;

- Continued jurisdiction of state government over the most important

functions allocated to local government in the guidelines and as

stipulated in the fourth schedule of 1999 constitution of the federal

republic of Nigeria.

- Continued imposition of various central government it controls the

selection of councilors in budgeting and budget control in policy

determination including the determination of fiscal policies in personnel

management etc which tend to diminish the value of government in local

governments.

8

Therefore the study will seek to provide empirical and verifiable answers to

these problems based on the following questions.

- Does Federalism guarantee local government autonomy?

- Is Nigeria local government system (Ofu Local Government)

autonomous?

- Does the granting of full autonomy to the local government enhance its

service delivery?

1.3 Objectives of the study

Every research work encapsulates and embodies diverse objectives to be

achieved at the end of the research. Thus the broad objective of this research

work is to assess “the Nigerian Federalism and local government autonomy

specifically Ofu local government area of Kogi state. Specifically however

the study attempts to:

- To ascertain if federalism guarantees local government autonomy.

- To investigate if Nigeria local government system (Ofu local

government) is fully autonomous.

9

- To explain if full autonomy is given to Nigeria local government system

(Ofu local government) will enhance its service delivery.

1.4 Significance of the Study

The significance of this study is divided into two viz: Theoretical and

practical.

At the theoretical level it will add to the frontier of knowledge of Nigerian

Federalism and local government autonomy. This research will serve as a

resource base to other scholars and researchers interested in carrying out

further research in this field subsequently if applied will go to an extent to

provide new explanation to the topic. At the practical level the study will

help our policy makers and those in power to see the negative effect of lack

of local government autonomy and in a way make the leaders see reasons or

how effective the government at the grass root (local government) will

become if given full autonomy.

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1.5 Literature Review

As a topical area of study a number of scholarly works had been done

especially on interpretations of variables related to this topic. The

importance of reviewing relevant literature cannot be over emphasized. Fox

(1969) and leady (1974) argued that if contemplated research is to contribute

to the relevant discipline then the researcher must understand the discipline.

They pointed out that the most directed way of doing this is to read the basic

writing of other thinkers. As a style of organizing the review this work

adopts the thematic approach to organize the literature. By this issues are

reviewed based on similarity conformity or ideas. The review is therefore

done under three themes identified as variables under study. This is also to

ensure proper organization and easier understanding for readers. The themes

are; Federalism local government and local government autonomy in

Nigeria.

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Federalism:

The concepts of Federalism bristles with difficulties as there are quite a

number of views or opinions trying to explain this elusive term (there is no

unanimity of opinions). As Daniel Elazer (1992) observed “there are

several varieties of political arrangements to which the term is properly been

applied” (Jinadu 1980:26). William Ricker also pointed out that “an initial

difficulty in any discussion of federalism is that the meaning of the word has

been thoroughly confused by dramatic changes in the institutions to which it

refers” (Ibid). The word Federalism etymologically has its root from the

Latin word “Foedus” meaning compact or league. From the same Latin word

“Foedus” the following English words “Federal Federate” and the word

federation” came into existence and found their ways into the stream of

English language politics and law. In constitutional law the word “Federal”

is commonly employed to express a league or compact between two or more

states to become a United Nation under the central government called the

“federal government.”

12

According to K.C. Wheare (1953:10) is the method of dividing powers so

that central and regional governments are each within a sphere co-ordinate

and independent. According to him the characteristics of this federal

principle are the division of powers among levels of government a written

constitution showing this division and co-ordinate not sub-ordinate

supremacy of the two levels of government with respect to their functions.

Wheare’s central argument is that federalism will be adopted if people in the

constitutional units

Desire to be under a single independent

government for some purposes at any

rate and desire at the same time to retain

or to establish independent regional

government on some matter at least.

(K.C Wheare 1963: 35-36).

From Wheare’s definition of federalism the constitutional provision protects

the autonomy of different regional levels of governments and as such neither

the central or regional governments are subordinate to each other but rather

the two levels of government are coordinate and independent.

13

William Livingston (1956:1-2) looked beyond the narrow confines of legal

formulation to the general systemic view and saw federalism as the product

of the interaction of socio-cultural and political factors while observing that

the documentary constitution may be a poor guide to whether a political

system is Federal or otherwise. He explained that:

The essential nature of Federalism is to

be sought for not in the shade of legal

and constitutional terminology but in the

forces economic social political and

cultural that has made the outward forms

of Federalism lies not in the institutional

structure but in the society itself. Federal

government is a device by which the

federal qualities of the society are

protected. (Livingston 1956:3).

This is a departure from Wheare’s legal construct; Livingston demonstrates

interaction between constitutions framework and socio-cultural structures. In

effect he shows that the form of constitution is not dependent of the

centripetal and centrifugal forces operating in the society. Livingston went

further to distinguish between a federal constitution; which is the legal

document and a federal society necessitates the federal constitution. He

notes the Federal constitution to mean the arrangement incorporating the

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federal principles such as the division of powers while the federal society is

one with a plurality of ethnic groups with different historical cultural and

linguistic backgrounds but in which each ethnic group occupies a marked

and distinct geographical location from the others. Federalism therefore

becomes a device for compromising unity in diversity. Livingston

(1956:3).however emphasized the need for common political tradition if

federalism is to survive asserting that “of all the factors that go into matrix

out of which Federations are produced similarly of social and political

tradition is probably the most important.

Livingston concluded that the political institutions of Federalism once

created “May themselves shape the pattern of society by determining the

channels which these social pressures will flow in short the constitution

affects and is effected by societal diversities”.

The problem with the above analysis is while stating the factors which

affect the operations of a federal system; it is vague on which of these

factors are necessary conditions for the formation of a federation. Similarly

Livingston’s definition of federal system’s so broad that all societies with

15

division of powers can find niche in the classification. For example this

approach does not help in sorting out the boundaries between federal states

like U.S.A and decentralized system like Britain.

Carl Friedrich (1963:35) shares a similar view with K.C Wheare.

According to him Federalism should be seen as a process by which unity

and diversity are politically organized and this process include all political

phenomena persons institutions and ideas. He described a federation as

union of group selves united by one or more objectives but retaining their

distinctive group level while association is on the interpersonal level. He

noted that federalism without destroying themselves that are uniting and is

meant to strengthen them in their mutual relations. Friedrich argued that

federalism should be a process. The process by which a number of separate

political communities enter into arrangements for working out solutions

adopting joint policies and making joint decisions on joint problems and

conversely also the process by which a unitary political community becomes

differential into a federally organized whole.

Itse Sagay (2003) corroborates with Wheare by posting that Federalism is;

16

An arrangement whereby political power within a

multinational country are shared between a Federal

or central authority and a number of regionalized

governments in such a way that each unit

including the central authority exists as a

government separately and independently from the

others operating directly on persons and property

within its territorial area with a will of its own and

its own apparatus for the conduct of affairs and

with an authority in some matters exclusive of all

others. In a federation each government enjoys

autonomy a separate existence and independence

of the control of any other government. Each

government exists not as an appendage of another

government but as an autonomous entity in the

sense of being able to exercise its will on the

conduct of its affairs far from the direction by any

government.

The above definition is in line with Wheare’s own stipulation that in the

Federal system there is no hierarchy of authorities with the central

government on the others. All governments have a horizontal relationship

with each other.

Another scholar on the discussion of federalism is Austin Ranny (1993: 789)

who sees federalism as a system of government where power is divided

between a national government and several sub-national governments each

of which is legally supreme on its assigned sphere. He noted that

17

Federalism was adopted as political expediency adding that Federalism has

been widely praised as of the grant American contribution to the art of

government

A number of different nations have adopted

it as a way of enabling regions with sharp

different cultures and interest to join

together as one nation. The clearest

examples are nations like Australia

Canada Germany and Switzerland also in

Brazil India and Mexico.

Osaghie (1990) also argues that an important characteristic which

distinguishes Federal character systems from non Federal systems is

contractual non-concentration of power. According to him in a Federal

state there is an irrevocable division of power as a product of constitutional

compact among the nationalities or sub-communities that compose the

Federation.

Tekena Tamuno (1989:18) Federalism as a form of government where the

component units of a political organization participate in sharing powers and

functions in a cooperative manner though the combined forces of ethnic

18

pluralism and cultural diversity among others tend to pull their people

apart. Delicate arrangements of this kind were carefully worked out provide

sufficient room for the co-existence of centre-seeking and centre fleeing

forces peace for lucky communities which achieve and sustain measure of

this under these arrangements is not necessarily that of the grave where

people agree sometimes and disagree sometimes concerning the goals and

means of co-operative governments of this kind friction and conflict

resolution is quite possible through the time and effective intervention of

accredited authorities and organs of government.

Professor Attahiru M. Jega (1999) gave a seemingly elementary but useful

definition of federalism by saying a federal system is a government in

which the written constitution or an inviolable statutory precedent specifies

that certain fundamental authority adheres to a central government and that

other fundamental authority belongs to smaller areas. (Eligwu 1996: 88). In

this sense Federalism is essentially about the distribution of political and

economic decision making power among constitutions units or levels of

government. Some inferences can be drawn from the above literatures on

19

the concept of federalism; the first is that the study of federalism is still in a

state of partial theory with the numerous writers each speaking a language

particular to him. On close examination it can be observed that no

fundamental disagreement exists among the scholar in their divergent

approaches to the topic. Each approach is a narrow perspective of the broad

theme and none by itself explains the totality of the federal concept. For

example Wheare provides a legal framework of what constitutes a federal

constitution Livingston looks beyond the surface to the social diversities

that the constitutional divisions of powers is supposed to mirror while

Friedrich looks intensely at the actual operation of the societal centripetal

and centrifugal forces and how they affect the constitutional arrangement.

On the whole it could be inferred that the existing literature that pictures

what is federal government and what is not remains as blurred as ever. The

student of federalism is therefore in a sort of quandary.

But for the purpose of this study the definition as given by K.C. Wheare

(1953) would be adopted as a working definition because it is still not

possible except by this Wheare’s definition to determine the prerequisite of

20

federalism and basis on which to establish which countries are federal and

which are not.

Local Government

This part will focus on the views of different scholars which forces us to ask

new questions; to consider views of diverse range of thinkers and provide

access to competing explanations of what is really Local Government.

Orewa (1992) sees local government as the lowest unit of administration to

whose laws and regulation the communities who live in a defined

geographical area and with common social and political ties are subject. The

implication of this in his view is that the territorial jurisdiction of the local

government has to be clearly determined and defined to enable the residents

of the local government aware of their civic and financial claim for the

provision of service and for protection against health & hazard. He went

further to state that local government is the product of decentralized

administration. Decentralization per se refers to the arrangement by which

the management of the public affairs of a country is shared by the

central/State provincial and the local government in such a manner that the

21

local government is given reasonable scope to raise funds and to use its

resource to provide a range of socio-economic services and establish

programmes to enhance the welfare of those resident in its area of authority.

(ibid).

In the view of the United Nations office for public administration

Local government is a political division of a nation

or (in federal system) state which is constituted

by law and has control of local affairs including

the power to impose taxes or exact labour for

prescribed purpose. The government of such an

entity is elected or otherwise locally selected

(quoted in Ola 1984:7).

According to Ola (1984) who is in line with the above assertion indicates

some elements which precipitate the establishment of local government as

the third tier of government;

-citizen’s participation in the management of local affairs

-efficient and equitable provision of essential service

- Resource mobilization for development purpose

22

He went further to explain that local government is a cooperate body which

can sue and can be sued. Thus it has its own independent legal existence.

Local governments are distinguished from other social institution due to

judicial or legislative powers to make bye-laws and regulations. It does not

make substantial law but bye-laws and regulation under the power derived

from the constitution.

Ogunna (1976) sees the local government as a political authority which is

purposely created by law or constitution for local communities by which

they manage their local public affairs within the limits.

William Robson in Mahal (2006) asserts that local government involves the

conception of territorial non-sovereign community possessing the legal right

and the necessary organization to regulate it own affairs. This in turn

presupposes the existence of a local authority with power to act

independently of external control as well as the participation of the local

community in the administration of its own affairs.

In the 1976 local government reform hand book local government was

defined as

23

Government at the local level exercised through

representative councils established by law to

exercise specific power within defined areas.

These powers should give the council substantial

control over local affairs as well as the staff and

institutional and financial power to initiate and

direct the provision of services and to determine

and implement project so as to complement the

activities of the state and federal government in

their areas and to ensure and through devolution

of function to council and through the active

participation of the people and their traditional

institutions that local initiatives and response

to local needs and condition are maximized.

Price (1975:160) sees local government as:

An attempt to make use of its citizens’ local

loyalties by delegating local function to local

administrative bodies which may be various type

such as locally elected representative body a

recognized traditional authority or local

representative with clearly defined power of the

central government.

Drain (2000) in his book “Local Government Administration” perceives

local government as the lower level of government responsible for domestic

enhancement. To him he said development must start from the grassroots

with an organized system and with public enlightment. Development should

be every body’s business local government is the government close to the

24

people and that listens to the people. Local government is therefore all about

enhancement and agent of rural or community development.

Odenigwe (1979) sees the local government in Nigeria as the ultimate

agency for mobilizing citizens and material resource for rural development

under the new system. Local governments are now in a better position to

mobilize direct and co-ordinate the efforts of the people on rural

development.

Venkataranyaiga and Pattabhiram see the local government as

The administration of a locality a village a town a

city or any other area smaller than the state by a

body representing local Inhabitants possessing a

fairly large amount of authority raising at least a

part of its revenue through local taxation and

spending its income on service which are regarded

as local and therefore distinct from state and

central services.

According to L. Ademolekun and L. Rowland (1979:1) sees the local

government as a tier of government with formal and unequivocal recognition

of local government as constituting a distinct level of government with

defined boundaries clearly stated functions and provision. To el-borate on

this definition above being a tier means that unlike before when local

25

government was placed under the ministry or department with limited

responsibilities it is now regarded as the third level of government and

charged with greater and additional responsibilities of mobilizing

sensitizing and harnessing the human and material resource at the local level

for the development of such localities. As the third tier of government the

local government now enjoys the following autonomy.

 Staff: the local government can now recruit pay and discipline their staff

through the local government service commission.

 The local government now enjoys high level manpower unlike before.

 Financial autonomy: the local government as a third tier of government

now gets its fiscal allocation from revenue allocation and mobilization

commission. It also exercise control over its annual budget.

 Fiscal autonomy: it can now generate its own money through rent rate

and tolls.

From the assertions of all the scholars reviewed above it is seen

that they all agree that the local government is a third tier of

government and as such is an agent of rural development.

26

Local Government Autonomy

There is a good deal of confusion and misinterpretation to what the term

“autonomy“ connotes despite its regular usage yet the real understanding of

the term leaves much to be desired. The numerous scholars and government

functionaries who used the term assumed that their audience understands the

concept furthermore; government’s reform that is intended to preserve or

extend local government autonomy ends up short of their objectives because

the full meaning of the term autonomy has not been fully explained (Odunfa

1991). Local government autonomy is the freedom of the local government

to recruit and manage its own staff raise and manage its own finances make

polices laws and provide services within the limits of its resources and

functions without interference from the federal and state government. The

work of different scholars will be reviewed on the meaning of local

government autonomy.

Nwabueze (1983) defines the autonomy under a federal system to mean

“each government enjoys a separate existence and independence from the

control of the other government. It is an autonomy which requires just legal

27

and physical existence of an apparatus of government like a legislative

assembly Governor Court e.t.c. but that each government must exist not as

an appendage of another government but as an autonomous entity in the

sense of being able to exercise its own will in the conduct of its affairs free

from direction of another government. According to Nwabueze autonomy

would only be meaningful in a situation whereby each level of government

is not constitutionally bound to accept dictation or directive from another.

In the view of the defunct centre for democratic studies local government

autonomy refers to “the relative discretion which local government enjoys in

regulating their own affairs the extent to which local government are free

from the control of the state and federal government in the management of

local affairs. In this contribution on the literature of autonomy Davey (1991)

opines that “local autonomy is primarily concerned with the question of

responsibilities resources and discretion conferred on the local authorities.

As such discretion and responsibility at the care of local government it

presumes that local government must poss. the power to take decision

independent of external control within the limits laid at own by the law. It

28

must garner efficient resumes particularly of finance to meet their

responsibilities put differently lead autonomy is the freedom of

independence in clearly defined issue are as separate legal identity from

other level of government. In essence when one talks of local government

autonomy in Nigeria’s policy we refer to the relative independence of local

government control by the state and federal governments. Therefore it is the

nature and structure of transactions or interaction between the three levels of

government that reveals the degree of local government autonomy.

The autonomy of local government in African countries such as Nigeria is

more a theory than in practice. As Olowu (19988:71) succinctly puts it:

A battery of legal financial and administrative

controls... so called “local government units”. In Most

government in African have opted for direct control by

central government of the local government through

reality operate like field administrative units of central

Government or worse still exist as parallel institutions

to the government’s field administration controlled by

both the central and field units.

The heavy dependence of local government in Nigeria for instance to

statutory allocation from the federal government whittles down the

29

autonomy of the former it puts local government at the mercy of the federal

government. Furthermore successive Nigerian government (both federal &

state) has interfered in the actual functioning of the local government. For

instance between 1984 and late 1987 local government council were

abolished and the administration of the affairs of the local government were

placed entirely on the sole administrator. Again in 1991 the elected local

government council were disbanded by the military government of General

Abacha and replaced with caretaker committees.

Also the financial autonomy of local government has on many occasions

been confisticated by the State Government. This is currently the case in

Nigeria were some state government confisticate federal allocations to local

government and give whatever amount they like to the chairman to run local

government (Ezeani 2004: 186).

In the critique of the government of the then Eastern Region of Nigeria

Akpan (1982:160)

By the use of these central government official in

these roles by limiting the financial and executive

30

powers and functions of local government to the

whims and pleasures of the central government by

taking over control of staff serving local

government by assuming the main financial

responsibility for local government services;

Nigeria from independence practiced a veiled form

of integrated administration decentralization with

the so-called local government serving as nothing

but mere arms and agents to the central

government.

It is no surprise therefore that Ronald Wraith who has written extensively

on local government once had to change the title of his book from “local

government in West Africa” to local administration in West Africa” because

he realized that in most cases that what exist in West African countries were

mere local administration rather than local government (Wraith 1982: 224).

Despite these far reaching measures as recommended by the reforms

especially 1976 thereby making it the bedrock of modern local government

system in Nigeria one can safely assert that the local government’s

autonomy is more of a theory than in the real practice of it and this is an

impediment to its success. These in the view of Olugbemi (1986) can be

summarized as

31

Continued jurisdiction of state government over the most important

functions allocated to local government in the guideline and as stipulated

in the fourth schedule of 1999 constitution of the Federal Republic of

Nigeria.

The failure of the federal government to effect a more equitable sharing

of the tax field among the three levels of government.

Continued imposition of various central government controls in the

selection of councilors in budgeting and budget control in policy

determination including the determination of fiscal policies in personnel

management e.t.c. which tend to diminish the value of government in

local government.

1.6 Theoretical Framework

Theory has been defined as set of interrelated constructs concepts

propositions or ideas that presents a systematic view of a phenomenon by

specifying relations among variables with the purpose of explaining and

predicting the phenomenon (kerlinger 1977:57). Following from the above

we can deduce that theory serves as a foundation of any social science

32

research. It provides a logical explanation of a phenomenon or event and at

the same time predicting its possible outcome. Theoretical framework on

the other hand has been identified by Igwe (2005: 442-443) as “the guide on

the school of thought expressing some level or form of existing relevant

knowledge and adopted by the student or the researcher as the foundation of

his work. Chosen normally from any array of political theories reviewed

after thorough literature review.

Saliu (2004:9) had underscored the importance of theoretical framework in

social science as he holds that the importance of applying theories to social

science research efforts has long been realized. In view of the scholars of the

behavioral approach social science is not scientifically based unless it is

backed up by a theory.

Saliu further maintains that “theoretical frame work” refers to the conscious

and deliberate decision that a researcher has made in terms of the theory or a

combination of theories which guide his research efforts. In view of the

foregoing and in bid to conduct a systematic research we shall anchor our

investigation on the theory and persuasion of the structural functional theory.

33

Structural functionalism as described by Haralambos and Holborn (2004:

936-937) is a theoretical framework that is intended to explain the basis for

the maintenance of order and stability in society and the relevant

arrangement within the society which maintain from the biological sciences

was abinitio adopted as a mode of analysis by Gabriel Almond. Almond

contends that every political system has structures that are there to perform

certain functions. It goes further to say that every political system involves

structure and functions according to Robert Marton (quoted in Nwaogu

2002: 47) are “those observed consequences which make for the adaptation

or adjustment of a given system “structures on the other hand refer to “the

arrangement within the system which perform the function” it is therefore

evident in the view expressed above that for the continued existence of a

political system all structures must be allowed to perform its functions

allocated to it by the constitution freely.

Gabriel Almond the main proponent of this theory developed seven (7)

specific functions which every political system must perform;

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Input functions

Political Socialization & Recruitment

Interest Articulation

Interest Aggregation

Political Communication

Output functions

Rule-Making

Rule-application

Rule adjudication. (Almond analyzed in Varma (1975: 209)

In collaborating Almond’s position Varma (1975:211) holds that structural

functionalism revolves around two main concepts- functions and structures

on the basis of which three questions could be posed

- What basic functions are fulfilled in any given political system?

- By what structure?

- Under what conditions?

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Following the above analysis the relevance of structural functional theory in

Nigeria Federalism and local government autonomy cannot be

overemphasized. In Nigeria power is shared among the three level of

government (federal state and local) which in this regard are the structures:

these structure are expected to be taken care of by the constitution taking

cognizance of the notion that constitution is the frame or composition of

government to the way in which a government is actually structured in

terms of its levels the distribution of power within it the relations of the

organs and the procedures for exercising powers (Nwabueze 1993:1)

inherent in Nwabueze’s view is that constitution creates structures assign

roles or functions to them as well as co-ordinates and regulates their

respective and collective activities and relationship with each other. In

Nigeria federation the executive legislature and judiciary is assigned

specific functions by the constitution. Also the three levels of government

federal state and local governments have their own powers delineated and

delimited in the constitution. It is expected that the levels of government

performs their respective functions as drawn in the constitution the aim and

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maintenance of order and stability which is about the most essential of the

state based on the liberal scholars could have been achieved. Again in a

federal state the various component units are equally structures which are

expected to perform certain functions. Since it is expected that the central

and regional government should exist independently and also co-

coordinately and not a situation where the central government assumes a

dictatorial role on other levels performing the functions the regional

government is to perform it is then logical that all the component units

should be autonomous & economically viable as to ensure uniformity in size

of the government units as anything contrary to this could suggest J.S. mills’

“law of instability” if a particular structure is not viable there will certainly

be limitations on the functions it is expected to perform for the continuous

existence of the federation. Moreover since the constitution has a pride of

place in federal practice it then becomes imperative that the various

structures in a federation should participate in its making as this is also part

of their function. A deviation from this view could amount to a situation

where the constitution will fail to reflect the aspiration of the people. The

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constitution might as well fail to institutionalize the appropriate structures

whose functions it also ought to define and delimit. In other words the

constitution may even create structures but fail to assign appropriate

functions to them. Furthermore it is important to note that the federal

system of government has the local government as the third tier and not an

administration under any other level of government as provided by the 1976

local government reform and also in the constitution (1999) 4

th

schedule it

assigns some functions to the local government thus in a federal system

practice the various level of government are supposed to be sharing powers

& functions in such a way that power will not be concentrated or centralized

on a particular tier at the detriment of others. In line with structural

functional theory if the local government is allowed with a full autonomy to

perform its function within its jurisdiction in a way will enhance service

delivery at the grassroots. Both the input & output functions should be

performed simultaneously output should be a product of input function

therefore constitution making as output functions should reflect the inputs

made by various structures. In a situation where there is a deviation from

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this practice structural defects set in and if not properly managed could lead

to system decay.

1.7 Hypotheses

This research work is anchored on the following assumptions:

It seems Federalism guarantees local government autonomy.

Nigeria local government system (Ofu Local Government) is not

autonomous.

There is a correlation between the granting of full autonomy to local

government (Ofu Local Government) and enhanced service delivery.

1.8 Method of Data Collection and Analysis

Just as a builder relies on a building plan and a voyager uses a compass to

guide his voyage. In this study we adopt the use of both primary and

secondary source of data collection. The primary source was based on

personal interview with some Ofu local government officials’ while the

secondary source of data collection is also justified due to its reliable and

scientific facts and ideas must be supplemented with empiricism.

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The secondary source of data includes materials like; text books

newspapers magazines government publications research papers journals

handbooks internet e.t.c.

Moreover we shall adopt content analysis as our method of investigation.

This involves reading meaning into materials that are collected for the

purpose of achieving reliable and verifiable conclusion.

1.9 Operationalization of Terms:

The following terms will be operationalized for a better understanding;

i. Federalism

ii. Local government

iii. Local government autonomy

iv. Functions

v. Structures

vi. Local government officials

i. Federalism: it is a system of government in a country otherwise

referred to as a federation is a system of government in which the

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political and socio-economic powers are shared between the central

government (referred to as federal government) and the co-ordinate

political sub-division of the country referred to in Nigeria as region

but now referred to as states and local government.

ii. Local government: it is a government at the local level exercised

through representative council established by law to exercise specific

powers within defined areas. These powers should give the council

substantial control over local affairs as well as the staff institutional

and financial powers to initiate and direct the provision of service and

to determine and implement projects so as to complement the

activities of the state and federal government in their areas and to

ensure through active participation of the people and their traditional

institution that local initiatives and responses to local needs are

maximized.

iii. Local government autonomy: is the freedom of the local

government to recruit and manage its own staff raise and manage its

own finances make policies laws and provide service within the

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limits of its resource and functions without interference from the

federal and state government.

iv. Functions: observed consequences which made for the adoption or

adjustment of a given system.

v. Structure: the arrangement within the system which performs the

functions.

vi. Local government reform: it is an attempt to re-organize the local

government so as to improve the whole activities at that level.

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