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LEADERSHIP AND STAFF PRODUCTIVITY IMPROVEMENT
IN THE NIGERIAN PUBLIC SECTOR (THE CASE OF ENUGU
NORTH LOCAL GOVERNMENT)
A PROJECT PRESENTED
BY
OBIORA, CHINYERE HENRIETTA .V.
PG/MPA/05/40148
TO THE DEPARTMENT OF PUBLIC ADMINISTRATION
AND LOCAL GOVERNMENT
FACULTY OF SOCIAL SCIENCE
UNIVERSITY OF NIGERIA NSUKKA
APRIL, 2009
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LEADERSHIP AND STAFF PRODUCTIVITY IMPROVEMENT
IN THE NIGERIAN PUBLIC SECTOR (THE CASE OF ENUGU
NORTH LOCAL GOVERNMENT)
A PROJECT PRESENTED
BY
OBIORA, CHINYERE HENRIETTA .V.
PG/MPA/05/40148
TO THE DEPARTMENT OF PUBLIC ADMINISTRATION
AND LOCAL GOVERNMENT
FACULTY OF SOCIAL SCIENCE
UNIVERSITY OF NIGERIA NSUKKA
IN PARTIAL FULFILMENT OF THE REQUIREMENTS FOR
THE AWARD OF MASTERS IN PUBLIC ADMINISTRATION
(MPA)
SUPERVISOR: PROF. R. C. ONAH
APRIL, 2009
iii
LEADERSHIP AND STAFF PRODUCTIVITY IMPROVEMENT IN
THE NIGERIAN PUBLIC SECTOR (THE CASE OF ENUGU NORTH LOCAL GOVERNMENT AREA)
iv
DEDICATION
This project work is dedicated to
GOD ALMIGHTY
For His steadfast love on me.
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CERTIFICATION
This project work titled “LEADERSHIP AND STAFF PRODUCTIVITY
IMPROVEMENT IN THE NIGERIAN PUBLIC SECTOR (THE CASE OF ENUGU
NORTH LOCAL GOVERNMENT AREA) being a Masters Thesis was carried out by
OBIORA, CHINYERE HENRIETTA with Reg. No. PG/MPA/05/40148 of the
Department of Public Administration and Local Government and has been approved by:
_________________ __________________
Prof. R. C. Onah
Supervisor Date
_________________ __________________
Prof. R. C. Onah
HOD Date
_________________ __________________
External Examiner Date
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ACKNOWLEDGEMENT
My first and foremost gratitude goes to God, the “without which” the successful
story of this project completion would not have been told. To Him I ascribe all adoration
and majesty.
My sincere gratitude goes to my project supervisor, Prof. R. C. Onah, for the
attention she devoted to my research work without minding the stress and time factor
associated with it. I also say a big thank you for her good human relationship and guidance
throughout the period of my project writing. I also wish to thank other lecturers in the
Department of Public Administration and Local Government for the knowledge they
imparted to me.
My gratitude also goes to my husband, Mr. Sunday H. Nwobodo, who was there for
me to guide, advice, encourage and help me out where necessary. He really showed me
love in the practical way throughout the period of my project writing. I say a “BIG
THANK YOU”. To my little son, Sunny Jnr though you came and cause the little delay in
finishing the project early enough, I still appreciate you.
To my siblings I extend my appreciation, especially my twin brother Vincent, who
helped me to start off the race initially with his financial aid. To my elder brother Emeka, I
say you are wonderful, despite the distance you are from me, you still helped me out in
your ways, I really appreciate you. I also wish to say a big thanks to my parents.
My sincere and profound gratitude also goes to my friends, especially Vincent
Lafua, and some staff of Enugu North Local Government Area, who gave me attention
when I needed it and to members of Enugu State Library Board, I will not forget you
people. You are all “WONDERFUL”.
May God bless every other person who in one way or the other contributed to my
finally coming up with this write up.
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TABLE OF CONTENTS
Page
Title Page i
Dedication ii
Certification iii
Acknowledgement iv
Table of Contents vi
List of Tables ix
List of Figures xi
Abstract xii
CHAPTER ONE: INTRODUCTION
1.1 Background of the Study 1
1.2 Statement of the Study 6
1.3 Objectives of the Study 8
1.4 Significance of the Study 9
1.5 Scope and Limitations of the Study 9
CHAPTER TWO: LITERATURE REVIEW AND METHODOLOGY
2.1 Literature Review & Method of Study 11
2.1.1 What is Leadership 11
2.1.2 Styles of Leadership 12
2.1.3 Leadership Qualities 13
2.1.4 Leadership Qualities 15
2.1.5 Highlights on Local Government 15
2.1.6 Responsibilities /Functions of Local Government 17
2.1.7 Co-ordination between leadership and staff productivity
Improvement 20
2.1.8 Summary of Literature Review 22
2.2 Method of Study 22
2.2.1 Research Design 22
2.2.2 Sources of Data 22
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2.2.3 Population of the Study 24
2.2.4 Sample and Sampling Technique 24
2.3 Hypothesis 25
2.4 Theoretical Framework 25
2.5 Classification of Key Concepts 26
CHAPTER THREE: BACKGROUND INFORMATION ON STUDY AREA
3.1 Evolution and Administration of Local Government in Nigeria 28
3.1.1 Evolution of Local Government in Nigeria 34
3.1.2 Administration of Local Government in Nigeria 35
3.2 The Emergency and Administration of Enugu North Local
Government Area 38
3.2.1 The Emergency of Enugu North Local Government Area 39
3.2.2 The Administration of Enugu North Local Govt. Area 39
3.3 Structure and Leadership Style of Enugu North L.G.A 45
3.3.1 Structure of Enugu North Local Government 46
3.3.2 Leadership Style of Enugu North L.G.A 48
3.4 Finance and Personnel Management in Enugu North L.G.A 56
3.4.1 Financial Management for Productivity in Enugu North L.G.A 57
3.4.2 Financial Administrative Structure in Enugu North L.G.A 62
3.4.3 Personnel Management in Enugu North L.G.A 62
3.4.4 Functions of Personnel Management 62
3.5 Level of Productivity in Enugu North L.G.A 63
3.5.1 Duties of Enugu North L.G.A 63
3.5.2 Sources of Fund for Enugu North L.G.A 64
3.5.3 Duties and Source of Income for Departments in E.N.L.A 65
3.6 Impact of Leadership Style on Staff Productivity in E.N.L.G.A 72
CHAPTER FOUR: RESULTS AND FINDINGS
4.1 Data Presentation 74
4.2 Findings 76
4.3 Implications of Findings (Administrative efficiency and 76
Effectiveness)
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CHAPTER FIVE: SUMMARY, CONCLUSION AND RECOMMENDATION
5.1 Summary 78
5.2 Conclusion 81
5.3 Recommendation 81
Bibliography 83
Appendix I 87
Appendix II 90
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LIST OF TABLES
Table 3.1: Organizational Organogram of a Local Government 37
Table 3.2: Political and Administrative Structure of Enugu North
Local Government Area 45
Table 3.3: The number of years ENLG had been under each type
Of government 52
Table 3.4: The relationship between type of government,
Leadership structure and Leadership style 52
Table 3.5: The Leadership style operational in Enugu North
Local Government Area 54
Table 3.6: Staff relationship with the leadership style of Enugu
North Local Government Area 56
Table 3.7: The number of response from 20,000 adults:
10,000 males and 10,000 females resident in the
researched area on the quality and quantity of
services rendered by ENLG under the governments
being reviewed. 66
Table 3.8: The percentages of response from 20,000 adults;
10,000 males and 10,000 females in percentages to the
quality and quantity of services rendered by ENLG
under the regimes under review 67
Table 3.9: The response of adult residents of ENLG over the
Quality and quantity of service rendered by the local
Government under different types of government 68
Table 3.10: The Income of Departments in the year indicated
Against it in ENLG 69
Table 3.11: The Expenditure per departments in the year shown
against it in ENLG 69
Table 3.12: The Income of departments in ENLG in different
Regimes between 1976 – 2008 70
Table 3.13: The expenditure of departments in ENLGA in
different regimes between 1976 – 2008 70
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Table 3.14: The income and expenditure of ENLG under
Democratic and Autocratic style of leadership
Between 1979 – 2008 71
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LIST OF FIGURES
Fig. 1: Graph representation using pie chart showing in
percentages the years ENLG spent under different
regimes 74
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ABSTRACT
The main interest of this study is to analyze the fundamental issues and problems of
leadership and productivity improvement in Nigeria Public sector using Enugu North Local
Government as case study. Productivity improvement will not occur where the leadership
style is anti-productivity. To achieve the aim of this study we raise the following questions.
What is the leadership style operational in Enugu North Local Government Area? How
does the quality and quantity of services rendered by the leadership of Enugu North Local
Government help in the improvement of staff productivity? What is the productivity level
in Enugu North Local Government Area? What impediments does the staff encounter and
what are the possible suggestions to apply to improve on the staff productivity level in
Enugu North Local Government Area? To validate the hypothesis which was raised based
on the above questions, we anchored our analysis on the contingency theory and relied on
both primary and secondary sources of data. The study found out that there is urgent need
for improvement of staff productivity in Enugu North Local Government Area to avoid
systemic collapse.
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CHAPTER ONE
INTRODUCTION
1.1 BACKGROUND OF STUDY
If members of an organization are asked to choose their own leader, most
people may choose one and the same person. If you study the over chosen person closely,
you will most probably find that he is not merely popular in the superficial sense, he is a
protagonist of the needs and desire of a large number of the population. He often acts on
behalf of others with a sensitivity of response which does not exist in the average
individual. Such people are often individuals who see beyond the narrow circumference of
their own personal needs into the wider range of the needs of the fellow citizens.
However, events may occur which may alter the prestige of particular individuals. The
structure of the group may also change depending on the task which confronts it. This
suggests that leadership is dynamic and situational. Leadership in organizations ought,
therefore, to be democratized and decision making powers decentralized. A good leader is
one who is most fitted to take charge in any given situation. However, in organizations,
situations do not change so dramatically. The leader of a work team is the supervisor,
foreman or manager, chairman or president as the case may be. But he should under no
circumstance force himself on the group by virtue of his formal authority. This is the
legitimacy question. An individual status is based on the degree to which he contributes to
the achievement of the groups goals and objectives.
Administrative leadership exists in the context of an organization or public
sector. It involves formal authority. Here, leaders, usually have institutional position, the
status and authority of which become part of their roles. The mere recognition of legitimate
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authority disposes men to obey. Every formal organization therefore is characterized by
hierarchy through which definition of roles, apportionment of responsibilities, gradation
and insititionalization of position, accountability and communication are ensured.
Intelligent direction on the part of the leader, coupled with devotion to work by the
subordinates, given an organization its desired success of improving on staff productivity.
Hence, administrative leadership in the public sector, like all forms of formal
leadership requires legitimacy, for any leadership that does not enjoy the confidence and
support of its followers is unlikely to succeed.
Leadership is seen from various concepts; as its study began around 1900 and focus
on traits that distinguish great leaders from the masses. Fielder asserted that apart from
traits and behaviour, the nature of followers, job characteristics can influence leadership. It
is agreed that leadership is a one-way or mutual process of influence that command
obedience.
Muson (1921), defined leadership as “the ability to handle men so as to achieve the most
with the least function and the greatest co-operation. Bennise (1959), on the other hand,
saw leadership as the process by which an agent induces a subordinated to behave in a
desired manner.
Also, Wash (1929) suggested that “leadership implies influencing change in the
conduct of people. The new employees who are still lacking in sense of direction have a
remarkable change in behaviour within a couple of days by the influence of the leaders
(managers, chairmen, etc.)
Tead (1935) defined leadership as the “activity of influencing people to co-operate
toward goals which they came to find desirable” Massarik (1961) defined leadership as
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“interpersonal influence, exercised in a situation and directed, through the communication
process toward the attainment of a specified goal or goals. In any given organization or
sector, their goals. In any given organization or sector, their goals must not be in conflict of
the individual employees goals and inspirations.
Some scholars see leadership as an act or behaviour. Such scholar like Fielder
(1967) sees leadership behaviour as the particular acts in which a leader engages in the
course of directing and co-ordinating the work of his group members. These acts include
structuring the work relations, praising or criticizing group members and showing
consideration for their welfare and feelings.
The local government system is as old as the society itself. It is observed that in
every community there has been tiers of duties delegated from a higher tier to a lower one.
With the emergence of the state system after the West Philia Treaty, societies become
more organized than ever and its functions more complex. States in order to function
properly began to delegate some of its functions to the lower tiers.
In Nigeria after the amalgamation of the Northern and Southern Protectorate
together with the colony of Lagos in 1914 the British Government maintained a form of
local administration called Indirect Rule. At every stage of the life of local government
system in Nigeria, its function has always been, to serve the interest of the forces that
created it. This function is measured by determining if the set goals were achieved or not.
The local government was seen as a productive “venture”, for it produces by achieving its
goals and functions. The local government through its staff attempts to fulfill the roles and
functions assigned to it. The productivity levels of these staff have differed from time to
time due to the leadership style adopted by the managers of the local government.
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Public administration grows and develops with government and for this growth to
occur, there were reforms and studies on how to create enabling environment for
productivity to grow. According to Abah (1997:10), the establishment of public
administration was also improved by the rise of literacy level and availability of abundant
literature on administration and its functions; planning, organizing, staffing, directing,
coordinating, reporting, budgeting etc. The local government system was not immune from
public administration, the personnel department of the local government is assigned with
the duty of using the staff of the local government to achieve the functions and duties of
the local government. It is the ability of the personnel department to carry its functions
effectively and efficiently to increase the productivity level of a local government.
Aniemeka (1996:4) identified approaches to personnel management as mechanical, social
system, paternalistic, scientific management approach and human relation approach.
The contingency theorist according to Udenta (2006:106) admits that all the
approaches are good only if they will serve the purpose of increasing productivity need of
that time. This can only be achieved by adhering to the organizational structure, work
ethics and work designs or job designs of the local government.
Productivity according to Courbois and Temple (2006) refers to metric and
measures of output from productive processes, per unit of input. Pineda (1990) sees labour
productivity as typically measured as a ratio of output per labour hour. Gollop (1979) sees
productivity as a metric of the technical or engineering efficiency of production. As such,
quantitative metrics of input and sometimes output are emphasized. Productivity is distinct
from metric allocative efficiency, which take into account both the value of what is
produced and cost of input used and also distinct from metrics of profitability which
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addresses the difference between the revenues obtained from output and the expenses
associated with consumption of inputs.
On Increase in productivity, Jorgenson (2007) asserts that the local government can
increase productivity in variety of ways. The most obvious involves automation and
computerization which minimizes the task that must be performed by staff. Recently, less
obvious techniques are being employed that involves ergonomic design and worker
comfort. A comfortable staff, the theory maintains can produce more than a counterpart
who struggle through the day.
Labour productivity according to Kurosawa (2006) is the average product of
labour, average output per worker or per worker-hour, an output which could be measured
in physical terms or in price terms. It is not the same with marginal product of labour. The
qualitative aspects of labour productivity such as creativity, innovation, improved quality
of work and the effect on other areas in a local government are more difficult to measure.
The formula for total productivity are:
Total productivity = Output quantity
Input quantity
Therefore, for productivity to have occurred there must be changes in relative price of
different input and output factors.
Enugu North Local Government Area having been created out of the existing old
Enugu Local Government Area far back as the year 1975, has gone through different styles
of leadership. Enugu North Local Government Secretariat is located along Old Park. It
houses six departments comprising of Personnel, Finance, Education, Agriculture,
Works/Housing and Health. Each of these departments has their own staff strength that
help in the running of the local government. In all, there are about 2000 staff in Enugu
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North Local Government Area. It has had a long stretch of different types and styles of
leadership. Owing to this inconsistency in the leadership of Enugu North Local
Government, the productivity level of the staff has been greatly affected. This is usually
found in all the local government areas of the country where staff productivity is usually
very low owing to the type of attention given to the staff and sometimes the decaying
attitude of some staff. Enugu North Local Government Area is not an exception in staff
low productivity.
In view of the foregoing, the researcher got motivated to investigated on how the
style of leadership adopted can improve the productivity level of the staff in Enugu North
Local Government Area.
1.2 STATEMENT OF PROBLEM
Leadership and staff productivity in Nigeria Public sector had engaged the attention
of many. They are of the view that productivity improvement in the public sector is
dependent upon the leadership and leadership style. Leadership style in any organization
affects negatively or positively the productivity of staff.
Abah (1997) asserts that staff condition of service like salaries, tenure of office,
medicare, leaves, retirement, pension benefits, recognition, sense of inclusiveness and
partial involvement in decision making if taken cognizance of by leadership, improves on
productivity.
Likert (1967), noted that leadership is a relative process in that for any leader to be
successful (and likewise for any sector to produce effectively), he must recognize certain
issues like expectations, values and interpersonal skills of those with whom he is
interacting. The leader must exhibit behaviours and organizational processes that when
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perceived by followers, they will see them as supportive of their efforts and of their sense
of personal worth. Leadership in this sense, must be exercised in such a way as to further
the task performance and personal welfare of followers. Leadership here, must be for
group cohesiveness and motivation for productivity improvement by providing freedom
for responsible decision making and exercise of initiative.
Okeke (2002) postulates that the local government is sub-servient to the creating
instrument. The creating instrument determines its roles and functions and the productivity
level. For productivity to occur, Kurosawa (2006) asserts that there must be changes in
relative price of different input and output factors. Therefore productivity is:
The total productivity = output quantity
Input quantity
Therefore, if there is no different in output and input factors there is no productivity
and productivity can be positive (+) or negative (-).
Obasi (1992) assert that the interaction of politics in a healthy manner would
improve the quality of policy making, policy implementation, administration and increase
in productivity. Adebayo (1981) states that … impractical policies and … dissatisfaction
among staff dampens their productivity flares. Molokwu(1993) assert that it is the
responsibility of leadership to develop good human relation in order to improve on
productivity of staff. After all the achievement of the goal set by this constitution fall on
the staff of local government.
Despite the enormous powers given to the local government and the corresponding
provision for attaining it, the deplorable condition of the people in the rural and urban
centers where the local government held sway show no sign of actualizing the goal set.
Hence in order to fill the above gap and problems, we pose the following questions.
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(1) What is the leadership style operational in Enugu North Local Government
Area?
(2) What is the level of the quality and quantity of services rendered by the
leadership of Enugu North Local Government Area?
(3) Is there need to adopt other motivating measures to improve on staff
productivity level in Enugu North Local Government Area?
(4) What are the impediments to staff productivity improvement in Enugu
North Local Government Area?
(5) What are the suggestions to be proferred in staff productivity improvement
in Enugu North Local Government Area?
1.3 OBJECTIVE OF STUDY
By mere looking at the metamorphosis of Nigerian local government
administration one may be tempted to arrive at the conclusion that there is high level of
productivity by the staff of councils. There have been series of reforms to reposition the
productivity of staff of councils, but the issue is that the role and functions or demand of
society on council is increasingly becoming more complex.
Therefore it is the objective of this work to:
(1) examine the leadership style prevalent in Enugu North Local Government
Area.
(2) identify the level of quality and quantity of services rendered by the leadership
of Enugu North Local Government Area.
(3) find out the level of staff productivity in Enugu North Local Government Area.
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(4) determine impediments to staff productivity in Enugu North Local Government
Area.
(5) proffer suggestions towards improved productivity.
1.4 SIGNIFICANCE OF STUDY
This academic work will help in the identification of those factors which constitute
logs in the wheel and frustrate the raison d’etre in the staff productivity in Nigeria which
necessitates the need to increase productivity level of staff in Nigerian public sector. More
importantly, the fundamental basis of this study is channeled into two dimensions namely,
theoretical and practical. Theoretically therefore, the study will add and contribute to the
existing literature on leadership and its impact on staff productivity in Nigerian Local
Government Area, especially with regard to the need and expediency for increase
productivity in keeping with the latest and current trends of grass root development.
Besides, it will be of particular importance to authorities, administrators, lecturers,
leaders and staff in the private and public sectors, captain of industries, researchers and
students of public administration. On the practical aspect, the study will assist in drawing
the attention of governments to the need of increase in productivity of staff in public
sector. Finally, it will be a veritable source of reference for policy formulators within and
outside the local government area.
1.5 SCOPE AND LIMITATION OF THE STUDY
The scope of this study was on leadership and staff productivity improvement in
the Nigerian Public Sector, which was limited to Enugu North Local Government Area.
Some staff members in Enugu North Local Government were used for study to understand
how the leadership style in practice affects their productivity and work improvement.
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Likewise, certain limitations were experienced in the course of writing this project,
which caused it to take a longer time than expected. Limitations like home problem,
finance, personal office work conflicting with the writing of the project which gave rise to
lack of time. The researcher was short of time to co-ordinate home, office and project
writing.
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CHAPTER TWO
2.1 LITERATURE REVIEW
2.1.1 What is Leadership?
Leadership has always been the bane of development in Nigeria, therefore the
underdevelopment of Nigeria have always been attributed to bad leadership, with its
antecedent auxiliary; corruption. Though in some quarters, it is believed that followership
has a problem of its own. Okeke (2002:297) assert that it is the leadership behaviour that
determines the behaviour of the group that is being led.
Muson (2001) sees leadership as the ability to handle men so as to achieve the most
with the least function and the greatest cooperation. Bennise (1959) on the other hand saw
leadership as the process by which an agent induces a subordinate to behave in a desired
manner. Wash (2007) suggested that leadership implies influencing change in the conduct
of people. The new staffs who are still lacking in sense of direction have a remarkable
change in behaviour under the influence of a leader.
Tead (1985) sees leadership as the activity of influencing people to cooperate
toward goals which they came to find desirable. Massarik (2001) sees leadership as
interpersonal influence exercised in a situation and directed through the communication
process towards the attainment of a specific goal or goals.
Hemphill (2007) is of the opinion that there is no absolute leader since successful
leadership must always take into account the specific requirements of the nature of the
group. Ohikhena and Anam (2004) assert that, in a situational approach it is assumed that
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the situations are unique and consequently each leader has to be studied in relation to his
group.
2.1.2 Styles of Leadership
Lewin (2008) in writing on leadership style identified and classified leaders into
democratic, autocratic and laissez faire types. It is also concerned with the degree at which
any type effect decision making.
Abah (1997:97) identified four basic styles of leadership which he called
management styles. He describe them as, Exploitative/Authoritarian. Here, the leader or
manager is highly autocratic, has little trust in subordinates, motivates people through fear
and punishment with occasional rewards, engages only in a downward communication and
limits decision making to the top. The participative leader decentralizes managerial
authority. His decisions are not unilateral as with the autocrat, but they arise from
consultation with subordinates and participation by them. He brings the staff into his
problems, by informing them about factors which affect their group job, thereby
encouraging the staff with their suggestions and contribution of ideas. The free-rein
(laizzes-faire) leader depends upon the group to establish its own goals and wok out its
own problems. Staff members train themselves and provide their own motivation. The
leader exists primarily as a contact man with outside persons to bring to his staff the
information and resources it needs to accomplish its task.
Okeke (2002:300) conceptualizes that leadership style is situational, that it is the
situation at hand that determined the leadership style to be adopted. Jenkin (2001) writing
on the situational theory, asserts that leadership is a specific to the particular situation
under investigation. Fielder (2007) in his contingency model asserts that leadership
13
effectiveness depends on the appropriate matching up of the individual leadership style and
the influence, which the group situation provide. Campbell (1957) opined that the situation
seem to establish some boundaries at least of temporary nature within which a leader must
work.
2.1.3 Leadership Functions
On function of leadership in relationship to group performance or staff
productivity, Okeke (2002:306) states that a leader cannot be studied outside his group
because leadership is a relational attribute which emphasizes the behaviour of the person
leading in terms of the behaviour of the person led. Haplin (1956) sees leadership as the
behaviour of a leader functioning vis-à-vis members of a group in an endeavour to
facilitate the solution to group problem or organizational goal – productivity. Brown
(1997) and Newell (2008) view leadership as a transaction, which is determined by both
the leader and the led. Therefore, there is a strong relationship between leadership and staff
productivity. For optimum productivity to occur leadership must create an enabling
environment for followership to perform and produce.
Mere occupancy of a position is no guarantee that its incumbent is an effective
leader in the sense that he does things, initiates new programmes and actually leads his
followers of staff. Leadership can only be understood in terms of what the leader does, not
who the leader is or what kind of person he is. However, there are certain functions that
seem to be commonly performed by leaders of various organizations or groups. Such
functions include making of policies, execution of policies and performance of dual
responsibility to the general public and to the internal operation of his organization.
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Another function, is that for a leader to improve on staff productivity should adopt
measures like shares relationship in the sector he is occupying. In adopting this measure,
he is expected to provide proper guidance, motivation and help to his staff while on the
other hand, he expects good quality work from his staff.
Gross and Herriott (1965) in their studies on Executive Professional Leadership
(EPL) Principles found out that leadership behaviour affect negatively or positively on
organizational characteristics. Mitchel (1972) writing on a study to determine whether the
complexity of persons in leadership positions influenced their groups performance on
variety of tasks, and whether leaders with different levels of complexity utilized
systematically different behaviours to obtain their respective performance level. Finding
showed that staff productivity level is influenced by leadership style. Macgregor (1966)
believe that leadership style was a determinant of staff behaviour. Schriesheim and
Murphy (2008) writing on leadership style and productivity, found that when leaders
perform optimally and relates well with staff, that staff productivity increases but when
reverse is the case, the productivity of staff decreases. Katz and Khan (1978) corroborated
the assertion by arguing that the function of staff if well articulated will increase
productivity.
For Okeke (2002:308) leadership in governmental administration is two-pronged. It
is a combination of political and administrative leadership efforts. A dynamic and
purposeful political leadership could enhance the performance of administrative leaders.
This contention corroborates earlier citations that leadership is interactional, a relational
attribute and a cause-effect phenomenon. There is no doubt that the leadership style or
15
behaviour of political executives certainly influences the performance of staff and
government.
2.1.4 Leadership Qualities
In studying a leader, there are desirable qualifications for he to be termed effective.
This image is characterized by certain important leadership qualities.
(a) Intelligence: This implies natural intelligence, mature and sound judgement
to foresee and examine problems and be able to provide appropriate
solutions to them.
(b) Initiative: This is the ability to do things correctly without being told or with
minimum supervision.
(c) Sociability: For a leader to be effective and function well in all the specified
duties and responsibilities placed upon him, he must be well grounded in
interacting with many staff and groups of people. He must have a well
developed human relation skill.
(d) Moral Integrity: A leader must always uphold high ethical and moral
standards. He has to be courageous enough to stick to the truth and uphold it
at all times.
(e) A leader should at all times accept constructive criticisms gracefully and
takes full responsibility for the organizational or group goals.
2.1.5 Highlights on Local Government
Local Government in one form or the other has existed in many communities of the
world throughout ages. In Nigeria today the local government is seen as the third tier of
government alongside the federal and state government.
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Udenta (2007:44) writing on the character of local government states that, from
history, areas that are once recognized as local government areas, once upon a time lost the
status. For examples, many of the native authority areas and 1950s and 60s multi tier
arrangements in Nigeria lost local government status sequel to 1976 unification, and areas
that were not local government in the past after some time past becomes local
governments, and the beats goes on. Therefore the basic nature and character of local
government includes:
(a) subordination to central, regional or state government
(b) recognition of higher levels of government/conventions
(c) corporate or legal personality
(d) cultural homogeneity
(e) area
(f) instrument
(g) population
(h) a government /administration
(i) miscellaneous
Okeke (2002) postulated that the local government as a product of its creator is
subservient to such higher authority. The creating instrument determines the role and
function of the local government. It is the influence of the creating instrument that
determines the productive level of the local government.
17
2.1.6 Responsibilities /Functions of Local Government
The law of Enugu State that makes provision for the establishment, structure,
composition, finance, and functions of local government council (2000, No. 1, Part IX,
Section 50-54, PP A27-30) states inter-alia:
50 The main function of a local government shall be as follows:
(a) the consideration and making recommendation to the state economic planning
committee or any similar body on:
(i) the economic development of the state, particularly in so far as the areas
of authority of the council and of the state are affected, and
(ii) Proposal made by the said commission or body
(b) Collection of rates and issuance of radio and television licenses;
(c) Establishment and maintenance of cemeteries, burial grounds, and homes for
destitute or infirm;
(d) Licensing of bicycles, trucks (other than mechanically propelled trucks,),
canoes, wheel barrows and carts;
(e) Construction, maintenance and regulation of slaughter houses, slaughter slabs,
markets, motor parks, and public conveniences;
(f) Establishment, maintenance of roads, streets, street lightings, drains, parks,
gardens, open spaces, or such public facilities as may be prescribed from time
to time by law.
(g) Naming of roads and streets and numbering of houses;
(h) Provision and maintenance of public conveniences, sewages and refuse
disposal;
(i) Registration of all births, deaths and marriages;
(j) Assessment of privately owned houses or tenements for the purpose of levying
such rates under this law or as may be prescribed by the House of Assembly of
the state;
(k) Control and regulation of:
(i) out-door advertising and hoarding,
18
(ii) movement and keeping of pets of all descriptions,
(iii) shops and kiosk,
(iv) restaurants, bakeries and other places for sales of food to the public
(v) laundries, and
(l) Licensing, regulation and control of the sales of liquor
51. The functions of local government shall include participation of such government
in the government of the state as respects the following matters, namely;
a) the provision and maintenance of primary, adult and vocational education.
b) the development of agriculture and natural resources, other than
exploitation of minerals;
c) the provision and maintenance of health services;
d) the maintenance of order and good government within the areas of its
authority; and
e) such other functions as may be conferred upon a local government by the
house of Assembly of the state.
52 (1) In the exercise of the functions conferred under this law, a local government
may either by its own employee, or by duly appointed agents or otherwise,
do all such things as are necessary or desirable for the discharge of all such
functions.
(2) Any function conferred upon a local government by or under this law shall
be exercisable in respect of all persons within the area of authority save as
is otherwise expressly provided in this law or any other enactment.
53 Subject to the provision of this or any other law or enactment, every local
government shall have power to engage in any form of trade, commerce or
industry.
54 Subject to this law or any other enactment, every local government shall be
responsible for and have power to make by-laws for all or any of the following
matters, that is –
(a) health centers, maternity centers, dispensaries and health clinics, ambulance
services, leprosy clinics and preventive health services;
(b) meat inspection and abattoirs;
19
(c) nursery, primary and adult education;
(d) information and public enlightenment;
(e) provision of scholarships and bursaries;
(f) provision of public libraries and reading rooms;
(g) agriculture and animal health extension services and veterinary clinics;
(h) rural and semi urban water supplies;
(i) fire services;
(j) provision of roads (other than trunk roads) their lightening and drainage;
(k) support for arts and culture;
(l) control of pollutions;
(m) control of beggars, or prostitution and repatriation of destitute;
(n) provision of home for destitute, the infirm and orphans;
(o) provision of public utilities including roads and water transport;
(p) public housing programmes;
(q) regulation and control of buildings;
(r) town and country planning;
(s) operation of commercial undertakings;
(t) control of traffic and parking;
(u) pipe sewage system;
(v) rural electrification.
From the above we can see the enormous powers and responsibilities of local
government.
The productive capacity of any nation can be determine by the quantity and quality
of her work force. And enduring development is always a home-made development though
it may be imported but it must be modified to suit the local demand. The local government
serves as the actual centre of development because when the people are developed, the
nation is developed. There have been many literature on leadership and staff productivity,
20
we are going to be concerned with those that relate; Leadership, Leadership Style, its
function and Staff productivity.
2.1.7 Co-ordination between Leadership and Staff Productivity Improvement
Writing further on the impact of politics on the productivity of staff of local
government, Obasi (2002) postulated on the need to resolve the dichotomy between
political officials and staff in the public service. He argued that their roles and functions
should be separated despite the fact that they are so inter-twined. Proponent of the
separation of roles and function or non-interference includes Woodrow Wilson, John
Pfiffner, Frank Goodnow, and E.E. Willoughby. Pfiffner (2007). They asserts that
administration lies outside the proper sphere of politics and as such administrative
questions are not political questions. He based his logic on the evil influence of partisan
politics. Obasi (2002) stated further that it will give administrators and staff the liberty to
bring their professional judgement and technical competence into the implementation
processes of already formulated policies. Further more political office holder who
constitutionally are higher than career office holder will bring in partisan political
judgement which may work against the overall interest of the goals and aspiration of the
local government and staff. This if allowed would reduce productivity of staff.
The opponents of separation according to Obasi (1992) includes Adebayo,
Friedrich, Dimock, etc. Adebayo (1981) postulates that political office holders do not make
policies alone, but allows tangible input from administration; therefore administrator
cannot avoid policy-making responsibility. Obasi (2002) stated that the interaction of
politics and administration in a healthy manner would improve the quality of
21
policymaking, policy implementation, administration and increase productivity. Adebayo
(1981) asserts that political office holders who are not well informed in certain matters of
importance in administration and personnel management are the ones who make policies
that have to be implemented by the public sector staff, this often lead to policies that will
be impractical to implement. This also causes dissatisfaction among the staff, damping
their productivity flares.
Moluokwu (1993) writing on human relation and productivity asserts that people
perform better when they are treated better and recognized but revolts when neglected by
the leadership or management of their firm or organization. According to him, one of the
proponent of human relation includes Elton Mayo, Dickson, Zybotha etc. From their
popular Hawthornes Experiment at the Western Electric Company in Chicago, USA, Mayo
and others were able to prove that productivity will increase when leadership not only
gives staff money, but also give them a sense of belonging. From this experiment, it was
concluded that human element had a greater impact in productivity increase or decrease.
It is the responsibility of leadership to develop a good human relation. In Nigeria,
leadership is lacking in the personal need of staff, they feel that their relationship with staff
ends only on work which the staff must accomplish. Writing on leaders developing cordial
relationship with staff, Abah (1997:238) asserts that staff condition of service like salaries,
tenure of office medicare, leaves, retirement and pension benefits etc are to be taken
cognizance of, if management does not consider these, productivity might be low.
22
2.18 Summary of Literature Review
From scholars view, the general view is that there is a strong relationship between
leadership and staff productivity. It is also agreed that leadership style to a large extent
affects staff productivity negatively or positively. Leadership determines the function and
roles of staff. The local government or any other subservient agents or tiers of government
is subject to the actions and reactions of its creating instrument. Therefore productivity is
determined by the actions of the creating instruments of the organization a staff worked
for.
2.2 METHOD OF STUDY
To achieve the objective of this study, the researcher employed the following
approaches.
2.2.1 Research Design
The researcher will employ observation and “historical, descriptive” approach.
Nwobodo (2008:36) asserts that historical approach deals with the determination,
evaluation and explanation of past events essentially for the purpose of gaining a better and
clearer understanding of present and making a more reliable prediction of future.
Descriptive approach is that which specifies the nature of a given phenomena (Osuala,
1993).
2.2.2 Sources of Data
Data were collected using both primary and secondary sources. In the application
of the primary source, the researcher made use of questionnaires, which were distributed to
randomly selected staff from six departments of Enugu North Local Government Area.
Interview method was also adopted as also one of the primary sources of data. Secondary
23
sources used include textbooks, journals, newspapers, articles, newspapers, government
documents and information from internet.
Owing to the fact that the research topic is both practical and theoretical in outlook,
the need for both sources could not be overemphasized.
Reasons for adopting both sources
Secondary Sources
(1) It provides with already existing data which in many occasions pass through
peer reviews and subsequently can be best on the issues of reliability and
validity.
(2) Because of the nature of the study especially the fact that it deals with a large
scope of empirical content it is difficult to scale the study to such a method as
survey searcher only.
(3) There seem to be a high degree of reliability of data published about the issues
that is being researched upon here. Even when doubts about empirical content
arise there are numerous sources offered by content analysis and analysis of
existing data.
(4) Even when content analysis and analysis of existing data are used the researcher
often tries to employ data that are generated from other methods as a form of
suffocation.
(5) Cost of Research. The method employed appears to be the cheapest and most
easily available data collection technique because the research is not being
funded by any organization. It has to be necessary to depend on a method which
also is equally reliable.
24
Primary Sources
(a) The use of primary sources in data collection aids in getting a clearer view of the
mind of study group.
(b) Though, it is expensive to adopt, but it aids faster in gathering of information/data
collection.
(c) The research topic appears practical, therefore the use of primary sources is very
necessary.
2.2.3 Population of the Study
The population of this study was made up of some staff in Enugu North Local
Government Area from the six (6) departments of the Local Government. The staff
strength of Enugu North Local Government Area stood as at 2008 at five thousand (5,000).
The staff strength of each department stood at:
Personnel Department – 2,000; Finance Department – 400; Education Department – 1,300;
Agriculture Department – 900; and Health Department – 400.
2.2.4 Sample and Sampling Techniques
From the total number of departments, which are six, staff were selected at random
from each of the department. Thus, the total sample for the study was one thousand (1,000)
staff.
2.3 HYPOTHESIS
The study is design to test the following hypothesis
1. The leadership style in Enugu North Local Government determines the
improvement of the staff productivity.
25
2. Improvement of staff productivity depends to a large extent on the level of
quality and quantity of services rendered by the leadership of Enugu North
Local Government.
3. The productivity level of staff of Enugu North Local Government needs to be
improved.
4. Impediments arise which hinder the productivity level of staff in Enugu North
Local Government Area.
5. Suggestions are proffered towards improving staff productivity in Enugu North
Local Government Area.
2.4 THEORETICAL FRAMEWORK
We shall adopt contingency theory as our theoretical framework for the study.
Udenta (2007:106) sees contingency theory as the ultimate management theory. It
involves using the idea that makes things happen. Abah (1997:66-67) asserts that there
cannot be a management theory that will suit every area, circumstances and situations,
therefore, administration behaviour is contingent upon the environmental variables. It is
pragmatic, utilizing what is available to actualize what is desirable.
Aniemeka (1999:161) perceived it as a situational approach to management. It is
situation that determines the actions and reaction of leaders and staff respectively. Person
(1928) opined that it is situation that plays a large part in determining leadership qualities
of a leader at a particular point in time. He further asserts that the qualities of an individual,
which a particular situation may determine as leadership qualities, are themselves a
product of a succession of prior leadership situations which have developed and moulded
him.
26
Okeke (2002:209) stated that different situations require different leadership
behaviour, therefore the contingency theory try to describe the circumstances in which the
various leadership styles are effective. The contingency theory includes Reddin’s 3-D
Grid, Fielder’s Leadership Contingency Model and House;s Path Goal Model Approach.
Fielder (2007) asserts that leadership does not reside in a person but is a function of
occasion. He maintained that the effectiveness of any type of behaviour exhibited by the
leader is contingent upon the demand imposed by the situation.
As such contingency theory like rational comprehensive approach is the most
handy and analytical instrument in this study.
2.5 CLASSIFICATION OF KEY CONCEPTS:
1. Leader: someone who acts as a guide; a directing head or chief e.g. of a
political party, moving troops, animals etc; someone or something that holds first
place.
2. Leadership: the position of a leader; the quality displayed by a leader; the act of
leading or an instance of this.
3. Productivity: ability to produce; productive yield.
4. Improvement: an improving or being improved; an instance of this, which
increases its economic value.
5. Public Sector: this is division of parastal or organization owned and managed by
the government for the interest of the public or citizenry.
27
6. Government: a group of people who come together to administer and manage the
affairs of the state, in practice of a particular system of government, under the
support of citizens in a legitimate way and being sovereign.
28
CHAPTER THREE
3.1 EVOLUTION AND ADMINISTRATION OF LOCAL GOVERNMENT IN
NIGERIA
3.1.1 Evolution Of Local Government In Nigeria
World over and since antiquity, there existed one form or another of local
administration. Government at the grass root remains the heritage of principalities,
empires, states and governments. In pre-colonial Africa, the Igbos in Eastern Nigeria
through the council of elders appoint group of elders to administer local matters as pertain
to their clan. Despite the fact that there is no centralized system of leadership in Igbo Land,
there existed the town structure where you have villages, sub villages, clan, brethren, down
to the families. The villages take care of local matters at the dictates of the town which
controls it. Ifeka (1971)
The Oyo Empire constitutes the forest states of the present Western Nigeria, it
came into prominence in the 15th
Century. There were provinces and chiefdom which serve
as local government, Ownubiko (1966). The Oba through the Alafin rule the local units,
and the Alafin install his viceroy or Ilari who ascertain that the provincial authority and
obligation of Alafin is being recognized and adhere to especially taxes, Udenta (2007).
The Hausa Fulani Dynasty in Northern Nigeria is being controlled by the Sarki.
The states of the Hausa Kingdom was divided into villages and district for purpose of local
administration. The administration of local district is left to the district head who is
appointed by the Sarki, Onwubiko (1966). Besides the Igbo, Oyo and Hausa-Fulani
kingdoms, there are Benin, Dahomey, Akan, etc states and kingdoms of Africa, Udenta
(2007).
29
The British administration created the geographical entity called Nigeria through
the amalgamation of the protectorate of Southern and Northern Nigeria together with the
colony of Lagos in 1914. The colonial government found an already existing mode of local
administration that suited their desire in the North especially those areas under the Sokoto
Caliphate, Obi (2001). They adopted this set up which is the forerunner of the indirect rule
system of local administration. The British extended their influence to Borno with the
support of Shehu of Borno whose influence extended to Northern Cameroon, Chad, Niger,
Sudan and Central African Republic.
In the Western Nigeria the British met a veritable empire of the Yoruba Kingdom,
whom they also ruled through the indirect rule system.
According to Obi (2001) in the Eastern part of Nigeria the British met few
paramount rulers or chiefs whose influence does not exceed their communities or towns.
They met a well-established gerontocratic administration. Confronted with this Staccato
System, the British resort to the enlistment of men of aplomb and respectability in their
alien perception of the people.
The British established the native authorities through whom they were able to lord
it over the entire country with connivance of the Emir, Chief and the Obas. The excesses of
the colonialist made some Nigerians to have contempt of their character. Despite this they
were unable to usurp them. Rather they directed their unobtrusive venom to the local
leadership. In response to the people recalcitrant, gibe and malevolence, the Emirs, Chiefs
and Obas became ruthless.
It will be argued that under this harsh condition that productivity will be extant but
yet the staff of the local authority was able to produce. Their energies was channeled
30
toward the products that their creating instrument demanded. For instance, the P.W.D
(Public Work Department) was able to construct roads that were properly cambered,
macadamized with adequate drainage system. Secondly they were able to build railways,
postal services, telegraph and telephone, etc.
With the above you will agree that colonial administration through the staff of local
administration had a form of productivity.
The period between Nigerian Independence in 1960 to 1975, there was no
remarkable improvement in leadership and productivity in Nigeria local government. It
was a period when local administrators just like their states and federal counterparts are
learning to stand on their feet. The period witnessed tremendous challenges for local
government administration. Just as the nation itself, each region attempts to solve their
local government problem considering its peculiarity. On the emergency of the state
system, when Nigeria moved from four regions to 12 states in 1976 during the General
Murtala Mohammed, the fortune of local government never changed for better.
According to Obi (2001) in the former Western Region, the local government
revenue fall drastically as a result of withdrawal of the financial autonomy given to local
government; Non-implementation of the replacement of lost revenue due to 1957 Tax Law
by the Federal Government. This therefore effects the management of local government at
that time. The West in 1970 experimented on the American type of city management.
In Lagos productivity with regard to revenue did not fair well despite the
appointment of local government inspectors. The inspector’s presence was expected to
provide the deference to defalcating local council worker but it could not increase
productivity.
31
In the Eastern Region the story was same the government rely on government fixed
grant and community tax. It was because of un-productivity of local government that led
Ukpabia Ajie Asika government to jettison the old form of local government
administration and embraces divisional administration system in 1970, after the civil war,
which was later, changed to community council.
In Northern Nigeria the story was the same only there was a process of
democratization of the system. Some native authority ordinances were promulgated in the
region leading to district and town councils with councilors.
This was the scenario in the local government, that led to the 1976 reforms.
The 1976 reform came and revolutionalises the structure of local government but
its nature, character and function were retained. It was distinct for the following reason:
Population: A population size was defined for a local government. It is between 300,000
to 800,000. In some special cases it can be less.
Identity: The reform gives the local government a new identity in the sense that it is no
longer an appendage of the state.
Democratic: It stipulates that councilor and representative of the people should be elected
and from the people and by the people of the areas.
Finance: A finance and general purpose committee was created. The local government
also acquired some financial autonomy.
Legislative Capacity: The council can make byelaws and make modifications to
customary laws
32
Autonomy: The local government formally becomes the third tier of government. It can
now make its own standing rules. It can employ staff exclusively for local
government services.
Accountability: The retention of local government service commission or the service
board help for accountability and probity.
Defined Boundary: There was clear-cut boundary between one local government and
another.
Joint Board: The local government was empowered to have a joint board involving two or
more local governments to undertake a business venture or projects beneficial to
them.
Functions: There were well-defined functions of local government, either exclusive or
concurrent functions.
The 1976 local government reform was watershed in the evolution of local
government administration in Nigeria. It gave the local government so much power and
responsibilities. This also indicates more complex demand from its creating instrument. It
also indicates greater efficiency and increase productivity.
Change is the only thing that is constant, the local government will continue to be
reformed to suit the realities of every epoch. There have been numerous committees and
innovations in the local government administration especially with regard to the
constitutionality or legality of local government. Due to the gain of 1976 reform, the
Federal government through the legislative assembly deems it fit to legitimize the local
government. This was done, by incorporating it in the 1979 constitution of Federal
Republic of Nigeria.
33
The constitution of Federal Republic of Nigeria 1979 Section 7(1) states inter alia:
there shall be a system of local government by democratically elected local government
council;
Section 7 subsection 6(a) states that
(a) the National Assembly shall make provision for statutory allocation of public
revenue to all government council in the federation and,
(b) the House of Assembly, of a states shall make provision for statutory allocation
of public revenue to local government councils within the state.
Despite the gain of 1976 reform and the provision of the 1979 constitution, its
applicability proved that it has inherent flaw in itself. Some of the flaws include:
(a) The 1976 edit which empowered the military governor to cause an inquiry in
any local government at any time and place as he pleases.
(b) The military governor is also empowered to appoint anybody to do the inquiry.
(c) Where council was unable to hold the required number of meeting or the
governor deems it that they are not performing, the governor has the power to:
i. suspend the council
ii. appoint a management committee for the council
iii. declare the seat of chairman and council members vacant
iv. allow management committee to serve as long as necessary
v. dissolve the council
vi. instruct inspectors to inspect account of council
2. The 10% from federation account most often never get the local government but
got stuck at the state treasury.
34
3. The 1979 constitution empowered the state to create more local government. This
was politically abused, only states and areas where the ruling party controlled
benefited. This brings the number of local government in Nigeria from 301 – 401.
4. Between 1979 – 1983 state governor was empowered to appoint councilors and
supervisors.
With this cumbersome situation the aim and goal of the 1976 reform and 1979
Constitution was defeated, precipitating to a search for a better and more productive local
government system.
The 1987 Ibrahim Dasuki Local Government Reform had this as some of its seven
term of reference:
1. To examine the existing structures, functions and financial resources available to
local government for performance of those functions.
2. To look into the account and management (staff) problems of local governments
including the standardization of the various departments of the council.
3. To work out human resource development scheme for all cadres of local
government staff. These three directly relates to staff productivity. Bearing this in
mind, the federal government accepted this recommendation of the committee out
of the four recommendations.
i. State should stop encroaching on the function of local government
ii. The approval of scheme of service for all staff of council in accordance
with Ezekiel Oyeyibo Committee recommendation of 1988.
iii. Issuance of Implementation Guideline of Civil Service Reform in the
Local Government.
35
This received constitutional backing as it was enshrined in the un-operated 1989
Constitution, the Fourth Schedule, (Part 1) and Decree No. 10 of April 1989, No. 23 of 30
June 1991 and No. 15 of 17 May 1991 (The Local Government Basic Constitutional and
Transition Provisions).
3.1.2 Administration Of Local Government In Nigeria
According to Udenta (2007), the 1976 Local Government Reforms was sequel to
the single tier multipurpose platform. This has been sustained ever with same
administrative structure despite the national constant political instability. In 1988, Decree
No. 43 on Civil Service Reforms was a reaction to the moribund and comatose
performance of the civil service and the quest for improved productivity. The
implementation guideline on the application of civil service reforms in the Local
Government Services was brought about in the set up of local government administration.
The guide line in Section II subsection 1 – 14 provided:
(a) One department of personnel
(b) One department of finance, supplies, planning, research, and statistics
(c) Not more than four operation departments of
i. Education
ii. Medical and Health
iii. Agric and Natural Resources
iv. Works, Housing, Land and Survey
Section II (2) provides that: No local government is allowed to have more than six
departments in all. Therefore any expansion in the local government shall be
36
accommodated through the sub divisions below the level of departments provided that, in
each case of span of control does not exceed six.
Section II (6) provides that: Administration officers currently in general
administration shall now specialize in one area of management, which will enhance their
deployability into any of the two common management departments of the local
government.
Section II (8) provides that: Every local government employee who satisfies the
laid down criteria for advancement can rise to the top most post in the local government
service. Mobility within the unified local government service shall be subject only to
requisite qualification, training, experience, good report and vacancy. A lot have changed,
from 1988 to 2009; there was a five-department policy,
1. Personnel Management (Administration)
2. Health
3. Finance
4. Agriculture /Natural Resources
5. Work and Housing
There is also the merger in 1988 and later separation in 1999 of the office of the
Secretary to the Local Government and the Head of the Personnel Management.
According to Okoli (2000), with effect from 12th
April 1999, the office of the
secretary to the local government area and head of personnel management were separated.
The function of the offices were clearly spelt out by the Presidency in its letter No.
MS/MSLG/LG/136/T/7 of 12th
April 1999, which in addition, outlined the criteria for
appointment of secretary to the local government as follows:
37
The appointment of the secretary to the Local Government should be made by the
Local Government Service Commission from the most suitable senior career officers in the
local government service in accordance with Section 15 of the operational guideline for
local government council and should be strictly based on merit, seniority, competence and
experience.
Table 3.1: Organizational Structure of a Local Government
Chairman Legislature
Vice Chairman Supervisors Secretary Clerk of Council
Councillors
H P M/ Treasurer
Staff
HOD Finance & HOD Education HOD Agric HOD Works/ HOD Health
Staff Staff staff Housing Staff Staff
Internal Legal Information HOD
Audit Unit Unit Research &
Statistics
38
3.2 THE EMERGENCE AND ADMINISTRATION OF ENUGU NORTH LOCAL
GOVERNMENT AREA
3.2.1 The Emergency Of Enugu North Local Government Area
Enugu North Local Government Area was created out of the existing old Enugu
Local Government Area of Enugu State in 1976 under the presidency of the then military
head of state General Olusegun Obasanjo with its headquarters at Enugu. Enugu North
Local Government Area is one of the 17 Local Government Areas of Enugu State. It has a
chairman as the man in charge of the local government. It was established to bring
government and the programs of the state and the federal closer to the people of the rural
and urban areas.
Enugu State of Nigeria Law 2000, No. 1, First Schedule, Section 3 states that
Enugu North is comprises of :
Enugu Urban – Asata, Ogui, Ogbete, GRA, Ogui New Layout, New Haven,
Indepedence Layout, Udi Siding, Iva Valley and and China Town; Ogui Nike.
Under the administration of Dr. Chimaroke O. Nnamani, Governor Enugu State
between 1999 – 2007, Development Areas were created and Enugu North was sub divided
into two Developmental Areas.
1. Enugu North Development Area, headquarter Enugu Urban Council. Its
comprise of Umunevo Ogui Nike, Onu asata, Ogui New Layout, Ogbete 1 & 2,
Iva Valley, Udi Siding and;
2. Enugu Central Development Area Headquarter Agu Owo. It is comprised of
Independence Layout, Ogui Nike, China Town, Asata Ward, GRA 1 & 2, New
Haven, Right of Presidential Road up to junction of O’Connor Street/Ogui
39
Road taking left turn passing subway/Station roads cutting across Okpara
Avenue to the junction with Colliery Avenue through Old House of Assembly
to Old Onitsha Road to the foot of Miliken Hill.
3.2.2 Administration Of Enugu North Local Government Area
The administration of Enugu North Local Government like any other local
government in Nigeria is the same in structure. Sequel to 1976 Local Government
reforms the single tier multi-purpose platform or regime was introduced. It has been
maintained with same organizational /political and administrative structure not
withstanding the government in power, be it military, democratic or transitional.
The 1988 Decree No. 43 on Civil Service Reforms was simply a reaction of
government towards the unproductive status of local government. The decree attempt
to chart a new course by professionalizing the administration of local government. It
attempts to give a definite role or separation of power between the political and
administrative personnel of the local government. In Enugu North Local Government
Area, the following is its administrative structure. We shall start with the political
structure.
Chairman
1. The Chairman is the Chief Executive, accounting and security officer. His role as
accounting officer excludes signing of payment vouchers and cheques.
2. He observes and comply fully with checks and balances in the existing guidelines
and financial regulation governing receipts and disbursement of public fund and
other assets entrusted to his care and is viable to any breach thereof.
3. His accountability does not cease after leaving office
40
4. He shall face periodic check in adherence to finance control and management act
1958 and all its amendments. To this ends,
(a) All instructions relating to expenditure of funds shall be in writing.
(b) He shall account to the public account committee or any other bodies
created for such purpose for all monies voted for each departments
(c) He shall render annual report of the council to ensure accountability and
enforce performance ethics.
(d) He is bound by any rules, regulations, guidelines, edicts, laws,
governing the rules and functions of the office of the chairman.
(e) All references to the secretary as Accounting Officer in the financial
regulations and the financial regulations, guidelines, edit or law shall be
constructed as reference to the chairman.
(f) All correspondence flowing to or from the local government shall be in
the name of the chairman provided that the chairman shall delegate the
processing of such correspondence to the secretary. No correspondence
shall be left unprocessed merely on the account of the absence of the
chairman whose attention must be drawn to any correspondence
received in his absence as soon as he returns to office.
5. He appoints the supervisors, some members of committees, secretary to the local
government and personal assistance.
6. The chairman together with supervisors and secretary to the Local Government
constitute the executive arm of the local government. They formulate and execute
policies.
41
7. It is incumbent upon the chairman to monthly render account of the activities of the
local government to the legislatures.
8. The chairman shall while leaving office write a comprehensive hand over for his
successors.
DELEGATION OF POWER
The Chairman delegates substantial parts of his administrative and financial
functions and authority to the deputy chairman, supervisor and the secretary to the local
government who were all fully involved in the key decision making processes.
Deputy Chairman
The deputy chairman acts for the chairman in his absence. He is also a councilor
with the capacity to carry out his duties and functions.
Supervisors
The supervisors are closely and intimately involved in the management of their
respective departments, by performing the functions assigned to them as stated in 1976
Guideline paragraph 30 for local government reform, namely:
i. Political Head of State of their respective departments and he attends local
government meetings when invited to explain to council the conduct of his
affairs to which he has responsibility, when those affairs are discussed.
ii. Giving directives to the executive head of the local government departments on
the general policy issues only, but not in the internal management of the
department.
42
iii. Assisting the chairman on the supervision of local government projects
executed within their respective departments.
iv. Chairman of relevant committees in their departments like (education, works,
health, etc)
v. Carry out such other functions as the chairman or the council may assign to
them from time to time.
Secretary To Local Government
1. He is the secretary to the executive arm of the local government.
2. He interacts with the councilors through correspondence.
3. He liaises with the secretary to the state government
4. He is a signatory to the cheques and payment vouchers
5. He ensures that all instructions to the expenditure of public fund by the chairman
are in writing and that the chairman is made to understand that he is ultimately
responsible for accounting to the public accounts committees for all monies voted
for the local government.
6. He ensures that the collectors of revenues shall account for them and render returns
to him in accordance with local government financial memoranda.
7. He performs the duties as secretary and chief administrative advisor to the local
government and to the finance and general purpose committee.
8. He performs such other duties as may be assign to him by the chairman or council.
43
THE ADMINISTRATIVE/CAREER STRUCTURE
Local Government Treasurer
The Approved Scheme of Civil Service for local government employee and other
functions page 299 assigned the following functions to the office of the treasurer to the
local government.
i. The treasurer shall perform the duties of financial adviser to the local
government.
ii. He has the responsibility for the administrative control of the finance
department of the local government.
iii. He performs the duties as Chief Account Officer of the receipt and payments of
local government.
iv. He ensures that ht accounting system as had in the finance memoranda is
complied with by all departments of the local government.
v. He is responsible for budgetary control and supervising the accounts of all
departments of the local government.
vi. He prepares and publishes the monthly and annual financial statements of the
local government.
vii. Performs such related duties and functions as laid down in the financial
memoranda.
viii. He is a signatory to the local government payment vouchers and cheques.
ix. He performs such other functions that may be assigned to him by the chairman
or the council.
44
Head Personnel Management (HPM)
The head personnel department was until recently the secretary to the
legislature and the local government. He heads the junior staff management
committees. Together with the treasurer he signed all cheques, contracts,
agreements and local purchase orders, subject to the prior approval of the
approving authority. He performs such other duties as may be assigned to him by
the chairman or the council.
Head of Departments
The Head of Departments (H.O.Ds) are concerned with the internal management of
their different department in line with the lay down procedures, guidelines and or
constitutional provisions under the guidance of the supervisor assigned to the department.
They can also carry out any other duty assigned to them by the chairman, council or
supervisor.
45
A Model of Enugu North Local Government Organogram
Table 3.2: The Political and Administrative Structure of Enugu North Local
Government Area.
Chairman Councillors
Supervisors V. Chairman Secretary
H.P.M Treasurer
(H. O. Ds)
Political =
Non Political =___________
3.3 STRUCTURE AND LEADERSHIP STYLE OF ENUGU NORTH LOCAL
GOVERNMENT
In the local government system, there exist two structures, the political and the
administrative structure. We should bear in mind that the local government is subservient
to its creating instrument. Therefore, we are here concerned with the political structure. It
is the political structure that determines the leadership style, its nature, functions and
character.
According to Udenta (1999:5-9), the political system is that set of interactions
having to do with the Estonian Authoritative allocation of values. Fredrick (1978) assets
46
that public policies are the output of political system therefore the political structure is
concerned with policies and decision making.
Policies are broad and dynamic guidelines which directs leadership and define the
access in which their decisions and actions can be taken. It is purposefully goal oriented
action by government official or leadership which is authoritative, legal and binding with
coercive qualities.
3.3.1 Structure of ENLGA
Enugu North Local Government Area in the evolution of its existence has had the
course to enjoy the following political structures:
1. Presidential Structure
The presidential structure of local government administration existed in Enugu
North Local Government Area. This involves the application of democratic principles
using presidentialism as a yard stick. In this structure, the chairman /person or Mayor as he
or she may be called, takes the praise or responsibility of the success or failure of the
administration. The structure provide a framework for support and stability through the
administrative maestros of the executive chairman.
The chairman is elected for a specified tenure. The election of the chief executive
enables him to enjoy the mandate of the people, their power, authority and legality to serve
them unmolested. The existence of a legislature and judiciary and separation of power
helps stabilizes the structure. This also tend to reinforce the legitimacy of the
administration thereby creating an enabling environment for increase in productivity
through check and balances, accountability, probity and transparency.
47
2. The Transitional/Transitory/Interim Structures.
Under this structure we have the sole administrator model, the Management
committee model and the Caretaker Committee Model.
a. The Sole Administrator Model
The sole administrator model involves a corruption of the French Prefectorial Local
Government Structural System. This lacks the democratic base. Ocheoha (1991) opined
that with the inception of the military regime in Nigeria after the demise of the second
republic, sole administrators were appointed to manage the affairs of local governments,
solely, with no elected councilors or appointed councilors to advice or assist them. They
were mostly senior and experienced civil servants on or above salary grade 12 and were
drawn mainly from the administrative cadre of the State Civil Service. In the case of Enugu
North Local Government, the sole administrator model were in practice.
b. The Management Committee Model
This is a corrupt version of the American Commission Structure. But in case of
Nigeria, with large population, expanse of land and without the democratic base, it is more
of expediency that the chairmen are chosen. Ocheoha (1991) stated that in such innovative
experiment occurred under the military administration. The management committee is
made up of four (4) appointed councilors from the local government. It is of note that
during the appointment that the state governor or military governor as the case may be
must take cognizance of the geopolitical, socio-cultural and the constituent of the people
and see that they are represented.
This type of arrangement existed in Enugu North Local Government Area.
48
c. The Caretaker Committee Model
The caretaker model is a temporal structure without much commitment. In this
model, four or more councilors were appointed in the local government as member of the
committee to run the affair of the local government under the chairmanship of a public
officer of the status of former sole administrator whose designation changed to chairman of
local government Caretaker Committee. Membership of the committee were full time, the
chairman were directed to assign offices and portfolios to the four members as if they were
supervisory councilors and to remunerate them as such. This model was practiced in
Enugu North Local Government Area.
3.3.2 Leadership Style
It is argued that the bane of Nigerian underdevelopment is bad leadership. Because
of the aforementioned argument, we intend to find out the extent of its validity. From the
literature review, most writers are of the opinion that leadership have a lot of influence
over fellowership. It is also believed that productivity is dependent upon the type or style
of leadership. That is to say that in some style of leadership productivity may be high, low,
constant or unstable. Aniemeka (1999:161) identified six styles of leadership which she
listed as follows:
1. Authoritative style or the Dominator
2. Persuasive style or Crowd Arouser
3. Democratic Style or Group Developer
4. Intellectual style or the Eminent man
5. Effective style or Administrator
6. Representative style or Spokesman
49
She went further to state that only two styles of leadership were predominant today
and they are :
1. The Authoritative style or task oriented or structured and
2. The Democratic style or person oriented or considerate
Okeke (2002:302) writing on leadership style identified the following as leadership
styles.
Democratic Style:
In democratic style, decision making resides with the group. Subordinates
participate in decision that affects them but are not allowed to behave as they like. It is
claimed that in democratic style, there is more effectiveness in getting high performance
because it achieves personal commitment to decisions made collectively and encourages
individual creativity.
Autocratic Style:
In autocratic style of leadership, decision making resides with the leader and is
based on the goals he intends to achieve.
Laissezfaire Style
The laissez-faire or abdicractic style of leadership is concerned with a situation
where decision is concerned with a situation where decision making does not lie on the
leader nor followers but anybody is free to do what he likes so far as it is geared toward the
attainment of organizational goal. The problem of this type of leadership is that it can only
exist in an advanced communistic organization and society where production, distribution
and exchange has reached its apex so that there is no need for further production.
50
O’shaughnessy (1976) contends that the two styles mentioned looks different but
that the core values in leadership amongst them are the same. He averred that democratic
and autocratic styles of leadership are related since the leader in both styles does not
encourage participation and even applies pressure in order to increase productivity.
TRANSACTIONAL STYLE
This leads to the search for a leadership style that will balance the equation between
autocratic and democratic styles of leadership. O’ shaughnessy observes that there exist an
admixture of the democratic and autocratic style which he called transactional leadership
style. Aniemeka (1999:162) in an attempt to conceptualize transactional leadership style
refers to it as independent leadership style. Newell (1978) define transactional leadership
as a process through which the task and human dimensions of an organization are
reconciled and integrated.
Katz and Kahn (1978) observed that the broad sharing of leadership functions
contribute to organizational efficiency. Ehikametalor (1982) asserts that leaders who are
seen to be high initiators are likely to make professional decisions that will be acceptable
to subordinates therefore transactional style of leadership if well applied will enhance task
performance and increase productivity of staff.
From the foregoings we observed that there is a strong relationship between the
political structure and styles of leadership especially their nature, function and output. We
have identified 2 types of political structures that existed in our case study area and the
type of government when they existed to include:
1. Presidential Structure - Democratic dispensation
2. Transitional Structure with its models
51
a. Sole Administrator – Military government or transitional and democratic
governments
b. Caretaker Committee – Psdue Democratic period/military government
c. The management Committee – Psdue democratic /transitional /military
government.
Therefore we can say that the presidential structure existed purely under democratic
government while the transitional structure is an aberration to democracy.
On the leadership style we observed that there is the tendency that the most
prominent style that have occurred in our research area includes and occurred as follows
with regards to the type of government in power.
1. Democratic Style: Democratic Government
2. Autocratic/Authoritative style – Military/Transitional/Psdue Democratic
regimes or Non- Democratic.
3. Transactional Style : This can operate in any form of government but the
system have not allowed it to function in the researched area. This is due to the
fact that the local government are subservient to its creating agency and it must
remain so to be able to function in the context of state or country. Though there
are few occasion due to contingencies where the leadership of the local
government find sets incumbent upon its self to be transactional to avoid non
creditability, illegitimacy, illegality and eventually consummation of its self due
to zero productivity.
52
Table 3.3 The number of years ENLG had been under each type of
government
Type of government operational in ENLG
Year No of Years Democratic Military Transitional
1976 - 1979 3 √
1979 – 1983 4 √
1983 – 1999 16 √
1999 – 2008 8 √
1999 – 2003 .5 √
2003 – 2008 .5 √
Total 32 12 19 1
Source: Field Study
Table 3.4 The relationship between type of government, leadership structure and
leadership style.
Type of government operational in ENLG
Leadership Structure/Style Democratic Military Transitional
Presidential Structure √ - -
Transitional Structure √ √ √
Autocratic Style - √ -
Democratic Style √ - -
Transactional Style √ √ √
Source: Field Study
53
From the foregoing, Enugu North Local Government have been a beneficiary of
presidential and transitional structures of leadership. She has had her own share of
Autocratic and Democratic styles of leadership. This was experienced under the
democratic, psdue democratic and military government which have governed her.
Therefore the leadership style operational in Enugu North Local Government is contingent
upon the type of political structure and government at that particular point in time.
The leadership style in Enugu North Local Government Area to a large extent
affected the relationship of staff and leadership especially with regards to productivity. The
nature and character of different leadership style and structure has been brought upon the
staff of the local government. Therefore the relationship of staff to leadership is also
contingent upon the type of leadership structure and style dictated by the type of
government at that particular point in time. The staff have not had it best because the local
government have been submerged under the pressure of military and transitional
administrations for over 60 percent of its existence. This was achieved by different
contraptions of undemocratic regime under democratic administration like the transitional
contraptions in the name of “models”.
54
Table 3.5 The leadership style operational in Enugu North Local Government
Type of government operational in ENLG
Leadership Structure/Style/
Type of government
Highest Higher High No
Presidential Structure - √ - -
Transitional Structure √ √ - -
Autocratic Style √ - - -
Democratic Style - √ - -
Transactional Style - - - √
Military government √
Democratic government - √ - -
Transitional government - - √ -
Source: Field Study
55
Table 3.6 Staff relation with the leadership style of Enugu North Local
Government
Staff Relation
Leadership Structure/Style/
Type of government
Very
High
High Low Very Low
Presidential Structure - √ - -
Transitional Structure - - - √
Autocratic Style - √ - -
Democratic Style - - √ -
Transitional Style 0 0 0 0
Military government - √ - -
Democratic government - - √ -
Transitional government - - - √
Note: O = non availability of data
56
3.4 FINANCE AND PERSONNEL MANAGEMENT IN ENUGU NORTH
LOCAL GOVERNMENT AREA
To determine level of productivity in any organization we have to take into
cognizance that productivity does not occur in a vaccum. Productivity according to
Courbois and Temple (2006) refers to metric and measure of output from production
process, per unit of imput. Labour productivity according to Kurosawa (2006) is the
average product of labour, average output per worker or perworker-hour, an output which
could be measured in physical terms or in price term. We should also bear in mind the
difficulty, in the measurement of the qualitative aspect of labour productivity such as
creativity, innovation, improved quality of work and their effects on other areas in a local
government.
Productivity involves the management of personnel and finance resources of the
local government to achieve the functions, duties and challenges of a local government.
This can be measured by assessing different administration, performance of annual budgets
or by assessing different regimes to determine its productivity using the available human
and material resources against the actual output within the period, administration or
government being investigated. In doing this we should remember that productivity is
Total productivity = output quantity
Input quantity
then for productivity to said to have occurred either negatively or positively, there must be
change in relative price, of different input and output factors.
3.4.1 Financial Management For Productivity
57
Onewa (1991) asserts that financial management involves the use of the various
instruments of administration to achieve the optimum utilization of the limited resources of
the organization towards the attainment of its goals and objectives. In local government,
the instrument for achieving efficient financial management includes the annual and
supplementary budgets, budgetary control, internal audit, management audit and medium
term development and implementation strategies.
Nwabuzor (1991) opined that there is only two ways of which the performance of
local government or its productivity can be measured. The first is by the quality of services
they provide to the public. The second is their ability to raise sufficient revenue to pay their
staff and provide the services expected of them.
However if it is approached from the service oriented perspective or the ability to
meet financial obligation it would be all about fund without which there will be no services
nor quality. Miewald (1978) concur that if politics is the struggle for scarce resources, I
maintain there is hardly anything more scarce than public funds. Bureaucrats would tend to
agree that money is the lifeblood of government. Finance is the key and local government
is no exception.
3.4.2 Financial Administrative Structure
In relation to financial administration in local government, the following
functionaries play the following role, Nwankwo (2002).
The Chairman
The chairman is the chief executive and accounting officer of the local government. He
does not sign cheques as reflected in the financial memoranda. His major financial duties
include:
58
1. Presiding over the meetings of the Financial And General Purpose Committee
(FGPC)
2. Submit the proceedings of FGPC to the Council
3. Ensure strict compliance with the financial memoranda (FM)
4. Subject to periodic checks to ensure full adherence to financial management
procedures in the areas of accounting to the Public Account Committee,
rendering of Annual Report of the Local Government and any other provisions
of any other rules and regulations.
5. Ensure that audit queries addresses to him are answered with the time limit
specified in the FM.
6. Establish and maintain Internal Audit Unit. Ensure that recommendations of
Internal Audit Unit are promptly considered and appropriate action taken.
7. Any direction given by the Council and the state of Financial Management or
any decision of the Auditor-General are promptly and properly implemented.
The Head of Personnel Management (HPM)
Head of Service – HOS
The Head of Service to the local government is the Chief Administrative Adviser to
the FGPC. He co-ordinates all the activities of the local government keeps proper records.
Specifically, his duties and responsibilities are as follows:
1. Ensure that police decisions taken by the FGPC and any other sub committee of
the local government are done with the knowledge of the financial
implications.
59
2. Should feed the FGPC with the necessary reports, information, returns and data
to enable the body discharge its functions sufficiently.
3. When necessary he could draw the attention of the chairman to issue of:
- waste and extravagance in the local government
- promoting cost consciousness and proper value for money.
- Amendment of or initiation of revenue bye-laws.
4. Perform any other duties assigned by the Chairman or FGPC.
Head of Department (HODs)
1. Ensure satisfactory overall control of the finance of their departments include
strict compliance to the FM.
2. Keep all accounting book, records, vouchers, cash and stone records making
them available for inspection by approved person.
3. Monthly reconciliation of departmental account with the treasury.
4. Queries to be dealt with promptly
5. Make available departmental financial information to approved person.
6. Recommending all commitments and liabilities sooner than they occurred.
Revenue Officers
1. They are accountable to the treasurer
2. They ensure the collection of revenue, accounting for this and render returns to
the treasurer.
Revenue Collectors
1. Keep and maintain such books of account and other records prescribed by the
FM and the treasurer which would facilitate their job of revenue collection.
60
2. Prompt collection of revenue and report of any default of payment from any
revenue source.
3. Issue receipt and record details of such receipt in the revenue collectors cash
book.
4. Keep revenue collected and revenue earning books in local government save.
5. Pay all revenue to the treasurer or bank as prescribed by the local government.
6. Subject his book for inspection by authorized person
7. Return unused material to source (Adejo and Ohiani 1998)
The Treasurer
As the Chief Accountant Officer, Head of Finance Department and Chief Financial
Advicer to the Local Government, the treasurer with the greatest number of responsibilities
in the day to day operation of the F.M in local government. As the Chief Financial Advicer
he also sit in the FGPC to provide advice concerning the financial implications of proposed
policies.
Specifically his other duties includes:
1. Facilitate the work of the Audit Alarm Committee
2. Budgetary control and supervision of departmental accounts.
3. Prepare and publishes monthly and annual financial statements
4. Signatory to cheques and vouchers
5. Make all officers understand that they are liable to all their financial
commitment.
6. Ensure that all transactions are in writing.
7. Keep all account and financial records
61
8. Ensure prompt collection of revenue, accurate record keeping of received and
disbursed fund and recovery of all advances.
9. Ensure proper authorization before payment check treasury cash books monthly
and prepare reconciliatory accounts
10. Check treasury cash books monthly and prepare reconciliatory accounts.
11. Ensure the save keeping all cash books and properties of the council that relate
to his office.
12. Check all necessary accounts monthly
13. Make all his documents available for inspection by the authorized persons.
14. Carry out any other duties assigned to him in the FM, the chairman, council or
other rules and regulation.
The following are source of revenue to local governments, that is, available to the
functionaries.
1. Internally generated revenue – This includes revenue from collection of rates, radio
and television licensing, cemeteries and burial ground, bicycle, truck, canoes,
wheel barrow and cards. It also includes slaughter houses, motor parks, public
conveniences, gardens, street naming, refuse disposal, registration of birth, health
and marriages.
Local government gets revenue internally from privately owned houses, tenement
rates, advertising, shops and kiosk, pet licencing, restaurant, bakeries, laundries,
liquor etc. FGN 1999 Constitution Section 7 (6a – b).
2. Externally Generated Revenue: This includes
1. Grants-In-Aids - a. Statutory Grants
62
b. Percentage Grants
c. Non Statutory Grants
d. Subsidies
2. Loan and Donor Fund
3.4.4 Personnel Management
Personnel management can be seen as that part of management function that deals
with the orderly way of hiring, placing and fitting people into organizational structure.
Flippo(1960) see personnel management as the planning, organizing, compensating,
integrating, maintaining and separation of human resources to the end that individual,
organization and societal objectives are accomplished.
3.4.5 Functions Of Personnel Management
The functions of personnel management includes
A. 1. Planning
2. Organizing
3 Directing
4. Controlling
These are secondary functions of personnel management
B. 1. Procurement
2. Training development
3. Compensation
4. Industrial Relation and Joint Consultation
5. Employee Welfare Integration
6. Maintenance
63
7. Separation
From the foregoing, we will now be able to measure the productivity level in
Enugu North Local Government based on:
1. The finance accruable to the local government
2. The quality and quantity of service rendered
We will be able to achieve these by taking cognizance of the role of staff and
leadership in the process of production. For without staff there will be nobody to generate
or manage the resources of the local government.
3.5 LEVEL OF PRODUCTIVITY IN ENLG
To measure staff productivity in Enugu North LGA, we have to determine sources
of the local government revenue and its statutory responsibilities. Secondly we have to
determine the income of each department of the local government and its ability to render.
Their statutory services under the two identified leadership styles. We have to use simple
percentages to determine the level of productivity in each style.
Table 3.3 shall guide us, in identifying the types of government operational in each
leadership style. From table 3:3 we observe that where we have democratic style of
leadership we will have democratic government and presidential structure of leadership.
While when we have autocratic style of leadership we will have military/non military
government and transitional structure of leadership. Therefore we have left with two types
of leadership style with its attendant types of government. That is democratic style for
Democratic government and Autocratic Style with military government /non military
government or various undemocratic transitional government in democratic dispensations.
3.5.1 Duties Of Enugu Local Government Area
64
1. Licencing of:
Bicycles, cart, liquor sales, radio,
Pets, television, trucks, canoes, communication installations, wheel barrow
2. Establishment, Construction, Control and Maintenance of;
building/housing planning; slaughter houses; motor park; health extension;
out door advertising; public housing; commercial undertakings; rural
electrification; market; public convenience; rural roads; street lighting;
drainage; garden; open spaces; sewage /refuse disposal. Also includes are,
health centers, maternity; dispensaries; ambulance services; information
enlightenment services; nursery, primary, adult education; libraries /reading
rooms; scholarship/bursaries; rural water supply; beggars, prostitutes
control/repatriation system.
3. Naming, numbering and registration of:
streets, houses;
death,
birth,
marriages.
3.5.2 Sources Of Fund ENLG
1. Internal Sources. This includes:
Collection of rates, levies, fine and fees for radio; tv; communication installations;
cemeteries & burial ground; bicycles, canoes, trucks, carts, wheel barrows, motor park,
public conveniences, slaughter houses; parks, garden; refuse disposal; registration of birth,
65
death, marriages; houses; shops; kiosk, act door advertising; pets; eating houses;
production sites; laundries; liquid licencing; waste and health services, business ventures.
2. External Source: This includes:
Statutory Allocations, loan, gift etc.
3.5.3 Duties And Sources Of Income For Departments In ENLG
1. Personnel Department
It is the duty of the personnel department to harness the activities of all staff in the
department and other departments to achieve stipulated goals.
2. Finance Department
It is the duty of the department to use its staff to keep records of all monies,
properties that come into the cofer of the local government and the financial disbursements
of the local government. They are the custodian of the local government finance.
3. Education:
They are concerned with all the educational responsibilities of the local government
like primary, adult and nursery education in the council. They have to remit every income
from the department to the finance department.
4. Agricultural Department
They are concerned with the execution of all agricultural related responsibilities
and the remission of any income thereof to the finance department.
5. Health Department
The department is responsible for all health related engagements of the local
government and the remittance of any revenue thereof to the finance department.
The following tables will show us the income accruable to the local government
area over the years and the expenditure incurred. Other tables will show the level of
66
satisfaction derivable from the quantity and quality of services rendered by the local
government to its inhabitants under different types of government administration.
QUALITY AND QUANTITY OF SERVICE RENDERED
TABLE 3.7 The number of responses from 1,000 staff; 500 males and 500 females
working in the various departments on the quality and quantity of
services rendered by the leadership of Enugu North Local Government
Area under the governments being reviewed.
Type of
Government
Total No for Quality Total Total No for Quality Total
High Low V/Low High Low V/Low
M F M F M F M F M F M F
DEMOCRACY 350 340 100 110 50 50 1000 350 340 100 110 50 50 1000
MILITARY 30 20 370 380 100 100 1000 30 20 370 380 100 100 1000
TRANSITIONAL 50 50 100 110 350 340 1000 50 50 100 110 350 340 1000
Source: Field Study
67
QUALITY AND QUANTITY OF SERVICE RENDERED IN PERCENTAGE
Table 3.8: The responses from 1,000 staff; 500 males and 500 females working in
the various departments in percentages on the quality and quantity of
services rendered by the leadership of Enugu North Local Government
Area under the regimes under review
GOVERNMENT
QUALITY IN % QUANTITY IN %
HIGH LOW V/LOW HIGH LOW V/LOW
TO
TA
L
M F M F M F M F M F M F
DEMOCRACY 70 68 20 22 10 10 70 68 20 22 10 10
TOTAL IN %
69
21
10
69
21
10
10
0%
MILITARY 6 4 74 76 20 20 6 4 74 76 20 20
TOTAL IN %
5
75
20
5
75
20
10
0%
TRANSITIONAL 10 10 20 22 70 68 10 10 20 22 70 68
TOTAL IN %
10
21
69
10
21
69
10
0%
Source: Field Study
68
TABLE 3.9 The responses of selected staff of ENLG over the quality and quantity
of service rendered by the leadership of Enugu North Local
Government under different types of government.
GOVERNMENT QUALITY AND QUANTITY OF SERVICE RENDERED
QUALITY QUANTITY
High Low V/Low High Low V/Low
Democratic √ √
Military √ √
Transitional √ √
Source: Field Study
69
TABLE 3.10 The income of departments in the year indicated against it in ENLG.
YEAR TYPE OF
GOVT
INCOME BY DEPARTMENTS IN BILLION ‘N
Personnel Finance Education Agric. Works/
Housing
Health TOTAL
1976-1979 Military 189M 63M 126M 189M 368M 315M 1.260B
1979-1983 Democratic 287M 95M 192M 287M 576M 479M 1.920B
1983-1999 Military 1.08B 360M 720M 1.08B 2.16B 1.80B 7.2B
1999-2008 Democratic 905M 335M 670M 905M 2.345B 1.675B 6.7B
1999-2003 Transitional 255M 85M 170M 255M 595M 425M 1.7B
2003-2008 Transitional 255M 85M 170M 255M 595M 425M 1.7B
Source: Finance Department, Enugu North Local Government Area
TABLE 3.11 The expenditure per department in the year shown against it in ENLG.
YEAR TYPE OF
GOVT
EXPENDITURE BY DEPARTMENTS IN MILLION ‘N
Personnel Finance Education Agric. Works/
Housing
Health TOTAL
1976-1979 Military 81M 54M 27M 54M 270M 54M 540M
1979-1983 Democratic 210M 140M 70M 140M 700M 40M 1.4B
1983-1999 Military 720M 480M 240M 480M 2.4B 480M 4.8B
1999-2008 Democratic 240M 160M 80M 160M 800M 160M 1.6B
1999-2003 Transitional 270,000 180,000 90,000 180,000 900,000 180,000 1.8M
2003-2008 Transitional 270,000 180,000 90,000 180,000 900,000 180,000 1.8M
Source: Finance Department, Enugu North Local Government Area
70
TABLE 3.12 The income of departments in ENLG in different regimes between
1976 - 2008
TYPE OF
GOVT
INCOME BY DEPARTMENTS IN MILLION ‘N
Personnel Finance Education Agric. Works/
Housing
Health TOTAL
Military 1.269b 423m 846m 1.269b 2.528b 2.115b 8.450b
Democratic 1.192b 430m 862m 1.192b 2.921b 2.154b 8.751b
Transition 1.020b 340m 680m 1.020b 2.380b 1.700b 7.140b
Total 24.341B
Source: Finance Department, Enugu North Local Government Area
TABLE 3.13 The expenditure of departments in ENLGA in different regimes
between 1976 – 2008
TYPE OF
GOVT
EXPENDITURE OF DEPARTMENTS IN MILLION ‘N
Personnel Finance Education Agric. Works/
Housing
Health TOTAL
Military 810M 531M 267M 534M 2.67B 5.34M 5.394B
Democratic 450M 300M 150M 300M 1.5B 300M 3B
Transition 1.09M 720,000 360,000 720,000 3.6M 720,000 7.2M
Total 15.594B
Source: Finance Department, Enugu North Local Government Area
71
TABLE 3.14 The income and expenditure of ENLG under democratic and
autocratic style of leadership between 1979 – 2008
STYLE OF
LEADERSHIP
Type of Government
Income Expenditure Income Expenditure
Military 8.751B 3B
Democratic 15.590B 5.4B
Source: Finance Department, Enugu North Local Government Area
72
3.6 IMPACT OF LEADERSHIP STYLE ON STAFF PRODUCTIVITY IN
ENLG.
To determine the impact of leadership on the productivity of staff of Enugu North
Local Government, we have to look at the leadership style, structure, type of government
and number of years the local government have spent under each type of government.
The income and expenditures of the local government will also give us an insight
on how much the local government earned and how much they expended. This will give an
insight over how much they were able to generate and how much services they were able
to render.
Since most staff may not agree on interview, we carried out a questionnaire of
about 20,000 adults in the local government to determine the level of satisfaction they
drive from the service delivery of the council under different types of government. This
also gives us an overview of the productivity level of the staff under different
governmental activities. After all it is the people that is the final arbiter of whether there is
increase or decrease in productivity of staff. Therefore a good relationship between the
leadership and staff will cause an increase in productivity and the opposite will render a
negative report.
Table 3.3, showed us that the local government spends a better part of her life
under military regime/transitional regimes. Figure 3.2, 3.4 and 3.5 corroborated the data in
table 3.3, therefore since military/transitional government produces autocratic leadership
style and transitional leadership structure and the local government spends more time
under military /transitional government we will say that the relationship between the staff
and leadership in the local government will not be amiable for productivity.
73
Table 3.10 and 3.12 show that income to the local government during the
military/transitional regime is more than the expense incurred then, that shows that there is
lapses in accountability for the balance showing a bad example to the staff. This will cause
the staff to be alienated from the leader whose ill-gotten wealth will make him to live a
flamboyant life style that will further alienate the staff.
Table 3.7, 3.8, and 3.9 clearly showed that the people are not satisfied with the
quality and quantity of service rendered during the period of military, transitional
government.
74
DemocracyGovt
Military Govt.
TransitionalGovt.
CHAPTER FOUR
4.1 DATA PRESENTATION AND ANALYSIS
For the actual understanding of whether we have been able to answer some of the
questions raised and still be able to make a positive contribution, we have to use the data
generated in the course of this work.
Table 3.3 showed the number of years the local government spent under different
type of government. From the table we observed that the local government have spent over
half of its life under military regime as can be seen below
Fig.1: Graph presentation (using pie chart) showing in percentages the years
ENLG spent under different regimes
Table 3:4 showed the relationship between types of government, leadership structure and
leadership style, while table 3:5 showed that there is a type of leadership style that have not
been experimented in the local government. From both table we can see that autocratic
59.3%
37.5%
3.2%
75
government occurred together with military government and transitional structure of
administration.
Table 3.5 showed that transactional style of administration have not been practiced
in the local government and table 3:4 show that the style can survive in any form or type of
government and administrative structure.
It could be deduced that because of many year of military and transitional
government and the absence of transactional style of leadership that the relationship of the
staff and leadership of the council will depict all the attributes of autocratic leadership and
undemocratic governance.
Table 3:7 show the level of staff satisfaction on the quality and quantity of services
rendered by the leadership of the local government as a measure of the relationship
between leadership style and staff productivity. Table 3:8 showed table 3:7 in percentages.
While table 3:9 was a summation of table 3:7 and 3:8 in relation to staff satisfaction of
services delivery. From the table 3.9 we can see that staff rated democracy high and the
rest low and very low. This indicates that the relationship between the staff and leadership
in Enugu North Local Government is low because they have had more period of military
/transitional government.
Table 3:10 and 3:11 showed the income and expenditure of the local government
while table 3:12 and 3:13 showed the income and expenditure by department under
different types of government.
Finally table 3:14 showed the income and expenditure of the government under
different style of administration. It could be observed that under autocratic regime despite
76
the income, the administration spent less than 30% of the income and could not account for
the remaining.
4.2 FINDINGS
The findings in this work showed that Enugu North Local Government spent half
of her life under autocratic style of leadership due to so many years of military and
transitional governments.
Secondly the leadership style in Enugu North Local Government just like any other
autocratic, military and transitional setting was very uncooperative with the staff. It is
business as usual. There is no accountability, probity, rule of law, the welfare of staff is not
there, and there is high level of corruption. In such situation the staff must be alienated
because they are not involved in the scheme of things.
Finally, the productivity level of staff of Enugu North Local Government was at its
lowest ebb. From the level of dissatisfaction of the people toward the quality and quantity
of service rendered by the leadership show that the level of productivity is low. Though in
recent time we have had democratic government which lead to an increase in satisfaction
but the 69 percent is not enough. What happen to the other 31 percent who are not satisfied
by the quality and quantity of services rendered by the leadership of Enugu North Local
Government. Due to this there is need for a better style that will care for the 31% that are
dissatisfied.
4.3 IMPLICATION OF FINDINGS FOR ADMINISTRATIVE EFFICIENCY
AND EFFECTIVENESS
The implication of finding is that any form of autocracy in administration will
weaken productivity, there is need for leadership of Enugu North Local Government to
77
maintain profitability should bear in mind that the staff used in the attainment of goal will
equally be well maintained.
Secondly leadership of Enugu North Local Government should bear in mind that
when staff are alienated due to the economic divide and flamboyancy of the leader, that the
staff productivity flare will be dampened.
Thirdly, leadership of Enugu North Local Government should bear in mind that if
there is persistent unaccountability there is the tendency that the staff will be corrupt
themselves thereby diminishing the output level needed by the local government.
Fourthly, attempts should be made to encourage transactional style of leadership by
educating leader on its applicability through talks, symposium, seminar etc.
78
CHAPTER FIVE
SUMMARY, CONCLUSION AND RECOMMENDATION
5.1 SUMMARY
Leadership is seen from various concepts; as its study began around 1900 and focus
on traits that distinguish great leaders from the masses. Such people are often individuals
who see beyond the narrow circumference of their own personnel needs into the wider
range of the needs of the fellow citizens. The leader of a work team is the supervisor,
foreman or manager, chairman or president as the case may be. An individual status is
based on the degree to which he contributes to the achievement of the groups goals and
objectives. In relation to the above assertion on leadership, the leadership in all
ramification needs to be adaptive and flexible because each situation is unique.
Leadership is a relative process in that for any leader to be successful (and likewise
for any section to produce effectively), he must recognize certain issues like expectations,
values and interpersonal skills of those with whom he is interacting. The leader must try as
much to deliver effectively, his services appreciatively in qualitative and quantitative
measure, so as to make the staff see him as being supportive of their efforts and of their
sense of personal worth.
Leadership should also be for group cohensiveness and motivation for staff
productivity improvement by providing freedom for responsible decision making and
exercise of initiative.
The evolution of the local government system in Nigeria have been tortuous. From
pre colonial history there exist some form of delegation of power from the upper strata of
society to the lower strata. Virtually all the three major tribes; Hausa, Igbo and Yoruba and
79
over 250 other tribes had their own share of a local administrative structure in the
semblance of modern local government system. Even at this crude state, the nature,
character and function of local government being a form of governance for the local people
at the bottom part of society remain the same.
On the eve of colonialism after the race to Nikki or the partition of Africa, the
British government which had the present geopolitical location called Nigeria as one of
their own share of Africa met an existing local administrative structure. These structures,
principalities, empires or powers includes the Oyo empire, Hausa-Fulani Dynasty, the Igbo
Principalities, Benin states and kingdoms etc.
The British government in order to avoid direct conflagration between them and the
local principalities and people in the process of their exploitation of the human and natural
resources of the people devices a system. This system of indirect rule device by the
colonialist was aimed at using the existing structure of administration to manage or
administer the areas under their influence. At the local government level they created the
Native Authority System through which they were able to administer the local people by
the use of the local people under the prevalence local administrative system with major or
minor modification as the case may be.
On 1st October 1960 when Nigeria gained their political independence, she
inherited the West Minister System of local government administration in a three Regional
Government in a federal state. The regional governments were running local governments
in their regions independent of each other. This brought about different types of local
government administration being experiment in those region at that time. During the 12
80
state structure, the dissolution of the regional system, the feature of local government
remain the same.
It was in 1976 that the then Federal Military Government of Nigeria finds it
incumbent upon itself to restructure the local government system and rightfully accord it
its third tier status in the Federal Republic of Nigeria three-tier structure. 1976 reform gave
birth to the Unification of the Local Government Structure and Administration. By this all
the local government in Nigeria now have the same status, political and administrative
structure, powers, responsibilities and all these was done with constitutional backings.
There have been so many other reforms, research, promulgation, decrees, statutory
pronouncement and declaration on local government since 1976 till date. All these was
brought about by the observance of non performance or low productivity by the local
government. Ever since 1976 federal, state, local government its self and stake holders in
local government have been on the search for a way to improve productivity in the local
government.
Enugu North Local Government is no exception she have been a beneficiary of
virtually all the reforms and innovations. The leadership of the local government have been
doing its best since inception to improve their lot in area of staff productivity. As the case
may be, the burden of local government administration, her responsibilities and the peoples
expectation is becoming more complex than ever. In this regard the search for the best
approach to staff productivity must continue. Though we know that the task ahead is
becoming more difficult due to the recent global economic meltdown since we cannot talk
of productivity without finance and personnel we are not going to rest our oar till “Victoria
Aserte”.
81
5.2 CONCLUSION
Nigeria is a great country, with the abundant availability of human and natural
resource, she stands the chance of making a grand stride in the comity of nations. It is true
that leadership has been the bane of development in Nigeria, but with the crop of leaders
we have today under the able control of the president, there is every hope that the
productive status of every facet of Nigeria life will improve. Unlike in the past, today we
have agencies like EFCC, ICPC, with visionary leader who is ready to show corrupt leader
the door.
At the local government level, the present government in Enugu state has made it
clear that it is no longer business as usual. Any chairman/person who is not ready to
produce with active participation of his staff and the good people of the local government
will not enjoy the protection of the state government.
We should also bear in mind that some of these may not work automatically due to
the institutional, infrastructural and psychological decay caused by years of misrule,
mismanagement and mal-administration. We believe that if the council leadership, private
and public leaderships will adhere and consider the recommendations that will be made,
the council and the whole nation, private and public will change for good.
5.3 RECOMMENDATION
Though the search on the best way to improve the productivity capacities of Enugu
North Local Government Area continues, the researcher recommends two approaches.
One involves the increase in internal revenue generation and the second one
includes the enhancement of the conditions of services of staff on whom the responsibility
of internal revenue generation and quality services rested.
82
Some other recommendations include:
a. Need for automation and computerization of works being done by the
staff which reduces works to be done.
b. Application of transactional style of leadership because of the quality
and quantity of benefit accruable from it despite its challenges.
c. Increase in condition of service like remuneration, involvement in
decision making, conducive working environment and sense of
belonging or accommodation.
d. Accountability and transparency by leadership
e. Need to evolve egonometric designs and work comforts for staff.
f. The leadership trying to live up to its responsibility by maintaining
transparency in collection of revenue and disbursement of fund.
g. Increase in internal revenue generation because of the uncertainty over
the statutory allocations.
83
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87
APPENDIX 1
QUESTIONNAIRE
Department of Public Admin & Local Government
Faculty of Social Sciences,
University of Nigeria Nsukka
10th
February 2009.
Dear Respondent,
I am a Post-Graduate student undergoing my MPA Programme in the above department,
currently conducting a research on the topic “LEADERSHIP AND STAFF
PRODUCTIVITY IMPROVEMENT IN NIGERIAN PULIC SECTOR (THE CASE OF
ENUGU NORTH LOCAL GOVERNMENT AREA).
Please kindly answer the questions to the best of your knowledge and all responses given
remain confidential.
Thanks for your anticipated co-operation.
Yours faithfully,
OBIORA, CHINYERE HENRIETTA
PG/MPA/05/40148
88
QUESTIONNAIRE ON THE LEVEL OF SATISFACTION DERIVABLE FROM
THE QUALITY AND QUANTITY OF SERVICES RENDERED BY ENLGA
UNDER DIFFERENT REGIMES
Name :__________________________________________________
Age: ___________________________________________________
Sex: Male[ ] Female [ ]
Department:_______________________________________________
INSTRUCTION
Please read the following questions.
Tick ( √ ) in the column that best answer the question.
RESEARCH QUESTION ONE:
What is the level of satisfaction you derive from the quantity of services rendered by
Enugu North Local Government Area under these regimes.
A. Democratic Regime
i. High [ ] ii. Low [ ] iii. Very Low [ ]
B. Military Regime
i. High [ ] ii. Low [ ] iii. Very Low [ ]
C. Transitional Governments
i. High [ ] ii. Low [ ] iii. Very Low [ ]
89
RESEARCH QUESTION TWO:
What is the level of satisfaction you derive from the quality of services rendered by Enugu
North Local Government Area under these regimes.
A. Democratic Regime
i. High [ ] ii. Low [ ] iii. Very Low [ ]
B. Military Regime
i. High [ ] ii. Low [ ] iii. Very Low [ ]
C. Transitional Governments
i. High [ ] ii. Low [ ] iii. Very Low [ ]
90
APPENDIX 2
A TABLE SHOWING DIFFERENT TYPES OF LEADERSHIP IN ENUGU
NORTH LOCAL GOVERNMENT AREA
Year Type of
Government
Name of Leader Leadership Model
1976 - 1979 Military Nwobodo, J.N.I. Chairman
1980 - 1983 Presidential Agbo, J Chairman
1983 Presidential Sam Oji Chairman
1984 Military A. V. O. Obidike Sole Administrator
1984 Military Chief I. E. Ejikeme Sole Administrator
1984-1986 Military Chief N. Okonkwo Nkala Sole Administrator
1986-1987 Military Mazi E. C. Nwankwo Sole Administrator
1988 Military Dr. Sam Oji Sole Administrator
1988 – 1989 Military Agbo Anike Ag. Chairman
1989 – 1990 Military I. E. Itumah Sole Administrator
1991 Military Mr. M. C. Ukwuma Sole Administrator
1991 – 93 Military Mr. G. B. Onoh Executive Chairman
1994 Military Prince Julius Nnaji Chairman
1996 Military Mr. Emma Onoh Executive Chairman
1996 Military Mr. Robert Nnamani Ag. Chairman
1997 Military Hon. Charles Ayalogu Ag. Chairman
1999 Presidential Hon. Ben Onyia Executive Chairman
1999 Presidential Hon. Eneh Eric Obi Ag. Chairman
1999 Presidential Barr. Emeka Nnamani Transition Committee Chairman
1999 - 2001 Presidential Hon. Ben Onyia Executive Chairman
2002 Presidential Hon. Friday Ugwu Transition Committee Chairman
2002 – 2003 Presidential Chief Dr. John Ukwuani Transition Committee Chairman
2004 Presidential Barr. Walter E. Asogwa Ag. Chairman
2004 Presidential Hon. Chief Emma Ngwu Transition Committee Chairman
2004 2005 Presidential Hon. Chief Emma Ngwu Executive Chairman
2006 Presidential Okey Ani (JP) HPM/Ag. Chairman
2007 Presidential Rev. Hon. Ejike Ugwu Transition Committee Chairman
2007 Presidential Hon. Barr. Philip Agu Transition Committee Chairman
2007 – Date Presidential Dr. Herbert Oji Executive Chairman