the nation’s bureaucracy has succeeded to some extent in

Port Harcourt Journal Of History & Diplomatic Studies |www.phjournalofhistorydiplomaticstudies.com Vol.6 N0.3 September, 2019

Federal Character Principle as an Instrument of National Integration in the Nigeria… 103

Federal Character Principle as an Instrument of National Integration in

the Nigeria Public Bureaucracy

By

Philomena .I. Urhoghide

Department of Political Science and Public Administration, Benson

Idahosa University, Benin City, Nigeria.

Email: [email protected]

&

Maria Oyedeji

Department of Political Science and Public Administration, Benson

Idahosa University, Benin City, Nigeria.

Email: [email protected]

Abstract

The main purpose of this paper is to find out if the Federal Character

Principle in the Nigerian Public bureaucracy is an instrument of

national integration. In order to achieve this objective, the paper is

based on the review of related literature and documentary analysis

on the federal character principle, integration and public

bureaucracy. The paper opine that the federal character principle in

the nation’s bureaucracy has succeeded to some extent in reducing

some factors of distrust and rivalries among the diverse groups and

interests in Nigeria. However, there are some problems in the

implementation process, while some gained, others lost. There is

therefore, the need for the views and interests of all groups in the

nation to be considered in the course of policy implementation. The

cry for restructuring and the crisis of national unity clearly show

the poor level of national integration efforts in the Nigerian public

bureaucracy. The study concludes that, there is the urgent need for

the federal government to make the Federal Character Principle



(FCP) in the Nigeria bureaucracy become Equal Opportunity

Principle (EOP). This is a sine quanon for national integration.

Keywords: Federal Character Principle, Public Bureaucracy, Integration

Introduction

One of the ways the federal government of Nigeria attempted to

settle the problems arising from diversity is the inclusion of the federal

character principle in the nation’s various constitutions. Federal character

principle emphasize the need for representation of the different groups in

all that has to do with federation. It is an attempt to recognize the nation’s

diversity and to also accommodate it. Federal government introduction of

the federal character principle was to ensure that affairs of government and

its agencies at all level is not dominated by few people from a section or

group of the country. This measure has achieved some of success in

managing the ethnic diversity in Nigeria, but it is still an inadequate

mechanism for tackling the problem of accommodation in the nation.

According to Tonwe (2009) and Anyanwo (2010), the quota system (FCP)

was proposed at facilitating equal representation of the various ethnic

groups in the Nigerian Public Service. However, for Benjamin (2012), the

federal character principle that is meant for building unity in diversity by

balancing official appointments among groups, ensuring mutual trust,

accommodation of various interests, has in practice exacerbated divisions

from many fronts.

Problem

Interestingly, federal character principle and national integration are

related. The former is applied to achieve the latter. The application of

federal character principle in employment revenue sharing, education, and

location of industries and other development programmes would

guarantee national integration. Federal character principle suggest an



attempt to build a nation where equal opportunities abound and where

every individual must feel that he has equal chance to participate without

bias of ethnic affiliations (Talih, 1987). Federal character principle is both a

reaction as well as a system. It is a positive reaction to correct those practices

of the past, especially in the conduct of public management which tended

to exploit the diversities of the nation and by so doing cause ill will. Federal

character principle is also a reaction to those practices which tended to

reflect selfish and parochial consideration, especially those negative forces

which placed self interests above national interest. The federal character

principle involves a deliberate plan to construct means of ensuring proper

distribution of amenities and government projects in the country. National

integration on the other hand like other concepts in social sciences, have no

universally accepted definition. However, there are basically two

perspectives: the process perspective and the attainment perspective.

Duverger (1980); Ake (1967); Agbodike (1998); amongst others are

advocates of process school of thought. Duverger (1980) defines national

integration as the process of unifying a society which tends to make it a

harmonious city, based upon an order its members regard as equitably

harmonious. For Agbodike (1998), national integration is a process leading

to political cohesion and sentiments of loyalty toward a central political

authority and institutions by individuals belonging to different social

groups or political units.

Attainment perspective is represented by Deutch and Foltz (1963).

They argue that, integration is the attainment within a territory of a sense

of community and of institutions and practices strong and widespread

enough to assure, for a long time dependable expectations of peaceful

community. In their view, a secured community is a group of people who

are integrated. In Nigeria the heterogeneous configuration since

independence generated series of political problems that have continued to

engage the government in thinking of ways to preserve the existence of

Nigeria. These political problems have divided the nation along ethnic,

religious, majority and minority, advantaged and disadvantaged.



Unfortunately, education has had its fair share in the struggle resulting in

an educationally imbalanced society between the North and South, where

the South is educationally advantaged and the North disadvantaged. In this

light, the introduction of the federal character principle in the Nigerian

public bureaucracy came to the fore in extinguishing the already looming

class conflict as it was aimed at fostering national integration and sense of

belonging in the nation. Despite the immediate successes recorded by the

federal character principle in reducing the widening opportunity of quality

government service to the nation, disadvantaged regions still feel

unsatisfied as merit and competence are sacrificed on the alter of the federal

character principle. Based on the above, this paper is set out to briefly

discuss the federal character principle as an instrument for national

integration in the Nigerian public bureaucracy.

Methodology

The study is based on review of related literature and documentary

analysis on the federal character principle, public bureaucracy and

integration. The remaining part of this study is structured into four sections.

First is the federal character principle, second is based on the federal

character principle as an instrument for national integration, the third is on

making the federal character principle more effective, while the fourth is

the conclusion.

Federal Character Principle in the Nigeria Public Bureaucracy

Afigbo (1987) noted that, the federal character principle arose out of

a compromise among the protagonists of the 1976, constitutional drafting

committee. It was seen as an oily formula to silence the troubled waters in

Nigeria and also the panacea to the issue of political economic instability

which obstructs the balancing of the North and South on the one hand, and

the various ethnic groups mainly the three dominant ethnic groups (Igbo,

Yoruba and the Hausa/Fulani) and also other minority ethnic groups on the

other hand. Similarly, Olagunju (1987), sees federal character principle as a



deliberate design to accommodate less dominant but often forcibly

expressed interest. Essentially, it is a design which is aimed at depoliticizing

new demand through an institutional arrangement. However, Okpata

(2011) sees federal character principle in Nigeria as the democralization of

the public bureaucracy through the principle of representation as contained

in the 1979 constitution. Similarly, Akpanabia (2012) sees federal character

principle as a practice where nationality is represented in all government

owned institution. He explains that, it is designed to ensure quality, fair

play and order among different ethnic nationalities that make up Nigeria

in the distribution of resources, so as to promote polity. For Ekeh (1989),

federal character principle sought to give opportunities in education and

employment, usually at the point of entering to disadvantaged groups and

areas to enable them compete and catch up with more advanced sectors of

the nation. In addition, Alubo (2003) says, lack of representation in policy

making and implementation by some segment of the Nigeria society has

left federal character principle as a desirable solution to Nigeria’s

employment and recruitment processes.

However, the Federal Character Principle in the Nigeria public

bureaucracy is not new. Its origin can be traced to the pre-independence era

when nationalists struggled for participation in administration. It took a

concrete and institutionalized form when it was enshrined for the first time

in the 1979 constitution, and was replicated in that of 1989 and 1999. Section

14(3) of the 1999 constitution states that, the composition of the government

of the federation or any of its agencies and the conduct of its affairs shall be

carried out in such a manner as to reflect the federal character of Nigeria

and the need to promote national unity and also to command national

loyalty, thereby ensuring that there shall be no predominance of persons

from a few states or from a few ethnic on other sectional groups in that

government or any of its agencies.

In order to drive the implementation of the federal character

principle, the Federal Character Commission (FCC) was established by

decree 34 of 1996, and the powers of the commission was summarized thus:



working out formula for sharing posts and services; compliance

monitoring; enforcement of compliance through legal actions; demanding

and reviewing data on staffing; and institutional investigations (Mustapha,

2007). The FCC is a commission under the presidency; its members are

appointed by the President, but subject to the ratification of the Nigerian

Senate. To ensure equity in representation, the law establishing the

commission states that, the executive chairman and secretary are to be

appointed in such a way that if the chairman comes from the North, the

secretary must be chosen from the South and vice versa. However, Nzeshi

(2012) observed that since the establishment of the Federal Character

Commission, the commission has been headed mostly by Northerners.

Federal Character Principle as an instrument of national integration:

Drawback

According to Agbodike (1998), the main reason for federal character

principle is to ensure social harmony among all Nigerians and to promote

stability and national integration of the nation. The application of the

federal character principle in the Nigeria public bureaucracy is beset with a

numerous draw back which hinders national integration and some of these

are:

i) In emphasizing the shortcomings of the application of the federal

character principles in Nigeria; Obia (2012) points out that the issues of

making public institutions reflect the federal character was taken up

haphazardly, giving rise to arbitrariness and victimization of some

unfortunate public servants. Similarly Ojo (2009) contends that its most

radical and damaging application has been in the bureaucracies and

public services of the federation Ademolekun (2006, 2007 & 2008) stated

that, only a critical assessment of years of implementing the federal

character principle would help determine the desirable way forward. It

is quite relieving that he answered the above questions in a related

discussion thus: The federal character principle that was introduced as



Nigeria’s path to achieving representative bureaucracy was morphed

into the bad practices of politicization.

ii) Despite the inclusion of federal character principle in various

constitutions of Nigeria, most Nigerians still identify themselves with

their tribe or state of origin rather than as Nigerians anywhere they live

or find themselves. For instance, a person born and bred in an area and

whose parents and grand-parents are also born in that area but are

originally from another place, are still seen as none indigenes. Such

people may be tolerated in the place but in most cases they may not be

entitled to some of the privileges with the owners of the land. This is so

because, most political appointments and employment opportunities in

the Nigeria Public Service are still been coordinated on a parochial bases

(Ugoh & Ukpre, 2012) of godfathers and whom you know instead of the

so called federal character and quota system.

iii) From this scenario therefore, the indigeneship and quota system

syndrome has a lot to threat in Nigeria federalism, most especially if

there is agitation between indigene and none indigenes in the public

service on political appointment and employment opportunity. This can

trigger a lot of anger and result to violence and clash in some areas of

government appointment (Ugoh, 2012).

iv) Also, emphasizing the shortcomings of the application of the federal

character principle in Nigeria Gboyega (1989) points out that, the issues

of making public institutions reflect the federal character was taken up

haphazardly giving rise to arbitrariness and victimization of some

unfortunate public servants. Furthermore, Ekeh (1989) argues that, the

federal character principle most radical and damaging application has

been in the bureaucracies and public services of the

federation...permanent secretaries have been kicked around, removed

and sometimes dismissed.

v) In addition, Ekeh adds that the application of the federal character

principle has invaded the integrity and standards of public bureaucracy

and other governmental bodies that normally require safeguards from



the ravages of politics. Furthermore, the negative effects of federal

character on the public sector performance in Nigeria can be gleaned

from the work of Forrest (1994), where he argues that the

implementation of the principle of federal character in the public service

not only led to poor appointments but also enhanced mediocrity rather

than merits. To promote administrative effectiveness for performance in

the Nigerian public, service there is the need to engage on the issues of

competence, commitment, corruption and conflict of interest and career

certainty (Utomi 2002). From there come both threats to the effectiveness

of the civil service and opportunities for the service to be the anchor of

a Nigerian renaissance. Also, Tonwe and Oghator (2009) submit that

federal character principle allows ethno regional patrons and their

clients to exploit and mismanage state resources without contributing

to any meaningful development.

vi) There is no greater inequality than the equal treatment of unequals. The

federal character principle policy as practiced in Nigeria is elitist and

class biased, additionally, it leads to a blurring of the boundary between

the pursuits of meritocracy and ethnic balancing, thereby creating

inadvertently a multiple system of citizenship in the polity. In addition,

the principle and its application have brought about the unintended

effect of creating situations of elimination by substitution which makes

it counter-productive. This it does through discrimination in

appointment and promotion. The principle attempts to achieve equality

of all states, whereas states are not equal in population, and size of the

pool of candidates for appointment (Ojo, 2009; Tonwe and Oghator,

2009).

vii) For Ayoade (1989), equality of states in the implementation of the

federal character principle as enshrined in the Nigerian constitution

means that, the North was represented in the ratio 19:17 (52.8 percent)

of public posts. Ayoade posits that, this situation is further complicated

by the fact that arithmetical justice does not necessarily translate to

socio-political justice. A representative bureaucracy does not necessarily



translate into power equality for the members. Therefore simple

arithmetic quota model adopted by the Federal Character Commission

is obviously deficient as it fails to consider such crucial variables of

ethnicity, religion, merit, and issues such as the relative population, size

of state, the ethnic structure of the state, or the level of educational

attainment by various groups in the states. Hence what the Federal

Character Commission quota model seeks is equity without

proportionality. Mustapha (2007) noted that, there is the urgent need to

move beyond the comfort zone of the arithmetic quota to the challenge

facing the Federal Character Commission and national integration in

Nigeria.

Making the Federal Character Principle More Effective

There seems to be a general acceptance of the Federal Character

Principle as a normative expression of equality of rights of all Nigerians to

participate in the political, administrative and economic affairs of the

country, despite the obvious drawbacks and controversies surrounding the

notion and its application (Agbodike, 1998). Nigerians must concede that,

the Federal Character Principle was intended to promote unity in diversity

while encouraging accommodation in the country, there is the need

therefore to articulate ways and means to make it less problematic in its

implementation. Various recommendations have been made in the past

with no positive response from government (Osaghae, 1987); (Agbodike

1998); and (Dauda 1998). There is also the North-South balance which is

distorted in favor of the North. This imbalance should be remedied to

reflect the position when states were first created in 1967 with both the

North and the South having six states each. This will assuage the mutual

suspicion and ill-feelings generated by the current imbalance. In creating

states, it is important that the concept of viability of the states and their

ability to discharge their statutory and other functions for development of

the nation is not over looked.



To further assuage the North-South tension, it is also important to

address the hegemony of the North implicit in their occupying top political

positions and headship of key ministries. Of the fifty-seven years since

Nigeria gained independence, the North has held the exalted position of

executive head of state for forty-nine (40) years and the South only

seventeen (17). Interestingly out of the seventeen years, the headship by the

south was either accidental or was strategically allowed by the North

during very tense political climate as can be seen in table 1:

Table 1: Headship of Nigeria since Independence Period Year President/Head of State Type of

Administration

Ethnic/

Region

1 1960 - 1966 Alhaji Tafawa Balewa (Prime

Minister)

Civilian North

2 January 16,

1966 – July 29,

1966

Major General J.T.U Aguyi-Ironsi

(Head, Federal Military

Government)

Military South

August 1966 –

July 29, 1975

General Yakubu Gowon (Head,

Federal Military Government)

Military North

3 July 29, 1975 –

Feb. 13, 1976

General Muritala Muhammed

(Head Federal Military

Government)

Military North

Feb 13, 1976 –

Oct. 1, 1979

General Olusegun Obasanjo

(Head Federal Military

Government)

Military South

4 Oct. 1, 1979 –

Dec. 31, 1983

Alhaji Shehu Shagari (President,

Federal Republic of Nigeria)

Civilian North

5 Dec. 31, 1983 –

Aug. 27, 1985

General Muhamadu Buhari Military North

6 Aug. 27, 1985 –

Aug. 26, 1993

General Ibrahim Babangida

(President, Federal Rep of

Nigeria)

Military North



Aug. 26, 1993 –

Nov. 17, 1993

Chief Ernest Shonekon (Interim

Head of State)

(Interim

Government)

Civilian

South

7 Nov. 17, 1993 –

June 8, 1998

General Sani Abach (Head,

Federal Military Government)

Military North

June 8, 1998 –

May 29, 1999

General Abdulsalami Abubakar

(Head, Federal Military

Government)

Military North

8 May 29, 1999 –

May 29, 2007

General Olusegun Obasanjo

(President, Federal Republic of

Nigeria

Civilian South

9 May 29, 2007 –

May 5, 2010

Alhaji Umaru Musa Yar’ Adua

(President, Federal Republic of

Nigeria)

Civilian North

Feb. 9, 2010 –

May 6, 2011

Dr. Goodluck Jonathan, (Acting

President, Federal Republic of

Nigeria)

Civilian South

10 May 6, 2011 –

May 29, 2015

Dr. Goodluck Jonathan,

(President Federal of Nigeria)

Civilian South

11 May 29, 2015 –

date

General Mohamudu, Buhari Civilian North

Source: Compiled by the researcher

Olusegun Obasanjo (1976-1979) occasioned by the assassination of

Muritala Mohammed to whom he was second in command; Olusegun

Obasanjo (1999-2007) occasioned by the annulment of a free and fair

election won by Chief M.K.O Abiola from the June 12, 1993 general

elections; Goodluck Jonathan (2010-2011) occasioned by the death of Musa

Yar Adua to whom he was second in command.

The Federal Character Principle should be applied with less

stringency but with fairness among ethnic groups, states and local

governments that are homogenous to avoid creating cleavages and

divisions. The application of Federal Character Principle should not be a

wholesale sacrifice of the principle of merit (Gboyega, 1989). According to

Adamolekun (2008), has the Federal Character Principle promoted or



retarded national loyalty and stability? Or has the area or ethnic region of a

person become the key factor in determining his quality as an individual?

The appointment of persons to positions should be made from the best

available in any group or section in the country. More importantly, in cases

where specialist training is required for recruitment to posts such as those

of medical practitioners, engineers, architects and pilots, it should be

strictly based on merit. Adamolekun went further to say, it will be a great

disservice to the citizenry to do otherwise. There should be a long term plan

to bridge the educational disparities between the North and the South, and

to give opportunities for further training and education to serving staff to

consolidate the merit principle.

Supporting the importance of merit as strategy for manpower

procurement (appointment) in the nation’s quest for administrative

effectiveness and enhanced performance for sustainable development,

Soludo (2012) argues that, the emergence of a merit driven culture is,

therefore, a key outcome of Vision 20:20 and an area of immediate policy

focus. To this end, a comprehensive review of ethnic balancing measures

and diversity management related laws such as the implementation of the

federal character principle should be undertaken with a view to ensuring

greater promotion of merit for sustainable development in Nigeria.

According to The Transformation Agenda (2011-2015), Nigeria’s inability

to attain sustainable development in the past has been attributed to the

nation’s inability to tackle development challenges such as poverty,

unemployment, corruption and security hinged on bad governance and

ineffective institutions/agencies of government. The poor implementation

of federal character principle in the Nigerian public service is therefore

capable of bringing into the service incompetent workforce that lacks the

ability to implement the policies of government for sustainable

development. Gberevbie (2010) however argues that, predicating employee

recruitment on federal character principle does not mean that such an

employee cannot contribute meaningfully towards the enhancement of the

goals of the organization. This is particularly so where appropriate



recruitment strategies involving the screening of potential employees based

on relevant skills, experience and educational qualifications are adopted.

What is important therefore, is the ability of the individual employed and

his/her willingness to work for the organization. In addition, through

proper staff training and development by organizations of their workforce,

organizational productivity is enhanced even where incompetent

employees would have been employed through inappropriate recruitment

strategies.

The functioning of the Federal Character Commission leaves much

to be desired. There is the need to empower the Federal Character

Commission. However, it must be noted that, a bill was sent to the Nigerian

National Assembly for amendment to enable Federal Character

Commission effectively enforce the principles of equity and fairness

(Nzeshi, 2012). The implication of the request to amend the Federal

Character Commission Act shows that, the principle and the structure put

in place to enforce its implementation is not totally effective as envisaged

by the government, and this is amply corroborated by Nzeshi (2012)

submission that, the inefficiency of the Federal Character Commission to

effectively enforce its mandate as a government watchdog in identifying

and addressing inequality is increasingly worrisome.

It is extremely important that the application of the Federal

Character Principle at all times must be done to bring succor to the plight

of the masses of this country. The whole essence of the Federal Character

Principle is to approximate the need to give equal opportunities for

employment to the citizens, equitable share in the distribution of the

resources, access, to education and goods and services.

Conclusion

The Federal Character Principle seems to be generally accepted as

the normative expression of equality of rights of all Nigerians to participate

in the administrative, political, and economic affairs of the country

(Agbodike, 1998). It has served as an instrument in reducing various factors

of mutual distrust and rivalries among the diverse groups and interests in



Nigeria. However there have been distortions in the implementation

process of national integration policies in the country, while some gained

in the process, others have been on the receiving end and so the

implementation had negative effects in several quarters. There is therefore

the need for all the groups, views and interests concerned to be taken into

consideration in the course of implementation. The cry for restructuring

and the crisis of national unity clearly reveal the poor level of national

integration effort in the Nigerian public bureaucracy. Ethnic differences

and sectional interests should not be seen as an absolute evil. Efforts should

be made to rise above them, and to exploit and integrate their virtues in the

struggle to achieve national integration (Nwankwo, 1986). The Federal

Character Principle should not only concern itself with the inter-ethnic

distribution of national resources, privileges and benefits, but should also

ensure that modalities are put in place by which its beneficiaries can make

contributions to the common good, progress, stability and integration of the

country. Conclusively, there is the urgent need to make Federal Character

Principle (FCP) in the Nigerian Public bureaucracy become Equal

Opportunity Principle (EOP). This is the sina quaon for national integration

in the Nigerian public bureaucracy.

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