CONTEMPORARY ISSUES

IN
NIGERIAN AFFAIRS

A.E. DAVIES
H.O. DANMOLE
I.O. TAIWO

CONTENTS
The Military and Creation of States in Nigeria 1967-1991

ii

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CHAPTER TWO
THE MILITARY AND CREATION OF STATES IN NIGERIA 1967 - 1991.
H. O. Danmole and S. 0. Aghalino
INTRODUCTION

The military has been involved in Nigerian politics for almost three
decades, Indeed, since the coup d'etat of January 1966, that ousted the
civilian administration, the military has played a dominant role in the affairs
of the nation. Except for the four-year civil administration of Shagari, that
is, 1979-1983, Nigeria from 1966 to the present has been administered
entirely by the military although democratic structures were experimented
at the state level between 1992 and 1993.
One of the issues which the military has paid attention to in Nigeria
is the question of creation of states which has continued to be a topical
issue in the country Both the civilian and the military administrations had
been involved in the politics of state creation, and both had employed the
vehicle of state creation for political engineering, although the military more
than any civilian administration had always used the issue of state creation
to stabilize their administrations. The first involvement of the military in
creation of states took place a year after they took over the country. This
as will be shown later was dictated by the need to weaken the secession
threat of the Eastern Region. Without doubt, states are important variables
in a federation, and thus a pre-requisite for its existence (Noser : 1975 :
170). Nevertheless, creation of states by the military in Nigeria has so far
not succeeded in satisfying all interest groups in the country. However, it
is important to stress that the creation of states by the military has been
one of the most important achievements of military administration in
Nigeria.
It is against this background that this chapter examines the
involvement of the Nigerian military in the creation of states. It analyses the
important factors which the various military regimes took into consideration
in the creation of states. The chapter submits that the military in Nigeria
has over the years used creation of states not only to attempt even
development but also to stabilize their administrations.
PRE-INDEPENDENCE DEMANDS FOR MORE STATES IN NIGERIA.

The complex nature of the Nigerian polity was a source of concern

even to the British colonial administrators before the birth of the Nigerian
state in 1914. C. L. Temple wanted the present area of Nigeria to be divided
into units of area and population sizes which can be effectively administered
by one officer. While Temple was not directly advocating for creation of

states, he wanted Nigeria to be split into units that could be eas ily
administered by the colonial government (A. H. M. Kirk Greene, 1968 :
213 : 218). Nevertheless, the idea of state creation in Nigeria was
mooted by E. D. Morel, as soon as the Northern and the Southern
Protectorates were amalgamated in 1914 (Kirk Greene : 1968 : 10).
These British officials were perhaps informed by the size and
heterogenous nature of the country. Morel also noted that the division of
the country into various units would probably ensure a sense of unity
among various groups. (Morel, 1968 : 201). The idea of dividing Nigeria
into various units was rejected by Frederick Lugard who was the first
Governor-General of Nigeria. Lugard preferred the division of the country
into two - the Northern and Southern provinces (A. Yahya 1978 : 202). If
Lugard had agreed to these early suggestions by dividing the country
into more units, this would have possibly reduced agitation for states or
regions in the colonial and post colonial periods.
This is however not to say that attempts were not made to divide
Nigeria into more units. What is important is that the division did not go far
enough. In 1939, the Southern Provinces were divided into two, namely,
the Eastern and the Western Provinces by the colonial administration,
because of what was termed ethnographic and communication problems.
It should be recognized that at the same time the Northern Provinces had
similar problems, but the boundaries of these Provinces remained
untouched. This action eventually led to imbalance in the political structure
of the country.
With increased nationalist agitation after the Second World War, and
more importantly, the birth of new political parties during the process of
decolonization, the imbalance in the political structure of the country
became increasingly noticeable in the emergent nation state. Regionalism
was emphasized in the Richards Constitution of 1946, while these regions
became political regions with the Macpherson Constitution of 1951. With
these constitutions, competition for power among the various politic al
parties at regional and national levels became keen. In 1954, Nigeria
became a federation under the Lyttleton Constitution. The emergence of
Nigeria as a federation heightened political rivalries among the various"
political parties which were largely ethnic based, that is, they drew support
from the major ethnic groups-Hausa/Fulani, Igbo and Yoruba-in the country.
Partly as a political strategy aimed at attracting support from other
areas of Nigeria, leaders like Dr. Nnamdi Azikiwe and Chief Awolowo
requested the colonial administration to create more regions (Coleman,
1958). But these same leaders were not prepared for any region or stare
to be created within their regional boundaries. Indeed, between 1954 and

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1957 several movements for creation of states emerged in different parts

of Nigerian apparently because of fears of political or religious domination
by the major ethnic groups in the country. Consequent upon the fears
expressed by the minority groups in the country, the colonial administration
set up the Minorities Commission under the chairmanship of Sir Henry
Willink in 1957. The Commission was to look into the fears of the
minorities and ways of allaying them. One of the terms of reference was
to create one or more states if necessary. (Minority Report, Lagos 1957).
But the commission did not find it necessary to create any state, instead,
constitutional safeguards were recommended for the Independence
Constitution (Mackintosh, 1966 : 31 - 35). It was however not until 1963
that the Mid-Western Region was created from the Western Region.
GOWON AND THE CREATION OF TWELVE STATES IN NIGERIA

General Yakubu Gowon became the Head of State of Nigeria,

following the counter-coup of 29th July, 1966. Debates on the creation of
more states became intensified during the early part of Gowon's
administration because he reverted to a federal system of government which
his predecessor, Aguiyi-lronsi, had abolished. Apart from the tense political
situation, the vociferous nature of the debate must have influenced
Gowon's decision to create twelve states out of the existing four regions.
It is important to remark that the timing of the creation of these states was
appropriate because it succeeded in weakening secessionist tendencies that
almost disintegrated the country. In particular, with the failure of all peace
initiatives by the Federal Government to pacify the aggrieved Eastern Region
under the leadership of Colonel Odumegwu, Ojukwu, Gowon in May 1967
used the strategy of state creation to weaken Ojukwu's influence and
authority in the Eastern Region. He succeeded in gaining the support of
other minority groups in Nigeria. The measure also enhanced the unity of
other parts of the country behind the federal government most especially
during the Civil War, 1967 - 1970.
In creating the twelve states, Gowon's administration emphasised the
following criteria : recognition of federal principles, geographical contiguity,
administrative convenience, economic viability and uniformity in the
process. The emphasis on the principle of federalism by Gowon was a
reaction to the contentious question of unitary administration espoused by
the Irons! regime. Not only that, geographical contiguity and administrative
convenience were informed by historical connection of the states with a

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view to fostering a sense of oneness. It is relevant to note that in the state

that were created, the fact of geography and administrative convenience
were not strictly adhere to. For instance, the former Kwara State and the
former North Eastern states had their component parts in the Niger and
Benue rivers respectively. Indeed, political exigencies rather than economic
viability influenced the twelve state structure created by the Gowon
administration.
Immediately after the civil war in 1970, the fede ral military
government was engrossed in reuniting the various sections of the country
through the policy of reconciliation, rehabilitation and reconstruction. The
period also coincided with what is generally referred to as the oil boom era
which gave the federal military government substantial foreign exchange
that enabled it to embark on major capital projects. As part of efforts of the
government to integrate the various peoples of Nigeria, the National Youth
Service Corps was established in 1973. Inspite of these attempts to foster
a sense of unity, there were latent voices for the creation of more states in
the country. Notable politicians like Anthony Enahoro and Shettima Ali
Moguno lent their voices to the request for more states. Others were
leaders of various communities, interest groups, civil servants, students and
traditional rulers. The belief was that the creation of more states would
help to consolidate the unity of the country (New Nigerian September 28,
1979).
Indeed, by October 1 st 1974, the pressure for creation of more states
was so much that Gowon had to declare that "in principle more states
would be created" (New Nigerian, October, 1970). Gowon's statement
indicates that the states created in 1967 were not only inadequate, they
also failed to satisfy the yearning of Nigerians. From this time onwards,
Nigerians both individually and severally began to clamour for more states
through paid advertisements on the pages of newspapers, and various
representations were made to the government. While these agitations were
going on, disaffection within the military over the style of governance and
the continual postponement of handing over of power to democratically
elected government by Gowon, led to a military coup d'etat which swept
Gowon out of office in July 1975.
STATE CREATION DURING THE MURTALA/OBASANJO REGIME

One of the major tasks with which the new Military government preoccupied itself was the creation of more states. This was because creation

19

of states was a burning issue by the end of the Gowon era. In creating
more states, the administration would be satisfying the wishes of majority
of Nigerians who believed that through creation of more states there would
be even development. Unlike the creation of states by Gowon which came
on the eve of the civil war, the Murtala/Obasanjo regime inaugurated a panel
headed by Justice Ayo Irikefe, in August 1975. The panel was empowered
to "examine the question of more states in the Federation and, should the
committee find the creation of more states necessary and desirable to:
(a)
(b)
(c)

Advise on the delimitation of such states ;

Advise on economic viability of the proposed states ;
Advise on the location of the administrative capitals of
the proposed states, and
(d)
Examine and advise on all other factor that may appear to
the committee to be relevant, so as to enable the
government to take a decision which will ensure a balanced
stable Federation.
(e)
To receive and examine written representations
from individuals, groups, organizations or associations
who may have views on the desirability or otherwise of
creating states in particular areas (Nigeria, Report of the
Panel on the creation of States, 1976 : 1).
There is copious literature on the subject of state creation in Nigeria
that detailed discussion need not detain us here. What is important is
to highlight the procedure followed by the Irikefe Panel of 1975, with a
view to understanding the state creation exercise of 1976. In order to
obtain first hand information and have reasonable knowledge of the country
and held sittings in various state capitals just as the Minorities Commission
did in 1957. At the state capitals, the panel received representations
from individuals and groups. These tours must have helped the panel to
locate the agitations of the various groups in proper historical and
geographical contexts. It is also relevant to note however, that the
touring of the country before recommendations were made for creation of
states was a marked departure from what obtained during the Gowon
era. This difference in approach can be explained in terms of the
prevailing political circumstances of the two regimes.
By September 1975, about one thousand memoranda had been
received by the panel. A cursory look at these memoranda indicates that
mutual jealousy and ethnicity dominated the contents of the memoranda.
This shows that in the larger context, the demand for states were not

20

necessarily based on the need for even development, but to enhance myopic
and selfish interests.
Be that as it may, when the panel submitted its report, it was
optimistic that the states that would be created as recommended by the
panel would put paid to further agitations for the creation of more states in
Nigeria. Indeed, its chairman, Justice Ayo Irikefe asserted that "the 1976
exercise should settle the issue of states creation" (Irikefe Commission :
42). What he failed to realize was that to a large extent, state creation is a
malleable tool in the hands of the military. Apart from that, the demand for
states is 'continuous' exercise in Nigeria because in any act of state
creation, not all aspirations could be met. What normally results after the
exercise is usually a mixture of contentment and discontentment. In
February 1976, the old twelve states structure was split into nineteen
states with a new Federal Capital territory at Abuja. While the creation of
the nineteen states was seen as a step in the right direction, it is instructive
to observe that the emphasis on the need for each state to be economically
viable was again down played.
The creation of nineteen states was meant to reduce minority
problems, give room for even development and provide for a strong Federal
structure. But no sooner than the states were created when agitations for
more states began. This must have informed the provision for guidelines on
the creation of new states in the 1979 constitution (1979 Nigerian
Constitution). It is important to mention that throughout the Second
Republic, there were requests for the creation of almost fifty more states in
Nigeria.
CREATION OF STATE DURING THE BABANGIDA ERA

In a palace coup of August 1985, Babangida came to power as the

first military President of Nigeria. Like all previous military regimes, one of
the first steps Babangida took when he came to power was to address the
issue of creation of states among other things. To this end, he set up the
Political Bureau in 1986 which was to provide a political blue-print for
Nigeria. The Babangida administration gave the Bureau the latitude to
discuss various socio-economic and political problems confronting the
nation. This was perhaps why the Bureau took the opportunity to discuss
the issue of creation of more states among other reasons that:

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Creation of a few additional states is necessary in the interest

of a much more balanced and stable federation; creation of
additional states should assist in the further extension
of the democratization processes initiated since the exercise
began in 1967;
creation of a few additional states is important for the removal of a major
source of political and social tensions which have bred instability and
frustrated the country's march towards national greatness (Report of
The Political Bureau, 1987: 182). There was no unanimity among the
Bureau members on the numbers of states to be created. While some
canvassed for two additional states, others, saw reasons in six more
states. The only thread of unity was the fact that all the members were
unanimous in the creation of Akwa Ibom and Katsina States from Cross
Rivers and Kaduna States respectively. This convergence of opinions
for the creation of both Akwa Ibom and Katsina States by the Bureau
must have significantly influenced the decision of the Military
Administration to create the two additional states in August, 1987.
Besides, the creation of the two states was meant to reduce agitation for
states by the people of these areas.
With the creation of the two additional states the Babangida
administration appeared to have sealed finally the question of creation of
states in the country at least during his regime. In the words of General
Babangida:
This administration wishes to emphasize that no
further comment or petition... will be tolerated
(on creation of states) during the period of the
transition... (Babangida speech of August 1987,
as reviewed in National Concord Sept. 23,
1991).
But the spate of agitation after the creation of the two states in 1987 was
so much that the administration had to change its mind. Thus, in 1991,
President Babangida stated that "the yearnings of the people are legitimate"
(National Concord, August, 1991). It was not surprising therefore, that on
August 27th, 1991, additional nine states were created by the
administration.
The rationale for the creation of states in 1991 as claimed by the
President was a "measure of growth of the Federation and our ingenuity and
resilience as a people, committed to living together inspite of plurality, that
what began as two colonial units, in 1914, has today been transformed into

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a federation of thirty states" (National Concord August 28, 1991). The

justification offered by the President was merely an embellishment of earlier
reasons proffered by his predecessors and the recommendation of the
Political Bureau.
Inspite of the number of states created by the Babangida
administration, some sections of the country were not satisfied with the
exercise. This was due either to the location of administrative headquarters
or because of boundary adjustments. Two examples will be sufficient to
illustrate this point. First, in Delta State, the Urhobo, Isoko and Ijo, who had
been in the vanguard for the creating of a Delta State and who had thought
that the administrative headquarters of the new state would be located
within their geographical area were disappointed when Asaba was chosen
as the administrative headquarters of the state. Second, the people of
Hadeija protested against the location of the capital of the new Jigawa
State at Dutse. These examples show that the expressed wishes of the
people and fact of history, which were said to have guided the
administration in the creation of states were not applied in all cases.
CONCLUSION

This study has shown that the issue of state creation has preoccupied successive military regimes in Nigeria, except the Buhari/ldiagbon
regime. It appears the creating of more states was used for the stability of
military administration. In creation these states, certain guidelines such as
the need for a balanced federation, and geographical contiguity were
considered. However, it must be stated that in some cases, these
guidelines were not followed to the letter. In the same vein, attempts by
successive military regimes at state creation have not succeeded in
satisfying all interest groups in the country. Thus, agitation for creation of
states has continued to feature prominently in Nigeria. Indeed, the present
military administration has promised to address the issue of creation of
additional states before the end of the transition to civil rule.

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REFERENCES

Ali Yahya: "The creation of States" in Keith-Panter Bricks (ed.) Soldiers and
Oil: The Political Transformation of Nigeria; (London: Frank Cass,
1978).
Coleman J.S.: Nigeria: Background to Nationalism (Berkeley, University of
California Press, 1958).
Kirk Green A.H.M.: Lugard and The Administration of Nigeria: A
Documentary Record, (London: Frank Cass, 1968).
Mackintosh, J. P.: Nigerian Government and Politics (London, G. Allen and
Unwin, 1966).
Morel, E. 0.: Nigerian, its people and its problems 3rd ed. (London: Franck
Cass, 1968).
Noser Igiehon: To Build a Nigerian Nation: (Deron Authur H. Stockwell
Ltd., 1975).
National Concord, August 28, 1991.
New Nigerian, September, 28, 1979.
New Nigerian, October, 1970.
Nigeria: Report on the Panel appointed by the Military Government on the
issues of creation of more States and Boundary adjustment in
Nigeria, 1975.
Nigeria: Report of Commission appointed to enquire into the fears of the
Minorities and the Means of Allaying them. (London, 1958). Report
of the Political Bureau, March, 1987.

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Other Works

Adejuyigbe O.: "Problems in the determination of the viability of political

Units" in Administration, XIV, 1, October 1979.
"Rationale and Effects of State Creation with Reference to
the nineteen States" in Akinyemi, et al ed).
Readings on Federalism, Lagos, Nigerian Institute of International Affairs,
1979.
.....................

................. "The

Problem of Unity and the Creation of States in Nigeria" i n

Nigerian Geographical Journal, 11, 1968.

Dudley B. J.: Instability and Political Order: Politics and Crisis in Nigeria.
(Ibadan, ibadan University Press, 1978).
Garba, J. N.: Revolution in Nigeria: Another view. London, 1982.
Osadebey, D.C.: Building a Nation, Lagos, 1978"
Panter-Bricks S. K. (ed): Nigeria Politics and Military Rule: Prelude to Civil
War, (London. The Atthione Press, 1970).
Scharg, F.: The Tribe, The Nation or The Race.
Press, 1965).
African Guardian, September, 1991.
New Nigerian September 28, 1979.
Newswatch October 8, 1990.
Tell Magazine: April 26, 1995.

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(Cambridge, Mass Mit