National Security, Democracy, and Good Governance in Postmilitary-Rule Nigeria, Volume Two

By Dr. Dan Mou

This book shows that the security, economic, political, and social problems challenging national security, democracy, and good governance currently in Nigeria would get better or worse, depending on what happens to the 71 percent of Nigerias population still living below the poverty line. This is in spite of the billions of petrodollars that Nigeria garnered as revenue over the past few decades.

It reveals that one does not need to be a political prophet to predict that if these challenges are not successfully addressed through good governance and inclusive growth, this country will witness worse civil disobedience, violence, revolts, militancy, breakdown of law and order, more kidnappings, and more of the citizens trying to check out of the country to other parts of the world in the future.

It concludes, however, that under such intense pressures, the Government of Nigeria, even if it is simply for its self-preservation, will be forced by the objective conditions to move against the interests of the dominant groups and classes in Nigeria. These are the ones who have, for long, captured and hijacked state power and the resources of the country for their exclusive use.


There is this perception that Nigerians dont write and read. This perception is deep-seated, even among intellectuals who see our authors as shallow researchers. But Dr. Dan Mou has debunked that myth and shown that Nigerians can write well-researched and detailed books. It is quite prophetic in its assessment of the Nigerian State (Agbo Agbo, deputy editor, The Nation).

Dr. Dan Mou has proven himself a world-class scholar and an intellectual colossus. His reputation as an internationally renowned public policy expert has continued to soar. I congratulate him for these remarkable achievements (Professor Justice Abdul Fatai Kuti, first justice of Abuja High Court and former dean, faculty of law, University of Ado Ekiti, Ekiti State of Nigeria).

Dr. Mou is certainly one of the best scholars we have on the African continent. As an educationist myself, before I became a traditional ruler, I agree totally with his analysis and conclusions. I share the optimism Dr. Mou has expressed . . . that once the recommendations therein are adopted and meticulously implemented, with proper monitoring and evaluation of such resultant policies and programmes, Nigeria and indeed Africa would be able to solve most of these challenges (HRH Alh. Dr. Sheban Audu, Nizazo III, Etsu Kwali, Etsu Kwalis Palace, Abuja, Nigeria).

• Language: English
• Publisher: AuthorHouse UK
• Release date: Jan 12, 2017
• ISBN: 9781524668037

Dr. Dan Mou

Dr. Dan Mou holds a B.Sc. Hons. Political Science (1979), University of Ibadan, Nigeria; M.A. (1982) and Ph.D. (1986), University of Wisconsin, Madison, U.S.A. specializing in Public Policy Analysis and African Politics; Ph.D. (Honoris Causa), International Law and Diplomacy (2013), Pacific Western University, Colorado, U.S.A. and another Ph.D. (Honoris Causa), Business Administration (2013), Cornerstone University, Jerusalem, Israel. He lectured at the University of Jos, Nigeria and the University of Wisconsin, Madison, U.S.A., before joining the Presidency in Nigeria in 1989, where his positions included: Director (Narcotics Drugs Control); Director (Special Duties), Director (Monitoring and Evaluation), and later appointed the Secretary, National Poverty Eradication Programme (NAPEP). He also served as Director, Nigeria Air Force, and Director (Human Resources) Ministry of Defence, as well as Director (Human Resources, Inspectorate and Management Services), Ministry of Foreign Affairs. Dr. Mou further served as Special Adviser (National Security Affairs) to the National Security Advisers in the Presidency, under three consecutive Nigerian Governments. He has published extensively in scholarly journals and books. His bestsellers are: National Security and Democratic Governance in Nigeria; State Power, Agrarian Policies and Peasant Welfare; National Security, Good Governance & Democracy in Africa; Making of An African Giant: State, Politics and Public Policy in Nigeria, Vol. 1 & 2; Girl Child Education, Democratic Governance & Sustainable Development in Africa. His blessed marriage to Mimidoo Osewe is rewarded with children. E-mail: [e-mail].

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© 2017 Dr. Dan Mou. All rights reserved.

No part of this book may be reproduced, stored in a retrieval system, or transmitted by any means without the written permission of the author.

Published by AuthorHouse 01/13/2017

ISBN: 978-1-5246-6804-4 (sc)

ISBN: 978-1-5246-6803-7 (e)

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Because of the dynamic nature of the Internet, any web addresses or links contained in this book may have changed since publication and may no longer be valid. The views expressed in this work are solely those of the author and do not necessarily reflect the views of the publisher, and the publisher hereby disclaims any responsibility for them.

CONTENTS

Endorsements of Dr. Dan Mou, The Author’s Books

Acknowledgements

Preface

Glossary of Abbreviations

PART IV: NATIONAL SECURITY AND BUREAUCRATIC REFORMS IN POST-MILITARY RULE NIGERIA

Chapter 15: Managing the Civil Service: Towards Comprehensive Civil Service Reforms in Post-Military Era

Chapter 16: The Public Service, Democratic Governance And Anti-Corruption Efforts in Post-Military Era

Chapter 17: Refocusing Strategies for Managing Political Conflicts in the Design and Implementation of Public Policy in Post-Military Era

Chapter 18: Monitoring and Evaluation of Public Policies, Programmes and Projects in Post-Military Era

Chapter 19: Issues and Challenges in the Coordination, Monitoring and Evaluation of Poverty Reduction and Related Projects in Post-Military Era

Chapter 20: National Security Management and the Mass Media in Post-Military Era

Chapter 21: Understanding the Causes of Student Crises in Post-Military Era

Chapter 22: Economic and Financial Crimes Control in Post-Military Rule Era

Chapter 23: Territorial Integrity and Nigeria’s Air Defence System in Post-Military Rule Era:A Case for the Formation of an Integrated Air Defence System for Nigeria

PART V: INTERNAL SECURITY, POVERTY ERADICATION AND INCLUSIVE GROWTH IN POST-MILITARY RULE NIGERIA

Chapter 24: Internal Security, Poverty Eradication and Inclusive Growth in Post-Military Rule Era

I   Introduction

II   Internal Security, Poverty Eradication and Inclusive Growth: Conceptual Issues

(i)   Dynamics of Poverty and Poverty Reduction

(ii)   The Concepts of Inclusive Growth and Development

(iii)   Internal Security and the Scope of Inclusive Growth in Plural Societies

(vi)   Good Governance and Inclusive Growth

(v)   Democracy and Inclusive Growth

III   THE NIGERIAN EXPERIENCE IN POST-MILITARY RULE ERA

(i)   Good Governance, Poverty Eradication and Inclusive Growth:

(a)   Performance of Public Corporations

(b)   Public Corruption

(c)   Inequalities in Public Appointments

(ii)   Democracy, Poverty and Inclusive Growth

(a)   Military Imposed Constitution

(b)   Substance of Democracy

(c)   Performance of Elected Government

(d)   Nature of Party Partnerships and Alliances

(iii)   Poverty Eradication and Inclusive Growth

IV   TOWARDS THE RELEVANT POLICY STRATEGIES: COORDINATION, MONITORING AND EVALUATION

(A)   COORDINATION

(i)   System-Oriented Coordination

(ii)   Service-Oriented Coordination

(iii)   Top-down and Bottom-up Coordination

(B)   BENEFITS OF COORDINATION

(i)   Benefits to both Clients and Programmes:

(ii)   Benefits to Ministries, Departments and Agencies (MDAs):

(iii)   Improvements in Efficiency and Effectiveness of Service Delivery:

(C)   CHALLENGES OF COORDINATION

(i)   Bureaucratic barriers and turf-protection:

(ii)   Problems Associated with Harmonization of Philosophies, Mandates and Visions:

(iii)   Accountability and Performance Standard Issues:

(iv)   Incompatibility of Management Information Systems and MDAs’ Culture:

(v)   Different Eligibility Requirements:

(D)   MONITORING AND EVALUATION: ISSUES AND CHALLENGES

i.   The Purpose of Monitoring and Evaluation

ii.   Tools for Monitoring and Evaluation of Poverty Eradication Efforts

iii.   Key Performance Indicators (KPIs)

iv.   The Logical Framework Approach

v.   Theory-Based Evaluation

vi.   Formal Surveys

vii.   Rapid Appraisal Methods

viii.   Participatory Monitoring and Evaluation Method (PM&E)

ix.   Other Measures

(E)   CHALLENGES OF MONITORING AND EVALUATION

i.   Low Capacity for Carrying out M&E Activities

ii.   Absence or Rudimentary Nature of Management Information Systems

iii.   Perception of M&E as the Police in Most MDAs:

iv.   Lack of Collaboration and Coordination by MDAs on M&E

v.   The Lack of Sufficient Donor Support on M&E

vi.   Lack of M&E Outfits at State and local Government Levels

vii.   Dissemination and Utilization of M&E Findings

V   POLICY RECOMMENDATIONS

VI   CONCLUSIONS

PART VI: NATIONAL SECURITY AND FOREIGN POLICY IN POST-MILITARY RULE NIGERIA

Chapter 25: Nigeria’s Foreign Policy and International Environment in Post-Military Rule Era

Chapter 26: Dependent Economic Policy, The World Bank and State Autonomy in Post-Military Rule Era

Chapter 27: Domestic Economic Crisis, International Lending Agencies and Structural Adjustment Programmes in Post-Military Era

Chapter 28: Illegal Aliens and Domestic Social Order in the Post-Military Era

Chapter 29: Nigeria and Nepad in the Post-Military Era

Appendix I

Suggestions on how the Interim Governments are to be Constituted

Appendix II

Rethinking our Economic Policies: Suggestions on how the New Regime can Quickly Revamp the Economy

Appendix III

The State and Constitutional Reviews: Suggested Limitations and Modalities for the Constitutional Conference

Appendix IV

Rethinking the Transition Programme and Current Economic Policies

Appendix V

Workers, Probity and Democracy: Deregulating the Nigerian Workers as Lasting Solution to the Minimum Wage Controversies, Brain Drain, Public Corruption & Low Worker Productivity in Nigeria

Appendix VI

President Obasanjo and Nigeria’s New Foreign Policy: Towards a Dynamic Conduct and Management of our External Relations Under a Democratic Order

Appendix VII

Proposal for the Establishment of a National Economic and Financial Crimes Agency (Nefca) in Nigeria

Appendix VIII

Preparing the Federal Civil Service to Cope with the Challenges of Democratic Governance, Uncertainties and Opportunities of the 21St Century World

Appendix IX

Towards the Need for the Computerisation of the Federal Civil Service

Appendix X

National Security and the Brewing Catastrophe in Niger Delta: Rethinking Current Agenda for Restoring Order in the Niger Delta and Fast-Forwarding the Attainment of President Yar’adua’s Vision for Nigeria

Appendix XI

The Transformation Agenda and Nigeria’s New Foreign Policy: Towards a Dynamic Conduct and Effective Management of Our External Relations Under President Goodluck Jonathan’s Administration

Appendix XII

Rethinking and Perfecting the Ongoing Public Service Reforms: Deregulating the Nigerian Workers as Lasting Solution to the Minimum Wage Controversies, Brain Drain, Public Corruption and Low Worker Productivity in Nigeria

Appendix XIII

The Public Service, Public Corruption, Job Creation and Productivity: Establishing the Foundations for Unlocking Part Time and Temporary Workforce by Deregulating Workers in Nigeria

Appendix XIV

The Public Service, Public Corruption, Job Creation and Productivity: Deregulating Workers as Lasting Solution to Minimum Wage Controversies, Brain Drain, Public Corruption and Low Worker Productivity in Nigeria

Appendix XV

Restoring Nigeria’s Progressive Foreign Policy In Contemporary International Environment: A Proposal To Constitute A Presidential Committee To Review And Produce Blue Print For A New Progressive Foreign Policy For Nigeria Under President Muhammadu Buhari Administration

Appendix XVI

Proposal for Establishment of a National Empowerment and Inclusive Growth Commission to Carter for 71% (Seventy One Percent) of Nigerians still in Mass Poverty, Excluded from Enjoying Dividends of Democracy and Development in their Own Country.

About the Book

About the Author

Recent Books by the Author

ENDORSEMENTS OF DR. DAN MOU, THE AUTHOR’S BOOKS

• These books are a must read. Dr. Dan Mou, a world-class trained political scientist, who has served at various Ministries and parastatals in Nigeria before retirement, has made stoning revelations. Lead Times Africa Magazine

• Dr. Dan Mou, a varsity don and seasoned civil servant, (who) spent over two decades working in Nigeria’s Presidency, provides deep insights in these books, into the intractable security situation in Nigeria and Africa, among other issues. Daily Trust

• Dr. Dan Mou, an accomplished political scientist and public servant with a firm grasp of national security and public policy … has revealed a lot in his new book: Making of an African Giant: State, Politics and Public Policy in Nigeria, Volumes 1 & 2. Public policy and the state of affairs in Nigeria is the focus of this excellent and well researched book filled with the authors contributions toward a better and prosperous Nigeria … Dr. Mou rightly predicted what we are currently witnessing in Nigeria in this excellent book that all Nigerians should read. The Nation

• I did not only get autographed copies of the book … which incidentally is filled with the author’s contributions toward a better and prosperous Nigeria. … how would I have known that this was the man that wrote a personal Memo to former President Olusegun Obasanjo that led to the establishment of the Economic and Financial Crimes Commission (EFCC)? How would I have also known that he was equally the brain behind a personal Memo that led to the establishment of the Ministry of Niger Delta Affairs and the Amnesty Programme that brought relative peace to that hitherto restive region? … It can be quite painful doing the ‘donkey job’ without being appreciated. In all this, did I detect any hint of bitterness in Dr. Mou? Not at all. He is still contributing his quota to ensure Nigeria gets back on the right track. This is surely one optimistic Nigerian. The Nation.

• Having successfully designed and masterminded many workable national schemes in the past in Nigeria, like the memoranda that led to the establishment of the EFCC (Economic and Financial Crimes Commission), Ministry of Niger Delta Affairs, the Amnesty Programme for the Niger Delta Region Militants, to mention just a few … Dr. Dan Mou, in these books, has (proposed) permanent solutions to these public policy challenges. … it is no fallacy to say that no one else could have done it better. Dr. O.W. Bashorun, Provost, College of Education, Lagos, Nigeria

• I am very impressed with their theoretical scope, command of extant literature and methodological sophistication. Dr. Mou’s books should be of immense interest to a broad range of scholars – from political theorists, to political economists as well as African area specialists. Professor Crawford Young, Department of Political Science, University of Wisconsin-Madison, U.S.A.

• "There is this perception that Nigerians don’t write and read. This perception is deep seated, even among intellectuals who see our authors as shallow researchers. But Making of an African Giant by Dr. Dan Mou, has debunked that myth and shown that Nigerians can write well researched and detailed books. So we have to ensure that readers know the book exists … It is quite prophetic in its assessment of the Nigerian State." Agbo Agbo, Columnist, The Nation Newspaper.

• "Dr. Dan Mou’s Making of an African Giant: State, Politics and Public Policy in Nigeria Volumes 1 & 2 which cover 1,860 pages, are not just mere books. They are clearly encyclopedia. Everything you want to know about the State, Politics, economy and society in Nigeria is there!" Dr. Yima Sen, Senior Lecturer, Department of Mass Communication, Baze University, Abuja, Nigeria.

• Dr. Dan Mou … Thanks for contributing to knowledge. Your books are highly expository and full of discoveries … We are very proud of you. S.A. Raofu, Chairman, Committee of Deans, AOCOE, Lagos, Nigeria.

• "I have bought and read these Dr. Mou’s books. It is clear now that I am one of his quiet admirers … Dr. Mou is certainly one of the best scholars we have on the African continent … As an educationist myself, before I became a Traditional Ruler, I agree totally with his analysis and conclusions in these books. In particular I recommend these books to governments, politicians, policy makers, educationalists and the general public.

• I share the optimism Dr. Mou has expressed in these books, that once the recommendations therein are adopted and meticulously implemented, with proper monitoring and evaluation of such resultant policies and programmes, Nigeria and indeed Africa, would be able to solve most of the challenges currently associated with national security, good governance and democracy on the continent.

• Buy these books, read these books and above all, take the necessary steps to implement the policy recommendations Dr. Mou has offered therein all over the continent of Africa. Well done, Dr. Mou." HRH Alh. (Dr.) Sheban Audu, Nizazo III, Etsu Kwali, Etsu Kwali’s Palace, Abuja, Nigeria.

• "The purpose of Dr. Dan Mou in these books is certainly to stimulate international policy debate on the problems associated with sustainable development, national security, good governance and democracy in Africa. Dr. Mou, a reputable public policy expert of world-class standing, who had also worked for three decades at the highest level in the Public Service of Nigeria, and currently serves as a Member of the Presidential Jobs Board in the Presidency at Abuja, has done an excellent work in these books.

• I am very thankful to God and to Dr. Mou that these seven books are now available for all to read. I hope that the rich content of these books will generate the needed debate, awareness and stimulate concrete policy actions to tackle these issues in Africa that would guarantee maximum positive results.

• I recommend these books as a must-read for educationists, scholars, policy makers, politicians and the general public." Dr. Edet B. Ekpenyong, President, Pan African Girl Child Education Foundation, Abuja, Nigeria.

• "I thank God for having the opportunity to read four of Dr. Dan Mou’s recently released books on different subjects relating to Nigeria and Africa as a whole. The ones I have so far read are:

Making of an African Giant: State, Politics and Public Policy in Nigeria, (Volumes I and 2); National Security, Good Governance and Democracy in Africa; State Power, Agrarian Policies and Peasant Welfare in Nigeria – all published by AuthorHouse in Bloomington, Indiana, USA; and Girl Child Education, Democratic Governance and Sustainable Development in Africa, published by Pan African Publishing House, Abuja, Nigeria.

Dr. Dan Mou has proven himself a world-class scholar and an intellectual colossus. His reputation as an internationally renowned public policy expert has continued to soar…

Dr. Mou’s books are meant to solve African problems and they surely would. These books of a literary icon are strongly recommended for intellectuals, policy makers, and even for the general readers. I congratulate him for these remarkable achievements." Professor Justice Abdul Fatai Kuti, First Justice of Abuja High Court; and former Dean, Faculty of Law, University of Ado Ekiti, Ekiti State of Nigeria.

• "Dear Prof. Dan Mou,

Congratulations for these stimulating and wonderful books. Yes, this is you! … I believe these books would make landmark contributions to knowledge! Well done… Best Regards." Gen. Chris A. Garuba, CFR., Former Military Governor of Bauchi State, Nigeria.

• "Professor Dan Mou,

Congratulations for these two outstanding text books: Making of an African Giant: State, Politics and Public Policy in Nigeria, Volumes I and 2. This is what Professors should be doing to promote academic excellence. Your achievements do not come as a surprise to me. You are really worth this! Warm Regards." Dr. Elijah Apine, Senior Lecturer, Faculty of Sciences, University of Jos, Nigeria.

ACKNOWLEDGEMENTS

A ccomplishing any task in life, small or big, I have always believed, requires God moving other men and women to make contributions to it. This book has not been an exception. It is impossible to even mention all the persons who helped me in the course of writing this book.

My intellectual fathers: Professors Crawford Young, Murray Edelman and Fred Hayward, especially during my graduate studies in the early nineteen eighties at the Department of Political Science, University of Wisconsin – Madison, U.S.A., have continued to influence me with their critical intellectual tradition. This has become quite observable in most of my writings, including the present book. For this, I am ever grateful to them.

It is one thing to be involved in the study of national security and good governance as a scholar. It is yet another to be offered series of opportunities to actually put in practice, some of your theories and perspectives. God has kindly afforded me the chance to do both over the years.

Since 1989 when I joined the Presidency in Nigeria from the academia, I became involved in one way or the other, with the practical policy issues of national security and good governance under virtually all Nigerian Governments to date. I am, therefore, very grateful to the following Heads of States or Presidents: General Ibrahim B. Babangida, Chief Earnest Shonekan, late General Sani Abacha, General Abdulsalami Abubakar, Chief Olusegun Obasanjo, late Alhaji Umaru Musa Yar’Adua, Dr. Goodluck Ebele Jonathan and President Muhammadu Buhari. I am thankful and appreciative to all of them for the opportunities and privileges they gave me to be involved in their administrations and governments.

I wish to also acknowledge the Vice-Presidents of the Federal Republic of Nigeria, especially Architect Namadi Sambo for his able Chairmanship of the Presidential Jobs Board in the Presidency. It was a great honour for me that I was also appointed to serve as a Member of this Presidential Jobs Board with him by the then President of the Federal Republic of Nigeria, Dr. Goodluck Ebele Jonathan, for which I am most grateful. I am also grateful and appreciative to Professor Yemi Osinbajo for commending me in writing for the little contributions I have so far made to the President Buhari’s Government, of which he is a key pillar.

To my former immediate bosses, the National Security Advisers to the Presidents and Commanders-in-Chief, The Presidency, Abuja, Nigeria, namely Alhaji M.A. Gambo, General Aliyu Mohammed Gusau and Alhaji Ismaila Gwarzo, whom I served as their Special Adviser (National Security Affairs) consecutively in that order under different Nigerian Regimes, I am ever grateful for the trust and opportunity to serve. Those practical experiences have, no doubt, impacted on my views in this book.

I am also very grateful to Engr. Rabiu Musa Kwankwaso, former Hon. Minister of Defence, during President Olusegun Obasanjo Administration. I served under him as the Director of Nigeria Air Force. Engr. Kwankwaso gave me a free hand and total support to preside over the Affairs of Nigeria Air Force in a manner I never thought possible under any Minister. He and President Olusegun Obansanjo deserve the greatest appreciation for restoring the Nigerian Air Force to an enviable Force after years of degeneration, surprisingly under the long period of Military Rule in Nigeria. I also appreciate the former Chief of Air Staff, Air Marshall J.D. Wuyep. He proved to me to be the best CAS. He was, of all those CAS who worked with us, more dedicated to his job as a professional and an apolitical officer, with the highest level of transparency and integrity. No wonder the remarkable results he accomplished to the great administration of us all, especially the Air Force officers and men.

In the main Federal Civil Service, two of my mentors deserve special thanks. First is Dr. Yayale Ahmed, the Former Head of the Civil Service of the Federation, under whom I also served. He was not just a boss to me but became my father in the Service whom I could run to for advice and assistance. This fatherly relationship has continued till date. I wish to also thank the former Permanent Secretary, Public Service Office, Late Mallam Umaru Aji. He was my boss and confidant when I served under him as the Director of Special Duties.

I must acknowledge and appreciate the remarkable contributions of Gen. Chris A. Garuba (Rtd.) and Assistant Inspector General of Police, Dr. Rose Abang-Wushishi (Rtd.) to this book and my career generally. I first met both of them as my students. I lectured Gen Garuba (then Lt. Col.) and supervised his Master’s thesis in Public Policy and Strategic Studies at University of Jos, Nigeria. I also taught Assistant Inspector General of Police, Dr. Rose Abang-Wushishi (then Commissioner of Police), National Security Policy during her Executive Course for Commissioners of Police at the Police Staff College, Jos, Nigeria.

Later, they became my friends, co-authors, mentors, biggest fans and cheerleaders, whenever I felt discouraged. Indeed, they have over the years, formed my most valuable support system, expressing more faith and confidence in my ability to accomplish tasks than I have in myself. They made the completion of this rather huge book possible.

Professor Magnus Kpakol, the former National Coordinator of the National Poverty Eradication Programme (NAPEP) also deserves special appreciation. I served under him as Director, Research, Monitoring and Evaluation, and subsequently as the Secretary of NAPEP. I had a cordial working relationship with him and constant intellectual stimulation for which I remain appreciative.

I must also not fail to acknowledge two other special people here. First, my Senior Friend, to use my nickname for him, Professor Justice Abdul Fatai Kuti, First Justice of Abuja High Court in Nigeria, and former Dean, Faculty of Law, University of Ado Ekiti, Ekiti State of Nigeria. Professor Justice Kuti has been a model, mentor, Senior Friend and Father to me. His total commitment to values of justice, fairness, integrity, humility and anti-corruption in public service drew us together miraculously.

When he heard from high governmental circles that I had in fact been the main author of the private security policy memorandum to former President Olusegun Obasanjo that led to the establishment of the Economic and Financial Crimes Commission (EFCC) in Nigeria, as well as the one to late President Umaru Musa Yar’Adua that gave birth to both the Ministry of Niger Delta Affairs in Nigeria and the Amnesty Programme for the Niger Delta Militants that brought about relative peace to that crises-prone region of our country, he sent for me. I was in fact, going to see him with substantial apprehension in me wondering what I must have done for a Justice of Abuja High Court of Nigeria to be sending for me. I had never met him in my life before this particular incident.

On arrival, he jumped from his seat and hugged me. He then explained how he learnt from some key officials of the Nigerian Government about the role I had played in bringing about the Economic and Financial Crimes Commission (EFCC), the Ministry of Niger Delta Affairs and even the Amnesty Programme for the Niger Delta Militants that brought about relative peace in the Niger Delta Region of Nigeria. He thanked me for my patriotism and expressed his shock that none of those Presidents I did these things for or the Federal Government of Nigeria, thought it wise to give me even a National Honour for the remarkable achievements or compensated me with any significant appointment when the EFCC and the Ministry of Niger Delta Affairs were established.

He expressed his total disappointment that I was not even invited to serve on the Amnesty Committee that was set up to implement the Amnesty Programme that arose from a private security policy Memo that I was the main brain behind it. He told me what the Federal Government did was very unfair and gross injustice to me. I told him how I was frankly honoured and appreciative of his action of inviting me to let me know his feelings. I informed him that I was grateful to God for the opportunity and grace He gave me to be part of the history of the emergence of the EFCC, Ministry of Niger Delta Affairs and the Amnesty Programme in Nigeria.

Moreover, I told Justice Kuti that I was sincerely grateful to the various Presidents, especially Chief Olusegun Obasanjo and late Alhaji Umaru Musa Yar’Adua who, saw the merit in these private proposals and graciously accepted and implemented them during their regimes for the benefits of Nigeria and Nigerians. I am truly thankful to Professor Justice Kuti for the action he took to encourage and appreciate the modest roles I had played in bringing about the EFCC, the Ministry of Niger Delta Affairs and the Amnesty Programme in Nigeria.

The second person I would also like to acknowledge is Dr. Sam Oga, Editor-in-Chief of Lead Times Africa Magazine. Dr. Oga learnt of my role in the emergence of the Economic and Financial Crimes Commission (EFCC), Ministry of Niger Delta Affairs and the Amnesty Programme for the Niger Delta Militants in Nigeria. He was equally shocked and disappointed that the Newspapers even in Nigeria, had not carried these stories detailing my key roles in these clearly worthwhile ventures in Nigeria.

He sought and obtained my phone numbers, called me and booked an appointment to come from Lagos with a team of Journalists from Lead Times Africa Magazine to interview me on these matters in Abuja. I granted his request. After the interview, they brought out the stories on these issues comprehensively in the Lead Times Africa Magazine issue of June-July, 2013 Vol.5, No.3 and carried my full portrait on the Cover of this issue of the Africa Magazine under the caption: "What Wushishi and I, had in Mind When we Conceived the EFCC – Dr. Mou".

The Magazine again did another interview with me a few months later, seeking to know my views, among other things, on how the massive Public Corruption in Nigeria can be controlled. Again, it carried this interview comprehensively in the Lead Times Africa Magazine’s issue of September-October, 2013, Vol.5, No.4. My portrait was again carried on the front Cover of the Africa Magazine under the caption: "Tackling Corruption in Nigeria by Monitoring and Evaluation – Dr. Mou".

I thank Dr. Oga and his team for these very kind gestures. I understand from those who know that one is normally expected to pay the Magazine or Newspapers to have these full and comprehensive coverage with ones portrait on the front Covers. Yet, they did not ask me for any kobo for giving me such extensive and sustained publicity. This has made me even more appreciative to Dr. Sam Oga and his team of Editors.

Ever since these stories broke out, I have had similar free extensive coverage severally, from Lead Times Africa Magazine, The National Chronicle Magazine, The African Guardian; The Weekly Trust, The Nation, The Vanguard, among others, including the Social Media. For all these show of support and free publicity, I am very grateful to the Editors of these Newspapers and Magazines. I am even more grateful to those who anchored these stories, namely, Dr. Sam Oga, Publisher/Editor-in-Chief of Lead Times Africa Magazine; Dr. (Amb.) Godwin T.I. Nyitse, Publisher/Editor-in-Chief of National Chronicle Magazine; Dr. Monday Evawomaha of The Guardian; Terfa Doki of Daily Trust; Agbo Agbo, Deputy Editor, of The Nation and Hugo Odiagor of The Vanguard, among others, who have covered me several times. I am most grateful to all of them.

In a recent review of my new book titled: Making of an African Giant: State, Politics and Public Policy in Nigeria Volumes 1 and 2 (AuthorHouse UK Ltd.: London and Bloomington, Indiana, 2015), Agbo Agbo once again stated in The Nation of January 14, 2016 and January 21, 2016 what has now become a recurring decimal that:

Dr. Dan Mou, an accomplished political scientist and public servant with a firm grasp of national security and public policy … has revealed a lot in his new book: Making of an African Giant: State, Politics and Public Policy in Nigeria, Volumes 1 & 2. Public policy and the state of affairs in Nigeria is the focus of this excellent and well researched book … Dr. Mou rightly predicted what we are currently witnessing in Nigeria in this excellent book that all Nigerians should read …

I did not only get autographed copies of the book … which incidentally is filled with the author’s contributions toward a better and prosperous Nigeria … How would I have known that this was the man that wrote a personal Memo to former President Olusegun Obasanjo that led to the establishment of the Economic and Financial Crimes Commission (EFCC)? How would I have also known that he was equally the brain behind a personal Memo that led to the establishment of the Ministry of Niger Delta Affairs and the Amnesty Programme that brought relative peace to that hitherto restive region? … It can be quite painful doing the ‘donkey job’ without being appreciated. In all this, did I detect any hint of bitterness in Dr. Mou? Not at all. He is still contributing his quota to ensure Nigeria gets back on the right track. This is surely one optimistic Nigerian.

Not only do I thank Mr. Agbo Agbo for his positive review of my books, I agree totally with him that I am surely one optimistic Nigerian, who was simply making his modest contributions and sacrifices to the development, progress and prosperity of Nigeria and Nigerians. There were no other motives whatsoever in my actions. I was simply being patriotic and overtly concerned for the precarious conditions that existed in the country at that time that were affecting negatively our national security and development, hence I took the initiatives to do the things I did. Besides, I am very grateful to God for the Grace and thankful for the opportunity kindly given to me by the various Presidents to make those inputs into their Administrations by implementing those private policy suggestions, I and my close friends, Dr. Rose Abang-Wushishi and Gen. Chris A. Garuba, made to them.

This attitude to contribute whatever I can to the progress, peace and development of our Nation even when not in power, has prompted me to even write a book advising my fellow Nigerians and others, titled: SERVING THE NATION AS A CALLING: How Experts can Influence Public Policies Even When Not in Power (AuthorHouse UK Ltd.: London and Bloomington, Indiana, forthcoming). I believe strongly that this book will encourage many Nigerians and even other Nationals to make whatever contributions they could freely to their Governments and leaders regardless of whether they will be rewarded or not. This certainly is not to be seen merely as performing a ‘donkey job’, as even I initially believed. If nothing else, God does reward us for such selfless services and sacrifices, not just now, but even in eternity.

My Special Assistant, Dr. Joseph Wanshe, read the draft of this book when I completed it and made useful suggestions. My Secretary, Paul Ojulo Ibejiro and son, Truth Tine Mou, did the typing, proofreading and final touches. It was also my son, Tine, who produced the cover designs for the books. I am thankful for their time, efforts and talents.

I also appreciate the contributions of the wonderful team at AuthorHouse Publishing Company in Bloomington, Indiana, U.S.A., especially my Publishing Consultant, Cesaer Lambo, Check-in-Coordinator, Valerie Raines, and the Design Consultant, Kim Cavannah.

As with every book I have ever written, my wife Mimidoo Osewe Mou and our wonderful children have always shown support, love and understanding that made it easy for me to write. For this, I am very grateful to them. The ultimate gratitude for this book, however, goes to God. It is His Empowerment and Divine Direction that made it all possible. His Amazing Grace over my life shall endure forever and ever in Jesus Name, Amen.

Dr. Dan Mou

Aso Rock Villa

Abuja, Nigeria

Nov., 2016.

Email: [e-mail]

PREFACE

T his book shows that groups and social classes which had hitherto been docile in Nigeria, especially under military rule, are now becoming very active or even militant. They are demanding for dividends of democracy and development. These had long eluded the seventy-one percent (71%) of the country’s population still languishing below the poverty line, according to the National Bureau of Statistics (NBS). This is in spite of the Billions of petrodollars that Nigeria has garnered as revenue over the years.

The book warns that the demands of these Nigerians still living in poverty, which include poverty eradication, job creation, human rights protection and inclusive growth, must be quickly and successfully addressed through good governance and inclusive growth. Otherwise, one does not need to be a political prophet to predict that the country will be confronted with severe security, political, economic and social problems more than what is happening at the moment.

It concludes, however, that under such intense pressures, the Government of Nigeria, even if it is simply for its self-preservation, will be forced by the objective conditions, to move against the interests of the dominant groups and classes in Nigeria. These are the ones that have for long captured and hijacked state power and the resources of the country, for their exclusive use.

This will entail significant policy and ideological changes on the part of the Government to carter for the welfare and the well-being of the seventy-one per cent of Nigerians still living below the poverty line. It is only then that national security, good governance and democracy in the post-military era will be regarded as a total blessing to Nigeria and her peoples. It is also when this happens that Nigeria would have been on the road to becoming truly the African Giant which she hopes to be by destiny.

Dr. Dan Mou

Aso Rock Villa

Abuja, Nigeria

November, 2016.

Email: [e-mail]

GLOSSARY OF ABBREVIATIONS

PART IV

NATIONAL SECURITY AND BUREAUCRATIC REFORMS IN POST-MILITARY RULE NIGERIA

CHAPTER FIFTEEN

MANAGING THE CIVIL SERVICE: TOWARDS COMPREHENSIVE CIVIL SERVICE REFORMS IN POST-MILITARY ERA

INTRODUCTION

I n Africa, just as in most developing countries of the world, the State has tended to assume a major role in the process of socioeconomic development and political transformation. Yet, the performance of the State within these social formations has recently been vehemently criticized. This is regardless of whether one is talking about authoritative allocations ¹ or the legitimation of the prevailing social order. ² In fact, the poor performance of state policies and their bureaucracies have generated intense internal crises and legitimation problems for these societies. ³

Whether one is concerned with value allocations or political system legitimization, how the Civil Service is managed to ensure the effective delivery of goods and services in the society, becomes critical and very important. This is because either functions - value allocations or political system legitimization would be adversely affected if the Civil Service in a given society or nation is not properly and effectively managed.

In this chapter, I propose to discuss how the Civil Service can and should be managed in order to maximize the realization of the twin goals mentioned above. The point of departure here is that, as the link between government and the citizens, through service delivery, the Civil Service needs to be taken more seriously in order to ensure the survival of the nation-state, guarantee the wellbeing of the citizens and even the stability of the government in power. Any policy or action that frustrates the Civil Service will, inevitably, undermine the entire system.

What are the best practices and strategies for properly and effectively managing the Civil Service? What challenges and prospects tend to arise in the process especially in a post-military rule era? These are some of the issues to be discussed in this chapter.

CONTENDING PERSPECTIVES

The Civil Service is basically an organization, mainly bureaucratic in nature that is deliberately staffed, organized, funded, equipped and guaranteed continuity. Its main purpose is to provide neutral, dispassionate, unemotional and non-partisan advice for the formulation of public policy and undertake their implementation, when made by the political authorities. By public policy here, following Thomas R. Dye’s exposition, one is referring to what the government chooses to do or not to do. In other words, it is not just what governments do that constitutes public policy; sometimes, what is not done may even have far more consequences than what is done.⁵

The quality of public goods and services provided in any society is a direct function of the quality and effectiveness of its Civil Service. This is especially so in cases where the political leadership have been formulating good’’ public policies. By good’’ here we mean those that are in the public interests, when implemented. Hence, the relevance of the Civil Service in any modern society.

Management, on the other hand, can be defined in several ways. However, for our purposes here, two will suffice. First, most management textbooks and experts, define management as getting work done through others.⁶ This is indeed the most popular approach to defining management. Myron Rush has correctly pointed out, this way of defining management tends to give managers and leaders the ‘right’ to control and exploit those under them, even though it need not necessarily be so.⁷

There is no question, however, that following this philosophy of management, as using people to accomplish goals, there is a great measure of abuse. As Rush argues correctly, most leaders and managers tend to use their authority and power to ‘lord it over’ the people under them, though the most enlightened ones do not. ⁸ Besides, this authoritarian approach to management is prone to stimulating discontent, frustration, and negative attitudes towards the management or leadership.

This kind of management approach also creates relationship problems between the workers and management as well as between Civil Service managers and the political authorities, thus, resulting in very poor productivity. Using purely authority and power to control people or staff and pressure them to produce, de-motivates them instead. When this happens, it leads to declining productivity and job dissatisfaction.

The second approach to management is the one that sees management as ‘‘meeting the needs of people as they work at accomplishing their jobs." ⁹ Myron Rush argues, persuasively, that as the leader or manager gives himself to serving the needs of those under him, he will make a happy discovery. People will voluntarily, eagerly, and continually meet his needs in return, as well as perform the tasks given to them more readily and effectively.¹⁰

If the Civil Service is to accomplish its purpose, or as Myles Munroe puts it, its original intent,¹¹ then leaders and managers must adopt the latter approach to managing it. Unfortunately, it is the former approach to management that seems rather predominant in our world today. Effective management is one that allows those under you to maximize and actualize their potentials.¹² By potentials here, we mean latent abilities. Wherever and whenever this happens, motivation, job satisfaction and therefore, productivity go up.

Management models that have informed Civil Service practice and administration can be grouped into four major categories. Even though a detailed theoretical discussion is not intended in this chapter, it is nevertheless important to give a brief sketch here of extant management and administrative models to place this analysis within a theoretical frame. These categories are:

(i) The Motivation Models; (ii) The Scientific Management Models; (iii) The Human Relations Models; and (iv) The Human Resources Models.

i. Motivation Models of Civil Service Management

The motivation models of Civil Service management can be sub-divided into three sub-models, viz: the instinct theories; the reinforcement and drive theories and the cognitive dissonance theories.

The common theme among them is that they are psychological and psychiatric in nature. They all lay claim to the fact that understanding the psychological basis of human nature is critical to fathoming the behaviour of Civil Servants. Such knowledge will certainly help the leader or manager to cope with office and organizational challenges.

Its cognitive variant, for instance, posits that the determinant of human behaviour are the belief systems, expectations and anticipations an individual has of situations and events.¹³ Hence, behaviour is seen as purposeful and goal directed, based on rational considerations and decisions. Behaviour is, thus, seen as a choice based on well considered options.

The fact that certain behaviours could be culturally or even structurally determined is never explored by these models. In point of fact, every Civil Servant knows that the Service operates with well laid out values and regulations.

Such a freewill approach, as implied by these theories, seems partially incorrect. Certainly, Civil Servants are not robots, moved simply by rules and regulations. There is some amount of room for choice and creativity. However, they are never given the autonomy to act and choose freely as these models suggest. They must always operate within defined structures, rules and regulations.

ii. Scientific Management Models

Frederick W. Taylor and other scientific management experts, tend to see the problem of productivity and production as management determined. Workers were seen as of little consequence, since what they do or fail to do, is determined by the managers and leaders.¹⁴

For instance, they argued that it was managements’ responsibility to set criteria, locate and recruit suitable people for the jobs and then train them in the most efficient techniques and methods of carrying out the tasks. The workers, in turn have been properly trained and management will next determine appropriate wages and other incentives that would cause them to maximize their remuneration by doing exactly as directed by management.

The scientific management model has certain basic assumptions regarding workers. For one thing, it believes that workers are generally lazy, dishonest, corrupt, aimless, dull and mercenary in what they do at work. Consequently, to do what management desires would require that they be paid appropriate or living wages. Once the wages are right, workers could easily tolerate the routines, monotonous, highly fractionated and boring jobs, say of the factory or Civil Service.

The task of management, from this perspective, becomes simply one of closely monitoring and supervising the workers. This ensures that they keep to targets, production quotas and delivery schedules. This perspective is only partially correct. Good pay and incentives have a role to play. However, its authoritarian and carrot and stick approach, led to dissatisfaction on the part of both workers and management. This development has given birth to new management models, as discussed below.

iii. Human Relations Models

The human relations models argue that economic needs are not the only determinants of workers’ behaviour, as alleged in the scientific management school. They made a case for the management to look at the whole person. The position such scholars took, such as illustrated by S. Mayo was that, failure to treat workers as human beings came to be regarded as the cause of low morale, poor craftsmanship, unresponsiveness and confusion.¹⁵ The human relations approach insists that management has a responsibility to ensure that employees feel useful and important on their jobs. They also insist that workers’ social and other needs be looked into, beyond the usual economic concerns. This led management experts to shift attention away from studying man-machine relations, towards focusing on inter-personal and organizational group relations.

Under this model, managers and leaders are encouraged to move away from seeing themselves as taskmasters. Instead, they were to become equally concerned with and show understanding for the needs and desires of subordinates. However, this human relations model became seen as highly manipulative and not really different from the scientific management approach.¹⁶

iv. Human Resources Models

As Miles articulated it powerfully in his book, appropriately titled: Human Relations or Human Resources, dissatisfaction with the manipulative orientation of the human relations models gave birth to other ones. Among these were McGregor’s theory Y;¹⁸ Likert’s System 4¹⁹ Schein’s complex man.²⁰ All of these presenting similar arguments.

However, it was Mile’s concept of human resources that became widely accepted as a better description of this group. Hence, it became widely accepted and adopted to date as enveloping the rest. The human resources models generally, tend to argue that human beings are motivated by a set of complex but related factors, such as income, need for affiliation, recognition, achievement, actualization and the desire to undertake meaningful work that contributes to others or the society:²¹ It assumes that different employees or workers tend to seek different goals in a job and come to it with a diversity of talents. Within this conceptual frame, employees are viewed as a reservoir of potential talents and the task of leaders or management is simply to learn how best to tap and utilize such resources for the benefit of their organizations or the Civil Service.

These human resources models go with a number of presuppositions. First, they assume that people normally want to contribute in their jobs. Thus, employees are seen as somehow pre-motivated to perform. As they become more concerned with contributing their quota to the organization; the jobs become more meaningful to them.

Second, they assume that work does not need to be distasteful. As Myles Monroe puts it:

You were born to achieve something significant, and you were destined to make a difference in your generation. Your life is not a divine experiment, but a project of providence to fulfil a purpose that your generation needs. This personal purpose is the source of your vision and gives meaning to your life. Work offers you an opportunity to do this.²²

Thus, many of the current efforts at job enrichment and job design are aimed at increasing the potential meaningfulness of work by putting in more amounts of task variety, autonomy and responsibility.

Third, they assume that employees are quite capable of making significant and rational decisions affecting their work. Therefore, allowing greater latitude in employee decision-making is actually in the best interest of the organization. On the whole, they all tend to assume that the degree of increased self-control and direction allowed on the job, coupled with completion of meaningful tasks, leads to more satisfaction on the job.

Hence, good and meaningful performance by employees is positively correlated to job satisfaction and not the reverse, as it is assumed under the human relations models. In contrast to the human relations models, management’s task, under the human resources models, becomes not one of manipulating employees to accept managerial authority. It is, instead, one of setting up conditions so that employees will better meet their own goals at the same time as meeting the organizational ones. It is this that guarantees that personal and corporate destinies are achieved or realized at the same time.

As far as effectively managing the Civil Service is concerned, it must be realized that all of these models have their advocates, and substantial empirical evidence in support of them. In short, studies have shown that the empirical evidence supportive of a given approach can be used to defend one’s preferred model or approach.²³ No one model can lay full claim to providing all the answers to all cases in the Civil Service.

For the purpose of this book, I have adopted a multiple strategy approach or as others have labelled it, a contingency approach to management.²⁴ Contemporary studies of management have relied on the concept of a multiple strategy or contingency approach. This allows the manager or leader to use all the models or approaches discussed above, at one time or another, depending upon the nature of the organization, the technology available, its peoples as well as its goals and priorities.

The merit of the multiple strategy or contingency perspective is that it allows the manager or leader to dispense with the unlikely assumption that a single approach will be equally effective and sufficient in any and all circumstances. Rather, it forces him or her to focus on the context, situation, organization or society in question. By so doing, it encourages an emphasis on diagnosis of the situation to determine which approach will be most useful and appropriate under the given situation, organization or society.

What follows is an analysis of issues involved in the management of the Nigerian Civil Service, against the backdrop of the theoretical discussions above. It is hoped that the lessons learnt there from this case study will have comparative applications to other developing societies, especially in Africa.

CONTEMPORARY CHALLENGES IN MANAGING THE NIGERIAN CIVIL SERVICE

In his inaugural broadcast to the Nation on the 29th May, 1999, the then President of Nigeria, Chief Olusegun Obasanjo, catalogued the failures of the Nigerian Civil Service and promised to take the necessary actions to ensure that it operates in a manner that would promote efficiency, productivity and accountability.²⁵ Such a Civil Service, he stated, was definitely required to complement other efforts that his Government was designing and putting in place in order to revamp the economy, promote rapid development and address the increasing problems of mass poverty in Nigeria. Without this, he argued, it would be impossible to guarantee service delivery or democratic dividends to the citizens and thereby improve the general well-being in the society.²⁶

The pre-occupation by any Government with fashioning out an efficient, effective, accountable and well managed Civil Service, is certainly not misplaced. As Marcus Olson Jr. has stated, any sincere concern for good governance requires a commitment to establish a more professional Civil Service with a stronger emphasis on performance and less influenced by patrimonial and ethnic loyalties. Sound governance is the most important factor distinguishing success in promoting sustainable human development from failure.²⁷

This sound governance depends largely on the quality of the Civil Service. It is perhaps not out of place to explain briefly here why the Civil Service is very significant and central in the art of governance. In any Governmental setup, it is the duty and responsibility of the Cabinet to determine Government policies and programmes on various social, economic, political and scientific matters. However, it is the duty of the Civil Service to help in formulating and implementing Government Policies and Programmes. To be able to assign responsibility for specific activities or groups of activities, the Civil Service is divided into ministries and extra-ministerial departments.

The Civil Service is a body or organ which enjoys continuity of existence as noted above. Its members; unlike members of the National Assembly or State House of Assembly, and even the Cabinet Members, are not limited to a short term of office at the end of which they may or may not return to office. These sets of public servants come and go, but civil servants remain in office. Even when a civil servant relinquishes his office, is retired or dismissed from Service, his place is usually taken up by another person who also enjoys security of tenure in the Service.

Civil Servants, as a collectivity or bureaucracy, command a pool of experience and knowhow for implementing Government Policies. Thus, the Civil Service is the instrument of the Government of the day; but neither the Service nor its members are supposed to be the partisan of any political party. They are neutral and do function under any party that forms the Government. The Civil Servant is required to assist in formulating and implementing the Policies and Programmes approved by the Government, whatever his personal or private opinions or attitudes may be. This is not to suggest that a Civil Servant should undertake illegal actions. If so directed to undertake such illegal activities, it is his duty to invite, immediately, the attention of the political authority to the legal position or requirement prevailing on such matters and advice on the proper course of action to be taken. He has a duty to also advice on the implications of the policy or action.

The Civil Service is, therefore, very significant and indispensable. Irrespective of the type of regime or party in power, the Civil Service must continue to perform its traditional role as a means of ensuring the orderly administration of the country.

The Civil Service in Nigeria has recently come under severe attacks regarding its poor performance, despite its significance and indispensability in the act of societal governance. A brief review of the Nigerian Civil Service shows clearly that it has been faced with a lot of challenges which have made it not to perform up to expectation. This further reinforces the pressing need for the ongoing Civil Service reforms in the country, which are aimed at quickly and drastically uplifting the performance of the Civil Service, as will be discussed below.

Independence in 1960 was greeted with a sense of nationalism and