CHAPTER ONE
1.0 INTRODUCTION
A country is distinguished not
only by its geographical location but of certain peculiarities which may either
be natural or have evolved over a period of time. Nigeria’s peculiarities
include; ethnic diversity, religious and cultural differences particularly the
feeling of superiority by an ethnic group over the other. It is remarkably
relevant to note that ethno-cultural and religious superiority have contributed
significantly to most of the problems in the country (Kukah,2003). Over the
years, several regimes have designed and constitutionalized some principles,
provisions, policies and programmes aimed at promoting peaceful co-existence
among the diverse ethnic nationalities. Specifically and currently too, section
14, subsection 3 of the 1999 constitution of Federal Republic of Nigeria (FRN)
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
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 or other
sectional groups in that government or in any of its agencies.
It is widely believed by
advocates of the principle that federal character would deeply promote nation
building, national integration both of which are sized as the panacea for peaceful
co-existence and manage
diversities and divisive tendencies through combination of policy alternatives
(Bodunrin, 1989; Ayoade, 2000; Abdullah, 2007).
Often times, these policy alternatives turn out to be
delicate arrangements; but when carefully conceived, crafted and practiced, it
provides opportunity for centre-seeking and centre-fleeing forces to interact
peacefully and co-habit on agreed terms which has been proved to have enhanced
productivity. One of such policy alternatives adopted for the management of the
public service in Nigeria for even representation is the federal character principle,
which was borne out of the need to ensure even spread of government
appointments in all the regions, states and local government councils in the
country (Nzeshi, 2012).
1.1 BACKGROUND TO THE
STUDY
Nigeria with a population of more than 170 million people and
has more than 250 ethnic groups which necessitate an arrangement that could
accommodate people from the different segments of the country in the public
service (Gberevbie, 2012).One major existence of a federal society is federal
character. However, as a federal state, Nigeria was faced with the challenge of
how to imbibe the principle of federalism in practice. This brought about the
introduction of quota system by the government into the Nigerian public service
so as to bring about equitable representation of the various ethnic groups in
the Nigeria (Tonwe and Oghator, 2009). To further consolidate on the gains of
the quota system, the Federal Military Government of Generals Murtala Mohammed
and Olusegun Obasanjo in the drafting and approval of the 1979 constitution of
the Federal Republic of Nigeria during the transition to civilian rule
(1976-79) introduced into the Nigerian political and administrative landscapes
the principle of federal character (Ekeh, 1989). Federal character principle sought
to give opportunities in education and employment, usually at the point of
entry, to disadvantaged groups and areas to enable them compete and catch up
with more advanced areas and sectors of the nation (Ekeh, 1989).
Ekeh (1989) while comparing federal character principle and
the practice of quota system, posits that the former demands far more than the latter
in the sense that it switches emphasis from opportunities to privileges and
benefits. He further argues that federal character principle is a vital legal
weapon put in place to regulate appointments, promotions, security of tenure
and severance in every government department. The reference to the phrase
disadvantaged groups in the area of educational opportunities means that
special consideration should be given to candidates from the Northern provinces
and other areas where educational facilities were more backward than elsewhere
(Gboyega, 1989). However, the vast application of the federal character
principle tends to adversely pose a problem to the performance of the Nigerian
public service, as the personnel procurement with disregard to merit
questionable which can dampen the societal sustainable development.
In contemporary political systems, the strength and
usefulness of the Federal Character Principle can be analysed and explained in
terms of its capacity to meet two very crucial and vital variables and/or
demands, first the need to construct an efficient / effective, dynamic and
modern state and second, the desire to celebrate or enjoy diversity. This Federal
Character Principle needs to be seen not merely as a formal set of institutions
and processes, but could also be viewed as a strategy for political management.
The implication therefore, is that, there is no ideal federal model for nations
to adopt and emulate. Thus, the federal arrangement that a given nation or any
political system adopts must be tailored or designed to suit its own distinct
social economic, cultural and political realities, and not necessarily fit an
ideal federal design. It is in this context that this research focus on Federal
Character and the performance of National planning commission, which is an arm
of the Federal Civil Service. The National planning commission as a body carries
out the business of government and plays a pivotal role, such that it has a
mandate to determine and advise the government of the federation on matters
relating to national development and overall management of the economy; hence
the need to employ well-educated, skilled and experienced people into the
commission. But for political reasons, the Federal Civil Service now combines
the administrative ethics of merit and political doctrine of federal character
as a personnel procurement policy because of the need for a representative
bureaucracy.
Having taken into cognizance the impervious demand by each
ethnic group, regardless of their numerically strength, regardless of material
in their possession, or the backwardness of their educational status for dignified
place in the Nigeria sum, the federal character principle was incorporated as
an employment policy.
The National Planning Commission (NPC) has come under
criticism in the recent past due to her performance and productivity which left
much to be desired. This has been widely attributed to the adoption of Federal
Character Principle which many believe negates the basic criteria for
efficiency experience through rigorous training and administrative ethics of
merit system. However, this study seek to examine the relationship between
federal character and performance of National Planning Commission.
1.2 STATEMENT OF THE
PROBLEM
A fundamental and striking feature of Nigeria politics is the
intense elites struggle for power among the different ethnic groups and geopolitical
zones in the country. These struggles have been between the elites from the
North and other Southern counterpart. This lingering problem of imbalance in
national life which is perennial in nature had revolved round major sectors of
the Nigeria economy. However, the immediate problem which prompted the research
to investigate on these issues relating to educational allocation which is
meant to be based on positions among the federating units relates to federal
character principle, thereby enabling all the geo-political zones to be given
equal chance for the appointment and output-efficiency as it relates to
observation of federal character principle.
Furthermore, there have been discriminatory attitudes on many
federal institutions in terms of employment into the National Planning
Commission as there are a specific numbers of candidates to be taken from each
state. Already, there is mediocrity in the federal civil service, as there
exist problem of quota system in the area of employment into civil service.
Repeatedly, gross misconduct has been the order of the day in
the area of employment. This however is largely due to sectional consciences
and nepotism from those in authority in the Ministries and Parastatals. Federal
institutions seem to recruit on nepotism and favoritism without minding the
effect of such practices to the performance, productivity, efficiency of
service delivery and quality of output to the nation. Even when the federal
character principle is observed, the institutions do not consider due process
and efficiency of the candidate towards work, which consistently result in
cutting corners in the recruitment process that could have brought about
intense performance and productivity for the country as a whole. It is against
this backdrop that this study examines the Federal Character and the
performance of National Planning Commission.
1.3 OBJECTIVES OF THE
STUDY
The following are the objectives of this study:
1.
To
investigate whether due process are followed on federal character basis during
personnel procurement into the National Planning Commission.
2.
To
determine the factors militating against performance of personnel in National
Planning Commission.
3.
To
examine the relationship between federal character and performance of National
Planning Commission.
1.4 RESEARCH QUESTIONS
1. Are due process followed on federal character basis during
personnel procurement into the National Planning Commission?
2. What are the factors militating against performance of
personnel in the National Planning Commission.?
3. Have federal character have improved the performance of
National Planning Commission?
1.5 HYPOTHESIS
HO: Federal character have not improved performance
of National Planning Commission
H1: Federal character have improved the performance
of National Planning Commission
1.6 SIGNIFICANCE OF THE
STUDY
The study of federal character and performance of National
Planning Commission is of immense benefit to different institutions, especially
those institutions that needed employment related data for their routine
activities. From such research, Federal Civil Service Commission can tell if
the character principle is observed in every batch of recruitments conducted by
different Federal Agencies and whether such recruitment is orderly conducted
through the help of Federal Commission. Again, by observing the character
principle, the federal Bureau of Statistics can collate and manage data on
employment-unemployment situation and through that ascertain the living
conditions of different age brackets in liaison with National Population
Commission that would give out the population of such age brackets. It will
also be beneficial in accessing the performance of federal institutions for
quality service delivery.
1.7 SCOPE/LIMITATIONS
OF THE STUDY
The scope on the study on Federal Character and performance
of National Planning Commission will cover all the issues of employment in the federal
civil service analyzing the methods of selection (i.e. the merit system of the
federal character/quota system) considering the effects of both of them on performance
in the federal character and performance of National Planning Commission. The
efforts put into this research is limited by time finance, transport and
inadequate information and materials.
1.8 DEFINITION OF TERMS
Civil Service: Refers to the organization,
personnel, practices and procedures essential to effective performance of the
civilian functions entrusted to the executive branch of government comprising
those public servants appointed on merit on a permanent, contract or temporary
basis without any inferences of political considerations for the purpose of
executing public policy. Thus, the civil service whenever referred to in this
work means federal government employee, organization practices and procedures
directly involved in public administration.
Federal Character: The system of distributing
positions/resources to reflect the ethnic, regional or sectional differences in
Nigeria, irrespective of whether the person concerned is the most qualified or
not.
Representation/Representative: A condition which exists when the
characteristics and acts of one vested with public functions are accordance
with the desires of one or more persons to whom the functions have objective
and subjective importance. It therefore carries with it authority and
legitimacy as such person performs has duty on behalf of others.
Quota: A quota is inflexible number that be
reached within a given period of time, regardless of the methods used or the
availability of candidates. Here, there is the possibility or every tendency
that whoever presents himself will be accepted to fill the gap: thus, the
acceptable standard might be lowered to achieve this aim. That seems to be the
fate of the federal character principle as it is now being applied especially
in the federal civil service, considering the grave imbalance between the
regions or ethnic groups in Nigeria.
National Ideology: A set of concepts, doctrine, beliefs
to which the members of a society are committed and which identified the
national character of the country; ideology therefore functions to influence
and justify certain kinds of behaviours and claims.