Nigeria-RETURN TO MILITARY RULE

On December 31, 1983, the military seized power once again, primarily because there was virtually no confidence in the civilian regime. The fraudulent election was used as an excuse for the takeover, although the military was in fact closely associated with the ousted government. More serious still, the economy was in chaos. The true cost of the failure to use earlier revenues and foreign reserves to good effect now became apparent.

The leader of the coup d'état was Major General Muhammadu Buhari of Katsina, whose background and political loyalties tied him closely to the Muslim north and the deposed government. Buhari had been director of supply and services in the early 1970s, military governor of Northeast State at the time it was divided into three states, and federal commissioner for petroleum and mines (1976-78) during the height of the oil boom. At the time of the coup, he was commander of the Third Armored Division in Jos.

Buhari tried to restore public accountability and to reestablish a dynamic economy without altering the basic power structure of the country. The military had become impatient with the civilian government. Corruption in particular was out of control, and the fraudulent election had been too obvious. Because the civilians in the NPN could not control the situation, the military would try its hand. Nonetheless, Buhari's political and economic aims were almost identical to those of the NPN (see The Buhari Regime , ch. 4).

The military regime conducted tribunals to curb corruption, and many scandals were revealed. Once again the civil service was cleansed, although on a smaller scale than the purge of 1975. This time, however, the military tried to achieve two aims. First, it attempted to secure public support by reducing the level of corruption; second, it demonstrated its commitment to austerity by trimming the federal budget. As a further attempt to mobilize the country, Buhari launched a War Against Indiscipline in spring 1984. This national campaign, which lasted fifteen months, preached the work ethic, emphasized patriotism, decried corruption, and promoted environmental sanitation.

The campaign was a military program for reform and mobilization that achieved few of its aims. In practice, unemployment was on the rise as the recession worsened, so that speeches about working hard seemed out of place. The appeal to Nigerian nationalism had the negative effect of restricting the flexibility of the government in international negotiations over the debt. The campaign was enforced haphazardly; some people were executed or given long jail terms while others were allowed off if they were well-connected. Environmental sanitation meant that the state capitals had to be cleaned up, and the principal target was the petty bourgeoisie that eked a living out of selling services or retailing commodities on a small scale. Their "illegal structures"--market stalls and workshops along the streets--were destroyed, and widespread resentment resulted among the small traders, repairmen, and others in the self-employed service sector.

The regime attempted to stifle criticism. Journalists were harassed, and many critics were arrested. Symbolically, the arrest of the popular musician, Fela Ransome-Kuti, personified the crackdown. Ransome-Kuti's lyrics sharply mocked the government's inability to deal with national problems. The National Security Organisation (NSO) became the principal instrument of repression. The NSO, created in 1976, had played only a marginal role in Nigerian politics until the Buhari regime. Buhari appointed Rafindadi, a civilian, as head of the NSO, and under Rafindadi, Nigeria experienced the harassment and insecurity of a secret police force for the first time. Fortunately, the NSO proved to be inefficient, and subsequent reaction to its operations led to its reorganization.

Buhari's biggest problem was Nigeria's foreign debt. Negotiations with the International Monetary Fund (IMF--see Glossary) dragged on, and in the end efforts to reschedule the debt failed (see The Debt Overhang , ch. 3). Although Buhari was committed to austerity, the IMF insisted on even more drastic measures to cut spending, devalue the currency, and otherwise restructure the economy than most Nigerians were willing to accept. Buhari had to accede to the strong and vocal opposition to the IMF terms. Nigerian nationalism won out over economic necessity, at least in the short run. Furthermore, by the end of 1985 there was considerable frustration within the army. The army had been reduced in size steadily since the end of the civil war, from a total of about 275,000 in 1969 to about 80,000 by the end of the 1980s (see Demographic Factors and the Defense Budget , ch. 5). The economic crisis, the campaign against corruption, and civilian criticism of the military undermined Buhari's position, and in August 1985 a group of officers under Major General Ibrahim Babangida removed Buhari from power.

The officers who staged the coup were mostly from the north, but unlike Buhari (of Hausa origin), they were mostly from minority ethnic groups. Babangida, for example, was of Gwari origin from Niger state. He was a member of the Supreme Military Council under the Murtala Muhammad, Obasanjo, and Buhari regimes and had been involved in the 1975 and 1984 coups. Lieutenant General Domkat Bali became chairman of the Joint Chiefs of Staff. The Armed Forces Ruling Council (which succeeded the Supreme Military Council) was dominated by minority groups from the north. Some radicals and technocrats were appointed to ministerial positions.

The new regime was committed to a return to civilian rule and supported the 1979 constitution. Babangida assumed the title of president, which he justified in terms of the Constitution. Furthermore, he tried to assuage the unrest in the country by correcting the excesses of the Buhari regime. The NSO was abolished in 1986, and its duties were reassigned to less threatening bodies. The freewheeling press was allowed fuller rein again, although there was still occasional harassment. Trials of former politicians were ended, and many former officials who had been convicted were released from jail. In 1987 the regime decreed that all politicians who had held office since 1960 and who had been convicted of criminal offenses were banned from politics.

The Babangida regime had a rocky start. A countercoup in December 1985 failed but made it clear that not everyone in the military sided with the Armed Forces Ruling Council. The most serious opposition centered in the labor movement and on the university campuses. In May 1986, students at Ahmadu Bello University and Kaduna Polytechnic staged demonstrations that led to military occupation of those campuses and to the deaths of a number of students. The student movement had considerable support at other universities. On June 4, 1986, the Nigerian Labour Congress in alliance with students and university teachers organized a national day of sympathy, which led to the arrest of many union leaders. There was also considerable controversy over Nigeria's entry into the Organization of the Islamic Conference, an international body of Muslim states, in 1986. Buhari's regime had made the application, which Babangida allowed to stand. The strong reaction among many Christians, led by the Christian Association of Nigeria (formed in 1976), proved to be an embarrassment to the regime.

Babangida addressed the worsening recession through the structural adjustment program of 1986. By 1986, 44 percent of export earnings was being used to service the foreign debt. Austerity was not enough; rescheduling the foreign debt was essential, but public opinion was against an IMF loan. The government already was committed to many of the conditions for the IMF loan, including even more austere measures. However, it resisted pressures to reduce the petroleum subsidy, to allow trade liberalization, and to devalue the naira. Although negotiations with the IMF were suspended, the federal budget of 1986 still imposed many of the IMF conditions. On October 1, 1986, the government declared a National Economic Emergency, which lasted for fifteen months. Under the emergency, the government de-emphasized large-scale agricultural projects and introduced salary and wage reductions for armed forces and for public- and private-sector employees. Import restrictions were intensified, including a 30-percent surcharge on imports. Officially, the government now encouraged foreign investment and promoted privatization. Finally, the petroleum subsidy was cut back. Despite these drastic moves, efforts to reschedule the foreign debt without an IMF loan failed, and a drop in world oil prices further compounded Nigeria's situation.

Eventually the World Bank stepped into the breach and provided US$4.2 billion over three years to support the structural adjustment program. The eligible debt finally was rescheduled in early 1988. There was heavy devaluation of the naira in 1986, followed by even more drastic reductions in 1989 and early 1990. As a result of the recession, there was a drop in real income, especially for urban dwellers, while unemployment rose steadily from a low in 1980 to almost 12 percent in 1986. The situation in the second half of the 1980s was even worse, with per capita income falling below US$300 in 1988.

The Babangida regime appointed a new body, the Political Bureau, in January 1986 to make recommendations on the return to civilian rule. Its report, submitted in March 1987, was decidedly at odds with the government's structural adjustment program. The Political Bureau, composed of academics and civil servants, wanted to maintain a strong state presence in the economy, while the military regime was steadily moving away from that position. The bureau also favored creation of a two-party political system that would be broadly social democratic in ideology, as a means of escaping from the ethnic-based political parties of the past. The Political Bureau also recommended creation of at least two new states, Katsina and Akwa Ibom, this was accomplished in 1987 (see fig. 7). Although the Babangida regime did not like many of the Political Bureau's recommendations, a Constitution Review Committee was formed in September 1987.

Figure 7. Administrative Division, 1987-August 1991

This process of review and discussion convinced the military regime that the transition to civilian rule should be gradual. The perceived mistakes of 1979 and the creation of the Second Republic would not be repeated, it was hoped. The military would stay in power through 1989 to oversee the transition. The first stage was local elections, held in December 1987. No political parties were allowed, and in many districts, especially in Lagos, the results were overturned and new elections held. In 1990 the military continued in power but still promised a return to civilian rule.

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The best introductions to Nigeria are Obaro Ikime's Groundwork of Nigerian History and the relevant chapters in J.F. Ade Ajayi and Michael Crowder's History of West Africa. For the impact of slavery and the slave trade on Nigeria, see Paul E. Lovejoy's Transformations in Slavery. Regional studies include Elizabeth Isichei's A History of the Igbo People; A. Afigbo's Ropes of Sand: Studies in Igbo History and Culture; Robert S. Smith's Kingdoms of the Yoruba; Yusufu Bala Usman's Studies in the History of the Sokoto Caliphate; and Michael Watts's Silent Violence: Food, Famine and Peasantry in Northern Nigeria. John Flint's Sir George Goldie and the Making of Nigeria provides a readable and excellent introduction to British imperialism along the Niger River. For recent history, see Toyin Falola and J.O. Ihonvbere's The Rise and Fall of Nigeria's Second Republic, 1979-1984 and Thomas Forrest's Politics, Policy, and Capitalist Development in Nigeria, 1970-1990. (For further information and complete citations, see Bibliography.)

Data as of June 1991