Online Publication Date: 1st June 2012 Publisher: Asian Economic and Social Society

Local Government and the Challenges of Community and Rural Development in Nigeria: The Way Forward

Akhakpe Ighodalo (Department of Industrial Relations and Public Administration (Public Admin Unit) Faculty of Management Sciences, Lagos State University, Ojo -Nigeria)

Fatile Olufemi Jacob (Department of Industrial Relations and Public Administration (Public Admin Unit) Faculty of Management Sciences, Lagos State University, Ojo -Nigeria)

Igbokwe-Ibeto Chinyeaka Justine (Department of Industrial Relations and Public Administration (Public Admin Unit) Faculty of Management Sciences, Lagos State University, Ojo -Nigeria)

Citation: Akhakpe Ighodalo, Fatile Olufemi Jacob, Igbokwe-Ibeto Chinyeaka Justine (2012): “Local Government and the Challenges of Community and Rural Development in Nigeria: The Way Forward” International Journal of Asian Social Science, Vol.2, No.6, pp.803-819.

International Journal of Asian Social Science, 2(6), pp.803-819

Local Government and the Challenges of Community and Rural Development in Nigeria: The Way Forward

Abstract

One major index of social change and development today is indeed rural development. No nation can boast of having achieved Author(s) development if a large percentage of her rural inhabitants are still wallowing under abject poverty, want and adepth in socio- Akhakpe Ighodalo economic penury. However, in Nigeria, empirical evidence shows Department of Industrial Relations that underdevelopments have continued to wage on as people are and Public Administration (Public either ignorant of, or indifferent to the reasons for which local Admin Unit) Faculty of governments are created. This paper examines the impact of local Management Sciences, Lagos State University, Ojo -Nigeria government on community and rural development in Nigeria, E-mail: [email protected] challenges and the way forward. To scientifically and analytically interrogate the issues raised, the paper traversed conceptualizations Fatile Olufemi Jacob and theoretical terrain; utilizing system and rural development Department of Industrial Relations theories. Yet, because of the dearth of data, it did content analysis and Public Administration (Public Admin Unit) Faculty of of 466 newspapers and magazines in Nigeria published between Management Sciences, Lagos State 2007 and 2011, to determine people‟s feelings about the local University, Ojo -Nigeria governments‟ development efforts in communities. It is the position of this paper that the creation of local government in most Igbokwe-Ibeto Chinyeaka cases were not based on viability and developmental purposes as Justine required by the constitution but on administrative conveniences to Department of Industrial Relations score cheap political goals and legitimacy especially by the and Public Administration (Public Admin Unit) Faculty of military rulers. The paper concludes that while the basic rationale Management Sciences, Lagos State behind the creation of local government is to meet the peculiar University, Ojo -Nigeria needs of the people at the grassroots, it is however pathetic to note that local government has demonstrated incompetence in this regard. Given the catalogue of challenges facing local government, it recommends among other measures, that while local government should remain as a third tier of government, it should be given more powers, resources and enabling environment for the development of localities.

Key Words: Local government, Community, Development, Challenges, Effectiveness

Introduction development if a large percentage of her rural inhabitants are still wallowing under abject No society can be said to be genuinely growing poverty, want and adepth in socio-economic unless the vital indicators of better living penury. The index of this mode of growth lies conditions, greater control of both the physical in rural development since up to 80% of and social environment and a greater ability, Nigerian reside in rural areas (FOS, 1999), it is capacity and a positive change in the way of life therefore appropriate that effective and efficient and doing things are evident and present in the local administration will aggressively and rural areas – a vital sub-sector of the society. invariably engender rural development. Local Indeed, one major index of social change and government administration in Nigeria has come development today is rural development. No of age, not so much because of its efficiency

nation can really boast of having achieved and effectiveness, but primarily because of its

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Local Government And The Challenges….. longevity and resilience of its relevance in the to compliment the activities administration of the country. The expediency of the state and federal for the creation of local government anywhere government in their areas in the world stems from the need to facilitate and to ensure, through development at the grassroots. devolution of functions to their councils and through The importance of local government is a the active participation of function of its ability to generate sense of the people and traditional belongingness, safety and satisfaction among its institutions, but that local populace. All forms of government, regimes or initiative and response to political systems have so far ensured the local needs and condition are attainment of this goal. Such strategy for maximized (FRN, 1976). ensuring national administrative development and political efficacy is found in the concept This definition is exhaustive and tries to cover and practice of local government. Whatever is much ground in explaining the meaning of local the mode of government; local government has government administration. The 1976 local been essentially regarded as the path to, and government reform and the entrenchment of the guarantor of, national integration, vital provisions of this reform in the 1979, administration and development (Aghayere, constitution set the stage for increased concern 2008). and the awareness of local government administration as an agent of rural development In Nigeria‟s socio-political context, with in Nigeria. multiplicity of culture, diversity of languages and differentiated needs and means, the The definition of local government by the importance of such an organisation in fostering Nigerian 1999 constitution leaves no one with the needed national consciousness, unity and doubt that it is largely both theoretically sound relative uniformity as well as preservation of and service oriented to the people. It talks of peculiar diversities cannot be over-emphasized. representative councils with substantial control Central to the creation of local government, over local development area affairs, for the however, is its ability to facilitate an avenue provision of services and implementation of through which government and the people projects in their areas, to complement the intermix, relate and more quickly than any other activities of both the State and Federal means resolve or dissolve issues that may have governments. The definition also amply heated the system (Ikelegbe, 2005). recognizes the need for local government autonomy as the substantial control of local Local government could be defined as: governments is aimed at staff, institutional and financial matters, among others (FRN, 1999). Government at local level exercise through In addition to the above, the Nigerian Federal representative council Government is one of the few governments in established by law to the world perhaps in addition to Brazil (Erero, exercise specific powers 2008) that have elevated local governments to a within defined areas. These third tier of government. By so doing, the State powers should give the governments do not exercise absolute controls council substantial control over local governments. As we shall also over local affairs as well as observe later, there are many checks and the staff and institutional and balances that have been formulated by the financial powers to initiate Nigerian Federal Government, to facilitate the and direct the provision of effective operations of the local government services and to determine councils. Some of such checks and balances are

and implement projects so as guaranteed existence of local governments in

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International Journal of Asian Social Science, 2(6), pp.803-819 section 7 of the 1999 Constitution, financial Local government has been perceived as a allocation from the Federation account and panacea for the diverse problems of the diverse involvement of local governments in economic people with diverse culture. The means of planning of the State governments (FRN, 1999). achieving rural development which would have engendered national development was not Rural areas are usually referred to as small, visibly seen in Nigeria, from the colonial period inward-looking, and idyllic communities held to the year 1975. Thus, during the colonial rule together by kinship relations and supporting in Nigeria, the colonial masters concentrated on basic agricultural occupations (Ekong, 2003). the welfare of a minor elite population which The characteristic features that differentiate lived in the cities (Igbokwe-Ibeto, 2003). rural from urban areas include: size, particularly areas inhabited by the people, low population Several attempts and approaches have been density, homogeneity, presence of few social adopted since the 1976 local government classes, low standard of living, presence of reforms to bring about genuine rural few/no social amenities such as electricity, development in Nigeria. Most of these are top- pipe-borne water, low social mobility, mainly down approaches which impact little on rural agrarian in nature - producing the bulk of food development. According to Ozor and Nwankwo consumed in urban areas and the attendant (2008), the true success of a comprehensive drifting of young able-men to cities in order to economic and social development programme benefit from the urban resources and modern in Nigeria is primarily dependent upon the life. People living in rural areas are extent to which it contributes to the well-being characterized by low capital investment, low of those living in rural areas. Usually, rural savings, and low production. The poverty level development programmes should aim; at is usually very high among women than men. creating awareness of rural possibilities; Rural dwellers continue to struggle with dual providing information on resources, inputs and responsibilities of economic production and infrastructure; deploying technical assistance; domestic labour, while most of them are skills acquisition and development; increasing confronted by poverty, illiteracy, high health literacy levels; improving productivity and risks, inadequate access to productive productive systems; adapting appropriate resources, and lack of credit/market access technology in agriculture; sensitizing potential (Imhanlahimi and Ikeanyibe, 2009). volunteers and donors as well as focus on peoples' felt needs and basic amenities such as The local government decree of 1989, 1990 and the provision of good roads, electricity, health 1992 have all intended to operationalize the clinics, markets, school buildings, and farm third tier status of local government in Nigeria, settlements among others. An attempt to therefore, granting it a high degree of autonomy achieve these laudable goals requires the as well as increase in their revenue allocation. intervention of good . When good Unfortunately, in spite of the elaborate leadership is provided, the people would provision of these decrees, the enormous participate voluntarily in the accomplishment of benefits that the society and the rural dwellers stated objectives. stand to get from a sound local government system, ideals did not approximate reality, and Thus, since the 1976 Nigerian local government autonomy for local governments became a reforms, rural development has received mirage (Igbokwe-Ibeto, 2003). However, while considerable attention from the federal rural development should transform more easily government and states government through rural areas into modern centre with social substantial increase in revenue allocation; in amenities leading to national growth and spite of this increase, much is not seen on development, the local government councils ground in local government areas in terms of constitute and remain the appropriate development. Schools, portable drinking water, instrument through which this development electricity, good access road, health centres

strategy can be viably and effectively achieved. markets, credit facilities etc. are not available

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Local Government And The Challenges….. and where they are in existence, they are poorly Olojede and Afegbua (2011) quoting Aborisade built and managed. As important as this tier of and Aransi contend that, local governments are government is, there seems to be some universally seen as veritable mechanism of impediments that have been infringing on its socio-economic development. Whether it is performance and functions in recent times. form of devolution of power from the centre or These impediments range from undue as a form of field administration, it is the interference of the higher levels of government administration that is nearest to the grassroot of i.e. federal and state governments, bribery and the polity. Also, Akhakpe (2011) quoting Bello- corruption to embezzlement which has become Imam, define local government as “that unit of a way of life in Nigeria and gross inadequacy of administration with defined territory and well-trained and qualified personnel to mention powers as well as administrative authority with but a few. relative autonomy”. Yet, local government is a government at the grassroots level of It is in the light of the foregoing, that we seek to administration “meant for meeting peculiar explore the relationship between local grassroots need of the people (Agagu, 2004).. government and community and rural Local government can also be defined as that development relations in Nigeria; the tier of government closest to the people, “which challenges and the way forward in the context is vested with certain powers to exercise control of the identified problems. While successive over the affairs of people in its domain” (Lawal, local government reforms have been conducted 2000). For space constraint, we cannot render in the country – which is seen by scholars as the various definitions of local government as criteria for measuring local government captured by scholars and writers. What we performance, evidences on the ground portray observe in many of them is that they contain the opposite. There is need to investigate the words or phrases that tend to give the extent to which local government have impression that local administration and local positively impacted on localities and rural government are synonymous. For example, the communities using certain benchmark. United Nations cited in Ola and Tonwe (2005) admits of local selection of persons instead of To address issues raised in this paper, it is election to constitute local government organized as follows: The first section is the councils. introduction while the second, explored the conceptual and theoretical terrain central to the It is glaring that that local governments in subject of discussion. The third carried out an Nigeria has not performed to expectation. Keen overview of local government system in observers have since adduced various Nigeria. The fourth, discussed the interface propositions for explaining the reasons why the between local government and rural system has recorded abysmal level of development in Nigeria. The fifth analyzed inefficiency and ineffectiveness vis-à-vis challenges facing democratic consolidation and justification for its establishment. The most performance of local government system. The fundamental rationale for creating local sixth proffer major steps to be taken to enhance government anywhere in the world is to employ local government performance and then it to take responsibility for the development of conclusion. the area directly and also contribute indirectly to the development of . This Conceptual and Theoretical Terrain development has been conceptualized from two It is imperative to clarify major concepts in the broad perspectives: economic and holistic. paper in order to situate them within the context of our analysis. Also, our analysis will be The economic perspective is concern with guided by a theoretical understanding of the issues of poverty, unemployment, and subject matter under interrogation in order to inequality that must be reduced to usher in elucidate the points we shall be making. development to any area or country. If these

declines in a society, the earlier version

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International Journal of Asian Social Science, 2(6), pp.803-819 insisted, then there is development (Seers, development as scheme for raising the real 1969). The other, newer perspective in the incomes of rural dwellers, improving their conceptualization of development was blazed environment and infrastructures and enhancing by writers like Todaro and Smith, (2003) who their welfare. This indeed means that rural have presented a holistic definition. According development is a strategy designed to improve to them development must, therefore, be the economic and social conditions of people conceived of as a multidimensional process living in rural areas. It involves extending the involving major changes in social structures, benefit of development to those who seek popular attitudes, and national institutions, as livelihood in rural areas. Yet, rural development well as the acceleration of economic growth, is improving the living standard of the mass of the reduction of inequality and the eradication low-income population resident in rural areas of absolute poverty. Development, in its and making the process of their development essence, must represent the whole gamut of self-sustaining (Lele in Okoli, 1995). change by which an entire social system, tuned to the diverse basic needs and desires of Going by the above definitions therefore, we individuals and social groups within that can deduce that rural development can be system, moves away from condition of life described as a process aimed at bringing widely perceived as unsatisfactory toward a positive changes with regards to initiating or situation or condition of life regarded as actualizing improvement and increase in scope materially and spiritually better. and intensity of the social, economic and political life of the rural inhabitants. In specific The modern or newer definition of development terms, this includes the provision and is therefore holistic, encompassing all aspects maintenance of social services such as food, of life, including political, economic, social, water, recreational and leisure centers, health cultural, religious, physical, etc. These can be services, good roads network, educational further amplified to include all the good aspects institution and teaching aids as well as of life that people cherish, make them feel communication network. It therefore means that relevant and enjoy their lives to the full. For rural development is a creation of wide range of example, the political aspect would include opportunities for private individual to realize issues like political participation, freedom of and attain the fullest of their latent potentials choice, „free, fair and credible‟ election etc through education and participation in decision (Omoruyi, 2004). making process and actions that affect their day to day living. At a broader view, it can be seen Development as recently conceptualized as mass mobilization of human and material embraces the total development of man and his resources to achieve economic growth and environment in all ramifications in an area, national development. under a political organization or structure like a local government, on a participatory and In his own contribution Aziz (1978), identifies sustainable basis. This is better done through conditions necessary before we can say that governmental autonomy, which is, in turn, rural development has taken place. They sustained by the council‟s adequate include: organization of rural producers and performance of the above responsibilities. rural economic activities on competitive or communal basis in order to ensure a fuller Flowing from the above, it is imperative to utilization of available physical and human define community and rural development which resources; an active policy of social services is the central theme of our thesis. Rural involving the improvement of social services development refers embracing the social, and social relation; improvement in political cultural and political economy of the rural and administrative capacity for planning and dwellers that is the structural transformation of implementation of community development the rural economy leading to their progress. strategy to provide linkages with rest of the

Okoye and Onyukwu (2007) defined rural economy; more equitable distribution of land

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Local Government And The Challenges….. other rural resources in order to give greater of whatever type, including physical, biological, opportunity to the poorest segment of the rural social, political, etc., which is an organized population to meet their basic needs; whole with identifiable, interrelated structures diversification of rural economy to provide delineating it from the environment in which it additional employments and to improve the is located and with which it interacts, quality of rural life. processing the inputs from it into outputs for it.

It is the firm believes and hopes of Lele (in The general systems theory contends that every Okoli, 1995) that a proper combination and system, including political system, has sub- coordination of the above reviewed factors systems which make up the entire system. They would lead to the improvement in the lots of the are assigned functions and provided with rural population. But unfortunately this hope enabling empowerment and environment, has not in been realized. This is because in most including resources, appropriate authority, etc. African countries, Nigeria inclusive, to enable them discharge their responsibilities government policies geared towards rural optimally. Local governments should be well development have always been to the advantage handled in terms of being fed with adequate of the few individuals who constitute the inputs, so that they can contribute appropriately privileged class. In fact, the administrative to the optimality of the Nigerian political systems surrounding the implementation of system, as well as its stability. If the reverse is rural development programmes do not usually the case, two important things may happen. function in the interest of the rural majority for First is, there might be instability and secondly, whom such are meant for. The same thing there might be discontent amongst the citizenry. applies to the existing institution, be they The two are two sides of a coin. private, commercial or traditional. All the institution which are intended to function in the Therefore, it is very useful to realize the interest of the rural dwellers, ironically promote importance of the systems theory in the the interest of a few individuals who control handling the issue of local government and manipulate them (Okoli and Gadzama, 1988). rural development in Nigeria. Thus, the However, the above assertion is only realization of the sub-systemic nature of local meaningful in the examination of rural governments which are an integral part of the development programmes. overall Nigerian political system is imperative. They have their assigned responsibilities to The subject under interrogation could be perform to the benefit of the people, not as predicated on several theoretical platforms. appendages of either the Federal or State These include system theory and rural Governments. Failure to treat the local development theories which consist of a governments as such could send frustration and number of sub-theories such as: modernization, wrong signal through their veins, transformation, improvement, mobilization, disenchantment and inability to perform and command-compliance, demonstration, hence dissatisfaction amongst the populace comprehensive, community development and (Imhanlahimi and Ikeanyibe, 2009). integrated rural development theories. While other theories may be relevant in their right, we Yet, another theory worthy of mentioning here anchor the paper on system, mobilization and is the mobilization school of thought. integrated rural development theories because Mobilization refers to the process of pooling of the advantages they present in analysizing together, harnessing, activating, actualizing and the issues raised. utilizing potential human and material resources for the purpose of development. It is a process A synthesis of the definitions of a system has where-by human beings are made aware of the been given by various scholars and writers such resources at their disposal and also motivated as Almond (1960); Easton (1965); Adamolekun and energized to collectively utilize such

(1983) and Offiong (1996). It is a phenomenon resource for the improvement of their spiritual

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International Journal of Asian Social Science, 2(6), pp.803-819 and material well being (Obanure, 1988). The reforms introduced a multi-purpose single-tier Operation Feed the Nation (OFN) associated local government system (Ajayi, 2004) with Obasanjo‟s military regime in 1976 and the Green Revolution of Programme of former Indeed, the 1976 reforms also introduced President Shehu Shagari were based on this population criterion under which a local theory. government could be created. Consequently, a population of within 150,000 to 800,000 was The utilization of integrated rural development considered feasible for a local government. This school cannot be overemphasized. Integrated was done to avoid the creation of non-viable rural development theory is a multidimensional local council and for easy accessibility. There strategy for improving the quality of life of the was provision for elective positions such as the rural people. It is based on the premise that the chairmen as executive head of local government socio-economic framework of the traditional council with supervisory councilors constituting rural system is obsolete; therefore, integrated the cabinet. This was complemented by the rural development strategies are designed to bureaucrats and professionals, such as Doctors, change this framework and promote structural Engineers, etc., who were charged with the changes in the society (Chalton in Ujo, 1999). responsibility of implementing policies (FRN, The Directorate of Food, Roads and Rural 1976). Consequently, in 1991, a major Infrastructure (DFRRI) of Babangida‟s landmark reform was introduced as the system administration is a typical example of this had legislative arm. In addition, the Babangida approach to community and rural development administration increased the number of local in Nigeria government from 301 in 1976 to 453 in 1989 and 589 in 1991. The Abacha regime also An Overview of Local Government System increased the number to 774 local councils that in Nigeria we have today and the administrative structure Regardless of nomenclature, local government also underwent some changes (Ajayi, 2000). is a creation of British colonial rule in Nigeria. It has overtime experienced change in name, The main functions of the local government structure and composition. Between 1930s and council as specified in the fourth schedule of 1940s, for instance, local government was 1999 constitution as amended in 2011 include: known as chief-in-council and chief-and- The consideration and the making of council, where traditional rulers were given recommendation to the state commission on pride of place in the scheme of things. In the economic planning or any similar body on; the 1950s, election was introduced according to the economic development of the state, particularly British model in the Western and Eastern parts in so far as the areas of authority of the council of the country with some measure of autonomy and of the state are affected, and proposals in personnel, financial and general made by the said commission or body. The administration (Nwabueze, 1982). It was on this 1999 constitutional as amended have them as premise that the rising tide of progress, growth follows: and development experienced in the local governments in these areas was based. The pace Collection of rates, taxes, radio and television of this development was more noticeable in the licenses; Establishment and maintenance of South than in the North. During this period, cemeteries, burial grounds and homes for the heterogeneity was the hallmark of local destitute or infirm; Licensing of bicycle, truck government as there was no uniformity in the (other than mechanically propelled truck) system and the level of development was also canoes wheel barrows and carts; Establishment, remarkably different. The introduction of 1976 maintenance and regulation of slaughter houses, reforms by military administration of General markets, motor parks and public conveniences; Obasanjo brought about uniformity in the construction and maintenance of roads, streets, administrative structure of the system. The streets lightings, drains and other public

highways, parks, gardens, open spaces or such

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Local Government And The Challenges….. public facilities as may be describe from time to system, mass mobilization and time by the house assembly of a state; Naming telecommunication. of streets, roads and numbering of houses; Provision and maintenance of public The recurrent literature on local governments‟ conveniences, sewages and refuse disposal; efforts to develop the local and rural areas in Registration of all births, death and marriages; Nigeria indicates that the respective local Assessment of privately owned houses or governments have been showing varying tenements for the purpose of levying such concerns of developmental efforts to impact rates as may prescribed by the house of positively on the lives of the local people. The assembly of the state; control and regulation of: efforts may have been rather low, but all over outdoor advertising and hoarding; movement the country, local governments have tried in and keeping of pets of all description; Shops, varying degrees to meet the needs and kiosks and laundries; restaurants, bakeries and aspirations of their localities within the other places for the sale of food to the public, following three contexts. and licensing, regulation and control of the sale of liquor. First and foremost, some local governments in the country have established Development Area The function of a local government council Councils or Committees, so as to take shall include participation of such council in the governance closer to the people. Such local government of a state in respects of provision governments include those in Lagos State 2001; and maintenance of primary, adult and Yobe State 2003; Bauchi State 2004; and vocational education; the development of recently Imo State 2011. The second approach agriculture and natural resources other than the employed by some local governments is the exploitation of minerals; the provision and appointment of Ward Committees to handle or maintenance of health services; and such other supervise some development projects which are functions as may be conferred on a local being executed directly by the local government council by the house of assembly governments or executed by them on behalf of of a state (FRN, 1999). the Federal or State governments. The third approach is the use of community development The Interface between Local Government, associations (CDAs) (Akoptor, 1995) or Town Community and Rural Development Improvement Unions as critical agents in Community and rural development programmes community development even though they have are a series of interrelated activities, projects been less utilized (Ikelegbe, 2005). and task intended to improve to improve the living conditions of the rural population. The There are also extension workers communities in question in this discussion are (demonstration approach) who are located in those of each local government which are the third category. They are used by local therefore to be found in both the urban and rural governments especially for agricultural sectors, but predominantly in the latter. purposes. They move within and between ward or village areas educating farmers, advising and Notwithstanding the public outcry over the non assisting them on the application of newly performance of local governments in Nigeria, introduced techniques, seedlings, the use of quite some work has been done on the insecticides and irrigation farming. Irrigation development of community and rural areas by farming is predominant in many local the Nigerian local governments. The critical governments in the Northern parts of Nigeria aspects in the rural development issue include where Fadama farming has been largely but not limited to availability of tarred roads successful. Thus, taking farming to the local network, pipe borne water, market, schools, farmers through biotechnology of improved electricity supply, health centres or cottage seedlings, insecticides, extension services, hospitals, skills acquisition centres, mass transit irrigation and micro credit schemes. And the

local governments have been uncompromising

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International Journal of Asian Social Science, 2(6), pp.803-819 in asking for democratically elected executive governments were operationalized as follows: arm of local governments as part of their critical statements of blame and failure of local holistic development efforts (Aghayere, 2008; governments as well as pictures of Imhanlahimi and Ikeanyibe, 2099). demonstrations against local governments. Road blockades by communities to protect the In Nigeria, it is well known fact that there is a roads they claim to have repaired as a result of dearth of published data by the appropriate the ineffectiveness of the local governments, institutions such as National Bureau of petitions and appeals to higher authorities and Statistics (NBS) and the Central Bank of anti corruption agencies such as (CBN) on local governments‟ Corrupt Practices Commission (ICPC), development efforts in the communities. Economic and Financial Crime Commission Stolpher (1966) and Yesufu (1996) are among (EFCC) on local governments‟ activities, sack other scholars who have documented the dearth and suspension of local government chairmen of data for research in Nigeria as worrisome. So and other principal staff constituted part of the there is lean statistical evidence to argue about criticisms. Each praise or criticism was taken the development efforts of the local through a tally that‟s aggregate per newspaper governments in communities in Nigeria. And and magazine. because of the said dearth of data, we did content analysis of some newspapers and The analysis reveals that a total of 466 magazines in Nigeria to determine people‟s newspapers and magazines were sampled. Out feelings about the local governments‟ of the number, only 36 representing about 18.1 development efforts in communities. per cent of the people‟s feelings were expressed as praises for the local governments in the In utilizing the content analysis, the various period 2007-2011. The number of criticisms newspapers and magazines published between was 130 representing about 81.9 per cent. 2007 and 2011 available to these researchers in Although people‟s feelings apparently were less the Lagos State University (Fatiu Ademola reported in the newspapers and magazines, Akesode) Library, Ojo - Nigeria, and in their nevertheless it indicates that majority were by homes, were content analyzed. The copies far disappointed in local governments‟ analyzed numbered four hundred and sixty-six performance and development efforts in the (466). The purpose was to determine people‟s communities. This revelation tends to favour feelings as reported by the newspapers and the general opinion in the literature about the magazines about the developmental impact of unsatisfactory performance and development the local governments in communities. People‟s efforts of local governments in their feelings were categorized and differentiated communities in Nigeria (see for example, broadly into two: praises and criticisms. Praises Mabogunje, 1980; Mukoro, 2001; Ikelegbe, were identified in the newspapers and 2005; Imhanlahimi and Ikeanyibe, 2009). It is magazines by words of praise used by the instructive to note that the poor performance of communities. Pictures of jubilations about local local government in rural development in governments‟ activities such as commissioning Nigeria may not be unconnected with the of projects, offering of direct free labour to various challenges facing local government in assist local governments, and exercise of Nigeria. vigilance, especially at night, over local governments‟ facilities provided for the Challenges Inhibiting Local Government communities were also admitted as praises. Performance A number of challenges have confronted local Also included as praises are; reportage on governments in Nigeria, in their bid to carry out commencement of development projects, and their task of community and rural development. public-private-partnerships (PPPs) by local These include structural, operational, financial, governments as well as donations of parcels of godfatherism pressure, unstable democracy and

land. Issues bordering on criticisms of local corruption. Worried by the poor performance of

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Local Government And The Challenges….. the local governments, in spite of their the Federal and State governments, in spite of empowerment through what Ikelegbe (2005) constitutional provisions, is a reality of called „increasing autonomy‟ since the 1976 disturbing importance. These belittling local government reforms. The report of Dasuki attitudinal relationships of the higher level Committee set up in 1984 by the federal governments to the local governments actually, government expressed confidence in local to a degree, erode local governments‟ autonomy government‟s structural, financial and (Imhanlahimi and Ikeanyibe, 2009). personnel arrangements, among other matters. It however noted that the problems of the local Hard-earned and limited resources accrued to governments were basically operational, and raised by local government are always „arising directly from the behavior and attitudes mismanaged. Priorities are misplaced; projects of the persons who operated the system‟ (FGN, are done not according to, or as demanded by 1987). Yet there is quite some agreement in the people but regrettably in tune with the literature that local governments in Nigeria selfish end and aggrandizement of the political encounter all the above problems. leadership in collaboration with the senior bureaucrats at the local government level. Despite the increase in the total amount of Coupled with this, is the greatest bane of funds available to local government in Nigeria development in the Nigerian public service in since early 1990s, its economic and financial general and local government in particular profile is still very poor, relative to the which corruption is. Recently, it was discovered development programme it is expected to carry that local government councils in Kaduna State out. This situation is not unconnected to the embezzled thirty billion naira (Blueprint mismanagement and embezzlement of these Newspaper, 2012). Reports of probe panels at funds by the local councils. Local governments‟ the three tiers of government have revealed the financial problems appear to be more of their culpability of civil servants. Corruption has making as well as those of the State been rampant among the senior and junior governments. Local governments‟ finances are bureaucrats to whom the public funds meant for largely sourced from the federation account, developmental purposes are entrusted. which accounts for not less than 80 per cent. Generally, wide-scale embezzlement by The State governments also contribute a little, officials of the grassroots has made the needed below one per cent, to the local governments‟ development of the grassroots a tall dream and financial needs. Local governments have vast has rendered them financially incapable to opportunities to increase their financial standing discharge their constitutional assigned and hence autonomy through aggressive responsibilities (Imhanlahimi and Ikeanyibe, financial mobilization. But they hardly do, 2009). especially as they shy away from the collection of personal income tax from the citizenry and The degree of external influence and intrusion tenement rates. in local government affairs by the federal and state governments is worrisome and needs re- Structurally, Nigerian local governments evaluation. A situation where the state governor encounter some kinds of inferior recognition by unconstitutionally dissolves the entire elected the Federal and State governments. It appears council‟s officers without proper investigations that local governments, by virtue of the on spurious allegations is not good for the recognition of a federation as being generally future of local government administration in the governed by the Central and State governments, country. Sacking of all local government are barely recognized as a tier of government in chairmen and councilors in Ekiti by Governor Nigeria. Thus, in spite of the legal and Kayode Fayemi in 2008, Governor Rochas constitutional provisions, local governments Okorocha of Imo State did same as soon as he have been scrapped by both democratic and took office on 29th May, 2011. Yet, Governor military regimes. The apparent structural David Jonah Jang of Plateau State recently

inferiority of the local governments vis – a – vis sacked all local government chairmen and

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International Journal of Asian Social Science, 2(6), pp.803-819 councilors. Governor Rotimi Chibuike Amechi and Financial Crimes Commission (EFCC) of of Rivers State recently displayed this air of the former Enugu State Governor, Chimaroke arrogance and show of power drunk by sacking Nnamani, on the allegation of diverting local eleven (11) council chairmen for arriving late to governments‟ funds in the state. Governor Peter a meeting he convened (Guardian Newspaper, Obi of Anambra State, whose second term 2012) are typical examples. Such external tenure will soon end, is yet to conduct elections interference indeed subverts democratic process into the local governments in the state since he and undermines constitutional authority at the came to power. This shows the level of grassroots level. The crux of the matter is the influence and control that state governors have „almighty‟ power and misuse of it enjoyed by over local governments in their respective the state governments over local governments. states. This undue interference has incapacitated Practically, and in true sense, local government local government from functioning effectively in Nigeria lacks autonomous financial power. and alienated grassroots people from enjoying Local government is now considered as an services delivery expected of local government. extension of state‟s ministry. The inherent nature of this problem has caused subservience, Yet, the problem of godfatherism in the local a situation where local government waits for the governments affects its autonomy and hence directives from state government before lacks the ability and capacity to make the the former could think of, let alone embarking desired development impact. The concept of on developmental projects. This has made local political godfather is well known in Nigerian government an object of control and directives. political scene (Ikelegbe, 2005; Imhanlahimi and Ikeanyibe, 2009). A political godfather is Ajayi (2004) identified political control state the sponsor of the political office holder, such governors have on the local government as, the local government chairman. Therefore, chairmen as a major challenge. This is as a the latter has little autonomy before his result of the fact that state governor sponsors godfather. He takes dictates from the godfather election of most, if not all, of the chairmen. and acts accordingly, especially if he wants a They are handpicked by the state governor second term or peace in his office tenure. The rather than being elected. It is a clear case of sponsorship by the godfather is usually who pays the piper dictates the tune. For financially based, and so he has to recoup his instance, in most of the states, there is this expenditures from his political stooge. While unholy alliance between state government and the political office holder meets the demands of local councils in the state, where the state the godfather and his personal political government constitutes Joint Action interests, the funds left for development are Committee, tagged „JAC‟. Federal allocations lean. to local government are first deposited into a particular ad hoc account before calling for the Indiscipline is rampantly perceived and well committee meeting. The situation is so alarming pronounced among the workers in local and worrisome that one begins to wonder if government. The senior officers who travel to local government truly is a third tier of their families away from their offices on Friday government or a ministry or parastatals under return very late the following Monday or may its respective state government. decide to stay back till Tuesday; and the junior members of staff who directly or indirectly This in a way paves the way for the state observe this more often than not are in the habit government to plan for the local government of playing truant with their jobs. Little or no and release the money in installments. The commitment to duty has become a rule rather overall effect of this is the negative impact it than an exception (Ajayi, 2004). Offices have has on the people of the grassroots as they are been turned to marketplaces where officers getting more and more alienated from hawk their goods freely. The rules that guide developments. Also illustrative and instructive moral conduct and professional ethics seem to

is the arrest and prosecution by the Economic have, at worse, become cobweb that is so weak

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Local Government And The Challenges….. to tame the monstrous activities of the workers. anti-corruption bodies in the country. But very Indiscriminate lustful desires are noticeable unfortunately, the local government corruption among the workers. The official‟s relationship in Nigeria is the type that the World Bank between super ordinates and subordinates has (2001: xiii) has called „grand corruption‟. It been stained. Strict instructions handed down does not cohabit with development. from top echelon to the bottom are either not followed or treated with levity as a result of the Problem of participation and involvement is immoral relationship between the boss and among challenges facing local governments in subordinates. Official duties are seen as an Nigeria. Over the past decades, more extension of private leisure. Laissez-faire euphemistic phrases have since been employed attitude to work has arrested the efficiency of to justify people‟s participation at the local government and has drastically affected its grassroots. They include: “Development from performance and productivity. Below”, “Bottom-up Approach to Development”, “Popular Participation”, Democratic consolidation process poses a Bringing Government Closer to the People” and problem for the local governments more than other catchphrase to argue for people‟s other governmental levels in Nigeria. This is involvement in the affairs that directly affect because democracy has not taken firm roots. Its them (Okoli, 1995; Lawal, 2000). From all limiting positive effects are therefore hardly in indications and convictions, research and place. Democracy is supposed to be rule-bound, physical observations have shown that there has respecting due process. The Federal and State been more hue and cry than action. Local governments seize the opportunity of fledgling government prepares estimates for its revenue democracy to disregard the elective and expenditure without proper recourse to, and representative principle and constitutionally due consultation with, the people for whom the guaranteed existence of local governments exercise is being carried out to know their (Aghayere, 2008; Imhanlahimi and Ikeanyibe, needs, their problems and potentials. A number 2009). of factors are responsible for non-involvement of people in their own affairs. These include: They went further to state that, at the least Loss of interests in the project that will not opportunity, for example, in 1980, 2002 and benefit the chairmen and their cohorts. The age- 2007, local governments have either been long belief by the officials that people are scrapped by higher level governments or had ignorant, illiterate and unenlightened, lack of their democratic elections delayed. In their political will by the leadership to run an place, all manners of bodies such as administration due again to selfish interest, development Committees, Sole Administrators poverty of socio-political philosophy for change and Caretaker Committees had been set up. (Ajayi, 2000). Such policy reversal situations have had implications for the development of the Local Government, Community and Rural localities, including loyalties to the State Development: The Way Forward governments by the appointed functionaries, These recommendations are made to promote alienation of the people from unrepresentative the local government institution that the governance, and diminutive development of Political Bureau Report (FRN, 1987), a communities. Of course, all of the above smack foremost report that the vast majority of well of corruption, which is a big challenge of local meaning Nigerians contributed to, called ‟Local governments in Nigeria. The literature is replete Government for development‟. Local with screaming headlines about alarming government areas in the country are in dire need corruption in the Nigerian local government of real and genuine development. system ( Newspaper, 2007; Blueprint Newspaper, 2012). They carry headlines of The present consensus on the critical massive corruption and quizzing of local importance of the local government for

government functionaries by the respective development purpose provides an opportunity

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International Journal of Asian Social Science, 2(6), pp.803-819 to redesign the local administration system in governments can be tackled and resolved. Nigeria. The most important requirement is to Developmental crisis is an inevitable outcome improve the capacity in the third tiers of of the capitalist model of organizing any government; their institutional capacity should economy. Nevertheless, it is not immutable, also be upgraded. The required critical only if the country‟s leadership can discipline resources include: human, material, financial itself and cut down on wasteful spending. If the and policy or procedures. Reform in whatever native authorities could perform without capacity should focus on how to increase these borrowing, with petrol dollars local resources at this level of governance and more governments today can do better. Yet, no so the Federal and State should carry along system can enjoy stability without economic these tiers of government in the formulation of growth and development. This is not to make a policy. In line with this, it is recommended that case for the modernization “ripeness” argument the following crucial strategies should be but to affirm that economic stability create looked into: room for peace and order in the polity.

The need to re-assert meritocracy by paying a Yet, the citizenry on their part should living wages and provision of good incentive demonstrate more patriotism in dealing with package so as to attract best hands and issues that affect local governments in Nigeria. professional into the service; merit systems They should build more confidence in the should not preclude the application of system rather than be despondent and critical of representative from ethnic, racial or gender its prospects. They should see themselves more balance reasons, but they must not be at the in terms of duties and obligations to their expense of merit. communities than what they can get from the local government as units. Going back to the Local governments in Nigeria need adequate past, will be a fundamental step to ensuring autonomy that can facilitate their operations and stability and sustenance of good governance in development of communities. This should the local governments. One significant aspect of emanate from institutionalized democratic the pre-colonial political system that could be process of elections for representative local relevant to the present dispensation is the group government councils as and when due. This solidarity basis of the state in Nigeria. This should be in line with what obtains at the State draws similarities with the social contract and Federal government levels where elections theories but with important variation (Akhakpe are timely conducted. and Igbokwe-Ibeto, 2012).

In Nigeria, redirecting the ship of state in the The need to improve accountability as higher positive direction appears to have failed. This pay alone will not lead automatically to higher calls for re-strategizing even by using the same productivity. The enforcement should start from method(s). The first port of call in this regard is the top level down the level and citizen should to demand for re-orientation of leadership in all be empowered to pressurize their political facets of societal life. The deficit in positive representatives to exact higher level of leadership has been so glaring that it finds accountability from those who manage the civil expression in the decay in all aspects of the service. Yet, state governments should extend country‟s life. Yet, no country aspires to the rightful financial allocations to local greatness without a critical mass of men and governments as the federal government does. women of integrity, zeal and enthusiasm for State governments should henceforth eliminate their nation. The sooner the country throws up all kinds of interference with revenue accruing this crop of leaders the quicker the country‟s to the local governments from the federation dream of greatness could be realized. account, an interference that have featured prominently in works of many scholars and It is only when positive leadership is in place writers (see for example, Aghayere, 1997; Ola

that the developmental crisis of the local and Tonwe, 2005).

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where the party in power wins almost all seats There should be regular and effective at the local government pools attest to this fact. institutionalized training in policy management Democratic consolidation will enhance respect and implementation for political, executive and for orderliness, the rule of law and local administrative managers at the local government autonomy. Doing so will have a government level. There should also be total rippling effect on the development of overhaul of accounting and auditing system, communities by the local governments councils. this will not only enhance performance, but also improve transparency of the local governments. One of the greatest challenges faced by local Local governments must work hard to justify governments in Nigeria is the monster called their autonomy through more and aggressive “corruption”. The issues of corruption in the internal revenue generation. This system should be properly handled by the recommendation agrees with the appropriate institutions, In line with this, the recommendation of the Political Bureau Report Independent and Corrupt Practices Commission (FRN, 1987). (ICPC) and Economic and Financial Crime Commission (EFCC) should be giving free The need for democratic consolidation as a hand to operate rather than be tools to witch formidable partner with the rule of law that can hunt opposition by the government in power. help to entrench the constitutional provisions on The grand corruption described by the World Nigerian local governments cannot be Bank (2001) as not cohabiting with overemphasized. There are many provisions in development is the intolerable type that should the 1999 Constitution as amended in 2011 that be excised from the local government system in are disregarded. For instance, section 7 of the Nigeria. 1999 Constitution as amended guaranteeing, „the system of local government by The need for discipline cannot overemphasize. democratically elected local government The Political Bureau Report had emphasized councils‟ has not been respected and adhered to discipline in the polity as a necessary ingredient by the State and Federal governments. Indeed, for development (FRN 1987). The need to such provisions, including the establishment of redesigning local government reform to give a State – Local government joint account, could teeth to this report is very important. The three only have easy utilization by the Federal and arms of government: the Executive, Legislative State governments if a democratic culture in a and the Judiciary should be proactive so that country is in vogue. they can take the poorly performing local government chairmen to task and penalizing Realizing that failure to do so will earn them culprits. Discipline helps to eliminate the wrath of the electorate who can exercise the corruption and, of course, any local government right to change their leaders; political leaders functionary who is corrupt and infringes on the could be afraid and respect democratic tenets. law should be dealt with according to the law. The power of the electorate is weak in a non- This is the symbiotic relationship between consolidated democracy, the type which corruption, discipline and rule of law. operates in Nigeria between 1999- 2007, a Corruption must reduce through discipline, situation where the political leaders select rulers transparency and accountability and operation instead of the electorate electing their leaders. of the rule of law. These and sustainable The strengthening and application of acceptable democratic process can also eliminate the democratic culture, in line with the best canker worm of godfatherism politics in the practices in the World will reduce arbitrariness. local government system, to the enhanced Although, Independent Electoral Commission development of the communities and great (INEC) under President Goodluck Jonathan autonomy of the third tier of government seen to have deviated from the past, however, (Imhanlahimi and Ikeanyibe, 2009). States Electoral Commissions are still a private

estate of their respective governors. A situation

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The concept of „action – not verbal - of various authors. We are relying on the institutionalization‟ should be the watch words various definitions of the authors because the of local governments in Nigeria. This will summarized views taken together isolated two strongly remind the local governments about aspects of development i.e. societal and their social contract and developmental individual. At the societal level, the indices of responsibilities to the people. Yet, positive development includes; provision of welfare impact on lives of its immediate inhabitants is facilities such as pipe born water, good roads, the raison d‟ etre for the creation of local schools, health care centers and facilities, governments in Nigeria and elsewhere. As at markets, electricity, industries, sanitary present virtually all the local governments in facilities etc. At the individual level, the indices Nigeria try to operationalize themselves include; level of education, standard of living, verbally and in the media, while noting is seen poverty, death rate, birth rate etc. on ground. They need to match words with action. Road networks, pipe borne water, The definition of development based on these electricity, health care delivery, good learning theories enable us have basis for accessing local environment and functional education are few government performance as regards and far apart in the local government areas. development in local communities or rural areas Hence the importance of this recommendation; in Nigeria. What constitute rural or community that local governments should do less of verbal, development which our literature review but more of action (Ikelegbe, 2005). examined is also relevant because our venue of study is rural area. A brighter picture of the Local governments should have less of development in this area which is the concern advertisement, jingles, and posters, political of the paper was presented through a combined solidarity rallies, etc. and move into the use of the system theory in general and rural business of developmental activities as captured development theory specifically. Efforts at in 1999 constitution as amended. Indeed, any conceptualizing the theories and approaches of developmental action for a community is the past administrations help us to have an known by the community concerned and hardly insight into the problems of rural and needs any advertisement on television for the community development which is the central locality to know about it. There is the popular theme of this thesis. adage that “action speaks louder than voice”, as well as “by their fruits, we shall know them”. In To scientifically undertake the purpose of the fact, development efforts of any local study, this paper traversed theoretical government advertise itself to the host framework, conceptualizations, and discussed community and beyond. Matching words with dominant issues in local government relations actions would earn the local government system with community and rural development. These all the needed respect, and autonomy from the were followed by analysis of critical issues in stakeholders. This could to a certain degree development of local areas. These issues eliminate the spate of dissolution of local bordered on some of the achievements of the government executives in Nigeria. However, local governments, such as roads construction, for the local governments to earn this respect provision of health facilities, and pipe borne and recognition from the people, they must do water. The paper established that local away with sycophancy and extricate themselves governments in Nigeria have only made from the whims and caprices of the higher level marginal impact in the localities. The paper governments. took a deep look into the challenges that might have contributed to the lean impact of local Conclusion governments, and dealt with the dominant ones We commenced the paper by having a look at for space constraint. These included the the meaning of local government, development structural problems which arise from in general, and community and rural domineering relationships between the local

development in particular, relying on the views governments and the federal and state

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Local Government And The Challenges….. governments as well as leadership and Ajayi, K (2004) “Transforming Rural Nigeria: attitudinal problems. Other challenges to local A Contextual Approach” The New Nigerian: governments‟ performance that identified in the May 21, p.5 paper are godfatherism and fledgling Ajayi, K. (2000) Theory and Practice of Local democracy. Democracy, which is supposed to Government, UNAD: Ado Ekiti be due process-bound, is easily brushed aside in Akpotor, A.S (1995) “Local Government Nigeria local government system, culminating Autonomy: Implications for Rural Development in unconstitutional sack of local governments and Democracy‟ in A.E. Ekoko, et al. Eds., The executives from time to time. Political Economy of Local Government Reforms and Transition to the Third Republic, Some of the suggestions to move the local Department of Political Science, Ambrose Alli governments forward include but not limited to University: Ekpoma adequate autonomy to local governments, Almond, G.A (1960) “Introduction: A proper re-orientation of leaders and sense of Functional Approach to Comparative Politics” patriotism by the citizenry, intergovernmental in Gabriel A. Almond and James S. Coleman relations and constitutionalism. The local Eds., The Politics of Developing Areas, governments should be proactive in internally Princeton University Press: Princeton generated revenue and overt development Bauchi State of Nigeria (2004) Annual Report, impact in the localities, rather than sycophancy Local Government Service Commission, and propaganda in the media. Democratic Government Printer: Bauchi consolidation and reduced corruption were also Blueprint Newspaper (2012) Local canvassed in the recommendations. Government Councils in Kaduna embezzled 30 Billion, in Blueprint Newspaper, Monday 5th February, 2012 References Blair, G.S (1977) Government at the Grass- roots, Balisade Publishers: California: Adamolekun, L (1983) Public Administration: Easton, D (1965) A Framework for Political A Nigerian and Comparative Perspective, Analysis, Printice Hall: New Jersey Longman: London Erero, J (1998) “Intergovernmental Relations Agagu, A (2004) “Continuity and Change in of the Local Level Since 1988 Civil Service Local Government Administration and the Reforms” The Quarterly Journal of Politics of Underdevelopment” in Agagu, A. Administration, Vol.28 No.1&2 pp.264-273. and Ola, R Eds., Development Agenda of Federal Republic of Nigeria (FRN)(1976) Nigerian State, Fiag Publishers: Ibadan Guidelines for Local Government Reform, Aghayere V.O (2008) “The Dynamics of Government Printer: Kaduna Centre – Periphery Dominance in the Nigerian Federal Republic of Nigeria (FRN)(1987) Political System: The Local Government Report of the Political Bureau, Abuja; Experience” 30th Inaugural Lecture Series, Directorate for Social Mobilization, Federal Ambrose Alli University, Ekpoma Government Printer: Abuja Aghayere, V.O (1997) Dominant Issues in Federal Republic of Nigeria (FRN)(1999) Nigerian Local Government System: A 1999 Constitution of the Federal Republic of Contemporary Focus, Imprint Services: Benin Nigeria, Federal Government Printer: Abuja City Federal Republic of Nigeria (FRN)(1999) Akhakpe, I (2011) “Local Government Annual Abstracts of Statistics 1999 Edition, Reforms in Nigeria” in I. Olojede, B. Federal Office of Statistics: Abuja Fajonyomi and J. Fatile Eds., Contemporary Guardian Newspaper (2012) Amechi Recall Issues in Local Government Administration in Sacked Local Government Chairmen, in The Nigeria, Rakson Nigeria Ltd: Lagos Guardian Newspaper, Thursday 2nd February, Akhakpe, I. and Igbokwe-Ibeto, C.J (2012) 2012, p.3 Culture, Governance and Democracy in Igbokwe-Ibeto, C.J (2003) Effectiveness of

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