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The Emergence of Autocracy in Liberia

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The Emergence of Autocracy in Liberia The Emergence of Autocracy in Liberia Tragedy and Challenge Amos Sawyer IE PRESS Institute for Contemporary Studies San Francisco, California © 1992 Amos Sawyer This book is a publication of the Center for Self-Governance, dedicated 11othe study of self-governing institutions. The Center is affiliated with the Institute for Contemporary Studies, a non­ partisan, nonprofit public policy research organization. The analyses, conclusions, and opinions expressed in ICS Press publications are those of the authors and not necessarily those of the Institute for Contemporary Studies, or of the Institute's officers, directors, or others associated with, or funding, its work. Printed in the United States of America on acid-free paper. All rights reserved. No part of this book may be used or reproduced in any manner without written permission except in the case of brief quotations in critical articles and reviews. Inquiries, book orders, and catalog requests should be addressed to ICS Press, 243 Kearny Street, San Francisco, CA 94108. (415) 981-5353. Fax (415) 986-4878. For book orders and catalog requests call toll free in the contiguous United States: (800) 326-0263. Distributed to the trade by National Book Network, Lanham, Maryland. Copyeditor: J. M. B. Edwards. Production Editor: Tracy Clagett. Indexer: Shirley Kessel. Author photograph courtesy of Ernest Harsch. Cover design by Ben Santora. Library of Congress Cataloging-in-PublicationData Sawyer, Amos. The emergence of autocracy in Liberia : tragedy and challenge / Amos Sawyer. p cm. Includes bibliographical references and index. ISBN 1-55815-164-8 - ISBN 1-55815-191-5 (pbk.) 1. Liberia-Politics and government. I. Title. DT631.5.$29 1992 966.62-dc2O 91-41511 CIP Contents Foreword Robert B. Hawkins, Jr. ix Acknowledgments xi Maps xiii 1 Social Order and Constitutional Choice 1 Institutional Analysis and the Constitution of Order * Institutional Analysis of Patrimonial Regimes • Emerging Paiterns of Order 2 The Idea of Liberia 13 The Social Context of Colonization * The Colonization Idea • The Founding of the American Colonization Society • Voices against Colonization The Idea of Liberia aE Design for a Difficult Predicament 3 Indigenous West African Social Orders 43 The People • Patterns of Social Organization Land, Labor, Commodity Productian, and Trade • The Atlantic Slave Trade and Domestic Servitude * Power Relationships among Indigenous Political Orders at the Founding of Liberia v vi Contents 4 Constituting Settler Society and Establishing a "Sphere of Influence" 71 Constituting Internal Order * Strategic Interactions: Land, Trade, and Warfare ° Trade, Conflict, and Settlements: The "Western" Area • Trade, Conflict, and Settlements: The "Eastern" Area Maryland in Africa * Reaping Independence While Pursuing Trade 5 Settler Society in the Nineteenth Century 97 Demographic Features ° Social Patterns ° Social Institutions ° Land and Property Rights 6 Expanding Control amid Imperial Challenges 125 Pacification and Control in Western and Northwestern Liberia ° Pacification and Control in Eastern and Southeastern Liberia ° The European Colonial Challenge 7 Political Proprietorship and Economic Decline 151 Merchant Proprietary Rule in the Postiidependence Period ° Economic Prosperity and the Rise of Plantation Agriculture ° Political Conflict and Economic Decline ° Economic Collapse and Foreign Domination ° The UNIA and Liberia 8 Strategies for Assimilation and Incorporation 185 The Apprenticeship System * Educational Institutions and the "Civilizing Mission" ° The Settlements Policy * "Indirect Rule' and the Development of an Interior Administration * The Barclay Plan - The Unification and Integration Policy 9 Domestic Servitude and the Political Economy of Labor 211 From the Atlantic Slave Trade to Contract Labor * Liberian Contract Labor in the Nineteenth Century ° Government Response to Contract Labor Recruitment * Labor Recruitment and Indigenous Contents vii Social Structure ° Labor Recruitment and the Fernando Po Crisis ° The League of Nations Inquiry , Consequences of the Labor Crisis 10 Property Rights and Concessions in Modern Liberia 237 Property Rights in Nineteenth-Century Liberia Sovereignty and Property Rights ° Foreign Concessions and Property Rights ° Firestone and Other Rubber Concessions ° The Political Economy of Rubber Concessions ° Iron Ore Mining Concessions ° Socioeconomic Consequences of the Mining Concessions • Government, Concession Rights, and Development 11 The Emergence of Autocracy 263 Patrimonial Authority and the Political Process of the Nineteenth Century * Transition to Personal Rule ° The Personalization of Authority ° Exercising Personal Authority without Patronage Military Tyranny ° 12 The Continuing Challenge 301 The Postcolonial African State and Presidential Autocracy ° State and Civil Society in Postcolonial Africa ° Rethinking Governance in Africa Resisting Autocracy Appendix: Chronicle of Leadership and Events 315 Notes 319 Bibliography 379 About the Author 397 Name Index 399 Subject Index 405 Foreword THE FOUNDERS OF LIBERIA did not set out to create a society given over to autocratic rule. When they arrived in West Africa in the 1820s the settlers, free blacks from the United States, carried with them prevailing nineteenth-century ideals of democracy and the hope of extending Christianity to the natural-born inhabitants of the territory. Yet, six generations later the descendants of those first Liberians saw presiden­ tial autocracy culminate in the tragedy of military dictatorship and cruel civil conflict. The author of this book is a Liberian patriot who is now head of the provisional government striving to secure peace and establish democratic institutions after the civil war. In a compelling account rich in historical detail, Amos Sawyer examines more than a century and a half of Liberian life. Fie demonstrates how autocracy emerged from a tradition of patrimonial authority, with the prerogatives of governance persistently ccncentrated in the hands of successive presidents. This pattern of autocratic control, which was not in itself despotic, was then easily appropriated by a military dictator. This definitive work shows that a series of social and political choices, the distant outcome of which was not foreseen, produced the conditions that favored autocracy. Among these choices was the colonists' adop. tion of a written constitution that prescribed unitary government with centralized authority. Sawyer's analysis makes clear how Liberia, from its unique begin­ nings, nevertheless came to embody a system of governance typical of postcolonial African states. He identifies key elements of all such states and shows their correspondence to the system of presidential rule that developed in Liberia. In Liberia as in the postcolonial countries, the presi­ dency as the embodiment of the state was allowed to accumulate increas­ ing power and finally to transcend the requirements of accountability. ix x Foreword The Emergence of Autocracy in Liberia shows that the lessons of the Liberian experience bear on the future of governance throughout Africa. Sawyer urges both Liberians and citizens of the continent's postcolonial countries to draw upon traditional African institutions for patterns of governance that can blunt the predatory and repressive effects of the centrafr-ed state. He holds that if the postcolonial societies can abjure government-imposed unity-that is, relinquish the idea that the national unity achieved during the struggle for independence should be main­ tained at all costs-they can turn to indigenous traditions and informal structures such as the parallel market for the develcpment of self­ organizing capabilities. All those concerned with freedom and self-governance-not only in Africa but throughout the world-will learn much from this absorbing book and will find in it clear-sighted encouragement to resist autocracy and meet the challenge of building strong, self-governing human societies. Robert B. Hawkins, Jr., President Institute for Contemporary Studies Acknowledgments I WAS FIRST MOTIVATED to look more deeply into the Liberian experi­ ence when, in 1974, as a member of the staff of the University of Liberia, I began teaching a sophomore-level survey course on Liberian society. I greatly appreciate the searching-sometimes embarrassing-questions of successive groups of students who took the course over the years. I am also grateful to Mary Antoinette Brown Sherman, former president of the University of Liberia, Zamba Liberty, Patrick Seyon, and other colleagues who struggled to make the university a center for critical inquiry and whose quest for an understanding of Liberian social processes deepened my own curiosity. This book was written while I was a research scientist at the Work­ shop in Political Theory and Policy Analysis at Indiana University in Bloomington, and I wish to thank the Workshop for its generous sup­ port. Far beyond financial support, the Workshop offered intellectual stimulation and a collegial environment. Elinor and Vincent Ostrom, codirectors of the Workshop, are not only able scholars but colleagues whose activities at the Workshop demonstrate a commitment to advanc­ ing intellectual inquiry as an enterprise of scholarly communities. I am most grateful to them. Vincent Ostrom read and reread every chapter of this book and made useful suggestions. I have also benefited from the comments and editorial suggestions of Warren d'Azevedo, Louis DeAlessi, Zamba Liberty, and J. Gus Liebenow, who read
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