GOVERNANCE AND BUREAUCRACY: LEADERSHIP IN NIGERIA’S PUBLIC SERVICE The Case of the Lagos State Civil service (1967-2005) Rosamund Naduvi Ibiyemi Oyelaran – Oyeyinka © 2006 R.N.I. Oyelaran-Oyeyinka All rights reserved Cover design by Jacqueline van Kesteren Published by Universitaire Pers Maastricht ISBN 13: 978-90-5278-582-0 ISBN 10: 90-5278-582-1 Printed in the Netherlands by Datawyse Maastricht GOVERNANCE AND BUREAUCRACY: LEADERSHIP IN NIGERIA’S PUBLIC SERVICE The Case of the Lagos State Civil Service (1967-2005) PROEFSCHRIFT ter verkrijging van de graad van doctor aan de Universiteit Maastricht, op gezag van de Rector Magnificus, Prof. Mr. G.P.M.F. Mols, volgens het besluit van het College van Decanen, in het openbaar te verdedigen op donderdag 26 oktober om 10.00 uur door Rosamund Naduvi Ibiyemi Oyelaran – Oyeyinka UMP UNIVERSITAIRE PERS MAASTRICHT Promotor Prof. Dr. Louk de la Rive Box, Rector, Institute of Social Studies, The Hague, and Honorary Professor of International Cooperation, Maastricht University. Co-promotor Prof. Dr. Bamidele Olowu, African Development Bank, Tunisia, and (retired) Professor, Obafemi Awolowo University, Ile-Ife, Nigeria Beoordelingscommissie Prof. Dr. B.J.S. Hoetjes (voorzitter) Dr. S.D.K. Ellis Prof. Dr. J.A.M. Maarse Prof. Dr. F.Y. Phillips The following institution partially sponsored the Ph.D. thesis research: Nederlandse Organisatie voor Internationale Samenwerking in het Hoger Onderwijs (Nuffic) “When the righteous are in authority, the people rejoice: but when the wicked beareth rule, the people mourn”. (Proverbs 29: 2 KJV) “When one rules over men in righteousness, when he rules in the fear of God, he is like the light of morning at sunrise on a cloudless morning, like the brightness after rain that brings the grass from the earth. (2 Samuel 23:3-4 NIV) DEDICATION This book is dedicated to my late parents Janet Olatunji George (nee Holloway) And Mark Tychus Lawson Acknowledgement To God be the glory, great things He has done. The completion of this PhD project makes the word of God true in my life that “I can do all things through Christ who strengthens me”- Philippians 3:13. Having a Doctorate Degree is a dream I have nurtured since 1983 after the completion of my Masters degree at York University, Toronto, Canada. I thank God that the dream came to pass in 2006. All those who contributed to the achievement of this life-long vision therefore deserve my recognition and gratitude. My promotor, Prof. Dr. Louk de la Rive Box (Rector, Institute for Social Studies, The Hague and Honorary Professor of International Cooperation, University of Maastricht) de- serves my unending gratitude for the role he played in the conception and completion of this project. He challenged me to believe in myself, and to have the confidence to be critical of received wisdom. I really appreciate this. The exposure to international conferences and workshops, the experience and relationships formed cannot be quantified. Along the line, I became a board member of the African Evaluation Association (AfrEA). He is without a doubt an embodiment of a true Promotor. Prof. Dr. Dele Olowu, my co-promotor, is indeed God sent. Like Prof. Box will always say, “Dele is the content man”, and he indeed lived up to this reputation. His review of every draft of the thesis starts with high commendation and alas, pages of cogent critique but more importantly, positive suggestions that made subsequent higher quality work. I really appreci- ate his invaluable ideas and suggestions. Inspite of his busy schedule, he gave me an unlim- ited access. The good Lord will reward this labour of love. The two of them are indeed a formidable team. Inspite of the fact that they are both Pro- fessors of international repute, I am struck by their humility, humour and love for their work. I thank them for the role they both played in securing the NUFFIC scholarship. I bless my God for making me come across them. I am very grateful to Prof. Dr. B.J.S. Hoetjes, Chairman –Reading Committee. I thank him for his invaluable comments and the speed with which he read the thesis. My thanks also go to other members of the Reading Committee, Dr. S.K.D. Ellis, Prof. Dr. J.A.M. Maarse, and Prof. Dr. F.Y. Phillips for their enthusiasm and readiness in reading the draft of this the- sis. I wish to express my heartfelt gratitude to Richard Horne who provided excellent editorial support in the early and final stages of the manuscript. This research would not have been possible without the explicit support of the past and present Governors of Lagos State. Their Excellencies played an important role in this project. Their consent and collaboration contributed in very significant ways to its credibility and ro- bustness. I am extremely grateful for their time, knowledge and experience that were freely shared to give interviews. May I humbly use this opportunity to mention their names; Briga- dier Mobolaji Johnson (rtd.), Commodore G. Ndubuisi Kanu (rtd.), Commodore O. Ebitu Ukiwe (rtd.), Alhaji Lateef Kayode Jakande, Rear Admiral Okhai Mike Akhigbe (rtd.), Colo- nel Raji Rasaki (rtd.), Sir Michael Agbolade Otedola, Colonel Mohammed Marwa (rtd.), and Asiwaju Ahmed Bola Tinubu. I am indeed grateful for the assistance of eminent retired knowledgeable civil servants from Lagos State Government, Chief F. A. O. Adeyemi (SSG), Mr A. S. Ajose (HOS), Mrs. S. K. T. Omotesho (PS), (also by proxy, Mr Omotesho), Mrs. O. Adekoya (PS), and Mrs. J. A. Olusoga (PS). Their insights to public administration and policy greatly enhanced my un- derstanding of the public service. Their helpful suggestions and advice contributed to the re- 6 alization of this study. I would also like to thank my mentors and colleagues, but whom for the fact, are still in service of the Lagos State Government, I may not be able to mention their names. You made me achieve the near impossible task. They are all from different Ministries and Departments and they gave useful information, filled questionnaires and helped to collect secondary data. I thank them all for their warm reception and hospitality during my fieldwork. I would like to thank the academic and non-academic staff of Maastricht School of Management for making my stay in the school very comfortable. I must but mention the role of Prof. Dr. Kami Rwegasira and wife Agnes. I thank them so much for their concern and love, and Prof. I really appreciated your taking me through Research Methodology. Prof. & Mrs. Eno L. Inanga I thank them for their friendship. Profs. Fred Y. Phillips and Steve F. Fos- ter, their comments and ideas during the early stages of this work helped to give it a firm ori- entation. Ngozi Nwosu is more than a friend; she is a true sister. Ayman Khedr I found a brother in him. They all made my stay at MSM wonderful. I must at this stage mention some few people at UNU- INTECH (now UNU- MERIT) who gave me some valuable supports. I am grateful to Professor Lynn Mytelka for her sup- port right from the inception of this project. Prof. Rajah Rasiah and his wife, Krishna, I must register my appreciation and the wonderful words of encouragement. Dr Padmashree Gehl Sampath, husband Dirk, and Dr. Catherine Nyaki for their continued friendship over the years, they are more like a family, thank you. Dr Kaushalesh Lal and wife, Usha, they were very nice to me. Thank you K.L for making me understand that statistics could be an interest- ing subject. I must also thank Geoffrey Gachino for his help in my statistical analysis. Eveline in de Braek, was very friendly, hospitable, and has assisted in many ways. Thank you for helping to format this thesis. I appreciate you, Jacqueline van Kesteren for the cover design of this book. Yvonne de Groot forever being so friendly. I am hugely indebted to Dr. Lou Ann Barclay, with whom we started to discuss the idea of a doctoral programme while she was in Maastricht. I remember her assistance in trying to identify the right schools where I could do the programme. After admission, she was also there, supplying literature and other reading materials. I am indeed grateful. Some relation- ships have developed over the years that support Proverbs 18:24b (KJV) “and there is a friend that sticketh closer than a brother.” Tetteh and Adeola Mensah, I really appreciate our rela- tionship, they are always there, thank you. Wole and Lanre Adeloye, are indeed true to our friendship. Profs. Dipo and Bisi Aina, have really been a source of inspiration and encour- agement. Dr. Yinka Esan is really a sweet sister. Remi Aluko for her support and prayers, thank you. Biola Lamikanra, I thank her for her inspirational words. Mrs Modupe Badaru, ever ready with a word of prayer. I thank Mrs Yemi Akinlawon for her concern and encour- agement and Moji Elegbe for her word of grace. My special gratitude goes to the Christian Community, especially the Redeemed Chris- tian Church of God, Holland Mission. All the conventions and meetings where we all meet and share the word of God, were periods I really cherished. Pastor Bukky Olowu, I thank for her love and prayers, the good Lord will continue to bless her ministry. Pastors Paul and Bola Awede, Ibrahim and Ebun Abarshi, and other Parish Pastors, it has been an honour knowing them all. Now to my local church, Covenant Life Parish, Maastricht, you made my stay in the Netherlands wonderful. I thank the members for their encouragement and support. I deliber- ately do not mention names.