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Ghana), 1922-1974 LOCAL GOVERNMENT IN EWEDOME, BRITISH TRUST TERRITORY OF TOGOLAND (GHANA), 1922-1974 BY WILSON KWAME YAYOH THESIS SUBMITTED TO THE SCHOOL OF ORIENTAL AND AFRICAN STUDIES, UNIVERSITY OF LONDON IN PARTIAL FUFILMENT OF THE REQUIREMENTS FOR THE DEGREE OF DOCTOR OF PHILOSOPHY DEPARTMENT OF HISTORY APRIL 2010 ProQuest Number: 11010523 All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a com plete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion. uest ProQuest 11010523 Published by ProQuest LLC(2018). Copyright of the Dissertation is held by the Author. All rights reserved. This work is protected against unauthorized copying under Title 17, United States C ode Microform Edition © ProQuest LLC. ProQuest LLC. 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106- 1346 DECLARATION I have read and understood regulation 17.9 of the Regulations for Students of the School of Oriental and African Studies concerning plagiarism. I undertake that all the material presented for examination is my own work and has not been written for me, in whole or part by any other person. I also undertake that any quotation or paraphrase from the published or unpublished work of another person has been duly acknowledged in the work which I present for examination. SIGNATURE OF CANDIDATE S O A S lTb r a r y ABSTRACT This thesis investigates the development of local government in the Ewedome region of present-day Ghana and explores the transition from the Native Authority system to a ‘modem’ system of local government within the context of colonization and decolonization. The decolonization process and the transition to local councils in the region from the 1950s brought in its wake a change in power relations, as individuals and groups at the local level began a stmggle over status and political space within the new local government structure. As the decolonization process necessitated a change in the trusteeship status of the region, the development of local government suffered a severe jolt, as local councils became battlegrounds for the fight for and against the integration of the trust territory into independent Ghana. The thesis argues that while the Native Authorities of the colonial period were inefficient and incapable of advancing the development of a modem society, the successor local councils proved to be far more inept and corrupt than the bodies they came to replace. Excessive politicisation of local government structures alienated many citizens to the extent that local councils failed to follow in the tradition of serving as a focal point for harnessing the enthusiasm and energy of rural folk in the region. CONTENTS Maps 2 Acknowledgements 6 Abbreviations 7 Glossary 8 Introduction 10 Chapter One: Ewedome in the Pre-Colonial and German Colonial Periods 27 Chapter Two: The Mandate and the Creation of Native Authorities, 1914-1949 70 Chapter Three: Native Authorities in Practice, 1939-1950 124 Chapter Four: The Transition from Native Authorities to Local Councils 176 Chpater Five: Local Government in the Run-up to Independence 232 Chapter Six: Local Government in the Immediate Post-Independence Period, 1957-74 268 Conclusion 319 Bibliography 322 Interviews 346 Figure 1: A MAP OF VOLTA REGION SHOWING THE PRINCIPAL TOWNS IN THE STUDY AREA Burkina Faro M ortlw ii KadptM / ' Ea«t«rn 0OKm B w m Akpatu S a n t r o k o f i Ars*im« Ahunde LEGIRQ - l.ok« VoJtn 2 2 3 sf« d y A « o - Angi#-G*rmcw Bowdor? (nf«rnat»o«ai Boundary Scule aaK ilem rtm 'Anloge R tf; CQr*ograpi*te Unit, Gtography t Rtgtonai Planning, UC C — ?W9 FIGURE 2: THE AMALGAMATED STATES IN EWEDOME Bur hi ft a fo ie \ Region L / lierH wrn Regina y / Brong Afcafo Region Ashanti y Gfhte* **«*«* taster* / Region,. SROMG AHAKs RiGWK UGEHO ICete-Krothi Intimation ai Boundary^* Rr»er O Towns/Villages — — Aagfo-Geraujn Boundary ^ Study Area OBorada ■ •SARTROKOM 0 A w tdjoft Ref i Cartographic Unit, Oepi #f Geography * Rejtonol Pianning,UCC —200? 3 FIGURE 3: A MAP OF VOLTA REGION SHOWING LOCAL COUNCILS IN 1955 ~T Sw ittBO _ JM u o Xorrtwrn RnjtiKi \ Bronj Ahoto ftogpon > \ V t Gull *1 Gut«»o \ \ tjCEMB + --t- Iwtenolionot Souneory — Regional SmntiarY ....... ■-" Lacol Council Boundary R io tr g T B Shody Araa Scot* 1 rt» .0 0 B * r 1tech - 17 S M ite M i t e « 0 K n V ionrarwl- B U EM * BIAXOVt AKPIM! EAST DAI IT SOME DIVISION AN hO A BUS Of GBE tATlAhUI DIVISION! PEK! GUAN AOAKLU OZODZEl CENTRAL TONGU TON 0 U / UPPER TOMGU \ AVENOR WHETA A PSE KUKOR LOWER TOKGU ' ■, / \C E M T R i^ N y (ETA URBAN COUNCIL SOUTH ) 1 _ AHLO _ ... s«i r ~ 8 I Quin* o Ref : CarfBjraphic Unit, Geography I Regional Planning,UCC—20M 4 FIGURE 4: A MAP OF VOLTA REGION SHOWING DISTRICT ASSEMBLIES IN EWEDOME IN 2006 Burkina Pa*c UMwrVtot Northern NKWARTA Brong AhafoR*«*an l a f t o r n KRACHt WEST’ R o g io n mm Gulf of Guinao tE G E ire Kcdjobi in*»mati«mQl Boundary Jc — Regional Boundary |^CZ3tajooa • Regional Capital I JASIKAN Qi»!riti Boundary Road* © District Capita! Study Aron HOHQ*Z> Scat* I’ S»,oso foot AKATSI / WORTH TONGU SOUTH TOR GO GREATER ACCRA REGION G uinea Ret t CortefrapAic Unit, Geographyt Regional pionmag, UCC — ISM 5 ACKNOWLEDGEMENTS I owe a great deal of gratitude to Dr John Parker, whose meticulous supervision gave this work its final shape. He drew my attention to relevant literature and on countless occasions made his own books available for my use. His interest in the topic was a source of encouragement that urged me on. His affability and preparedness to engage me in discussions at any time and anywhere was incredible. Above all, he inculcated in me the importance of paying attention to details in my quest to become a successful academic. I am also grateful to Professor Ian Brown, Professor William Clarence-Smith, Dr Daud Ali and Dr Wayne Dooling for exposing me to the intricacies of historical research. I am particularly grateful to Dr Richard Reid, who gave me the opportunity to sit through his lectures on Introduction to African History and to serve as his Teaching Assistant. This not only gave me an insight into new trends in the teaching of African history, but it also enabled me to draw useful comparisions in analysing historical processes in my study area. My sincere gratitude goes to the staff of the SOAS Library, the National Archives, Kew, London, the Rhodes House Library, Oxford, and the archives in Accra, Ho and Koforidua in Ghana, for their assistance in helping me to access valuable materials for my research. I wish to acknowledge the invaluable support and sacrifices of my wife, Miss Cecilia Ama Dusi, throughout my four-year stay in London. Finally, my thanks go to the Ghanaian taxpayer, whose sweat and toil provided the funds for my scholarship, and to the Vice- Chancellor of the University of Cape Coast for granting me a study leave to pursue my PhD programme at the School of Oriental and African Studies. 6 ABBREVIATIONS AEC All-Ewe Conference CCC Chief Commissioner of the Colony DC District Commissioner JPC Joint Provincial Council JTC Joint Togoland Council NA Native Authority NAO Native Authority Ordinance NRS Natural Rulers Society PMC Permanent Mandate Commission SDC Senior District Commissioner TU Togoland Union TC Togoland Congress TVT Trans-Volta Togoland GLOSSARY OF EWE TERMS ablode freedom agblekofe farm hut/hamlet atamkayi linguist’s sword du (pi. dnwo) town duko (pi. dukowo) state dusimefia right-wing chief fia chief fiaga paramount chief fome family hotsui cowrie shell Mawu God megbefia rear-guard chief miamefia left-wing chief ngogbefia advance-guard chief omanhene (Akan) paramount chief sa lineage togbe chief or an old man tro lesser god tronua (pi. tronuawo) traditional priest tsami linguist twafohene (Akan) vanguard chief 8 DEDICATION This thesis is dedicated to the memory of my mother, Cecilia Afua Edofe Aborbor, who died on 22 July 2009. 9 INTRODUCTION This thesis examines the development of the Native Authority system of British colonial administration in the Ewedome region of Ghana and its transition to a ‘modem’ system of local government in the post-colonial period, from the 1920s to the 1970s. From the 1880s to 1914, Ewedome formed part of German Togo, and after the First World War, it became part of the League of Nations Mandated Trust Territory of Togoland under British colonial rule. This chronological span was chosen because formal British occupation of Ewedome started in 1922 and the study traces the history of local government up to 1974, when local councils were completely abolished. The scope of the study, however, expands a little beyond what the title suggests. It begins with the pre-colonial period to help the reader understand the nature of the traditional political organization before analysing the transformation that followed in the colonial and immediate post-colonial periods. Similarly, the concluding section briefly extends the narrative up to the 1990s in order to give an overview of local government to the present. I refer to the Native Authority (NA) system as local government because it represented what Mahmood Mamdani has called a ‘decentralised arm of the colonial state’, although the type of local government conceived and implemented at the time was limited in its composition to the chiefly enclave and lacked the credentials of a ‘modem’ democratic type of local government.1 In his recentLocal Government in Ghana, Massing traces the origin 1 Mahmood Mamdani, Citizen and Subject: Contemporary Africa and the Legacy of Late Colonialism (Princeton, 1996), p.
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