32 Inter-Governmental Relations & Promotion of Grassroot Democracy... B.A.:.Amujiri INTER-GOVERNMENTAL RELATIONS AND PROMOTION OF GRASSROOT DEMOCRACY IN NIGERIA: MYTH OR REALITY? B. A. AMUJIRI Dept. of Public Administration & Local Government, University of Nigeria, Nsukka Abstract The task of this paper is a critical examination of how pattern of IGR has hindered or promoted the role of local government in democratization of the grassroot in Nigeria. This is to test the validity of the general preposition which posits that the ability of the local government to effectively pursue the goals of grassroot democracy in Nigeria is function of the established pattern of IGR. In carrying out that, the paper examined; the meaning, scope and objectives of IGR; the determinants of IGR in promotion of grassroot democracy; analyzed the major challenges facing IGR in democratization process and discussed the prospects of grassroot democracy. The conceptual framework of analysis used was intergovernmental approach. The paper discovered that even though local governments, have substantial degree of Autonomy as assigned to them by the 1979 constitution, the regulatory powers from the state and Federal Governments have completely eroded local government autonomy thereby making it impossible for meaningful grassroot democratization effort. The paper concluded by arguing that since the arduous task of effecting grassroot democracy in Nigeria lies with the local government, there is need for harmonious IGR between local government and other tiers of government. Key Words: intergovernmental, grassroot, democratization and local government. Introduction One seemingly intractable problem that has engaged the attention of the Nigerian leadership and people, since the attainment of political independence in 1960 is that of state building as well as nation building. As Nwosu (1980) noted, Nigeria's efforts toward achieving real national development had been hindered by the existence of several large and small ethnic groups who are at varying stages of social mobilization. In a sustained attempt to manage complex mass of inter-winning relationship emanating from its heterogeneous environment, Nigeria adopted federalism as a strategy of attaining unity in diversity. Nigerian Journal of Social Sciences (NJSS) Vol. 7, No.2 Aug. 2011 33 Inter-Governmental Relations & Promotion of Grassroot Democracy... B.A. Amujiri Invariably, and as noted by Ayoade (1980), Elaigwu (1979), Dare (1987), Nwosu (1980) among others, federalism no matter whatever form it takes, involves more than one layer of government. Nigerian federalism therefore, involves three layers of government. The existence of three levels of government implies the existence of complex pattern of overlapping and sometimes conflicting relationships that require close understanding and management. In a federal arrangement, promotion of meaningful democratic process for the purpose of real nation building demands sound inter-governmental relations. This is because as Umezurike (1990) noted, the future of intergovernmental relations would as much as possible determine the level to which government commitment to promotion of democratic process would be pursued. Since the task of effecting grassroot democracy in Nigeria lies with the local government which is the third tier of government, there is need to examine the way it relates with other tiers of government. The task of the paper is to examine intergovernmental relation in the promotion of grassroot democratic process in Nigeria. In doing this, the paper tend to raise the following questions: 1. What is IntergovernmentalRelations, its scope and objectives? 2. What are the institutional arrangements for the management of Intergovernmental Relations? ~ 3. What are the determinants of Intergovernmental Relations in the I promotion of grassroot democratic process? 4. What are the challenges of intergovernmental relations in promotion of ~ grassroot democracy in Nigeria? 5. What are the prospects of inter-governmental relations in the promotion of f democratic process? r Intergovernmental Relations - A Theoretical Discourse r Inter-governmental relations, refer to the complex patterns of interactions, co-operations and inter-dependence between two or more levels. As noted by r Dearlowe (1979), Ogunna (1997), Olugbemi (1980) Igwe (2003) among others, it r is a plethora of formal and informal relationships and transactions that develop among levels of government within a nation state. These relationships according r to Nwosu (1980) can be vertical and horizontal. r In the words of Gboyega (2003), it is a term that was originated in the r United States of America to describe the various dimensions of governance not captured by the concept of federalism. According to Marando and Florestano r (1990), the concept implies four main issues namely, r r Nigerian Journal of Social Sciences (NJSS) Vol. 7, No.2 Aug. 2011 ,.r 34 Inter-Governmental Relations & Promotion of Grassroot Democracy... B.A. Amujiri (1) Multi - jurisdictional decision - making context. (2) The various mixes between central and constituent authorities. (3) Inter - personal and organizational networking and (4) The reliance of governmental and non- governmental approaches to problem resolution. Onuoha (2003) defines it as interactions that take place among the different levels of government within a state. Usually, the concept is associated with states having a federal administrative system where the relationships between the federal, central or national government and the major sub-national unit (province, region, or state) are formally spelt out in the constitution. As Ademolekun (1983) noted, the jurisdictional powers of each level of government are spelt out in the constitution and any re-arrangement must be through a constitutional amendment involving both levels of government. Although an intergovernmental relation is widely associated and most 1, popular with nations that have opted for federal arrangement, it is not exclusive to ... federal systems. It equally apply to both federal and unitary governments but it is 1 more pronounced in the former than in the latter. 1 Analysing the scope of the concept, Nwosu (1980) argued that the scope I ~ of intergovernmental relations depends on the type of constitutional arrangement 1 in operation. In modem unitary system, there are patterns of interactions and ~ inter-dependence between the central and local governments. Similarly, in a ~ federal state such as Nigeria with three tiers of government, Intergovernmental , Relation can take the following format. 1 1. Federal - State 1 ii. Federal - State - Local 1 lll. Federal- Local , 1..·/. State - Local •• 1 v. State - State ~ vi. Local - Local 1 It is however important to state that the more programmes and activities the different tiers of government in Nigeria embark upon within a state, the more . complex the nature and scope of intergovernmental relations will be and these j require an orderly and efficient co-ordination and management. Undoubtedly, the I volume and scope of activities embarked upon by different levels of government ••• in Nigeria have substantially increased with each succeeding regimes. .4 Consequently, the objectives of intergovernmental relations in Nigeria 1. include the following: (i) to promote peace and harmony among the three levels of government. 1 1 i NigerianJournal of Social Sciences (NJSS) Vol. 7, No.2 Aug. 2011 .. 35 Inter-Governmental Relations & Pro,motion of Grassroot Democracy... B.A. Amujiri (ii) to enhance the emergence of cooperative rather than competitive federalism; (iii) to ensure effective and efficient utilization of available human and material resources among the various levels of government; (iv) to accelerate the achievement of self reliant economy; (v) to minimize inter-jurisdictional conflicts among the various levels of government; (vi) to solve the problem of rural and urban poverty, ignorance and suffering of the people; and (vii) to foster greater national integration through the activities of the three levels of governm~nt. .Institutional Arrangements for the Management of Intergovernmental A number of institutional arrangements have been established by successive administrations to manage intergovernmental relations in Nigeria. They are as follows. 1. The National Council of State. 2. The National Economic Council. 3. The Central Bank of Nigeria which is at present co-ordinating the fiscal and monetary policies of all levels of government. 4. The regional meetings of State Governors to coordinate jointly owned Economic and Social Institutions like cocoa House, Nigercem, NNDC, New Nigeria Newspaper etc 5. The committee for National Youth Service Corps matters. 6. The monthly Federal Allocation Committee. 7. The Nigerian Governors Forum. 8. The periodic meeting of Federal and State Public Service Commission which is aimed at ensuring free movement of high level manpower. 9. The joint State - local government Account Committee 10. The meetings of Governors and Chairmen of local government of which is referred to, in some States as Council of local Government. 11. The meeting and Conference-s of Federal Ministers and Commissioners. , 12. The Local Government Service Commission, which is a State Agency that coordinates personnel matters for all the local Governments within the State. r 13. The Director of local Government Audit and Local Government Alarm Committee in every state Of the federation that help to facilitate greater Nigerian