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FEDERALISM Muslim Civic Cultures and Conflict Resolution The A SABAN CENTER AT THE BROOKINGS INSTITUTION BOOK Muslim Civic Cultures and Conflict Resolution The Challenge of Democratic Federalism in Nigeria John N. Paden 6817-6 ch Frontmatter 9/15/05 12:02 PM Page i Muslim Civic Cultures and Conflict Resolution 6817-6 ch Frontmatter 9/15/05 12:02 PM Page ii 6817-6 ch Frontmatter 9/15/05 12:02 PM Page iii Muslim Civic Cultures and Conflict Resolution The Challenge of Democratic Federalism in Nigeria John N. Paden brookings institution press Washington, D.C. 6817-6 ch Frontmatter 9/15/05 12:02 PM Page iv Copyright © 2005 the brookings institution 1775 Massachusetts Avenue, N.W., Washington, D.C. 20036 www.brookings.edu Library of Congress Cataloging-in-Publication data Paden, John N. Muslim civic cultures and conflict resolution : the challenge of demo- cratic federalism in Nigeria / John N. Paden. p. cm. Summary: “Examines how a diverse country with a significant Muslim population is working to make the transition to a democratic society, balancing rule-of-law concerns against rising communal tensions” —Provided by publisher. Includes bibliographical references and index. ISBN-13: 978-0-8157-6817-3 (pbk. : alk. paper) ISBN-10: 0-8157-6817-6 (pbk. : alk. paper) 1. Democratization—Nigeria. 2. Islam and politics—Nigeria. 3. Federal government—Nigeria. 4. Conflict management—Nigeria. I. Title. JQ3090.P33 2005 320.9669—dc22 2005022911 9 8 7 6 5 4 3 2 1 The paper used in this publication meets minimum requirements of the American National Standard for Information Sciences—Permanence of Paper for Printed Library Materials: ANSI Z39.48-1992. Typeset in Minion Composition by OSP, Inc. Arlington, Virginia Maps on pages 6–7, 14, and 51 by Meridian Mapping Minneapolis, Minnesota Printed by R. R. Donnelley Harrisonburg, Virginia 6817-6 ch Frontmatter 9/15/05 12:02 PM Page v Contents Foreword vii Acknowledgments ix List of abbreviations xi Introduction 1 Part I. International and National Contexts 1 Nigeria in the World 13 2 The Emergence of Democratic Federalism in Nigeria 37 Part II. Nigerian Muslim Identities and Civic Cultures 3 Variations in Muslim Identities and Values 55 4 Emirate Civic Cultures 70 5 Nonstate Muslim Variations on Civic Culture 99 6 National Muslim Identities and Values 115 Part III. Challenges of Nigerian Democratic Federalism 7 Challenges of the Fourth Republic (1999–2005) 139 8 Challenges of the Shari’a Issue 157 6817-6 ch Frontmatter 9/15/05 12:02 PM Page vi vi Contents 9 The Shari’a Issue and Sociopolitical Conflict 171 10 Religious Tolerance and Conflict Resolution 183 Part IV. Conclusions: Muslim Civic Cultures and Conflict Resolution 11 Civic Cultures and Conflict Resolution 203 12 Nigeria in International Perspective 210 Appendixes A. Selected Electoral Patterns: The First Three Republics 227 B. Selected Biographical Summaries 233 Notes 241 Index 285 6817-6 ch Frontmatter 9/15/05 12:02 PM Page vii Foreword Transitions from military to civilian rule are amongst the most try- ing—and often turbulent—stages of governance. In large and diverse countries, local values are key factors in the success or failure of such a process. The cultural contours of political values can make or break the demo- cratic experiment. Thus, understanding grassroots civic cultures, and how they can serve as the foundations of democratic federalism, requires great attention and study. At the same time, the questions of whether and how Islam is compatible with democracy are not just an academic matter, but of crucial policy impor- tance. However, while the focus of U.S. attention on the Muslim world has been on the cauldron of the Middle East, such questions may best be answered from the lived experiences of Muslim communities around the world. Nigeria, set within the non-Arab Muslim communities of West Africa, is a critical case study to answering such questions. By far the most populous country in Africa, Nigeria has a population of about 138 million, of whom about half are Muslim and half Christian or traditional, making it a key fault line. At the same time, Nigeria is one of the most strategically important states in the world. It plays a regional power role in West Africa and is also the seventh largest producer of oil in the world. It has gone through a series of political traumas ranging from civil war and military rule, to struggling attempts at a U.S.-style presidential federal system. The Fourth Republic, which emerged in 1999 after fifteen years of military rule, is trying to balance states’ rights with national priorities and rule of law concerns at a time when many communal tensions are coming to the surface. Conflict mediation, set- tlement, and resolution are top priorities in this context, and a precondition for stability and economic development. vii 6817-6 ch Frontmatter 9/15/05 12:02 PM Page viii viii Foreword As our guide to understanding these dynamics, we are lucky to benefit from John Paden’s expertise. One of the world’s leading experts on the region, his experiences in Nigeria extend from the First Republic to the current Fourth Republic. He has lived and taught in the major northern universities of Nigeria, has conducted research on the Sufi brotherhoods in Kano, and written a major biography of the first (and only) northern premier. He mon- itored the presidential elections in Kaduna (1999) and Kano (2003). Professor Paden takes us inside the world of Nigerian religion and politics, with a focus on the ways Muslim civic cultures, ranging from the emirates of the far north to the more individualized patterns of the southwest, deal with matters of leadership and conflict resolution. The book provides a case study context for the current international concern with issues ranging from shari’a law and communal violence, to the war on terrorism. The book argues that the political necessity for cross-regional alliances in Nigeria serves as a counterbalance to more extreme forms of political movements. Other mech- anisms of inter-ethnic or inter-faith links and interdependencies are also explored. If the Nigerian model of democratic federalism works, it negates the “clash of civilizations” predictions of both the academic variety and the less benign al Qaeda version. More broadly, this book will be essential reading for anyone trying to understand the dynamics of Muslim civic cultures and conflict resolution. We are delighted that it is part of our new series at Brookings Institution Press on U.S. policy toward the Islamic world. P. W. S INGER Senior Fellow Director, Project on U.S. Policy towards the Islamic World Brookings Institution 6817-6 ch Frontmatter 9/15/05 12:02 PM Page ix Acknowledgments Many Nigerian scholars and colleagues from all points on the reli- gious and political spectrum have assisted me over the years. My deepest appreciation goes to those who persevere despite the real challenges of shap- ing a just political reality that can accommodate diversity and pluralism and those who are often involved, in unsung ways, in trying to mediate the inevitable conflicts of nation building. I am particularly grateful to Ahmad Abubakar who has read this manuscript and added a depth of insight. On the U.S. side, five colleagues have read the manuscript at various stages and provided very helpful comments and suggestions: Peter W. Singer, direc- tor, Project on U.S. Policy toward the Islamic World, Brookings Institution; Princeton Lyman, director of African Policy Studies, Council on Foreign Rela- tions; Pauline Baker, president, Fund for Peace; Sulayman Nyang, professor and former director of African Studies, Howard University; and Howard Wolpe, director, Africa Program, Woodrow Wilson International Center for Scholars. My sincere thanks to all. I recognize there are many points of view on the issues raised in this book, and I take sole responsibility for the per- spectives and selection of content. I would also like to thank my colleagues at George Mason University, espe- cially those in the Robinson Professor program, who encourage cross-disciplinary thinking “outside the box.”My colleagues at the Institute for Conflict Analysis and Resolution (ICAR) continue to provide role models in the way they combine intellectual endeavor with hands-on efforts at conflict resolution. Finally, I would like to thank my wife, Xiaohong Liu, who remains an inspiration. Having lived through the Cultural Revolution in China, she ix 6817-6 ch Frontmatter 9/15/05 12:02 PM Page x x Acknowledgments knows the challenges of moving from chaos to reforms in an increasingly interdependent world. This book is dedicated to all who engage in conflict resolution efforts, without which it is hard to imagine a peaceful and prosperous world. I am especially grateful to those who serve as “gateways” between communities and provide the critical function of communication and mediation. 6817-6 ch Frontmatter 9/15/05 12:02 PM Page xi List of Abbreviations AAPW Academic Associates/PeaceWorks ABU Ahmadu Bello University ACF Arewa (“Northern”) Consultative Forum AD Alliance for Democracy (Fourth Republic) AG Action Group (First Republic) ANPP All Nigeria People’s Party (Fourth Republic) APGA All Progressive Grand Alliance (Fourth Republic) APP All People’s Party (Fourth Republic) BUK Bayero University, Kano CAN Christian Association of Nigeria CHOGM Commonwealth Heads of Government Meeting CNPP Conference of Nigerian Political Parties (Fourth Republic) CRK Christian Religious Knowledge CSA Christian Students Association ECOWAS Economic Community of West African States ECWA Evangelical Church of West Africa EU European Union
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