Femi Okunnu

After the 43rd meeting of the Federal Executive Council on December 30, 1974, General Gowon, the President of the Council, delivered a farewell speech to the outgoing Civil Commissioners. He noted that the life of the Council was coming to an end with this meeting. He expressed gratitude from the nation and his government for the services rendered by the departing commissioners, recalling the challenging times experienced during the National Crisis and the Civil War when they served faithfully. He mentioned that over 3,000 memoranda were reviewed during the Council’s tenure, addressing high policy issues crucial to the nation’s survival. “It is now in the national interest that we should have a change,” he stated.

I concluded my role in the Federal Government on December 30, 1974, after serving as the Federal Commissioner for Works and Housing since May 27, 1967. In January 1975, General Gowon appointed Brigadier Olu Obasanjo as my successor. It was indeed a time for change. As I reflect on the years gone by, what legacy did the Gowon government leave behind? What were our accomplishments and failures?

I had previously highlighted several key successes of the Ministry of Works and Housing during the Gowon era:

1. The introduction of two new dual carriage highways connecting the north and south: the Warri-Sapele-Benin-Auchi-Koton Karfi-Abuja-Kaduna highway and the Calabar-Yola-Maiduguri highway. The two existing north-south roads were reconstructed into dual carriageways to enhance connectivity.

2. The construction of the Lagos-Ibadan section of the Lagos-Ibadan-Jebba-Kaduna-Kano-Daura highway was well underway before I left office, including the Shagamu-Benin section of the Shagamu-Benin-Asaba-Onitsha dual carriageway.

3. Significant progress was made on a host of roads spanning the 20,000 miles of federal roads (up from under 7,000 in 1967), with many completed or in planning stages by December 1974.

4. Massive investments in public buildings were executed, including the Federal Secretariat in Lagos and similar structures in each state capital.

5. There was substantial investment in housing projects for civil servants, notably the high-rise towers in Lagos, which initially aimed to accommodate participants for the All Africa Festival of Arts and Culture in 1976.

6. The National Housing Authority was established under the Cabinet Office to provide housing units to the public following the festival, and Festac Town was developed in Lagos.

7. The Federal Mortgage Bank was set up, taking over the assets of the Nigerian Building Society after nationalizing British interests.

8. A clear and permanent boundary between Nigeria and Dahomey (Benin) was established, with no disputes arising since that resolution.

9. Each profession—architecture, engineering, estate surveying, building technology, and land surveys—was chartered.

10. The transition from left-hand to right-hand traffic was executed.

11. A Regional Centre for Aerospace Survey Training was established at Obafemi Awolowo University in Ile-Ife, welcoming students from various African nations.

Other significant initiatives during this era included:

12. The formation of the Nigerian National Oil Corporation, now the Nigerian National Petroleum Corporation.

13. The introduction of decimal currency, with the Naira as the standard.

14. The initiation of the Metric System, led by the Ministry of Works and Housing and executed by the Ministry of Trade.

15. The implementation of Universal Free Primary Education across Nigeria in 1974.

16. Nigeria’s membership in OPEC (Organization of Petroleum Exporting Countries).

17. The establishment of the National Youth Service Corps (NYSC).

18. The Nigerian Enterprises Promotion Act (Indigenisation Decree) of 1972 gave Nigerians greater ownership in commerce and industry.

19. The creation of the Economic Community of West African States (ECOWAS).

20. The establishment of motor assembly plants: Volkswagen in Lagos, Leyland in Ibadan, Peugeot in Kaduna, and Daimler Benz in Enugu.

21. The development of agro-allied industries including facilities for edible salt, sugar production in Jebba, and a super phosphate fertilizer project.

22. The Cocoa Research Institute of Nigeria and the Nigeria Institute for Oil Palm Research received full funding.

23. The International Institute of Tropical Agriculture was founded in Ibadan.

24. Pulp and Paper Mills were established at Iwopin and in the Southeast.

25. Specialist hospitals were developed in various states to boost medical manpower.

26. The Nigerian Bank for Commerce and Industry was created.

27. The National Insurance Corporation was formed.

28. The Nigerian National Supply Company was established.

29. The construction of two additional oil refineries in Warri and Kaduna took place, with no new refineries built since then.

30. The Federal Revenue Court was later renamed the Federal High Court.

31. The Federal Court of Appeal, now the Court of Appeal, was established.

32. The Nigeria-Cameroon boundary was successfully resolved.

The International Court of Justice confirmed the legal position taken by our government during a boundary dispute with Cameroon decades later. I would also like to briefly touch on other achievements during Gowon’s administration, which were thoroughly discussed in Council before implementation. I was involved in this process.

Closing the Educational Gap: Universal Free Primary Education

The Federal Commissioner for Education, Chief A.Y. Eke, identified significant educational disparities and stressed the need to address these inequities. In a memorandum titled “Closing the Education Gap,” he appealed for the Council’s intervention in underperforming states.

He highlighted the “gross uneven educational development,” particularly between northern and southern Nigeria. Despite acknowledging educational gaps among regions, he provided stark statistics illustrating the disparity: for every child in northern primary schools, there were four in the south; for secondary schools, five; and for higher education, six.

Chief Eke proposed a federal policy to extend free primary education to all children nationwide. For secondary education, he called for the construction of twelve girls’ secondary schools across each state and funding for expanding under-resourced institutions.

To enhance university education, he recommended establishing Schools of Basic Studies to provide opportunities for students from less developed regions. During discussions, Council members noted the untenable polarization in educational development across the country, acknowledging backward southern states as well.

In support of Chief Eke’s proposal, I believed that implementing Free Primary Education throughout Nigeria would not only bolster northern states but also rectify the deficiencies in the southern regions. Moreover, expanding secondary education in less developed areas would address the controversy surrounding the quota system in admissions to prestigious schools, ultimately fostering merit-based opportunities.

Formal Launching of the Universal Primary Education Scheme

Upon returning from a pilgrimage to Mecca, I found myself listed as one of the Federal Commissioners accompanying the Head of State on a tour of the North-Western State. The demanding itinerary included travels from 8 a.m. to late evening, with various receptions, cultural showcases, and school visits. Among the significant highlights was General Gowon’s announcement on January 20, 1974, regarding the initiative for Universal Free Primary Education, set to launch in September 1976. The goal was to enroll 2.2 million children aged 5-6 years in 1976, rising to 2.6 million by 1981.

Chief Eke’s memorandum emphasized that Universal Primary Education would harmonize educational content nationwide and align it with the socio-economic needs of various communities. It would also facilitate youth empowerment and future workforce development.

While the memorandum gained general approval, concerns were raised about escalating youth unemployment. It was unanimously decided that the federal government would fully finance the initiative, despite the state-level responsibilities under the Constitution. The Council subsequently convened a special meeting to review three memoranda related to the UPE Scheme, focusing on staff recruitment, teacher training development, and recurrent expenditure.

During deliberations, Chief Eke informed Council members about the National Council on Education’s approval of the UPE Scheme. It was agreed that while the initiative would begin in 1976, it would not be compulsory until 1979.

The Council confirmed additional proposals, including the federal government assuming financial responsibility for the UPE Scheme nationwide and establishing a cabinet committee to oversee its implementation. The committee’s responsibilities included planning, financing, and monitoring the UPE Scheme’s progress.

Subsequent meetings addressed recruitment, teacher training, and budgetary provisions for establishing 62 new Teacher Training Colleges. The Council’s emphasis on investing in teacher education underscored the commitment to preparing quality educators for the anticipated influx of students through the UPE initiative.

By December 30, 1974, when I left the Federal Executive Council, General Gowon’s government had laid a solid foundation for Nigeria’s educational future. The Murtala Mohammed/Obasanjo administration would later work towards implementing the Free Primary Education Scheme initiated by Gowon. It is regrettable that, fifty years post-independence, educational disparities between the north and south—and among individual states—still persist, rooted in inconsistent policies.

The Economic Community of West African States (ECOWAS)

General Yakubu Gowon’s role in the establishment of ECOWAS is another noteworthy highlight of his leadership. Following independence, West Africa was largely influenced by Britain and France, causing a divide along linguistic lines. After several attempts at forming regional groupings, including conferences in Lagos, Niamey, and Accra, progress was slow until Gowon and General Eyadema of Togo revived the initiative in 1972.

Following investigations, it became clear that several countries were keen to join the proposed West African Economic Community despite prior reluctance. Throughout negotiations, Nigeria and Togo facilitated discussions that led to a more unified approach among French-speaking nations. By September 1973, the final draft Treaty was approved, establishing ECOWAS with decisions based on a principle of unanimity among member nations.

Significant decisions made at the inaugural conference included setting up a secretariat in Lagos and creating specialized commissions for trade, customs, immigration, industry, natural resources, transport, communication, energy, and social affairs.

The Nigerian Enterprises Promotion Act

In the aftermath of World War II, British colonial policies allowed for the extended reach of state control over critical economic sectors in Nigeria. By the Gowon administration, the need for indigenization of commerce and industry became evident, culminating in the Nigerian Enterprises Promotion Decree of 1972.

As the Federal Commissioner for Industries, Dr. Tayo Adetoro, introduced two key memoranda aimed at increasing indigenous participation in commerce and industry. The Decree outlined reservations for specific industries solely for Nigerian nationals, marking a significant step towards raising indigenous ownership in key economic sectors.

I fully supported the memorandum advocating for indigenization. The dominant presence of non-Nigerians in sectors that could foster local enterprise was unacceptable. However, I voiced my opposition to potential monopolies forming among a select few wealthy individuals, advocating for broader ownership to benefit more Nigerians.

National Youth Service Corps

The Civil War underscored the importance of fostering national unity. The Federal Government established the National Youth Service Corps Decree in 1973, aimed at bridging ethnic divides and promoting mobility and cohesion within the nation.

The Corps’ objectives included instilling discipline and patriotism among the youth, enhancing moral standards through collective experiences, and encouraging employment opportunities beyond local states. This initiative has not only aided in bridging graduate employment gaps but has also fostered mutual respect and understanding among Nigerians from diverse backgrounds.

To safeguard the enduring nature of this initiative, the National Youth Service Corps Act is enshrined within the Nigerian Constitution, ensuring its continued relevance in promoting national service and cohesion among the youth.

Location of the Second Petroleum Refinery

One of the most contentious discussions during Gowon’s regime was the siting of the second petroleum refinery. Initial assessments favored Lagos as the optimal location. However, the Commissioner for Mines and Power, Dr. R.A.T. Dikko, eventually argued for a site in northern Nigeria due to governmental policies aimed at industry dispersal.

The proposal sparked a heated debate, weighing the economic realities against political considerations. Allowing the northern site to proceed would require substantial infrastructure investments, including a pipeline from the south, raising concerns over security vulnerabilities.

The Council finally agreed on the need for independent consultants to analyze the technical and economic implications of the proposed locations. Although some members expressed discomfort with the refusal to share the consultants’ full report, a consensus urged its circulation for transparency.

Ultimately, the Council approved Warri as the location for the second refinery and reaffirmed the decision for a third refinery in Kaduna, a move that showcased Nigeria’s ambition to bolster its refining capacity during that era.

Development of Liquefied Natural Gas (LNG) Projects

Dr. Dikko presented several memoranda concerning LNG projects from 1972 to 1974, with each discussion growing more passionate. He highlighted pressures faced from influential lobbyists, including Chief Obafemi Awolowo, who advocated for specific interests in the LNG market.

The Council engaged in thorough discussions around the twelve proposals for the LNG development project. After considerable debate on gas ownership, the project scope, and shipping logistics, decisions were made reflecting a commitment to government ownership. The plan aimed for two LNG projects with 1,000 million cubic feet per day capacity, aligning with Nigeria’s aspirations to be a leading LNG producer in Africa.

Despite these ambitious plans, the abrupt end of Gowon’s government in 1975 stifled the progression of Nigeria’s LNG project, pushing it back by nearly three decades.

Accountability

The theme of accountability is crucial to understanding the governance of Gowon’s administration. In a 1968 memorandum, Chief Awolowo emphasized reasonable financial practices within the Council, underscoring a culture of responsibility in public service.

The rhetoric surrounding accountability continued to be part of the broader conversation as the government’s inability to reclaim national assets and ensure rigorous oversight seemed to erode trust within public systems.

The Promise of Return to Civilian Rule and the July 1975 Coup

General Gowon is often viewed as having led one of Nigeria’s most competent governments, navigating the post-war rebuilding process while fostering economic development. Despite these achievements, the absence of a clear political future loomed large.

Internal conversations among military leaders suggested a desire to explore a return to civilian governance. However, divisions within military ranks thwarted progress, leading to discontent. Gowon’s political program aimed for a return to civilian rule by 1976; yet, by October 1974, he announced this goal was no longer feasible.

This pivotal moment came in July 1975 when Colonel Joseph Garba announced a change in government leadership during a coup while Gowon attended an international conference in Uganda. The transition resulted