ETHICAL BASIS OF GOOD GOVERNANCE AND DEVELOPMENT IN NIGERIA: A REFLECTION ON GABRIEL T. SUSMWAN'S “OUR BENUE, OUR FUTURE” (OBOF)

DEVELOPMENT PLAN

Department of Public Administration,

Faculty of Humanities, Management and Social Sciences Federal University,

Wukari, Taraba State, Nigeria. davidsalifu@yahoo.com

AbstractThis paper is an empirical account and evaluation of the development plan called “Our Benue Our Future” (OBOF) of the Dr Gabriel T. Suswam Administration. It ties the OBOF paradigm to conceptual issues of good governance and development with specific interest on the synergy between governance, democracy, leadership, followership and development. A critical challenge confronting Nigeria, is how to create and provide such irreducible minimum standards of good governance and democracy.In this paper a participatory approach is adopted to do critical and systematic survey of this development plan about what was going on in Benue state of Nigeria. The paper aims to link up theory and practice of responsive government for developmental purposes. It argues that political leadership must mobilize the followership for noble ends rather than manipulate them to achieve its selfish ends.Leaders and followers must imbibe a democratic culture of tolerance and fairness given the fact that democracy in Nigeria is a product of the struggle for power, given our history of military rule and the uninspiring trend of economic drawbacks. Most elites see democracy in Nigeria largely in instrumental terms and therefore are not committed to it.This creates life-threatening situations. Thus at the heart of OBOF remains the following; the development of political units, the assurance of the survival of those within a given territory in relation to others, the provision of the basic needs- shelter, clothing, food and education among others. We show some other critical areas of good governance and development in the OBOF development plan of Benue state 2007 to 2015, as a paradigm for others to learn from.

Key words: Benue, OBOF, Governance, Democracy, Leadership, Development

Introduction This paper makes attempt to briefly look at conceptual issues of good governance and development with specific interest on the synergy between governance, democracy, leadership, followership and development. It is not case specific but effort have been made to mention some key points in what have done in Benue state of Nigeria to throw light on the possible understanding that we do know what theory could do to practice on grounds of politics. In every of this attempt the imperative of linkage is obvious. Responsive government and societies can be better chastised and sanitized through speeches, debates, discussion and dialogue no matter how unpleasant, than through violence. Of course, it is a truism that those who make debate, discussion and dialogue impossible or those who are not responsive to them make violence probable. The world we live in is a complex one. It is made more complex by the nature, the character and conduct of its inhabitants especially as people began to multiple on the face of the earth and the appropriation of territories become the prime concern. Development of

DAVID ONU SALIFU, PH.D.

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political units and ascription of sovereignty have their diverse responsibilities. These include the assurance of the survival of those within a given territory in relation to others; the nature of security and extent to which territorial integrity could be guaranteed; the provision of the basic needs of inhabitations- like shelter, clothing, food, education etc, and the exercise of authority over the people and the given territory.

The assurance of these basic requirements and the happiness of the greater number of the people are indicative of a higher civilization. These are however created on basic value system and the culture of an evolving political community that could guarantee some measure of self regulative mechanism and protection of itself. Every society has its known values and attitudes that guarantee its sustainability since the values provide the individual and their institutions the basis upon which they organize their economic, political and social life. Such values create the norms which are for behavior and they are the reasons people offer for following the rules of a given society. Such values are collective conception of what is considered good, desirable and proper; they offer indices of what could be classified as motivational awareness of ethical responsibility, that which helps to gauge conscience, moral disposition, sense of duty, justice, equity and obligation.

These values are the pillars upon which effective leadership, government, economic and social outcomes could credibly be erected. This is against the understanding that human beings are not 'commodities' or 'resources' in the pure economic sense but are creative social beings in a productive national enterprise. They need to be developed in all ramifications with the recognition of their basic rights, especially that which concerns justice and equity. The good governance question and the development discourse only makes meaning in the perspectives of political equality, legal equality, social equality, natural equality, economic equality and that equality which may be described as distributive justice. This advances the principle that equals should be treated equally and that for every difference in the way people are treated. Who however determines what that relevant reason is may be questioned but this is why the discourse on good governance and development becomes apposite leading to the understanding of concept of opportunity and right.

ProblemAs we review the nature, characteristics and meaning of good governance, democracy, leadership and development, we do not take or assume that difficulties do not litter the path of political leadership, especially in our type of political setting/environment. Leadership needs institutional, attitudinal and procedural changes in order to meet the challenges of peace, democratic governance, security and development. Leadership necessarily must mobilize the followership for noble ends rather than manipulate them to achieve its selfish ends and the leaders and followers must imbibe a democratic culture of tolerance and accommodation, hard work and enshrine the values of justice, fairness and equity. Our challenges are largely historical and attitudinal and they conspire to reduce the efficacy of our attempt to ensure all round good governance and development.

Democracy no doubt is an acceptable form of government whose advantages supersede any other form of government in recorded history because it allows for a culture of shared goals and

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commonly accepted rules as well as peoples' adequate participation in the process of governmental policies and affairs. Democracy, however, will be lifeless unless construed within the realm of politics and the struggle for power. Given our history of military rule and the uninspiring trend of economic drawbacks there is obvious pressure and challenges to confront. This has coloured the nature and character of leadership and followership and it is equally in this realm that most elite see democracy in Nigeria largely in instrumental terms and therefore not committed to it as an end in their politics.

An idea of politics and the political systemPolitics is an essential element of our social existence and it is too important to toy with because, as a social process, it is characterized by activities involving rivalry and cooperation in the exercise of power and the outcomes are for the realization of public interest or common good of the community (Anifowose and Enemuo1999).

Interestingly, politics is found wherever power relationship or conflict situation exist. There is however obvious wide-ranging scope in political perceptions and activities, largely moderated by the nature of political culture and the degree of political enlightenment in the society. A political system is thus a function of the political culture of that society. Political culture in this submission is political orientation; that is, attitudes expressed towards the political system, attitudes towards the role of the self in the system as well as towards the various parts of the system. Roy Macridis defines it as “commonly shared goals and commonly accepted rules (Babawale 1999). These attitudes and orientations are shaped by some forces which could be linked to the cultural and historical antecedents of the people.

An idea of GovernanceBefore we derail from our focus, we need to ask: what is governance and what is good governance? The etymology of the word governance derives from the Greek verb, Kubernao which means to steer and was believed to have been first used by Plato (Document on Etymology of Governance by European Commission 2013) in a metaphorical sense. It could be conceived as operational and as a process. As a process it may operate in an organization of any size, from a single human being to all of humanity and it may function for any purpose, good or evil, for profit or not. The ideal purpose, for our own good, is to assure a perfect pattern of good and bad. Governance is the manner in which power is exercised in the management of a country's social and economic resources for development. It means the way those with power use that power. In such operational sense governance is seen as the traditions and institutions by which authority in a country is exercised for the common good and this includes, according to World Bank, three indicators: the process by which those in authority are selected, monitored and replaced; the capacity of the government to effectively manage its resources and implement sound policies, and the respect of citizens and the state for the institution that govern economic and social interaction among them (World Bank 1991). There are other broad definitions but we concern ourselves here with the understanding that a good deal of governance is about exercise of various form of power – ideological, political, legal, military, economic, administrative but the bottom line is that governments everywhere aggregate a combination of these powers regularly to govern. The quality of this governance can be assessed and measure, although the measurement is often inherently controversial and political exercise. We should however note

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that politics provides a means by which the governance process operates and citizens may choose expectation by way of political activity or grant power through political action and they could judge or gauge outcomes or performance through political behaviour.

Nature and Features of Good GovernanceThe next level of the discussion is good governance. We should bear in mind that the primary objective of government and the process of governance are for creating environment for shared national goals and prosperity. The concept of good governance is age old because history reveals that empires, states and regimes broke up, disintegrated or even vanished because of bad governance. The inference here is that good governance is the key ability of a government to maintain control over a state. Governance is an obligation not a choice and good governance should result in decision-making that is fruitful and beneficial for the masses (Musarrat 2013). Good governance is characterized by participation, transparency, accountability, rule of law, effectiveness and equality (Asian Development Bank 2013). The IMF 2007 Manual on Fiscal Transparency refers to good governance as the management of government in a manner that is essentially free of abuse and corruption and with due regard for the rule of law.

Although there appears to be no blueprint of achieving good governance or no single set of solutions, many methods could be employed to allow people sort out indicators for good governance. Over the years, some of the following characteristics of good governance have been distilled:1. Genuine respect for people2. Commitment to providing a voice for all citizens3. Transparency and effectiveness in decision-making4. Encouraging people to become involved and take on leadership roles 5. Commitment to a collaborative process 6. Taking responsibility to monitor and evaluate outcomes 7. An-openness to leaning from previous decisions or approaches and readiness to

improve8. A means of feedback for local people on decisions that affect them (Asian Development

Bank 2013).

The capability and will to deliver these things well definitely amount to good governance and we can confidently state that 'good governance' is effectively synonymous with 'good government'. The link between good governance, development and peace is thus obvious here because citizens who feel secure and free, governed by the rule of law and not of men, are definitely less likely to go to war with each other, either within or across borders, than those who lack some basic requirements (Evans 2002). Good governance no doubt depicts an idea however it is promoted by international development agencies in various ways with the conclusion that underdevelopment is tied to the absence of 'good' governance. As scholars have noted, 'good governance' has become a condition for accessing international funds, making it to assume a western outlook (Elaigwu 2009), and invariably it has been 'challenged' or 'resisted' in some circles.

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The principles or certain values and norms indicative of good governance are at the heart of democracy. These include participation, accountability and transparency, equality, rule of law, effectiveness and efficiency in service delivery and freedom. All these constitute the blood in the veins of democracy because they give life to democratic governance. Democratic governance here refers to control or management or how authority is exercised in the governance of the society in accordance with the principles mentioned above. There is thus a strong link between democracy and good governance. Some commentators are even more emphatic on this. They hold that the concept of democracy and good governance are not only interlinked but that democracy is a means of achieving 'good' governance. Accordingly, “for a government to be described as democratic and for governance to be qualified as “good”, the repositories of power and managers of resources must be accountable to the governed, responsive to the demands of the people, and be guided by the principles of the rule of law” (Elaigwu 2009).

Leadership and Effective Leadership In the matrix of governments' approach and action to governance, the twin issues of leadership and followership cannot be overlooked. Leadership and followership are intricately webbed and have tremendous impact on the governance of each nation – state. In this, democracy has a core moral approach to governance in which the synergy between leadership and followership could be appreciated. These core issues include:1. a reasonable degree of social trust 2. general attitude of tolerance and inter-personal cooperation in political relationships 3. attachment and loyalty of citizens to the national political system4. a reasonable degree of acceptability and people's attitude towards authority5. A commendable level of people's sense of their rights, powers and obligations.

For the realization of these core values an effective leadership is imperative. President Harry Truman once described a leader as “a man who has the ability to get other people to do what they don't want to do, and like it” and President Eisenhower is said to have defined leadership as the “ability to decide what is to be done and then to get others to want to do it” (Elaigwu 2009). According to Fayemi, 'leadership is the ability to take an initiative to motivate, to influence, to direct and control the thoughts, opinions and decisions of the followers in any given society towards the achievement of purposeful desired ends' (see Edo 2011). Invariably, a leader is one who possesses distinguished characteristics to organize, direct, control and assist others to do something in other to achieve group objectives. This is why leadership is said to be a skill, in essence, the skill and ability that comes from knowledge, practice, and aptitude. There are certain qualities or attributes for effectiveness in achieving common goals for the community or society that a good leader should possess. These, among others, include:1. clear understanding of the goals and objectives of the community and development of a

clear vision of the future 2. ability to inspire members and have their cooperation 3. ability to organize ideas, anticipate problems, proffer solutions and promote team work4. care about the views of others, and the ability to understand their values and make good

decision 5. willingness to accept responsibility and motivate others, including good human and

public relationships

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6. Emotionally stable, courageous, imaginative, ability to confront differences in non-accusatory fashion and ability to show enthusiasm etc.

A patterned exhibition of these characteristics or skills could be classified as style or leadership style. Effective leadership thus empowers a country to maximize its contribution to the well being of its members and society by demonstrating style, intellectual depth and stamina, superior mental ability, problem solving skills and personal organization.There is a synergy between leadership and followership in any discourse on governance and development. Ordinarily, there is the feeling that, at a glance, followership seems the anti-thesis of leadership and most often the words “subjection”, “meekness' and 'submission' come to mind when conceptualizing followership. However, in its in-depth understanding, the symbiotic nature of the followership/leadership question indicates that becoming an “effective” follower within the dual framework takes just as much work as that of a leader.

Followership The roles of the follower, in many ways, resemble that of a leader and these may include:1. Willingness to tell the truth (a very critical ingredient of followership because leaders

depend on their subordinates for appropriate information although the information may at times be unwelcomed).

2. The confidence to speak out, represent and cooperate with their leaders without fearing them.

3. Insisting that rules and procedures are followed.4. Participate actively in activities of society and community so as to ensure their needs are

not only acknowledged but met.5. Acknowledge the collective spirit in leadership

It is difficult to effectively discuss leadership and followership without insistence on the concept of 'role' as positions defined by a set of expectations about behavior on any job. Each role has a set of tasks and responsibilities which many of our people take for granted. For instance, in political framework, for an effective leadership situation, the leader should be an advocate, whose leadership style is coalition building which is a basic requirement for governance and democratic activities but which many of us think does not require any concerted training. Political leaders clarify what they want and what they can get as well as assessing the distribution of power and interest, building linkages to other stakeholders and using persuasion first, then negotiation and coercion (only if necessary). One basic requirement in the relational framework is the ability of the followers to expect account giving from the leader what is generally referred to as accountability. Nation that have made reasonable progress in history crafted instruments or philosophies to ensure that those who rule them be held accountable for their actions. It should be noted that the Magna Carta, The French Revolution and the Bill of Rights and the American War of Independence were all landmarks in the people's struggle for responsible and responsive Government. In democracies, especially older ones, the levels of which we assiduously aspire to in Nigeria, accountability on the part of the office holder is more or less assured by the vigilance and determination of the people to ensure fair play, existence of free press, freedom of choice and constructive criticism, independent judiciary, free and fair elections etc. In essence, accountability helps to improve the level of efficiency in any system

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and the absence of it also provides the opposite effect.

Good Governance and DevelopmentWe have attempted examining the key issues in this discourse as it reflects on governance, good governance, democracy, leadership and followership but the basic end result in this exposition is 'development'. While democracy provides a conducive medium for peace and good governance, or vice versa, peace and good governance are also imperatives for sustainable development and democratic polity.We may then ask: what is development? The question is also often asked as why we are poor and underdeveloped (in comparative terms) or put more clearly, how were we in the first place made poor in national and global development schemes? Until we reflect on the core values of development we may miss answering these questions credibly. Development is about people, their basic needs and aspirations. It is about the advancement of human capability to exploit and utilize available resources in order to achieve better living conditions and higher level of civilization.

The core values of development relate to fundamental human needs because development is about the people; that is, their ability to sustain and meet their basic needs, the realization and guaranteeing of freedom which includes freedom of choice, freedom from servitude, ignorance, misery and dogmatic beliefs (Adejo 2012). In this conceptualization, the greatest concern for the realization is education and education here is conceived as those activities that involve educating or instructing for imparting knowledge or skills or the experience that has a formative effect on the mind, character or physical ability of an individual. Such education not only produces a learned people but a learning community and it makes development, especially national development possible because its core values relate to human needs.

It must be remarked that goals and means of development differ in different countries because of priorities in their development policies but the common denominator is the well-being of the people – that is, human development is the end while economic growth is the means (see Human Development Report, UNDP 1996). This is what national development target, i.e., the ability of a country or countries to improve the social welfare of the people by providing, among others, social amenities like good education, infrastructure, medical care and social services. Good governance entails all these as they guarantee peace, justice, equity and development. These are not finished conditions but 'work in progress'; not an event but a process.

Let us also remind ourselves that the elements of the aforementioned discussions are inter- twined intricately webbed in the service of individual and national interests. They are preconditions and foundations of sustainable development and the eradication of poverty. They advance a constitutional political order in which democracy, respect for human rights, rule of law, separation of powers and effective and responsive public service are realized to ensure sustainable effective progress, peaceful, secure and stable society for which credible leaders and followers are committed.

Governance and Development in Benue State of North Central Nigeria: Reflection on Susmwan's “Our Benue Our Future (OBOF)” Imperative

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Our discourse on the above issues would remain mere theoretical postulations if there appears to be no efforts in translating them to positive, effective instruments to advance our peoples cause. In our experience in Nigeria, as political leaders, there are questions and challenges, central among which is the challenge to sustain and maintain democracy and turn it into a culture and way of life acceptable and workable for the largest majority of our people. This involves managing internal tendencies that could impinge on the survival of democracy, crafting development plans and transformational leadership initiatives to ensure good governance and peace. Our government in Benue state began with a determination to make a difference after conceptualizing what we intended to do right fom the political campaign period. We produced a development blueprint christened “Our Benue Our Future (OBOF)” which was put together by a multi-disciplinary team of professionals. It is a policy framework which covers areas from high-order strategy to administrative details with clear positions, intentions and plans. OBOF gives direction on the art, study or practice of government or administration and conduct of public affairs.

The Blue print strives to inculcate the spirit of collective destiny and collective responsibility among the citizenry through plans of action, based on certain principles on which to base decision or a course of conduct to be followed. OBOF is designed towards a realization of an effective political community which could progressively reduce cultural and economic pressures and tensions; a community with self-sufficient integrative mechanism for the maintenance of its existence and provided by its own institutions, modes of production and conduct of public affairs and a state that is capable of significantly allocating resources and rewards to its people as well as being the dormant focus of political identification for the larger majority of politically aware citizens.

The development plan specifically formulated programmes of activities which would advance development in the key areas of political and economic governance, agriculture, infrastructure and environment, security, industry and tourism, education, health and commerce, social welfare, women and youth empowerment, justice administration etc. This has a bench making approach to facilitate assessment of the level of progress as well as determine the pertinence or otherwise of the programs. There is no doubt that intelligence, imagination and knowledge/experience are required here and this we readily provided to be able to do what others took for granted or overlooked as well as avoiding what is largely unproductive. We are conscious of where we were, where we are and where we need to be and are prepared to progressively, politically and diplomatically work to secure and facilitate total growth and development through policy and direct action aimed at the creation of an enabling environment that support viable initiatives.

As a government and people, our implementation of OBOF was on the assumption that there will be:1. Consistency and rationality in government policies and actions2. Loyalty and commitment of the bureaucracy3. Transparency and accountability in the governance process 4. Participatory and complementary actions by the populace 5. Due recognition of merit and professionalism

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6. Fruitful cooperation with NGOs, International Organisations and development partners

7. A strong reporting culture and feedbacks system8. Adequate and sustained funding

We consistently kept reminding ourselves that our state cannot continue to remain a potential because development is about man, his mental and practical effort to achieve identifiable human needs. Its absence will deny us the ability to meet on own terms those dividends that secure peace and progress. We become convinced to re-directing our level of commitment to be able to focus on improving our ability to compete in the space called Nigeria.

Since 2008 we can say with every sense of modesty that our government has been able to erect some platforms for good governance and we can take specific note of the following areas:1. In governance, to a reasonable degree, we have been able to create and maintain a

streamlined, manageable and efficient structure of government, eliminating waste and ensuring efficient service delivery

2. Broadening the base and upholding the efficiency of internal revenue generation and collection.

3. Working towards operating a responsive, accountable government, especially in the management of public resources (given the paucity of funds, we have no alternative than to be prudent);

4. Ensuring the pro-poor service delivery and value for services, generation of income and reduction of poverty, especially rural poverty.

5. Workable infrastructures that support enhanced economic production and improved quality of life of both the urban and rural populace. Through careful planning and investment in city infrastructure, government has made a big difference.

6. Improved environmental safety and credible efforts at reducing environment related poverty.

7. Mainstreaming the female gender through capacity building to improve the status and quality of life of women.

8. Youth programmes for acquisition of productive skills and increased capacity for discipline, self-reliance and patriotism.

9. Improved health services and reduction of rates of mortality and morbidity.10. Improvement of security infrastructure, reduction of communal violence, border and

land disputes, inter-personnel conflicts and political brigandage.

Options for Security and Good Governance: The role of Development PlanOther issues which challenge our efforts at good governance and credible development could be summed up in the following areas:1. The perception of the people by themselves and others within and outside the state. We

keep hearing of Benue as a poor state, lack of funds and ineffective revenue strategies along with poor development of resources. This perception has largely ingrained itself into the people's psyche that we literally carry on as 'poor people'.

2. The nature of our politics, subtle ethnic disagreeable patterns of choices and patronage, including elite rivalry and intolerance.

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3. Incessant land and chieftaincy disputes that dissipate energy and multiple distrust.

Others include lack of institutional collaboration; Collaboration, we know, is an act of working jointly, a kind of united labour to achieve a goal; a recursive process where parties work together to realize shared goals and a deep collective determination to reach identical objectives. Without collaboration there is no way a development plan can effectively be implemented because the lack of it will obvious deny quality cooperation, partnership alliance, team work and consensus. The benefits of collaboration include building of trust and confidence, mutual respect, reduction of vulnerability of individual institutions, ministries and agencies and it allows for comprehensive and creative results. However, what our development plans are confronted with are obstacles to collaboration which include:4. Culture of barriers created by individual institutions, ministries and agencies which

resist strategic partnership as each builds empires of its own.5. Inadequate management support due to lack of team work.6. Poor corporate governance and 7. Primordial sentiments in choice of staff and institutions.

There is also another problem, though not so visibly pronounced but all the same damaging to our development plans like OBOF. This has to do with the issue of conflict between career civil servants and political appointees. Two specific areas can be identified:8. One has to do with the assignment of the civil servant which often inevitably subsumes

part of the domain of the politician.9. The second has to do with the attitude of civil servants only making available such

information as would serve the interest of the preferred policy options, which may not agree with those of the politicians.

The next and very important problem hindering progress of development plans in our type of polity has to do with the impediment confronting policy and policy formulation. Policy is about change and that means change management is critical to good governance. At the heart of the change management lies the change problem, and the change problem is often expressed in the form of a 'how' question, i.e. how do we get people to be more creative. Change is also expressed in form of 'what' question: such as what are we trying to accomplish? What changes are necessary and standards to apply and what measures of performance are we trying to effect? Change is universal but rarely received without protest and resistance because it may result in discontinuity and the perceived destruction of familiar arrangements or relationship. Some of those challenges could be summarized in the following:10. The failure to understand problem of change.11. The attitude of disbelief, because the proposed solution may be perceived not to work

even before take-off. This hinges largely on the usually popular impression that public policies do not work in our country.

12. Unacceptable personal loss which will be associated with progressive change and the perception that the reward may not be sufficient.

13. The perception of the threat to existing social structure and mistrust.14. Rigidity of structure and refusal to discard old habits and reluctance to change.

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It is difficult to conclude this discussion without a statement on security and the problem of insecurity on governance and on our effort at building confidence and peaceful co-existence. Insecurity destroys peace which we have conceived as justice and development. In addressing the challenges to the survival of democracy it is pertinent to consider security issues and problems that have affected or capable of affecting the attitude, confidence and cooperation of all. Security goes beyond law and order because it should encompass meaningful existence, predictability of relations; feeling safe and belonging. Increasing level of crime linked to break down in social cohesion which is threatening our national life which include: exploitation of economic downturns to mobile violence, difficulties in funding employment, hunger, drug addition, kidnapping, terrorism etc. They are all compounding the issues of insecurity. At our local levels we are continually challenged by communal conflicts, violence from marauding herdsmen and cross-state border crimes. At our level of government we are assiduously striving to redirect our sense of security within the paradigm of human and people- centered development and effectively synergizing with our border communities and neighboring states to lessen the spate of violence across our maximal borderland.

ConclusionWe looked at critical components in good governance and development and reviewed practical efforts in Benue state. The paper which focused on political governance highlighted some of the critical challenges that confronted Nigeria as a nation and people, especially on how to create and provide such irreducible minimum standards of good governance and democracy. We saw the way governance infrastructure promoted the emergence of a developmental state, effective leadership and sustainable development. It is clear from the above that political leaders, have a duty to strengthen the institutions and inspire citizens to encourage leadership to attempt higher heights in their service. Such leadership requires people of immense courage, stamina and intellectual alertness to break away from the uninspiring trade of busy-bodying in government business and public businesses. We cannot afford to fail because of our responsibility to ourselves and our duty to future generations.

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