The struggle for Nigerian independence was not solely about protests or nationalist demands; it was equally about designing political institutions that could sustain a diverse colonial entity. Among the various constitutions enacted during British rule, the Macpherson Constitution of 1951 stands out as a significant turning point. It introduced wider consultation, laid the foundation for federalism, and gave emerging Nigerian leaders their first real experience of governance. Though short-lived, its impact on Nigeria’s political evolution was profound.
Background: From Richards to Macpherson
Following the Second World War, nationalist agitation intensified across Africa. In Nigeria, the Richards Constitution of 1946 was an important experiment, introducing regionalism through Northern, Western, and Eastern assemblies. However, it was widely criticised for being imposed without genuine Nigerian participation and for giving only minimal powers to Africans in governance (Coleman 1958).
By 1948, the British recognised the need for reform. Sir John Stuart Macpherson, appointed Governor of Nigeria, sought to avoid the top-down approach of his predecessor. His priority was to build legitimacy by engaging Nigerians directly in the constitution-making process.
The Making of the Macpherson Constitution
Between 1949 and 1950, a series of consultative forums were organised across Nigeria. These ranged from village and district meetings to provincial and regional conferences, culminating in the Ibadan General Conference of 1950. Representatives from across the country debated issues such as regional autonomy, central authority, and future prospects for self-rule (Sklar 1963).
Although British officials still guided the process, the level of consultation was unprecedented in colonial Africa at the time. This gave the resulting constitution a sense of shared ownership, even if its compromises would later expose Nigeria’s internal divisions.
Key Provisions of the Constitution
The Macpherson Constitution of 1951 introduced several innovations that shaped Nigeria’s emerging federal system:
- Central Legislature (House of Representatives):
The central House comprised 136 members, with 68 elected indirectly by regional legislatures, alongside nominees of the Governor and special interest groups. While far from universal suffrage, it was the most representative central body Nigeria had known. - Regional Legislatures with Expanded Powers:
Each of the three main regions, North, West, and East, gained a House of Assembly, while the North also had a House of Chiefs to reflect traditional authority. These assemblies could legislate on education, local government, health, and agriculture, giving them greater autonomy. - Executive Council with Nigerian Ministers:
Nigerians were appointed as ministers to head departments such as health, education, and transport. Though the Governor retained ultimate authority, this provided valuable administrative experience to emerging leaders. - Foundation of Federalism:
The constitution stopped short of creating a full federation but introduced the principle of shared power between centre and regions, a compromise that would define later Nigerian constitutions.
Political Leaders and Emerging Rivalries
The Macpherson framework gave prominence to Nigeria’s rising nationalist leaders:
- Nnamdi Azikiwe (NCNC): Advocated stronger national unity and criticised excessive regionalism.
- Obafemi Awolowo (Action Group): Prioritised regional development, especially in education and infrastructure in the Western Region.
- Ahmadu Bello (Northern People’s Congress): Focused on defending northern autonomy and gradual political change.
These leaders used the new institutions to consolidate regional bases, creating party systems that were as much ethnic and regional as ideological.
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Challenges and Political Tensions
Despite its innovations, the constitution revealed Nigeria’s deep divisions:
- Regionalism vs. National Unity: The strong powers of regional assemblies encouraged competition rather than cooperation.
- Party Politics: Political parties developed along regional lines, NPC in the North, AG in the West, NCNC in the East, entrenching ethnic rivalries.
- Elections and Representation: Though more inclusive than before, the franchise remained restricted to property-holding male taxpayers in many areas, excluding the majority.
- Conflict: Political disputes sometimes spilled into violence, foreshadowing future instability.
From Macpherson to Lyttleton Constitution
By 1953, cracks in the Macpherson arrangement were evident. The fiercest dispute arose when southern politicians, led by Anthony Enahoro, moved a motion for self-government by 1956. Northern leaders strongly opposed it, fearing domination by the more educated South.
The tensions led to the Kano riots of 1953, which underscored the fragility of Nigerian unity under the Macpherson system (Coleman 1958). In response, the British replaced it with the Lyttleton Constitution of 1954, which formally established a federation with clearer divisions of power and autonomy.
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Significance and Legacy
Although short-lived, the Macpherson Constitution of 1951 was a milestone:
- It introduced federal principles, laying the groundwork for Nigeria’s enduring (though contested) federal structure.
- It provided a training ground for Nigerian politicians, giving them administrative exposure ahead of independence.
- It highlighted regionalism as both a strength and weakness of Nigerian politics.
- It marked the first time Nigerians were widely consulted in constitution-making, a participatory approach that remains relevant to debates about restructuring today.
Author’s Note
The Macpherson Constitution of 1951 was the first Nigerian constitution built through wide consultation, introducing regional legislatures, ministerial roles for Nigerians, and the beginnings of federalism. It offered emerging leaders practical governance experience while exposing the tensions of regionalism and ethnic-based party politics.
Though short-lived, it was a defining step toward independence, showing that political progress required inclusivity, compromise, and careful power-sharing. Its enduring lesson is clear: Nigeria’s stability depends not just on constitutional design but on the will of its leaders and citizens to build unity across diversity.
References
- Coleman, J.S. (1958). Nigeria: Background to Nationalism. Berkeley: University of California Press.
- Sklar, R. (1963). Nigerian Political Parties: Power in an Emergent African Nation. Princeton: Princeton University Press.
- Dudley, B. (1968). Parties and Politics in Northern Nigeria. London: Frank Cass.
