The Richards Constitution of 1946 was one of the most important milestones in Nigeria’s colonial history. Drafted under Governor Sir Arthur Richards (later Lord Milverton), it was the first attempt to design a constitution that applied to the entire country and acknowledged its regional diversity. Although criticised for being imposed without consultation and for offering Nigerians only limited representation, the constitution set in motion structural changes that influenced the growth of federalism, political parties, and nationalist agitation for independence.
This article explores its background, the major provisions, nationalist reactions, political consequences, and long-term significance in shaping Nigeria’s journey toward self-rule.
Background: Colonial Governance Before 1946
British rule in Nigeria developed gradually through conquest, treaties, and the 1914 amalgamation of the Northern and Southern protectorates under Lord Frederick Lugard. Early constitutional developments offered very limited political participation.
The Clifford Constitution of 1922, introduced by Governor Hugh Clifford, was Nigeria’s first modern constitutional framework. It established a Legislative Council in Lagos, with some elected members, but representation was confined to Lagos and Calabar. The Northern Provinces were excluded entirely, and the system did little to foster national unity.
By the 1940s, the impact of World War II, the spread of nationalist movements, and increasing demands for African participation in governance made reform inevitable. Governor Arthur Richards responded by proposing a constitution that recognised Nigeria’s diversity while consolidating British control.
Sir Arthur Richards and His Objectives
Sir Arthur Richards served as Governor of Nigeria from 1943 to 1948. A career colonial administrator with experience in Fiji and Jamaica, he aimed to balance Britain’s administrative authority with limited political participation for Nigerians.
The stated objectives of the 1946 constitution were:
- To promote national unity while recognising regional diversity.
- To extend African representation in government, albeit in a controlled fashion.
- To prepare Nigeria for gradual political advancement without conceding full authority to nationalist leaders.
These aims reflected Britain’s cautious, incremental approach to decolonisation.
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Key Provisions of the Richards Constitution
The constitution introduced important structural reforms:
1. Regional Councils
Nigeria was divided into three regions, Northern, Western, and Eastern, each with its own Regional Council. These councils could discuss local matters, marking the first recognition of Nigeria’s regional diversity within a constitutional framework.
2. Legislative Council for the Whole Country
For the first time, a central Legislative Council covered all of Nigeria. It included official members (largely colonial administrators) and a small number of Nigerian representatives.
3. Representation
Representation increased compared to 1922, but remained limited:
- Most members of the central legislature were still officials appointed by the Governor.
- Only Lagos and Calabar had directly elected representatives.
- Most African representatives were nominated, not elected.
- The North was underrepresented, consistent with Britain’s reliance on indirect rule.
4. Limited Franchise
Voting rights were still restricted to a small elite, mainly property owners and educated Nigerians in Lagos and Calabar. The vast majority of the population had no political participation.
Nationalist Responses and Opposition
Despite modest reforms, the Richards Constitution faced strong opposition from Nigerian nationalists.
- Lack of Consultation: The constitution was drafted in London without meaningful Nigerian involvement. Nationalist leaders denounced it as an imposition.
- Restricted Participation: The limited franchise and dominance of appointed officials frustrated nationalist aspirations for genuine self-government.
- Organised Opposition: The National Council of Nigeria and the Cameroons (NCNC), led by Nnamdi Azikiwe, launched campaigns and protests against the constitution. Herbert Macaulay’s earlier activism had already laid the groundwork for such resistance. Obafemi Awolowo, emerging as a nationalist leader, also criticised the constitutional framework.
The discontent intensified nationalist demands for more inclusive and representative governance.
Political Developments and Consequences
Although flawed, the Richards Constitution introduced structures that shaped Nigeria’s political trajectory:
- Rise of Regionalism: By creating regional councils, it institutionalised Nigeria’s division into three major regions. This fostered the rise of regionally based political parties, including the NCNC in the East, the Action Group in the West, and the Northern People’s Congress in the North.
- Foundations of Federalism: The regional framework became the basis of Nigeria’s later federal structure.
- Catalyst for Reform: Nationalist opposition to Richards’s imposed constitution created momentum for more inclusive arrangements, culminating in the Macpherson Constitution of 1951, which was drafted after extensive consultation.
Transition to the Macpherson Constitution
The Richards Constitution highlighted both the possibilities and the limits of constitutional reform under colonial rule. By the early 1950s, pressure from Nigerian nationalists forced Britain to accept broader participation.
The Macpherson Constitution of 1951 replaced the Richards framework, significantly increasing Nigerian representation and consultation. However, the regional divisions entrenched in 1946 remained central to Nigeria’s politics, shaping both the path to independence and subsequent tensions within the federation
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Enduring Significance
The Richards Constitution remains historically significant because:
- First Nationwide Legislature: It established Nigeria’s first legislative body covering the entire country.
- Institutionalisation of Regionalism: It gave formal recognition to regional identities, a double-edged legacy that fostered both political representation and ethnic division.
- Catalyst for Nationalism: Its inadequacies galvanised nationalist leaders to intensify the struggle for independence.
- Foundation for Federalism: The principle of balancing central and regional authority began with this constitution and continues to shape Nigeria’s governance.
Author’s Note
The Richards Constitution of 1946 was Britain’s attempt to reshape colonial governance in Nigeria by introducing regional councils and a central legislature. While it expanded political representation slightly, it was imposed without consultation, excluded most Nigerians from meaningful participation, and reinforced colonial dominance.
Its greatest legacy was unintended: by institutionalising regionalism, it sowed the seeds of both federalism and ethnic division. At the same time, its inadequacies fuelled nationalist agitation, strengthening the resolve of leaders like Azikiwe and Awolowo to demand more inclusive reforms.
The Richards Constitution was not a solution to Nigeria’s political demands but a turning point. It symbolised the limits of colonial reform and highlighted that real progress would come only through Nigerian-led struggles for self-rule.
References
- Coleman, J. S. Nigeria: Background to Nationalism. University of California Press, 1958.
- Sklar, R. L. Nigerian Political Parties: Power in an Emergent African Nation. Africa World Press, 2004.
- Tamuno, T. N. Nigerian Federalism in Historical Perspective. Ibadan University Press, 1967.
