AN ASSESSMENT OF NIGERIA’S FOREIGN POLICY UNDER PRESIDENT OLUSEGUN

OBASANJO’S ADMINISTRATION, 1999-2007

BY

OMOTERE TOPEN.C.E., B.Ed

SEPTEMBER, 2011

Published Online By:EgoBooster Bookswww.omotere.tk

© 2011 Omotere Tope

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AN ASSESSMENT OF NIGERIA’S FOREIGN POLICY UNDER PRESIDENT OLUSEGUN

OBASANJO’S ADMINISTRATION, 1999-2007

CHAPTER ONEIntroduction1.1 Background of the Study1.2 Objectives of the Study1.3 Statement of the problem 1.4 Literature Review1.5 Scope and Limitations of the Study1.6 Significance of the Study1.7 Research Methodology

CHAPTER TWOEvolution and Development of Nigerian Foreign Policy2.1 Concept of Foreign Policy2.2 Evolution of Nigerian Foreign Policy2.3 Objectives of Nigerian Foreign Policy 2.4 Principles of Nigerian Foreign Policy 2.5 Instrument of Nigerian Foreign Policy2.6 Institutional Actors of Nigerian Foreign Policy

 CHAPTER THREEPresident Olusegun Obasanjo's Foreign Policy3.1 Foreign Policy Under Obasanjo’s Administration

4

3.2 Philosophy Guiding Nigerian Foreign Policy3.3 Domestic Factors Influencing Nigeria’s Foreign Policy3.4 Influence of the Personality of President Olusegun Obasanjo

on Nigerian Foreign Policy3.5 Nigeria’s Relations with Major Powers3.6 Relations with Rising Powers and African Countries

CHAPTER FOUREvaluation of President Olusegun Obasanjo's Foreign Policy,4.1 Obasanjo’s Shuttle Diplomacy: Successes and Failures4.2 Achievements of President Olusegun Obasanjo’s Foreign

Policy4.3 Challenges Faced by President Olusegun Obasanjo in the

Implementation of Nigerian Foreign Policy

CHAPTER FIVESummary, Conclusion and Recommendation.

Bibliography

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AN ASSESSMENT OF NIGERIA’S FOREIGN POLICY UNDER PRESIDENT OLUSEGUN

OBASANJO’S ADMINISTRATION, 1999-2007

ABSTRACT

This study examines Nigeria’s foreign policy under

President Olusegun Obasanjo’s administration (1999-

2007). It provides a detailed background on the impact of

Obasanjo’s shuttle diplomacy in re-building Nigeria’s

image in international politics. The study analyses the

domestic policies of the Obasanjo’s administration and

how it shaped the country’s policy of partnership

especially with the western powers and the implication of

this partnership on Nigeria economic growth between

6

1999 and 2007. Historical research method was employed

in this study. Both primary and secondary source

materials were used by the researcher. The study

established that while President Olusegun Obasanjo had

his shortcomings in foreign policy implementation, the

nation has achieved significant gains through the regime’s

shuttle diplomacy. Generally, Nigeria’s increasing profile

in its foreign relations implies that the nation has regained

its role as a leading player in multilateral politics and

diplomacy.

7

CHAPTER ONE

INTRODUCTION

1.1 Background of the Study

The history of Nigerian foreign policy since 1960 has

constantly been changing, though the principles guiding

her foreign relations remain the same.1 Nigerian leaders

are largely responsible for these unstable external

relations. Since Nigeria’s foreign policy is deeply rooted in

Africa with strategic emphasis on political and economic

1 I. A. Gambari, Theory and Reality in Foreign Policy Making: Nigeria After the Second Republic, Atlantic Highlands, New Jersey: Humanities Press International, 1989, p.21.

8

cooperation, peaceful dispute resolution, and global

nonalignment,2 Nigerian leaders also have their attention

fixed on the successful implementation of these

principles. However, the influence of personality on

Nigeria’s relations with other countries cannot be totally

ignored as different leaders adopt different styles in

conducting external relations.

Examining the personality of the leader both at the

theoretical and practical levels is therefore important in

understanding Nigeria’s foreign policy. Again, analysis of

Nigeria’s foreign policy show that her leaders operate

within four “concentric circles” of national interest. The

innermost circle represents Nigeria’s own security,

independence and prosperity and is centered on its

immediate neighbours - Benin, Cameroon, Chad and

Niger; the second circle revolves around Nigeria’s 2 M. B., Ogunbanjo, ‘’Theoretical Perspectives on Nigeria Foreign Policy’’ Monograph Series, Department of Political Science and Sociology, Babcock University, Ilisan Remo, 2002, No. 2, p.2

9

relations with its West African neighbors; the third circle

focuses on continental African issues of peace,

development and democratization; and the fourth circle

involves Nigeria’s relations with organizations, institutions

and states outside Africa.3 With this in mind, each Nigerian

head of state or president work to ensure that no single

part is defected in pursuing the country’s foreign policy.

Evidences abound on how past Nigerian heads of state or

presidents have worked within these four concentric

circles.

At independence, Nigeria as a sovereign state began

to conduct her foreign relations under the political and

governmental leadership of its Prime Minister, the late

Alhaji (Sir) Abubakar Tafawa Balewa whose administration

emphasized Africa to be centre piece of Nigeria’s foreign

policy. His own foreign relation was pro-west particular

3 A. Adebajo and A. R. Mustapha, eds. Gulliver's Troubles: Nigeria's Foreign Policy after the Cold War. Scottsville, South Africa: University of KwaZulu Natal Press, 2008.

10

with Britain, Nigeria’s erstwhile colonial master. With the

bloody military coup of January 15, 1966, the late Major

General J.T.U. Aguiyi Ironsi came to power only, to be

killed in a counter coup staged six months later. This

development brought the General Yakubu Gowon to

power. Gowon borrowed a leaf from Balewa by being pro-

West in his foreign affairs. He entered into agreement with

Britain, the United States and other Europeans countries.

However, his administration reluctantly allowed the Soviet

Union to open its embassy in Lagos.

The Gowon led Federal Military Government was

sacked in a bloodless coup which led to the assumption of

power by the late General Murtala Ramat Mohammed and

the General (now Chief) Olusegun Obasanjo who was his

second in command and Chief of Staff Supreme

Headquarters.

11

The assumption of power by these two men served

as a catalyst in the history of international relations as far

as Nigeria was concerned. Their government injected new

innovations and dynamism into the nation’s foreign

affairs. Mohammed was prepared to counter the imperial

moves of the Western powers especially the United States

who had emerged as a major power broker in Africa

particularly in Angola. Britain and Portugal also became

targets of the new military administration while not

leaving Cube, a surrogate of the Soviet Union both of

whom were present in Angola, challenging the United

States (US) presence there. These Western Powers, Cuba

as wells as South Africa became the target of

Mohammed/Obasanjo military regime in Africa.4 One basic

fact that must be stressed is the fact that this was the age

of the Cold War during which the US and the Soviet Union

4 A., Ogunsanwo, Nigerian Military and Foreign Policy, 1975-1979 Unpublished Manuscript, University of Lagos Pol. Science Dept. 1980, pp 190-201.

12

were competing for military supremacy and searching for

satellite countries who would support them in their bid to

permanently polarize the world into Capitalist and

Communist Blocs under the US and Soviet Union

respectively.

Given the above situation the Muhammed Obasanjo

regime arose as a diplomatic gadfly ready to sting these

powers in its resolve to emancipate African countries that

were still under the tyranny of colonial masters; eradicate

neo-colonialism, racism and apartheid on the African

continent particularly in Portuguese colonies in Africa and

racism/apartheid in Southern Africa.

With all these involvements in international politics,

Nigeria became a regional power and centre of influence,

particularly in Africa. This combined with a viable

economy until the mid-1980s, Nigeria was a toast of many

states seeking either its influence or support on global

13

issues or financial assistance. Concomitantly, Nigerians

were respected abroad, while the tendency to emigrate

abroad was not popular. Fraudulent tendencies on the

part of Nigerians abroad were at the lowest ebb.

However, the post-Shagari administration’s military

regimes played deciding roles in the image- destruction of

the Nigerian state in foreign affairs. Thus, the period

covering 1980-1999, Nigeria’s foreign policy during this

period received some setbacks. First, the draconian

policies of the Buhari regime attracted wide criticism from

the international community. Second, the failure of the

economic diplomacy of Gen. I.B. Babangida through the

Structural Adjustment Programme (SAP) and subsequent

annulment of June 12, 1993 general elections led to the

breakdown of domestic policies in the country. Third, the

Bazuka foreign policy style of late Gen. Sani Abacha

further deteriorated the foreign image of Nigeria 14

especially with its key allies in Europe and America. These

were the situations when President Olusegun Obasanjo

came to power in 1999. 5

President Olusegun Obasanjo, at inauguration in May,

1999, inherited a nation with a battered image and

without credibility externally. In his determination to

regain Nigeria’s lost glory and re-integrate it to

the civilized world, he engaged in a deft shuttle diplomacy

across the major capitals of the globe. The president,

during his extensive foreign trips, have addressed the UN,

ECOWAS, the Group of 8 (G-8), Group 77 (G-77), the

Commonwealth, African Union (AU) and EU.

The nation has achieved significant gains through the

regime’s shuttle diplomacy. Apart from the psychological

relief following its re-integration and accommodations into

the world affairs, Nigeria had assumed the leadership of 5 U. B. Inamete, Foreign policy decision-making in Nigeria, Susquehanna University Press, 2001, Pp. 290-203

15

several international organizations notably the ECOWAS,

AU, and G-77. It had hosted very important international

summits including those of the Commonwealth Heads of

State and Government and the AU in 2004, the New

Partnership for African Development (NEPAD) in 2005, and

severally, the ECOWAS since 1999. The nation had also

hosted the All Africa Games in 2004. Obasanjo had been

the guest of honour to the UN Educational, Scientific and

Cultural Organization (UNESCO) in May 2004.6 All these

imply that the international system has restored its

confidence in Nigeria. The regime’s economic diplomacy

also has yielded economic dividends for the nation. In

addition to increased Development Finance Inflow (DFI)

and foreign investments, the Paris Club had cancelled $18

billion (60%) of the nation’s over $30 billion external, a

gesture, which signifies the Club’s confidence in the

6 E. Okpokpo1999. The Challenges facing Nigeria's Foreign Policy in the Next Millenium African Studies Quarterly | Volume 3, Issue 3 | 2000, 3(2) P. 4.

16

nation’s economy and credibility as an external debtor.7

Generally, Nigeria’s increasing profile in its foreign

relations implies that the nation has regained its role as a

leading player in multilateral politics and diplomacy.

It can be said therefore that period covering 1999-

2007 Nigeria’s foreign policy received a new turn in

restoring the image of the country through a global

shuttle diplomacy of President Olusegun Obasanjo

Therefore, the focus of this present study is to examine

the role played by President Olusegun Obasanjo in

restoring the image of the country, analyse his foreign

policy posture and give a critical appraisal of the success

and failures in terms of domestic and international

repositioning.

1.2 Objectives of the Study

This study seeks to achieve the following objectives:

7 U. B. Inamete, Op. Cit., P. 30817

(i) Provide a detailed background to Nigeria’s foreign

policy under President Olusegun Obasanjo from

1999 to 2007 focusing on his achievements and

shortcomings;

(ii) Examine the impact of Obasanjo’s shuttle

diplomacy in re-building Nigeria’s image as a

regional power in Africa;

(iii) Analyse Obasanjo’s policy of partnership

especially with the western powers and the

implication of this partnership on Nigeria economic

growth between 1999 and 2007;

(iv) Discuss the contributions of Nigeria under the

administration of President Olusegun Obasanjo to

the security and peace-building in Africa; and

lastly,

(v) Provide a critique of the personality of President

Olusegun Obasanjo and its influence in the

18

implementation of Nigeria’s foreign policy towards

other states as well as international organizations.

1.3 Statement of the problem

Relations between Nigeria and other state and non–

state actors in international politics from 1999 onward

were based on democratic principles. The tit-for-tat

diplomacy of late Gen. Sani Abacha, de facto President of

Nigeria from 1993 to 1998 had greatly damaged the

image of Nigeria. The government was accused of human

rights abuses and was repeatedly condemned by the U.S.

State Department. There were break in relationship with

many countries with threats of economic sanctions from

others. Apart from this, the government was characterized

by an inconsistent foreign policy which made Nigeria a

scorn in the comity of nations. The coming of President

Olusegun Obasanjo and the various reforms which he

embarked upon actually brought Nigeria out of the messy

19

situation that Gen. Sani Abacha led the country into. For

President Olusegun Obasanjo to have achieved such a

feat in restoring the image of the country deserves

scholarly attention. This study therefore aims to provide a

critical appraisal of Obasanjo’s foreign policy with

emphasis on his use of expatriates in the conduct of

external relations; shifting of policy to accommodate

China, India and other rising powers; reintegration of

Nigeria into the African Union, the United Nations and

other international organizations; and the revolution in

domestic policies that favoured strategic repositioning of

Nigerian economy.

1.4 Literature Review

20

Review of literature in historical research is sin qua

non in determining the nature of the research as it

provides the basis for the understanding of what other

have said or written about the subject matter. It therefore

becomes imperative to review what other scholars have

written about Nigerian foreign policy since 1960 with

special attention on President Olusegun Obasanjo’s

foreign policy from 1999 to 2007.

One of the most important works on Nigerian foreign

policy is Ufot Bassey Inamete, Foreign policy decision-

making in Nigeria,8 which examines Nigeria's foreign

policy decision-making system together with the other

factors that shape and determine foreign policy. It gives

the reader an understanding of the foreign-policy

structures, processes, dynamics, and outputs in Nigeria. It

also looks at how personalities affect foreign policy

decision making in Nigeria. The reader also gains an 8 U. B. Inamete, Op. Cit., P. 2

21

understanding of how foreign-policy decision-making

system impact on foreign-policy outputs in medium-sized

countries. Although, no special attention was given to the

administration of President Olusegun Obasanjo which is

the major concern of this study, this work is of importance

to this study as it discusses the issues of personality in the

development of Nigerian foreign policy.

Bassey Ate’s Decolonization and Dependence: The

Development of Nigeria-US Relations, 1960-19849 is a

good contribution to the study. Despite the variations in

the years, the work systematically analyses the

development of the relationship between Nigeria and the

US during the dynamic era of decolonization with special

attention on General Olusegun Obasanjo first outing as

head of state. This study serves as a basis for analyzing

Nigeria’s stand on some key issues with the major world

9 A. Bassey, Decolonization and Independence: The Development of Nigerian-US Relations, 1960-1984, Colorado: West View Press Inc., 1987, p. 193.

22

powers. Although, Bassey is not directly connected to the

present study, it gives a vivid background on the historical

past of the friendly Olusegun Obasanjo when he was the

military head of state between 1976 and 1979 and how

this later helped in running the affairs of Nigeria from

1999 to 2007.

Ray Ofoegbu’s Foreign Policy and Military Rule10

examined three military governments in Nigeria and

played much emphasis on the third Military Government

(1975-1979). To Ofoegbu, it was the third Military

Government first led by General Murtala Mohammed that

brought radicalism into Nigeria’s foreign policy. The

radicalism which was introduced into Nigeria’s foreign

policy led to confrontation with major powers which

invariably caused diplomatic conflict especially with the

United States in 1975. From 1977, the relationship began

10 R. Ofoegbu, “Foreign Policy and Military Rule” in O. Oyediran (ed) Nigerian Government and Politics under military Rule. London and Basingstoke: The Macmillian Press, 1979, p. 135

23

to normalize. Lieutenant General Olusegun Obasanjo,

being the new leader of Nigeria, renewed Nigeria’s radical

foreign policy and once again, began to make close ties

with President Jimmy Carter of the United States.

Ofoegbu’s work will be of immense value to this study.

Once again, one notices that the work does not centre on

President Olusegun Obasanjo but did provide a detailed

background of his past activities which will make us to

understand his policy positions between 1999 and 2007

on international relations.

Olayiwola Abegunrin, Nigerian Foreign Policy under

Military Rule, 1966-1999,11 provides a significant and

comprehensive examination of Nigerian foreign policy

(1966-1999) during the almost 33 years of military rule,

punctuated by the four-year civilian interregnum, 1979-

1983. He analyzes what led to the military rule in 1966,

11 O. Abegunrin, Nigerian Foreign Policy under Military Rule, 1966-1999, Greenwood Publishing Group, Pp 2-10

24

and the foreign policy performance of each military

regime that ruled the country since 1966. He also

discusses extensively the economic dimension of the

nation's foreign policy. He shows that the last 15 years,

the period of Generals Babangida and Abacha, were the

most corrupt and brutal that Nigeria had seen since

independence. The mysterious sudden death of General

Sani Abacha led to the appointment of General Abubakar,

who handed power over to an elected civilian government

in May 1999, led by President Olusegun Obasanjo. Of

particular interest to scholars, students, and other

researchers involved with African politics and foreign

policy and the role of the military in political affairs. This

work is directly useful to this study as it help in providing

information regarding nigeria’s political and economic

situations before the coming of President Olusegun

Obasanjo in 1999.

25

Adekeye Adebajo and Abdul Raufu Mustapha,(eds.)

Gulliver's Troubles: Nigeria's Foreign Policy after the Cold

War12 examines Nigerian foreign policy during the first 12

years after the end of the Cold War in order to answer

questions associated with changes in the global arena and

determines whether Nigerian foreign policy remains

relevant in this new period of international relations. Its

sixteen chapters provide incisive analytical coverage,

conceptual insights and empirical richness, pointing to the

factors and imperatives which have shaped Nigeria’s

foreign policy since the end of the Cold War. That it

succeeds so admirably is a tribute to the editors and well-

chosen authors. Each chapter helps to impose order on

this complex mosaic.

There are challenges for Nigeria’s foreign policy,

especially with a change of guard since the significant but

12 A. Adebajo and A. R. Mustapha,(eds.) Gulliver's Troubles: Nigeria's Foreign Policy after the Cold War, Scottsville, South Africa: University of KwaZulu Natal Press, 2008, Pp . 1-22

26

deeply flawed elections of April 2007. Critically, how it

meets these challenges will depend on how it balances

the demands and dynamics of the three concentric circles

that underpin its foreign policy. This book is path-breaking

in helping us to understand why this ‘giant with clay feet’

under the leadership of President Olusegun Obasanjo

shaped the fortunes of Nigeria in the world.

Osita C. Eze, Beyond 50 Years of Nigeria's Foreign

Policy: Issues, Challenges and Prospects,13 looks at fifty

years of Nigeria's relationship with the rest of the world

and how it has generally reflected its efforts at promoting

Africa's interests and at the same time grappling with its

domestic development.

The work examines how other institutional actors

affect Nigerian foreign policy under Obasanjo. The foreign

policy implementers and monitors identified in part two

13 O. C. Eze, Beyond 50 Years of Nigeria's Foreign Policy: Issues, Challenges and Prospects, NIIA, P. 400

27

are the Ministry of Foreign Affairs, the Directorate of

Technical Aid Corps, the Directorate of Technical

Cooperation in Africa, and the Mass Media. The issues and

challenges with which they are faced are explicated. For

instance, Ummuna H. Orjiako of the Foreign Ministry,

analysed some major constraints facing the Ministry and

noted that ‘to stem the tide of eroding professionalism

and decline, to take advantage of the prospects and

opportunities presented by a changing domestic and

external environment, the Nigerian foreign policy

establishment must seek to confront and address the

litany of known challenges in the Foreign Ministry.’14

However, as authoritative as these works were, there

is much to be covered on President Olusegun Obasanjo’s

on Nigeria’s foreign policy and how other countries view

14 ThisDay Newspaper, The New Roundtable on Nigeria’s Foreign Policy 09 Oct 2010, P. 12

28

or relate with Nigeria since 1999. This research work

therefore seeks to update and cover areas such as the

long term effect of Obasanjo’s foreign policy on Nigeria’s

external relations.

1.5 Scope and Limitations of the Study

This study focuses on Nigeria’s foreign policy under

the administration of President Olusegun Obasanjo from

1999 to 2007. It looks at the influence of personality on

the conduct of foreign policy. Other areas which this study

covers include the domestic factors that influenced the

foreign policy of President Olusegun Obasanjo. Moreover,

the key achievements of Obasanjo’s foreign policy as

regards domestic economic growth, political stability,

regional security, and international participation are

29

covered in this research. However, the research will be

limited to the foreign policy implementations of President

Olusegun Obasanjo and does not intend to provide a

biography of the man nor do a comprehensive study of all

his political activities in Nigeria.

In producing such a work like this, the problem

confronting the researcher is not the scarcity of materials

but its availability some of which are bias in their

presentation. Moreso, this research work is contemporary

and politically sensitive. The researcher therefore is

confronted with the problem of interpretation of the

actions of President Olusegun Obasanjo as some of the

policies initiated are still an on-ongoing process.

Finally, there is the question of time and fund which

may serve as impediments to this research. Nevertheless,

these limitating factors will greatly be managed to make

the research work more objective in its presentation.

30

1.6 Significance of the Study

This study is very important for certain reasons.

First, the study is of paramount importance to decision

makers and the would-be diplomats for it traces the

historical development of Nigeria foreign policy since

1960.

Second, it helps to re-affirm the bold attempt made

by the democratic government under the leadership of

President Olusegun Obasanjo to rebuild the lost image of

Nigeria in the comity of nations by addressing the issues

of corruption, debt and political tensions in the country.

Third, this research work will help in providing

information on the domestic factors that influenced

Nigeria’s foreign policy under President Olusegun

Obasanjo from 1999 to 2007.

31

Fourth, it is useful to scholars’ especially diplomatic

historians, political scientists, economists and

international relations experts in their research. Diplomats

like ambassadors, high commissioners and staffers of

foreign ministries will benefit from the work.

Finally, the political and military class will learn,

through this study, the need for them to be patriotic like

President Olusegun Obasanjo who acted as Nigeria’s

arrowhead in the international arena.

1.7 Research Methodology

Historical research method is used in carrying out

this study. However, a critical examination of the dramatic

relations between Nigeria and other countries during

President Olusegun Obasanjo’s administration from 1999

to 2007 will be analyzed using findings from both primary

and secondary sources.

32

The primary sources include written documents such

as government publications, letters, correspondence,

documentaries and newspapers. Oral interviews were

conducted to complement the other sources.

Furthermore, this research work depends largely on

archival materials to gather relevant materials on the

study. Field trips will also be employed to access

information from the Nigerian Institute of International

Affairs and the Ministry of Foreign Affairs in order to get

relevant information regarding the research work.

Moreover, this study depends on secondary sources such

as books, journals, conference proceedings and internet

sources which are to be explored to enrich this work.

33

Endnotes

1. A. Gambari, Theory and Reality in Foreign Policy Making: Nigeria After the Second Republic, Atlantic Highlands, New Jersey: Humanities Press International, 1989, p.21.

2. M. B., Ogunbanjo, ‘’Theoretical Perspectives on Nigeria Foreign Policy’’ Monograph Series, Department of Political Science and Sociology, Babcock University, Ilisan Remo, 2002, No. 2, p.2

3. A. Adebajo and A. R. Mustapha, eds. Gulliver's Troubles: Nigeria's Foreign Policy after the Cold War.

34

Scottsville, South Africa: University of KwaZulu Natal Press, 2008.

4. A., Ogunsanwo, Nigerian Military and Foreign Policy, 1975-1979 Unpublished Manuscript, University of Lagos Pol. Science Dept. 1980, pp 190-201.

5. U. B. Inamete, Foreign policy decision-making in Nigeria, Susquehanna University Press, 2001, Pp. 290-203

6. E. Okpokpo1999. The Challenges facing Nigeria's Foreign Policy in the Next Millenium African Studies Quarterly | Volume 3, Issue 3 | 2000, 3(2) P. 4.

7. U. B. Inamete, Op. Cit., P. 308

8. U. B. Inamete, Op. Cit., P. 2

9. A. Bassey, Decolonization and Independence: The Development of Nigerian-US Relations, 1960-1984, Colorado: West View Press Inc., 1987, p. 193.

10. R. Ofoegbu, “Foreign Policy and Military Rule” in O. Oyediran (ed) Nigerian Government and Politics under military Rule. London and Basingstoke: The Macmillian Press, 1979, p. 135

11. O. Abegunrin, Nigerian Foreign Policy under Military Rule, 1966-1999, Greenwood Publishing Group, Pp 2-10

12. A. Adebajo and A. R. Mustapha,(eds.) Gulliver's Troubles: Nigeria's Foreign Policy after the Cold War,

35

Scottsville, South Africa: University of KwaZulu Natal Press, 2008, Pp . 1-22

13. O. C. Eze, Beyond 50 Years of Nigeria's Foreign Policy: Issues, Challenges and Prospects, NIIA, P. 400

14. ThisDay Newspaper, The New Roundtable on Nigeria’s Foreign Policy 09 Oct 2010, P. 12

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