The article examines administrative policy in Idoma (Northern Nigeria) as a response to two dilemmas confronting the colonial power: (1) how to reconcile a persistent, even if varyingly intense, commitment to indirect rule with a desire for institutional change; (2) how to reconcile a synthesis of the two with the longrange objective of normative change, including ‘progress’ and ‘administrative efficiency’. While normative change remained a long-range colonial objective, institutional change assumed the highest short-range priority.
Institutional change involved a pendular course of development: on the one hand, cultivation of strong chieftaincy and centralization based on the Fulani model; on the other, ‘democratization’, rooted first in traditional Idoma constitutionalism, and finally in Western notions of majoritarian local government. These developments are traced through three historical phases. (1) 1908–1930: occupation, pacification, boundary adjustment, and the quest for an indigenous leadership; (2) 1931–1945: systematic implementation of, and subsequent retreat from, the policy of Indirect Rule; (3) Post-World War II: centralization and ‘democratization’ of the Idoma Native Authority or local government establishment. Paradoxically, ‘democratization’ promoted the centralization of authority in Idoma.
By 1960, when Nigeria became independent, it could fairly be said that the colonial power's culminating exercises in institutional change were successful. Politically and administratively, Idoma was centralized as never before. That it had yet to experience the efficiency which might have resulted from longrange normative change did not detract from that achievement.