Continued from last edition
The provincial schools are conducted on the principles described, but in deference to suspicion and prejudice in the Moslem States, it was at first impossible to give full effect to them.
This attitude has of late been very notably altered, and the principal Emirs constantly visit the schools and show great interest in them. “U is thus becoming possible gradually to convert them to boarding schools, and to remove them front the precincts of the city and township. Each school had a British master until the demands of the War led to the temporary withdrawal of many. A time is set apart for religious instruction (in the Moslem school under a native – “Limam”), and the formation of an Arabic class has tended greatly to popularise the schools. The study of English is popular, and it; is interesting to note that it was selected in preference to Arabic by the pupils at Sokoto. Continuation classes are promoted, and each school has its Advisory Committee, of winch the chief and the principal natives arc members.
Owing to the backward state of education in the Northern Provinces these schools at present afford only a primary education, and the great need at the present moment is for a secondary hoarding school for the training of teachers. It will be located near the Technical Institute (see below), and by the time that the provincial primary schools have developed into secondary schools it will be able to take its place as a Training Institute for teachers, and later still, in conjunction with the Technical Institute, it may become a general college for Nigeria, on the lines of the Gordon College at Khartoum, where the technical and literary pupils would he closely associated, and habits of industry, honesty, and discipline would be the keynote.
One or two rural schools have been opened in the Northern Provinces, but development in this important direction awaits a supply of teachers. The original class at Kano has now become the Kano Provincial School, while its industrial section is retained as a central industrial school, under control of the Native Administration, where native crafts are taught by native craftsmen. Its object is the preservation of indigenous art, and the improvement of native methods by improved tools. The native looms of Kano produce a cloth of great durability which Europeans (even ladies) like to wear. The tanned goat skins were famous as Morocco leather “centuries ago. The dyes and the designs and execution of embroideries, and the architecture of the city are all worthy of preservation. A European instructor paid by Government supervises the school and also teaches carpentry, blacksmithing and brick making, and especially the const met ion of wheels and carts. To this school boys from all provinces are welcomed, and proportionate sul script ions are made by the various native Treasuries. At present it has one British and eleven native instructors, with about 100 pupils. A similar school will ho opened in Bornu. The pupils’ arc boarders and these schools thus stand half way between the provincial and rural schools.
Technical instruction awaits a supply of young men from the provincial schools, who have acquired a sufficient grounding to enable them to become qualified mechanics in Government shops.
The bequest made by the late Sir Alfred Jones has been assigned to the building of a Technical Institute, where apprentices will he trained under skilled tuition, and with the best appliances, in the use of European tools, and machinery driven by electricity. The plans are completed and foundations finished, but the prohibitive cost of materials during the War, and still mere, the lack of pupils, has delayed completion. It is situated about two miles from the Kaduna capital (on the side furthest from the native reservation), where electric power and water supply will be available, and if will be within a short distance of the great, railway workshops at (Injunction, where practical demonstrations can be given. The pupils will not” he associated with the artisans from the coast, who at present man the shops, since they profess a different religion, adopt a different dress, speak a different language, and their customs are different from those of the better class Moslem youth, who, it is hoped, will he attracted to the institute. They will associate on equal terms with the pupils of the secondary school.
A special need in the Northern Provinces is some provision for the education of the children of the largo body of alien clerks and artisans. For their benefit a school has been opened at the capital.
With the kind assistance of Sir R. Wingate, the experiment is being made of bringing two or three teachers from Gordon College for the Arabic-speaking population of Bornu. They will come direct overland, and the Resident. Mr. Painter, has himself proceeded to Khartoum to test the route. The Shuwa Arabs of Bornu are a particularly intelligent race, and if the experiment succeeds they may later provide teachers for other schools, and pupils for the Technical Institute.
At the end of I917 there were 122 mission schools, with an average attendance of l,876, chiefly confined to Pagan areas. They are not as yet subject to any inspection, for hi k of an inspectorate, and none have mine on the Assisted List. Some useful work has been accomplished by the missions in studying the grammar and reducing to writing various Pagan languages, and in some districts they have done admirable work.
Either in the North or South, or in both, classes have been formed by the head of the department concerned outside the purview of the Education
Department for instruction in survey, agriculture, forestry and veterinary work. The object is to train youths in these special subjects for service under the Native Administrations, and to select the more capable, should they desire it, for service in the department. Outside the Colony they will be affiliated to the provincial school of the province in which they are situated, so that they may prosecute their ordinary studies simultaneously with their special technical training The survey schools, both in North and South, have done Admirable work.
The net cost of education in Nigeria in 1916 was about 16 per cent, of the total ordinary revenue of the country, and 15 per cent, of the expenditure, If this were doubled it would still be an inadequate ratio, but the increase I propose would not bring the percentage up to 2 per cent. Looked at from no higher standpoint than the material requirements of Government, reform is called for by the imperious demands created by the expansion of the railways alone. The matter is of great urgency for there is no outside source from which the men required can be drawn, “In my judgment (I wrote) no efforts and no cost can be too great to introduce reforms, which shall have the result of producing a set of Government servant< with high standards and with self-control, loyalty and integrity, and in producing a number sufficient to meet the demands of a rapidly growing country.”
The cost per pupil in the Northern Provinces reached at the end of 1913 the abnormally high figure of C20. This will be steadily reduced as the schools fill up. The Native Treasuries now pay the native staff and the cost of school apparatus and buildings, and the school fees arc credited to them. In 1916 the total expenditure on education in the Northern Provinces was £12.443 from revenue, and £5.325 by Native Administrations.
The demands of the War have fallen heavily upon the Education Department and a large proportion of the staff, especially in the Northern Provinces; have been continuously on active service. This has arrested progress, but the framework is now clearly laid down, and with the cessation of the War, and the provision of the staff required in the Southern Provinces. I trust that rapid progress will be made. Much progress can indeed be claimed even under these adverse circumstances, especially in the Northern Provinces.
A review of the Administration would, be incomplete without a reference to Christian missions, which, in the South, have exercised so great an influence on the development of the country, and borne so predominant a part in educational progress. No doubt their influence has been much weakened, as elsewhere in Africa, by the more effective administration of the country, and the advent of Europeans of all types since 1895. In the South they preceded, and the North for the most part followed the establishment of administrative control.
As I have pointed out in the section on education, the Southern Provinces owe a great debt to the missions, but there has been. I venture to think, an insufficient degree of co-operation between them and the Government, for which both are probably responsible. The new Education Ordinance and Regulations are cordially welcomed by the missions, and will I trust lead to a greater effort in educational matters.
Occasional disturbances have taken place in the Southern Provinces between bands of persons calling themselves Christians and their Pagan neighbours, in which it would appear that the Christians have been the aggressors by interfering with festivals, or mot-king at forms of Pagan worship, and in one case, at least, there was some loss of life in the resulting fray. The heads of the missions did not in this case deny the culpability of the Christians, and stated that the movement, to embrace nominal Christianity among certain Pagan tribes was ho widespread, that they were unable to control or supervise it with the available staff. The establishment of bogus schools of no educational value by irresponsible mission-trained youths is another unwelcome development. It would not. however, be just to hold the leading missions responsible in such cases, the more so in view of the fact that some communities have seceded from the parent mission and se( up native ” churches,” one at least of which is polygamous. The Roman Catholics have, I think, been singularly free from these undesirable developments.
There has been a not unnatural tendency on the part of mission “converts” to repudiate the authority of their chiefs, and to ignore and flout native customary law. Complaints have-been made that in some cases missionaries have sympathised with this attitude. It has now been laid down in unmistakable terms, both in the North and in the South, that the profession of any particular creed (whether Christian or Mohammedan), does not absolve its adherents from the authority of their chiefs, or from the native law and custom prevalent in their district, provided that they are not compelled to do anything which is repugnant to their religious beliefs. The conditions under which churches, schools, and residences for alien teachers may be erected, even when no right or interest in the land is claimed by the mission, have been regulated.
Early in 1914, a somewhat notable religion-revival commenced among the Pagan tribes of the eastern part of the Niger Delia and Bunny-River, under a native named Braid, who declared himself to be the Second Elijah. Religion was not unmixed with political propaganda, and Braid declared himself hostile to all exotic influence, whether European or native. The drinking of spirits was prohibited probably with the object of dealing a blow to European trade, and there was great hostility to the Niger Delta Mission of the church Missionary Society. Braid, an illiterate native, was convicted of extortion and sedition, but the movement continued under other leadership, and developed into a schism which called itself “Christ’s Army” and later assumed the title of the “Delta Church.”
In the Northern Provinces there has been a considerable extension of mission work in Pagan areas, and the number of stations has increased from 38 in 1913 Lo 60 in 1917. The Church Missionary Society Mission to the Mohammedans. with its headquarters at Zaria, has been a source of some controversy and difficulty.
At the time of the conquest of the Mohammedan Emirate in 1903, I declared that the British Government would not interfere with the religion of the people, and “every man should be free to worship God as he chose.” The Knurs, though they have not been very consistent in the matter, no doubt view with dislike and distrust the efforts of Europeans to convert their people to Christianity, the more so that the administrative and judicial systems, and the social life of the people is to such a large extent based on the teaching of the Koran, and so intimately associated with religion, that the Emirs not unnaturally fear a weakening of their authority and a break-up of the social system if their religion is undermined. The Government, in these circumstances, has considered it right to ho guided by the wishes of the Emirs and their councillors, who have given such abundant and striking proofs of their loyalty during the War, in which their co-religionist, Turkey, is opposed to us. While cordially recognising mission activity in Pagan areas, the Government has desired to discourage propaganda in Moslem districts.
The difficulty lies in the fact that, if the advent of missions is authorised by the Government it is extremely difficult to avoid the conclusion in the minds of the people that they are under the special aegis of Government. The missions would not withdraw at the be-hest of the paramount chief, as they would have been compelled to do before the advent of the British Administration, and would look to the Government for protection. In a country where it is of vital importance to maintain the prestige of Europeans, insults to missionaries must of necessity be resented by Government.
It was urged by the Church Missionary Society that Government showed an unfair discrimination, in that Moslem teachers could preach their religion where they chose, while Christian missionaries were denied access to Moslem centres. This charge seems to be sufficiently replied to by Archdeacon Melville-Jones, who writes; “Traders and others who have had a Christian education travel all through the country now, and settle in the outlying villages and districts of the hinterland. Wherever they go, as do the Mohammedans, ‘they earn- their religion and teaching with them. The result is the springing up of small churches all through the interior, and it is beyond our present powers to cope with the movement.” This was written primarily. 1 think, in reference to the Yoruba country, but there is no restriction on Christian traders in the Moslem Stales, and as a matter of fact, very large numbers of mission-educated traders have been attracted by the prospects of profit at Kano.
Development of responsibility, and the management of their own affairs, has been described as the dominant principle of the Government policy in regard to Native Administration, The Townships Ordinance of 1017 carried this policy into a different sphere of Administration. Its main purpose was to establish the road principle of municipal responsibility, graduated according to the importance of the community, and the measure of its ability to accept and discharge satisfactorily the conduct of its own affairs. The principle was by no means new, though except in Lagos if, had been applied chiefly to sanitation, ft was now extended and applied consistently throughout Nigeria.
Townships are graded in three classes according to the degree of control and responsibility vested in the governing authority, and they include practically all centres where Europeans reside. Lagos alone, whose locally-born inhabitants enjoy the status of British subjects, many of whom are educated native gentlemen, able and willing to take part in the development of their city, is at present of the first class, in which the “Local Authority ” consists of a Town Council of not more than twelve members. It employs a secretary, municipal engineers, and various native officials. It raises its own revenue by rates, and licences, assisted by a grant from Government. It administers certain specified liuvs applicable to a township (especially the “Public Health” and “Township” Ordinances), and appropriates the fines imposed for their contravention. It legislates by way of by-laws for the enforcement in detail of these laws, and prepares an Annual Budget, both subject to the final approval of the Governor. The Council consists of official and unofficial members, in such proportion as the Governor may determine. Of the latter three are at present elected, and the remainder nominated by the Government. In practice, with a view to avoid any friction, the unofficial member of the Town Council are identical with the members of the Legislative Council. As the Council proves its ability, and as the township becomes independent of a grant, the unofficial membership of its Council may equal, or even exceed, the official members, and may be selected by election.
Prior to Amalgamation, the revenues, derived mainly from the peoples of the interior, had been spent somewhat freely in schemes for the improvement of Lagos— waterworks, electric lighting, reclamation, streets, sanitation, &c. Up to 1915 there was no municipal rate at all. In that year, on the completion o!’ costly waterworks, a small water-rate was imposed, and gave rise to agitation and even to a not. In 1918 an “improvement rate” was introduced for portions of the town at the instance of the Council. As long ago as 1913, Honourable Mr. Sapara Williams. Senior Native Member of Council had strongly advocated a substantial rate to meet all liabilities.
The Local Authority in a township of the second-class is the Station Magistrate, or other officer, assisted by an Advisory Board of officials and unofficial appointed by the Governor. He relieves the political staff (whose duties are confined to Native Administration) of work connected with the European community, with trade, land leases, housing, railway questions, sanitation, and the care of roads and streets, and of the township generally, and deals directly with the Secretariat. Rules made by the Governor take the place of the Town Council’s By-laws. They may be of general application, or particular to any township at the instance of the Local Authority or Advisory Board.
A second-class township possesses a “township fund,” and levies rates in the Northern Provinces, but not in the Smith at present. It presents annual estimates, but looks to the Public Works Department to supplement the construction and maintenance of the roads or other works. The Medical Officer of Health is primarily responsible in all townships for sanitation, and mutters relating to the public health.
The third-class includes places where the European residents are very few. Here the Local Authority is usually the District Officer, without an Advisory Board or township fund.
Townships are usually excluded from the jurisdiction of the Native Courts, and the law administered is primarily British law. Second (and. of course, first) class townships, are usually within the local limits of the Supreme Court, of which the Station Magistrate is a Commissioner. If the court work is exceptionally heavy a Police Magistrate may be appointed to discharge it. The local Authority submits in half-yearly report, by which the Governor and Lieutenant Governor are kept in close touch with the affairs of the township, and can promote uniformity of policy.
All townships are divided into a European and a native quarter, separated by a non-residential area of a quarter of a mile in breadth, which extends round the former. This belt is kept clear of undergrowth, and may be used for recreation, and parade grounds, and even for garden allotments, in which high-growing crops are not allowed. Non-Residential buildings may be erected upon it, such as churches, court-houses, stores, &c., provided they do not impair its utility as a fire-break, on the side of the native quarter. Europeans may not reside in the close vicinity of a township, but must live in the European reservation, where the amenities of a pure water supply and police protection are as far as possible available.
In the long-established towns on the coast, where the dwellings of Europeans and natives are hopelessly intermingled, this principle of segregation cannot be at once applied, but the reservations have none the less been marked out, and the policy will become operative as leases fall in, or as merchants, in the interests of their employees (who face risks, on their behalf), are content to utilise their existing leaseholds solely as non-residential premises. Without their co-operation it is difficult to enforce it even on newcomers, who would thus be placed at a great disadvantage in trade. Simultaneous action by all is therefore necessary. It may he possible for Government in some cases to offer leases of land in the European reservation in exchange for those outside it. Provisions are made in the new Police Ordinance for the provision of special police paid by the employer, to guard premises in the absence of a European resident. The Liver-Pool Chamber of Commerce replied in very cordial terms to a letter I addressed to them on this subject and promised their co-operation.
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