COMMUNAL POLICING: EPISODES OF ENOUNTERS BETWEEN THE
LANDLORDS/TENANTS ASSOCIATION AND THE STATE IN THE PERIURBAN
AREAS OF IBADAN.
Demola Adeagbo.
Physical Development Department, Niser, Ojoo, Ibadan
Progress Report presented at the CRD MPF-2 Workshop (August 13 - 16 1999
1.0 INTRODUCTION
At the Methodology Workshop organized by the CRD between April 16 and 17,
1999, certain comments and suggestions were made. These included: the need to
reframe the title; the need to expand data source to include residents, law
enforcement agencies and relevant government agencies. Suggestions were also
made to embark on extensive review of literature as well as to sharpen the focus on
Civil Society and episodes of Encounters with the State.
Immediately after the workshop, efforts were made to accommodate all the
suggestions and comments. The title was restructured, different sets of
questionnaires were prepared for residents, landlord/tenants associations, local
government department of community development and the Police. A list of activities
was prepared. These activities are listed below:
(i)
Library Search and Review of Literature
(ii)
Reconnaissance Survey
(iii)
Preparation of Data Collection Instruments
(iv)
Training of Field Staff
(v)
Pretest of Data Collection Instruments
(vi)
Amendments of Data Collection Instruments (vii) Fieldwork Activities
(viii)
Data Cleansing
(ix)
Data Analysis
(x)
Preparation of Draft Report
(xi)
Preparation of Final Report
The extent of progress in respect of these activities is presented in this report
1.1
LIBRARY SEARCH/REVIEW OF LITERATURE
During the Methodology Workshop some materials were photocopied from the CRD
Library. These and other research materials from other libraries were reviewed.
These are in the areas of peri-urban growth and provision of security facilities, Urban
Governance and the role of the Civil Societies, Civil Societies and their goals,
1
character, functions and emergence of the Civil Society, Civil Societies in Nigeria,
factors undermining their capacity etc. The list of relevant materials gone through
are as listed in Appendix 1.
1.2
RECONNAISSANCE SURVEY
The peri-urban neighborhood of lbadan are quite many. The same goes for the
number of Landlords/Tenants Associations. However, the focus of the research is
episodes of Encounters between these Associations and the State. This
necessitated the need to carry out initial survey to ascertain Communities which
have functional Landlord/Tenants Association. It also necessitated the need to find
out which Landlords/Tenant Association have had Encounters with the State. This
survey enabled me to identify four of such Communities. These include Adogba,
Kajorepo, Agbowo Express and Orogun Communities of Ibadan. The names of the
Associations are:-
Ilupeju Landlords/Tenants Association, Adogba
Ojokondo Landlords/Residents Association, Agbowo
Ifedapo Landlords/Tenants Association, Oke Orogun
Kajorepo Landlords/Tenants and Community Development
Association, Kajorepo.
Apart from identification of Communities and Associations, the reconnaissance
survey also afforded me the opportunity to feel the pulse of the residents and the
association Members and ascertain the likely problems one would face during data
collection exercise in order to adopt relevant strategies. Findings from this survey
also had inputs in the framing of the questions as well as the structure and content
of the training conducted for field staff.
During the reconnaissance survey, efforts were also made to see Community
Leaders and Officials of the identified Associations to brief them on the Project and
prepare them for fieldwork visits.
1.3
PREPARATION OF DATA COLLECTION INSTRUMENTS:
Data collection instruments were prepared bearing in mind the objectives and focus
of the Study. Against this backdrop, four different types of data collection
instruments were prepared.
They are as follows:
1.3.1 Questionnaire 1 (Landlords/Tenants Association) (Appendix 111:
This questionnaire has six parts A - F. Part A is formation, membership and
administration of the Association. Under this are questions bordering on the period
the Association was established, reasons behind its formation, its operations,
organizational and political structure, membership structure and decision making
processes among others. Part B focuses on activities of the Association. It dealt with
type of activities undertaken, project identification and priorities procedures among
others. Part C which focuses on funding seeks information on funding sources,
management of such funds in respect of transparency and accountability among
others. Part D has to do with association's relationships and encounters with the
State. It asks questions on registration of the association, benefits derived from the
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state, areas in which the association co-operate with the State, incidence of conflict
with the State, the nature of such conflicts and how they were resolved. Part E of the
questionnaire deals with provision of security facilities and episodes of encounters
with the State. It contains questions on adequacy of security facilities, existence of
vigilante group, episodes of encounters which are of relevance to security of lives
and property etc. Part F of the questionnaire is on general information. It examines
perception of the relationship of the association with the state and how conflicts can
be minimized and cooperation maximized. It must be stressed that where there had
been encounters, detailed investigation should be carried out to accommodate most
of the issues raised in the post Cape-Town Document sent to us by the CRD.
1.3.2 Questionnaire II (The Residents) (Appendix I11):
The questionnaire has 2 parts. The first seeks basic information on the
socio-economic background of the residents. The second aspect of the
questionnaire elicits information on residents' perception of adequacy of security
facilities of the landlord/tenants association. It also seeks to find whether there had
been conflict between the residents and vigilante group, the nature of such conflicts
and how they were resolved. In each of Agbowo, Kajorepo and Oke Orogun
communities, forty copies of this questionnaire were administered while eighty
copies were administered in Adogba making a total of two hundred copies of the
questionnaire.
1.3.3 Interview/Discussion Guide I (The Police/Operation Sweep/Patrol Team-)I
(Appendix IV)
This guide seeks information on activities of these security agents in the peri-urban
neighborhoods, areas of co-operation with peri-urban residents, areas of conflicts
and knowledge of activities of vigilante group. It also elicits information on incidence
of crime, general perception of the activities of landlords/tenants association as
regards provision of security facilities.
1.3.4 Interview Guide II (Officials of the Community Development Section of the
Local Government Council) (Appendix V):
This guide gives a checklist of information required which borders on registration of
Landlords/Tenants Associations and the procedure incidence of conflicts with the
local government council, activities of vigilante group as well as awareness of
incidence of conflicts with residents or the police among others.
1.4
RECRUITMENT AND TRAINING OF FIELD STAFF
In preparation for the fieldwork five reliable and experienced field assistants were
employed. A one-day training program was organized for them during which they
were taken through the residents' questionnaires. They were also enlightened on the
concept of Civil Society and good governance as well as what is required in a study
on episodes of encounters. This was to enable them probe further when some
responses were given. Four of the field assistants were mainly used for
administration of residents' questionnaires.
The fifth one was and is still involved in collation, data cleansing and collection of
secondary data.
1.5
PRETEST OF THE DATA COLLECTION INSTRUMENTS
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Questionnaires I and II for landlord/tenants associations and residents respectively
were pre-tested in two of the selected Communities. This was to ascertain likely
difficulties to be encountered, remove ambiguities in the framing or sequencing of
the questions and inclusion or cancellation of questions as may be relevant. After
the pre-test, the necessary amendments to the data collection instruments were
made. This was also extended to interview guides.
1.6
FIELDWORK:
The fieldwork commenced after the completion of the preliminary activities.
Residents' questionnaires were administered on the randomly selected residents of
the four communities.
In addition, the selected four Landlord/Tenants Associations had been interviewed
using Questionnaire I. These association were those that have had encounters with
the State. With respect to episodes of Encounters, four of such have been
documented, one from each of the four communities.
The Officials of the Community Development Unit of the relevant Local Government
Council had also been interviewed using interview guide II.
With respect to the Police/Patrol Team and Operation Gbale, part of the interview
guide I had been administered.
1.7
INSIGHT INTO FINDINGS:
General information collected from residents and landlord/tenants association is yet
to be analyzed. However, one can have an insight into findings in respect of
formation, operation and administration of the associations, episodes of encounters
and response from the officials of the Community development sector.
4
1.7.1 Landlords/Tenants Associations:
These Associations were established with a view to undertake self - help Projects to
improve the well-being of the entire residents through the provision of infrastructure
and the maintenance of their respective neighborhoods. In the peri-urban areas,
they became prominent as a result of the neglect by the Government and the State,
and poor planning of most peri-urban neighborhoods which lack vital social
infrastructure.
Initially, these Associations were called only Landlords Associations but in the 80s
when the menace of armed robbers became unbearable. These Associations
decided to give security a priority and since Tenants were to be involved also, they
then became Landlords/Tenants Associations.
These Associations undertake various Projects and take care of the security of their
neighborhoods in collaboration with State security agents.
Criteria for membership include being a Landlord and/or residents of the
neighborhood or the area of jurisdiction of the Association. Membership is opened to
Men and Women who meet the set criteria.
There are Officers for the administration of the Associations and they are chosen or
elected based on individual association. Meetings could be weekly or as necessary
for Executive Members and fortnightly or monthly for the general meeting.
Decision making procedure could be general discussion and consensus, Executive
decision or ideals of the Chairman depending on the association while information
dissemination and harvesting could be through the Landlords or through
representatives of Tenants as the case may be.
There are procedures for seeking funds for the various Projects and fund
management. The problem of transparency and accountability has led to conflicts
within some of the Associations.
Some of them have had encounters with the State agencies especially the Local
Government and the State Ministries, as well as the Police especially in the area of
security provision.
Major problems have been inadequacy of funds, nonchalant attitude of Government
to their plights, lack of mutual trust on the part of Members, etc.
Detailed analysis of the information collected will be done and reported at the next
MPF - 3 Workshop.
1.7.2 Episodes of Encounter:
As earlier stated, episodes of Encounter between the four Associations and the
State were investigated. These Associations include: Ilupeju Landlords/Tenants
Association, Adogba; Kajorepo Landlords/Tenants Association along Ojoo-Ibadan
Expressway; Ifedapo Landlords/Tenants Association, Oke Orogun and Ojokondo
Landlords/Residents Association at Agbowo Express.
(i)
Ilupeju Landlords/Tenants Association, Adogba:
5
Adogba Community is located in the Eastern fringe, off Iwo Road in Ibadan. The
Community began witnessing rapid development in the 1980s. However, between
the period 1989 to 1991, the residents of the Community were terrorized by armed
robbers who were carting away money and property, assaulting wives and children,
and killing men. Towards the end of 1991, the Community was becoming a ghost
area with residents deserting and fleeing to seek refuge with their relations in the
City Centre.
The Landlords/Tenants Association was then forced to take certain steps. This led to
encounters with various arms of Government -- the Local, State and Federal
government. Their main request and demand was the provision of a Police Station.
The Association acquired new organizational skill by dividing the Community into
zones, and having branches of the Association in each zone. Their political
administration was also improved upon by having a kind of "assembly" association
with representatives from zonal Associations.
In the process too, they devised virile fund mobilization strategies, learned art of
communicating with Government, and keeping of records of correspondences and
interactions.
Protest letters were sent to the Chairmen of the relevant Local Government. Their
case was referred to the State Commissioner of Police who took personal interest in
the matter. Eventually, it was agreed that Police Station would be provided with local
input.
The Association in collaboration with another different association -- a Co-operative
Society made available the requests to the Police. At a stage, other neighboring
Communities became jealous and wanted the Police Station established in their own
areas of jurisdiction. This led to another encounter between llupeju Association and
the Associations of the neighboring Communities. The llupeju Association won the
tussle and there was co-operation between the Association and the other 18
Associations with llupeju Association in charge of the maintenance of the Police
Station for the benefit of them all.
Another episode which was a fallout from the major one was the encounter between
the Association and the judiciary arm of the State Government. Armed robbers
caught during the initial raids were transferred to the armed robbery Tribunal and
Members of the Associations who were victims were asked to be Government
witnesses. This dragged on for about seven years (1991 - 1998) before the robbers
were sentenced to death in 1998.
Details of all these episodes will be fully analyzed and presented at the next stage of
the Workshop.
(ii)
Kajorepo Landlords/Tenants Association, along Ojoo-Ibadan Expressways:
Kajorepo is also a post 1973 Community whose development was facilitated by the
construction of the lbadan - Lagos Expressway. Due to its nearness to the
Expressway, it was largely prone to incursions by armed robbers.
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Another episode occurred in 1996. It involved the Community's vigilante and the
soldiers who are residents of Odogbo Military Barracks which is not far from the
Community. The vigilante Team during one of their raids caught three armed
robbers. However as they were being interrogated, some of the Community
members became impatient and demanded jungle justice instantly. The three
thieves were killed and set ablaze.
The following morning, some soldiers came from the barracks and claimed that
those killed were not thieves but their children who were going to the farm. Several
Landlords and Tenants including the Baale were arrested, beaten up and taken to
the barracks where they were detained. After spending about a week, they were
taken to lyaganku Police Station at Dugbe.
The Landlords/Tenants Association later started making frantic efforts to get their
people released. They petitioned the Office of the Governor. The case was then
taken to the Office of the Commissioner; the Local Government Chairman was also
involved.
After a few months, they were released having spent a lot of money on bribery. This
incidence led to the death of a few with some of them hospitalized.
Another encounter emerged from this. It involved a demand for a Police Station.
This led to interactions between the Association, the Local Government, the
Commissioner of Police, the Area Commander and other Associations. In the
process, the Commissioner of Police was contacted. He initially sent some members
of the State Anti Robbery Squad (SAS) to keep vigil in the neighborhood. Later the
Association contacted the Area Commander who then took the matter up and linked
them up with - the Works Department of Police Headquarters at Eleyele. Some
requests were made, and the
Association mobilized support and met the requests. Later there was co-operation
between the vigilante and Operation Gbale. The Association also policed its
Members, and suspects who were Landlords were arrested and handed over to the
Police. One of such Landlords was forced to sell his house and leave the
Community entirely.
Details of all the stages involved in this Encounter are being analyzed and will be
presented at the next Workshop.
(iii)
Ifedano Landlords/Tenants Association. Oke Orogiun (Appendix Viii):
Orogun is a Community located between UI - Ojoo Road and Ibadan -Lagos
Expressway in the northward direction of Ibadan. What led to their own encounter
were incessant attacks by armed robbers between 1994 and 1996. People were
being killed, while women and children were being assaulted. The frequency and
magnitude of the incidence was enhanced by the nearness of the Community to the
Expressway which facilitated the easy escape of the armed robbers.
The Landlords/Tenants Association then decided to demand for a Police Station to
be located in their Community. This took them to the Local Government, the
Governor's Office and Police Headquarters.
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Various strategies were also employed to mobilize people and generate funds for
the Project. At a stage, there was also conflict among the Landlords. This was later
resolved. Details of this Encounter are also being analyzed and will be presented at
the next stage.
(iv)
Ookondo Land lords/Residents Association. Agibowo:
Agbowo is a Community between UI and the Ibadan - Lagos Expressway just like
Orogun. Ojokondo is a part of Agbowo. The Case of Ojokondo is just a form of
collaboration between Landlords/Residents Association and the Police. Due to
incessant cases of armed robbery, the Association sought the assistance of the
Police who obliged to their request for police protection after some agreement was
reached. Things were going smoothly until the Association could no longer 'settle'
because Members refused to contribute money due to poor accountability on the
part of the Financial Officers. The situation is now deteriorating as the Police refuse
to come to their assistance and members of the Association were at loggerheads.
Details will be presented at the next workshop.
1.7.2 Community Development Unit of Local Government Council:
The lbadan North - East Local Government Council was sampled for administration
of the Interview Guide II. The exercise revealed that there is a Community
Development Unit in the Local Council which oversees the Community in the
mobilization of Youth Voluntary Associations, peoples' welfare, cultural promotion,
family support program, vigilante activities, and Community Development Training
programs.
Landlords/Tenants Associations are expected to register with the Unit under the
name Community Development Associations. Representatives of such registered
Associations from the Local Government Community Development Council which
meets regularly every month. Similar Councils in all the Local Government Areas in
the State do send representatives to the State Council. Thus, there is a machinery
for formal relationship between Landlords/Tenants Association and the Local and
State Governments.
Details of registration procedures/guidelines, activities of the Local Government
Community Development Council, benefits derived by the Association, as well as the
constraints, encountered were obtained and will be presented at the next Workshop.
1.7.3 The Police/Operation Sweep/Patrol Team:
Interview with the security agency has commenced. Certain aspects of the
information required especially on incidence of robberies and activities in the
peri-urban neighborhood have been obtained. The nature of collaboration with
Landlords/Residents Association especially in the formation of vigilante groups has
also been ascertained. The Landlords/Tenants Associations are expected to inform
the Police when forming vigilante groups. A vigilante committee should be raised
and registered with the Police who will provide the guidelines and necessary training.
On special arrangement, police personnel are made available to collaborate with
vigilante groups in their daily operations. The remaining aspect of the interview
especially on the guidelines and constraints will be concluded soon.
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1.8
PROBLEMS EXPERIENCED AND STRATEGIES FOR OVERCOMING
THEM
The issue of security is a very sensitive one. This led to the initial problem
encountered on the field. Residents as well as Officials of the Association were
reluctant to divulge information when approached for interview. In respect to this,
Community Leaders especially the Baales were contacted and enlightened on the
need to co-operate in order to strengthen and empower their Association. They
needed to be convinced of the neutrality of the Project and assured that it was not
Government-sponsored one. This was how the problem was solved.
Another problem encountered was that of difficulty in meeting respondents at home
for residents' questionnaires. The period of survey was then shifted to evenings
between 5.00 and 8.OOp.m when they would have returned from work or trading
activities. Interviews were also conducted on Saturdays and Sundays. The same
applied to Officials of the Association who were very busy. Several visits had to be
made to get them.
The period of data collection fell within the raining season. This disturbed the
interview schedules and several hours were wasted. This was solved by extending
the period of data collection.
The interview with the Police was very tedious. Proper personal identification was
sought before being granted audience at all. This led to getting a letter of
introduction from the Institute.
Intra-association conflicts also caused some problems. There was a particular case
in Adogba where the Secretary and the Treasurer had some misunderstanding prior
to our visit. We first called on the Treasurer before seeing the Secretary. He refused
to attend to us saying we ought to have seen him before the Treasurer. It took the
intervention of the Chairman before he could then attend to us.
Extent of Work so far and work plan towards completion of the project
1.
Tasks/Activities
Status Plan
Library Search and Review of Literature Executed
2.
Reconnaissance Survey
3.
Questionnaire Preparation Executed
4.
Training of Field Staff
5.
Pretest of Questionnaires Executed
6.
Field Work
7.
Data Cleansing
8.
Data Analysis
9.
Additional Data Collection
Executed
Executed
Executed
On-going
August 31
September 7
9
10.
Preparation of Draft Report
11.
Final Report
September 21
October 8
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APPENDIX 1
LIST OF MATERIALS REVIEWED
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Adejumobi, A. (1990c) 'Self-Help Community Development in Selected Nigerian
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Adejunmobi, A (1990b) DFRRI and Survey of the Role of Non-Governmental
Grassroots Agencies in Oyo State. Final Report, October.
Adejunmobi, A. (1990a) Participation in Voluntary Association in Selected Urban
Centres in Nigeria. Report Submitted to the Social Science Council of Nigeria and
Ford Foundation.
Ake, C. (1987) 'Sustaining Development on the Indigenous', Washington, DC World
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Bratton, M. (1995) "Non Governmental Organisations in Africa: Can They Influence
Public Policy? Development and Change.
Carter Center of Emong University (1989) 'Perestroika Without Glassnost in Africa'
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Development', Regional Development Dialogue, Vol. 8, No. 2, pp. 3-9.
Civil Society and Governance, A Concept Paper provided by CRD.
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Donald Rothchild and Letita Lawson (1994) 'The Interactions Between State and
Civil Society in Africa: From Deadlock to New Routines' in John Habersoa, Donald
Rothchild, Naomi Chazam (eds) (1994) Civil Society and the State in Africa. Lynne
Rienner Publishers, Boulder, London, pp. 255-284.
Olowu, Dele and Shittu Akinola (1994) 'Governance and Poverty in Anglophone
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Urban Poverty in Anglophone West Africa, Ibadan May 16-18, 1999.
Onibokun, A.G. and Faniran, A. (1995) Community Based Organisations in Nigeria
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of Development CASSAD Monograph Series 7, Ibadan.
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Peter M. Lewis, Real T. Robinson and Barnett R. Tubin (1998) Centre for Preventive
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SINA (1996) 'Government-Community Partnerships in Human Settlements' SINA
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Terrence, Morris (1958) The Criminal Area: A Study of Social Ecology, Routledge
and Kegan Paul, London.
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