John M. Carland - The Colonial Office and Nigeria, 1898-1914

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THE COLONIAL OFFICE AND NIGERIA, 1898-1914

THE COLONIAL OFFICE AND NIGERIA, 1898-1914

John M. Carland

Copyrighted image removed by Publisher

Hoover Institution Press
Stanford University
Stanford, California

The Hoover Institution on War, Revolution and Peace, founded at Stanford University in 1919 by the late President Herbert Hoover, is an interdisciplinary research center for advanced study on domestic and international affairs in the twentieth century. The views expressed in its publications are entirely those of the authors and do not necessarily reflect the views of the staff, officers, or Board of Overseers of the Hoover Institution.

Hoover Press Publication 314

Copyright 1985 by The Macmillan Press, Ltd

All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording, or otherwise, without written permission of the publisher. First printing, 1985

Printed in Hong Kong

89 88 87 86 85 9 8 7 6 5 4 3 2 1

Library of Congress Cataloging in Publication Data

Garland, John M., 1942

The Colonial Office and Nigeria, 1898-1914.

Bibliography: p.

Includes index.

1. Nigeria--Politics and government--To 1960. 2. Nigeria--Economic conditions--To 1960. 3. Great Britain. Colonial Office. I. Title.

DT515.75.C37 1985 325'.341'09669 84-15712

ISBN 0-8179-8141-1

To
Kathryn Allen Carland
and
Harold Maxwell Carland (1915-84)
who by their example
taught me that reading was fun

Acknowledgements

I would like to acknowledge the following individuals and institutions in whose debt, after writing this book, I find myself.

Professor A. P. Thornton of the University of Toronto became my mentor in 1970 and, later on, my friend. I went to Toronto to study with him after reading The Imperial Idea and its Enemies. Throughout the years at Toronto Professor Thornton, as major field adviser and dissertation director, was always available but never intrusive. He was always ready, willing, and able to provide what I, as a graduate student, needed in the way of academic and intellectual assistance. He suffered through more than one revision of my thesis (an early version of this book) giving valuable conceptual and editorial advice. In all this I can recall only one Thorntonian dictum on how to organise one's written work ('watch the number of chapters, keep it to a maximum of eight, if humanly possible'), which, as anyone can plainly see, he himself follows. Professor Thornton greatly contributed to making my graduate student years - intellectually and personally - both enjoyable and productive.

The planning, research, and writing of the thesis was generously supported by an Open Fellowship from the University of Toronto, a grant from the University of Toronto's International Studies Programme, and two Province of Ontario Graduate Fellowships. Since the foundation of the book is in the thesis it is fitting that these sources of financial assistance be acknowledged. In a period of declining support for graduate studies in the United States and elsewhere I am extremely grateful to Canadian institutions for making my doctoral research and degree possible.

The turning-point in the process by which the thesis was transformed into a book came in 1979. By that time I had returned to the United States and had been teaching at the University of Kentucky for two years. Part of the summer of 1979 had been spent in England doing further research, mostly in Treasury files, on the Colonial Office and Nigerian policy. This research was funded by the University of Kentucky Research Foundation. During late 1979 and throughout 1980 I reflected on this new material and integrated it with material gathered in England during 1972-3. I gradually began to understand the possibilities inherent in the research. Out of this understanding came the argument and conclusions which justify this book.

While writing this book (1980-3) I incurred other debts. Raymond Belts of the University of Kentucky gave one chapter, while it was in article form, a critical reading and made constructive suggestions. Ralph Austin of the University of Chicago did the same. Lewis Gann of the Hoover Institution on War, Revolution and Peace read the entire rewritten manuscript. I might add that Dr Gann additionally gave advice, encouragement, and assistance when all three were very much needed.

I would also like to thank the editors of Albion, The Historian, and The International History Review for their kind permission to reproduce, in slightly different form, the following material: 'Public Expenditure and Development in a Crown Colony: The Colonial Office, Sir Walter Egerton, and Southern Nigeria, 1900-1912,' in Albion, 12(1980), which appears as Chapter 3 here; 'Budgetary Conflict and the Northern Nigerian Revenue Estimates, 1899-1913', in The Historian, 45(1984), which appears as Chapter 4 here; and 'Enterprise and Empire: Officials, Entrepreneurs, and the Search for Petroleum in Southern Nigeria, 1906-1914', in The International History Review, 4(1982), which appears as Chapter 7 here.

I am indebted to the following for permission to publish material of which they have copyright: the Controller of Her Majesty's Stationery Office for use of Crown copyright material in the Public Record Office; the Bodleian Library, Oxford University, for use of the Harcourt Papers; the British Library for use of the Campbell-Bannerman Papers and the Strachey Papers; Churchill College, Cambridge University, for use of the Lyttelton Papers; Rhodes House Library, Oxford University, for use of the Holt Papers and the Lugard Papers; the third Lord Southborough for the use of the first Lord Southborough's (Sir Francis Hopwood's) private papers; and University Library, Cambridge University, for use of the Crewe Papers.

I would additionally like to thank Barbara Bentley and Dorothy Leathers for typing an early draft and Sharon Hamilton for typing the final draft of this manuscript. It was no easy task.

Finally I would like to acknowledge a debt to Maria Pinto Carland too great to be discharged by mere admission of its existence. She has been thesis and manuscript editor of the first and sometimes last resort. She has helped me to understand that research has to be moulded and shaped and, most importantly, thought about. I also owe her greatly for moral support given across the years. In as much as these things can be done with words, I acknowledge, with love and gratitude, what she has given me.

Lexington, Kentucky

John M. Garland

List of Tables

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List of Maps

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Cast of Characters

*Anderson, John (1882-1958). Entered Colonial Office, 1905; Secretary, Northern Nigerian Lands Committee (1908) and West African Currency Committee (1910-11); transferred to National Insurance Commission, 1912; Secretary to Minister of Shipping, 1917; Chairman, Board of Inland Revenue, 1919; Joint Under Secretary, Irish Office, 1920; Permanent Under Secretary, Home Office, 1922; Governor of Bengal, 1932; Member of Parliament (Independent), 1938-50; Member of War Cabinet, 1940; Chancellor of the Exchequer, 1943-5; knighted, 1919; created first Viscount Waverley, 1952.

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