Between statesmanship and dictatorship: Gov Umahi’s eight-year report card

1. Introduction:

Former Governor David Umahi is a trained civil engineer. He was born on July 25th, 1964. He co-founded Norman Engineering and Construction Nig. Limited and later served as chairman and CEO of Brass Engineering & Construction Nig. Ltd, among other portfolios he held in the private sector prior to joining party politics. He was state chairman of the People’s Democratic Party (PDP) in Ebonyi State and a two-term deputy governor of the same state. He became the governor of Ebonyi State in 2015 under the platform of the PDP and, in his second term, jumped over to the ruling party at the national level, the All Progressives Congress (APC). Since then, he has managed the affairs of the state that prides itself as the “Salt of the nation.” He handed over the baton of leadership to a new governor, Mr Francis Nwifuru from his party, the APC.

Preamble

In this investigative report undertaken by Ikengaonline, a non-profit media organisation dedicated to public accountability and good governance, in collaboration with Dataphyte, a data analytics company, under the auspices of Wole Soyinka Centre for Investigative Journalism (WSCIJ), the eight-year administration of Mr Dave Nweze Umahi who mounted the saddle as Ebonyi State governor on May 29, 2015, was x-rayed. Specific measurable values were considered, with a focus on key sectors of governance, to determine the impact of the administration on the people.

Mode of data collection

Data were collected using various processes and methods, which included but not limited to site visits, examination of documents, review of government records under the Freedom of Information (FOI) Act, interviews, and testimonials. Where necessary, experts were called upon to shed more light on a subject.

Having collected the data, a thorough analysis was carried out by numerous stakeholders, comprising a team of policy experts, seasoned journalists, and representatives of civil society organisations, as well as other relevant bodies. A three-tier scoring system was adopted to rate the administration’s overall performance in a particular sector. Consistent with investigative journalism’s best practices, the goal is to present the facts objectively and dispassionately, without compromising sources and methods.

Summary of performance

Governor Umahi’s performance was assessed across nine critical administrative areas, which collectively represent the entire scope of the research. Interestingly, unlike his counterparts in Abia and Enugu states who failed woefully, Umahi managed to score a pass in three of the nine categories (33 percent). However, he failed in 56 percent of the categories, while the results were inconclusive in 11 percent of all the assessed criteria. This couldn’t be definitively classified as a pass or a fail (Indeterminate).

The full report

Security

In recent years, Ebonyi State has experienced a surge in insecurity, transforming what was once a peaceful food basket of the South-East into a hotbed of bloodshed and killings. The alarming frequency of these incidents demanded an urgent attention and decisive action under Umahi.

Governor Umahi occupied a unique position not only in Ebonyi State but also in the entire South-East when it came to the issue of security. As the chairman of the South-East Governor’s Forum, he faced criticism for allegedly single-handedly impeding efforts to establish a much-needed security outfit similar to the Amotekun initiative in the South-West. Such an outfit would have been instrumental in addressing the pervasive insecurity that plagued the region.

Ebonyi State, like its neighboring states in the South-East, witnessed horrifying attacks orchestrated by marauding herders, prompting calls for regional security arrangements akin to the successful establishment of Amotekun in the South-West.

Facing mounting pressure from groups including Ohanaeze and the Indigenous People of Biafra (IPOB), Governor Umahi eventually yielded and announced the formation of the Ebubeagu Security Outfit. However, months later, the outfit faced turmoil as Umahi’s own brother, a retired general appointed to lead Ebubeagu, resigned in protest, citing a lack of funding from the South-East governors.

Despite initially operating in Ebonyi State, the security outfit became embroiled in controversies, with accusations of human rights abuses, extrajudicial killings, and other irregularities. Its notoriety reached its peak during the lead-up to the last elections, as it was accused of being exploited by the state government to target perceived political enemies. Consequently, widespread calls for the disbandment of Ebubeagu echoed throughout the state. The agency was ultimately scrapped by an order of the Federal High Court in 2022, but Umahi’s government swiftly established two new agencies to replace it.

While insecurity and herder-farmer clashes were prevalent across Nigeria, Ebonyi State also witnessed several cases of alleged politically motivated killings, with fingers often pointing in the direction of the government. These incidents, such as the attack on the home of the Council Chairman of Ikwo Local Government Area, Mr. Steve Orogwu, resulting in the tragic loss of his brother and two sons, highlighted the alarming nature of the situation.

Also, in what was termed the Ebonyi Boxing Day Attack, three persons were killed  in Ekoli Edda community in a clash involving rival gangs loyal to two APC stalwarts on December 26, 2022.

In another disturbing incident, the convoy of the APGA governorship candidate, Prof Ben Odoh, was ambushed in Ishielu Local Government Area, resulting in the death of his driver and a policeman. Furthermore, in February 2023, gunmen brazenly killed Eze Igboke Ewa, a monarch, in his palace in Ezza North Council Area. Although some individuals were arrested and charged in connection with these killings, the underlying concerns about political motives persisted.

It is important to acknowledge that, despite the prevailing insecurity, Ebonyi State fared relatively better compared to other states in the South-East when it came to the menace of unknown gunmen. However, the state witnessed a disturbing escalation in communal and boundary disputes, leading to the loss of many lives.

Respect for the rule of law

The lack of respect for the rule of law exhibited by the state government under Umahi was not just disappointing; it was deeply troubling. In numerous instances, the government demonstrated blatant disregard for judicial decisions, undermining the very foundations of the nation’s democratic society.

One glaring example of this occurred in 2022 when the state government proceeded to swear in local government chairmen despite a federal high court ruling that invalidated their positions. Rather than respect the court’s decision, the government took matters into its own hands, further eroding public trust in its commitment to upholding the rule of law.

Moreover, the state government developed a concerning pattern of obtaining counter judgments from state high courts under its influence, with the aim of countering rulings made by federal high courts. This manipulative tactic was on full display when the government hastily sought a judgment from the state high court asserting that Governor Umahi could remain in office after defecting to the APC from the PDP.

This move was made preemptively, just before a federal high court ruling on a similar matter pertaining to the governor’s defection. Ultimately, the federal high court ruled in favor of his removal, yet Governor Umahi refused to comply, citing the judgment from the state high court, which he claimed held equal authority. This deliberate manipulation of legal proceedings undermines the credibility of the justice system.

Similar tactics were employed in the case of the local government chairmen’s election. The state government swiftly obtained a judgment from the state high court recognising the chairmen as validly elected, based on which they were sworn in. This maneuvering not only undermined the authority of the federal high court but also raised serious questions about the government’s commitment to fair and transparent electoral processes.

Disturbingly, the state government also showed a propensity for employing underhanded tactics such as intimidation, arrests, and threats to coerce litigants into dropping cases against it. A striking example of this occurred when Mrs. Jackie Ikeotuonye was arrested in 2022 by the police at the behest of the state government shortly after winning a lawsuit against the government. Her arrest was carried out on dubious grounds of alleged fraud against the state government, despite her company, Andrew Bishopton Limited, having successfully sued the government for N30 billion due to breach of contract.

It is deeply concerning that the state government, while still appealing the case, resorted to such tactics, forcibly bringing Mrs. Ikeotuonye back to Ebonyi State and allegedly coercing her into signing documents withdrawing from the matter. Such actions represented a gross abuse of power and a flagrant violation of the principles of justice and due process.

The erosion of respect for the rule of law by Governor Umahi’s government not only undermined public confidence in the judicial system but also threatened the very essence of the nation’s democracy. It is imperative that leaders are held accountable with transparency, fairness, and adherence to the rule of law demanded from them. Only by upholding these principles can a just and prosperous future for all citizens of Ebonyi State be ensured.

Local council autonomy

While local government autonomy might have been touted as a reality in Ebonyi State, the truth painted a vastly different picture. In practice, the local governments were treated as mere extensions of the state executive council, with little room for independent decision-making or self-governance.

Council chairmen were beholden to the state governor, regularly attending meetings where they received directives on what actions to take and what to avoid. This arrangement effectively undermined the autonomy that should be granted to local governments, as their decisions were dictated by the state government rather than being based on the specific needs and aspirations of their communities.

Furthermore, reports alleged that the Ebonyi State House of Assembly passed a law requiring council chairmen to submit their expenditure estimates to the state house of assembly for approval on a monthly basis. This requirement rendered the legislative councils of the local governments practically redundant, with few, if any, sittings taking place. The power to make financial decisions was effectively concentrated in the hands of the state government, further eroding the autonomy of local governments.

Additionally, while the local governments did not have a joint account with the state, they were forced to participate in joint projects with the state government. Shockingly, reports suggested that local governments were compelled to contribute more funds towards these projects than the state itself. This imbalance raised concerns about fairness and equitable resource allocation, as the burden fell disproportionately on the local governments, further subjugating them to the control of the state government.

The illusion of local government autonomy in Ebonyi State was a disheartening reality. Instead of empowering the local governments to effectively address the unique challenges faced by their communities, they were reduced to mere puppets, following the directives of the state government.

Gender inclusivity

Governor Umahi’s commitment to gender inclusivity was evident in the political appointments made during his tenure. In his first term, two out of the 13 local government chairmen were women, while all the vice chairmen were women. This showcased a significant step towards empowering women in leadership positions at the local government level.

Beyond the local government level, Governor Umahi’s administration made strides in promoting gender inclusivity in various sectors. Notably, there were women appointed as commissioners, with the commissioner of women’s affairs serving as the statutory representative. Additionally, women were leading key portfolios such as Trade and Investment as well as Economic Empowerment, highlighting their competence and contributions to the state’s development.

Moreover, numerous women were appointed to important positions, including special assistants, chairpersons of boards and commissions, among others. These appointments showcased the recognition of women’s capabilities and their significant role in shaping policies and decision-making processes.

To further demonstrate his government’s commitment to gender inclusivity, women held influential positions in key institutions. Women chaired both the Ebonyi State Civil Service Commission and the Local Government Service Commission, ensuring that their perspectives were represented and their voices heard in crucial administrative processes. The State Procurement Bureau was also led by a woman.

However, it is crucial to note that at a recent council election, only one woman emerged as chairman, while all the vice chairmen positions were filled by women. While this indicates progress, there is still room for improvement in ensuring equal representation for women in leadership roles.

Finance

Ebonyi State has made significant strides in generating revenue through various sources, primarily relying on federation allocations and internal revenue generation (IGR). From 2018 to 2021, the state accumulated a total revenue of N340.99 billion, with N276.91 billion derived from the federation account during this period.

An in-depth analysis of the state’s revenue composition reveals that approximately 81.21 percent originated from the federation account, while the remaining funds were internally generated. Although IGR constituted less than 22 percent of the total revenue in each year, there was room for growth and optimisation in this area.

FEDERAL ALLOCATION

Federal allocation was consistently the primary revenue source for Ebonyi State, accounting for a minimum of 72 percent of the total revenue in each year within the eight-year period. The state’s allocation varied over the years, with the highest amount received in 2021 – N48.91 billion. Conversely, the lowest amount received during the period was N28.44 billion in 2016.

IGR

In terms of IGR, Ebonyi State experienced a temporary decline in 2016 compared to the preceding year. However, the state witnessed a positive trend in annual internal revenue generation following this period. The peak in internal revenue generation occurred in 2020, with a notable amount of N15.879 billion. It is worth mentioning that there was a slight drop in revenue generated in 2021, totaling N13.75 billion.

Public Expenditure

Ebonyi State’s progress and governance were driven by its expenditure framework, which was outlined in the annual budget proposed by the governor and approved by the state legislature. However, there were fluctuations in public expenditure in recent years, highlighting the need for effective financial management and allocation of resources.

Between 2018 and 2021, there was a decline in the total approved public expenditure in Ebonyi State. The figures dropped from N208.31 billion in 2018 to N188.41 billion in 2019. Subsequently, the expenditure decreased further to N178.14 billion in 2020 and N122.85 billion in 2021.

However, there was a modest increase in 2022, reaching N145.41 billion, before slightly dropping again to N139.4 billion in 2023.

Recurrent Expenditure

Analysing the expenditure breakdown, recurrent expenditure accounted for a significant portion of the budget, summing up to N294.65 billion from 2018 to 2023. This represented 29.99 percent of the total budget for the period. Notably, in 2023, recurrent expenditure constituted 41.99 percent of the total budget, with N58.54 billion allocated for this purpose out of the N139.4 billion total expenditure. The year, 2016, witnessed the lowest proportion of recurrent to total expenditure, with N42.68 billion out of the N208.31 billion approved.

Capital Expenditure

Capital expenditure took precedence in Ebonyi State in contrast to recurrent expenditure with N687.87 billion allocated to infrastructure development and other capital projects between 2018 and 2023. This accounted for 70.01 percent of the total expenditure during the period. Year after year, capital expenditure consistently constituted a substantial proportion of the budget, ranging from 59.19 percent in 2021 to 79.51 percent in 2018. This demonstrated the state’s commitment to investing in long-term development and public infrastructure.

Debt Profile

As for the state’s debt profile, Ebonyi State’s total debt stood at N83.93 billion as of December 2022. Over the years, the debt has experienced notable growth, increasing by 93.22 percent from N43.44 billion in 2015 to its current level. However, there were instances where the state successfully reduced its debt burden. In 2020, Ebonyi State managed to pay off over half of its debt, resulting in a drop from N131.31 billion in 2019 to N69.24 billion. Although the debt slightly increased to N68.37 billion in 2021 and N83.93 billion in 2022, prudent debt management remained crucial for the state’s financial stability.

Education

Education is a fundamental pillar of development. According to the United Nations Educational, Scientific and Cultural Organization (UNESCO), allocating 15 to 20 percent of the public budget to education is recommended for effective provision.

A review of Ebonyi State’s budget reveals that, for the most part, the allocation to education fell within the UNESCO-recommended range. However, in 2018, the state’s budget for education was only 7.46 percent of the total expenditure, falling short of the ideal target. Nonetheless, there were positive trends in subsequent years.

Notably, Ebonyi State achieved its highest proportion of budget allocation to education in 2021, with N27.29 billion earmarked for the sector. This represented a substantial 24.18 percent of the total budget of N112.85 billion for the year. In nominal terms, the highest budget allocation for education was in 2020, with N27.35 billion allocated to the sector. Conversely, the lowest nominal budget for education was in 2018.

Out-of-school days (Strikes)

The state faced challenges in the form of strikes. However, it is worth noting that under Umahi, schools in Ebonyi State typically only closed down during periods of general crisis.

For instance, in 2015, the governor appealed to teachers not to join the organised labour strike over the non-payment of the approved 50 percent salary structure. This approach aimed to ensure continuity in educational activities and minimise disruptions for students.

In 2022, universities in Ebonyi State joined the national ASUU strike, aligning with the nationwide movement. While strikes were experienced, there were instances where authorities expressed concerns about the governor’s remarks regarding the ASUU strike.

Performance in national exams (WAEC/UME)

An analysis of WAEC results in the state shows an increase in the overall percentage of passing students from 2016 to 2021.

In 2016, students in the state achieved a pass rate of 42.44 percent in the examination, with 10,372 out of 24,441 students passing with five credits, including Mathematics and English Language.

The pass rate increased to 67.53 percent in 2017. However, there was a drop to 61.68 percent in 2018. The figure fell further to 58.41 percent in 2019. The overall performance improved to 62.77 percent in 2020. However, it was in 2021 that the state recorded its best performance, with an impressive 90.55 percent of students passing the examination.

Out-of-school children

Nigeria is one of the top three countries with the highest number of out-of-school children, estimated at 20 million, according to the latest estimates from UNESCO. Ebonyi State contributed to this national figure with 145,337 children in the state being out of school in the 2017/18 academic year. This accounted for 1.43 percent of the total national figure.

Healthcare

The health sector in Ebonyi State faced significant challenges under Umahi. The state had an infant mortality rate of 57, a child mortality rate of 36, and an under-five mortality rate of 91. As Nigeria ranks among the countries with the highest incidence of malaria, data from Ebonyi State indicate an increasing number of reported malaria cases. According to the latest edition of the NBS Men and Women Report, there were 867 cases of malaria in the state in 2019. This number rose to 7,645 in 2021 and further escalated to 11,929 in 2022.

The health budget played a crucial role in addressing the healthcare challenges in the state. The Abuja Declaration of 2001 recommended that 15 percent of public health expenditure be allocated to the health sector. An analysis of the Ebonyi State health budgets reveals that they consistently fell short of the recommended 15 percent from 2018 to 2023.

In 2018, the state allocated only 2.91 percent of its total budget to health. However, there was a slight improvement in 2019 when the sector received 9.53 percent of the total budget. In 2021, there was a marginal decline as the health budget dropped to 9.18 percent of the total budget. The year 2021 witnessed the highest proportion of the state budget allocated to health, with 13.5 percent approved for the sector.

Subsequent years saw declines in health budgets, with 5.27 percent of total expenditure allocated to health in 2022 and 5.5 percent in 2023.

Access to healthcare

In Ebonyi State, only 10.8 percent of women and 2.8 percent of men have health insurance coverage. For children, the state provides health insurance coverage for 11.8 percent of those aged 5-18 years and 11.4 percent for those under five years.

The National Demographic Housing Survey (NDHS) 2018 reported that 70.5 percent of women in Ebonyi encountered multiple barriers to accessing healthcare services.

Among these barriers, 65 percent faced financial constraints, while 35.5 percent struggled with distance to healthcare facilities

Doctor-to-patient ratio

The number of doctors in Ebonyi State has decreased in recent years. In 2017, the state had 478 registered and practicing doctors. This number increased to 529 in 2018 but declined to 316 in 2019 and further dropped to 301 in 2020. With a growing population in the state, the availability of efficient healthcare services became a challenge under Umahi, worsening the doctor-to-patient ratio in the past two years.

In 2017, Ebonyi State had a doctor-to-patient ratio of one doctor to 6,197 citizens. This ratio improved slightly to one doctor per 5,759 patients in 2018. However, in 2019, the ratio nearly doubled to one doctor per 9,901 citizens. The situation worsened in 2020, with the ratio increasing to one doctor per 10,703 citizens.

Infrastructure

Governor Dave Umahi’s tenure in Ebonyi State witnessed an unprecedented wave of infrastructural development. His administration embarked on the construction of several roads, flyovers, and bridges across the state, linking previously inaccessible areas and enhancing transportation networks. Ebonyi State government also partnered with the African Development Bank (AfDB) in the construction of the 198-kilometer Abakaliki Ring Road project, connecting eight LGAs of the state.

Governor Umahi also embarked on many other projects, including the reconstruction of an international market, one of its kind in Nigeria, an ecumenical centre, and the reconstruction of Abakaliki Township Stadium. His government also built from scratch the King David University of Medical Sciences in Uburu and also inaugurated the Ebonyi International Airport.

Under Governor Umahi, Ebonyi State experienced a massive boost in infrastructure more than any other state in the South-East. As a trained civil engineer, he placed a high priority on this area. Analysis of the state contract awards also shows that most of them were open to competitive bidding. This resulted in competition and enhanced efficiency in contract execution.

Even though his critics worried about his alleged autocratic bent and were quick to point out that he neglected other crucial areas, including Ebonyi’s badly needed human capital development in favour of infrastructure, no one can deny that he built Ebonyi to become a great city with all the trappings of modernity.

Newly built Ebonyi Airport

Human capital development

Recent reports from the National Bureau of Statistics (NBS) paint a grim picture of Ebonyi State’s human capital development and its ripple effects. With a poverty rate of 56 percent, the state finds itself among the poorest in the federation, alongside Zamfara, Bayelsa, Jigawa, Kebbi, and Yobe. In contrast, the rest of the South-East, including Abia, Anambra, Enugu and Imo, fared better in this regard.

Education and health are critical indicators of human capital development, and unfortunately, Ebonyi State came short in both areas under Umahi. Data from the third quarter of 2018 reveal that the state had a labour force of 1.53 million, placing it among the lowest in the country. During this period, the total unemployment rate stood at 21.1 percent, with an additional underemployment rate of 19.7 percent, bringing the total unemployment and underemployment rates to over 30 percent.

Tragically, the state struggled with high infant mortality rates (82 per 1,000) and under-5 mortality rates (131 per 1,000), as well as a significant number of malnourished children under Umahi. The shortage of skilled healthcare professionals, inadequate healthcare infrastructure, and other challenges compounded the situation. In the education sector, Ebonyi grappled with a high number of out-of-school children, a lack of qualified teachers, and parental ignorance, among other limiting factors.

When Governor Umahi assumed office on May 29th, 2015, there was a glimmer of hope as he pledged to prioritise human capital development. Recognising its pivotal role in the state’s socio-economic progress, his administration even renamed the Ministry of Economic Empowerment and Job Creation to the Ministry of Human Capital Development and Monitoring. However, despite these initiatives, efforts in this area stagnated.

The ministry’s interventions primarily focused on distributing palliatives and disbursing loans to small and medium enterprises (SMEs). Even the budgetary allocation to the sector did not reflect the priority attention it deserved. In the 2023 budget, for instance, the governor’s office alone received approximately N11 billion, while the Ministry of Human Capital Development and Monitoring received a paltry N2.2 billion. Similarly, the education sector was allocated N21.4 billion, trailing slightly behind the Ministry of Works and Transport which received N21.6 billion.

Scoring system

Pass: When the administration is deemed to have performed creditably in a particular sector. Fail: When the administration is deemed to have performed woefully in a particular sector.

Indeterminate: When the facts are not compelling enough to score the administration’s performance in that sector as pass or fail or when outcomes do not match investments.

A research by Ikengaonline in collaboration with Dataphyte under the auspices of the Wole Soyinka Centre for Investigative Journalism (WSCIJ), this report was made possible through the generous support of John D. & Catherine T. MacArthur Foundation.