By Professor Ibrahim A. Gambari
(Being a paper delivered at the 2021 Annual Public Lecture of the Society for International Relations Awareness, SRA)
Protocol.
Distinguished Ladies and Gentlemen,
Let me start by thanking the Leadership of the Society for International Relations Awareness (SIRA) for the invitation to deliver this paper at this book presentation on “Multilateralism in the Contemporary World” to mark the Association’s 2021 public lectures-series.
I will like to approach the subject by first refreshing into our memory with some basic definitions of foreign policy as posited by some eminent scholars in the field of international relations.
Han Morgenthau in his book, ‘Politics Among Nations (1948), defines foreign policy as decisions which set out the objectives that a Nation seeks to achieve and the actions taken to implement those decisions.
Other equally renowned scholars such as Professors F. S. Northedge, James N. Rosenau, view foreign policy as actions, decisions and strategies employed to promote and protect a country’s national interest.
It can therefore, be argued, that Foreign Policy is a road map or a set of objectives and plans with which a Nation intends to realize its national interest, through the various platforms of engagements using the requisite means and instruments.
In general, Foreign Policy is about the articulation of broad interests designed at home and projected in the international arena. It is translated into strategies and institutionalised for the management of relations with other states and non-State actors, with the aim of attaining complex domestic and international agenda, for the purpose of preserving its security, independence, as well as promoting the political, economic, social and CUItural interests of its citizens.
Nigeria’s Foreign Policy objectives and identified national interests are centered on the promotion of:
a) the continued survival, safety, security, prosperity and well-being of her citizens;
b) regional and continental peace and security;
c) international peace and security and the principles of the United Nations Charter.
Barely one week after Nigeria’s independence in 1960, the first Prime Minister, Sir Abubakar Tafawa Balewa, while addressing the United Nations as the organisation’s 99th member, underscored the specificity of these Foreign Policy objectives to include:
a) Promotion and protection of Nigeria’s national interests;
b) Representing and protecting the interests of the Federal Republic of Nigeria, Nigerian citizens and legal entities abroad;
c) Promotion of African integration and support for African unity;
d) Promotion of international cooperation for the consolidation of universal peace and mutual respect among nations and elimination of discrimination in all its manifestation; Respect for international law and treaty; and
f) Promotion of a just world-economic order.
In order to actualize these objectives, Prime Minister Balewa declared that Nigeria’s foreign policy would be non-aligned; and that we would not belong to any of the then global power “as a matter of routine ”
From the foregoing, there is no doubt that the focus of Nigeria’s Foreign Policy, has essentially been on Nigeria and her citizens as indeed the rest of the African continent. The Africaness of Nigeria’s Foreign Policy, has continued to define Nigeria’s interactions with other nations on matters affecting Africa. The identification of these interest and objectives under Chapter 19 of the Constitution of the Federal Republic of Nigeria (1999) as amended, attest to the continuity component of Nigeria’s Foreign Policy.
Notwithstanding the torturous evolution of the political history of Nigeria since independence, her fundamental Foreign Policy objectives have not changed. Different administrations since independence, tried to lay different emphasis on what such administrations perceived to be more in consonance with public perceptions, hence different concepts have been thrown up, such as the “concentric circles, policy, concert of medium power, economic diplomacy, neighbourhood diplomacy, diplomacy of consequence, beneficial concerfricism, to mention a few. The oscillation of Nigeria’s Foreign Policy thrusts between above stated concepts and paradigms, were often not clearly understood, even by the stakeholders.
Talking about concepts or Foreign Policy thrust, to my mind, the Buhari Administration’s conceptualization of its Foreign policy objectives around concentric circles of interests, during his first time administration as Military Head of State, marked the beginning of clarity in the pursuit of Nigeria’s Foreign policy in favour of the territorial safety and survival of Nigeria as its inner core, followed almost simultaneously by the defence of her citizens, fanning out to Nigeria’s immediate neighbours, sub-region Africa and Globally. These Policy objectives have continued to remain the same, despite changes in the administration of our country.
Distinguished Ladies and Gentlemen.
Without doubts, Nigeria’s Foreign Policy has served the country very well in the past. Upon attainment of our independence, the priorities and goals for Nigeria were unambiguous hence easily understood by our citizens as it was easier to build national consensus around such issues as decolonization, apartheid, promotion of African unity and integration, peace and stability in the continent with linkages to global peace. Now these issues and other emerging ones are not that easy to understand nor contend with.
It is therefore, understandable why there are persistent calls for clarity in the definition of our Foreign policy and its underpinning strategy to meet the challenges of the time. With clarity and strategy, it is expected that the nation can be more proactive in her Foreign Policy pursuits which must now be country-specific, region-based and globally oriented.
Distinguished Ladies and Gentlemen
What has changed in Nigeria, especially in over a decade, with consequential negative impact on her Foreign Policy, has been the fight against terrorism and Boko Haram. The threats to Nigeria’s safety and survival which these represent, have grossly limited Nigeria’s diplomacy, impacting negatively her external visibility continentally and globally.
These initial threats, have since complicated Nigeria’s domestic peace and security with huge consequences to cohesion, national unity and peace. The Buhari Administration was able to mobilize International Support for the War against Boko Haram, forging strong partnerships with key countries, including the United States, the United Kingdom, France
and Germany, ECOWAS, the AU, as well as the UN. After years of stalemate, the United States finally agreed to sell — and has sold — weapons to Nigeria (12 Super Tucano Aircraft).
The Buhari Administration has also reinvigorated the Multinational Joint Task Force (MNJTF) comprising troops from Nigeria, Chad, Niger, Cameroon and Benin Republics.
There are, however, some international events that shaped Nigeria’s path to progressive diplomacy which are largely attributable to Mr. President’s personality and character.
His pre-inaugural visitations to our neighbouring countries of Chad, Niger and Benin Republics as well as Cameroon after Mr. President’s victory in 2015 elections led to the reconstitution of the multinational Joint Task Force of the Lake Chad Basin Commission and the expansion of its mandate to fight insecurity in the sub-region more concertedly. The other event was the AfDB election in 2015. President Buhari’s strong support for the nomination by his predecessor in Office of Dr. Akinwumi Adesina and campaigning for him, ultimately assured his victory.
At the UN level on the other hand, Nigeria’s diplomacy continues to offer some hope. When former Secretary General Banki Moon’s term had ended and a new Secretary-General was elected, he looked in the direction of Nigeria to choose a Deputy and our Amina Mohammed, former Minister of Environment became the darling of the foremost global institution.
At the 74th Session of United Nations General Assembly in 2019, Nigeria’s Permanent Representative at the UN was unanimously elected as the President of the UN General Assembly. It was a defining moment for the UN as the world was soon afflicted by a pandemic, COVID-19.
One virus holding the world hostage and imposing a new norm of relationships and collaborations for individuals, for nations and indeed for multilateralism. The impact of this pandemic on the world has been comprehensive and the dysfunctionality of the world was near complete. But the UN meetings dramatically continued through virtual sessions, ensuring that the global body remained relevant in the lives of humankind.
The innovation was miraculous and Nigeria’s Professor Tijjani Bande, as Permanent Representative and President of the General Assembly who led these efforts was appreciated for the roles he played in the world body and deservedly received the recognition and acknowledgement by the UN Secretary-General, Antonio Gutteres as that miracle of 2020.
The re-election of Dr. Adewumi as AfDB President in 2020 faced more herculean task as a superpower was bent on preventing his reelection. Despite pressure on President Buhari to replace him,
Mr. President instead, reinforced his faith and commitment in Dr. Adewumi’s candidacy and reached out to world leaders to canvas support. Mr. President’s adroit diplomacy paid off as Dr. Adewumi had a landslide victory.
When Nigeria expressed interest in fielding a candidate for the Position of Commissioner for Political Affairs, Peace and Security of the African Union, Nigeria’s adroit diplomacy came to play once again, when all ECOWAS countries stepped down for Nigeria’s candidate, who obtained the support of ALL the African Union member-countries to clinch the position on 6th February, 2021.
Finally, Nigeria hits the world, making waves on the nomination of former Finance Minister, Ngozi Okonjo-lweala, as WTO Director-General.
The switch of candidates by Nigeria was seen as a master-stroke that finally paid off earlier this week, when she got the endorsement to be the first African and first Lady to Head the World Trade Organisation.
Similarly, Nigeria saw the emergence of other notable Nigerians assuming top positions in international organisations. They include, Ambassador Bankole Adeoye, Commissioner, Political Affairs, Peace and Security, Professor Benedic Oramah, President, AFREXIM Bank,
Mohammed Barkindo, Secretary-General Organization of Petroleum Exporting Countries (OPEC). Others are Chief Chile Ebeo-Osuji, a Judge at the International Criminal Court, at The Hague, Dr. OloruntimiBadero, and the World’s First International Cardio-nephrologists.
The signing in August 2016, of a Memorandum of Understanding (MOU) with the UK Government on modalities for the return of Nigeria’s stolen assets in the UK. The establishment of a Global Forum for Asset Recovery (GFAR), hosted by the governments of the US and UK in December 2017, to focus on assisting Nigeria and three other countries to reclaim their stolen assets.
Nigeria joined the Open Government Partnership (OGP) in 2016 and developed a National Action Plan, which is already being implemented. In 201 6, Nigeria signed an Agreement on the identification and repatriation of Illicit Funds with the United Arab Emirates during President Buhari’s visit to that country.
The Federal Government under President Buhari has successfully engaged the governments of Switzerland, Jersey Island, United States, United Arab Emirates and Liechtenstein among others, in an effort to ensure the repatriation of Nigeria’s stolen assets. A total of US$622 million looted during the regime of former Military Head of State, Late General Sani Abacha were repatriated to Nigeria in two tranches in December 2017 and April 2020.
The first tranche ($322) is being disbursed as part of the Buhari’s Administration’s Social Investment Programme interventions, while the second tranche ($31 1) is being invested in the Presidential Infrastructure Development Fund (PIDF), managed by the Nigeria Sovereign Investment Authority (NSIA).
Perhaps the aforementioned developments and achievements have endeared him to recognitions of the international community, hence his designation by the African Union (AU) as Anti-Corruption Champion for 2018.
Nigeria’s progressive diplomatic leg-works within ECOWAS, first through support for the complicated peace process in Mali, to logistics support for practically all elections in the sub-region, to coordinating and providing leadership for good governance, accountability and fight against corruption as well as managing the efforts to contain the catastrophic consequences of COVID-19, earned Mr. President and Nigeria, recognition, respect and appreciation.
President Buhari’s interventions in the sub-region have helped restore and strengthen democracy in The Gambia and Guinea Bissau. He authorized the deployment of troops, fighter jets and warships to The Gambia during the impasse that followed the December 201 6 Presidential elections. In ECOWAS, Nigeria’s leadership continues to push for badly needed reforms that will make the organisation deliver its best results to the community citizens. Nigeria’s relentless support for peaceful and transparent elections in ECOWAS as well as some African countries is a testimony for regional and continental commitment to the protocol on good governance and democracy.
Again, President Buhari’s promotion of respect for constitutional term-limits in our sub-region resonates well. By honouring the former President of Niger, Mammadou ISSOUfOU,
through the naming of a street after him in Abuja, was obviously a demonstration of sub-regional leadership around an issue that has always brought divisions and pains to our citizens.
All of these change-factors, define the Buhari Administration in spite of the fact that our Foreign Policy objectives remain essentially the same. Methodology of approaches, style of leadership and personal drive by President Buhari, have earned him not only respect and admiration by his peers but have cumulatively brought honour and glories to Nigeria despite the continuity of Nigeria’s Foreign Policy. The priority of Nigeria’s Foreign Policy under the Buhari’s administration, remain unarguably, the national security and reduction of corruption through the re-engineering of the nation’s economy.
Efforts have continued to be deployed by Nigeria, ably led by her Chief Diplomat, President Buhari, to strengthen African institutions. So much efforts have been deployed to the MNJTF and the LCBC
especially in the aftermath of the demise of President Idriss Debyltno of Chad, to reinvigorate the Lake Chad Basin region and contain threats by ISWAP, Boko Haram and other terrorist organisations in the region. President Buhari’s personal diplomacy in crafting sub-regional actions are not in doubt. This remains a positive change in Nigeria’s diplomacy, without changing her Foreign Policy objectives.
Similarly, the Buhari Administration has had more focused engagements with the Nigerians in the Diaspora more than any previous administrations. Nigerians in the Diaspora are more knowledgeable today about developments at home and often offer imputs. Leadership has proven to be the single most important change-factor in Nigeria’s Foreign Policy gains and President Buhari’s personal diplomacy cannot is
the single most important asset and effective instrument in the pursuit of
Nigeria’s foreign policy goals and objectives.
I thank you for listening.
Prof. Ibrahim A. Gambari, CFR, OCORT, is the Chief of Staff to President Muhammadu Buhari.