Bennion - Chapt.1 Constitutional Law of Ghana

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com
Doc. No. 1962.001.003 Butterworths, 1962
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CONSTITUTIONAL LAW OF GHANA

Francis Bennion
PART I - THE REPUBLICAN CONSTITUTION
CHAPTER 1
CONSTITUTIONAL EVOLUTION
The Republic of Ghana lies midway along the Guinea coast of West Africa, being bounded on
three sides by former French territories and on the south by the Atlantic Ocean. To the west lies the
Ivory Coast Republic, to the north the Voltaic Republic (formerly Upper Volta) and to the east the
Republic of Togo. The territories of Ghana consist of those formerly comprised in the Gold Coast
Colony, Ashanti, the Northern Territories of the Gold Coast, and Togoland under United Kingdom
Trusteeship. The name Ghana was adopted when, on 6th March, 1957, the country became
independent of British rule. The name was taken from the ancient negro empire of Ghana in the
South-Western Soudan, from which a proportion of the inhabitants of present-day Ghana are
believed to derive their ancestry. Ghana became a republic within the Commonwealth on 1st July,
1960.
Although the republican constitution contains a number of original features and represents a
clean break with the past, it inevitably perpetuates by way of organic development much of the
former constitutional system. It cannot therefore be understood without reference to the growth of
the institutions of government which took place during the years preceding the emergence of
Ghana as an independent republic. The purpose of the present chapter is to trace briefly the course
of this development, beginning with the assumption of jurisdiction by the British Crown in 1821.1
The history of the four centuries preceding this event is one of great confusion and shifting of
populations, in which the tribal systems were being modified by wars and invasions among the
Africans themselves and also by the activities of traders from almost every European country. The
indigenous constitutional systems are a study in themselves and are beyond
1
For the earlier history, and the general background to the constitutional developments here discussed, see Claridge, A History of the
Gold Coast and Ashanti, London, 1915; Ward, A History of the Gold Coast, London, 1948; The Cambridge History of the British
Empire. For the later background see F. M. Bourret, Ghana—the Road to Independence, 1919-1957, London, 1960.
3
4 PART I.—The Republican Constitution
the scope of the present work. Our concern now is with a type
of constitutional law which, while it recognises indigenous
customs and has certain similarities with them, is in written
form and derives from institutions and modes of legislation
unknown to customary law. From this point of view the story
begins with the first attempts of the British to provide a
system of government in the Gold Coast. Before these were
made the British, like the Dutch, Danish and other Europeans,
were present merely as traders and missionaries. The British
administration, as it developed and as its boundaries were
gradually extended to the whole of the territory now known as
Ghana, had the effect of welding into one political unit
diverse ethnical groups who without its influence might well
have remained separate and would certainly not have been
subject to what is now the constitutional law of Ghana. The
account of constitutional development given here will be a
factual one, describing the changes that actually occurred
without going very deeply into the reasons for them, the
background conditions, or the controversies which have
surrounded them.
1. THE EARLY PERIOD OF BRITISH RULE, 1821-1874

From 1821 to 1874 the British possessions on the Gold
Coast were, apart from the period 1850 to 1866 (when they
were treated as a separate entity), under the control of the
Governor of Sierra Leone. His powers were, however, in
suspense from 1828 to 1843, when the administration was
carried on by a Committee of Merchants in London.
Before 1821 the government of the British trading forts and
settlements on the Gold Coast had been vested in the
Company of Merchants trading to Africa, as successors to the
Royal African Company of England.1 The most important
forts were those at Cape Coast, Dixcove, Accra (Fort James)
and Anomabu, and these were kept up by the Crown after
1821. Other forts and settlements, such as those at Winneba,
Wida and Apollonia were then abandoned.2 Interspersed with
the British forts there were at this time other fortified depots
belonging to the Dutch and the Danish, and used for the
protection of their trading activities on the Gold Coast. The
administration of the Company of Merchants
1
23 Geo. 2, c. 31; 25 Geo. 2. c. 40; 23 Geo. 3, c. 65.
2
Report from the Select Committee on Africa (Western Coast) 1865
(No. 412), p. 39.
CHAP. 1.—Constitutional Evolution
5
had been carried on under a Governor-in-Chief who, with the seven
Governors of the more important forts and the Accountant, formed an
administrative council. In all, about forty-five Europeans and four hundred
and fifty Africans were employed by the Company. 1 Since the slave trade
had become illegal for British subjects in 1807, 2 the Company of
Merchants had had neither the funds required for maintaining the British
forts nor any incentive to maintain them; and a government subsidy had
become necessary for that purpose. Allegations were made that this
subsidy was misused and that the Company was failing to prevent illicit
slave trading. Accordingly an Act was passed 3 by which on 3rd July, 1821,
the Company was dissolved and its forts and other possessions vested in
the Crown. The Crown was also given power to declare these possessions,
and any others on the West Coast of Africa between the latitudes of 20°
North and 20° South " which now do or at any time hereafter shall or may
belong to His Majesty " to be annexed to or made dependencies on the
Colony of Sierra Leone and made subject to its laws.
The Committee of Merchants

The power conferred by the new Act was exercised within a few months
when, by letters patent issued under the Great Seal on 17th October, 1821,
George IV ordered the existing and future possessions of the Crown on the
West Coast of Africa within the latitudes mentioned in the Act to be
annexed to and made dependencies on the Colony of Sierra Leone. The
Governor of Sierra Leone, Sir Charles McCarthy, arrived in Cape Coast on
28th March, 1822 to assume the government.* There followed a period of
war and confusion, in which McCarthy was killed in battle with the
Ashantis and which was not brought to a close until a peace treaty was
signed with the Ashantis in 1831 following their defeat at the battle of
Dodowa in 1826. In the meantime the British Government had handed
over the administration of the territories in 1828 to a Committee of
Merchants selected by the British Government. 8 Local administration was
carried on
1 2
Claridge. op. at., I, pp. 332-333. 47 Geo. 3, Sess. I, c. 36.
3 4
West Africa Act, 1821. Claridge, op. cit., I, p. 334.
5
The reason for this transfer was " the difficulty of maintaining troops in health in
that quarter and the enormous expense which would have been incurred in placing
the forts in a fit state for defence ": evidence given to House of Commons Select
Committee in 1834, cited in J. J. Crooks, Records relating to the Gold Coast
Settlements from 1750 to 1874, Dublin, 1923, p. 249.
by a President appointed by the Committee, assisted by a council of
merchants resident at Cape Coast Castle. An annual subsidy of £4,000 was
paid by the British Government. Although theoretically restricted to the
forts themselves, the powers thus vested in the Committee of Merchants
came to be used on a de facto basis in the neighbouring areas. This
development was largely due to the administrative and judicial abilities of
Captain George Maclean who was appointed President in 1830. By the
treaty with the Ashantis in 1831, under which they gave up any claim to
suzerainty over the coastal tribes, Maclean had secured the protection and
extension of trading activities and peace between Ashanti and the coastal
areas.1 In the more settled conditions which then prevailed, British justice
came to be administered among the inhabitants of these areas in a manner
which, in the words of Maclean himself, " has had the happiest effect in
maintaining peace, encouraging agriculture and commerce, and promoting
the civilization of the natives ". 2 He went on to add in perhaps exaggerated
terms: " Let but the local government deny or cease to administer e ven-
handed justice to the population for a single day, and the whole country
would again become a scene of warfare, rapine and oppression." The British
Government declined, however, to regularise this de facto jurisdiction until
pressed to do so by a Parliamentary Select Committee which reported in
1842. This Committee recommended that the Government of the British
forts upon the Gold Coast be resumed by the Crown, and that all
dependance on the Government of Sierra Leone should cease, that the forts
abandoned in 1828 when the government was handed over to the
Committee of Merchants should be reoccupied as helpful in suppressing the
slave trade, and that the irregular judicial jurisdiction de facto exercised by
Maclean and the magistrates at the forts " should be better defined and
understood ". This latter aim was to be achieved by means of agreements
with the local chiefs and by the appointment of a judicial officer who, in
administering justice to the African population, should follow the principles,
while not being restricted to the technicalities, of English law and should be
allowed a large discretion. The Select Committee expressed the view that
the relationship of the chiefs and their peoples to the British Crown should
be:
1
For the text of the treaty see Sarbah, Fanti National Constitution,
London, 1906, p. 153.
2
Cited Sarbah, op. cit., p. 95.
CHAP. 1.—Constitutional Evolution 7
" not the allegiance of subjects, to which we have no right to pretend,
and which it would entail an inconvenient responsibility to possess,
but the deference of weaker powers to a stronger and more
enlightened neighbour, whose protection and counsel they seek, and
to whom they are bound by certain definite obligations."1
Resumption of Crown Government

The recommendations of the Select Committee were acted upon, and in
1843 the Crown resumed the government. It did not immediately follow
the advice to sever the dependency on Sierra Leone and for a further seven
years the Gold Coast settlements were under the control of the Governor of
Sierra Leone. A Lieutenant-Governor was appointed for the Gold Coast
and Maclean was made Judicial Assessor and Stipendiary Magistrate to
carry out, in exercise of his powers as a justice of the peace, the functions
suggested for a " judicial officer " by the Select Committee. 2
The civil establishment was completed by a chaplain, a surgeon, a
secretary to the Lieutenant-Governor, a clerk to the Judicial Assessor, and
the Commandant at Accra.3 A Colonial Secretary was added in 1845. 4
British Settlements and Foreign Jurisdiction Acts

In 1843 two Acts were passed by the British Parliament which enabled
the administration of such territories as those on the Gold Coast to be
placed on a regular footing. The first of these Acts, the British Settlements
Act, 1843,5 enabled Orders in Council to be made providing for the
establishment of laws, institutions and ordinances for the peace, order and
good government of " Her Majesty's subjects and others " within the settle-
ments on the African coast. The power thus given could be
1
Report from the Select Comtmttee on the West Coast of Africa, August,
1842, pp. iv-vi.
2
The functions of the Judicial Assessor were exercised outside the forts
and settlements. " It is to be carefully noted that this external jurisdiction
was given distinct from the jurisdiction inside the forts, where Captain
Maclean and the other magistrates had the ordinary powers of magistrates ":
Brandford Griffith, A Note on the History of the British Courts in the Gold
Coast Colony, with a brief account of the Changes in the Constitution of the
Colony, Accra, 1936, p. 13.
3
Dispatch from Lord Stanley to Lieut.-Governor Hill, 16th December,
1843, given in Crooks, op. cit., p. 285.
1
Crooks, op. cit., p. 304.
5
6 & 7 Vict. c. 13; repealed and re-enacted by the British Settlements ct, 1887.
delegated by royal commissions or instructions to three or
more persons within a particular settlement. The second Act,
the Foreign Jurisdiction Act, 1843,1 authorised the exercise of
political powers acquired by agreement or usage in territories
which had not become part of Her Majesty's dominions by
cession or conquest. On 3rd September, 1844, an Order in
Council was made under these Acts requiring judicial
authorities in the Gold Coast, when exercising jurisdiction
among the indigenous inhabitants, to observe such of the local
customs as were compatible with the principles of the law of
England, and in default of such customs to proceed in all
things as nearly as may be according to the law of England. It
was also provided that native offenders might be brought for
trial and punished at Cape Coast Castle, or else taken to Sierra
Leone, in order to satisfy the requirements of s. 5 of the
Foreign Jurisdiction Act, 1843.2
The Bond of 1844
Commander H. W. Hill, the Lieutenant-Governor, lost no
time in reaching the sort of agreement with the local chiefs
that the Select Committee had envisaged and thus, on 6th
March, 1844, the famous Fanti Bond was signed. By this brief
document the chiefs acknowledged the power and jurisdiction
which had been de facto exercised in their territories adjacent
to the British forts and settlements, and declared that " the
first objects of law are the protection of individuals and of
property " and that human sacrifices, panyarring or the
kidnapping of hostages for debt, and other barbarous customs
" are abominations and contrary to law ". They agreed that
serious crimes should be tried by the Queen's judicial officers
sitting with the chiefs, " moulding the customs of the country
to the general principles of British law ".3
Constitution of 1850
The numbers of the local population which by 1846
acknowledged British jurisdiction amounted to not less than
275,000, scattered over a territory of about 6,000 square
miles.4 This was added to in 1850, when the Danish King
ceded the forts of
1
6 & 7 Vict. c. 94; repealed and re-enacted by the Foreign Jurisdiction
Act, 1890.
2
See Brandford Griffith, op. cit., pp. 12-13.
3
4
For the text of the Bond see Claridge, of. cit., I., p. 452.
Report of Lieut.-Gov. Winniett, 20th February, 1847, cited Crooks,
op. cit., p. 305.
CHAP. 1.—Constitutional Evolution
9
Christiansborg, Augustaborg Fredensborg, Kongensteen and
Prindsensteen, together with various houses and plantations,
to the British Crown for a payment of £10,000.* In the same
year the forts and settlements on the Gold Coast once again
ceased to be dependencies of the Colony of Sierra Leone, the
British Government belatedly following the advice of the
Select Committee of 1842. This marked a considerable
constitutional advance, with the Gold Coast being given its
own Governor and both a Legislative Council and an
Executive Council. Thus institutions were set up which, over
a period of a hundred and ten years, were to evolve into the
President, National Assembly and Cabinet of today. The
change was effected by a Royal Charter dated 24th January,
1850, and made under the British Settlements Act, and which
revoked the letters patent of 17th October, 1821.
The Legislative Council
The Legislative Council consisted of the Governor and at
least two other persons designated by Royal Instructions or
warrants. By an exercise of the powers of delegation
conferred by the Act, the Legislative Council was required to
make:
" all such laws, institutions and ordinances as may from
time to time be necessary for the peace, order and good
government of our subjects and others within the said
present or future forts and settlements in the Gold Coast
"
subject to rules and regulations made by Order in Council
and to the right of the Crown to disallow any such ordinances
in whole or in part, and with a saving for the future exercise
of legislative power by Act of Parliament or Order in
Council.
Royal Instructions issued at the time of the appointment of
Governor Hill on 1st April, 1851, designated as members of
the Legislative Council in addition to the Governor, the
Judicial Assessor, the Collector of Customs and two
merchants. In 1853 the Collector of Customs was replaced
by the officer holding the post of Colonial Secretary. 2 The
Instructions continued by laying down rules for the conduct
of the Legislative Council. The Governor was to preside, and
the quorum was to be three. Standing Orders were to be
established. No law was
1
Convention signed 17th August, 1850, and presented to Parliament
in 1851.
2
Royal Instructions, 12th February, 1853.
to be passed or question debated unless proposed by the
Governor, though other matters might be recorded in the
minutes with a statement of reasons by the member
concerned. Ordinances were to be styled " Ordinances enacted
by the Governor of our Forts and Settlements on the Gold
Coast, with the Advice and Consent of the Legislative
Council thereof " and were to be drawn up " in a simple and
compendious form, avoiding, as far as may be, all prolixity
and tautology ". The Governor was required to withhold
assent to any Ordinance which was repugnant to any Act of
Parliament or to the Royal Charter or Royal Instructions, or
which interfered with Christian worship, diminished the
public revenue, authorised money to be raised by lotteries,
permitted divorce, provided for a gift to the Governor,
prejudiced private property, taxed the trade or shipping of the
United Kingdom in a manner from which other traders would
be exempt, or subjected persons not of European birth or
descent to disabilities which were not imposed on Europeans.
Apart from Ordinances for raising the annual financial
supplies or otherwise providing for matters where delay
would cause serious injury or inconvenience, no Ordinance
was to come into effect until the Royal pleasure had been
made known.
The Executive Council
The Royal Charter of 1850 authorised the Governor to
summon an Executive Council to assist him in the
administration of the government. The Royal Instructions of
1851 provided that, in addition to the Governor, the Executive
Council was to consist only of the Judicial Assessor and the
Collector of Customs, the latter being replaced in 1853 by the
Colonial Secretary. Where additional advice was needed on a
particular matter extraordinary members could be co-opted by
the Governor. Again, rules were laid down for the conduct of
the Executive Council. The Governor was to preside and the
quorum was to be three. Except in trivial matters the
executive powers of the Governor were only to be exercised
by the advice and consent of the Executive Council, unless
the case was one of emergency, or unless consultation might
cause material prejudice to the Crown. This rule was,
however, qualified by a provision which enabled the
Governor to act in disregard of the opposition of the
Executive Council provided the matter was reported to the
Secretary of State in London. As with the Legislative
Council, no matter could be discussed unless it had been
proposed by the Governor, although other members
could require points they wished to make to be entered in the minutes.
The Royal Charter also empowered the Governor to make grants of
Crown land for public or private purposes, and to constitute and appoint j
udges, commissioners of oyer and terminer, justices of the peace and other
judicial officers, and remit punishments and grant pardons. By the Royal
Instructions he was required, to the utmost of his power, to:
" promote religion and education among the native inhabitants . . . and
that you do especially take care to protect them in their persons, and
in the free enjoyment of their possessions, and that you do by all
lawful means prevent and restrain all violence and injustice, which
may in any manner be practised or attempted against them, and that
you take such measures as may appear to you to be necessary for their
conversion to the Christian faith, and for their advancement in
civilisation."
Poll Tax Ordinance

Although the Gold Coast territories were thus provided with a system of
civil government it was still not clear how far it could be taken to extend to
the local population. The Act of 1843 under which the Royal Charter was
made was limited to the " forts and settlements " and this limitation of
course extended to the Charter, although its effect was uncertain. The
Bond of 1844 contained no such agreement to yield legislative power as
would have formed the basis for an Order in Council under the Foreign
Jurisdiction Act. Since it soon became clear that the duties imposed on the
Governor in relation to the local inhabitants would require the expenditure
of greater sums than could be obtained from the abortive customs duties
and the British Government subsidies, the question of whether there was
power to tax the local inhabitants arose in an acute form. Whatever the
legal powers of the Governor and Legislative Council might be, it was
clear that the yield from any tax was likely to be small unless the co-
operation of the chiefs was obtained. Accordingly, on 19th April, 1852, the
Governor, Major S. J. Hill, summoned a meeting at Cape Coast Castle of "
the chiefs and headmen of the countries upon the Gold Coast under British
protection ". It was resolved:
1. That the meeting " constitutes itself into a Legislative Assembly,
with full powers to enact such laws as it shall seem fit for the better
government of those countries ".
12 PART I.—TJie Republican Constitution
2. That the meeting be recognized by Her Majesty's Govern-
ment as legally constituted, that it be called the Legislative
Assembly of native chiefs upon the Gold Coast, that it be
presided over, assembled, prorogued and adjourned by the
Governor, and that its enactments, when sanctioned and
approved of by the Governor, shall immediately become the
law of the country, subject to Her Majesty's approval, and "
be held binding upon the whole of the population being under
the protection of the British Government ". Having assumed
its law-making functions, the meeting went on to impose
upon the local inhabitants an annual poll tax of one shilling
sterling for the support of the Government. In consideration
of annual stipends to be paid by the Government, the chiefs
agreed to give " their cordial assistance and the full weight of
their authority " in supporting the measure. Taxes could be
sued for and obstruction was made an offence punishable by
imprisonment or fine, one half of any fine to be paid to the
local chief. The revenue was to be devoted to the public
good, the education of the people, the general improvement
and extension of the judicial system, and the improvement of
communications and medical services. The resolutions were
confirmed by the Governor. l
The poll tax was not a success. Until 1861, when it ceased
to be collected, the total gross yield was only £30,000, an
average of just over £3,000 a year, from which many
expenses had to be deducted. Nor did the Legislative
Assembly of native chiefs flourish; in fact it never met again. 2
Establishment of Supreme Court
By the Supreme Court Ordinance, a regular Ordinance
made in 1853 by the Governor with the advice and consent of
the Legislative Council, the Supreme Court of Her Majesty's
Forts and Settlements on the Gold Coast was established. It
was to be presided over by a Chief Justice, being an English,
Irish or Scottish barrister, and was given a civil and criminal
jurisdiction within the forts and settlements equivalent to that
of the Courts of Queen's Bench, Common Pleas and
Exchequer at Westminster. It was also given Admiralty
jurisdiction, but no jurisdiction in
1
Poll Tax Ordinance, 1852.
2
Clandge, op. cit., I, pp. 481, 495. A similar assembly met at Accra
shortly afterwards, which also imposed a poll tax; see the recital to the
Poll Tax Ordinance of 10th May, 1858.
1
equity. J. C. Fitzpatrick, the Judicial Assessor, was appointed by the
Ordinance as the first Chief Justice, holding both posts until his resignation
the following year.2 Provision was made for an appeal to the Governor and
Legislative Council from decisions of the Judicial Assessor.
In 1856 the areas in the Gold Coast under British protection were given
formal recognition, under the name of the " protected territories ", by an
Order in Council made under the British Settlements and Foreign
Jurisdiction Acts. This provided somewhat obscurely that, in respect of
civil or criminal matters (including in particular bankruptcy and
insolvency) arising within the protected territories and in regard to which
there was a de facto British jurisdiction exercisable " without the co-
operation of any native chief or authority ", the Supreme Court and
magistrates were to have the same jurisdiction as if the matter had arisen
within one of the forts. Where the jurisdiction could only be exercised with
the co-operation of a native chief or authority, as in the trial of cases under
the Bond of 1844, it remained within the province of the Judicial Assessor.
The Governor was given power to regulate by Ordinance the exercise of
this jurisdiction, provided that equitable regard was paid to local customs;
and rules were laid down for the administration of estates of deceased
persons within the protected territories. In the same year the Chief Justice
and the officer commanding the newly-created Gold Coast Corps were
made members of the Legislative Council, the membership being
completed by the Colonial Secretary. The same persons also formed the
Executive Council.3
First Attempt at Municipal Government

Sir Benjamin Pine made the first attempt to introduce municipal
government into the Gold Coast with an Ordinance passed on 10th May,
1858. This provided for the creation of municipalities governed by an
elected council headed by a mayor and having power to levy a rate in
substitution for the poll tax. The council was given powers in relation to
highways and markets and the creation of a police force, while the mayor
was required to hold a
1
This omission was remedied by an Ordinance passed on 3rd February.
1857.
2
The two posts continued to be held by the same person, and by 1865
had ceased to be distinct'. Brandford Griffith, op. at., p. 15.
3
Royal Instructions, 28th October, 1856.
court for hearing cases arising within the limits of the town. The Ordinance
was applied to Cape Coast and James Town, Accra, but was repealed on 7th
January, 1861. The preamble to the repealing Ordinance 1 stated:
" It has been found by experience that in the existing state of the
said towns and of those in Her Majesty's Settlements on the Gold
Coast generally, the satisfactory working of such elective municipal
institutions is impracticable, particularly in consequence of the co-
existence of the courts of the native kings or chiefs, from the want of a
sufficient proportion of educated residents able to understand and
willing to assist in their operation, from the impossibility of raising a
revenue. . . . The effect of the establishment of them has been to
produce serious quarrels, disturbances, and ill-will between different
classes of the people. . . . With a few individual exceptions, the people
of both towns earnestly desire that such municipalities should be
discontinued. ..."
In 1865, following the tumults of the Ashanti War of 1863, when three
Ashanti armies invaded the British protectorate and ravaged some of its
most fertile districts, the British Government, faced with the choice of
sending out a large army to assume control of Ashanti or vitually
abandoning the Gold Coast, appointed another Select Committee of the
House of Commons to advise on the matter. The Committee favoured the
latter alternative. After reporting that, apart from the original four forts and
the ceded Danish forts, a protectorate was assumed by the British over the
tribes between the forts and the kingdom of Ashanti, the limits of actual
British territory being " wholly indefinite and uncertain ', the Committee
observed that the assumption of further posts east of the Volta had been
recommended and that " the present policy inevitably leads to extension ".
They went on:
" The Dutch—the only other European power remaining on this
coast besides the English—hold forts intermixed with the English, and
interfering with their government. Negotiations have been entered
into, without result, for better mutual relations."2
The Committee recommended that the Gold Coast protectorate
x
2
No.
1 of 1861.
Report from the Select Committee on Africa (Western Coast), 26th
June, 1865 (No. 412), p. xi.
CHAP. 1.—Constitutional 15
Evolution
should only be retained " while the chiefs may be as speedily
as possible made to do without it ", and that in the meantime
the Gold Coast together with Lagos and Gambia should be
reunited under Sierra Leone, the development of the
steamship having greatly increased the speed of
communications since the previous Committee had advised
against such a union in 1842. All further extension of
territory or assumption of government in West Africa "
should be peremptorily prohibited and carefully prevented "l
The recommendations were soon acted upon. By a Com-
mission dated 19th February, 1866, the Charter of 1850 was
revoked and the Gold Coast, together with Sierra Leone,
Lagos and the Gambia, were united under " the Government
of our West Africa Settlements ". The existing Gold Coast
Ordinances were however preserved, as also was the
Legislative Council, although the Executive Council ceased
to exist. The permanent members of the Legislative Council
were to be the Administrator of the Government (who
replaced the Governor), the collector of customs (who
performed the duties of the Colonial Secretary) and the
officer acting as magistrate.2 The Supreme Court was also
abolished in 1866 and replaced by " the Court of Civil and
Criminal Justice " presided over by a chief magistrate. 3 The
Order in Council of 1856 remained unrevoked and the
Judicial Assessor and other magistrates continued to exercise
jurisdiction outside the forts. However, the policy of
restricting the extension of British territory led to a sharp
rebuke from the Colonial Office when, in September, 1865, a
notice was issued by the local Administration stating that all
territory within a cannon shot (or five miles) of each fort
belonged exclusively to Great Britain. 4
Departure of the Dutch
Difficulty continued to be caused to the British
administration by the existence on the Gold Coast of Dutch
forts and settlements intermingled with those of the British.
Since the Dutch declined to co-operate in the imposition of
customs duties this led in particular to the practical
impossibility of raising customs
1
The 1865 Report, p. xv. A frown was directed at the Judicial Assessor of the
time: " The judicial assessor does not fulfil the first intention of the office, assisting
the chiefs in administering justice, but supersedes their authority by decisions
according to his own sole judgment."
2
Royal Instructions, 20th February, 1866, para. 21.
3
Gold Coast Ordinance No. 7 of 1866.
4
Cited Crooks, op. tit., pp. 371, 374.
revenue, which otherwise would have been the most
convenient and productive form of taxation. In 1860 the
Dutch agreed to an exchange which would have transferred
their territories east of Cape Coast to the British, and the
British territories west of Cape Coast to the Dutch. Objections
raised by the local population under British protection in the
west to transferring their allegiance to the Dutch led to the
abandonment of the scheme. It was however revived and
carried through by a Convention signed on 5th March, 1867.
The transfers took place, but gave rise to much unrest and to
the formation of the Fanti Confederation in an attempt to
preserve the unity and security of the coastal tribes. The
Constitution of the Confederation, which was drawn up at
Mankesim in October and November, 1871, provided an
ambitious scheme for mutual defence and the development of
communications, education and other services. Legislative
powers (including powers of taxation) were also included.
The British administration, which had not been consulted,
reacted unfavourably, and the scheme came to nothing.1
The unrest following the exchange of territory having
convinced the Dutch that their position had become
untenable, a Convention was signed at the Hague on 25th
February, 1871, whereby the King of the Netherlands
transferred to the British Crown " all the rights of sovereignty,
jurisdiction and property which he possesses on the Coast of
Guinea ".2 No payment was made for the territorial
possessions, but a fair price was paid for the Dutch stores and
other movables.3 This new acquisition of territory conflicted
with the policy, still in force, of not extending British power
on the Gold Coast. In their instructions to the Governor of
Sierra Leone, who arrived to carry out the transfer in April,
1872, the British Government stated that their objects in
negotiating the treaty were " not the acquisition of territory or
the extension of British power, but the maintenance of tran-
quillity and the promotion of peaceful commerce on the Coast
".* It was ironical that the inclusion in the treaty of Elmina, to
which
1
See Claridge, op. cit., I, Ch. 32; for text of the Constitution see Sarbah,
Fanti National Constitution, London, 1906, pp. 199-209; see also Casely
Hayford, Gold Coast Native Institutions, London, 1903, pp. 182-193.
2
The Dutch territories included the castle and fort at Elmina and forts
at Axim, Dixcove, Sekondi, Shama and Butri—Claridge, op. cit., I, 630.
For text of the treaty see Crooks, op. cit., p. 393.
3
The Dutch received in return certain concessions in the island of
Sumatra.
4
Cited Claridge, op. cit., I, p. 627.
the Ashantis laid strong claim, was the principal cause of the
Sixth Ashanti War, which itself led to the taking over of the
entire coastal area by the British and the creation in 1874 of
the Gold Coast Colony.
Creation of Gold Coast Colony
The war began on 22nd January, 1873, when the mam
Ashanti army crossed the River Pra. It ended, after a
determined assault by Sir Garnet Wolseley and an army
reinforced by troops from England, with the defeat of the
Ashantis and the drawing up of the Treaty of Fomena on 13th
February, 1874, by which the Asantehene renounced his
claim to Elmina and all other coastal territories. 1 Having at
last achieved the position of sole European power on the
Gold Coast, and having, at considerable cost in life and
resources, at last brought about the decisive defeat of the
Ashantis, the British Government, disregarding those who
still pleaded for the abandonment of this troublesome region,
decided that further temporizing was impossible. By a Royal
Charter signed on 24th July, 1874, the Gold Coast and Lagos
were separated from Sierra Leone and together constituted a
separate colony under the title of the Gold Coast Colony.
2. BRITISH ASSUMPTION OF TERRITORIES, 1874-1914

During the period from 1874 to 1914 all the territories now
comprised in the Republic of Ghana came under the control
of the British Crown.
The Royal Charter of 24th July, 1874, issued under the
British Settlements Act, revoked the Commission of 19th
February, 1866, so far as it applied to the Gold Coast and
Lagos, and constituted these territories a separate colony
under the title of the Gold Coast Colony. In addition to
Lagos, which had been annexed by the British in 1861 so that
the slave-smuggling there could be suppressed, the territory
of the new colony was to comprise " all places, settlements
and territories which may at any time belong to us in Western
Africa " between 5° West and 2° East longitude. In providing
for a Governor, Legislative Council and Executive Council,
the Charter repeated with little
1
For text see Claridge, op. cit., II, p. 152. B
variation the terms of the Charter of 1850.x The powers of the
Legislative Council now, however, derived not merely from
the Charter, but also from the Colonial Laws Validity Act,
1865. This provided that no law made by the legislature of a
colony should be void or inoperative on the ground of
repugnancy to the common law or to any Act of the Imperial
Parliament which did not apply to the colony by express
words or necessary intendment. The Act also made it clear
that Royal Instructions to the Governor could not fetter his
power to assent to legislation, and gave to the colonial
legislature full power within its jurisdiction to alter the
constitution of the legislature and to establish, reconstitute
and abolish courts of justice.
The new Charter was proclaimed at Government House,
Cape Coast, on 11th September, 1874, and on that day the
former Administrator, George Strahan, assumed office as
Governor and Commander-in-Chief.2 On 19th March, 1877,
the seat of Government was moved from Cape Coast to
Accra, where it has remained.3 This move had been decided
on as far back as 1851, when Governor Hill obtained Lord
Grey's permission for it on a number of grounds. These
included the more central position of Accra in the British
protectorate as it then existed, the need to develop in the
eastern areas educational, judicial and other facilities (which
could be better done under the eye of the Governor), the need
to subdue the tribes in the Accra region, and the superiority of
Accra over Cape Coast "in a sanitary point of view ". 4
The first two Ordinances made by the new colony
prohibited slave-trading and declared all persons then held in
slavery to be free. This applied both to slaves held in captivity
by slave dealers and also to those treated as slaves under
customary law, though in the latter case freedom was only
conferred on persons born after 5th November, 1874.5
Re-establishment of Supreme Court
The Supreme Court of the Gold Coast was re-established by
1
See pp. 8 et seq. ante.
2
Despatch by Governor Strahan to the Earl of Carnavon, 11th
September, 1874 (Ghana National Archives, Accra).
3
Gold Coast Gazette, 31st March, 1877 (notice dated 8th March).
4
Despatch of 26th November, 1851 (Ghana National Archives, Accra).
Governor Hill remarked that Cape Coast was originally chosen only because
the Governor's personal accommodation was better there.
6
Gold Coast Slave-dealing Abolition Ordinance, 1874 (No. I); Gold Coast
Emancipation Ordinance, 1874 (No. 2).
the Supreme Court Ordinance, 1876, which constituted it the Supreme
Court of Judicature for the Gold Coast Colony " and for the Territories
thereto near or adjacent wherein Her Majesty may at any time before or
after the commencement of this Ordinance have acquired powers and
jurisdiction ". The court consisted of the Chief Justice and not more than
four puisne judges, and it was provided that the Full Court (which was to
consist of the Chief Justice and one or two puisne judges) should be a court
of appeal with sittings in Accra and Lagos. A Divisional Court of the
Supreme Court was required to sit in each of the three Provinces into
which the area of jurisdiction was divided. 1 The Supreme Court was given
the same jurisdiction, except for the Admiralty jurisdiction, as the recently-
created High Court of Justice in England, and was also authorised to
exercise the Lord Chancellor's powers of guardianship of infants and
lunatics. The Ordinance further provided that district commissioners were
to be ex officio Commissioners of the Supreme Court, each Commissioner
exercising the powers of a judge of the Supreme Court within his own
district as well as those of a bench of magistrates. A notable provision was
the duty imposed on the court to promote reconciliation of differences
among persons over whom it had jurisdiction, and to " encourage and
facilitate the settlement in an amicable way, and without recourse to
litigation, of matters in difference between them ". This duty extended not
only to civil disputes but criminal matters " not amounting to felony and
not aggravated in degree ". The Ordinance abolished the post of Judicial
Assessor and transferred to the Supreme Court the jurisdiction formerly
exercised by him in the Protectorate. 2 The Petitions of Right Ordinance,
1877 (No. 12) enabled claims against the Government to be pursued in the
Supreme Court. Provision for appeals from the Supreme Court to the Privy
Council was contained in an Order in Council also made in 1877. The
administration of justice in the native tribunals was regulated by the Gold
Coast Native Jurisdiction Ordinance, 1883 (No. 5) (which replaced No. 8
of 1878). This Ordinance constituted native tribunals in the areas to which
it was applied by proclamation. The tribunals consisted of the head chiefs
of
1
The Provinces came to be treated as established for general purposes,
and not merely for those of the Supreme Court.
2
For the application by the Ordinance of the rules of English law, and
the difficulties which arose over the relationship between them and local
customary law, see Chap. 10, post.
divisions, the chiefs of sub-divisions or villages, and their
respective councillors. They exercised both civil and criminal
jurisdiction. Land and succession cases could be tried, and
also personal suits in which " the debt, damage, or demand
does not exceed seven ounces of gold or twenty-five pounds
sterling ".1 Appeals lay to the Supreme Court. The Ordinance
also empowered divisional chiefs to make byelaws relating to
roads, water supply, fisheries, forests, mines and other
matters. This included power to suppress the worship of any
fetish " which it is pretended has power to protect offenders,
or to injure persons giving information of the commission of
offences ". Chiefs were also given certain ministerial powers
as " convervators of the peace " and agents for the local
administration of Ordinances. The Governor was enabled to
dismiss or suspend any chief who had abused his power or
was otherwise unfit for office. The Chiefs Ordinance, 1904
(No. 4), introduced the important principle of government
recognition of chiefs, which still applies today. 2 Where he was
satisfied that a chief had been installed or destooled in
accordance with customary law, the Governor was
empowered to give a certificate to that effect. The certificate
was conclusive in all courts. Although introduced merely as a
measure to facilitate proof of installation or destoolment, this
clearly gave the Government a powerful instrument of control
over chiefs, and in time it came to be used as such.
A civil police force was established by the Police
Ordinance, 1894, police duties having previously been carried
out mainly by military detachments. 3
Town Councils Ordinance, 1894
Another attempt was made to establish local government in
the townships with the enactment of the Town Councils
Ordinance, 1894 (No. 17).4 The Ordinance, which was applied
to Accra, Cape Coast and Sekondi, provided for four of the
eight members of each council to be nominated by the
Governor. The remainder were to be elected by voters owning
or occupying houses with
1
This language is still to be found in the law relating to local courts,
the successors to native tribunals, but the limit is now £G100' Courts
Act, 1960 (C.A. 9), s. 98 (1) (f).
2
See p. 178, post.
3
See W. H. Gillespie, The Gold Coast Police, 1844-1938, Accra, 1955.
The 1894 Ordinance was consolidated in 1921 and 1922, the 1922 version
(No. 10) forming the basis for the present Police Service Ordinance (Cap. 37).
4
The first attempt had been made in 1858; see p. 13, ante.
an annual value of £2 or more, but where the number of candidates was
insufficient the Governor could nominate qualified electors to make up the
number. The council was given various detailed functions and the general
function of doing " such acts as may be necessary for the conservancy of
the town and the preservation of the public health therein ". Power was
conferred to levy a house rate up to five per cent, of the annual value.
Persons using vehicles within the town limits were required to take out a
wheel licence on payment of an annual fee ranging from five shillings to
two pounds. Other sources of revenue included licences for spirits, auction
sales and dogs, and fines for various criminal offences.
Concessions Ordinance
Towards the end of the nineteenth century efforts were made by the
Gold Coast Government to deal with the growing problem of the
indiscriminate granting of land concessions to expatriates. An attempt in
1894 to do this by vesting all waste lands, forests and minerals in the
Crown aroused great opposition and was dropped. Even the less extreme
Public Lands Bill proved unacceptable, and indeed brought about the
formation of the Gold Coast Aborigines' Rights Protection Society, so the
Government contented themselves with the passage in 1900 of the
Concessions Ordinance (No. 14). This required details of all concessions
to be notified to the Supreme Court and published in the Gazette. Without
the leave of the court, no proceedings could be taken to enforce the
concession unless it had been certified as valid by the court, which had
power to modify its terms. In relation to mining, timber, rubber and other
products of the soil, the area of land which could be granted to any one
person or company was strictly limited. Expatriates could not engage in
mining without a licence issued by the Governor. A five per cent, duty was
imposed on all profits made from concessions. 1
Constitutional Adjustments
In 1886 a charter was granted to the Royal Niger Company, which took
over the administration of the British colony at Lagos. Letters Patent were
accordingly issued by which, on 13th January, 1886, Lagos ceased to form
part of the Gold Coast Colony. In
1
For criticisms of the effectiveness of the Concessions Ordinance (which in a
modified form is still in force) see Lord Hailev, An African Survey (1938 Edn.), p.
777.
the following year an Order in Council was made under the
Foreign Jurisdiction Act empowering the Gold Coast
Legislative Council to legislate for territories adjoining the
Colony which had been brought under British protection. 1
The first African member of the Legislative Council, John
Sarbah, was appointed in 1888.
By Royal Instructions issued on 11th March, 1895, it was
provided that apart from the Governor the Executive Council
should consist of the Lieutenant-Governor of the Colony (if
any), the senior officer in command of regular troops in the
Colony, and the Colonial Secretary, Attorney-General and
Treasurer, together with such additional persons as might be
appointed by royal authority. The ex officio members of the
Legislative Council were the same as for the Executive
Council, with the addition of the Chief Justice. 2 Provision was
made for the royal appointment of additional persons holding
offices in the Colony, who, together with the ex officio
members, were to be styled " official members ". In addition
provision was made for the royal appointment of persons not
holding offices, who were to be styled " unofficial members
".
Relations with Ashanti
The time was now drawing near for the British Government
to take a decisive step in the acquisition of territory. The
defeat of the Ashantis in 1874 had caused a temporary break-
up of the Ashanti Confederacy. It was largely a military
union, and military defeat robbed it of its main purpose.
However, the British still preferred to pursue a policy of non-
intervention and within a few years most of the states which
had thrown off allegiance to the Asantehene had rejoined the
Confederacy. While favouring non-intervention, the British
were prepared to extend their protection to those who wanted
it, and a number of tribes from Ashanti were brought within
the Colony, either by extension of its still undefined
boundaries or through the emigration of the people's
concerned. Things might have continued in this indecisive
fashion it the Colony had not been threatened with
encirclement by other European powers. On the Ivory Coast
the French were extending their influence inland following
the treaty with Gyaman
1
Order in Council of 29th December, 1887.
2
The Chief Justice ceased to be a member of the Legislative Council in
CHAP. 1,—Constitutional 23
Evolution
in 1888, while in 1885 the Germans established a settlement
in Togoland.
In 1890 the British offered the Asantehene a treaty under
which Ashanti would come under British protection, but this
was refused. In 1896, however, a force was sent out from
Britain and Kumasi was again occupied. The Asantehene,
Agyeman Prempeh (Kwaku Dua III), was exiled to the
Seychelles. Most of the chiefs of Ashanti accepted treaties of
protection offered by the British, and a British Resident was
appointed in Kumasi.1 Treaties of friendship and protection
were also made with the Kings of Dagomba (12th August,
1892) and Mamprusi (12th January, 1897), whose territories
lay to the north of Ashanti.2 In 1900 there occurred the
celebrated incident in which the Governor, Sir Frederic
Hodgson, demanded the Golden Stool while visiting Kumasi.
At the conclusion of the Seventh Ashanti War, which
immediately followed, the British Government decided to
temporize no longer. On 26th September, 1901, three Orders
in Council were made by which the Crown annexed Ashanti
and the territories to the south which had not previously been
brought within the Gold Coast Colony, and also declared a
protectorate over the Northern Territories. 3 The initial
decision to declare Ashanti merely a protectorate was varied
in favour of annexation on the entreaty of the Chief Justice,
Sir William Brandford Griffith.4
The Gold Coast Order in Council, 1901, which was made
under the royal prerogative, for the first time laid down the
geographical boundaries of the Colony and declared annexed
such of the territories included in the new boundaries as did
not already form part of His Majesty's dominions. The
annexed territories
1
The following treaties of friendship and protection made between
Queen Victoria and various Ashanti Kings are to be found in the National
Archives, Accra: Sefwi (18th February, 1887); Kwahu (5th May, 1888);
Attabubu (25th November, 1890); Juaben (10th February, 1896). A full
list of treaties made between the British and the local chiefs is given in
Appendix V to the Gold Coast Handbook of 1924.
2
These treaties are also kept in the National Archives.
3
A further Order in Council made on the same day validated legislation
made in accordance with a local law which had attempted to extend the
Colony to all areas in which de facto jurisdiction was exercised; see Brand-
ford Griffith, op. cit., pp. 21-23.
4
See The Far Horizon by Sir W. Brandford Griffith, Ilfracombe, pub.
A. H. Stockwell, 1951, pp. 176-180.
were made part and parcel of the Colony and all existing laws
were applied to them. The Order came into force on 1st
January, 1902, but was amended by the substitution of more
precise boundaries by the Gold Coast Boundaries Order in
Council, 1906.1
The Ashanti Order in Council, 1901, was also made under
the royal prerogative and recited that the territories of Ashanti
had been conquered by His Majesty's forces and that it was
expedient that they should be annexed. The Order declared
that they should form part of His Majesty's dominions and
should be known as Ashanti. The word " colony " was not
used but the effect of the Order, which came into force on 1st
January, 1902, was to give Ashanti the status of a Crown
colony. The administration of Ashanti was entrusted to a
Chief Commissioner acting under the direction of the
Governor of the Gold Coast, the latter being given power, on
his own initiative and without the advice of the Gold Coast
Legislative Council, to make Ordinances for the peace, order
and good government of Ashanti. Ordinances so made had to
be submitted to London for royal assent, disallowance or
other direction. The first Ordinance was the Ashanti
Administration Ordinance, 1902, which divided Ashanti into
four districts, set up a Chief Commissioner's Court and
district courts, regulated the functioning of native courts and
applied a number of Gold Coast Ordinances to Ashanti.
The Northern Territories Order in Council, 1901, was made
under the Foreign Jurisdiction Act and also came into force
on 1st January, 1902. It converted the area between the eighth
parallel (which formed the northern boundary of Ashanti) and
the French frontier into a protectorate to be known as the
Northern Territories of the Gold Coast. 2 From the standpoint
of administration the position of the Northern Territories was
identical to that of Ashanti—indeed the wording of the two
Orders in Council after the opening paragraphs was identical.
The Northern Territories Administration Ordinance, 1902,
also followed the same lines as that made for Ashanti.
The Ashanti Order in Council, 1906, and the Northern
Territories Order in Council, 1906, adjusted the boundary
between Ashanti and the Northern Territories, bringing into
Ashanti and annexing to the Crown certain areas to the north
of the eighth
1
This came into force on 1st January, 1907, and was not subsequently
amended.
2
The Northern Territories were not annexed until 1957; see p. 61, post.
CHAP. 1.—Constitutional Evolution 2r>
parallel. They also modified in other respects the boundaries of Ashanti and
the Northern Territories.
Occupation of Togoland
Within a few days after the outbreak of the First World War on 4th
August, 1914, Gold Coast forces invaded the neighbouring German colony
of Togoland and brought about its surrender before the month was out.
This operation, carried through with the assistance of French troops from
Dahomey, was completed at a cost to Gold Coast funds of approximately
£60,000.1 The main force employed was the Gold Coast Regiment, which
had been created in 1901. In that year the colonial military forces in West
Africa were amalgamated to form the West African Frontier Force, and the
former Gold Coast Constabulary was made a unit of the new Force under
the name of the Gold Coast Regiment. 2 The word Royal was added to the
name of the Force in 1929. 3
Pending the making of final arrangements for the future of Togoland at
the end of the war, the British and French agreed an interim boundary line
and established, provisional governments to administer their respective
territories.4 The British administration continued in one form or another
until Ghana became independent in 1957. The occupation of Togoland
marked the close of the period of British territorial expansion in the Gold
Coast. No further territories were acquired, and the Colony and its
dependencies settled down to a long period of colonial government.
3. COLONIAL GOVERNMENT, 1914-1945

Sir Hugh Clifford was appointed Governor of the Colony5 on 26th
December, 1912. He immediately determined to make himself familiar
with the land and its people, and spent much
l
Leg. Co. Deb. (1914-15). 6.
2
Gold Coast Handbook (1924), p. 350. For the earlier history of the Gold
Coast military forces see ibid., pp. 349-350.
3
Ordinance No. 25 of 1929.
4
Leg. Co. Deb. (1914-15), 5. For the later arrangements, made under
the auspices of the League of Nations, see p. 28, post.
5
In the remainder of this chapter " the Colony " will be used to indicate
the Gold Coast Colony proper, and " the Gold Coast " to indicate the
Colony plus its dependencies of Ashanti, Northern Territories and Togo-
land.
time in his early days travelling all over the Colony and interviewing chiefs
and others. He found that the great development of the cocoa-producing
industry since the turn of the century was causing important social changes.
In an address to the Legislative Council, he said:
" It is impossible for any thinking person to travel throughout the
Gold Coast today and to examine the affairs of the Colony with any
measure of sympathy without being struck with the tremendous social
revolution which is in progress in our midst. This has been brought
about by the phenomenal development of the cocoa industry which has
been carried out by the natives themselves and which has brought with
it all sorts of luxuries and has placed all sorts of things, never dreamed
of by their fore-fathers, within the reach of the poorest among us." 1
Clifford drew the conclusion that constitutional changes were called for,
and that the administration should have at its command a much larger
measure of advice from far more varied sources than was hitherto available.
This did not mean that there was to be any relaxation of the system of
Government control:
" His Majesty's Government holds strongly, and I personally fully
share the opinion, that the present stage of peaceful development of
the Gold Coast still requires the maintenance of the Crown Colony
system of government, which is of a paternal rather than of a
democratic character."2
Clifford according!}' made representations to the Secretary of State for the
Colonies requesting an enlargement of the Legislative Council, which then
consisted of five official members and four unofficial members. The
official members were the Governor himself and the Colonial Secretary, the
Attorney-General, the Treasurer and the Principal Medical Officer. The
unofficial members consisted of two Europeans respectively representing
the merchants and the mining industry, and two Africans. One of these was
T. Hutton-Mills, who represented the educated classes in the Colony, and
the other was E. Mate Kole, the Konor of Eastern Krobo, who represented
the chiefs and people of the Colony.3 The British Government accepted
Clifford's view and the next
!Leg. Co. Deb. (1916-17). 16.

2
Leg. Co. Deb. (1916-17), 19.
3
Ibid., 16-17.
step in constitutional advance was taken. On 25th September, 1916, the
existing Constitution, which was established by the Letters Patent of 13th
January, 1886, as amplified by Royal Instructions issued on the same date
and Additional Instructions issued on subsequent dates, was revoked. 1 The
new Letters Patent and Royal Instructions, which were dated 20th
September, 1916, and came into force five days later, effected little
alteration except the enlargement of the Legislative Council. The member-
ship of this was increased from nine to twenty-two. The official members
added were the Secretary for Native Affairs (native affairs being in
Clifford's opinion the most important matters which should engage the
attention of the Government), the Comptroller of Customs, the Director of
Public Works and the General Manager of Railways (three technical
officers whose advice was needed), and the three Provincial
Commissioners, as " impartial spokesmen of the Provinces ". On the
unofficial side a third European, an official of the Bank of British West
Africa, was added to represent the general European interest. Also added
were three paramount chiefs drawn from different parts of the Colony.
These were Nana Ofori Atta (the Omanhene of Akim Abuakwa), Nana
Amonoo V (the Omanhene of Anamabu) and Awame Sri II (the Fia of
Awuna Ga), who were chosen to represent the peoples speaking Twi,
Fanti, and Ewe respectively. Finally E. J. P. Brown and J. E. Casely
Hayford were added as unofficial members to speak for the political
interests of the Central Province and the Western Province respect ively. At
the first meeting of the new council the Governor said that the selection
had been made " with a single aim, namely to obtain the best spokesmen ".
He added:
" There has been no attempt to pack this Council with Government
partisans. On the contrary we desire to have on it men who will freely
represent to us the feelings, wishes and needs of the communities
they are appointed to represent; and we are welcoming among us
today so many new members, in order that
1
During the period of British rule in Ghana important constitutional changes
were always made by revoking the existing Constitution, embodied in Letters Patent
or an Order in Council as amplified by Royal Instructions, and substituting a new
one. Thus in form the continuity of institutions such as the Governorship and the
Legislative Council was broken at fairly frequent intervals. There was also the
disadvantage that the detailed changes made were difficult to distinguish. The
procedure was followed throughout the British Empire. For an explanation of it in
detail see Wight, British Colonial Constitutions, 1947, Oxford, pp. 94 el seq.
28 PART I.- The Republican Constitution
the range of advice at the disposal of the Government
may be largely extended."1
Clifford regarded this enlargement of the Legislative
Council as the most important local event that occurred
during his term of office as Governor.2 He was succeeded on
1st September, 1919, by Sir Gordon Guggisberg, who
remained in office until 1927 and introduced many notable
reforms. In the sphere of constitutional law the most
important development took place in 1926, when provincial
councils were established in the Colony and a new
Constitution came into force. Guggisberg also introduced
important changes in native administration.
The Togoland Mandate
During this period the British occupation of the western part
of the former German colony of Togoland was regularised. In
the peace treaty signed at Versailles on 28th June, 1919,
Germany renounced all rights over Togoland in favour of the
Allied powers.3 A fortnight later, on 10th July, 1919, a
Franco-British Declaration laid down in detail the frontier
between the two divisions of Togoland and on 20th July,
1922, a mandate to administer the part of Togoland lying to
the west of this frontier was conferred upon the British Crown
under Article 22 of the Covenant of the League of Nations.4
Since its capture in 1914, laws had been made for the British
sphere of Togoland by proclamation. Until 1920 these
proclamations were made by the officer commanding the
British forces in Togoland; thereafter they were made by the
Governor of the Gold Coast. After the British Sphere of
Togoland Order in Council, 1923, came into operation laws
were made by Ordinance as in the case of the other
dependencies. The first of these was the Administration
Ordinance. The British sphere of Togoland was divided into
two sections, of which the northern was administered as part
of the Northern Territories Protectorate and the southern as
part of the Colony, this being expressly permitted by Article 9
of the Mandate. Although the Franco-British boundary was so
drawn as to reunite tribes in the north
J
Leg. Co. Deb. (1916-17), 18.
2
Leg. Co. Deb. (1918-19), 55.
3
Laws of the Gold Coast (1936), IV, p. 105.
4
The Mandate and Declaration are set out in Laivs of the Gold Coast
(1936), IV, pp. 88 et seq. and also on pp. 472 et seq. of the Gold Coast Band-
book, 1924. The boundary was modified in 1929; see p. 128, post. For
Article 22 of the Covenant see Laws of the Gold Coast (1936), IV, p. 105.
who had been split between the Northern Territories and German Togoland,
in the south it had the effect of dividing the Ewes into separate
communities—a fact which has caused discontent down to the present day-
Attempt to improve Municipal Government
A committee was set up by Guggisberg in 1921 to consider and report
upon the organisation of municipal government in the Colony. They found
that the town councils in Accra, Sekondi and Cape Coast set up under the
1894 Ordinance1 had fulfilled the purposes for which they were created but
were hampered by lack of funds. 2 Complaints were made against the
Ordinance because it imposed direct taxation (although feeling against this
was diminishing) and because the president of each council (who was
nominated by the Governor) had a casting vote which gave the
Government a majority and turned the town councils into a branch of the
Government. The Municipal Corporations Ordinance, 1924, which resulted
from the committee's report, was designed to give autonomy to the
townships, and the councillors nominated by the Government were to be
limited to one-third of the total. Powers of direct taxation were not
however reduced; on the contrary the maximum rate was doubled to
become one-fifth of the annual value of premises. This proved the undoing
of the measure. When it was proposed to apply it to Accra in 1925 a storm
of protest was aroused, notwithstanding that it had been supported by the
African members of the Legislative Council representing Accra, Sekondi
and Cape Coast. These towns therefore remained under the 1894
Ordinance, and the 1924 Ordinance was never applied. Guggisberg
described this as " the only real disappointment which 1 have had as your
Governor ". 3 It interfered to some extent with his plans for a new, partly-
elective, Legislative Council and these had to be modified slightly.
Guggisberg had formed the view, in pursuit of the policy of indirect
rule, that the native institutions required strengthening. To this end several
attempts (which finally succeeded) were made
1
See p. 20, ante.
2
Leg. Co. Deb. (1924-25), 261.
s
Review of the Events of 1920-26 and the Prospects of 1927-28. Accra. 1927, p. 14. '
30 PART [.-—The Republican Constitution
to pass a new Native Administration Ordinance. 1 Another step in this
direction was the creation of Provincial Councils. Guggis-berg saw these
as:
"... the breakwaters defending our native constitutions, institutions and
customs against the disintegrating waves of western civilization. They
are the chief means by which the nationality of the Africans of the
Gold Coast will be built up out of the many scattered tribes. . . . "~
The Provincial Councils were created by the instrument which provided
for an enlarged, partly-elected Legislative Council. This was the Gold
Coast Colony (Legislative Council) Order in Council, 1925, which was
made on 8th April, 1925, and came into force on 15th April in the
following year. 3 It marked a considerable advance in that it gave the
Colony elected representation for the first time. The new Legislative
Council consisted of the Governor, together with fifteen official and
fourteen unofficial members. The official members were divided into ex
officio members, of whom there were thirteen, and nominated official
members. The ex officio members were:
the five senior members of the Executive Council;
the Comptroller of Customs;
the Director of Public Works;
the General Manager of the Railway;
the Commissioners of the three Provinces;
the Surveyor-General; and
the Director of Education.
The unofficial members consisted of the following:
three provincial members elected by the Eastern Provincial
Council; two provincial members elected by the Central Provincial
Council; one provincial member elected by the Western Provincial
Council; three municipal members elected by the voters of Accra,
Cape Coast and Sekondi respectively; a European mercantile
member elected by representatives
of firms belonging to a recognised chamber of commerce;
1
See p. 32, post.
2
Review of the Events of 1920-26 and the Prospects of 1927-28, p. 23.
3
Proclamation No. 3 of 1926.
a European mining member elected by the Gold Coast
Chamber of Mines; and three Europeans
nominated by the Governor.
The Provincial Councils were established by s. 15 of the Order in
Council, which provided that each Council was to consist of the persons
who were recognised by the Governor as head chiefs (that is paramount
chiefs) and who had their headquarters within the Province. Apart from
their elective functions, the Councils were to have such other functions as
might be conferred by Ordinance. In addition to these statutory functions:
"... the Provincial Councils fulfil three very valuable objects: they
give the head chiefs and their Councillors the opportunity of uniting
for the preservation of their national institutions, of consulting
together on subjects to the common welfare of their respective
peoples, and, finally, of examining and advising Government on any
proposed legislation affecting the people."1
The Eastern and Central Provincial Councils duly met and elected their
representatives to the Legislative Council, but the Western Province
proved a disappointment to the Governor. The Council there refused to
elect a representative, the gap being filled by the Governor's nomination of
Nana Ofori Atta, who would otherwise have lost his seat. Difficulty also
arose from the unexpected opposition to the application of the Municipal
Councils Ordinance. The Order in Council originally provided that a
municipal member was only to be elected if the new Ordinance had been
applied to his township; otherwise he was to be nominated by the
Governor. This meant that the first municipal members had to be
nominated; but the restriction was shortly afterwards removed by an
amending Order. 2
The constitutional changes were completed by the issue on 23rd May,
1925, of new Letters Patent and Royal Instructions, which revoked the
1916 Constitution. Apart from alterations made necessary by the new
provisions for the Legislative Council, these made no change in the
previous position.
1
Guggisberg, Review of the Events of 1920-26, etc., p. 15. The Provincial
Councils came to play an important role as a link between the Government
and the rural population. They frequently met m j o i n t session, ami a
standing committee of the Joint Provincial Councils was later established.
In 1944 it consisted of twelve paramount chiefs drawn from the three
councils (Leg. Co. Deb. (1944, No. 2), 49) and was formally recognized bv
s. 29 of the Native Authority (Colony) Ordinance. 1944 (No. 21).
2
The Gold Coast Colony (Legislative Council) Order in Council, 1927.
Native Administration Ordinance
In 1927, shortly before the end of Governor Guggisberg's tenure of
office, the Native Administration Ordinance was passed. This was a
comprehensive measure, consolidating the Native Jurisdiction Ordinance,
1883, and later Ordinances affecting chieftaincy, but also making a number
of important changes. Similar Bills had been introduced into the Legislative
Council by the Government in 1919 and 1922, but had been withdrawn
owing to strong opposition from the unofficial members. The 1927 Bill was
drawn up at meetings of paramount chiefs in 1925 and 1926 and was
introduced as an unofficial member's Bill by Nana Ofori Atta. The
Ordinance contained detailed provisions as to the election and destoolment
of chiefs and the jurisdiction of native tribunals. It protected the office of
chieftaincy by rendering it an offence to undermine or usurp the authority of
a chief. It restored the position of the state councils and made clear their
authority (to the exclusion of the Supreme Court) to determine
constitutional disputes affecting chieftaincy. The Governor's power to
depose a chief for misconduct was not reproduced, and the provisions as to
recognition of installation and destoolment were modified. The Ordinance
also laid down additional functions for the new Provincial Councils, which
mainly concerned the settlement of inter-state disputes. The power
conferred on the paramount chiefs to make byelaws was supplemented in
1931 by an amendment which enabled stool treasuries to be established, and
expenditure from stool revenues to be controlled, by means of such
byelaws.1 The way was thus open for what Lord Hailey called " the most
essential feature in indirect rule ", 2 but few states established treasuries and,
in the absence of any power of taxation, income would in any case have
remained irregular. Such power was at last given by the Native
Administration Treasuries Ordinance, 1939 (No. 16), which also enabled
Provincial Commissioners to order the establishment of treasuries and in
default gave the Governor power to establish them himself and to control
their management.
Judicial Reforms
A step towards unification of the administration of the Colony and its
dependencies was taken in 1935, when for the first time
1
-An African Survey (1938 Edn.), p. 471
it became possible to legislate for the Colony, Ashanti and the Northern
Territories by one Ordinance. 1 This did not alter the position under which
legislation for the Colony required the advice and consent of the
Legislative Council, whereas the Governor alone could legislate for the
dependencies. One of the first laws to be made under this useful provision
was a re-enactment of the Courts Ordinance of 1876, which was thus
extended to the whole of the Gold Coast.2 A number of changes were
made in accordance with the Government's new policy that:
" as far as it is consistent with financial needs, justice should be
administered by qualified lawyers, and it is only when those qualified
lawyers cannot be found that it should be administered by those not
qualified."3
District commissioners' courts were replaced by magistrates' courts, the
magistrates being lawyers where possible. District magistrates and district
commissioners ceased to form part of the Supreme Court. The judges of
the Supreme Courts of Nigeria, Sierra Leone and the Gambia were made
ex officio judges of the Gold Coast Supreme Court.
Improved facilities for appeals from the Supreme Court came into being
with the establishment in 1928 of the West African Court of Appeal. This
meant that such appeals did not have to go direct to the Privy Council in
London, although the Privy Council was not removed as a final appeal
tribunal. The West African Court of Appeal consisted of the judges of the
Gold Coast Supreme Court and of the other superior courts in the British
colonies and protectorates in West Africa from which appeals lay.
Jurisdiction was left to be regulated by the law of the individual territories,
which also had to bear the expenses of the court.4 Appeals to the Privy
Council were dealt with by the West African (Appeal to Privy Council)
Order in Council, 1930,B which gave an appeal as of right where the
matter in dispute was valued at £500 or more, and an appeal by leave of
the court below in other cases of general or public importance.
1
The Gold Coast Ordinances Order in Council, 1934, which came into
force on 1st January, 1935.
2
Courts Ordinance, 1935 (No. 7).
3
Leg. Co. Deb. (1935), 29.
4
West African Court of Appeal Orders in Council, 1928-35, Consolidated
(Laws of the Gold Coast (1936), IV, p. 190). In the Gold Coast jurisdiction
was regulated by the West African Court of Appeal Ordinance, 1935
(No. 11); see Laws of the Gold Coast (1936). I, p. 231.
5
Laws of the Gold Coast (1936), IV, p. 232.
Law of Sedition
In 1934 a change in the law governing sedition aroused
considerable opposition. Sedition was dealt with by the
Criminal Code, a comprehensive collection of penal
provisions which displaced the common law (although largely
reproducing its effect) and which had been in force since
1892. It did not prohibit the importation or possession of
seditious matter, and the Government became alarmed when,
in the early 1930s, literature began to be imported into the
Gold Coast which advocated the overthrow of British rule.1
The Bill to close these loopholes aroused protests from the
African unofficial members. They did not object to being
governed by the same law as prevailed in the United
Kingdom, but mere possession of seditious matter was not
there an offence and on this ground the opposition centred.
Sir Ofori Atta (as he had by then become) said:
" If I am intelligent enough to read a newspaper which is
not good and I send it to, say, my brother the Omanhene of
Winneba for him to be allured by it and I am caught,
then, I have done something. But if I merely have it in
my possession without making use of it, why should I be
subject to the trouble and torment of going to court to
defend myself? "2
The African unofficial members voted against the Bill, but
it became law as the Criminal Code (Amendment) Ordinance,
1934 (No. 21). This was one of the rare occasions when
legislation was forced through by the Government against the
unanimous opposition of the African members.3
Restoration of the Asantehene
In the following year new constitutional provisions came
into force for Ashanti and the Northern Territories. The
Orders in Council of 1901 and 1906, together with the
accompanying Royal Instructions, were revoked and replaced
by new provisions.4 These made little change, although the
Executive Council for the Colony was deemed also to be the
Executive Council for the two dependencies, and was
required to be consulted by the Governor when enacting
legislation. By another instrument the Chief
1
Gold Coast Gazelle, 21st February. 1934.
2
Leg. Co. Deb. (1934), 145.
3
Another, which occurred at the same time, concerned the Waterworks
Ordinance, 1934 (No. 20): Leg. Co. Deb. (1934), 113.
4
Ashanti Order in Council, 1934, and Royal Instructions; Northern
Territories Order in Council, 1934, and Royal Instructions,
Evolution
Commissioners for Ashanti and the Northern Territories were
added to the Executive Council. 1 The new provisions came
into force on 1st January, 1935, and coincided with the
restoration of the Ashanti Confederacy and the designation of
Osei Agyeman Prempeh II as the first Asantehene under the
British Government, which took place on the last day of the
month.2 At the same time Native Authority and Native
Courts Ordinances were passed for Ashanti, 3 and the Ashanti
Confederacy Council was reconstituted. 4 A Native Authority
Ordinance had been passed for the Northern Territories in
1932,5 and a Native Courts Ordinance was passed in 19356.
A Native Administration Ordinance had also been passed for
the southern section of British Togoland in 1932. 7
Developments during the Second World War
Constitutional development did not cease during the
Second World War. Soon after his appointment as Governor
in November, 1941, Sir Alan Burns suggested to the
Colonial Office that the time had come for the appointment
of Africans to the Executive Council. Accordingly, in
October, 1942, Sir Ofori Atta and Mr. K. A. Korsah8 were
appointed for three-year terms as unofficial members of the
Executive Council.9 Self-government for the municipalities
at last arrived with the enactment in the years 1943-1945 of
separate Town Council Ordinances for Accra, Kumasi, Cape
Coast and Sekondi-Takoradi.10 These introduced elected
majorities on the town councils and provided for universal
adult suffrage. Like Guggisberg before him, Sir Alan Burns
was, as he told the Legislative Council, " very keen on the
establishment of Town Councils ", as he considered that " the
experience to be gained by electors and members in Town
Councils where there is an elected majority, and in Native
Administrations, is the best training for self-government on a
larger scale".11 Like
'Additional Instructions dated 23rd November, 1934. By the Gold Coast Colony
(Legislative Council) Amendment Order in Council, 1934, the two Chief
Commissioners were excluded from the Legislative Council.
2
See the speech of the Governor at Kumasi, Gold Coast Gazette, 31st
January, 1935.
3
Ordinances Nos. 1 and 2 of 1935.
4
Ashanti Confederacy Council Order 1935 (Order No. 1).
6
No. 2 of 1932. "No. 31 of 1935. 'No. 1 of 1932.
8
Now Sir Arku Korsah, Chief Justice of Ghana.
9
Gold Coast Gazette, 3rd October, 1942.
10
No. 18 of 1943 (Kumasi); No. 26 of 1943 (Accra); No. 18 of 1944 (Cape
Coast); No. 29 of 1945 (Sekondi-Takoradi).
"Leg. Co. Deb. (1944, No. 2), 81.
,SH PART I.—The Republican Constitution
Guggisberg also, he was disappointed by the people's response. Out of
14,000 potential voters in Kumasi, only 828 troubled to vote in the first
municipal election, and figures elsewhere were similar. 1
Reforms were also needed in native administration. The 1927 Ordinance
had been found defective, particularly in regard to native courts, and in
1944, acting on the report of the Blackall Committee, the Government
secured the passing of the Native Courts (Colony) Ordinance (No. 22). This
marked a revolutionary change. Instead of the old customary law tribunals,
consisting of the chief sitting with his sub-chiefs, headmen, linguists and
councillors, the Governor was given power to set up entirely new courts
and to appoint their members as he thought fit. The new courts were
divided into four grades, their jurisdiction varying accordingly. No court
could be established unless the native authority's finances were sufficient to
provide for the remuneration of the members of the court and its registrar.
A Judicial Adviser was appointed to act as " guide, philosopher and friend "
to the new courts and to review their decisions. 2 A new land court was
created as a division of the Supreme Court to hear appeals from native court
decisions in land cases. 3
A large part of the Native Administration Ordinance being thus rendered
obsolete, the remainder of it was replaced by the Native Authority (Colony)
Ordinance, 1944 (No. 21), which also made considerable changes. The
Governor was empowered to appoint one or more chiefs, native councils or
other persons as a native authority for any area and to order it to be
subordinate to any other native authority. The native authorities were given
power to exercise a large number of functions usually regarded as falling
within the province of local government, with default powers being given to
the Provincial Commissioner. In an attempt to reduce stool disputes, the
Governor was empowered to exclude persons from their tribal area. State
Councils were allowed to retain their power to deal with stool disputes and,
subject to the control of the Governor, were authorised to declare and
modify rules of customary law. The sources of revenue of native authorities
(including rates and also fees from the new native courts) were defined, and
finance committees were required to be
1
Leg. Co. Deb. (1944, No. 2), 82.
2
Ibid., 68.
J
1
set up. Power was given to establish native authority police. In form, if
not intention, the two Ordinances marked the end of tribal administration
under the old processes of customary law. In 1943 income tax was
introduced into the Gold Coast for the first time. The people's objection to
direct taxation was inveterate and, as happened when an attempt was made
in 1931 to bring in the tax, the Bill was opposed in the Legislative Council
on the ground that there should be no taxation without full electoral
representation. Conditions had altered however, and major constitutional
changes wete in the air. Representations for constitutional reform made by
the Joint Provincial Council had been forwarded to London with the
Governor's approval, and the Secretary of State was shortly to visit the
Gold Coast to discuss the matter. In this atmosphere the opposition was not
pressed and the Bill became law as the Income Tax Ordinance, 1943 (No.
27). Thus another source of revenue was added, but in importance it has
not approached import and export duties, always the country's financial
standby.
4. ATTAINING NATIONHOOD, 1946-1960
The Colony and Ashanti achieved representative government 2 with the
coming into force on 29th March, 1946, of the Burns Constitution, the first
of five Constitutions that were to follow in rapid succession during the
ensuing fifteen years. 3 By this the operation of the Legislative Council
was extended to Ashanti, the elected members were increased from eleven
to eighteen, the ex officio members were reduced from thirteen to six, and
the nominated members were increased from two to six. The elected
members therefore had a majority of six over the official and nominated
members.4 This did not of course mean that the
1
The Governor promised to give annual grants based on the amount
raised in rates, and the amount spent on general development, by each
native authority (Leg. Co. Deb. (1944, No. 2), 56).
2
Representative government is regarded as existing when a colony has
a legislative body of which at least one-half of the members are elected by
inhabitants of the colony: Colonial Laws Validity Act, 1865, s. 1. The
Gold Coast was the first British territory in Africa to have an elected
majority of Africans in its legislature.
3
The Orders in Council, Letters Patent and Royal Instructions making
up the new Constitution were published in a supplement to the Gold Coast
Gazette on 11th March, 1946.
4
Gold Coast Colony and Ashanti (Legislative Council) Order in Council,
1946, ss. 4 and 5. The Governor was President of the Council but had no
vote.
38 PART I.- -The Republican Constitution
elected members could prevent the passage of legislation
against the wish of the Governor. The latter was given
reserved powers which enabled him, if he considered it
expedient to do so in the interests of public order, public faith
or good government, to declare effective any Bill or motion
which had failed to pass the Legislative Council. Any
member who objected to the declaration could require his
objection to be forwarded to the Secretary of State for the
Colonies, who had power to revoke the declaration or, if it
related to a Bill which had received the Governor's assent, to
signify that the Bill was disallowed. 1 The legislative powers
of the Imperial Parliament and of the Crown in Council
remained unimpaired.2
The elected members comprised nine provincial members
elected for the Eastern and Western Provinces 3 by the Joint
Provincial Council, four Ashanti members elected by the
Ashanti Confederacy Council, and five municipal members
of whom two were elected for Accra and one each for Cape
Coast, Sekondi-Takoradi and Kumasi. The ex officio
members were the Colonial Secretary, the Chief
Commissioners of the Colony, Ashanti and the Northern
Territories, the Attorney-General and the Financial Secretary.
Of the six nominated members three were Africans, making a
total of twenty-one African members out of thirty. The term
of office of the elected and nominated members was four
years.
The Order in Council introduced a number of features
which had become necessary owing to the representative
nature of the new Legislative Council and which in one form
or another continue to apply to the present-day National
Assembly. One of these was the provision prohibiting
consideration of any matter which would dispose of public
funds, or impose or alter taxation, without the sanction of the
Governor.4 Others were provisions
1
Gold Coast Colony and Ashanti (Legislative Council) Order in Council,
1946, ss. 38. 40.
2
Ibid., s. 49.
3
The Central Province was abolished on 1st April, 1946.
4
Section 34. See now the National Assembly Act, 1961 (Act 86), s. 18.
Section 34 of the 1946 Order in Council gave rise to some misunderstanding,
and was justified by the Governor as follows: " It is a well-recognized
principle in democratic institutions, and a long-established rule of the
British House of Commons, that financial Bills or motions can only be
considered by Parliament if they have been put forward by the Govern
ment. It would obviously be impossible for any Government to prepare
a considered Budget if financial proposals from other sources could be put
forward." (Leg. Co. Deb. (1946, No. 2) 9).
dealing with disqualification of members, voting, meetings and sessions,
and prorogation and dissolution.
The transformation of the Executive Council into the present Cabinet
consisting (apart from the President) of Ministers who are Members of
Parliament advanced a stage in 1946 with the appointment to the
Executive Council of three African members of the Legislative Council,
namely Nana Tsibu Darku, Mr. C. W. Tachie-Menson and Dr. I. B. Asafu-
Adjaye, one of the Ashanti members. *
Togoland Trusteeship
The year 1946 also saw a change in the status of British Togo-land.
Article 75 of the United Nations Charter, which was signed on 26th April,
1945, provided for the establishment of an international trusteeship system
for the administration and supervision of certain under-developed
territories, and by Article 77 of the Charter this system could be applied to
territories formerly administered under mandate from the League of
Nations. An agreement for the administration of British Togoland as a
trust territory by the United Kingdom Government was approved by the
General Assembly of the United Nations on 13th December, 1946.
The operation of this agreement was regulated by the Togoland Under
United Kingdom Trusteeship Order in Council, 1949, which largely
preserved the existing system of administration. A Southern Togoland
Council, consisting of representatives of native authorities, was established
in 1949 and empowered to elect an additional member to the Legislative
Council.2
Disturbances of 28th February, 1948

Martin Wight remarked of colonies in the stage of constitutional
development that the Gold Coast had now reached:
" A representative legislature, deriving its strength from the
popular forces behind it, tends to assert its will increasingly against
the executive. There usually follows a period of extreme
constitutional difficulty, marked by conflicts and deadlocks between
the two powers. An irresponsible legislature confronts an immovable
executive,"3
1
2
Leg. Co. Deb. (1946, No. 2) 7.
Native Authority (Southern Section of Togoland Under United King
dom Trusteeship) Ordinance, 1949; Gold Coast Colony and Ashanti
(Legislative Council) (Amendment No. 2) Order in Council, 1949.
3
British Colonial Constitutions 1947, p. 32.
A period of extreme constitutional difficulty certainly followed in the Gold
Coast, but it was due less to the formal structure of the Burns Constitution
than to the political movement for independence which now began to gather
strength. We are here concerned only with developments in constitutional
law, and it is beyond our scope to venture on the great political events of
this time, which are extensively documented elsewhere. It is sufficient to
say therefore that the impetus for the next step in constitutional advance
came from the civil disturbances of 28th February, 1948, and succeeding
days, which led to twenty-nine deaths and two hundred and thirty-seven
injuries in Accra, Kumasi, Koforidua, Nsawam and Akuse. 1 An
investigating commission under the chairmanship of Mr. Aiken Watson,
K.C., found a large number of political, social and economic causes for
these disturbances. 2 Among the political causes given were the following:
" A feeling of political frustration among the educated Africans
who saw no prospect of ever experiencing political power under
existing conditions and who regarded the 1946 Constitution as mere
window-dressing designed to cover but not to advance their natural
aspirations."
" A failure of the Government to realise that, with the spread of
liberal ideas, increasing literacy and a closer contact with political
developments in other parts of the world, 3 the star of rule through the
chiefs was on the wane."
The commission found that the Burns Constitution, though well-
intentioned, was conceived in the light of pre-war conditions and was out of
date before it was promulgated. The Legislative Council, although
predominantly African, was merely a debating chamber, while the native
authorities still largely consisted of the old tribal oligarchies and gave no
opportunity for the advancement of the new generation of politicians. Since
(towns apart) election to the Legislative Council was by the chiefs " who
naturally elect for the most part members of their own caste " almost all the
African governmental authorities tended to stifle the expression of popular
will and ambition. The commission concluded that a substantial measure of
constitutional reform was necessary to meet the legitimate aspirations of the
indigenous
1
Report of the Commission of Enquiry into Disturbances in the Gold
Coast,
2
1948 (Colonial No. 231), Appendix 8
3
The Report, pp. 7-8.
India, Pakistan, Burma and Ceylon had recently become independent
of British rule.
1
population, and went on to make detailed recommendations.
The Coussey Committee

The British Government took the view that the recommendations of the
Aiken Watson Committee should first be considered by representatives of
the public in the Gold Coast itself.2 A committee of forty prominent Gold
Coast Africans was accordingly set up under the chairmanship of Mr.
Justice Coussey and reported on 17th August, 1949. 3 Their proposals
provided for the establishment on a fully representative basis of all bodies
responsible for the government of the Gold Coast from the smallest local
council to the central bodies where policy was determined for the country
as a whole. Local authorities were to have elected majorities, while
retaining some traditional elements. Regional councils would be elected,
while at the centre a Legislative Assembly was proposed. Nearly all the
members of this would be elected either directly or indirectly by popular
vote. The Executive Council would be reconstituted, and would become
responsible for the formulation of policy. The Governor's reserved powers
would not be capable of being used (except in emergency) without the
approval of the Executive Council or the Secretary of State.
The British Government, in a despatch to the Governor dated 14th
October, 1949, reacted favourably to the recommendations of the Coussey
Committee, though criticising them in detail.4 A new Constitution was
accordingly prepared, and came into force on 1st January, 1951. The main
instrument was the Gold Coast (Constitution) Order in Council, 1950,
which for the first time applied uniform constitutional provisions to all the
territories now included in Ghana. The old Executive Council was
completely reconstituted, and the Legislative Council made way for a
Legislative Assembly consisting almost entirely of elected Africans. 5 For
the first time, elected representatives of all the
1
The Report, pp. 27-29.
2
Colonial No. 232, p. 7.
3
Colonial No. 248.
4
Colonial No. 250.
5
The Legislative Council existed for just 100 years. For a detailed
account of its functioning see Martin Wight, The Gold Coast Legislative
Council,
four territories now included in Ghana met together in a law-
making body.
Executive Council.—The Executive Council was designated
as " the principal instrument of policy ", and the Governor
was required to act in accordance with its advice except
where expressly empowered to act in his own discretion.1 The
Coussey Committee had recommended that the Executive
Council should be collectively responsible to the Legislature,
and had stated that to make the Council responsible to the
Governor would not be acceptable. The British Government
pointed out however that, since it was agreed that the
Governor was to retain ultimate responsibility for the
administration, the Council must remain responsible to him
although it would also in effect be answerable to the
Assembly on matters relating to the departments entrusted to
the members of the Council.2 The Executive Council
consisted of the Governor as President and a number of
Ministers, the first time this term had been used in Ghana. 3
There were three ex officio Ministers, namely the Chief
Secretary, the Attorney-General and the Financial Secretary,
and not less than eight representative Ministers appointed by
the Governor from among the members of the Legislative
Assembly and approved by that body.4 The Legislative
Assembly could bring about the dismissal of any
representative Minister. 5 Acting in his discretion, the
Governor could charge a Minister with the responsibility for
any department or subject, and he was then styled a Minister
with portfolio.6 The Executive Council were required to elect
one of their number to be Leader of Government Business in
the Legislative Assembly.7 They could also advise the
Governor to appoint, from among the members of the
Legislative Assembly, Ministerial Secretaries to assist the
Ministers in the exercise of their duties. Each Ministry was
provided with an official head, to be known as the Permanent
Secretary.8 An official was also to be appointed by the
Governor as Governor's Secretary and Secretary to the
Executive Council.9
1
Gold Coast (Constitution) Order in Council, 1950, ss. 5, 6.
2 Colonial No. 250, p. 7.
3
Gold Coast (Constitution) Order in Council, 1950, s. 23. The wording
of this section produced the effect that the Governor himself was to be
styled a Minister, but this was presumably unintended.
4 6
Ibid., ss. 4, 7, 8. Section 9. « Sections 22, 23. 7 Section 15.
8
Section 27. The word " Ministry " was not defined, and its meaning
remained indefinite until the passing of the Civil Service Act, 1960; see
pp. 180 et seq., post.
9
Section 29.
CHAP. 1,—Constitutional Evolution 43
Legislative Assembly.—The Legislative Assembly consisted of the

Speaker, the three ex officio Ministers, three representatives of chambers
of commerce, three representatives of the Chamber of Mines, and seventy-
five elected members. 1
The elected members were classified as follows :2
(i) 37 representing the Gold Coast Colony:3 {a) 12
territorial members:
11 members elected by the Joint Provincial
Council: 3 representing the Central group of native
authorities, 2 the Eastern Akan group, 2 the Ewe group, 2
the Ga-Adangme group and 2 the Western group;
1 member elected by the Southern Togoland
Council;
(b) 21 rural members elected by electoral colleges chosen by
universal suffrage;*
(c) 4 municipal members directly elected by universal adult
suffrage, of whom Accra returned two and Cape Coast and
Sekondi-Kakoradi one each.
(ii) 19 representing Ashanti:
(b) 6 territorial members elected by the Asanteman Council ; 5
(c) 12 rural members elected by electoral colleges chosen by
universal adult suffrage;
(d) 1 municipal member directly elected by universal adult
suffrage for Kumasi.
(iii) 19 representing the Northern Territories.—These were elected
by an electoral college consisting of the members of
1
Only two out of the six commercial and mining members had a vote
(s. 56).
2
Section 40. The electoral provisions were based on the report of a select
committee of the Legislative Council (the Ewart Report).
3
In fact this group included a member representing Southern Togoland.
The error was corrected in 1952.
4
For the first elections the electoral law was made by an Ordinance
passed by the old Legislative Council. Power to pass the Ordinance (the
Elections (Legislative Assembly) Ordinance, 1950) was conferred by the
Gold Coast (Constitution) (Electoral Provisions) Order in Council, 1950.
6
The names of the Ashanti Confederacy and its Council were changed in 1950 to
the traditional names of Asanteman and Asanteman Council respectively. Ashanti
Confederacy Council (Amendment) Order, 1950 (No. 147).
44 PART I —The Republican Constitution
the Northern Territories Council and persons nominated
by the six district councils.
The Governor, with the advice and consent of the
Legislative Assembly, was given power to make laws for the
peace, order and good government of the whole of the Gold
Coast. The power was limited in various ways. No law could
make persons of any racial community liable to disabilities to
which persons of other such communities were not made
liable. Nor could the Togoland trusteeship agreement be
infringed.1 In addition to the 1946 restriction on the
introduction of financial Bills, the Governor, acting in his
discretion, was given control over Bills affecting public
officers or removing from his discretion the final decision of
questions relating to the office of Chiefs.2 The reserved
powers of the Governor were similar to those in the previous
constitution but, except in emergency, could be exercised
only with the consent of the Executive Council or the
Secretary of State.3 The Crown's power of disallowance was
retained. 4
Part VI of the Order in Council provided for the
administration of the Public Service, which was placed under
the control of the Governor acting in his discretion. A Public
Service Commission was set up to advise the Governor on
appointments, promotions, discipline and other matters. 5
Control over the establishment of the Civil Service remained
with the Assembly, to be exercised by voting on the
Estimates.
In the general election which followed the coming into
force of the new Constitution, 34 of the 38 seats open to
popular vote were won by the Convention People's Party,
which had been founded by Dr. Kwame Nkrumah in June,
1949. The United Gold Coast Convention, which had been
founded in 1947, won three seats, and the remaining seat was
won by an independent.6 Dr. Nkrumah, who described the
new Constitution as " bogus and fraudulent ", nevertheless
decided to work under it as he felt it would serve as a
stepping-stone to self-government.7 He and five other C.P.P.
members were appointed to the Executive Council
1
Section 50. Further restrictions of the usual type were laid down in the
accompanying Royal Instructions.
! 3
Section 57. Section 58. * Section 60.
5
Rubin and Murray (The Constitution and Government of Ghana (London, 1961),
p. 117) are thus mistaken in treating the Public Service Commission as established in
1957; as also in assuming that it continues to exist, it having in fact been abolished on
the establishment of the Republic in 1960.
• Colonial Office Report on the Gold Coast for 1951, p. 3.
' Kwame Nkrumah: / Speak of Freedom (London. 1961), p. 23.
Evolution
as representative Ministers together with a representative of
Ashanti and one from the Northern Territories. The Council
elected Dr. Nkrumah as Leader of Government Business.
Local Government
The recommendations of the Coussey Committee
regarding local government were implemented by the Local
Government Ordinance, 1951 (No. 29), which survived until
its replacement by the Local Government Act, 1961 (Act
54). The Ordinance, which applied to the whole of the Gold
Coast except the four municipalities, enabled the
Government to set up district, urban and local councils with
a chief as president. Except where it was found
impracticable, one-third of the members of each urban and
local council were to be traditional members appointed by
State Councils or similar bodies while the remainder were to
be representative members elected by adult suffrage. A
similar proportion was required for the district councils, but
election was by the corresponding members of the urban and
local councils within the district. The councils were required
generally to maintain order and good government within
their areas and could be given a wide variety of detailed
functions.1 Power to levy rates was given without financial
limit. Where a local authority was set up it replaced the
native authority and the laws relating to the latter were
repealed pro tanto. A Minister of Local Government was
appointed to supervise the administration of the Ordinance.
A uniform law was provided for the municipalities by the
Municipal Councils Ordinance, 1953 (No. 9) (now embodied
in the Act of 1961), which replaced the town councils of
Accra, Kumasi, Cape Coast and Sekondi/Takoradi by
municipal councils. In these areas the traditional
membership was made only about one-seventh of the whole,
the remainder being elected by popular vote.2
The provisions of the Native Authority (Colony)
Ordinance relating to local administration having been
superseded by the Local Government Ordinance, most of the
remainder were re-enacted by the State Councils (Colony
and Southern Togoland)
'Section 58 of Ordinance No. 29 of 1951, which listed the detailed functions, had
no less than 82 paragraphs covering such matters as agri culture, animals, buildings,
education, forestry, land, famine relief, liquor, markets, public health, public order,
registration of persons, roads, and trade and industry. See now the Local
Government Act, 1961 (Act 54), Sch. I, which has 108 paragraphs.
2
Accra and Kumasi have recently been raised to the status of cities.
Ordinance, 1952 (No. 8). This did not however reproduce the power to
recognise chiefs and to make removal orders excluding deposed chiefs and
others from specified areas. 1 In introducing the Bill, the Minister of Local
Government said:
" Local government is, I hope, now reaching a position of
stabilization in the Gold Coast. Before many months have passed the
position will be that, on the one hand the day-to-day matters which
form the general subject of local administration will have become the
concern of bodies which are largely elected by popular vote; while on
the other hand customary usages and practices will still remain an
important element in the social structure of the local community. ... It
is, therefore, the object of this Bill to preserve for the traditional
authorities in the Colony and Togoland the powers and functions
relating to these customary matters which they alone can properly
exercise."2
The Ordinance also created the Trans-Volta Togoland Region, which
consisted of the Southern Section of Togoland under United Kingdom
Trusteeship together with the states of Anlo and Peki and specified Ewe
divisions.
Creation of office of Prime Minister

In 1952 a number of detailed amendments were made to the
Constitution. The office of Prime Minister was created in substitution for
that of Leader of Government Business. 3 The Prime Minister had to be a
member of the Legislative Assembly. He was proposed by the Governor
and approved by the Assembly, and by virtue of his appointment was a
representative member of the Executive Council or, as it was now
authorised to be called, the Cabinet. 4 If the Prime Minister's office became
vacant, those of the other representative Ministers would become vacant
also and would thus, in accordance with British practice, be at the
disposition of the incoming Prime Minister. 5 Changes were also made in
the provisions regulating the election of the territorial members of the
Assembly. The two members representing the
1
Native Authority (Colony) Ordinance, 1944 (No. 21), ss. 15-19. The
power was revived in 1959; see p. 72, post.
2
Leg. Ass. Deb. (1952, No. 1), I, 233. Similar Ordinances were passed
in 1952 for Ashanti (No. 4) and the Northern Territories (No. 5).
3
Gold Coast (Constitution) (Amendment) Order in Council, 1952
(S.I. 1952 No. 455), s. 5. The office of Prime Minister existed for eight years,
during the whole of which time it was held by Dr. Nkrumah. It was
abolished on 1st July, 1960.
4
Ibid., s. 3.
5
Ibid., s. 8.
Evolution
Ewe group in the Colony, along with the Southern Togoland
member, were to be elected by an electoral college consisting
of persons chosen by the traditional members of local
authorities within the Trans-Volta/Togoland Region. 1
Consequential changes were made in the membership of the
Joint Provincial Council.
Discussions on Constitutional Reform
In October, 1952, following a visit by the Secretary of
State for the Colonies, the Prime Minister made a statement
in the Assembly on constitutional reform. He said that it was
clear from his discussions with the Secretary of State that if
the Gold Coast were to achieve full self-government the
Gold Coast Government must take the initiative and lay
before the British Government proposals worked out after
consultations with the chiefs and people. To enable this to be
done he invited interested bodies and persons to send in their
suggestions and while refraining at that stage from putting
forward positive views of his own since " it would, in the
opinion of the Government, be quite wrong for the
preliminary discussions to be influenced by a declaration of
Government policy ", he outlined some of the features of the
Constitution which needed consideration. These included the
presence of ex officio Ministers in the Cabinet, the procedure
for appointing the Prime Minister and other representative
Ministers, the composition of the Assembly and whether
there should be a second chamber, the powers of the
Governor in matters affecting chieftaincy, and the position of
the Public Service. 2 The results of this invitation, together
with the Government's provisional recommendations, were
given in a white paper published in June, 1953.' Over a
quarter of a million copies of the Prime Minister's statement
had been distributed, and representations were submitted by
131 councils, political parties and other groups. 4 A
remarkable measure of agreement was shown on the details
of constitutional advance, and the Government's proposals
were framed accordingly. They did not, however, support the
majority opinion in favour of the creation of a second
chamber of the legislature. After a four-day debate,
1
Gold Coast (Constitution) (Amendment) (No. 2) Order in Council,
1952 (S.I. 1952, No. 1039). s. 8. A Trans-Volta/Togoland Council, replacing
the Southern Togoland Council, was set up by Ordinance No. 16 of 1952.
2
Leg. Ass. Deb. (1952, No. 3), 500 et seq.
3
The Government's Proposals for Constitutional Reform, Accra, 1953.
4
Ibid., p. 5.
the Legislative Assembly approved the proposals and passed
a motion authorising the Government to ask the British
Government:
"... to amend as a matter of urgency the Gold Coast (Con-
stitution) Order in Council, 1950, in such a way as to
provide inter alia that the Legislative Assembly shall be
composed of members directly elected by secret ballot,
and that all Members of the Cabinet shall be Members of
the Assembly and directly responsible to it."1
The motion also, as a separate matter, authorised a request
to the British Government that " as soon as the necessary
constitutional and administrative arrangements for
independence are made " an Act should be passed declaring
the Gold Coast a sovereign and independent state within the
Commonwealth. As the Prime Minister remarked in the
course of the debate, " We prefer self-government with
danger to servitude in tranquillity ". 2
The British Government accepted the proposals and on 5th
May, 1954, the major part of the Gold Coast (Constitution)
Order in Council, 1954 (S.I. 1954 No. 551), came into
operation. This repeated many features of the previous
Constitution and also for the first time in a Gold Coast
Constitution included detailed provisions as to the judiciary
and public finance. The principal changes were as follows.
The Executive.—The Governor ceased to be a member of
the Cabinet, which was made responsible to the Assembly
and consisted of not less than eight Members of the Assembly
appointed on the advice of the Prime Minister. This followed
British constitutional convention, which was expressly
applied to the appointment and dismissal of all Ministers,
including the Prime Minister. 3 The Cabinet was precluded
from exercising functions in relation to defence (including
internal security) and external affairs (including Togoland
under United Kingdom trusteeship), which were reserved to
the Governor.4 The Governor
1
Leg. Ass. Deb. (1953, No. 2), 262.
* Leg. Ass. Deb. (1953, No. 2), 273. The motion is known in Ghana as the Motion
of Destiny.
3
4
Gold Coast (Constitution) Order in Council, 1954, s. 7.
Ibid., ss. 5, 17. The office of Chief Secretary was abolished and the
affairs of his Ministry, the Ministry of Defence and External Affairs (which
was also abolished) were transferred to the Governor's denartment -
Gold Coast Handbook (1954), p. 3. ueparanent.
Evolution
had power to summon and attend a special Cabinet meeting
when he thought fit.1 Portfolios were assigned to Ministers
by the Prime Minister instead of the Governor. 2 Since the
Attorney-General ceased to be a Minister his responsibility
for the initiation, conduct and discontinuance of prosecutions
(which was put outside Ministerial control) was laid down by
the Constitution. 3
Legislative Assembly.—The Assembly consisted of the

Speaker and 104 members, all elected by universal adult
suffrage, as follows:
39 rural members for the Colony (other than the Trans-Volta/
Togoland Region); 13 rural members for the Trans-
Volta/Togoland Region; 19 rural members for Ashanti; 26
rural members for the Northern Territories and Northern
Togoland; 3 municipal
members for Accra;
2 municipal member for Cape Coast;
3 municipal members for Kumasi;
1 municipal member for Sekondi-Takoradi.4
The restriction on the introduction of Bills affecting
chieftaincy was removed, but a similar restriction was
imposed in relation to Bills dealing with defence or external
affairs.5 The Governor had power to insist on the
introduction of any Bill, and retained his reserved powers in
cases where a Bill was not passed.6 Express power was given
to pass laws regulating the privileges of the Assembly, but
these were not to exceed those enjoyed by the
1
Section 13. 3
Section 16.
3
Section 18.
4
Sections 24, 28. Power to provide for the elections had been granted
by the Gold Coast (Constitution) (Amendment) Order in Council, 1953
(S.I. 1953 No. 1565) and had been exercised by the passing of the Electoral
Provisions Ordinance, 1953 (Xo. 33), which is still in force.
6
A restriction added in 1955 precluded the passing of any law enabling property
to be acquired compulsorily without adequate compensation: Gold Coast
Constitution (Amendment) Order in Council, 1955 (S.I. 1955 No. 1218).
6
The Gold Coast Government had not asked for the removal of these powers,
which had not been used: The Government's Proposals for Constitutional Reform, p.
15.
C
British House of Commons.1 The life of the Assembly was
limited to four years.2
Judicature.—A Judicial Service Commission was set up
consisting of the Chief Justice and two other judges, the
Attorney-General and the Chairman of the Public Service
Commission. After 31st July, 1955, apart from the Chief
Justice, who was appointed on the advice of the Prime
Minister, judges and judicial officers were appointed on the
advice of the Judicial Service Commission, which also had
disciplinary control over judicial officers. A judge of the
Supreme Court was not removable except on an address of
the Assembly, carried by not less than two-thirds of the
members, praying for his removal on the ground of mis-
behaviour or infirmity of body or mind. Interference with the
Commission was made an offence punishable with
imprisonment.3
Finance.—For the first time, details of financial procedure
were inserted in the Constitution. Sections 65 and 66, which
were repeated in the 1957 Constitution and thus remained in
force until the inauguration of the republic, laid down the
procedure for authorising and meeting expenditure, which
was largely that followed for many years previously in the
Gold Coast. The Minister of Finance was required to prepare
annual estimates of revenue and expenditure which, when
approved by the Cabinet, were to be laid before the
Assembly. The expenditure estimates, except those relating to
the public debt or other expenditure charged on the national
assets, were to be submitted to the vote of the Assembly by
means of an Appropriation Bill. Excess expenditure was to be
covered by a Supplementary Appropriation Bill. The
Assembly could reject any head of the estimates but could not
vote to increase or reduce expenditure or to alter its
destination. Expenditure could not be met unless it had been
authorised by resolution of the Assembly or one of its
Committees " or by any law ". Where, however, the
Appropriation Bill had not become law by the beginning of
the financial year, the Minister of Finance, with Cabinet
approval, could authorise expenditure on any
1
The power was exercised by the passing of the Legislative Assembly
(Powers and Privileges) Ordinance, 1956 (No. 20). This was replaced by
the National Assembly Act, 1959 (No. 78) which in turn was replaced by
the National Assembly Act, 1961 (Act 86).
2
Gold Coast (Constitution) Order in Council, 1954, s. 50 (2).
3
See Part VII of the Gold Coast (Constitution) Order in Council,
1954.
service up to one quarter of the amount voted for that service
in the previous year.1
Section 67 established the office of the Auditor-General,
who was appointed by the Governor after consultation with
the Prime Minister and was given the same security of tenure
as the Judges.
The Order in Council was accompanied by the usual
Letters Patent constituting the office of Governor and
Commander-in-Chief of the Colony and Ashanti2 and Royal
Instructions to the Governor. 3 The latter modified the
obligation of the Governor to act on the advice of his
Ministers and his power to assent to Ordinances within the
usual restricted classes. The general election under the new
Constitution was held in June, 1954, and resulted in victory
for the Government party, the C.P.P., which won 71 out of
the 104 seats. 12 seats were won by the Northern People's
Party and 16 by Independents, the remaining five being
divided between the Togoland Congress, the Ghana
Congress Party, the Moslem Association Party and the Anlo
Youth Organisation.4 The Northern People's Party was
recognised as the Official Opposition, its leader being paid a
salary as such.
The Questions of Federation and a Second Chamber
Later in the year a movement arose in Ashanti which
posed two major constitutional questions requiring
settlement before independence was achieved. Was the
future Constitution to be federal or unitary? Should a second
house of the legislature be established? The movement began
through the dissatisfaction of the Ashanti cocoa farmers with
the minimum price fixed by the Cocoa Duty and
Development Funds (Amendment) Ordinance, 1954 (No. 25).
Since nearly half the country's cocoa was produced in
Ashanti many of the inhabitants there felt that they were
entitled to a greater share in its proceeds and that this could
only be obtained by a federal system under which Ashanti
would have some measure of autonomy. In September, 1954,
the National Liberation Movement was launched in Kumasi
with the support of the Asanteman Council and nearly all the
Opposition parties.
1
For the alterations made to this procedure in 1960 see pp. 155 et seq.,
post.
2
L.N. 216 of 1954.
3
L.N. 217 of 1954.
4
Colonial Office Report on the Gold Coast, 1954, p. 7.
A pamphlet setting out the constitutional proposals of the Movement was
published about the middle of the following year.1 This called for the setting
up of a Constituent Assembly to draft a federal Constitution, the argument
advanced being:
" There is not enough consciousness of national identity to make
possible easy and at the same time democratic unitary government. In the
absence of this consciousness the safest course is to ensure that not all
the powers of government are concentrated at the centre, but that a
substantial part of them is retained in the component territories where
people have learnt the habits and attitudes of living together for some
time."
The Government decided to appoint a select committee of the Assembly to
examine the question of a federal system of government and also the related
question of an upper chamber. The Opposition declined to participate on the
ground that the matter should have been dealt with by a Constituent
Assembly. The committee adopted Dr. Wheare's statement that:
" Federal government exists when the powers of government of a
community are divided substantially according to the principle that there
is a single independent authority for the whole area in respect of some
matters and that there are independent regional authorities for other
matters, each set of authorities being co-ordinate with and not
subordinate to the others within its own prescribed powers."2
Bearing this in mind the committee stated that their basis of determining
the argument was that the features of a unitary system are simple while those
of a federal system are complicated and that " for the abandonment of the
simple in favour of the complicated, very cogent reasons should be
advanced". This cogency was found to be lacking, and the committee felt that:
" the cost of running many regional governments in addition to a central
government, and many regional legislatures in addition to a central
legislature would be huge and out of all proportion to any advantage
federation might have."3
Other difficulties were the absence of sufficient skilled Africans even to run a
unitary system, and the " vexatiousness " of such
1
61. Proposals for a Federal Constitution for an Independent Gold Coast
and Togoland by movements and parties other than the Convention People's
Party
2
(undated), p. 6.
Report from the Select Committee on Federal System of Government and
Second
3
Chamber for the Gold Coast, Accra, 1955, para. 35.
Ibid., para. 42.
CHAP. 1,—Constitutional 53
Evolution
problems as the allocation of national revenue, the subjection
of the citizen to two sets of laws and two systems of taxation,
and the likelihood of inter-regional jealousies. 1
An upper chamber was also rejected, the committee adopting
the arguments against it which had been advanced by the
Coussey Committee. These were:
2. The probability of friction between paramount chiefs
and people if the former were confined to a Second
Chamber.
3. The added expenditure in setting up an additional
council for chiefs and elder statesmen, involving, as it
would, the journey to and stay at Accra of a great number of
chiefs, with their attendants, for long sessions.
4. The stagnation in the affairs of states caused by the
absence of their chiefs.
5. The effect on the number and quality of members avail-
able for the lower chamber.
6. That once a Second Chamber was established it would
be extremely difficult to disestablish it should it later be
found unnecessary, and the status of chiefs might be
destroyed in the process. 2
The only arguments on the other side which found favour
with the select committee were that an upper house would
enable emotional issues to be considered in a calmer
atmosphere and that, to some extent at any rate, it might serve
a useful function in revising legislation.3 These were clearly
insufficient to tip the baiance, though the committee did think
the question should be examined again after independence. 4
The report was adopted by the Assembly after the Opposition
had staged a walk-out. At the same time the Government
announced that they had decided to invite an outside
constitutional expert to frame proposals for a measure of
devolution to the regions. 5 The expert invited was Sir Frederick
Bourne, a former Governor of East Bengal.
The controversy was exacerbated when the powers of the
Asanteman Council over local constitutional matters were
curtailed later in 1955 by amendments to the State Councils
(Ashanti) Ordinance, 1952 (No. 4).6 These gave an appeal to
the
^he 1955 Report, paras. 34, 43.
2
Ibid., para. 49.
8
Ibid., paras. 61, 63, 77.
4
Ibid., para. 78.
5
Leg. Ass. Deb. (1955, No. 2), s. 359.
6
The amendments were made by Ordinance No. 38 of 1955.
Governor against decisions of the Asanteman Council or a State Council in
all cases and not merely, as previously, in cases involving a paramount
chief. This right of appeal covered cases decided since the beginning of
1954, there having been a number of destoolments of chiefs unfavourable
to the National Liberation Movement. Furthermore the Governor was
empowered to withdraw a case from the Asanteman Council or a State
Council and decide it himself if he thought fit. 1 A similar extension of the
rights of appeal was made in the south by the State Councils (Colony and
Southern Togoland) (Amendment) Ordinance, 1955 (No. 37).
The Bourne proposals

In September, 1955, the constitutional adviser, Sir Frederick Bourne,
arrived in the Gold Coast. He received no co-operation from the National
Liberation Movement, who were incensed by the timing of the legislation
curtailing the powers of the paramount chiefs in Ashanti. He therefore
failed in the most important object of his mission, namely to reconcile the
opposing viewpoints of Government and Opposition on the question of
federation. 2 However, his detailed recommendations on regional
administration pointed the way to the ultimate settlement of the
controversy. They may be summarised as follows:
2. The boundaries of the Regions should be clearly denned and not
subsequently altered without the consent of the local inhabitants.
3. A Regional Assembly should be established for each Region in
which district councils had been set up for the whole Region, provided
the majority of district councils desired it.
4. The objects of a Regional Assembly would be:
(b) to afford an effective link between Regions and the central
Government and thereby to remove any danger of excessive
centralisation;
(c) to provide for the formation and ventilation of local opinion on
matters of national importance;
(d) to procure the use of local knowledge and experience to ensure
that legislation was devised and implemented, and projects
involving expenditure in the Region
1
In these matters the Governor would of course be required to act on the
advice of the Cabinet.
2
Report of the Constitutional Adviser, Accra, 1955, p. 1.
Evolution
designed, and the required money provided, in a
manner suited to the circumstances of the Region
concerned.
2. Supreme legislative power would remain at the
centre, but the Regional Assemblies would be given such
delegated powers as were needed for them to fulfil their
objects.1
3. A Regional Assembly should consist of all backbench
members of the Legislative Assembly elected for the
Region, together with an equal or greater number of
members of district and municipal councils. Local
residents could be co-opted.
4. No Bill affecting the traditional functions or
privileges of chiefs should be passed by the Legislative
Assembly unless:
(b) the chiefs had been consulted, and
(c) their comments had been circulated to the
members of the Legislative Assembly, and
considered by them on non-party lines.
7. Each Regional Assembly would consult, and receive
advice from, councils of chiefs within the Region.
The Achimota Conference
The Prime Minister convened a conference to consider the
Bourne Report and matters arising from it. It was hoped that
this would be an all-party conference, at which the matters
dividing the Government and the N.L.M. could be thrashed
out. This hope was disappointed, and the opposition parties
refused to join the conference or express their views to it.
The conference had its first meeting at Achimota on 16th
February, 1956, and found itself in broad agreement with the
Bourne proposals. It was, however, felt that Regional
Assemblies should be set up simultaneously in all Regions
and that it should not therefore be a condition precedent that
district councils had been established throughout the
Region.2 Disagreement was also expressed with the proposal
that members of the Legislative Assembly should be
1
Sir Frederick Bourne remarked that this " is the reverse of the system
recommended in the X.L.M.'s Federal Scheme, whereby the Centre's
powers are to be prescribed and all residuary powers are to rest with
the units. This extreme form of Federation would, I believe, slow down
development and introduce an intolerable handicap to the administration
of the country ": Report, para. 5.
2
There were no district councils in the Western Region and only two
in the Eastern Region.
ex officio members of the Regional Assemblies. The
conference recommended that a House of Chiefs should be
set up in each Region, in addition to a Regional Assembly.
The House of Chiefs would be empowered to advise, and
initiate policy, on matters relating to African social customs
and customary law, including constitutional matters affecting
chieftaincy. It would also have certain delaying powers over
any Bill affecting its functions. The Joint Provincial Council
would function as the House of Chiefs for the Eastern and
Western Regions. 1
In a statement published in April, 1956, the Government
accepted with minor variations the Bourne Report as
modified by the Achimota Conference and set out their
proposals for the independence of the Gold Coast under the
name of Ghana.2 To meet the British Government's
requirements that these proposals should be shown to have
the support of the majority of the population before the
necessary legislation was introduced, the Gold Coast
Government agreed to hold a general election on the basis of
the proposals.3 The proposals were approved by the
Assembly on 22nd May, 1956, after a debate in which the
Opposition refused to take part.4 The Opposition leader had
stated that the proposals could be used by the Government as
an election manifesto, but should not be debated in the
Assembly.5
The Togoland Plebiscite

Meanwhile the way had been cleared for the inclusion of
Togoland under United Kingdom Trusteeship in the new state
of Ghana by the result of a plebiscite held earlier in the
month. A considerable controversy had developed over the
future constitutional status of the territory. Two main views
were held. On the one hand the Gold Coast Government,
supported by the Opposition and also by the British
Government, wanted it to be made part of Ghana. On the
other hand the Togoland Congress Party, the All-Ewe
Conference, and ancillary groups desired that it should be
established under separate administration as a
1
Report of the Achimota Conference, Accra, 1956.
2
Constitutional Proposals for Gold Coast Independence and Statement on
the Report of the Constitutional Adviser and the Report of the Achimota
Conference, Accra, 1956.
3
Leg. Ass. Deb. (1956-57, No. 1), 3^L
4
Ibid., 227.
5
Ibid., 65. For a defence of the Opposition's boycott of the various
constitutional proceedings at this period see Leg. Ass. Deb. (Official
Report—First Series, Vol. 2), pp. 92-94.
preliminary to allowing the inhabitants to choose whether (1) to federate
with the Gold Coast or (2) to unite with an independent French Togoland,
with the territories thus united to be federated eventually with the Gold
Coast. A special mission was despatched by the United Nations
Trusteeship Council in 1955 to report on the constitutional future of British
and French Togoland. The mission reported that there was a clear division
of opinion in British Togoland, which could only be accurately measured
by a plebiscite. They recommended that this should be held, and that the
questions should be:
"1. Do you want the integration of Togoland under British
administration with an independent Gold Coast?
2. Do you want the separation of Togoland under British
administration from the Gold Coast and its continuance under
trusteeship, pending the ultimate determination of its political future?
"1
The plebiscite was held on 9th May, 1956, and resulted in an overall
majority in favour of the first question. There were 93,095 votes (58 per
cent.) in favour of integration with the Gold Coast and 67,492 votes (42
per cent.) in favour of separation in accordance with the second
alternative.2 A majority vote in favour of separation was recorded in only
two of the six districts. 3 On 13th December, 1956, the General Assembly
of the United Nations expressed its approval of the union of Togoland
under British administration with an independent Gold Coast, and resolved
that, on the date on which the Gold Coast became independent and union
with the trust territory took place, the trusteeship agreement should cease
to be in force, " the objectives of trusteeship having been achieved ". On
6th March, 1957, therefore, the trusteeship agreement ceased to be in force
and the competence of the United Nations in respect of the former British
Togoland came to an end.4
General Election of 1956

The Gold Coast general election was held in July, 1956, and resulted in
a decisive victory for the C.P. P., although its candidates
1
Special Report on the Togoland Reunification Problem (Trusteeship
Council Official Records: Fifth Special Session, Supplement No. 2), p. 15.
2
United Nations, Annual Report of the Secretary-General, 1956-1957.
p. 102.
3
Annual Report of the Secretary-General, 1956-1957, p. 103.
4
Ibid.
C«
were returned in only a minority of the seats in Ashanti and
the Northern Territories. The state of the parties was:
Covention People's Party—72 seats
Northern People's Party—15 seats
National Liberation Movement—12
seats Togoland Congress—2 seats
Moslem Association Party—1 seat
Federation of Youth Organisations—1
seat Independent—1 seat.1
Negotiations for Independence
In spite of its success in the election, the Government did
not give up its attempts to secure the agreement of the
opposition parties and groups to its constitutional proposals.
The latter at last agreed to embark on discussions with the
Government, and these began on 16th October, 1956.2 The
Government's final proposals, revised in the light of the
discussions, were published as a white paper at the beginning
of November.3 After a three-day debate, they received the
approval of the Legislative Assembly by 70 votes to 25.4
Since the original proposals had received the approval of the
electorate, the Government had not felt able to depart from
them to any substantial degree. Some small concessions had
been made, but there remained three major points, as well as
a number of minor ones, on which disagreement persisted.
The major opposition proposals which were rejected by the
Government were as follows:
1. That there should be a Council of State, consisting of
the Governor General, the four Heads of the Traditional
Regions, the Prime Minister, the Leader of the Opposition
and the Attorney-General. Its function would be to advise
the Governor-General on the appointment and conditions of
service of judges and public officers, the settlement of local
constitutional disputes, and other matters. The idea was
rejected by the Government as impractical, and also
undemocratic since the Council would in certain fields be
above the Cabinet and not answerable to the elected
representatives of the people.
1
Leg. Ass. Deb. (1956-57, Official Report—First Series), Vol. 1, pp. i-iv.
2
Leg. Ass. Deb. (1956-57, Official Report—First Series), Vol. 2, p. 249.
3
The Government's Revised Constitutional Proposals for Gold Coast
Independence, Accra, 1956.
4
2. That there should be a Second Chamber of Parliament, composed
of members elected by the four territorial Houses of Chiefs, members
appointed by the Government and members appointed on the advice of
the Council of State. Although reluctant, for the reasons set out earlier, 1
to have a bicameral legislature, the Government offered to do so if the
proposal for regional Houses of Chiefs was abandoned. This
compromise was refused by the four territorial Councils of Chiefs.
3. That the Regions should have a measure of autonomy equivalent
to that enjoyed by Northern Ireland, and that the Ashanti Region should
remain undivided. The Government, supported by the territorial councils
other than the Asanteman Council, believed that regional devolution
should be implemented gradually and that Regional Assemblies should
have powers similar to those of the London County Council. They also
favoured the demand of the Brongs for a separate Region. 2
On the day following the conclusion of the debate, the Prime Minister
announced that the Government, having considered the speeches made,
had decided to recommend to the British Government that the new
Constitution should be based on the White Paper as approved by the
Assembly.3 The British Government had declined to do more than make
the alterations in the existing Constitution which were necessary to confer
Independence, with certain additional provisions (such as those relating to
regional devolution) which were closely bound up with preceding political
events.4 This decision meant that the comprehensive code of fundamental
rights, which both the Opposition and the Government expressed a desire
to have inserted, had to be omitted from the new Constitution. 5 On the
mechanics of Independence, the Government and the opposition parties
and groups had agreed the following statement of principle:
" Following the experience of the working of Parliamentary institutions, the
Government believes that the advance to independence within the
Commonwealth by the Gold Coast can be effected by the modification of our
existing Constitution
1
P. 53, ante.
2
Part I of the Appendix to the White Paper sets out the proposals and
objections in some detail, as also does the Prime Minister's speech in the
Assembly debate (loc. at., pp. 13-70).
3
Loc. at., p. 248.
4
See the despatch from the Secretary of State quoted loc. cit., p. 32.
5
Loc. cit., p. 31.
and by the adoption of conventions which have grown up in the United
Kingdom."1
The statement went on to list the necessary legislative measures. Apart
from a new Constitution Order in Council, Letters Patent and Royal
Instructions, these included " an Act of the United Kingdom Parliament
which would alter the law of the United Kingdom and confer on the Gold
Coast Legislature those law-making powers which could not be conferred
by Order in Council".
The Ghana Independence Act

The Ghana Independence Act, 19572 received the Royal Assent on 7th
February, 1957. The long title described it as
" An act to make provision for, and in connection with, the
attainment by the Gold Coast of fully responsible status within the
British Commonwealth of Nations."
The Act, which followed the general pattern of the Ceylon Independence
Act, 1947, began by stating that the territories included in the Gold Coast
were to form part of Her Majesty's dominions under the name of Ghana as
from 6th March, 1957, which was the anniversary of the making of the
Bond of 1844.3 The reasons for adopting this name were given by the
Prime Minister in the debate on the White Paper. 4 Dr. Nkrumah said:
" There are many objections to continuing the name of ' Gold Coast
'. It was, in the first place, not the traditional name of the country as a
whole but merely the name given in the seventeenth century by the
French, and afterwards by the Dutch, to the coastal strip of the present
Colony. When we become independent it is most essential that no
appearance is given of an)' one portion of the country dominating any
other part and on those grounds alone it would be better to choose a
name which was not closely associated with one particular region.
Secondly, the name ' Gold Coast ' is only the English version of the
name. It is translated by different words in each of the vernaculars of
the country. There is a similar international difficulty. . . . The
Government considers it very undesirable that the Gold Coast should
begin its independent international life with as many names as there
are languages represented in the United Nations."
1
White Paper, 1, 12.
2
Set out in Appendix A, p. 465, post.
3
See p. 8, ante. Provision was made enabling some other date to be
appointed, but was not used.
1
Leg. Ass. Deb. (1956-57, Official Report—First Series), Vol. 2, pp. 42-
The name Ghana had been mooted for some years as a desirable
alternative to the Gold Coast, and had been used in the title of one of the
opposition parties, the Ghana Congress Party. The original suggestion for
its adoption has been attributed to Dr. J. B. Danquah. 1
In an earlier part of his speech, Dr. Nkrumah said:
" The name ' Ghana ' is rooted deeply in ancient African history,
especially in the history of the western portion of Africa known as the
Western Sudan, ft kindles in the imagination of modern West African
youth the grandeur and the achievements of a great mediaeval
civilisation which our ancestors developed many centuries before the
European penetration and subsequent domination of Africa began.
According to tradition the various peoples or tribal groups in the Gold
Coast were originally members of the great Ghana Empire that
developed in the "Western Sudan during the mediaeval period. For
the one thousand years that the Ghana Empire existed, it spread over
a wide expanse of territory in the Western Sudan. . . . We take pride
in the name, not out of romanticism but as an inspiration for the
future."2
The effect of the opening words of the Ghana Independence Act was to
place all the four territories on an equal footing as the dominions of Her
Majesty in her capacity as Queen of Ghana. 3 Since neither the Northern
Territories nor British Togoland previously formed part of Her Majesty's
dominions, this provision had the technical effect of annexing those
territories, an effect which was necessary for the creation of a unified
Ghana.4 Section 1 of the Act went on to renounce, in language derived
from s. 4 of the Statute of Westminster, the legislative powers of the
United Kingdom Parliament in relation to Ghana, and to confer on the
Parliament of Ghana the legislative powers set out in the First Schedule. 5
The application of existing law was, however, preserved. The section also
renounced the executive powers of the
1
J. D. Fage, Ghana, A Historical Interpretation, University of Wisconsin,
1959, p. 83.
2
3
This title was formally established on 27th July, 1957, by the Royal
Style and Titles Act, 1957 (No. 13). By this the Parliament of Ghana
approved the adoption, for use in relation to Ghana, of the following style
and titles: " Elizabeth the Second, Queen of Ghana and of Her other
Realms and Territories, Head of the Commonwealth." The Act was repealed
on the establishment of the Republic by the Constitution (Consequential
Provisions) Act, 1960 (C.A. 8), s. 22.
4
See an anonymous article in 1 J.A.L. 99. which contains a useful
analysis of this and other provisions of the Independence Act.
5
For a discussion of the First Schedule, see pp. 74, et scq., post.
62 PART I,—The Republican Constitution
British Government in relation to Ghana, these presumably including the
power of United Kingdom Ministers to advise Her Majesty on the exercise
of the Royal prerogative and on the exercise of such functions as the
making of Orders in Council under the British Settlements Acts and the
Foreign Jurisdiction Acts. 1
The Ghana (Constitution) Order in Council, 1957 (S.I. 1957 No. 277;
L.N. 47) the main provisions of which came into force on 6th March, 1957,
embodied the new Constitution of independent Ghana, apart from the
legislative powers contained in the First Schedule to the Independence Act.
In many ways it repeated the provisions of the previous Constitution. The
most important new features were as follows.
The Executive. The Governor was replaced by a Governor-General,
whose office was created by Letters Patent dated 22nd February, 1957, 2 and
who, like the Governor, was also Commander-in-Chief of the armed forces.
Except where otherwise provided by law, all powers, authorities and
functions vested in the Queen or the Governor-General were to be exercised
in accordance with the constitutional conventions applicable to the exercise
of similar powers, authorities and functions in the United Kingdom by Her
Majesty.3 The executive power of Ghana was vested in the Queen and
could be exercised by the Queen or by the Governor-General as her
representative. 4 In most cases, following British convention, the executive
power would be exercised in accordance with advice tendered by the
Queen's Ministers in Ghana, in other words the Cabinet. The previous
limitations on the powers of the Cabinet were of course removed, and it was
charged with the general direction and control of the Government of Ghana
and made responsible to Parliament. 5 The Prime Minister was appointed by
the Governor-General in his discretion, but British convention would
require him to appoint the leader of the largest party in the Assembly. Other
Ministers were appointed and dismissed on the advice of the Prime
Minister.6 If the Assembly passed a motion of no confidence in the
Government, the Governor-General was required to dismiss
1
Ghana Independence Act, 1957, s. 1 (6).
2
L.N. 57.
3
Ghana (Constitution) Order in Council, 1957, s. 4 (2)
* Ibid., s. 6.
5
Ibid., s. 7 (1).
6
Ghana (Constitution) Order in Council, 1957, s. 7 (2), (3).
1
the Prime Minister unless advised by him to dissolve the Assembly. A
minor change was that Ministerial Secretaries were renamed Parliamentary
Secretaries. 2
Parliament.—The term " Parliament " had not previously been used in
relation to Ghana. The Legislative Assembly was renamed the National
Assembly, and Parliament consisted of the Queen and the National
Assembly, on the model of the British Constitution.3 The number of
Members remained unchanged at 104, and the existing Members retained
their seats.4 The territorial allocation of seats was not specified. Provision
was, however, made for for the establishment of a delimitation commission
and for the delimitation of electoral districts on the principle that each
district should possess a more or less equal number of inhabitants. Voting
was to be by secret ballot on the basis of adult suffrage.5 The legislative
powers were considerably enlarged, the Governor's reserved powers of
course disappearing. The limitations as to laws imposing disabilities on
racial grounds or providing for the compulsory acquisition of property
remained,6 and a further limitation was added to protect freedom of
conscience and religion.7 Elaborate restrictions were also placed on
legislation affecting chieftaincy or regional devolution. No Bill for
amending the Constitution could become law unless it had been supported
by the votes of at least two-thirds of the total number of Members of
Parliament, and in certain cases by two-thirds of the Regional Assemblies
also.8 This restriction had been contemplated by para. 6 of the First
Schedule to the Ghana Independence Act. Subject to these restrictions, a
Bill which had passed the Assembly was required to be presented to the
Governor-General " who may assent thereto in Her Majesty's name or
refuse such assent."9 On
1
Ghana (Constitution) Order in Council, 1957, s. 7 (4).
2
Ibid., ss. 16, 72 (2). This is of some interest, as the previous name was
reverted to in 1960.
3
Ibid., s. 20.
4
Ibid., s. 73.
5
Ibid., ss. 69, 70.
6
Ibid., ss. 31 (2), 34.
' Ibid., s. 31 (3).
8
Ibid., s. 32. Amendments in relation to the boundaries of the Regions
were excepted, but these were governed by other restrictions.
9
Ibid., s. 42 (2). The British conventions which of course applied to the
giving or withholding of assent, probably precludes its being withheld,
and certainly precludes its being withheld otherwise than on the advice
of Ministers.
64 PAKI I.—The Republican Constitution
receiving assent the Bill became an Act of Parliament, the term "Ordinance"
being abandoned.1 The maximum life of the Assembly was extended from
four years to five. 2
Regions and Regional Assemblies.—Ghana was divided into five Regions.
The Western and Trans-Volta/Togoland Regions remained as before. The
former Eastern and Accra Regions were merged into a new Eastern Region,
while Ashanti was designated the Ashanti Region and the Northern Territories
and Northern Togoland became the Northern Region. 3 Alterations to the areas
of any Regions required the approval of the Regional Assemblies affected;
and where 10,000 or more registered electors were involved, or a new Region
was to be created, a referendum was required. 4
A Regional Assembly was required to be established for each Region by
Act of Parliament and to be given functions relating to local government,
agriculture, education, communications, health, public works, town and
country planning, housing, police and other matters. 5 Until the necessary
legislation was passed, the Members of Parliament from each Region were
constituted an Interim Regional Assembly, with power to advise Ministers on
matters affecting the Region and to set up a Police Relations Committee with
the object of encouraging good relations between the police and the public. 6 A
Regional Constitutional Commission was required to be established, with a
judge as chairman, to enquire into and report on the devolution to Regional
Assemblies of the functions to be entrusted to them, the composition of the
Assemblies, the executive, legislative, financial and advisory powers to be
exercised by them, the funds required to meet their expenditure, and the form
of the legislation necessary to give effect to the Commission's
recommendations. As soon as practicable after the submission of the
Commission's report, the Minister responsible for local government was
required to introduce into the Assembly legislation to give effect to the
recommendations of the Commission. 7
The concluding story of the Regional Assemblies may be given
1
2
Ibid., s. 42 (3).
3
Ibid., s. 47 (3).
4
Ibid., s. 63 (1).
5
Ibid., s. 33.
6
Ibid., s. 64.
1
Ibid., ss. 85, 86.
Ibid., s. 87.
CHAP, 1.—Constitutional Evolution 65
here. Notice of the appointment of the Commission, under the chairmanship
of Mr. Justice Van Lare, was given in the Ghana Gazette on 4th June, 1957,
and the Commission delivered a voluminous report, including a draft Bill of
134 clauses, on 14th April, 1958. 1 They recommended that each Assembly
should consist of members directly elected by the Parliamentary electors
within the Region, the number of members being twice the number of
Members of Parliament representing the Region. 2 The executive functions of
the Assemblies were to be of a detailed and comprehensive character,
constituting a major interposition between the Government and the local
authorities. Indeed many of the Minister of Local Government's functions,
including the approval of local authority estimates, rates, grants, loans,
contracts and byelaws, were to be transferred to the Assemblies, 3 while they
were also to have numerous functions previously entrusted to local
authorities.
In a White Paper giving their views on the report, the Government stated that
" it would be wasteful, cumbersome and altogether unsound,
administratively, to have in the proposed local government structure
another tier, in the form of Regional Assemblies."
Although obliged by the Constitution to introduce the Bill in the form drawn
up by the Commission, the Government would move amendments to convert
the Assemblies into merely advisory bodies. 4 This intention was carried out;
and the Bill as amended became law as the Regional Assemblies Act, 1958
(No. 25) and came into operation on 3rd September, 1958. 5 The elections
were held on 16th and 21st October, 1958 and, since the Opposition refused
to take part, C.P.P. candidates were returned in all seats except the half-dozen
won by Independents.6 The reason for the Opposition boycott was stated in
the National Assembly by Mr. J. A. Braimah as follows:
" We did not take part in the Regional Assemblies because the
Government had so mutilated the Regional Assemblies
1
Report to His Excellency the Governor-General by the Regional Constitu
tional Commission, Accra, 1958.
2
Ibid., paras. 24, 29. The Trans-Volta/Togoland Regional Assembly-
was given rather more members so that it would have enough to function
efficiently (ibid., paras. 30, 31).
3
Report of the Regional Constitutional Commission, p. 226,
4
White Paper No. 4 of 1958.
3
L.N. 287 of 1958.
6
Ghana Gazette, 27th October, 1958.
Bill which was drafted by the Regional Constitutional Commission
that those effective powers on which we all agreed and solemnly
pledged to support had not been given to the Regional Assemblies."1
The only effective act achieved by the Regional Assemblies was the
giving of approval, under s. 32 of the Constitution, to a Bill (which is
discussed below) abolishing the restrictions on the amendment of the
Constitution. Soon after this, on 14th March, 1959, the Regional
Assemblies Act was repealed. All the Regional Assemblies were dissolved
and it was provided that no further elections to them should be held. 2 In
moving the second reading of the Bill bringing this about, the Prime
Minister gave his reasons very briefly, as follows:
" the Government are convinced that Regional Assemblies are an
unnecessary complication in the machinery of Government and
constitute a waste of money and manpower."3
Chieftaincy.—The Constitution contained a provision stating that " the
office of Chiefs in Ghana, as existing by customary law and usage, is
hereby guaranteed."4 A House of Chiefs was required to be established by
Act of Parliament for each Region, and was given the right to offer advice
to any Minister, and to consider any matter referred to it by a Minister or
the Assembly. It could also make a declaration of the customary law
relating to any subject in force in any part of the area of its authority. 5 In all
the Regions except Ashanti, where the Asantehene was Head, the House of
Chiefs was given power to elect the Head of the Region. 6 Where a Bill was
introduced into the Assembly which affected the traditional functions or
privileges of a chief, the Speaker was required to refer it to the appropriate
House of Chiefs and to defer the second reading for three months so as to
give time for the House of Chiefs to make its views known.7
A further safeguard for Chiefs was provided by the section relating to
local constitutional disputes.8 On the establishment of Houses of Chiefs,
provision was required to be made by Act of
1
Pari. Deb., Official Report, Vol. 12, p. 18.
2
Constitution (Amendment) Act, 1959 (No. 7), ss. 10 11
3
4
Ghana (Constitution) Order in Council, 1957, s. 66.
6
Ibid., s. 67. Houses of Chiefs were established by the Houses of Chiefs Act,
1958 (No. 20).
6
Houses of Chiefs Act, 1958 (No. 2), s. 35.
7
Ghana (Constitution) Order in Council, 1957, s. 35
8
Ibid., s. 68.
Parliament for the determination of such disputes by a state council (or in
the case of a paramount chief in Ashanti, by a committee of the Ashanti
House of Chiefs), with a final appeal through the appropriate House of
Chiefs to an appeal commissioner appointed by the Judicial Service
Commission.1 This involved a reversal of the changes made in 1955, which
had aroused so much controversy. 2
Courts of Justice.—Section 54(2) of the Constitution contemplated the
existence of a Court of Appeal. This was created by an Ordinance dividing
the Supreme Court into the High Court of Justice and the Court of Appeal
with effect from 6th March, 1957.3 By another Ordinance, which came into
force at the same time, detailed provisions were made for the jurisdiction
of the new Court of Appeal, and the right of recourse to the West African
Court of Appeal (which was regarded as inconsistent with independence)
was abolished. 4 The jurisdiction of the Judicial Committee of the Privy
Council was, for the time being, allowed to continue. Section 54 of the
Constitution gave the new Justices of Appeal the same security of tenure as
was enjoyed by other Supreme Court judges. In an attempt to overcome
the shortage of High Court judges without dilution, an Act of the following
year created the office of Commissioner of Assize and Civil Pleas. 5 The
Commissioners were appointed on limited engagements and could exercise
the same jurisdiction as High Court judges except that they were excluded
from the most important types of case. The experiment was not found
successful, and was abandoned in 1960.
Citizenship.—The arrival of independence made necessary the new
concept of Ghana citizenship. Although persons born in the Colony or
Ashanti were normally citizens of the United Kingdom and Colonies by
virtue of the British Nationality Act, 1948, this of course ceased to be the
case for persons born after independence. 6 Persons born in the former
Northern Territories or British
1
Effect was given to this requirement by the Houses of Chiefs Act, 1958
(No. 20). Pending the establishment of Houses of Chiefs, s. 88 of the
Constitution gave an appeal direct to an appeal commissioner.
2
See p. 53, ante.
3
Courts (Amendment) Ordinance, 1957 (No. 17), s. 2. The status of the
judges of other West African territories as members of the Supreme Court
was abolished by s. 3.
4
Court of Appeal Ordinance, 1957 (No. 35). See also the Courts (Amend
ment) Act, 1957 (No. 8).
5
Commissioners of Assize and Civil Pleas Act, 1958 (No. 12).
6
Ghana Independence Act. 1957, s. 2.
Togoland would also cease to enjoy the status of British protected persons.1
Since it was felt that citizenship was essentially a matter to be decided by the
new Parliament of Ghana, the Constitution did not deal with it except
incidentally.2 However the first Act to be passed by the Parliament of Ghana
was the Ghana Nationality and Citizenship Act, 1957, which provided for
citizenship by birth, descent, registration and naturalisation and contained
transitional provisions under which persons born in Ghana before
Independence, or otherwise having connections with Ghana, were granted
citizenship.3 The Act also embodied the " common form " Commonwealth
clause, under which a citizen of Ghana or of any other Member of the
Commonwealth was recognized in the law of Ghana as having the status of a
Commonwealth citizen.4
Membership of the Commonwealth.—The Constitution, following the
usual practice elsewhere, did not refer to Ghana's membership of the
Commonwealth. On the attainment of independence Ghana became eligible
for full membership, and in their constitutional proposals the Government had
indicated that this would be sought. As mentioned above, the Ghana
Independence Act had in its long title contemplated that Ghana would remain
within the Commonwealth and this was confirmed by a statement made in the
House of Commons by the British Prime Minister, Mr. Harold Macmillan, on
21st February, 1957. 5 This included the following passage:
" I am glad to be able to say that after consultation with
other Commonwealth Prime Ministers they have all agreed that
Ghana shall, as from 6th March, be recognised as a Member of
the Commonwealth."
Membership of the United Nations.—On 8th March, 1957—
two days after independence—Ghana became a member of the
United Nations Organisation.
Amendments to 1957 Constitution

During the period before the inauguration of the Republic the Constitution
was subjected to numerous amendments. Many of these arose because certain
of the constitutional provisions which
1
Ghana Independence Act, 1957, s. 2.
2
See the definition of " citizen of Ghana " in s. 1 (1).
3
For an analysis of the citizenship provisions of the Independence Act
see 1 J.A.L., 103 et seq. For an account of the present law of Ghana
citizenship, see pp. 187 et seq., post.
4
Ghana Nationality and Citizenship Act, 1957, Part V.
5
U.K. Parliamentary Debates (Commons), Vol. 564, col. 605.
were regarded as necessary in the republican era, but not of sufficient
importance to find their way into the republican Constitution, were re-enacted
with modifications in the National Assembly Act, 1959 (No. 78) and the
Ministers of Ghana Act, 1959 (No. 77). Other amendments were more
substantial. The abolition of the Regional Assemblies has been described
above. Before their disappearance they were used to secure the enactment of
a Bill removing the restrictions on the making of amendments to the
Constitution. This Bill, which became law on 18th December, 1958 as the
Constitution (Repeal of Restrictions) Act, 1958 (No. 38), provided for the
repeal of para. 6 of the First Schedule to the Ghana Independence Act and of
ss. 32, 33 and 35 of the Constitution. In the passage of the Bill, the full
procedure required by s. 32 of the Constitution was followed for the first and
last time.1 The Government had no difficulty in obtaining the required two-
thirds majority in the National Assembly and, since they had a majority in
each of the Regional Assemblies, these all gave the necessary approval. The
reasons for the Bill were given by the Prime Minister as follows:
"It is the belief of the Government that in a developing society such
as Ghana the law must be both certain and flexible. Experience has
shown that the present Constitution is defective and obscure in many
respects. It is, for example, difficult to say, with certainty, whether any
particular Act of Parliament may or may not indirectly amend the
Constitution. ... I wish now to inform the House, quite frankly, that my
Government accepted the Constitution as drawn up in the United
Kingdom with the gravest misgivings. We were, however, faced with a
situation where independence might well have been delayed had we
refused to accept the text which was presented to us." 2
The Prime Minister added that the overwhelming support for the
Government in the country made it unnecessary to retain the elaborate
procedure of referring constitutional Bills to the Regions. Justifying the
repeal of s. 35, which required Bills affecting chieftaincy to be referred to
Houses of Chiefs after introduction, the Prime Minister said that the wording
of the section made it difficult to determine the Bills which should in law be
referred to Houses of Chiefs. He also felt that consultation
1
The only previous amendment to the Constitution had been an indirect
one occasioned by the establishment of the Contingencies Fund (Con
tingencies Fund Act, 1958 (No. 18), s. 4). This however only required a
two-thirds majority in the National Assembly.
2
with the chiefs was better carried out at an early stage in the drafting of a
Bill. To Opposition objections that the repeals would mean that the
Constitution could thereafter be amended by an ordinary Act of Parliament
rushed through in one day, Mr. Kofi Baako retorted that the same position
obtained in Britain.1
Apart from those already mentioned, the following amendments were
made to the Constitution before its repeal in 1960:
2. Sections 25 and 26 (which related to disqualification for

membership of the National Assembly) were amended by providing that
a person should be disqualified for election to the Assembly, or, if
already a member, should lose his seat, if he had been subjected to
preventive detention. A member would also lose his seat if he were
absent without the Speaker's consent from twenty consecutive sittings of
the Assembly, or if in the course of the proceedings of the Assembly he
publicly declared his intention of systematically refraining from
attending its proceedings. 2
3. The provisions relating to the resignation of Ministers and
Parliamentary Secretaries were amended to counter the practice of
forestalling dismissal by tendering resignation. The amendments
provided that a resignation would not be effective unless accepted by the
Prime Minister.3
4. The Judicial Service Commission established under s. 55 was
dissolved. Thereafter all judges of the Supreme Court and appeal
commissioners were appointed on the advice of the Prime Minister. The
power to appoint and exercise disciplinary control over judicial officers
became exercisable on the advice of the Chief Justice, given after
consultation with the Prime Minister. 4
5. The functions of the Public Service Commission were curtailed by
bringing all foreign service posts and an additional
1
2
National Assembly (Disqualification) Act, 1959 (No. 16). The last two
amendments were directed at the Opposition's practice of boycotting the
Assembly. The amendments are now embodied in the National Assembly
Act, 1961 (Act 86), ss. 1, 2.
3
Ministerial Offices (Resignation) Act, 1959 (No. 42). The amendment
relating to Ministers is now embodied in the Republican Constitution
(art. 17(c)). Parliamentary Secretaries have disappeared. Their successors,
Deputy Ministers, are appointed under the President's general powers
and not under express statutory provision.
4
Constitution (Amendment) Act, 1959 (No. 7), ss, 5-7,
number of senior home sendee posts under the control of the Prime
Minister. The latter posts included that of the Attorney-General, who
was also required to act on the direction of the Prime Minister in
relation to prosecutions for offences against the safety of the State. 1
2. Section 63 was amended by the creation of the Brong-Ahafo
Region, which was formed out of the northern part of the Ashanti
Region and a small area taken from the Northern Region. 2 Another
change was the renaming of the Trans-Volta/Togoland Region, which
became the Volta Region. 3
3. The provisions relating to Houses of Chiefs, namely ss. 63(2), 67
and 68 (except sub-s. (4)), were repealed. Certain of them had become
spent or superfluous on the enactment of the Houses of Chiefs Act, 1958
(No. 20). The repeal of the remainder made it possible to restore the
position under which the Government could control the final
determination of local constitutional disputes. This was done by an
amendment giving the Governor-General power to confirm, vary or
refuse to confirm the findings of an appeal commissioner. 1
Apart from the amendments mentioned in paragraph 6 above, a number
of other changes affecting chieftaincy were made at this time. The four
territorial Councils were considered to have been rendered superfluous by
the establishment of Houses of Chiefs and were accordingly abolished. 5 In
moving the second reading of the Bill abolishing the Joint Provincial
Council, Mr. A. E. A. Ofori Atta said:
" Hon. Members will not wish the ending of this notable institution
to pass without some appreciation of the services which it has
performed for the benefit, not only of the area from which its
members are drawn, but of the country as a whole. The Joint
Provincial Council has a long history: during its lifetime it has
contributed much sound and safe advice to successive Governments,
and has played a prominent part in the development of the country. I
should like, Mr. Speaker, to express the gratitude of the Government,
and of the country, to those members of the Council who have given
so much of
1
Constitution (Amendment) Act, 1959 (No. 7), ss. 3, 4, 9.
2
Brong-Ahafo Region Act, 1959 (No. 18).
3
Volta Region Act, 1959 (No. 47).
4
Houses of Chiefs (Amendment) Act, 1959 (No. 8), ss. 11, 17.
6
Councils (Northern Territories and Trans-Volta/Togoland) Dissolution Act,
1958 (No. 31); Joint Provincial Council (Dissolution) Act, 1958 (No. 51). The
Asanteman Council was abolished by the Houses of Chiefs Act, 1958 (No. 20), s.
47.
their time for the benefit of their fellow-countrymen, and to express the
hope and conviction that these same members although now sitting in two
Houses, will continue to help and support the Government." 1 Another
change was the removal of traditional members from the local and
municipal councils, making those bodies fully elective. 2 Again, the
continued prevalence of stool disputes led to the passing of the Chiefs
(Recognition) Act, 1959 (No. 11) (as amended by No. 48 of 1959). This
restored the concept of Government recognition of chiefs, which had
disappeared with the repeal of the Native Authority Ordinances. 3 It
provided that no enstool-ment or destoolment of a chief after 18th
December, 1958 was to have any effect unless recognized by the Governor-
General. It also empowered the Governor-General to direct any person not
to exercise or purport to exercise the functions of a chief and not to reside
within a given area, thus reviving the idea of removal orders. 4 Legislation
was also passed strengthening Government control over stool lands and
other stool property. 5 During this period a number of other Acts were passed
on matters usually classified under the heading of constitutional law. In the
main these Acts dealt with various aspects of state security, and had
important consequences for personal freedom. Since they remain part of the
current law they are discussed in the chapter dealing with this subject. 6
Mention should also be made of the Bank of Ghana Ordinance, 1957 (No.
34), which established a central bank under the name of the Bank of Ghana
and created the Ghana pound, at parity with sterling, as the unit of currency.
The Bank was set up with the aid of the Bank of England and was seen by
Dr. Nkrumah as " the foundation on which the superstructure of our
economic independence would be built ".7
1
Pari. Deb., Official Report, Vol. 12, pp. 616-617.
2
Local Government (Amendment) Act, 1959 (No. 14), s. 2; Municipal
Councils (Abolition of Traditional Members) Act, 1959 (No. 15).
3
See p. 46, ante.
4
See p. 46, ante.
6
Ashanti Stool Lands Act, 1958 (No. 28); Stool Lands Control Act, 1959 (No.
79); Stool Property (Recovery and Validation) Act 1959 (No. 31) (as amended by
No. 51 of 1959).
6
See Chap. 5, post. The Acts included the Emergency Powers Act, 1957
(No. 28), the Preventive Detention Act, 1958 (No. 17), the Sedition Act,
1959 (No. 64) and the Treason Act, 1959 (No. 73). Other important
constitutional Acts were the Deportation Act, 1957 (No. 14) and the
Immigration Act, 1957 (No. 15), which are dealt with in Chap. 4, post.
7
I Speak of Freedom, p. 111.
CHAI\ 1.—Constitutional Evolution 73
Announcement of the Republic
On 16th December, 1959 Dr. Nkrumah announced in the course of a debate on foreign policy that his
Government proposed to introduce a new Constitution in the following year. After remarking that Ghana was a
monarchy with the same Head of State as the United Kingdom, he went on:
"It is essential that we make it absolutely clear that this does not mean in any way that Ghana is dependent
upon any other country whatsoever. . . . I wish, to emphasise this point because our present constitutional
position is often misunderstood, and responsible political leaders abroad have even suggested that our
membership of the Commonwealth fetters in some way our independence. This is not so. . . . Perhaps one of
the reasons for the misunderstanding arises through the fact that our present Constitution was not enacted by
the Ghana Parliament but was enacted by the United Kingdom Government at the time of Ghana's
independence after consultation with the Ghana Government.
I am sure the whole House will agree with me that the time has now come for the people of Ghana to
devise for themselves a new Constitution best suited to the needs of Ghana. The technical work on this has
already commenced and various consultations in regard to it are now taking place." 1
The Prime Minister did not at that stage disclose that it was intended to convert Ghana into a republic, but his
statement was generally assumed to point to this. The means by which the republican Constitution came into
existence are described in the next chapter.
1
Pari. Deb., Official Report. Vol. 17, pp. 637-638.

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CONSTITUTIONAL LAW OF GHANA

1. THE EARLY PERIOD OF BRITISH RULE, 1821-1874

The Committee of Merchants

Resumption of Crown Government

British Settlements and Foreign Jurisdiction Acts

Poll Tax Ordinance

First Attempt at Municipal Government

2. BRITISH ASSUMPTION OF TERRITORIES, 1874-1914

3. COLONIAL GOVERNMENT, 1914-1945

!Leg. Co. Deb. (1916-17). 16.

Disturbances of 28th February, 1948

The Coussey Committee

Legislative Assembly.—The Legislative Assembly consisted of the

Creation of office of Prime Minister

Legislative Assembly.—The Assembly consisted of the

The Bourne proposals

The Togoland Plebiscite

General Election of 1956

The Ghana Independence Act

Amendments to 1957 Constitution

2. Sections 25 and 26 (which related to disqualification for

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