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<onaiwu.ogbomo@wmich.edu> Philip A. Igbafe's "The Benin Water Rate Agitation 1937-1939: An Example of Social Conflict," in _Journal of the Historical Society of Nigeria_ vol. IV No.3 December 1968, pp.355-373 will be relevant to your work. The article argues that, "The Benin City water works were originally constructed in 1910. By 1923, the idea of strengthening the water works in order to provide Benin City with `a proper and adequate supply' of water had gained ground." (p.355) It was the process of strengthening the provision of water supply which led to increased water rate and thus set the stage or the protest against the structure of the Benin Native Administration.
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