In 1939 Nigeria was divided into three Regions for purely administrative reasons. These regions, to all intents and purposes, did not constitute separate governments. In fact, between 1939 and 1945, these regions had no legislatures of their own. Even under the Richards' Constitution, when they had separate legislatures they had no independent powers. In practice the state legislatures under the Richards' Constitution (1946-1951) were no more than agents of the governor and the central legislature. Between 1951 and 1954, however, glimpses of a federal division of powers began to appear because the regional legislatures had powers to make laws over issues within the boundaries of their regions. More specifically, the regional legislatures exercised such powers in electoral matters. For example, in 1951, the Electoral Regulations for election into the central and regional legislatures were in two parts. The first part was the General Regulations under which the elections were conducted while the second part was the Specific Regulations which laid down the procedure for elections in each region of the country. To a large extent, although the Macpherson Constitution of 1951 was not federal, the Electoral Regulations under that Constitution paid due respect to the varieties in the nation following the tripartite administrative division of 1939. It was not until 1954 that a federal constitution with a clear division of powers and recognized spheres of influence finally came into operation.