An International Multi-Disciplinary Journal, Ethiopia
Vol. 5 (2), Serial No. 19, April, 2011
ISSN 1994-9057 (Print)
ISSN 2070-0083 (Online)
First One Hundred Days of Oil Production in Ghana
(Pp 16-28)
Gyampo, Ransford, E. V. - Department of Political Science, University
of Ghana, Legon
E-mail:
[email protected] or
[email protected]
Phone: +233244277275
Kuditcher, Nene-Lomotey - Department of Political Science, University
of Ghana, Legon
E- mail:
[email protected]
Asare, Bossman E. - Department of Political Science, University of
Ghana, Legon
E-mail:
[email protected]
Abstract
This paper discusses the events and happenings in Ghana within the first one
hundred days of oil production. Using elite interviews and media reports, the
paper chronicles several challenges and problems including lack of
transparency, secrecy, consensus building, discontentment, etc that have
occurred in the oil industry. Given that these were the same challenges that
characterized the preparatory processes prior to oil production, the paper
argues that the challenges and problems of the oil industry within the first
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Vol. 5 (2), Serial No. 19, April, 2011. Pp 16-28
hundred days of oil production are not mere teething problems but signs of
greater challenges to come. The paper concludes on the note that timeous
and prompt solution to these challenges is crucial in ensuring that the oil
becomes a blessing to the nation in so far as development and promotion of
good governance and democracy are concerned
Introduction
Ghana officially commenced oil production in commercial quantities on the
15th of December 2010. However, preparations prior to production in terms
of the drafting of appropriate policy, legal and regulatory framework were
weak (Gyampo, 2011). Indeed, the nation’s first oil production was
undertaken without the guidance of any major legal and regulatory
framework. Moreover, much effort was not made to ensure consensus
building and transparency in the preparatory processes towards production
culminating in a feeling of being sidelined in the preparatory processes by the
opposition political parties and Civil Society Organizations (CSOs) (ibid).
These gave credence to the paranoia that the country’s oil find could result in
a curse. Within the first one hundred days of oil production, that is, from 15th
December 2010 to 25th March 2011, several activities and events have taken
place in Ghana’s emerging and nascent oil industry that gives cause for
concern. These events do paint a picture of a gloomy future and negative
impact of Ghana’s oil production on the country’s development as well as
pollute her relatively peaceful democratic environment. On the other hand, it
has also been argued that in every new and emerging oil economy, there are
bound to be mistakes and teething problems that can be easily resolved with
time (Paul, 2011). In this regard, the events that may have characterized the
first one hundred days of oil production in Ghana may not be necessarily
“life threatening”.
Generally, the literature on natural resources have focused on how to sustain
development in mineral economies (Auty, 1993) as well as the paradoxes
associated with oil discoveries. In this regard the works of (Lynn, 1997),
Gelb (1988), and Humphreys et al. (2007), come to mind. Studies on
Ghana’s oil discovery in commercial quantities have also mainly focussed on
how to manage the expectations of people (Anaman, 2008; Asante, 2009);
deal with potential sea-conflicts (Jonah, 2010); utilize the proceeds in order
to save the country from the resource curse syndrome (Moss and Young,
2009; Asafu-Adjaye, 2009); inter-sectoral impacts of oil production (AsafuAdjaye, 2010); as well as critical assessment of preparations that were made
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First One Hundred Days of Oil Production in Ghana
before oil production (Gyampo, 2011). Nonetheless, these studies have not
focussed on how oil producing countries have fared and events that have
occurred in these countries within the first few months of production.
Importantly, a thorough analysis of events and happenings in an oil
producing country within the first one hundred days of production, for
instance, is crucial because it enables one to predict with some degree of
certainty the future outcome of the oil find. It is in the light of this that this
paper sets out to discuss and analyze events that have taken place in the first
hundred days of oil production in Ghana. As coming events cast their
shadows, this endeavour is useful in determining with some level of precision
whether the activities that have taken place within the first one hundred days
could heighten or reduce the possibility of the resource curse syndrome in
Ghana.
Theoretical Underpinning
When state capacity is low and the abilities of the electorate to monitor and
control government activities are weak as the experiences of crony or
prebendal states illustrate, the discovery of natural resources in commercial
quantities increases competition for control of the state. This leads to political
violence and the use of state resources by those who control the state to
maintain their hold on political power. In specific terms, state capacity
denotes organizational coherence and expertise among the various agencies
of the state that lead to the provision of policies and programmes for the
benefit of the citizenry. The absence of state capacity is perhaps the main
reason why many developing economies continue to lag behind in several
human development indicators (Howlett and Ramesh, 2003). In contrast,
when a country is resource poor, there is less competition for state control
which favors elite cooperation and the maintenance of democratic
governance (Chaudhry, 1997). In a one party and no party settings, resource
abundance allows the incumbents to increase their political support and
consolidate their hold on political power. In essence, the more rents there are,
the larger the electoral support for the incumbent government. The interesting
case arises when the incumbent faces an opposition in a democratic political
competition. In that case, abundance of resource rents may have crucial
effects on the outcome of democratic elections and on democratic governance
(Lam and Wantchekon, 1999).
If the ability of the state to enforce the law is weak, the incumbent
government will tend to have some discretionary power to generate rents and
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Vol. 5 (2), Serial No. 19, April, 2011. Pp 16-28
to distribute these rents to citizens or/and voters. Such leaders tend to be less
transparent in handling the proceeds of natural resources. As incumbents,
they always have an informational advantage over the availability of the rents
and allow it to alter the structure of the budget for electoral gains and not
necessarily to activate developmental processes. Informational advantage and
politicization of budgets can prove to be decisive in democratic elections and
are likely to enhance incumbency advantage (Wantchekon, 2002). In a
country like Norway, where budgetary procedures are transparent with
limited discretion of the executive, natural resource discovery and abundance
does not confer incumbency advantage. However, such transparency is
lacking in a country like Nigeria, where the ruling political elites have often
strived to use all corrupt means to siphon the oil money for their personal
gains (ibid: 7). If the opposition is unable to resort to non-constitutional
means such as political unrest to compete for political power, incumbency
advantage persists over several electoral cycles and leads to one party
dominance. This is the case in Botswana, where as a result of strong rule of
law and political high-handedness, even perpetually losing parties have opted
to abide by electoral outcomes (ibid: 9). However, when the opposition can
use political unrest, one party dominance over oil resources could incite them
to use illegal means such as riots or coups to compete for political power.
Usually, the opposition criticizes the political elites for corruption, lack of
transparency and marginalization. With these charges, they may be prepared
to resort to unorthodox means to make the state ungovernable (ibid). The
incumbent, anticipating this reaction of the opposition may choose to ban the
opposition party or force this party to merge with the ruling party, thereby
creating an authoritarian government (Yates, 1996).
Natural resource discovery in abundance could therefore lead to a curse for
one of the following reasons: (1) it could allow an already dominant or
authoritarian party or a coalition of parties to extend its level of popular
support and consolidate its hold on political power; (2) it could generate
incumbency advantage and political instability, which could incite the
incumbent to adopt repressive policies towards the opposition; (3) it could
generate an open and extra-constitutional conflict (civil war), which could
result in a dictatorship by the opposition party or the incumbent party as
happened in former Zaire, Congo Brazzaville, and Liberia. Against this
background, this paper stresses the importance of adequate preparations in a
manner that ensures national consensus about how Ghana can manage her oil
resources. This would minimize oil’s challenge to the country’s good
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First One Hundred Days of Oil Production in Ghana
governance and democracy. However the argument that natural resource
discovery could lead to a curse and threaten good governance and
democracies, especially in developing countries is made real and tend to
justify the kind of inadequate and opaque preparatory measures Ghana
undertook prior to oil production (Gyampo, 2011). Ghana’s current situation
fits the theoretical argument as advanced. This is shown in the opacity and
marginalization of the opposition political parties as well as CSOs in the
preparatory processes. (ibid). More importantly, a thorough analysis of
events that have taken place within the first one hundred days of oil
production in Ghana raises some skepticism about the future of Ghana’s oil
production as a natural resource blessing.
Analyzing Events that have taken Place in the first Hundred Days
Ghana officially commenced oil production on 15th December 2010.
However, all the issues raised in this paper regarding the weak preparations
made, absence of a major legal and regulatory framework that would
determine who can tap Ghana’s oil and the conditions and rules under which
the resource could be tapped, as well as oil’s challenge to democracy and
good governance have not been addressed. The ceremony to start the
production graphically illustrated the potency of Ghana’s oil to divide and
curse its citizenry. Somehow, the president and his staff failed to assign
proper and meaningful roles to his predecessors (particularly former
president J.A. Kufuor who played a significant role in getting the investors to
invest in the oil industry during his administration, from 2001 to 2009)
during this all-important ceremony. Again, the flag bearer and leader of the
largest opposition party in Ghana, Nana Akufo Addo, was not invited to the
ceremony. This has heightened the feeling of neglect and marginalization by
the opposition in Ghana’s emerging oil economy. Without serious efforts to
deal with these challenges, the nation may be sitting on a time-bomb.
Moreover, parliament fully passed the Petroleum Revenue Management Bill
(PRMB) after several amendments on 2nd March 2011. The memorandum
that accompanied the Bill indicated that it was aimed at providing a
framework to guide the efficient collection, allocation and management of
petroleum revenue for the benefit of current and future generations of
Ghanaians (Draft P.R.M.B, 2011). The Bill was to also ensure the overall
management of petroleum revenue based on sound and sustainable fiscal
policies that transcends political regimes as well as ensure a provision of a
clear assignment of responsibilities, from collection to final utilization of
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Vol. 5 (2), Serial No. 19, April, 2011. Pp 16-28
petroleum revenue within a transparent and accountable framework (Daily
Graphic, 2011:1-2). The key features of the Bill are the establishment of the
Ghana Heritage Fund (GHF) and the Ghana Stabilization Fund (GSF). The
GSF is to cushion the impact of price variations on the public or cushion
public expenditure capacity during periods of high prices and adverse
production changes, while the GHF will provide an endowment to support
the welfare of future generations after the underground petroleum has been
depleted (Draft P.RM.B, 2011: 8). Both Funds are collectively referred to as
the Ghana Petroleum Funds (ibid).
Given the potency of inappropriate and improper management of revenues
from natural resources to create chaos, confusion and derail the development
of the state as has been witnessed in many countries, such as Nigeria and
Sudan. The passage of the PRMB, though belated, was crucial. However, as
the situation was in the preparatory processes prior to oil production, there
was not much consensus reached on several issues in the passage of the bill, a
situation that creates a serious recipe for conflict (Daily Graphic, 2011:3).
CSOs and the minority opposition parties in parliament severely criticized
their marginalization in the processes towards the drafting of the bill. The
minority again vehemently opposed the blanket collateralization of Ghana's
future oil revenue which was contained in clause 5 of the Bill. The
controversial Clause 5 of the PRMB - which initially stated that future
revenues from oil could not be collateralized and which government sought
to amend to allow for collateralization, generated heated debates from the
two leading political parties in Ghana’s parliament. The ruling majority,
however, insisted on amending the bill to allow the state to use oil revenues
as collateral in accessing loans in flagrant disregard of the views of about 80
percent of Ghanaians who opposed the use of oil revenue as collateral
(Kennedy, 2010). Indeed, many people in the Western Region of Ghana have
since expressed disappointment at parliament’s decision to permit oil-backed
loans (Daily Guide, 2010:18). Apart from the argument that if government is
allowed to collateralize the oil revenue, there will be indiscriminate
borrowing which could create problems for the country’s economy in the
future, there is another latent reason why the opposition parties have kicked
against collateralization. They have argued that it could be used as a
mechanism to perpetuate the ruling elites in power in the sense that it gives
them access to loans which could be “misused” for political benefits. They
have therefore pledged to “match the ruling party boot-for boot” and ensure
that it does not use its access to such oil-backed loans to its advantage in the
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First One Hundred Days of Oil Production in Ghana
2012 elections. Needless to say, such determination psyches and prepares
political apparatchiks and party foot-soldiers for conflict.
One other issue that generated intense debate in Ghana’s Parliament during
the passage of the PRMB was the request by the chiefs and people of the
Western Region for the allocation of ten percent of the oil revenue into a
fund for the sole development of the region. The attempt to reach consensus
on this was unsuccessful. While the majority kicked against the request on
grounds of its potency to breed divisive tendencies in the country (even
though the sitting vice president, John Dramani Mahama, on an earlier
electioneering campaign trip in the Western Region promised them a ten
percent share of the oil revenue), the minority argued that even though the
Western Region is endowed with several natural resources and contributes
immensely towards the nation’s development, no serious effort has been
made to develop the area by successive regimes. Again, the minority argued
that since the people of the Region were going to experience and bear the
direct brunt of oil production in terms of its adverse environmental impact as
the experiences of mining communities show in Ghana and in the Niger
Delta in Nigeria, their call for ten percent of oil revenue was legitimate and
had to be incorporated in the PRMB. However, with the typical adversarial
style that characterizes the conduct of many parliamentary sessions and
proceedings, the majority hastily voted against this position and left the
minority with no option than to threaten a court action (Daily Graphic,
2011:1-2). This has created discontentment among the chiefs and people of
the Western Region (ibid: 3). It would therefore not be surprising if they
resort to acts that could sabotage the oil industry and threaten the peace of the
area. This is because they vowed to resist any attempt to drill oil in the area
without meeting their request during the preparatory processes towards oil
production (Gyampo, 2011:12).
Meanwhile, the passage of the PRMB was scheduled to take place hand in
hand with the passage of the Petroleum Exploration and Production Bill
(PEPB) to provide a legislative framework for oil exploration and production
(Fuseini, 2011). Indeed, some have even argued that the latter should have
been passed long before the former. As the situation stood within the first
hundred days of oil production, there was no law to guide oil exploration and
production in Ghana. Who qualifies to explore oil, how to deal with
environmental impact of oil production and spillage issues were oblivious to
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Ghanaians even though oil production in commercial quantities had
commenced in full scale.
Furthermore, Kosmos Energy, a partner in Ghana's oil industry, within the
period under review decided to sell its share in the Jubilee Oil Field through
an Initial Public Offer (IPO) in the US, rather than selling it to the Ghana
National Petroleum Corporation (GNPC). This meant that the GNPC had to
compete for the Kosmos shares on the international market, if it still had
interest. The GNPC, which holds 13.75 percent interest in the Jubilee Oil
Field, last year decided to buy Kosmos Energy's 23.49 shares to increase its
stake in the oil find, and the government decided to source for funds from
China for this purpose (Ghanaian Times, 2011:1-3). However, at a press
conference organized in Accra on 10th March 2011 and addressed by Ato
Ahwoi, the Board Chairman of GPNC, he expressed disappointment about
the attitude of Kosmos Energy and noted that “GNPC has made several
contacts and negotiated with Kosmos Energy but it has refused to sell its
shares to us, and it want to do it through an IPO America. Hence, the idea of
GNPC buying the Kosmos Energy shares is closed for now." Even though it
is conceded that Kosmos Energy has the right to decide who to sell its share
to, some Ghanaians have argued that the GNPC should have been given the
opportunity to buy the shares as has happened in other oil producing
countries to create a semblance of national ownership of such natural
resources. In Nigeria, for instance, the Royal Dutch Shell PLC sold four of its
on-shore oil blocks to local oil producers eager to snap up Western oil
major’s properties as unrest in North Africa and the Middle East had boosted
global crude prices (Public Agenda, 2011:7).
Another major challenge is that even though officials were aware of Ghana’s
fortunes to join the oil producing countries, no effort was made to boost the
capacity of the Tema Oil Refinery (TOR) to be able to refine oil produced
within the country. This did not taken place within the first hundred days and
one is not sure whether it would be done at all. Technically, even though an
oil refinery exists, it has no capacity to refine the country’s oil (Ahwoi,
2011). Given the Ghanaian parliament’s seeming unwillingness to pass the
Right to Information Bill, Ghanaians have been kept oblivious regarding the
quantity of oil sent out for refinery and the actual quantity that is refined.
Moreover, there seem to be conflict of information about exactly how much
Ghana’s oil is sold on the international market. In January 2010, it was
rumoured that Ghana’ oil was sold below the world market price (USD 70
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First One Hundred Days of Oil Production in Ghana
per barrel as against USD 90) even though Ghana’s oil is of higher quality
than most oil being sold on the world market. Officials and the Jubilee
Partners (Tullow Oil, Kosmos Energy, E.O Group, Anadarko and GNPC)
have, however, refused to publicly disclose exactly how much Ghana’s oil is
sold on the world market, giving room for speculations and uncertainties. No
effort has also been made within the first hundred days of oil production to
publicly disclose the royalties paid to the nation by The Jubilee Partners. This
has created suspicion among political elites of the opposition parties. Ghana
earned approximately a hundred and ten million dollars from the sale of its
first share of crude oil from the Jubilee Field. The GNPC’s lifting of a total
of 995,259 barrels of oil came after three previous consignments had been
taken by Tullow Oil and the other partners in the venture (Ahwoi, 2011).
Even though what the nation earned from the lifting and sale of her oil is
known, the royalties that have accrued the nation from the lifting and sale of
oil by the other Jubilee Partners remain unknown. Unfortunately, the many
Ghanaians who have been “kept in the dark” have been silent either because
of apathy or ignorance and have not questioned the political leaders about
their lack of information particularly regarding the exact proceeds in terms of
royalties from the sale of the oil. With this deficiency, the citizenry are
unable to monitor and control the activities of government in so far as issues
relating to oil revenue are concerned. The tendency for this situation to erupt
into violence after gullible supporters of the opposition have been incited to
demand their fair share of the oil revenues as well as the use of resource rents
by those who control the state to maintain their hold on political power
becomes imminent under such conditions of secrecy. The current situation
creates room for embezzlement, and misappropriation as well as other
corrupting deals with the nation’s oil resources by unscrupulous leaders
(Manteaw, 2009). Within the period under review, the natural resource seems
to have conferred some incumbency advantage over the political elites in
power. Given the phenomenal institutional weakness in Ghana, leaders have
exercised their discretion regarding which information about the oil revenue
they would disclose and which one they would conceal from the people.
Unfortunately, these are the tendencies that have led to conflict and
threatened the existence of several oil producing states (Gyampo, 2011).
Another significant happening within the first hundred days of oil production
in Ghana was rent price hikes or increases in rent advance and the ejection of
tenants who could not afford the new rent rates by their land lords/ladies. The
monthly rent of an average apartment in Takoradi, the capital town of the
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Western Region where the oil is produced, was increased from GH¢50 to
GH¢500 and tenants were asked to pay three years rent advance in
contravention of the nation’s rent control regulations (Arthur, 2011). A single
plot of land that was sold for GH¢1,500 before the commencement of oil
production was increased to GH¢10,000 (Daily Guide, 2010:18). Some local
and indigenous inhabitants who were unable to pay these increases,
particularly regarding the rents for accommodation lost their rooms and
apartments to foreign investors who could afford to pay such huge rent
increases. This has created disenchantment among several residents of
Takoradi, particularly those who have lost their accommodation to foreign
investors (Arthur, 2011). Given the country’s huge housing deficit, any move
to worsen the problem must not be tolerated. Again, the seeming
unwillingness and inability of the government to enforce its rent control
regulations could lead to a revolt among those who have lost their
accommodation against the state or create conflict between them and the
foreign investors in a manner that could sacrifice the peace of the region and
ward-off investors.
There were also been reported clashes between state security agencies and
fisher folks in the oil prospecting area. Instances have been recounted when
fishermen returning from sea in Essiama in the Western Region of the
country were accosted by the navy, beaten up and their catch taken away
from them (Jonah, 2010). In such instances, the poor fishermen had no
recourse to justice. Even though this occurred in the preparatory process
towards oil production in Ghana, it did not cease within the period under
review and there seem to be no serious effort to deal with it. The situation
raises concern about a looming sea-use conflict.
Last but not least, the country seemed to have intensified her effort to explore
more oil within the period under review. Key projects that were commenced
include the appraisal of the Tweneboah Complex, the ENI Sankofa and
Deepwater Tano Block. For the implementation of the exploratory activities,
an amount of GH¢ 405,495,572.00 was allocated (Budget Statement, 2011:
90). Much as this initiative is commendable, the state has not done well in
empowering Ghanaians to be active participants in the oil exploration
process. In Uganda, for instance, the government has committed itself to a
policy of putting in place domestic industrial infrastructure which would
guarantee a significant role for Ugandan entrepreneurs in the exploration and
management of crude oil deposits in the country. Without this arrangement,
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First One Hundred Days of Oil Production in Ghana
the government has decided not to be in haste to export the nation’s crude oil
(Paul, 2011). Unfortunately, in Ghana, a "Local Content and Local
Participation in Petroleum Activities - Policy Framework", which indicates
the desire of government to ensure that the control (about 90 percent), as well
as benefits in the oil and gas discovery and production will remain with
Ghanaians by the year 2020, was still not fully in place within the period
under review (ibid). Even though some have argued that it is unrealistic to
have the kind of local content policy being proposed, government has not
shown any sign of commitment in making such policy proposal realistic.
Conclusion
The first one hundred days of oil production in Ghana was saddled with
several challenges and happenings that create scepticism about the
contributions of oil to Ghana’s development, democracy and relative peace
and tranquillity. With hindsight of the adage that coming events cast their
shadows, it is reasonably fair and plausible to argue that the current lapses in
Ghana’s emerging oil industry represents a sign of major difficulties and
problems ahead. To be fair, others have also argued that the happenings
within the first hundred days of oil production are mere teething problems of
the Ghanaian infant oil industry that may be resolved in a matter of time.
However, it is important to point to the fact that there were many lapses in
the preparatory processes prior the nation’s production of oil which were left
unattended to. Given the weak preparatory processes, lack of consensus, as
well as transparency, Ghana was deemed unprepared and not ready to embark
on her oil production (Gyampo, 2011). In spite of these challenges, the nation
went ahead to pump and export her first oil. Hundred days of oil production
has lapsed and issues about lack of transparency, secrecy, consensus
building, insufficient legislative frameworks, ignorance, apathy as well as
discontents among a section of the Ghanaian population, particularly those
from the Western Region continue to be a matter of grave concern to many
Ghanaians. If these were some of the problems that led to conflict in many oil
producing countries in Africa, such as Chad, Sudan, and Nigeria, one may
not be far from wrong in saying that Ghana may gradually be inching
towards conflict should there be complacency and failure to promptly deal
with the challenges before they become deep seated and assume hydraheadedness and be the recipe for political implosion.
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