FINAL EVALUATION - NATURAL RESOURCE CONSERVATION AND HISTORIC PRESERVATION PROJECT Team Members Donald Dembowski, Team Leader Kwasi Agbk?; Leila Calnan Michael Fox Contract KO AEP-l-oo-oo-OooU-OO. Task Order 803 Development Associates, Ioc. 170 .Vorth Lbm Sweet Arlrng~m l'irginra 22209-2023 L'S.4 Final Evaluation of tbc Gbana Natural Raonm and Historic Preservation (NRCHP) Project Tabk of Contents Executive Summary 1.0 An Overview of the Project 2.0 Methodology 3.0 Summary of Project Implementation to Date 3.1 The First Phase of Project Activities (1991-1998) 3.2 The Second (Consolidation) Phase (1998-2001) 4.0 Major Findings: An Institutional Assessment of GHCT The Capacity of the GHCT to Manage its Operations. Programmatic Activities, Endowment and Assets 4.1 The Mission and Strategic Vision of GHCT 4.2 Institutional and Administrative Capacity of the GHCT Secretariat 4.3 Financial and Asset Management of GHCT The Financial Viabilitv of GHCT Endowment Investment Management Non-Endowment Revenue Generating Assets 4.5 NRCHP Stakeholders: GHCT's Partner Organizations 30 and Impacted Local Communities 5.0 Thc Succcsw-s 2nd Failures of Consolida~ion Phasc Aclivilies 39 1 The GHCT Secretariat 40 5.2 Financial and Asset Management 5.3 The GHCT Board of Trustees 5.4 Key Stakeholders and Communities 6.0 Lessons Learned 6.1 GHCT Institutional Development 6.2 Relationships with Key Stakeholders 7.0 The Economic Impact ofthe NRCHP 8.0 Lessons Learned Relating lo the Economic Impact of the Project 9.0 Conclusions and Recommendations 9.1 Conclusions and Recommendations Related to the Institutional Capacity of GHCT 9. Conclusions and Recommendations Relavd to the Economic Impact of the Project Attachments: Annes I: Organizational Chan of GHCT Annes 11: List of Interviews and Meetings Annes Ill: Bibliography Executive Summary A. Focus and Purpose ofthe Evaluation Development Associates was contracted by the USAID Mission in Ghana IO conduct a final evaluation of the Natural Resource Conservation and Historic Pmation project (NRCIIP). to asscss thc accomplishments of the Consolidation Phase and its economic impact from initiation of the project in Phase 1 (1991-1998) until Phase 11 (1998-2001) ended. Specificall!. the evaluation team was also asked to determine if GHCT has the institutional capacity to cany out its mandate, which includes fund-raising. and if it is able to help sustain the conservation of Kakum National Park. The team was also to determine GHCT's capacity to sustain the preservation of the historic districts and structures within Cape Coast and Elmina towns. In conducting the evaluation. the team was IO focus on the economic impact of ihe prqject. and the project's success in demonstrating that there are linkages between conservation and heritage tourism. and economic development. A key objective of the evaluation was to estimate the direct economic benefits and cons of project-funded tourism development activities within the Central Region and nationwide. as well as the potential brnefia and costs of tourism development in the future. B. Major Findings I. The Institutional Capacity of GHa Interviews with soff at GHCT and a review of nrategic and work plans revealed that while the roles and responsibilities of staff are clearly defined at the Secrelariat in somc cases it is uncertain that the level of skill exists that is required to implement the T~st's programs and manage its assets appropriately. GHCT management and Board are aware or thcse shoncomings and arc currently taking steps to identify staff with the capabilities and experience required to supplement or replace the current skill level within he Secretariat. One of the ke? mandales of GHCT is to nise funds to increase the endowment for use in selected projects consistent with the Trust's mission. tinfortunately, them is linle or no capacity for fund-raising at the Secretariat and the Board readily admits that it has linle q1.1cit) in this rcprtl. I11is ix ;\!I ;IK:I liir t~xhnic;~l x\sixt:mec and xuppwt Frwn t%All>. In discussions with the Secretarial, it became apparent that there are large gaps in capacity relative to all aspects of financial management. Few documents were made available by the Secretariat relative to cash flow and most business enterprises. and the evaluation tram was not confident in the data that was produced. and unablc to accurately assess the overall financial viability of the Secretariat. At present. GHCT is responsible for a number of non-endowment revenue generating assets. nhich unfonunately hare proven to be liabilities inherited from CI during he transition phase. With the exception of the Canopy Walkway and rent collecled from one or more of the shops. the non-endowment revenue-generating assets have not been profitable. Many of the projects identified by the consortium and managed by CI prior to GHCT's stewardship were in various stages of dysfunction or non-performance at the time of transition. The Secretariat was not in a position during the transition phase to criticall? evaluate those assets to determine whether or not it made sense for GHCT to continue operating these enterprises. While creating new streams of revenue fulfills GHCT's overall mandate. it is not clear that any of the CI enterprises were pmperl? designed or managed to allou for an easy handover to GHCT as revenue-generating assets. 2. GHCT's Partners nod Stakeboldcrs There is a major gap in perception between GMMB's sdi and its Chairman. concerning the role of GMMB and its relationship with GHCT. The organizations' senior managers have reached an understanding about the appropriate relationship between rhe two organizations. and there is currently a draft MOU that both appear wad) to sign. During the transition phase. there was substantial disagreement about the Fabrication Workshop and whether it was considered an asset of GMMB or an asset of GHn. The staff had particularly strong feelings as several members of GMMB were trained by the Smithsonian Institution. and had traveled 16 the United States to receive this specialized training. The hcan of the controversy appears to be that GMMB staff considered the Fabrication Workshop to be an asset of GMMB, while GHCT considered it to be a pan of the Trust. Further. CIIGHCT felt that the Fabrication Workshop should be a revenut￾generating asset. while GMMB felt it was a key component of GMMB's ongoing operational assets. This is one of several issues that both patties plan to resolve following the ratification ofthc proposed Memorandum of Undcrstandinp. Despite GMMB staff concerns about GHCT. all GMMB staff members indicated that if tlic issucs that arose during tlic transition pliasc could bc resolved (man) wming over from the time of CI management) that GHCT would be able to fulfill its imponant niandate and make 3 niajor contribution to the preservation oC GMMB's Historic Preservation Program. Strategically. GMMB is in a position to become a ke) panncr cf GHCT. The Esecutive Director of GHCl' has been working hard to rcpair relationships and build a foundation for a strong pannership between the organizations. A htanonndum of i lndcrstnnding has hccn cc~nciudcd hctw~xn thc Wildlife Division anJ GIIC'I. to ordine tlic coniniiuiicnts and ubligatiun~ 01. butli prh. in a spirit or cooperation. During interviews. WD raised concern on how the process of requesting li~~iding hr project or iii~i~itc~~il~icc nwds \wuId bc actualized. but planncd to work on this nith GHCT stan: WD sraff espressed their willingness to uphold a spirit of cooperation. and recognize that GHCT is in its formative period. There was unanimous emphasis. however. on the hope that GHCT will not carry on in the foo~teps of CI who a-as perceived as "wearing the implementation jacket" rather than serving as a facilitator and a resource. There was strong criticism by WD during the consolidation phase relative to Cl's lack of transparent). poor communication and vep little cooperation in cornmunit! de\elopment activities. Several villages were visited adjacent to Kakum National Park. where communitia expressed frustration over the lack of benefits and improvements to their lives since tk Pro.iect bcgan. Complainu were largely focused on the loss of certain foods. agriculture damage and the availabilip of fanning and household implements. The mon serious matter. repeatedly addressed in ever). village. was the incidence of elephant crop raiding. Villagers have esperienced very little suppon from Cl or after the transition. GHCT. Community-based enterprise development activities. designed as alternative sources of income for communities whose livelihoods were altered with the changes to Kakum National Park. have been unsuccessful. Most have ceased to operate. 3. Economic Impact of the NRCHP The region has been steadily developing the infrastructure needed to suppon tourism, \vhile simultaneously capitalizing on the dedication of the area's conservationists to preserve its assets and on the tenacious entrepreneurship of its hoteliers to exploit than. Induced public investments in tourism-related infrastructure in the Central Region have taken place since inception of the Project. One ol' llir more visiblr signs of tourism development that can be linked to the NRCHP Prpically broken down to approsimately 50 million cedis on fish, 5 million cedis on chicken and 3 million cedis on beef. It makes an effort to buy as much as it can locally. Golden Beach Resorts gets its chicken and eggs locally. The sale of local vegetables has irc r~mticll. :\supplicr 01' li~sh vcgct;lblcs lo thc hotcl scctor repons a largc increase in the sales over the last three years. She sells ovcr 1200 kilos or fresh vegetables even month. Seafood is obtained from Axim, Discove and Takoradi in the Western Region. Seafood sales from one supplier in Takoradi - Cico Foods - to hotels in the Cape Coast/Elmina area has increased from a range of I00 to 200 kilos a month to 400 tc 1000 kilos a month. over the last five years. At Panafest, Emancipation and other festivals. demand further increases. The Kumasi Abanoir also supplies the Golden Beach Reson with meat products. including beef fillet, minced meat, lamb cutlets and chops. Three years ago the Hotel purchased approximately 100 kilos a week. and today it purchases 225 to 250 kilos a week. One focus of concern by both tour operators and hotels is the road from Accra to Capc Coast. as it is perceived that this road is quite dangerous. A mp that could be just over one hour is now extremely dangerous. and frequently takes three hours or more. The economic impact of tourism developmat is a factor in improving the livelihood of residents of the region's rural areas. Thus far. however, it has not been a major factor. The national government is benefiting from the increased tax revenues and foreign exchange earnings that are currently being collected from the Central Region and elsewhere mainly because of the success registered to date by the Central Region's touristn developnirnt prognm. Similarly, tourism-related busin-. banks and food wholesalers located outside of the region are benefiting from increased sales of their products and services. Both the national government and business firms are also benefiting from intangibles. such as the growing internarional status and bankable publicity that comes with having world heritage sites as tourism destinations After ten years of support and even though tourism has become the leading economic growth sector in the Central Region. tourism development has not as yet had an appreciable economic impact in the region beyond the Capc Coast-Elmira-Kakum Forest area. C. Lessons Learned 1. The Institutional Capacity of GHCT The most effective way to develop the institutional capacity of GHCT would have been to hire staff at the beginning of the Consolidation Phase. and instill mining and capacity in those employees from the first day of the msition phase. Instead. substantial capacity was built within CI to train other staff employed later for GHCT. with a shon and insulliciunt rans sit ion phase. New ernploycrs were hid and mind who then laclid LC necesu? capacit? to develop. operate and grow GHCT. Clear and open communication is key to the success of the collaboration between GHCT and its p~nnurs. ~xmicularly GMMU. WD and thc GTB. Regularly xhcdulcd mcflings should be instituted as part of an effon to implement the MOUs signed (including the MOU expected to bc signed in the coming weeks with GMMB). Functioning information-sharing channels will be essential to the success of the delivery of technical assistance and related project funding to GMMB. Little to no rural assessment work was done before beginning community development activities. Repeatedly, the evaluation team found capacity in and around the villages surrounding the park that could be brought to bear on development. for example local agricultural training institutes. or the University of Cape Coast. Instead, too often outside specialist \\en. brought in who in some uses knew less than some of the villagers the! were meant to be supporting. For cornmunit> bascd income-generating enterprises to succeed. more attention must be paid to the provision of technical assistance. close monitoring. and the method b) which the TA is provided. It would make more sense to send villagers to a local agricultural institute directl?. than to train either the staff of CI. GHCT or the Wildlife Division. to then train and uork with communities. 2. Economic Impacts of the NRCHP Inducing desired spread effects from the tourism development program will quire a variety of concerted actions, such as road improvements, promotional ventures, market development creating and improving tourist attractions. and enhancing recreational facilities that will gi\,e visitors to the Cape Coast area good mason to extend their visit to other destinations \\ithin the Central region and beyond. U. Conclusions and Hccon~n~endations I. Focused technical assistance should be provided to the GHCT Secretariat (and Board) to cornplctr the transition phase with adequate fund-raising capacity. financial management capacity. and administrative structures in place. This technical assistance should includc opcra~ional support. and improving partncnhips and collaboration with stakeholders. 7 . The human resource base of GHCT should be strengthened. In he shon term. GHCT should recruit additional technical staff for program management and stronger administrative support. A more experienced and senior financial manager should be hired immediately. Consideration should be given to recruiting a staff person with fund￾raising skills 3. The Strategic Plan of GHCT should be revised. and in some areas. its scope reduced. with considerably greater emphasis placed on fund-raising. The team reconimmds that GHCT realign its goals mvoy from enlerprise development and focus more on its role as a Trust - fund-raising and supporting partner institutions. One possible option to explore is subcontracting a low1 professional organization to focus on fund-raising in thr shon run. The GHCT goal of countrywide assistance should be put on hold until GHCT has copcity to meet its stated minion for the Central Region. . i Man) of GHCT's partner institutions need suppon reorganization and techniwl assistance. USAID should provide additional technical support in the area of training. capacil> building. ~iianagemmt. and organizational rcfomis. GHCT could serve as a [.a r~l~tator . ' to con~~wt pml1r.r orgimi;odons with thc USAID-providd tcchniwl assistance. 6. GHCT should not be engaged in the deliver) of technical assistance or be working to build its own enterprise management capacity. The leam recommends that GHCT serve more as a link, working as a facilitator or matchmaker beween other organizationsMGOs who specialize in technical areas (e.g. small and medium enterprise suppon and agricultural methods) to delivcr technical assistance and starc-up support for village level income generating activities. 7. The GHCT Board of Trustces should recruit new board members with mengths in technical areas not currently prexnt on the Board, mon importantly, fund-raising. The Board should focus as much as possible on its fund-raising capacity and begin to engage in fund-raising in the short term 8. An impartial team or auditing firm should examine data collected on visitors to Kakum National Park, Cape Coast and Elmina Castles. An independent audit should be conducted to determine the extent of leakages. if any. Assistance should then be provided to set up systems to improve revenue collection. which will serve to bener maintain and upgrade Ghana's historic sites and natural resources. 70 errsure cl~rrri~~rt~il ecununric gruwflr orrd to nruin~izc ecunonlic gains reulized fri~nr flu! NRCHP project. fire reom recon~rnenils: The team recommends that anention be given to ensuring that a realistic and well-focused tourism marketing strategy is in place for the Cape Coast area and that it be effectivel) implemented. The strategy should take account of the need to set standards for improving sanitation in areas adjacent to hotels and guesthouses and provide incentives to residents and local businesses to beautify the areas around these facilities. as well as the arcas around their own residences and places of business. The team also recommends that a well-managed tourism database and tracking system be developed and maintained to ensure that the tourism marketing strategy is effectively implemented. The team recommends that a regional non-governmental organization (NGO) be designated to serve as a clearinghouse for tourism development proposals for the Central Region. Unfonunately. the team was not able to identify an existing regional NGO with the technical and managerial staff needed to manage such an operation. Thus the team recommends the establishment and support of a regional entity as a counterpatl to the Ghana Tourist Board. The team recognizes the concerns expressed by owners and managers of hotels and other acc~i~oioda~io~i lilcili~ics. lbr pr~l'essionally trailicd. quality SUIT to deliver the quird service standards in an increasingly competitive industry. Funding consideration should hc. giwn to the cstablishmcnt ol' a national I-lotcl and Kcstaunnt xhool. which takes advantqr of the existing programs at the University of Cape Coast and the induse i~~lk~structi~re :~v:d:~lilc 111 tile area l'or prxtied tri~il~iug. The team also recommends that District Assemblies become more active in seeking investment funds needed to develop supporting infrastructure. such as awss roads and utilities. In addition. the Assemblies should institute and enforce policies that require putrntial sites lor hotels bc identified in advance. and wkc stcps to ensure that net￾access roads and utilities are improved prior to authorizing actual construction at the site. 1.0 An Oueniew of the Project 1.1 As part of its efforts to address the problems of economic decline, unemployment. poverty and out-migration, and following proposals from the regional ofice of thc Ghana Tourist Board. in 1988 the Central Regional Coordinating Council (RCC) established the Tourism Development Scheme for the Central Region (TODSCER). The principal objective of TODSCER was to serve as a regional entity to formulate policy and to coordinate multi-sectoral activities required for developing the region into an internationally competitive tourism destination. Following discussions with the United Nations Development Program (UNDP) mission. which visited the Region in July 1988. the proposed tourism scheme was expanded into the Central Region Integrated Development Program (CERIDEP). CERIDEP was designed to conserve the natural, historic and cultural assets of the Region. and stimulate the region's economy b) developing industries based on these assets, with tourism as the lead sector. In addition to tourism development. the need to anract investments was essential to support micro￾cntcrprisc dcvclopnient and agricultunl production as a basis for mcdium and large-scalc agro processing industries. 1.2 This Ghanaian and regional initiative received a major boost with a 53.4 million funding and technical assistance grant from UNDP for the period 1990 - 1993. UNDP funds matched with $2.4 million in Government of Ghana counterpan funding. COveI'ed vehicles and equipment. international expens. training. promotional materials and institution building. One result included the creation of a private - public sector partnership institution. the Central Regional Development Commission (CEDECOM) lo enhance the RCC's capacity to coordinate and integrate all regional development plans and activities and supervise implementation of the integrated development program. TODSCER (which is now the Tourism Unit of CEDECOM) was directly mponsible to thc Commission for capacity building and activities in the tourism scctor. Thc UNDP's assistance also provided CEDECOM with the funding necessar) to build the capacities of kc?. Government of Ghana line agencies to underlake neceswr) planning. technical studies. prc-invcstnient. project proa~otion and implementation activities. 1.3 In response to tlic Centnl Region's development initiatives and the need to levemge additional funding. in the fall of 1989 USAlD sponsored a visit by three Project oflicialr led by the Regional Secretary (Minister) to the US to meel with and make presentations to oflicials of USAlD in Washingon. D.C. Ghanaian officials also me1 with a number or specialized not-for-profit institutions with strengths in the arras of project management; natuml rcsourcc conservation: historic prcscwation: tourism promotion and mdtting; museums and i~itcrpretive services and debt conversions. These technical areas had been identified by the RCC as key to the success of its plans to develop the region's economy. \\ill1 toorisin :is ilic Icd wctor. Led by MUCIA. IIic IJS I'VOs incldcd a cunwrtiurn comprising of Conservation International. the US Chapter of the International Committee on Monuments and Sites (US - ICOMOS). the University of Minnesota Tourism Center, the Smithsonian Institution and the Debt for Development Foundation. I 4 in 1990 a Project Formulation Mission made up of representatives of these institutions visited Ghana and niet with key Government officials and the UNDP. The mission norked nith tlic RCC. CEDECOkl and key line agencies including thc Game and Wildlife Division (now the Wildlife Division of the Forestry Commission) the Ghana Museums and hfonuments Board and the Ghana Tourist Board. to develop proposals for funding b! USAID. In July 1991. the technical assistance and funding proposal for a five￾year Natural Resource Conservation and Historic Preservation Project (NRCHP) was approved by USAID. A grant of 55.6 million was made to MUCIA with he other consortium nictiibcrs as sub-granlccs. It was cstilnatcd at thc timc that this gmt could bc used to leverage an additional S4 million in debt conversions. The overall goal of the NRCHP project was to provide the technical assistance and funding needed to suppon the Central Region's efforts to stimulate economic growth through the exploitation of the region's considerable potential for tourism development. The purpose of the project was to ensure that in addition to facilitating the process of capitalizing on Ghana's tourism potential. steps were also taken to protect and preserve several of Ghana's most imponant ci~ltural and natural asseu - namely the Cape Coast and Elmina Castles. Fon St. Jago. and the KakumIAssin Anandanso National Park. I .5 The primar) goals of the NRCHP's technical assistance and funding were to suppon the Central Region to conserve i& tourism resource base. assure their integrated and sustainable development. promote the region as a quality destination, and support and strengthen the nascent private Kctor businesses and investments in the hotel. travel. food and beverage and related sectors. This was to serve as a catalyn for he overall development of the region's economy. 1.6 Unlike UNDP's assistancc. which was largcly liniitcd to wpacit) building. expcrts. training. equip~nent and vehicles for CEDECOM, the NRCHP's focus was on critical capital eapenditurcs necessary for the conservation of the three key World Heritage Sites: St George's Castle (Elmina), Cape Coast Castle and Fort St. Jago (Elmina); and for the creation and protection of the Kakum National Park and Assin Attandanso Resource Resense. (Kaku~n Conservation Area). Funding was also focused on the development of museums and interpretive services. and tourism promotion and marketing as it relates to the two key activities. The NRCHP's assistance in the areas of training. capacity and institution building were directed at national institutions responsible for monuments and biodiversity conservation. interpretation and tourism promotion. A principai and innovative element of the institution building assistance was suppon for the RCC in the establishment of a Trust to assure the flow of funds for future capital expenditure cons of historic preservation. biodiversity conservation and promotion. 1.7 Following a mid-term evaluation of the project in Augua and September 1994. it was notcd that itnpr~wmcnts in the Ghanaian economy rcsultcd in thc 'scarcity" of deb& for cam\ crsiot~s. '1'11~ rcs~~tlitt~l shonhll in cxpcc~cd rcwrcc> fir Ihc pn~jcxl Illu?. covcd with an additional grant 0fS3 million from USAID. bringing total project funding to S8.6 million. In addition to the funding provided by USAID. SZ million was donated by the American participating institutions in the form of equipment contribution of staff time, ;II~ re~I~tccd wcrl~c;d T;IIc>. 1.8 On the recommendations of the mid-term evaluation and following a request from XlLKl.4 lo L'S.4ID. the project was extended afier the conclusion of the five-year assistance in 1996. to March 1997. To consolidate the achievements of the preceding six- \car pcrid. cl sccond phu. of hc pmjcxt it. ihc "Consolidation Phasc" was approved ker the end of the one-year extension. With the termination of hlUC1A.s mandate. C'ollscnaticw I~i~cr~iti~~~l. a sub-gr~ntce undcr MUCIA. was clppointcd in 1998 to implement a tuo-year S2.4 million technical assistance and funding project. The Consolidation Phase was subsequently extended for an additional year and will termirwe June 30.2001. 2.0 Methodology As cited in the Scope of Work. the main focus of this evaluation was to assess: (I) the capacity of the GHCT to assume the responsibilities of managing its endowment and programmatic activities and assas; (2) the results (successes and failures) of Consolidation Phase activities; (3) the economic impact and effects of the entire project, during the period of time covered by Phase 1 (1991-1998) until Phase 11 (1998-2001) ended; and (4) the economic growih impact of the NRCHP project within the broader context of results expected under the Ghana Trade and Investment Reform Program (TIRP). In conducting the evaluation, the tuun utilized information from previous nudies and project evaluations. These included the Mid-Term Evaluation of the NRCHP Project undertaken in September, 1994; the Ghana Economic Analysis, prepared by Weidman Associaus. Inc. in June. 1997; and the report on the Provision of Technical Assistance to GHCT, prepared in April. 1998. by Price Waterhouse. Various approaches were used to compile the information needed to conduct the evaluation. During its first week in Accra. team members collected relevant data from pmject documents and conducted interviews with USAlD officials familiar with the project. including the current NRCHP Project Manager who is the Chief of the USAlD Trade, Agriculture and Private Sector Office. The team also had meetings with government officials including the Deputy Minister of Tourism; the Executive Director of the Wildlife Division of the Forestry Commission; the Ghana Museums and Monumcnu Board: a Program Specialist at the UNDP who is intimately familiar with the Central Region's tourism development program; and the current Country Director and staff of Conservation International. A bibliography of documents consulted and a complete listing of team interviews. site visits, and meetings arc contained in Attacl~nicnts appended to the Evaluation Rcprt. The team then depaned Accra and spent its next ten days in the Central Rcgion. what members undertook site visits to the Elmina Castle. Cape Coast Castle. Fon St. Jago. and the Kakum Natio~ial Park. Extensive meetings were held with the Ghana Conservation Heritage Trust (GHCT) Secretariat and Trustees. key staff of the Ghana Museums and Monuments Board, and the Wildlife Division. Interviews were conducted and meetings held with a number of Central Region tourism officials, including the Executive Director and members of the Regional Coordinating Council; the Minister of the Central Region; the Traditional Chief of Cape Coast; the Chief Economic Planning Officer and other members of CEDECOM; the Regional Manager of the Ghana Tourist Board; officials of the Business Advisory Center (BAC); staff of the Regional Ministry of Agriculture and the Agricultural Extension Service; the Regional Director of the Electricity Company of Ghana; the Project Engineer of the Ghana Water and Sewerage Corporation; the Regional Accountant for the Community Water and Sanitation Agency: and the Regional Head of Ghana Telecom. Team members also conducted interviews with a number of hoteliers and merchants in Cape Coast and Elmina. and with village chiels, elders and other inhabitants of communities adjacent to the Kakum Conservation Am. Selected villages included ICruwa. Masomagor. Ahomaho. Abrafo-Odumase. and Mfuom. Panicular attention was given during the evalualion to the findings that emerged from a comprehensive suwey of the hotel and restaurant industries in the Cenval Region. undertaken in October 1999 by the University of Cape Coast (UCC) in collaboration with CODECOM and UMES (the University of Maryland. Eastern Shore). The team discussed the results of the suwey with the two professors from the Depanment of Geography and Tourism at the Universit? of Cape CoasL who had been instrumental in designing and implementing the survey. The results of the survey were largely corroborated through interviews with hotel managers in the Cape Coast and Elmina areas. The team returned to Accra after its field visit and spent the remainder of the five-week ekaluarion in Accra. where team members conducted additional interviews and follow-up meetings with USAlD stan: Ministry of Tourism officials. SIGMA ONE the Chairman of GMMB. and Conswvation ltiternational star. Following these meetings, a draft evaluation report was prepared and discussed with the USAID Project Manager and his mff. Th~s was. in turn. followed by the preparation and submission of this Final Evaluation Repon 3.0 Summary of Project Implementation to Date 3.1 The First Phase of Project Activities (1991-1998) The first phase of the NRCHP project began in August 1991. The Final Project Review Repon prepared for USAID and MUCIA in August 1996 by Mcssrs Rick Huntington and K. Young-G?anipoli 11otc.d that the project mcl and cscccdcd most of its sotcd objecti\es and targets. Prqiect implclnentation in the fint phasc was a collahorativc partnership in which a number of Ghanaian implementing agencies received technical assislance from relevant US partners in the following areas: Ghana Museums and Monuments Board (GMMB) with US ICOMOS - historic preservation. Gumc and Wildlife Division (now Wildlife Division or the Forcur) Commission - WD) with Conservation International - natural resource conservation. Ghat13 Museums and Monuments Bmrd wi~h Smithsonian Institution - development of museums and interpretive services. Glrana Touris[ Bcwrd (GTB) is~irl~ University or Minnesota Tourism Center - tourism promotion and marketing. Regional Coordinating Council 11.itl1 Debt for Development Foundation - debt s\\'aps. hfliCl.4 - prqiect managenicnl and cstablishmcnt of an endowment 3.1.1 Historic Presenation. Funding and technical assistance during the first phase had been expended on complete stabilization and slart up of rehabilitation of three World Herilage Sites: Elmina and Cape Cwt Castles and Fort St. Jago. Specifically. basic construction material, tools, supplies and architectural ofice equipment were procured for GMMB. Work was completed for each of the three monuments including stabilization of deteriorating structural elements. the replacement of missing elements. prefabrication and repairs of building components, refinishing of exterior surfaces and lime washing. The demolition of inappropriate and unsafe units and the reconstruction of roofs were also executed, under subcontracts to local con5uuction companies. Technical studies and plans including Historic Structure Reponr management plans. working drawings and specifications for work elements. all archaeologicall? consistent. had been carried out on all three monuments. A workshop and fabrication center to support the carpentry work of the Monuments Division had been constructed. with the necessary woodworking machines installed and opemtional. Specialist training in post-graduate conscrvation studics was provided to trio Gl~maion architects at the University of Yok. with study tours lo the US and Jamaica. Technical. administrative and artisan stafrwere also provided with specialist training. I:uel and niaintenance costs ofthe vehicle for the Monuments Division were provided. 3.1.2 Natur~l Hnource Conscwation. The major achievement under this component was that a ne\\ 365 square kilometer national park (Kakum National Park) and a Resource Reserve (Assin Anandanso Resource Reserve) were created from two adjacent fom reserves and given the necessary national legislative backing. Technical assistance and funding were channeled into scientific studies and research. community ouucach. protection. interpretation and development of park infrastructure. Secondary data collection on the natural resources of the Kakum Conservation Area was completed. Training. vertebrate and plant research on the abundance and distribution of major species. particularly of scientific. economic. and cultural value also commenced during the first phase. Hydrology studies. public education on the goals and benefits of conservation. assessment of the potential for alternative income generating activities. construction of nature trails and the first Canopy Walkway in Africa were also acconiplishcd. Logistical support was givcn during this pcriod. including a provision tor tuel and maintenance for a fleet of vehicles and generillom procurement of field equipment and supplies such as boots. uniforms and tools as well as major investnients on the development of Park I-leadquancrs and visitor reception center huildinps (under subcontracts to local construction firms). Collahon~ion wth the Dotan! and Zoology Depan~ttenls ol' the Universities of Ghana (Legon) and Cape Coast. the Institute of Renewable Natural Resources (Kwame Nkrumah University of Scicncc and Technology. Kumasi) and ihc Water Resources Institus of the Council for Scientific and Industrial Research constitute major succcsscs of the first phase. 3.1.3 hluscunis and Interpretive Seruicn. Also during the first phase. a cadre of Ghanaian museum professionals at the Smithsonian Institution were uained in the areas of exhibition design. fabrication. museum education and guiding. museum management and exhibition research. A Content Comminee. comprised of leading Ghanaian acadeniics and professionals. was formed to curate exhibitions. Other accomplishments included the develop men^ and mounting of IWO major museum exhibits in Cape Coast Castle (1994) and Elmina Castle (1996). the production of a documentar\ for the Cape Coast Castle exhibit. construction of a Fabrication Center and Workshop housing the Exhibition Design Ofice. conservation laborator). and a graphic design and photographic studio. Additionally, this component supported the design and installation of the fim public natural history museum in Ghana ar Kakum National Park. Other activities included the procurement of exhibition conmaion materials and supplies. fuel and vehicle maintenance. and the establishment of guidelines for professional management of museum shops. 3.1.1 Tourism Promotion and Marketing. The principal focus of activities under this component was developing a strategy and an action plan for marketing and pmmoting the Centnl Region's tourism products. An assessment was made of promising target markets and their expressed product preferenccs. A tourism-marketing plan to guide niarketinp decisions was also developed. Training in marketing and promotion methods to enhance the capability of Ghana Tourist Board staff to access international iiiarkels. as well as familiarization tours for select local tour operators. were also carried out. Other activities under this wmponent include the development and printing of brochures and other promotional materials. training of visitor contact personnel at Kakum National Park and preliminary assessment of the polenrial for establishing Cooperative Village Lodges to provide cconomic incentives for communities around the park. Under a subcontract to the University of Illinois. a National Tourism Management Information System was eslablished and equipped to collect. analyze and manage visitor statistics and tourism trends. The Central Regional Bnnch of the Ghana Hotelim Association was reactivated. Support was also provided for the establishment of the Ghana Tourism Federation (a grouping of major trade associations such as the Ghana Hoteliers Association) as a private sector indust0 lobby. An annual National Tourism Conference was planned. where industry leaders and policy makers could exchange views and fashion smlegies for the development of the tourism industry. 3.1.5 Debt Swap. With the support of the Regional Coordinating Council and the Debt Management Unit of the Ministry of Finance and Economic Planning. Debt for Dr.velopiiimt Foundation (DDF) was able to carry out one swap. The swap involved a blocked currency transaction under which Slmillion of debt owed lo Shell I~iternatio~ial Company by its local subsidiary was purchased Tor SZS0.000 in rctum for a tax-deductible donalion of 5750.000 by the laner. Thus. 5750.000 was leveraged and provided to the project by Shell Oil (Ghana). 3.1.6 I'rojcet hlan;lgee~eut. Until the end ol' l9W. CEUECOM was responsible for in￾countp project management activities under the NRCHP. In-counu) financial mnn~~s~iicnt services were also provided by CEDECOM. Quanerly visits by the MUClA Projcct Coordinator and Finance Manager from Columbus. Ohio. assured pod prqicct n~;i~i;i';~'nient andcdl'cctivc cturrdinetit~l with concumnt UNIW pmjwt activities. To enhance efficiency and timely delivcy of outpuu under the NRCHP, and after the mid term evaluation, MUClA assumed direct control over ia in-counuy project management activities. A Resident Advisor wa appointed and stationed in Cape Coast. A Project Steering Committee comprised of the Regional Secretary, Executive Secretary of CEDECOM and the MUClA Project Coordinator ensured efiective monhoring and integration of the NRCHP activities with regional development plans. 3.1.7 i.:ndewn~mt i*:stnIilishn~cnl. Sincc inception of the NRCI 11' pruj~rt. thc fius 01' donors had been on short-term funding and technical assistance for the tourism sector in the Central Region. Experience shows that termination of short-term assistance for projects with long-term goals and gestation periods has often meant collapse with no succcssl'ul sustainability. In view of the long term and permanent nature of historic preservation and biodiversity conservation, and the fact that these activities underpin the Central Region's integrated economic development mate^, and noting the substantial capital expenditures involved. a major concern at project inception was how to assure sustainability and move the conservation efforts beyond the "aid trap" and dependency on donor assistance. As part of the NRCHP. it was decided that an endowment would be established to address the issue. The endowment was to be the capitalization of a fund. invested and managed by a group of Trustees. as a means of generating a guaranteed, indefinite and permanent source of inme to maintain activities specified in the Trust Deed. With the revision of the US Foreign Assistance Act (FAA) and the promulgation of the Foreign Operations. Export Financing and Related Progmms Appropriation Act (PL 103-87) in 1994 by the US Congress. establishing endowments became a new progratnming tool for foreign assistance. Againa this backdrop. USAID Ghana decided to support the establishment of an in depend en^ not-for-profit and non- ~cwcrnrnc~ttcll Trust. and to endow it with $2 million. Atier wide consultations with key stakeholden. in June 1996 the RCC approved a list of 17 local and international Trustees. T-o separate Truss. the Castles and Fons Trust and the Kakum National Park Trust were subsequently registered under Ghanaian la\\ on August 29. 1996. Sustainable funding "for the benefit of the conservation. protection and maintenance of the monuments and protected areas. their environs as well as the economic growth and well being of communities surrounding them." became the key objective and mission of the Ghana Heritage Conservation Trust. The major roles expected of the Trua are advocacy. generating public and philanthropic support. local and international fund-raising. providing grants that promote goals set forth in its mission. monitoring and evaluating activities for which it makes grants and managing its assets for good returns. At their inaugural meeting held on August 31. Trustees elected its oficen and decided on an action plan and identified the following priorities: a) Revision of the Trust Dccd to rellect the decision of the t\\o Boards of Trustees to unite in a Ghana Iicritnsc Conservation Trust with two sub-committecs on historic presmation and natural resource conservation, b) Establishment of an interim secrewiat and arrangclncnts for a permanent secretariat to suppon its work. c) Revision of the \i~i~~istrtic ad Accuullti~~g Ma~tuai ~)rcpxcJ hr I11c INSI PR'P;IK~ b> Ihc hll!CI:\ Consultant. and d) Forming Progranl Conimittecs to develop strategy and activities ol'the Trust. Kc) institutions GIiCT is to partner with in carrying out its mandate are: The Rcgioaal Cwrdinating Council: As major national asscls. control of the monuments and national park rests ~ith the Government of Ghana. Under the decentralization la\rs ol' Ghana. the RCC has planning. coordination. budgetary allocation and monitoring functions over development plans of all Ministries. Departments and Government Agencies in the Region. Ghana Museums and Monuments Board: Established under the National Museums Decm 1969 (NLCD 387). the GMMB is the statutory ageq responsible for preservation and protection of Ghana's cultural properties made up of monuments. archaeological sites. buildings. streets. spaces. town and landscapes. movable and immovable artifacts, art forms of historic, scientific, ethnogmphic or aesthetic interests as well as the presentation and interpretation of these cuhural properties to the public. The Wildlife Division (Forestry Commission): The Wildlife Division is the statuton agency charged with the responsibility for protection and management of protected areas of all categories in Ghana. District Asscntblics: The District Assembly is the constitutional body responsible Tor the lonnulation and esecution of plans. programs and strategies for effective mobilization of resources necessary for the overall development of the I10 Districts that make up Ghana. The assemblies have executive. legislative and deliberative poncrs. in their ~spcctivc arcas or jurisdiction. Thcy also have wmmittrn in cach community and provide the institutional medium for dealing with communities in the project area. 3.2 The Second (Consolidation) Phase (1998-2001) The Second Phase of the project was initiated in 1998 to consolidate the achievements of the first phase. The specific consolidation activities to be undertaken were to be based on the findings and recommendations contained in a report prepad April 1998 by Rice Waterhouse regarding the Provision of Technical Assistance to the Ghana Heritage and Conservation Trust (GHCT). The principal objective of the second phase. implenrentcd by Conservation International (CI). \\.as to strengthen GHCT's management capacity to conserve the region's natural and cultural resources. and to ensure that GHCT had the ability to serve as a permanent mechanism lo insure the niaintmaace of facilities that were restored and preserved during the lint phase. I~nplementation of the second phase also called for activities to suslain the preservation of the historic districts and structures within Cape Coast and Elmina. Finally. the second phase also i~itc~idcd topn)~notc outrcacl~ 10 c~~nniunitic~ and advocacy for growth thmugh tourism. to sustain the conservation eftbns of the Kakum National Park lhrough the develop men^ of park inl'nstructurc: rcsource protection: community relations and awareness: and tour guide training. 4.0 Major Findings: An Institetional Assessment of GHCT and its Capacity to Manage its Operations, Programmatic Activities, Endowment and Assets 1.1 The Mission and Strategic Vision ofGHm In an effort to consolidate and sustain the successful conservation and prrservation of Cape Coast Castle. Elmina Castle, Fort St. Jago, and Kakurn National Park accomplished under the Natural Resources Conservation and Historic Preservation Project (NRCHP), the Ghana Heritage Conservation Trust (GHCT) was established on August 31. 19%. Togctha, the Trustees and supporters of GHCT formed a mission statement for the Trust: "The irn~nediate and medium term miwion of the Tmf, in collabomion with statitton bodies is the conservaion, profeclion. mainrenonce of Kakum Comervrnion Area. Cape Coast and Elnlina Castles and Fort Sf. Jago, their environr as well as the economic growth and well being of the communities around them. The long tern^ mission is to exfend conservation activities to other parts of Ghana ajer establishing sustainable programs in the initial areas. " (Sauac: GHCT Swic Plan) In early 1998, Conservation international (CI) contracted with F'rice Walehouse (PW) to conduct a detailed study and report on key areas where CI should focus its provision of technical assistance to the GHCT. One of many recommendations made by PW was for GHCT to "operationalize the recently articulated Mission Statement and Strategic Objectives, by translating these into prioritized actions over the short and medium term." In late 1999. with the assistance of consultants provided by C1, GHCT compiled a Five-Year Strategic Plan with specific outputs and activities designed to implement its Mission. presented in the form of a work plan. Most of the anticipated delivery dates for the work plan activities begin in the second quarter of 2001 and continue through 2004, hence no specific benchmark evaluation of the activities is necessary at this time. The Strategic Plan has developed five goals, as detailed below. Throughout this evaluation report activities (or the absence of activities) will be highlighted that correspond with these goals where appropriate. Goal 1: To facilitate and promote conservation of historic, cultural and natural heritage through grant-making, demonstration projects. education and awareness. and assessment and evaluation initiatives in communities in and around the heritage sites. Goal 2: To leverage additional resources to grow the endowment to f4 million by the year 1002. Goal 3: To advocate policy initiatives that support the development and maintenance of Ghana's cul~ural and natural heritage. I 4: To catalyze agencies and institutions to initiate andlor expand on histwic preservations and natural resource conservation throughout Ghana. Gaul 5: To encourage research initiatives that enhance the state of knowledge about Ghana's historic. cultural and natural resources. Appropriateness of Goals to the Trust Miion Currentlj. GHCf's Executive Committee is assessing the goals of the Strarcgic Plan. and will be meeting in the coming weeks to determine if pans of the Plan should be modified or reduced in scope. Overall. it has taken GHCT somewhat longer than initially hoped to operationalize its Mission through the goals described. As will be addressed in later sections. progress in the Secretariat's financial management capacity, institutional dcvelopmen~ fund￾raising and other key operational areas have taken longer than anticipated and have slowed the active implementation of its Mission. The Trust Mission: Meeting the Economic, Conservation and Historic Needs of the Central Region The five goals presented in the Strategic Plan, if implemented in the coming years. adequately address the objectives expressed in the GHCT Mission to meet the economic. conservation and historic needs of Ghana's Central Region. Addressed throughout the evaluation are specific concerns as to the capacity of GHCT in key areas. and the capacity of its partner organizations. There are also sections of the scope of the GHCT mission that should be reduced or removed. to incrcase its effectiveness in priority areas. Howewr the ke) ob.jectives set forth in the Strategic Plan are consistent with the Trust's slated Mission. The First Goal aims to undertake activities that will promote education and awareness; suppon alternative sources of income generation for communities by working with partners engaged in micro-enterprise and micro-finance programs; and engage in projects which will address conservation and restoration objectives. One am of potential conflict within the First Goal is the overlap between the activities GHCT details in its strategy, and the mandate of GMMB concerning its work-plans for restoration, maintenance and development of interpretive materials for historic sites. This will be explained in further detail in Section 4.5. The task of identifying organizations to link with local communities so as to assist them with the start-up. operations and marketing of income generating activities has also been unsuccessful. In many cases difficult issues were present prior to the time when GHCT inherited these responsibilities during the transition from CI. This will also be addressed in Section 4.5. The purpose of the Sccond Coal is to strengthen the GHCT fund-raising capacit) to insrcax the endowment. and generate revenue to suppon its operational costs. As will be did in Section 4.3. there is no evidence that progress has been made with respect to the GHCT li~~id-r:ii?;ing s1r:ltcp. Cmilinuing llic opcmlin~is of inc1111ic gcncnling cntcrpriszs pwxl on by Conscrva~iun I~ttcrnational has been pmblem~lic and has enjoyed little to no success. Questions have been raised as to the appropriateness of GHCT involvement in such enterprises. and whether or not they should become concession opemions. Coal Three is envisioned as a future looking objective, where GHCT will work with parmer organizations. both traditional and smitory. to promote policies that will support the mission of conservation and preservation of Ghana's natural and cultural heritage. One particular area of concern is the breadth of Goal Four, where GHCT hopes to expand its mission "throughout Ghana". drawing on experiences in the Cenml Region. It does not appear that the Secretariat is institutionally prepared to extend its efforts beyond the Cenml Region in the near or medium term. The Board of T~St~es may reconsider this objective as it evaluates the appropriateness of its Strategic Plan. The Fifth Goal of the Strategic Plan aims to "increase knowledge of the resources and make available to the public research reports and primary documents which enhance preservation and conservation effom." Again, this is a forward-looking objective. While imponant to adequately address the conservation and preservation needs of the Cennal Region. these activities are projected to begin in late 2001 and are secondary to other priorit?. goals of the Trust. The following three sestions summarize the major findings as related to the Tmst Mission. from field interviews and documents collated concerning the Institutional Capacity and Operations of GHCT. the GHCT Board of Trustees and the NRCHP Stakeholders and Pmr Organizations. 1.2 Institutional and Administrative Artangements of the GHC3 !kcrelariat Management and Secretariat Staff During several meetings with the GHCT Secretariat the evaluation team met with most staff members. but principally interacted with the Executive Dimtor, the Deputy Director for Operations and the Program Officer. As derailed in the Endowment Proposal for GHCT. the role of the Secretariat can be described as having several functions: I) adminisuatively supporting the Board of Trustees; 2) carrying out the implementation of all Board decisions and mandates; 3) monitoring and managing financial and management systems. both operationally and for grant making; 4) developing and maintaining relationships with statutor) agencies (GMMB, WD, CEDECOM, GTB, and others) for cooperation in activity iniplementation: and 5) maintaining public and community relations. Before assessing the capacity of the Secretariat personnel, it is imponant to explain the daily functioning of Conservation International and the GHCT Secremriat during the Consolidation Phase from 1998 to the present. Beginning in mid-1998. the staff of Consavation international effectively functioned ar [he Secrerarior to the Board of Trustees. CI had been carrying out programmatic. financial and administrative functions that later were to be passed to the GHCT Secretariat during the Transition Phase. This created a situation where program choices. relationships with key partners. stakeholders and communities were built on the work engaged in by Conservation International. for better or worse. which now arc to be taken over and maintained by the Secretariat. To begin the Transition process. during the period of late I998 through the presenL with the coordination assistance of CI. the Board of Trustees identified. interviewed and hid key staff for the operations of the Secretariat. Terms of reference were designed for each position. and thc evalt~ation team was able to obtain and revicw the job descriptions for the Executive Director. Deputy Director. and Program Officer. The position of Executive Director (ED) is as the senior manager of the Secretariat. responsible to the Board of Trustees. The ED's mandate covers overall program managemem fund-raising. official representation of GHCT with all stakeholders. statutor) partners. NGOs and the public at large. The ED is to work closely with the Board of Trustees to ensure that their decisions and directives are carried out. Overall day-to-da? opentions and management of personnel. financial and management. are also the responsibilin of the ED. The current Executive Director had been in place since February 2000. and from all accounts. has been able to fulfill his mandate as described above. The ED inherited a varien. of issues that evolved bcforc his arrival. including deteriorated community relations. misunderstandings with statutory agencies (GMMB, WD, CEDECOM and others). programmatic failures such as the management of non-endowment assets, and internal staffing capacity matters. Management and personnel of nearly all statutory agencies interviewed indicated that relationships were improving. and communications with the ED were more frequent and transparent. In most cases, Memorandums of Understanding and Cooperation Agreements were either recently negotiated and signed or are due to be signed shortly. IF~rrtlrcr discrrssion on these itenrs can be found in Section 4.3) Several problem areas that the ED identified in operations. concern the capacity for financial and asset management. and the Trust's fund-raising strategy. In consultation with the Board of Trustees. the ED has plans to improve the financial management synems of the Secretariat - when funding permits. to hire a more specialized and experienced Financial Manager to heltcr monitor issues from bookkeeping to endowment management. Other operational slaning changes. including improvement of adminis~rative support capacit?. are planned in the near future. Regarding fund-raising capacity. the ED expmsed the seriousness of the GHCT need for technical assistance and expert support to build up his own skills and those of the Secretariat staff to begin a meaningful fund-raising campaign at all levels. The expected role of the Deputy Director for Operations and Policy (DD), according to the Trust's job description. is to serve as the "second tier of management" under the Executive Director. The Deputy Director is responsible for supporting he ED in networking and stakeholder management. developing a grant-making finance program. programmatic responsibilities for the Transition Phase. supporting the Board of Trustees. and oversight for day-10-day operations ol'Secrerariat staff (e.g. adminismtivt staff and drivers). The DD. originally the Esecutive Secretary. has been with GHCT since the spring of 1998. The evaluation team has found that the mandate outlined for this position is bmad and dillicult Lir onc Iwsw 10 implcmcnt. It appears that in rcccnt months. tllc focus of thc DD has hecn largely on the management of non-endowncnt rcvcnue generating assets (Walkway. Rainforest Cafe. Mineral Water bottling, others) and not programmatic initiatives needing attention in the Transition Phase from C1. Matters that require atvntion in the near term include: negotiating detailed concession tens for Kakum and Castle giR shops: preparing a concession for the Kainforest Cafe; design plans to improve and then concession operations ol' Kakum Mineral Walcr: negotiating agrccmcnts with thc Association of Tour Guidcs for walking tours: and improving community relations and securing agreements - especiall) with hlasoinafor for its trcc ~(atforn~. bamboo orchcstn. and destination promotion. The evaluation team did not conclude that the Deputy Director had a strong undemanding of the financial operations of the Secretariat (cash flow statemenls. investments. ecc.). although there were suggestions that computer soRware problems had complicated rhe presentation of data. Also. the Deputy Director. under the guidance of the Board of Tmnccr is currently responsible for managing both the local investment funds (government T-bills) and the endowment fund (through Merrill Lynch.) Later discussions with the Board of Trustees suggest that it is aware of the financial management shortfalls of the Sccrewiat and has plans to remedy this problem by identifying and hiring appropriate experienced staff. @lease see Section 43 forJim11er disc~cssion) Also reporting to the Esecutive Director is the Busiocss Manager (BM) who has overall responsibility Ibr thu Business hlanagement Unit at GtICT. Intended to be a distinct position lion that or the Deputy Director. the Business Manager has direct responsibilit) for operations of the business management unit and all enterprises. This includes the Kakum Visitors Center. with its Canopy Walkway. Restaurant. Caupsites, Tails ad Gift Shop. The OM should also bc working on the dcvclop~~icnt and implcmcntation of busincss stntcgics tbr Lnhuni Mineral Watcr and the Design and Fabrication Center. At the communit! kvel. the DM ibcused on marketing and promotion oScommunit! toursm products and identifying new community-based tourism products. In interviews with various stakeholders and the Board of Trustees, there was some discussion as to the kvel to which the Business Management Unit should engage in enterprise development wherher mon enterprise should be concessioned to private operators. and whether the Unit should be working on community enterprise development or rather creating linkages with organization (NGOs. other specialized agencies) and the communities. Nhese issues will be diccursed in grrafer derail in tkr follo~ving secIi0ns.J The evaluation team did not spend sufiicint lime with the Business Manager to assess his skills and capabilities. However the Business Management Unit is only now beginning to clarify its mandate and objectives as aligned wllh the Strategic Plan under review by the Board of Trustees. Responsible to the Deputy Director. is the Program O(Tir (PO). who is mponsibk for overseeing key program areas including community relations and field projects. tourism enterprise. and business asset education and awareness strengthening. Like the Deputy Dircclor. tt appcars that during the cvalualion intcwicws. a large pcrcenwge of Ihe PO'S lime is bcing spent on problems around ihc managemcnl of noncndowmcnt revenue generating assets. nearl) all of' which are unprolitable at present and were ~nherited during the Transition from CI Intcrvieus with principal community leadcrs and rcpresentatives of several villages around Kakum National Park suggest that there has been little interaction and almost no success fm small income generating activities at up during earlier periods of the project. It is unclear \vhrther the capacity at GHCT is absent to work more effectively at the community level. and iC so. whether i~ is a result of insunicicnt technical assistance or too expansive a mandate for Secretariat staff to implement. The position of Accounts Manager is currently one that straddles borh the daily operational financial management of the Trust, and programmatic and enterprise accounting. This role has proven to k far more demanding than anticipated by the Board. and as previously mentioned. a more experienced Financial Manager will be identified and hired as soon as the operation31 budget permits. In conclusion. while the roles and responsibilities of staff are clearly defined at the Secretariat in some cases it is uncertain that the level of skill exists that is required to implement the Trusts programs and manage the assets appropriately. Both the Executive Director and the Board of Trustees have indicated that they are aware of these shonmmings and are currently taking steps to identify staff with the capabilities and esperiencc required to supplement or replace the cunrnt skill level within the Secretariat All have expressed a concern as to the salary demands of more talented and skilled star. but mgnize that at minimum an experienced Financial Manager is imperative. Consistent silh rccommenda~ions made by Price Waterhouse in its April 1998 report to design concrete work plans b) activity. staff responsibility and time frame for deliverabks, a detailed activity plan for the transition phase was created. It is unclear. however. if mon of the tasks were completed during the time specified. The team could not obtain updated status benchmarks from counterparts interviewed. Many administrative and programmatic activities rcmain undcnvay and sonic arc contingent on che rcvisions to thc Strategic Plan which the Executive Committee is due to take up at its next meeting. 4 Financial and Asset Management of GHCX The Financial Viability of GHCT In discussions with the Secretariat, it became apparent that there arc large gaps in capacity relative to all aspects of financial management. Despite repeated requests. documents were not made available by the Secretariat relative to cash flow and most business enterprises. The evaluation team was not confident in the data that was produced. and was unable to accurately asscss the overall financial viability of the Secretariat. Further. in reviewing some of the documents relative to the endowment investment statements. conflicting financial documents came to light. The Secretariat was unable to satisfactorily explain the conflicting data. but tlic matter \\as under review with the Board. A minimal analysis was conducted of available documentation relative to linancial projections. l'he accompanying explanalion about thc projections seemed to impl) chat much of the substanlial revenues captured in the projections were counted twice, as they wnc apparently deposited in 90-day T-bills. yet still counted as ongoing operational iunds. Siniilarl). other linancial data was not fonhcoming. In attempting to look at revenues for micro-cntcrprisc pproiects. the team was unable to obtain balance shcc~. profit and loss. or cash tlo\\- documents. Thus. analysis of any of the financial aspects ofthc TNS~ or its ~SS*S (including the restaurant. gift shops, or mineral water operations) was limited and inconclusive. Endowment Investment Management Upon review of documentation explaining the period preceding the endowment transfer to GHCT. it is apparent that the necessary knowledge and competence to manage. oversee or run the endownen1 is not cumntly in the Secretariat. The team reviewed statements ilidicatiny that some stock purchases had taken place that did not seem consinent with the overall management plan for the endowment. In addition. an initial statement fmm Marill Lynch \\-as rcvic\\cJ that was inconsistent with the status 01 the endowment. as it has ken described. There were management fees that had been incurred on an account worth over S7 million that could not be explained by the Secretariat. The matter was raised with the Board. \\ho had not had the chance to revien the documents. as they had onl? arrived a fen days earlier at the Secretariat. Trustees on the Finance Comminee are clearl) knowledgeable where financial management is concerned. However there remains a significant need for increased financial management capacity within the Secretariat. An inquiry was made as to the choice of Merrill Lynch as trustees for the endowment. and while the team is aware that a US Trustee is required to manage the endowment it is not clear that the fee structure is as low as it might be. Given that the interest from the endowment is the principal revenue flow the Trust has to distribute for its grant-making activities. it \vould be usefill to research and identify more cost-effective fund-management alternatives. Fund-Raising Skills One of the kc! mandates of GHCT is to raise funds. a matter discussed at length in most Board meetings. Goals have been set to increase the endowment. and specific targels listed in thc CI transition ducumc~~u. According to thox: tarpts. the cndowmcnt is projected to douhle b! 1002. Unfortunately. there is linle or no capacity for fund-raising at the Secretariat. and the Board readily admits that it has little capacity in this regard. When asked. the first on its list of support requests from USAlD is technical assistance and guidance in the area of fund-raising. T~steeS have asked the Secretariat to prepare materials for its November 2001 board meeting. to allo\\. it to become more actively engaged in fund-raising. both within Ghana and internationally. The Board currently feels that it does not have sulficient financial resources to hire a full-time fund-raiser within the Secrewiat at this time. Given the potential asset that GHCT has in goodwill and a mandate that many Ghanaians ~ould support (conservation of the environment and Ghana's cultural and historic sites). a fund-raising campaign has the potential to raise a large amount of money domenically. as I a i~~tcn~aio~~ally. 111is could dra~i~atically spwd up the ability of GllCT to inc￾capacir?. as well as to raise additional funds for conservation and development efforts. It is unfortunate. given C1.s own success with fund-raising in the United States. that more was not done to create a Sund-raising campaign during the mnsition phase. or at minimum, morc substantial ctSbn to incmase the technical capacity at the Secretariat and Board level to clgngc cn2stivcl> in hnd-raising. Non-Endowment Revenue Generating Assets The Inception Report on the Plans and Activities of the Ghana Heritage Conservation TNSI Sccrcvariat (Novcmbc.r 1998) sets forth a taa~~datc requiring that GI ICT managc directly or as concessions a large number of income-generating enterprises and facilities developed by the project. funded by USAID-Ghana. and implemented by five US non-profit organizations and three Government of Ghana agencies. This document envisaged that by 2000. a Secretariat for the Trus would be fully operational. The dncuma~t dcscrihes how at that time, Conservation International managed most activities in isolation. It describes how project sites and facilities were "still controlled and managed wholly by key leaden in the project". At the same time, the Report points out that the Secretariat had not been given any clear cut "responsibility". Several interviews confirmed that the non-endowment revenue generating assets were being created and managed b> the C1 Project Team as the Secretariat was being formed and given technical assistance. The capacity of GHCT was presumably to be built and enhanced during the Consolidation Pk. The evaluation team reviewed a document produced March 3. 1999 entitkd "GHCT Options for Enterprise Asset Management", describing several options for enterprise asset management. The document set fonh a number of strategies, and suggested an anticipated role for the assets once transferred to GHCT. This role included the need to maximize profit. financial and conservation performance. Also emphasized was the importance of sharing benefits with key stakeholders while maintaining operational and financial elfrciency. The intention was to ensure a sustainable svcam of revenue for GHCT, and a distribution of benefits to key stakeholders. In addition. the intent was to allow for appropriate managanent capacity. sound business decision-making. and control by the GHCT of the assets and protection of its mission. With the exception of the Canopy Walkway. and rent collected from one or more of the shops. the non-endowment revenue-generating assets have not been profirable. Rather. most of these assets have in fact proven to be liabilities inherited from CI during the transition phase. For example. the restaurant at Kakum Park is poorly designed and in need of repair. Prior to GHCT taking over management of the restaumt, it had already been operating at a loss. While there was a detailed plan describing sleps to move the restaurant to profirability described in the 1999 document. it appears that few if any of the targets described therein have been reached. Two years after assuming management of the facility, it continues to operate at a loss. This is typical of most of the non-endowment revenue-generating assets now with GHCT. Many of the projects identified by the consortium and managed by CI prior to GHCT's stewardship were in various stages of dysfunction or non-performance at the time of transition. The Secretariat was not in a position during the transition phase to critically evaluate those assets to determine whether or not it made sense to continue with them as GHCT. It does not appear that there was any forethought by CI as to whcthcr or not these activities would bc in a state to turn over to a newly formed NGO with little management capacity. While creating new enterprises seemed to fulfill GHCT's overall mandate. 11 is not clear that any ofthc CI enterprises wen. propcrl? designcd or managed to allow for an easy handover to GHCT ;rs revenue-genenting assels. .Additionally. community-based enterprise development activities. designed as alternative sources of income for communities whose livelihoods were altered with the changes to K;~hum Natiwial I'arh. ;ire alw unprofitable. Many havc ccascd lo opcntc. This includes bee-keepinghonry production operations. grass cuner ranches. and snail farms The Secretariat does not appear to be effectively monitoring performance or outcomes of any of these enterprises. and awaits the Board's decisions on the future of moa if not all of these en~erprises. Interviews have revealed that GHCT Trustees are keenly aware that the Secretariat needs lo discontinue managing losing or distressed assets. It is not clear, however. that the Secretariat has the capacity or experience to lead an initiative to properly evaluate the performance of these assets. prepare them for concession where appropriate and divest GHCT. The Board of Trustees is removed from day-today management and is not structured in such a way to be actively responsible for management or oversight of these enterprises. Thus it is not clear hou quickly the Board can move to make final or interim decisions about these assets. Kakunl Mineral Water - The Trust was endowed with a Mineral Water Production Plant as one of its assets. Production began in November 1998, with an initial capital invmmcnt of 25 million cedis. Current rexrves are estimated IO support the production of 6.000 - 8.000 cubic feet of water. daily. This compares to 5.000 cubic feet per day for a major Ghanaian manufacturer that markets "Voltic". The plant is able to produce 600 bonks of water daily, on average. Water is sold in Cape Coast and Elmina under the "Kakum" brand name, below market price. As at March 2001, the operations resulted in a loss of 3.4million cedis. Inventories were valued at 10.9 million cedis. Besides these lows the project cumntly lacks the necessary government permits and standards certification to operate. It is an assa that should be leased to a commercial operator. with royalties payable to GHCT. The Board of Trustees is currently reviewing the matter. Demonstratiou Farm -The farm is locafcd on Trust lands adjoining he Visitor Center. It is planted with black pepper. white pepper. cinnamon. nutmeg. avocado and plantain. for UK purposes of serving as a demonstration farm to local farmers as well as an amaction for visitors to the Park. Another rationale for this venture, which the Trx inhailcd was to provide fresh foodstuff to the Rainforest Cafe. Serving as a production source to the Cafe. the Farm is placed in direct competition with local farmers. which the project is meant to support. Strictly as a demonstration farm, the Trust lacks the expertise to provide the extension service that is required for local farmers to undenake the cultivation of these crops 011 3 coninicrci31 hais. Kakum Vuitor Center Complex. including the Canopy Walkway. and the Outbuikhgs - A detailed business plan was prepared in June of 1999 by CI. UWCOMOS and GHCT. carefully analyzing streams of revenue for the visitor's center and canopy walkway. A careful statement of mission and objectives was described. as was an overview of operations. the target market. technical assistance needs. and a summary of benefits. A comprehensive market analysis was produced. and a series of new product offerings detailed. A detailed marketing and sales campaign was laid out. with clear messages and vehicles for dimibution. Various pricing strategies were analyzed. and visitor flows studied. Evaluation interviews found that the Secretariat was not able to consisttntly describc the current number of visitors to thc canopy walkway in relation to the revenue received from those visitors. While it is clear that there is great attention to the care and maintenance of the walka-ay. it is not clear that the walkway is being aggressively marketed or managed. in an effon to maximize its revenue potential. While detailed analysis and research nudies were completed prior to the transition. it is not clear that the Secretariat is able to use thc managenlent tools envisioned in those documents and take control of those assets. The capacity to take over the detailed planning and management of the walkway has not occurred in the tinletable anticipated. The visit and inspection of the walkway indicated that there is a great deal of care taken by the rangcrs to ensure the sale opention of the facility. For example. one of the walkways is slowly having its cabling replaced, and the entire walkway is continually being upgraded. An expla~iatioti \\.as provided as to how the trees werc evaluated for strength dative to the viewing plarlbrnis. and it now appears that thc original estimates were overl! optimistic. Staff at the walkway report that at times there can be a significant wait to use the walkwa) based on the number of visitors arriving at the facility simultaneously. Tour operators in Accra complain that while there is a shop. museum and restaurant. there were not enough chain in a common area to take care of a large group should it need to wait for over an hour for a trip over the walkway. The canopy walkway itself consists of six tree platforms for scenery and wildlife viewing and one thousand feet of swinging bridge. The walkway has been and will continue to be the main amaction for the Kakum Visitor Center Complex. The walkway cumntly produces about 300.000.000 cedis annually (about S45.000). virtually all of the Trust's annual revenue. The Wildlife Division tracks visitation figum consistently and records indicate that there was a large increase in both visitors and revenue in Kakum National F'ark in 1999. The evaluation team was unable to obtain revenue figum for the same periods from the GHCT Secretariat. Records show that the vast majority of visitors to the park are Ghanaians, in the range of 70 percent annually. The park far exceeded initial expectations in terms of domestic visitors. It should be noted that the evaluation team was unable to ascertain if gate fees collected were consistent with the numkr or visitors to Kakum. nor was it able to cross-check the data provided from the Wildlife Department and the Ghana Tourist Board for the period of 1992- 1999. as the GHCT Secretariat did not provide statements of cash flow for this purpose. Figures were not available for 2000 from any of the sources interviewed. A concern espressed by hoteliers and tour operators was the need to pay two different fees at Kakum. a fee to mter the park and a Tee to usc the canopy walkway. Thc explanation provided was that GHCT and the Wildlife Division each want to conml their individual revenue flows. Yet clients complain about the need to smd in line and pay fees twice. In one case. the Golden Beach Resort was quite anxious to spend a fair amount of money to market a package tour to the site, and requested a facility to pre-pay one fee in advance so as to not bother clients with this concern. The management at CI did not feel it was necessary and did not see the advantages to pursuing such an option. The mponx of the hotelier was to drop the idea of marketing this special package for Kakum to its guests. A brief visit indicated that the Visitor's Center has an interesting display. is participatory. and refreshingly oriented towards a Ghanaian perspective. It is open-air. though covered. and somewhat vulnerable to the elements. Maintenance and upkeep could be improved. and might become a problem over time. as (hue is quite heavy seasonal w and a diffcult climatic situation. Similarl), the restrooms are clean and well run. While daybday maintenance appears to be passable. this is clearly an area that requires ongoing care and attention. In a 1999 briefing paper. it is noted that this is a key area to manage. While the Walkway itxlf is carefully overseen. it is not clear that this same attention is being paid to IIIC ~iiuxutii. rcstaurait and outbuildiligs. Camp Sites - Selected sites were recently constructed to offer more adventurous visitors an overnight stay inside the forest. It has basic shower and toilet facilities and a roofed and rustic platform for camping. It is hardly promoted and patronage has been minimal to date. The revenue potential of this ssct could be maximized if it is leased out and linked to one of the good hotel operations. binforest Cafe - This restaurant facility was constructed as part of the visitor reception facilities at the Park Headquarters and commenced operations in 1998. Its main business is food and beverage service. It is directly managed by the TNSI and provides jobs for six employees: a Manager. three cooks and two waiters. The staff comes from Abrafo and Mfuom. while the manager comes from Cape Coast. The remurant is only busy on weekends when there are greater numbers of visitors. For much of the week it is quiet While it was not possible to review the financial statements of its operation. interviews with the Accountant of the Trust confirm that the Cafe was being operated at a loss. The fundamental and underlying cause is that thc business of rcsuurant operation requim cxpcnise and syms tha~ neither C1 (which formerly operated and managed the Cafe) nor GHCT possess. Compounding this problem is the high cost of maintenance of the Structure. The wood used in its construction was not treated. The roof design did not allow for an overhang. and in a rain fomt environment. non-treated wood deteriorates rapidly. As a loss-making enterprise. the Cafe defeats the objectives of !he Trust. Instead of running this operation. the Trun could generate revcnuc by leasing the space to a professional restaurant management group. The Kakum Gift Shop - The gift shop at Kakum National Park is run by Aid to Artisans, a local not-for-prolit NGO. organizcd to support artists in the Capc Coast region. Aid to Artisans also has a concession at the Elmina Castle Gift Shop. The Kakum Gifi Shop is anractive and well run. demonstrably showing concern for visitors. and having a wide selection of artifacts and gifts. The selection was varied and reflected choices that included environmental and educational gins. It is not clear that the Wildlife Division has an) input on selection. an area of concern expressed by the department. Interviews were not able to accurately determine the nature and financial efficiency of the concessionary arrangemenu behveen Aid To Artisans and GHCT, relative to the Kakum National Park gift shop. Elmina Castle Gift Shop - The situation at Elmina is less clear, probably owing to the current gate and structure of GMMB. There are currently two gifts shops a Elmina. The first is a poorly run and insufficiently stocked shop with liule selection in a less desirable location on the Castle grounds. This store sells merchandise on behalf of GMMB. The second shop. much larger and inviting. is run by Aid to Artisans. The xlection of crafts and artifacts in this shop do not reflect much about Elmina Castle or traditional Ghanaian culture. Rather. the artihcts seem more modem and oriented towards popular taster as opposed to historic or culturally significant events. This is a concern to GMMB staK as the? have no input into the choices of goods currently sold in the Aid to Arlisans shop. The anangement br this concession provides rent to GMMB. and it is unclear if GMMB obtains additional revenue liom salcs there. This may explain the presence of two shops at the Elmina Castle. Cape Coast Castle Gift Shop - The Cape Coast Castle Gifi Shop is well run. with a broad selection of desirable crafts and artifacts. GhlMB had espressed dissatisfaction that it does not directl) control this shop. as it is licensed to a woman in the cornmunit)-. This arrangement was controversial as then was a lease that had been signed and a disagreement as to whether or not a percentage of sales revenue would be paid to GMMB. The proprietor sued GMMB. and the outcome is that she was able to stay and pay rent. Upon resolution of outnanding differences behveen GHCT and GMMB. and the conclusion of a Memorandum of Understanding. a proper concession and management of the shop may become a source of revenue for the Trust. Discussions with the Chairman of GMMB suggest that intentions are to centralize this and similar revenue generating assets with the TNSL allowing revenue created to be used for projects designated by GMMB. Dcsign and Fabrication Center - The Ccntcr is currently closed down as a result of losses. The center was constructed during the first phase of the project to suppon the work of the Ghana h.(useuins and Monuments Board. It is located on the grounds of the Cape Coast Technical Institute. A second objective was to use it as a facility to train students of the institute. The Center houses the Design Offices of the GMMB that had to be moved out of the Cape Coast Castle because of the hostile maritime environment. It is comprised of a well￾equipped Conxrvation Laboratory and Storeroom for anifacts in storage, a wood working shop. and graphics and photographic audios equipped by the Smithsonian Institution. The GhlMB's capacity to design and mount world-class exhibitions depends on its abilip to use the Center. Display materials required at the monuments. panels and cases for museum exhibitions were to be produced in-house from the Center. It was naffed with specialists of GhlMB trained at the Smithsonian Institution. In 1998. it was envisioned that operations of the gaphics unit and the \voodworking shop could be commercialized. A Business Manager was hired by the Project to manage the commercial operations of the enter. which has now been handed over to the Trust as a revenue-generating asset. Follo\'ing the rake over by the Trust and the lack of revenues from its operations. the Center \\as closed down. and GhlMB staff was ordered out ofthe propeny. This resulted in a serious conflict and poor relations with GMMB. who view the Center as part of the technical assistance provided to the institution during the fint phase of the projm. All GMMB mff interviewed share the opinion that commercialization should not supercede consemation requirements. Also and more importantly. the Conservation laboratory. storeroom and design studios are critical to the GMMB's day-to-day activities. Even though access lo the facility is allowed to GMMB staff. there remains a strong feeling of frustration and resentment ova the need to obtain the permission of the Trust Secretariat for use of the Center. The specialist nature of the Center and its importance to the GMMB makes it imperative for the Trust to rcvic\\ its apprwch to the n~~~iagcment and usc ofthe tcility. Heritage Enterprise and Travel - Business plans produced June 20 1999 b) CI, LISICOh4OS and GIKT suggest that a Heritage Enterprise and Travel division was lo be included as a part of GHCT. This was ostensibly to be the "primary marketing agency for the Kakum Visitor Center Attractions". as well as the Masomagor Tree Platform. KruW Tree Platform. Historic \Valkin~ Tours. the Rainfores~ Cafe. Yakum Mineral Water. and the Design and Fabrication Workshop. Management and flow cham in the business strategy document explain lion most of the revenue from these operations would flow through this division for the Trust. The business plan described target markets and products. and spoke about three primary functions: operstions. marketing and saks. and business development. The intent was also to provide technical assistance through fhis vehicle to local communities. and to be a link to tour operators and the travel community. The plan went so far as to suggest that the opportunity might exist to become a tour operator. as there were no other lour operators in the Cape Coast rr= "'1011. Currentl). there is no separate Heritar Enterprise and Travel division. There arc no revenue-producing enterprises. and GHCT has spent a great deal of time attempting to take o\vnership of the community projects bt were srarted during Cl's tenure. The concern expressed to the team by Board members was that there had to be a focal area for revenue iron^ \\alkinp tours or rc'wllue Trom tnl: plafonn suajs. lbc bamboo orchestra also rcquircd a focal point. hot11 to be paid and to be encouraged to develop more sources of revenue for GI ICT. While neither the Board nor the Secretariat appears to want to be in the business of running small enterprises. it does appear that organizationally there is a role that GHCT can play in the marketing of some of thew enterprises. The Ghana Tourism Board has linle or no capacit) at this time. and travelers. tour operators and travel agencies need a way to create a link with the Tour Guides Association of Ghana's tours. run from Heritage House. Similarly. the Masomagor tree platform is in need of a marketing vehicle to amact tourists. Other village hotels also need support. both for marketing and booking clients. There exists an oppomnity for GHCT to play a role linking the referenced tourism enterprises with the Ghana Tourism Board, and as GTB remains under-funded. it would be appropriate for some support to be provided by GHCT to assist in the marketing of lhcx assets and products. Capacity. however. does not currently exist to easily institute a Heritage Enterprise and Travel division within the Secretarial. This debate is underway with the Board's Extiutivc Committee as it finalizes he Strategic Plan for GHCT. Masomagor Tree I'I~tform - In 1994. during the First Phase of the NRCHP. a tree platform \\as built outsidc the villagc of Masomagor to providc lourists with an overnight tropical experience. and to provide the villagers with a supplemental source of income. It was envisioned that over time. economic benefits would spill over to trained tour guides. porters and village women preparing hod. 'lhe Uiunbw Orchestra would also provide entertainment. The target market was largely non-Ghanaian. and estimates for visitors in the first three years \\ere 105. 320 and 100. respectively. Details provided in the Masomagor Tree Platform Business Plan (June 1999) suggest that CI would be responsible for marketing. pmmotion and sales, and related technical assistance. It was expected that by mid-2000, GHCT would take on the role initially played by CI. Prices were set for nonGhanaians in the fim year at 30.000 cedis to be increased in the second year to 40.000 cedis. In 200 I. rates were increased to 50.000 cedis. The plan called for substantial funds to be allocated to platform maintenance. road repair. marketing and administrative expenses. The Masomagor Village Unit Committee would receive 2.5 percent of sales. a Guide Training Fund would receive 2.5 pcrcent. and tour guides were initially to be paid 6.000 cedis per person per trip. Villagers reported. however. that the tour guides had been paid 3.000 cedis per person per hip. The evaluation team visited the village of Masomagor. meeting with community leadm and staff of the Wildlife Division. Villagers qmrted that the tree platform has been in dimpair since 1999. and tlic? wcn. aware of no niarl;cting plans or atlcmpts to bring visitors lo the platform. Figures were not known by the villagers for tourisls visiting the platform during 1999 and 1000. altl~ough they repond lhat there had oal) been one tourist use he platform since the beginning of January 2001. This occurred in the last week of May 2001. The conimunity originally had three tour guides trained to accompany visitors to the platform. a two-hour walk tion1 the village. The infrequency of tourists has resulted in the rcsignaticm of nvo of the three tour guides. The Masomagor Tree Platform now falls under the management of GHCT, following the transition from CI. Historic Walking Tours - In mid-1999. a Business Plan for Historic Walking Tours in Cape Coast and EImina \\-as prepared by USIICOMOS. CI and GHCT, to train tour guida and launch tours by December 1999. The Walking Tours were planned to broaden the scope of historic and cultural interpretation of the Cape Coast and Elmina Cas~ks. with the hope of expanding the distribution of economic impacts to local communities and generating greater educational awareness of the importance of preservation in those areas. The 30 to 40 minute tours would include visiting 5-8 historic building and landscaper concluding at a local restaurant or bar, for the initial price of 12,500 cedis per nonchanaian, 5.000 cedis per Ghanaian and 3.000 cedis per student. Conservative estimates of tours. based on 60.000 visitors to the Castles annually. hoped for 600 visitors in year one. I800 in year NO. and 2220 in year three. No data was available detailing the frequency of walking tours, and the tcam was unable to cunclusivcl) dclcniiinc il' a niarkcting plan was underway to pmmotc the use of thc tour guides for walking tours around Cape Coast and Elmina. It is unlikely thM such promotion has been ongoing. 4.4 GHCT Board of Trustees The Board has a number of Program Committees responsible for certain activity areas. The Products Comminee focuses on identification of income generating activkia in local communities. The Grants Cornminee deals with grant quests. while the Fund Management Comminee manages the assets. Pmposals and recommendations come to the Board from these Committees. These are discussed and decided on by the Board. In the absence of the Board. the Executive Committee decides. There is no clear-cut document such as a Chmer that spells out a code of ethics, principles, practices and standards that mun be observed by Ttuaees. Even though the Grants Committee has laid down some procedures. these arc not uen. clear. The Trust is yet to put in place documented procedures and processes by which - crantees. panicularly key line agencies apply to it for suppon. Application deadline. grant selection criteria eligible projects, eligible applicants. matching requiremenu, scoring criteria and gcognphical spread of projects nced to he clarified and documented. Criteria for i~ivrsl~ncat and types of invcstmenl the Trust Fund can makc are yet to be documented. lhese are essential by-laws that must be put in place to assure grantee and donor confidence. -1.5 NRCHP Stakcholdcrs: CHff's Partncr Organizations and lmpctcd Local Communities Ghana Museums and Monuments Board Established under the National Museums Decree 1969 (NLCD 387) the Ghana Museums and h+onumcnts Board (GMMI)) is the statutory agcncy rcspnsiblc Cor preservation and protection of Ghana's cultural properties made up of monuments. archaeological sites. buildings, streets. spaces. town and landscapes, movable and immovable artifach art forms of historic, scientific. ethnographic or aesthetic interests as well as the presentation and interpretation of these cultural pmpenies to the public. The team met with members of the GMMB slam in Accra. Cape Coast and Elmina and later with the Chairman of the Board of Trustees of GMMB in Accra. The breadth of interviews suggest 11131 3 niajor gap in perception exisls between staff and GMMB's Chairman, concerning the role of and relationship with GHCT. Because the Executive Director of GHCT sits on the Board of GMMB, there are good relations between the two senior officers of these organizations. They have reached an understanding about the appmpriate relationship between the two organizations, and there is currcndy a draft MOU that both appear ready to sign. The team reviewed and discussed the draft MOU with the Chairman of the Board of GMMB, who indicated that an agreement had been reached in principle, and thcrc is every reason to believe that relations between the staff at GMMB and GHCT will continue to improve. The Board of GMMB. however, may bc in transition with the new government. resulting in some technical delays in the signing of the final document. During the transition phase, there was subnantial disagreement about the Fabrimion Workshop and whether it was considered an asset of GMMB or an asset of GHCT. The staff had particularly strong feelings as several members of GMMB were trained by Smithsonian and had traveled to the United States to receive this specialized training. The skills needed to operate the equipment at the fabrication workshop were invested in GMMB staff, and the Fabrication Workshop was used to make equipment for displays at the museums as well as to store fragile drawings and artifacts from the historic sites. The heart of the controversy appears to be that GMMB staff considered the Fabrication Workshop to bc an asset of GMMB. while GHCT considered it to be a part of the Trust. A few years ago. CI hired a manager for the workshop, to anempt to turn the enterprise into a revenue-generating asset of GHCT. Great controversy ensued when the Chairman of GMMB and the Executive Director of GHCT agreed to suspend the operations and shut down the Fabrication Workshop. Following these events, staff at GMMB developed a great deal of suspicion about GHCT. Both sides have conflicting claims as to the status of the workshop at the time of shut-down, and the subsequent theft of expensive equipment. This conflict has apparcntl) created mistrust and unwillingness by GMMB staff to work with GHCT. It is hoped that the draft MOU will be signed shortly. which will serve as a framework towards ending the mistrust that currently exists. Because of this conflict. linle technical assistance went to GMMB during the uansiimn phase. and minimal work was done on maintaining the Castles and Forts. GHCT had some funds to spend on training for GMMB. but because of the major dispute over the workshop. GMMB chose not to take advantage of these funds. They remain available for GMMB's use at future date. From most accounts. GMMB has great oqanizational weaknesses. Communication does not appear to be good. as GMMB staffs perceptions are completely at odds with the perceptions of the Chairman of the Board. Both complain of miscommunication by the other. and a clear dichotomy exists on attitudes about many issues. Institutionally. the Chairman of GMMB intimated that there was no legal capacity at GMMB to interpret the status of the sites or review agreements on behalf of the organization. This view extends to the feeling that there was not likely to be the strength at GMMB in the near future to properly manage and maintain the Castles and Forts in Cape Coast, Elmina and Fort St. Jago. An alternative suggestion was for GHCT to lake over management of the Fabrication Workshop and Fort St. Jago, and to have the fdom to make appropriate changes and improvements to the Castles and Fort with the approval of GMMB. The MOU is thus written to give GHCT control of these two assets. and the freedom to chose which projects to fund, as well as to manage those projects on site. In the long run. the hopc was shared that most revenue could be channeled through GHCT from both caale entrance fees and gift shops. as an efficient vehicle to recycle the revenue towards maintenance of the historic sites. rather than more traditionally centralized revenue collection and distribution methods. At present. GMMB staff working at the entry point of each location collects admission fees to Cape Coast and Elmina Castles. Data was provided to the team for the period of 1990 - 2000, for both visitors and admission fee generated. Data analyzed suggests that hm the period of 1991 to 1995, there was a 285 percent increase in the number of vui to the Castles, and a 229 percent increase from 1995 to 2000. Data provided from GMMB supports a continuous increase in revenue generated from fees at the two Castla in the last five years as follows: Similar to data collected for the Kakum Canopy Walkway, the evaluation team was unable to confirm or verify the accuracy of the information with other data sources. 1995 1996 1997 1998 1999 2000 Despite GMMB staff concerns about GHCT, all staff members questioned indicated that if the issues that arose during the transition phase could be resolved, many carrying over hm the time of CI management, that GHCT would be able to fulfill its important mandate and make a major contribution to GMMB. Strategically, GMMB is in a position to become a key partner of GHCT. and the Executive Director of GHCT has been working hard to repair relationships and build a foundation for a strong partnership between the organizations. 51.081.300 66,389,650 137,387,650 172,670,200 181,195,400 442.207.756 The Wildlife Division of the Forestry Commission Source: GMMB, Cape Coa.51 Regional As the statutory agency charged with the responsibility for pmtcction. consdon and sustainable management of all protected areas in Ghana the Wildlife Division has been a key counterpart since the inception of the NRCHP, and remains so with GHCT. During the first phase of the NRCHP, the Kakum Canopy Walkway. restaurant. gill shop, intcnclivc cshibilion and racilitics wcrc built and bcumc opmliorwl. Thc rcvcnue arrangements have been a collection of an entrance fee of 500 cadis at the gate of the park area which was payable to CI and is now payable to GHCT. For visitors choosing to walk on the canopy above the forest. a separated fee is charged. also now payable to GHCT, currently the principle source of non-endowment revenue for the Trun A tour guide fee is also collected from visitors, but is payable directly to the Wildlife Division. Staff of WD explained that the transition phase from CI to GHCT began in June 2000. Since then. a Memorandum of Understanding has been concluded between WD and GHCT. to outline the commitments and obligations of both parties, in a spirit of cooperation. The WD raised concern on how the profess of requesting funding for project or maintenance needs would be actualized, but planned to work on this with GHCT staff. While WD staff plan to uphold this spirit of cooperation, and mgnirc that GHCT is in its formative period, there was unanimous emphasis on the hope that GHCT will not carry on in the footsteps of CI which was perceived as "wearing the implementation jacket" rakr than serving as a facilitator and a resource There was strong criticism for performance during the consolidation phase. beginning with a lack of Lansparency, poor communicasion and VCQ linle cooperation in community development activities. N'ildlife Ofiicers interviewed stated that while they understood fmm CI that the consoliation phase would have a far more reduced budget than expected. certain commiunents chat were promised within the reduced budget were not upheld. These included mining for Sr. Offirs on managing national parks. counterpart experts to work with at Kakum. and study tours w shon courses. None were provided. Training was organized however. by the Ghana Tour Guide Association and funded by CI, to provide mining to 17 local guides and 10 pa* guides. Once or twice during the consolidation phase. CI did send expatriate consultants to work with the Wildlife Division. However the need, selectiori and decision to send these specialists was done solely at the discretion of CI and without thc col~sultation of WD. According to \\'ildlife staff. CI informed WD that due to overspending in Phase I. and the repayment requirements coming fmm the consolidation phase. there would not be funds for replacement boots. goggles. tents. or vehicle fuel. Most of the handheld radios provided in Phase I have not been operational since 1998. and none of the original batteries are now capable of holding a charge. At present. the Wildlife Division has no means of communicatinp from the park to Cape Coast or elscwhcre. shori or driving or passing messages through intermediaries from village to village until it reaches the intended recipient. This process is known as the bush telephone. Wildlife Otficers espressed concern that the community development aspect of ihc consolidation phase had been neglected and hardly functional at this time. Two villagc us platforms built in Masomagor and Kruwa are in need of repair and access mads to the sighs are in poor condition. Income generating activities within several villages had faikd and most if not all have been shut down. The view of the WD is that CI took on severa: conmunity outrcnch activities on their own. serving as an implementer, rather than using Wildlife staff to interface with the communitia. Several specific fqKXI.5 of failures were told. including Cls choice of an "expert" for grasscutter farming. who knew nothing of the matter and was reportedly paid I I cedis million for a community enterprise activity that completely failed. (See Secrion 4. J below discussing nrajorfindings in Kakum Park villages) In conclusion. Wildlife Division staff seemed despondent and disappointed about the resulls of the consolidation phase. They expressed reserved enthusiasm, however, about starting anew with GHCT and were hopeful that the next period would be an improvement on the im srvenl years. Regional Government Ghana opcntes a dccc~itralized system of low1 adniinistration. Ihere are I0 regions undir this system. which are divided into a total of 110 districts. The Central Region has I2 districts. These districts of local govemmcnt arc the highea political authorit?. at the local level. Their activities are coordinated at the regional level by a Regional Coordiming Council. headed by a Regional Minister appointed by the President with the approval of Parliament. Under the decentralization law. various Ministries, Departments and Government Agencies (MDAs) in the region report to the RCC, which is meant to coordinate all programs at the Regional level. The central kegional Integrated Development Program (CERIDEP) and the tourism development scheme arc initiatives &en by the RCC to addm problems of lack of investments. s&iocconomic decline and low incomes in the Region. The RCC and District Assemblies therefore remain the principal stakeholder in the NRCHP. To address the interest of key stakeholders such as the Regional Coordinating Council and District Assemblies. it is essential that the decisions and programs of the Tmn art focused on generating funds required to support the capital expenditure of line agencies needed to transform thc Central Region's tourism products into world class attractions. The impact of the Trust in the local communities will depend on its ability to provide funding and grants for privac scaur and community developmcnt. Rather than direct interventions. grants can be provided to NGOs involved in enterprise development, cornmunit) initiatives and advocacy directed at rural banks to support small business development in communities around the park and the castles. CEDECOM CEDECOM was created by the RCC as the institution for regional planning. inwsunent promotion. monitoring and evaluation. and a clearinghouse for programs of MDAs. NGOs and the private sector. Coordination and management of CERIDEP is the principal activity of CEDFCOhl. It wns directly rcsponsihlc for the iniplcmcntation of IINDr's tcchniwl assistance and funding program. This program. during the period of 1990-1993. provided supplementary support for tourism development activities. The institution has moved beyond its mandate and is currently directly involved in microcnterprise developmm~ mobile credit and training activities for which other institutions were set up. It also manages Brcnu Beach in association with the local community. has developed a teak plantation at Abrafo and is cumntly investing in the construction of a Handicrafts Training Center to train youths in handicrafts production at Abrafo. Its relations with CI and also with the Trust have been difficult. There are issues over CEDECOM trespassing on Trust lands at Abrafo. As en agoic? ol' thc RCC. CEDECOM's interest and ability to impact and relate effectively to thc prqicct and oh.icctivcs of thc Trust will dcpcnd on how it is rc-cnginccrcd to pursue its original ~nmdatc. It currc~itly lacks the resources and tl~c staff to am. out its mission. a situation that adversely impacts RCC's capacity to assure integrated development of the Region. Ghana Tourist Buard l'hr Ghana Tourist Board is a statutory agency and [he implementing arm of the Ministry of Tourism. Its major functions are domestic and international marketing of tourism. qulation oC the indust? including classiliwtion. registntion and licensing of hotels and catering enterprises, and travel and tour companies. GTB is also responsible for policy formulation. and collection and publication of tourism statistics. Within the framework of the NRCHP. the Central Regional omce of the GTB is responsible for tourism promotion and marketing. industr)- standards and a regional tourism management information system. During the first phase of the NRCHP. the University of Minnesota Tourism Center provided technical assistance to the Ghana Tourist Board. As part of this assistance. a marketing plan. promotional brochures and action to promote domestic and international tours commenced during this phasc. Under the Consolidation Phase. no funding or backup support was provided for these activities. The institutional capacity of the Board was whittled down as relations with CI worsened. With the esception of training tour guides (with its own resources). GTB has very linle to show in tourism promotion over the last three years. The Board has an excellent core of dedicated and knowledgeable professional staff. They view the TNS as a source of funding to supplement inadequate budgetary allocations in the am of tourism marketing. disseminating information on the Region and its attractions and in developing the human resource base required by the hotel and catering industry. Communities of Knkum National Park In the First Phase of the NRCHP, the conservation and protection of Kakum National Park and the development of the Canopy Walkway directly impacted the lives and livelihood of villagers surrounding the park. Recognizing the inevitability of thew changer the formation of the GHCT Mission statement addressed the importance of promoting and supporting the economic growth of the communities surrounding Kakum. Prior to the transition phasc fmm CI to GHCT. CI had engagcd in community networking and community enterprise support activities. recently handing that responsibility over to GHCT. The results and slatus of thew activities are presented below. 17ic evaluation valu visited and interviewed key community leaders. women opinion and cooperative leaders and low1 Wildlife Division staffstationcd in five villages sumunding thc eastern and western sides of Kakum National Park. These villages included KNW& hlasomqor. Ahomaho. Ahrafo-Odumase and Mfuom. When asked what had changed in their relationship with and use of the forest since the project began. consistent responses were given from nearly all villages. Complaints wax largely focused on the loss of certain foods, agriculture damage and the availability of farming and household implements. Traditionally. most villages hunted for bush meat (grasscuners. duikers. others). and extracted mushrooms and snails from the forest Villagers fornirrly relied on cane to make baskets, raffia leaves for roofing. pestles for pounding fufu. incense as a protection from certain bugs and sponges and chewing nicks to sell at lscal markets - the sale of which formed a substantial prul of family income. in some cases. the largest pan. The collection of wood for fuel has not been a problem, as this was and is still done around the outskirts of the Park. Several villages did complain, however. that royalties previously paid by the timber companies to the village chief have cd with the restrictions on logging. The most serious nimter. repeatedly addressed in ever) village. was the incidence of elephant crop raiding. F~rniland adiaccnt lo Kaliuni Park is regularly subject to cmp dcsl~clion, forcing farmers in many cases to abandon their family land and rent lands further north. for which they had to share 50 percent of the yield with the landowners. Although stories of direct and indirect benefits and costs fmm the NRCHP Projca and the Consolidation Phase had similar themes. the specific incidenls differed by village and should be noted. especially those relating to the activities of CI and GHCT. In the village of Kruwa. electrification has reached the am with 3 I2 homes now wired for access to electricih. with only 34 homes having meters and the ability to pay for service at this time. Also a result of the project development at Kakum. he Wildlife Dibision improved the local road to Asuansi Junction and periodically maintains it. This provides an easier mute for villagers to tnnspon vegetables to the lccal market. More than most villages visited. K~wa now has live of its citizens employed as a muh of the project: one with GHCT, three with the Wildlife Division and one as a grarxuner attendant for the CI demonstration project at Kakum. Sometime during 1999. through a linkage creatcd with the help of CI. the Kuapa Cocoa Company was introduced to the village uxoa farmers. Kuapa Cocoa now purchases coeoa on a wholesale basis from Kruwa, at slightly higher prices than the previous intermediary. Kuapa Cocoa also agreed to make a contribution to a community fund. but has yet to provide any financial support. Unfortunately all income-generating enterprises swed with the assimce of CI and jointly implemented with the WD. have failed. Prior to the engagement of Cl, a villager had begun his own bee-keeping business after receiving technical assistance at the nearby Asuansi Agric Institute. After meeting him. C1 identified nine other villagers who would be interested in bee-keepinghoney production and provided the necessary boxes, hives and protective clothing through the Wildlife Division. CI provided WD staff with training so that they could train the vdlagers and monitor their work. but provided no direct training to the community. The nine villagers looked ro the csrablishcd bcckccpcr Tor (mining and guidance. Thcre wcrc a feu harvests of the honey. with some dispute over paymenls received from CI and some still outstanding. Villagers complained of no technical assistance or follow-up. and most of the hives havi si~iic collapsed due to thc infirior qualily of the wood uscd for boxes. which nrrc unable ro \virhstmd the elcmcnls. Thc original bcckccpcr has continued his activilia. although he is extremely ill at present. The same beekeeper had also received training on snail farming from the Asuansi Agric Institute and successfull!. nn this enterprise as well. Other villagers have expressed an inrerest in rccciving rcchnical assistance and surt-up loans lo begin snail farming. The other CI supponed village enterprise was the introduction of grasscuacr farming. One community member was sent to the Ebenezer grasscuner farm in Accra for training. and upon returning to Kmsa. CI IWD provided grasscutters for starting up the community entaprise. There was a misperception early on that the activity was an employment opportunity and not an entrepreneurial venture to be owned by the community. Nevertheless. as the grssscutten were fed and grew. it appeared that they were not reproducing and it was determined that all but t\vo or three of the grasscutters provided were rnalc. A four-to-one ratio of female to niale grasscutters is necessary for successful reproduction. In this case. the community was provided a one-to-lour ratio of female to male. The story was complex and lengthy, but ultimately the farm was removed from the village and taken to Kakum National fM. as a demonstration farm. It is hoped that once more females are introduced and reproduction is succcssl'ul. it will bc moved back to K~wa. Women in the village of Kmwa are waditionally traders and previously died on sponges and chewing sticks brought from the forest to take to market. They now have no substitute commodities. other than small amounts of vegetables farmed largely for subsince. The women made the suggestion that if loans could be provided to purchase refrigeration. they would be able to travel to the coast and purchase larger amounts of fish. store them in refrigeration. and the volume of their trade would inc-. The evaluation team visited the village of Mwmagor. which had similar experiences to most other communities. although some had benefited from the development of a performance stage at Kakum National Park for the Kuchyakuchyakm Bamboo Orchestra. The Orchestra had received technical assistance and stan-up funding several years before from the Center ibr International Learning and Advancement (CILTAD). Locally. CILTAD is known as AGORO. The arrangement to perform at Kakum continua with GHCT. where the "-person orchestra receives 5 10,000 cedis for each performance, usually every Saturday in high season and every other Saturday in low season. From this fee. the Orchestra must pay for its transportation (190.000 cedis). food for the day (100.000 cedis). and 10 percent to the communit) and leadership from the remaining revenue. The Orchestra expd some frustration with the process of collecting its fees from GHCI: as once the site manager sends a letter to Cape Coast approving the number of performances, and a check is issued. a representative of the Orchestra must onen travel lo Cape Coast several times to determine if the check is ready and then to cash it at a bank. Additionally. the cost of transportation is rising. and there has not been a commensurate inc- in the performance fa. The balance of revenue earned from their performances is being used by the Orchestta to build a guesrhouse in the village. which they hope will attract tourists and students and be used as an interim stop before proceeding to the tm platform. The guenhouw construction has been a slow process over many yean, dependent on income from performances and is in need of marketing and promotional assistance. The Masomagor Tree platform. built in the first phase of the proja~ remains in need of repair and has not cspcrienced significant use by tourisis nor has it created any meaningful economic benefits to the community. (please see Seclion 4.3 jorfurrkr discussion on the .Ilmrrrriprr Trw Plrr~li>rn,~ The community has not been involved in any other income-generating activities such as snail (arming. grasscutter farming or honey production. The top priority activity they would request tcchnicnl and start-up assistance for. is for palm processing (oils and soap). Mnsomagor has sun'ered substantial losses due to elephant crop raiding. limiting the conin~unity's abilit) to farm. More than most villages. they rcponed high levels of out￾migration. estimated at over 10 percent of their population in just the last eighteen months alone. Community leaders and member in Ahomaho experienced similar indimt and direct benefits to those of KN\v~. Since the inception of the project the government built a school for them. Lihc I;ru\\a. ills Ku;~p;l Cocoa Company has also created a wholesale relationship with community cocoa growers. with more favorable terms than previous buyers. As a b>-product of the palm oil and palm kernel oil production in the village. Momen have formed a cwperative to produce and sell soap. Production knowledge was gained by visiting and learning from a nearby village. Technoserve. a subconuactor to CI. originally arranged a fised purchase price annuall). which has proven to be less than ideal for the cooperative as production costs are variable with seasonal considerations. They cumntly rent a car or taxi and take the soap to Accra to sell. Production volume would be improved significantly if the women were able to apply new technology to replace some of the physical labor required in the processing. Both the snail farming and bee-keepinglhoney production enterprises that were created by CI and the Wildlife Division. failed for similar reasons to those otperienced in Kmwa. Technoserve reportedly asked interested villagers to organize into a maize-producing cooperative. which they did. but no capital has materialized to begin operations. Production is only on a small scale at present. Ahomaho residents expressed interest in a grasscutter operation if they could receive sufficient technical and stan-up assistance. A more serious problem not expressed in other villages was that of periodic hunger and a food deficit in the surrounding community. largely caused by the continuing elephant crop raiding. Like most of the other villages visited. Abrafo-Odumnsc had experienced a signif~ant loss of resources with the restrictions on use of the forest. Traditional activities such as hunting. tirewood collection. cane use for baskets and medicinal herbs retrieved from he forest, have a11 ceased. In the case of Abrafo-Odumase. 512 acres werc taken from the village for areas creating a buffer around the forest. Despite promises of assistance for health and education services. nothing has been provided to the community. Elders in the community reported on two successful business enterprises. however, which were expanded by a 35 million cedis loan received from the Catholic Church. in the form ofa palm kernel mill. and from CEDECOM. to expand the operations of an exining snail farm. The palm kernel mill operation is run by a 14-person cooperative, who mill the palm and kerncl seeds for oil. brought in by othcn in the community. The operation appears to be running well. and they hope to be able to expand in the near future and plan more trees for harvesting. Once the loan is repaid. the machinery will be fully owned by the cooperative. and future profits can go towards expansion. The snail farmer received a loan from CEDECOM. whose loan repayment terms were unclear initially but have since been resolved. The funds provided the farmer an opportunity to anend a 3-\veek training course at the University of Cape Coast (UCC). and expand his opcratio~ls in order to wrve as a training licility Ib otl~cr vilhprs inrrcstuf in mail farming. .The farmer has received an award for being the top snail farmer. and has had follow up in￾wrvicc lraining irwv thc IICC Prnfcswrs. wl~o li:~vc visited his farm. Ihc famr infd the team that he had at no time received any assistance from Conservation lnlemacional or the Wildlife Division. Grasscutter farming is another income-generating opportunity that more villagers in Abrafo￾Odumase wish to engage in. There is currently one farmer engaged in raising gtasscuners. The community leaden shared with the team that this can be a profitable enterprise, however inputs -- food and supplies. and transporting them - an bc expensive. Women in AbrafoQiumase are prepared and quite interested in expanding their trading operations. producing soap. and cultivating cane. if small loans could be provided to them for starting up operations and initial training. The final village visited by the evaluation team was MRorn, whem interviews wem conducted with the village assemblyman and sevetal elders. Mfuom appcam to k in a particularly bad stale. relative to most other villages visited. Elephant raiding has seriously impacted their agricultural activities. Staff of Conservation International advised farrnm to plant biner yams and ginger as elephants do not eat these crops but villagers explained that they need other crops for sustenance - corn, cassava. and others. Villagers at Mfuom complain of virtually no dinct or indirect benefits from the development of Kakum National Park. Four members of the community have received jobs: I driver for the Wildlife Division, I part-time tour guide, and 2 employees at the park itself. Mfuom lags behind xveral other villages in basic infrastructure. Roads connecting to surrounding villages are poor and mike transport to markets difficult. The village has two small, structurally def~ient classrooms for use by 58 students in one and 64 in the other. Class is routinely cancelled during rains, although Conservation International provided 2 packages of roofing sheets that has partially completed the roof rcpairs. National electrification did come to the village, as it was prioritized in orda to ekcbify the common areas of Kakum National Park. The community is fortunate to have good spring water near the town. but no functioning boreholes exist. Mfuom villagcrs rcported no successful small enlcrpriscs in their communiIy. In 1994. CEDECOM provided a few villagers with training for snail farming and g-utta farming, but no start up capital was provided and the enterprises never began. Like Masomagor. Mluom has espwienced high levels of out-migration oftheir youth lo urban arcas in scanh of employment. Women interviewed and other community elders note that Mfuom would be intatsted in financial support for processing machina for palm oil, cassava and gari; improved linkages to markets: protection from elephant raiding; and assistance to improve the state of the Mfuom school. 5.0 Thc Successes and Failures of Consolidatioa Phase Activities The British daib newspaper. The Times. reponed in an October 30, 1999 anick that in the "pist eight ywrs. an iniaginstivc projccl bcckcd by thc US-bascd NG0 Conscwation International has combined the historical resources of the castles and the natural amactions of the Kakum forest to make a tourist destination which now draws more than 90,000 visitors a year. and which won British Airways' prestigious Tourism for Tomorrow Award in 1998." The articles explains in detail the restoration effons for Cape Coast and Elmina Castks, and describes the preservation work carried out at Kakum National Park and the construction of the canopy walkway. Additionally. in 1997. USAID rcccivcd an honorary award from the Ghana Tourist Board. for Icadcrsl~ip in Donor Agency Suppor! for Tourism Dcvclopmcnl. Clciarly. both national and inremational recognition has been achieved for the restoration and preservatim aciivities performed under the NRCHP project during the last decade. 5.1 The CHCT Secretariat From all accounts. the GHCT Executive Director has dedicated subnantial time and effon and has succeeded in repairing relationships and restoring institutional communication and trust between major stakeholders and partners of the Trust. In reviewing the many strategies, bricfs and work plans of CI and GHCT through the transition phase. it is clear that expectations for GHCT wcre unmliaic. As a new NGO. it has neither the capacity nor the staff capabk of pursuing virtually all of the suawgies and work plans designed for it. CI assumed that thcrc would either be a much larga staff or greater capacir). than was reasonable to wcpect for a new NGO. Thus the institutional strength required to manage day-today adminis~ration and financial operations is lacking. Presuming that new staff of GHCT would be able to gain the management capability required in less than one year was ambitious. Separate from on-the-job periodic training. very link formal training occurred. The technical skills envisioned to be transferred might also have been difficult to achieve due to the capacity conmints of key employees to absorb the necessar?. skills. Administratively, it appears that GHCT was not prepared to manage its documents and records system at the time of transition. and still does not have systems in place. Many fib cannot be found at GHCT. and are assumed to be at Cl's Accra office, and the convasc. It appears that there was little preparation towards creating an adminismtive slrucwre that would be easy for GHCT employecs to take on and manage. Instead it appears that the administralive structure was left for GHCT to create aner the transition. Institutional memory is lacking at GHCT. as CI handled many of its amain directly for most of the Consolidation phase. transferring adminismtive and financial management towards the end of the transition phase. The transition phase canic quite late in thc process. Overall. it appears that CI developed the capacity of its own staff to save effcaively as the Secretariat to the Board of Trustees during the consolidation phase. GHCT staff wcre laIer hired and trained by CI staEaftcr they received CI mining. 'Ihe Executive Ditutor was only identified and hired in early 2000. A more appropriak scenario would have been for CI. as the proja implementing agency, to hire employees at the beginning of the consolidation phase that would then become employees of the Secretariat and thus have the expertise to manage the operations and afliirs of the Trust from the beginning of the transition phase. 5.2 Financial and Aswt Managcn~ent A noteworthy success of the consolidation phase was securing the funding of GHCT's endowment. It is evident that this endeavor was far more complicated than any of the participants imagined it would be. At more than one poinl. participants were convinced that the endowment \rould never actually materialize. GHCT did what was required with the suppon of CI. and guidance of USAID. to complete its legal and institutional commitments such that rhc CII~W I~ICII~ could be IranslkmJ to the 'l'rusl. Financial management is extremely weak at GHCT. Balance sheets were not dily accessible. and there appears to be a conflict between the type of software that is available at the Secretariat and the type of software that CI used during the consolidation phase. Cl's turnover of revenue generating assets and community development projects did not account sufficiently for the lack of capacity and technical knowledge of GHCT to manage these assets. Under Cls management there was a failure to create any projects with a positive cash flow to provide to GHCT. A more appropriate decision would have been for CI to maintain management responsibility for the assets until such time that they were profitable or prepared to be concessioned. Thcre is currcntly no evidence of capacity being built during the consolidation phase for fund-raising at either the Secretariat or the Board. 5.3 The GHCT Board of Trustees GHCT Board of Trustees are extremely committed to the Trust. and it is a testament to their hard work that they were able to stand firm and work hard to ovtrcome many of the obstacles that came up during the transition phase. Their meeting with Chiefs and other dieholders in communities around the project area has no doubt resulted in a bener understanding of the Trun by local leaders. The reliance of the Trust on USAlD seed money and revenue generating ass& of the pmjea and its inability to raise any other funds to date. no matter how small. must be seen as a major drawback. It is also clear that the Tmst is yet to have made any major impact on policy makers with regards to reforms required in a key institution such as Ghana Museums and Monuments Board. 5.4 Key Stakeholders and Commuaitifs A readily apparent success of the NRCHP project is the increased business activity around Cape Coast Castle and Elmina Castle. For example. there are seven shops facing Cape Coast Castle. with a volume of business ranging from 100.000 cedis pa month to l.lmillion cedis per month. It is evident that a great deal of economic activity supports these shops, from wood cawing shops to sewing cooperatives. Traders also work with these shops. ensuring a continual supply of merchandise. With the leasing of space at Heritage House in Cape Coax there are additional shops. including a snack shop at the bax of the House and a souvenir shop inside the House. Hans' Conage has enjoyed increased business in the way of lunches taken en route to Kakum. and box lunches prepared for picnics on site. Other restaurants have also benefited, as thue is a perception that thc restaurant at Kakum is expensive or unreliable. With this business comes the selling of ancillary artifacts and souvenirs. In addition. there are many more snack shops and drink bars that have opened in Cape Coast in recent years. supporting the Ghanaian visitors who come to the area to see the Castles or Kakum National Park. Interviews suggest that GMMB and GHCT will soon sip an MOU resolving a major conflict that had emerged betaeen the two institutions. An MOU was successfully concluded betwm the Wildlife Division and GHCT outlining the framework for its future cooperation. The Kakum Canopy Walkway continues to be a national success. and its reputation is growing throughout Africa. In one year. visitors to the Kakum National Park reponedly grew fmm 5,629 in 1998 to 65,274 in 1999. It appears that linle to no rural assessment work was done before beginning cornmunit)- development activities. Repeatedly. the evaluation team found capaciry in and around the villagcs surrounding the park that could be broughl to bear on development. for example local agricultural training institutes. Ghanaians who lived in the region and had succeeded at eetcrprise dcvelopment could have conducted mining. Instead. too oRen ouuide spc~alists were brought in who in some cases knew less than some of the villagers they were meant to be supporting. None of the village level income-generating enterprises that were stared during the mition phase including snail farming, grasscuncr farming, or honey production arc generating revenue. Most have been shut down. 6.0 Lessons Learned 6.1 GHCT Institutional Development To meet the objectives set out for the Institutional Development of GHCT, it would have been more effective to hire staff at the beginning of the Consolidation Phase, and instill training and capacity in those employees from the first day of the transition phase, rather than what occurred - which was to build capacity within C1 to train other naff cmploycd for GHCT. A more accurate assrssment of the financial viability of projects designed to be income￾generating activities should have been performed early on, and an appropriate response developed. wcll bcforc the Transition Phase. The stated mission of the Trust is the conservation, protection and maintenance of the K&um Conservation Area. Cape Coast and Elmina Castles. Fon St. Jago and their envimnr as well ns the econo~nic growth of communities around them. This mission is in line with the ohjcctives of the Coltnl Region to conxne, dcvclop and market its lourism assets on a sustainable basis. It however. explicitly missed on the critical ingredient for assuring sustainabilit).. which is funding and fund-raising. A Trust is essentially capitalization of a Fund. While the Board of Trustees clearly understands the need to raise funds and have provided for this as an output in its strategic plan. iu role and the thrust of its activities to date h3s bC.c~\ niorc in thc Jin~lion of pmjr-t ntanugcnlcn1 and suslaining project acliviries under the NRCHP. not fund-raising. Comparatively, a lot of effon was spent on project activities and community initiatives inheriled from Conservation International. These are areas in which the Trust lacks capacity and espenise and which could be best handled by line agencies. given the necessary support. Rather than promote historic tours of Cap Coast for example. the Trust should be strcng~hcning rhc c;ipilcity 01' the Glii~na Tourist Uoard to promotc this attr~ction, whilc its staff concentrates on its core business. 6.2 Relationships with Key Stnkcboldcn Poor communication between GHCT and GMMB severely mined their relationship during the consolidation phase. Given the institutional weaknesses of GMMB that were known to C1. far more effon should have been made to provide the necessary technical assistance to strengthen GMMB as a key partner to GHCT. This was not done. Clear and open communication is a key ingredient to the success of the collaboration been GHCT and GMMB. Regularly scheduled meetings should be instituted as part of the effort to implement the MOU expected to be signed in the coming weeks. Functioning information-sharing channels will be essential to the success of the delivery of technical assistance and related project funding to GMMB. Concerning the decision to close the fabrication workshop, it appears that while the senior executives of both organizations agreed on this controversial decision. the rationale and future plans were not transmitted to the rank and file of GMMB. It is critical when one organiwtion takes over an asset from another institution (even if only in appearance), that full disclosure is made. This apparently did not occur at the operational level. The Chairman of GMMU currently holds a diffcrent vision of the relationship with GHCT. than does GMMB staff. This misperception should be resolved and GMMB staff should lake ownership of this vision. It appears that little to no rural assessment work was done before beginning community development activities. Repeatedly, the evaluation team found capaciky in and around the villages surrounding the park that could bc brought to bar on devclopmcn~ for example local agricultural training institutes. Ghanaians who lived in the region and had succeeded at enterprise development could have conducted mining. Instead. too oRen outside specialisls were brought in who in some cases knew less than some of the villagers they wac meant to be supporting. For community based income-generating enterprises to succeed. more attention mun be paid to the provision of technical assistance. close monitoring and the method by which UK TA is provided. It would make more sense to send villagers to a local agricultural inaitute directly. than to train either the staff of CI. GHCT or the Wildlife Division, to then vain and work with communiries. At present none of the enterprises that were stand during the uansition phase are generating revenue. Most have been shut down. All co~~tmu~~itirrs~llrrviewed expressed a strong wnw of understanding of the imporlance w preservation and conservation of the natural resources of Kakum. a mu11 of earlier phaxs of the projects work on education and awareness. Despite the economic diflicultier they am grateful for the increased rainfall. and appreciate the value of preserving flora and fauna for future generations. 7.0 The Economic Impad of the NRCHP A main focus of the evaluation involved assessing the economic impact and spread effects of the NRCHP Project from initiation of the project in Phase 1 (1991-1998) until Phase I1 (1998-2001) ended. In making this assessment the team found it useful to focus on compiling dam that would enable it to: (1) measure the extent to which tourism development had. indeed. occurred in the Cape Coastnlmina/Kakum Park am; (2) daermine the main factors that had affected the development process, specifically the role played by public and private sector tourism-related investments, and by the NRCHP project itself; (3) assess the impact that tourism development has had on employment and income generation in both urban and rural communities in the project am. and on agriculture and related industries; (4) comment on the linkages that exist between heritage tourism and economic growlh: end (5) identify those elements of the population that havc most benefited from the process as well as those that arc bearing thc costs. In its asscssnicnt, the team viewed the tourism industry in the Capc Coast area as basically a self-generating. hotelier-led. profit-motivated economic sector. which has had public sector resource conservation and heritage preservation components incorporated within it. and which was being developed with funding and technical assinance provided under the NRCHP Project within the contest of the overall economic and geographic situation of the Cc~itrd Rcgio~i; and Ghana itself. The tourism induswy in the Capc Coast area has and will continue to depend upon further development of the Region's road nefur&. telecommunications nehvorks: and electrical, water supply and sanitation systems to support its development etTorts and prospects. The tourism indusuy has acquired a mitorial identity of its own in terms of heritage and conxrvation sites, hotels, and other accommodation facilities and businesses. the development of which will eventually have significant economic and cultural impact in the region and throughout Ghana itself. This approach provided a basis for tracing both the macro- and micrwe~~omic impact of the project. It facilitated the team's effom to demonstrate that there are linkages bmvrrn conservation and heritage tourism. and economic development: provided a basis for estimating the direct economic benefits and costs within the Central Region: the indirect economic benefits and economic costs outside the Region: and the potential bcnefits and costs of tourism development in the future. It also enhanced the learn's ellom lo reconcile its own tindings \villi thox that had nnergcrl from ihe mid-tcnn evaluation of the project in 1994: the Weidenlann Associates report on the economic impact of the project as of 1991; and a Cape Coast University hotel survey conducted in 1999. 7.1 The Extcnt to Which Tourism Dwclopn~cnt Has Occurred in tbe Capc Coast Area: the Role ofthe NRCHP Project in Supporting the Process 7.1.1 The Findings of the Final Report of the Mid-Tcrm Evaluation of the Pmjcct, Undertaken in 1994 In summarizing its findings. the final report of the mid-term evaluation noted that as of March 1994 the project had been successful in achieving its planned objectives. The repon cited as m3.ior 3ccomplishmcnts of the project. the institutionalization of thc Kakum Park and the Assin Atrandanso Wildlife Production Area as a legal and functional entit?-: the extensive stabilization of the Cape Coast and Elmina Castles: and the creation of a cadre of trained tourism professionals who had the capacity lo managc and maintain tourism institutions and to market the Cape CoastlElminaKakum Park area and the Cmwl Region. as an international tourism destination. The repon concluded that tourism in the Ceneal Region had increased as a result of the pmjcct's marketing. promotion and planning activities. but also noted that the further achievement of projcct objectiva would be enhanced if them were a functioning national database on tourism. 7.1.2 The Findings of tbe Weidemann Assoeita Report of 1997 The Ghana Economic Analysis Repon prepad by Weidematan Associa~es. Inc. dDe1oi11e UII~ Touche Tohrrlacsu Inrernnrional in MayJune 1997. indicated that the fim phase of the NRCHP pmject had far exceeded expectations at that point in time, enhancing Ghana's image as a tourism destination and stimulating significant growth in the Central Region's economy. It noted that the project had led to increased revenue generation, dircftly at the Kakum Park area and the heritage conservation sites, and indirectly thmugh hotel conaruction. infrastructure development taxes, and the provision of goods and services to the twrisn industry. Between 1991 and 1996, visilation to the historic monuments in the Cape CoastElminaKalium Park area had more than doubled and revenues had mipled. Some 325 million in private sector investments had been leveraged by USAlD fimding. as well as another S 100 million in Government of Ghana investments in related infrastructure. In addition to these achievements, three of the most historically significant of the 32 trading fortifications built along Ghana's coast between the IS* and 18* centuries (all World Heritage Monuments) were preserved. In addition, 360 square kilometers of moist tropical forest had been conserved. representing a fragment of the Upper Guinea Forest zone and one or' the most threatened hotspots of biodiversity in the world. With these acconiplislinients in Band. the rcpn indiulcd that ancr livc yurs of conurtcd etlorts. an plattbrm hr tourism development had been put in place. including three major hotels. funding, technical and management skills, business know-how, and supporting infrastructure. The repon noted that fuher institutional capacity building should be undertaken with respect to esisting project implementing organizations like the Ghana Tourism Board. the Central Regional Development Commission and local Diarict Assemblies. In addition. the management capacities within implementing and facilitating institutions. namely CEDECOM, the Ghana Tourist Board, and the Coordinating Office of the Regional Adminis~ation, shouM k strrnglhencd to facilitate the coordination and promotion of tourism-related activities The repon also indicated that steps should be taken to promote more local (Ghanaian and West African) visits to the project sites, and bener largeled niche marketing Nategies developed and aimed at Europe. Nonh America, and Africans in Diaspora. using specialists who know these markets well. In addition, available funding and technical support should be directed to business enterprises, private sector investment institutions and programs that stimulate economic growth and development especially business concerns that encourage visitors to spend more tourist-nights at various attractions in the region. A comprehensive program focused on hygiene. sanitation, and envimnmental enhancement should be developed for the major project sites. particularly Cape Cwt and Elmina. 7.13 The Results of a Survey of tbe Hotel and Restpurnnt Industries in tbe CentrnI Region, Conducted by the University of Cape Coast in 1999 Particular anention was given during the team's evaluation to the findings that had emerged from a comprehensive survey of the hotel and restaurant industries in the Cenual Region. conducted in May-June 1999 by the University of Cape Coast (UCC), in collaboration u-ith CEDECOM and UMES (the University of Maryland, Eastern Shore). Having learned of the survey. the team made it a point to meet with two professors of the Department of Geography and Tourism UCC. who had been instrumental in designing and implementing the surve).. to discuss its findings. The team learned from the meeting that some of the owner-managas contacted to be respondents were hesitant to participate in the survey. coming as it did in the wake of the introduction or the Value Added Tax (VAT). A furher detment was the complaint by several potential respondents that a number of surveys had been conducud on the tourism induan in recent years. but that they (the respondents) had not received any feedback concerning the results of the surveys. Notwithstanding these impediments. the survey report noted thar of the 60 hotels that were opkrating in the Central Region in 1999.53 were mvd b)- the survey. Of these. 41 had been established in the 1990s. and IS were located in the Cape Coast area. Poor record keeping was cited in the survey as a major problem in compiling information on budget hotels and restaurants at the lower end of the tourism business spccuum. For some this is due to the fact that family members constitutc the working staff of thew hotels and restaurants and owner-managers do not consider it important to compile information on family staff. As a result. there are gaps in data concerning the economic status of employees \\-orking in budget hotels and restaurants with respect to key variables such as age. uagcr education and training. The UCC survey report aptly noted that establishing a hotel is a capital-intensive undertaking. In fact. given the current cost of capital in Ghana it was not surprising to learn that of those privare sector entrepreneurs cumntly making such investments. some three-fourths invest their own savings or capital funds. Only about one-sixth of them seek to obtain loans from banks or lending agencies, while the remainder look to family. friends or pamen for assistance. Of the 41% of hotclicrs who had sought additional funding for established facilities. nearly 60% looked to banks. one quarter looked to the Ghana Touris! Board, one￾tenth went to moneylenders, and the remainder sought funding from CEDECOM or SSNIT. 7.1.4 The Findings of the Evaluation Team Concerning tbc Extent to wbicb Tourism Development has Indeed Oceumd in the Cap CopstlElminln<.knm Park Cunscnalion Arw The team's findings basically confirm the observations made in the Final Review Report on ths NRCHP Project undemken in 1996, and the Weidemann Associates Report of 1997. that tourism development has indeed occurred in the Cape Coan/Elminankcn down to appmxi~lialcly 50 lnillion ccdis on fish. 5 million &is on chickc~i. ;lnd 3 niillion ccdis on kf. lhc hotcl makes an ellofl to buy as much as it can locall>. Ilie GolJcii UcacIi Kcsort c.xplaincd that it purc1iasc.d chicken and eggs locally. as opposed lo buying them liom its former suppliers lowted outside the region. In addition. the purchase of local vegetables has increased dramatically. Naa Gyasie is a vegetable supplier who has been supplying fresh vegetables to the hotel over the past 3 years, and reports a large increase in the sale of all items. These days. she sells over 1200 kilos of fresh vegetables every month. Unlike its vegetable purchases, the Golden Beach Reson in Elmina buys seafood from distant towns like Axim. Dixcove, Takoradi and Accra. due to the inability of local fishamen to provide the desired quantity of seafood. According to Cico Foods in Takoradi. seafood supplied to the hotel has increased considerably over the past five years. Five years ago, the volume of fresh seafood (including fish, oftopus, pnwns. and more) supplied to the hotel ranged from 100 to 200 kilos a month. Currently. deliveries are between 400 to 1000 kilos a month. At Panafes~ Emancipation and other festivals, demand increases funher. Purchases from Accra still represent a large proponion of the Golden Beach Reson's food suppl?. Kwatsons Impes. a supermarket in Accra. imports most of its food items. It supplies cheese. milk. frozen chicken. pasta noodles. cereals. sauces. spices, and other goods to many of the leading ho~els in Ghana. Sales made to Kwawns' hotel and restaurant clients have scen 3 steady incrcase over the past seven years. For example. the Golden Beach Reson was purchasing approximately 7 to 10 cartons of dairy products a week three years ago, and now purchases behveen 50 to 70 canons of dairy products every day. The Kumasi Abattoir also supplies the Golden Beach Resort with meat products, including beef fillet, mind meat lamb cutlets and chops. Three years ago. the Hotel purchased approximatel> 100 kilos per week: today it purchases 225 to 250 kilos a week. 7.4 The Trvnl's Asscssn~ent of the Economic Impact of Project-Funded Activities 7.4.1 The Impact on Private and Public Sector lnvestmeots The Cape Coast University study aptly notes that establishing a hole1 is a capital-intensive undenaking. In fact. given the current cost of capital in Ghana it is not surprising to learn from the survey that of those private sector entrepreneurs currently making such invemma some three-fourths invest their own savings or capital funds. Only one-sixth utilize loans from banks or lending agencies, while the remainder look to family. friends or parmers. Of the I I percent of hoteliers who sought additional funding for established facilities. nearly 60 percent looked to banks. one quarter looked to the Ghana Tourist Board, one-tenth looked to moneylenders. and the remainder sought funding from CEDECOM or SSNIT. 7.4.2 Rcvcnu~?s from Tourism. Ihc ln~pact on Small and Medium-Scak Enterprises, Employn~mt Generation and Capacity Building (project related training) a. Revenues Ccncrated from Tourism Fundamental to economic impact analysis. is the amounl of tourist expenditures. However, the team was precluded from a definitive analysis due to the cumnt lack of a comprehensive database on visitor expenditures in the Central Region. Our analyses of tourist expenditures have therefore becn limited to revenues from hotel accommodations and entrance fees to the Castles and the Kakum National Park. Hotel Accomniodation - Available statistics indicates average annual occupancy rates. room rates and total revenue as shown in Table I below for hotels in the Cape CoadElmina area. Table I - Estimated Hotel Revenues (2000) Table I Average ' 70 Room Rate 6) 174 Number of Rooms 1 Average Percenlage Occupant) Rate i Total 1,555.995 35 BUDGET 35 9 In 197,757 Revenue (S) Ghana Tourist Source: BoardICentral Region Hotel Association Entrance Fees - admission fees to Capc Coast Castle increased from 1,280,600 cedis (1991) to 22.91 1,960 cedis (1995) and 185,663,000 cedis (2000). Revenues for Elmina Castle. for the same period, were 5,450,300 cedis (1991). 28,169,340 cedis (1995) and 256,544.756 cedis (2000). Total revenues to both Castles increased from 9,730,900 cedis (1991) to 442.207.756 cedis (2000) i.e. by over four thousand percent. For Kakum Park, enhance fees increased nearly six thousand fold from 4,431,350 cedis (1994) to 21276.600 cedis (1995) and 37.402.000 (2000). Revenues from the Canopy Walkway amounted to 52,020.000 cedis in 2000. See Table 2 - Admission Fees To Castles & Kakum Park (1991 - 2000) which follo\vs. Recorded visitor arrivals at Cape Coast Castle were 7.881. 19.439 and 34.871 in 1991.1995 and 2000. respectively. Comparative data on Elmina Cadle is 7,977. 28.402 and 96.016. Visitations to both Castles increased by 262 percent and for Cape Coast. by 129 percent during thc period under review. See Figure 4 - Cape CoasElmina Casllc Visimlion on the following page. I 2000 185,663,000 256,544,756 257.402000 Source: GMMB & Wildlife Division (Forestry Comrnirsimn), Central Region Figure 4 - Viitation to Cape Cosst and Elminn Casks. FDURE 4 I CAPE COASTIELUINA CASTLES VBITATION (1991 - 2000) 1991 1992 1993 I994 1895 1996 1997 1998 1990 2000 YEAR Source: Ghana Musums & Monuments Board - Central Region I .iccnsing kcs cullcctcd hy the Ghana Tourist Board from hotel and catering enterprises was 15.6 million cedis in 1990. Kcvcnucs to Govcrnmcn~ generated by the throe Government line agencies lion1 admission and license fees in the Cape Coast/Elmina/Kakum Conservation Area in 2000 were a total of 715.27 million cedis. This excludes municipal and dimict taxes including propem. entertainment and copyright fees paid by the howl. food and bevaage industries to the District Assembly. b. Small and Medium-Scale Enterprise Dwelopmenl The team was informed at a meeting with the Central Region's Office of the National Board for Small Scale Industries (NBSSI), that NBSSI provides training, counseling and advisory scrvices to small-scale entrepreneurs and also promotes small business associations. Most of their clientele are artisans, dressmakers and people with communication businesses. The Center also assists with business registration and training in bookkeeping, and works with the Ghana Export Promotion Council in providing marketing linkages. Similar information was obtained froq the staff of CEDECOM'S Empowerment and Mi￾Finance Unit (Empomic). This unit operates a savings and loan program for small-scale cntrcpreneurs. Originall!. started as the CEDECOM Credit Propam. the scheme involves a mobile banking unit and staff who go around to mobilize savings from clienkk. The program is currently limited to Cape Coast area. There are plans to expand it to Elmina and communities around Kakum Park as well as other districts. This depends upon the success of the current scheme and expansion of its capital base. To qualify for a loan facility, one must have swcd with the scliemc for a period of sis months. Emponiic lends fmds at a rate of 52.5 percent. which is higher than the rate at the banks. Interest on savings is 20 percent as against 18 percent at the banks. The advantage to clients. however. is that no major collateral other than six months' savings is required. Most of the loans are taken tbr business expansion purposes. Initial stan up capital comes mainly from family members. The clientele base mostly includes people in the food and bevemge business. hair salons and barbershops. To date. over 120 million cedis have been mobilized under the credit scheme. 75 million cedis have been given out as loans. The scheme invests the savings in high yielding financial instruments. c. Employment and income generation In 2000. there were 886 employees in the Hotel. Food and Beverage indunrics in Cape CoastlElmina as compared to 123 in 1990. This represents an increase of 620 percent. This comprises of -174 males (53 percent) and 412 females (47 percent). In the hotel sector. direct emplo!ment increased from I I1 in 1991 to 727 in 2000 in the Cape CoastElmina arts comprising -129 males and 298 females. In the restaurant and fast food sector, direct jobs incwascd tiooi I2 ill 1991 to159 in 2000. This is made up or45 males and 114 kmales. Dm \\.as not available on Drinking Bars and "Chop Bars". which largel) serve the domestic tourism tmtlic. In the public sector. GhlMB staff rolls increased from 66 in 1991 to 155 in 1996. It currently slmids at 146. IbrL gall' numbus also ilwwascd 1io111 38 in I991 to 96 in 2000. Ghana Totwist Board stdr has rcmained at a constant of seven. Total employment directly generated b! these ollices is currmtly 247. Overall. the project has rcsulted in direct employment for 1.133 people. Based OII research conducted by the Ministp of Tourism. UNDP and the World Tourism Organization during the preparation of the National Tourism Development Plan for Ghana (1996 - 2000). it was established that direct employ men^ in tourism resulls in a 3.5 multiplier related to indirect and induced employment in other sectors. Total employment (direct and indiwct) gcncntcd b) tourism in the project arm is thcrcfore estimated at 5.000. lndimt jobs relate mainly to handicrafts, travel and transportation. commerce. fashion. handicrafts, agriculture and construction industries. Income received by employees repents the income generation of tourism. Dim payroll costs for staff of the three line agencies is a total of 896.40 million cedis in 2000. Based on an assumption of a 250.000 cedis average monthly salary for the hotel and food and beverage sector. it is estimated that tourism generated an additional 14.25 billion cedis (S2.82) million in incomes in the Cape CoastElminaKakum Conservation areas. The income multiplier fmm tourisw in Ghana is estimated at 3.4. d. Capaeih. Building (e.g., training) Tourism development in the Central Region. as elsewhere. translates readily into job and job mining opportunities tbr local residents. For tho= alread? engaged in some facet of the ~ndustq. it can olkr the opportunity for increased income and job promotion. Indirect job creation has also been realized, specifically in the lower-priced hotels and gues~houses that utilize famil? labor. The 1999 Cape Coan University survey revealed that over half of the ho~cl staK currcn11) employed had had job training in the twelve months prior to the survey. Over 80 percent of the reported training was in management or management-related positions. Other major areas of training included client services. front desk positions, time managemenL catering. and the development of computer and Internet skills. Among staff emplojees who had not had any training. roughly one half had been recently hired as MH entrants to hotel-based operations. Hoteliers who participate in the UCC survey cited the need for training in general and financial management to be. perhaps. the most pressing need in the industry. One of the hoteliers consulted by the Evaluation Team suggested that in his view better training was even more important than implementing plans to upgrade the landing capacity of a nearby airport. Participating hoteliers also singled out the need for the development of mom tourist anractions in the region. \vhich they believe would mnslate into longer tourist srays in the region. 7.4.3 The Intpact un Agricullurc. Fiherics and Livcslucli Il~c clgricultur~l i~~dustr) in 1 cntr I is III oi private mall-siml h~ddings along \\it11 sc:~t~crcd UOIIIIIICK~~ hc~ldings. As such. it provides the livelihood of some tuo-thirds of the region's population. Marine fishing and livestock are also signifmnt industries. although large cold storage facilities for fish are generally non-existent ~n the region. A number of small-scale manufacturing plants are also operating. The economic inipac~ of tourism development is a factor in improving he livelihood of residents of the region's rural areas. However. its impact on agriculture has been minimal. Continued expansion of the tourism sector will inevitably result in a more favorable impact on the agricultural sector. especially for those farmers engaged in raising garden vegetables and produce like citrus and pineapples. Many of these pmducts are aldy being bought through local markets by the region's tourist hotels and restaurants. Poul~ farmers will also likely begin to enjoy increased earnings from their operations. Steps will need to be taken by local fanners to improve the quality of their produce. if they arc to realize subtially greater benefits from tourism development. They will also need to develop the capability of delivering goods to market on a more reliable basis than is the case at present. The ccononiic impact ol'altemative agro-hscd income generating projects linked to tourism development programs in the region. particularly to the Kakum Foren conservation program. is still minimal compared to what it could be with better planning. management. promotion. finance. and implementation. Projects being implemented include snail farming; grasssuner farnis: beekeeping for the production of honey and wax in commercial quantities; the espanded collection of certain types of leaves for commercial wrapping purposes; and commercial cane production. Plans are also being made to develop palm oil processing. cocoa. and medicinal gardens for commercial purposes. 7.4.4 The Impact on Tourism ~ulations, policies, and institulional artangements; and the tourism supply, demand and industry structure As the Central Region's successful Tourism Development Suategy gmw-. the Central Government and various regions decided to set up Tourism Development Comminm in other key regions to replicate the work of the Central Region. Thus the overall project led to the sening up of regional Tourism Development Committees in the nine other regions of Ghana. Funher. nith the demand for bener tourism services in Cape Coast. Elmina and Wum National Park. the need for national tourism training was brought to the fore. It was in pan this immediate dcmand. as expressed in the Central Region's tourism development project. \thich demonaratcd the compelling need ibr tourism training to be delivend on a national basis. The hlinist~ of Tourism then supponed a regimen of training by creating and iiiiplemcntinp I IUlCAlT. thc I lotcl. Catering and Tourism Training Institute. In addition. the lirst discussions about revenue sharing and the establishment of a National Tourism Fund to support tourism development came during the courv of this pmject. Revenue sharinp is no\\ a pan of Ghana's National Tourism Policy. and is making its way t'on\ard towards a realized end. Thus because of this project. the overall concept of revenue sharing became a pan of Ghana's National Tourism Development Policy. There is now a livel) debate about implementing this strategy. not about whether or not it's a good idea to create a revenue sharing program. I:unllcr. tiatiu~i~l tuurisni 3115 e~iviroliiliciiul pulicies s~wii IU bc tracking thc succcss of Kakum National Park. contributing to additional environmenlal conservation. The Wildlife Division is considering Kakum's success model to boon tourism attractions and earnings in other regions. This was notably publicized by the Tourism Depamnent as an approach to Ankasa Resource Reserve in the Westem Region. When asked about this development. the Director of Research. Statistics and Information of the Ministry of Tourism. Mr. A. S. Bekoe mid ihn! Kakulii National Park had escccdcd its capcity. and with its level of pmnage. it madc c'onoliiic sc~isc to es~ahlisli anothcr park to 111~1.t the dcmands of tourists. Thus the project's success in creating a national park and preserving it is leading to the preservation of other pristine ecos~stems in Ghana. Another major impact of the NRCHP has been the development of a Conservation and Tourism Development Plan for Cape Coast. Two valuable historic buildings. St Mary's Convent and Government House (now renamed Heritage House) were rrnorrd. The co~~scn,atio~~ of these old buildings. demonstrated the potential for rehabilitating and maintaining the old housing stock of Cape Coast. Many of these houses are in danger of collapse or being pulled down by the Municipal Asxmbly. Through a mall grants program in the form of materials on[>. homeowners in Cape Coast and Elmina are offered assistance to maintain and restore their homes. Many homes otherwise in danger are now being restored for residential and commercial use. US ICOMOS and The New Media Ccnta of the UniversiQ of Virginia developed a digital inventory of cultural resources and a Municipal Geographic Information System (GIs). The GIS now serves as the oflicial database for planning in Cape Coast. The model is to be adopted by all local and mgional planning authorities. Relative to environmental conservation issues, in a brief survey of beaches in Elmina. it became clear that there were a number of sea turtles coming to shore to lay their eggs that \\ere not doing well. In the current uncontrolled environmen~ local communities usually kill those endangered sea turtles as a source of food. It is not clear that there is any coastal zone management at the present time. as it is rumored that over-fishing takes places regularly. As tourism denland increases. it makes sense that a structure should be put in place to protect these sea turtles. and to protect the marine zone around these protected World Heritage Sites. It is hoped that as the success of Kakum National Park grows. a good look will be taken at coastal zone managemml. and a decision will be madc to preserve the environment for the favorable impact it will have on tourism. Finall). as a result ofthis project CI has created a much larger presenfe in Ghana. Because of the perceived success of this project, it is creating conservation projects in other parts of Ghana. and throughout West Africa. It is taking the success it is ascribing to Kakum, and attempting to use its fame as a way to continue conservation education and practices throughout the world. It is likely that for years to come, the involvement of CI will continue to generate favorable publicity and partnerships for GHCT and other stakeholders in Ghana. This will likely cement the efforts of GHCT to preserve the ecosystems and communities around Kakum National Park. It may even compel CI to focus more on wmplaing the various community development projects it started during the courx of this project, and sustaining them. 7.5 The Econoniic Brnefits/Economic Costs 7.5.1 Direct RencIitdCosts to the Cap Coast Area and the Ccntlrl Rcgion The direct benefits to the Cape Coast area and the Central Region. generally appear in the iom~ 01' increased earnings (in local currency or foreign exchange); incrcavd job opportunities: increased training opportunities; pay raises linked to the completion of mining programs: increased self-employment: greater incentives for family investmenls in tourism￾related busiwsses: incrused car rmbls: lower user fees multing from the broader spread of ~~ICC~II~IIIIII~~C:I~~CIIIS tr;~n~missi~ns: servi~e charjp: uscs (VAT): and the production and sales ufhighrr value agricultural co~nmoditics, furnirurc. appliances and consumer goods. The public and private sector investments that are being made to help conserve Ghana's natural resources are generally based on the assumption that the benefits that will result from these investments and the costs that will be incurred will accrue to both the overall econom) 01' a region as well as to the individual institutions and entities that are located within that region. It is when the benefits of these ventures exceed the costs. that a program or project is deemed successful. Secondly, whereas the impact of some invemnents in ecolourism and related private sector enterprises might be realid in the short to medium term. the benefits and impact from biodiversity conservation activities will generally spread to well beyond the lifespan of the project Regarding the extent to which farmers and fishermen within the region are benefiting from expansion of the tourist industry, about 60 percent of the hotels reported that they genaally procured the food items used by them directly from markets loulted within the region. Most of the balance of their food requirements were purchased from markets or wholesalers located in and around Accra. 7.53 Tbe Indirect Economic BeqefitslEconomic Costs, Outside the Central Region; the Spred ECTc-ts of the Projcct The quantificaion of the economic benefits and economic costs of the Central Region's tourism development program. that accrue to agencies and businesses located outside of the Central Region is difficult to characterize at this time. Certainly, however, the national government is benefiting from the increased tax revenues and foreign exchange earnings that are currentl> being collected from the Central Region and elsewhere mainly because of the success registered to date by the Central Region's tourism development program. Similarly, tourism-related businesses, banks and food wholesalers located outside of the region are benefiting from increased sales of their products and services. Both the national government and business firms are also benefiting from intangibles, such as the growing international status and bankable publicity that comes with having world heritage sites as tourism destinations 7.53 Potential or Future Bcncfits/Costs Team members died heavily on the economic impact analysis contained in the project's two previous evaluation reports; on their review of the economic and financial data provided in these documents: and on information gathered directly through interviews with national and regional government ol~icials. hotel managers, local tourist officials. merchants and cornmunit)- inhabitants to assess the benefitlcost components of the project in the near term. As for potential or future benefits and costs. we believe that the benefits will continue to increase if the tourism industry in the Cape Coast area were to continue to expand at roughly the satlie rate that it has over the past decade. primarily because of capitalization to date. Conversely. given that a significant share of the costs of the support infiamucture nded by the industry has already been put in place, costs can be expected to increase at a slower rate relative to benefits. Tourism developmmt is occurring in the Cap. Coilst am of thc Ccnval Region because the main prerequisites to such development are in place. Secondly. as noted earlier. the region has also been steadily developing the infrastrucmre needed to support tourism. while sitnultaneously capitalizing on the dedication of the area's conservalionists to preserve its cultural sites and natural resource assets. Public investments in tourism-related infmtruaure have been taking place since inception of the Project. These investments arc continuing to be made. as attested by team interviews with regional officials in the road construction. electricity. telecommunications. water and sanitation sectors To accelerate the process. however. requires that the process of developing the industry be adequately financed and effectively implemented. Given the considerable local revenues tha~ are being generated and the foreign exchange earnings potential of tourism in Ghana. it remains for the Government. Central Region. and community officials to determine whether that potential will be full! exploited and at what rate that will occur. The team believes that \\liereas a lot is currently being done to sustain the tourism development process in the Cape Coast area. not enough is being done to fully capitalize on the opportunities at hand to derive substantially greater benefits. To assist in helping Ghanaians with further development of the industry. particular attention should be given b! USAID to continue its program to provide the technical assistance and training needed to improve the business development and tourism management skills of local entrepreneurs. Such training should be directed at increasing the ability of medium and small￾scale enterprises to implement effectiie employment. training procurement, promotion and marketing strategies, and include practical courses in bookkeeping. inventory control &it management, customer relations. and service pricing. What is being proposed falls well within the scope of the USAIDIGhana Mission's ongoing effom to promote tourism-kd economic growth. which constitutes a key component of its Nategy to promote sustainable increases in private sector enterprise production and marketing in Ghana. 7.5.4 The Linkage behveen Heritage Tourism and Economic Growth 'I'lic UCC sunq rcpuri noted that of the 53 hotels that were currently operating in the Cenml Resion in 1999. 41 of them had been established in the 1990s. Team interviews with hotel owners have indicated that the main attraction to them for locating in the Cenml Region has been the emphasis being given in the region to tourism development. Funds allocated under the project over the past ten years have been directed mainly towards the institution components of the project. Because of the leveraging effecrs of invesunents in hotels and tourism-related activitics and the considerable geographic spread ekts of tourism development, the linkage between heritage tourism and economic growth while mngest in the area in which the development process is occurring. the economic impact of the process can be far reaching. as discussed in some detail in Section 7.5 above. 8.0 1.cwnns Imrncd Rclating to the Ecnnnmic Impact of the Prnject 8.1 Recognition by the team that the economic impact of the project bas beem largely cuofiucul tu llw Caw Cwursl Arca The overriding lesson learned from the Team's analysis of the economic impact of the hject is that even though tourism is indeed the leading economic growth sector in the Central Region and has registered rapid growth over the past decade. it has not been shown to have had an appreciable ~~ononiicnpct in the region beyond the Cape Coast-Elmira-Kakum Forest area. Measunhlc impact is indeed being felt in the area under development: and tourism has notabl) changed the economy in the Cape Coast-Kakum Forest area. But the clkcts of the tourism dcvclopmcnt cspcricnccd lo dato in the area havc not yet extcndcd much hc\ond ihc ;wen and havc had littlc ctTcct on the Ccntral Region. itself. and beyond. The economic impact of the project would. of course, also be more extensive if hotel managers and restaurant owners found it profitable to buy fruits, vegetables. livestock. poult^ products and other needed food items from outlying fanns in the region. As noted earlier. however. steps will need to be taken by local fanners to improve the quality of their produce. and the) will need to develop the capability to deliver their goods to market on a more reliahle basis than is the case at present in order for them to realize substantially greater benefits. 8.2 Recognition by the team tbat future progress in tonrism development in tbe Ccntral region and in the Cape Coast, Elmina and Kakum Forest am will require closer coordination of effort than has been cxbibited to date. Inducing desired spread effects from the tourism development program will require a variety of concerted actions. such as road improvements, promotional ventures. market development. improving and increasing tourist ankctions. and- enhancing recreational facilities that will give visitors to the Cape Coast area good reason to extend their visit to other deninations within the Central region and beyond. 8.3 Realization by the team tbat mmmendations contained in previous evaluation reports bave not been as effectively implemented as thy migbt have been. This lassitude in implementation bas forestalled more npid and furtber development of the tourisni industry in the region. To build on the development platform that had been developed, the Weidemann Associates Report published in 1997 made a number of recommendations that were impkmend in the intervening years. It also made a number of recommendations that were not implemented. The tram bclicvcs that grcater progress on the project would have been achieved had the recommendations bccn en'ectirely implemented. 8.4 Poor record keeping was cited in the llnivc~ity of Cape Coast survey 01 hotels in the Ccntral Region as a major problem in compiling information on budget hotels and restaurants at the lower end of the tourism business spcetrom. For some. this is due to the fact that family members constitute the working slaff of thest hotels and restaurants and owner-managers do not consider it imponant to cmpik inionnation on fanlily staff. As a result. there are paps in data concerning he economic natus of employees working in budget hotels and restaurants with respect to lie)- variables such as age. ways. ducation and training. 8.5 The success of tuurisn~ develupinent ultinr~tely depends un buw etrectivcfy tourism activities arc linked witb other sectors oftbc economy. Tourism development in the Central Region is part of an integrated regional development initiative. Effective regional planning. coordination, investment promotion and monitoring were the raison d'etre for the Central Regional Development Commission (CEDECOM). As an agcnc) of the Regional Coordinating Council. the Commission currently lacks the capacit! to carq out its mandate. Data on the region's economy and the various sectors is not collavd. The team lid to visit scveral govcrnmcnl institutions and offices for information. This can be extrcnirl) cumbersome for a potential investor. Tourism information management systems that are in place to track investments. visitor statistics to the core tourism zone and to key attractions such as the Castles and the Park are rudimentary. CEDECOM and the key line agencies should be strengthened to facilitate their mpcctive data collection. coordination and promotion of tourism-related activities. There is the nwd to improve the quality of the sites and tourism townships. A comprehensive program focused on hygiene. sanitation, and environmental enhancement should k developed for the major project sites, particularly Cape Coast and Elmina. There is also very little involvement of District Assemblies, Traditional Councils and other civil sociep groups in implementation of tourism activities. A lot more needs to be done in this area to sensitize these institutions and groups, as parmers in successful tourism development. Private sector has effectively responded to opportunities and is investing in howl and other infrasuucture. Average occupancy rates at most hotels are below optimum. Avaagc length of stay is one night. Nearly 70 percent of visitation is Ghanaian. Much of the current business in the area relates to conferences. meetings, funerals, and visiting family and relations (VFR). Very little leisure tourism traffic is coming to the region. An aggressive marketing makgy targeted at the domestic and sub reiional (West African) market as well as targeted and niche-marketing strategies should be developed. Niche marketing should focus on Eumpc. North America. and Africans in Diaspora using specialists who know these markus well. Funding and technical assistance should be directed at creating more activities and enhancing visitation experience at existing attractions as well as the creation of new ones that encourage visitors to spend more tourist-nights in the region. Hotels obtain much of their food items from the local market. However. there is veq hale hnnal relationship between the agricultural and fishing industry and the hotels and restaurants. Meat. poultry. eggs and some categories of seafood arc procured in Accra. The capacity of local farmers to meet the demands of hotels and mtaurants on a sustainable basis is limited. Most producers are small businesses. Some hotels such as Coconut Grove have initiated actions to meet with farmers and encourage them to produce to quality specification and meet the hotel's full demand for local products. Available funding and technical support should be directed to stimulating supply side agricultural enterprises and private sector investment. 9.0 Conclnsions and Rccon~mcndations 9.1 Conclusions and Rccommcndations Rclatd to the lnsliiutional Capacity of GHCT I. FUEUSL- twhnical assisiaucc shuukl k pruvdcd lu ibc GllCT Secrclariat (and Board) to conlplctc tbc transition phasc with adequate fund-raising capacity, financial nlanagcmcnt capxity and adminbtrativc structures in place. The team recommends that technical assistance should include operational support. and improving panncrships and collaboration with stakeholders. 2. The human resource base of CHCT should be strengthened. In the short term. Ihe team recomniends that GHCT recnril additional tcrhnical stam Tor program management and stronger administrative suppon. A more experienced and senior financial manager should k hired immediately. Consideration should also be given to recruiting a staff person with fund￾raising skills. 3. The Stratgic Plan of GHCT should be revised. and in some arcas, its scope rcducrd. with considerably greater emphasis placed on fund-nising. The team recommends that GHCT realign its goals muy from enterprise development and focus more oa its role as a Trust - fund-mising and supporting partner institutions. One possible option to explore is subcontracting a local pmfessional organization to focus on fund-raising in the shon run. The GHCT goal of countrywide assistance should be put on hold until GHCT has capacit! to meet its stated mission for the Central Region. 4. To ensure the optimal performance of GHCT as an organiution, many of its partner institutions need support, reorganization and teehnial assistance The team recommends that a USAlD technical assistance facility be created for GHCT to call on for the deliver?. of training and technical assistance to supporting partner institutions. stakeholders. and communities. GHCT would serve as a facilitator to connect the organizations (e.g. GMMB. WD. stakeholders in the travel and tourism industry, etc.) with USAID-provided technical assistance. 5. GHCT should not be engaged in the delivery of technical ruisbna or be working to build its own enterprise management capacity. The team recommends that GHCT serve more as a link, working as a facilitator or matchmaker between other organiwtionsMGOs who specialize in technical areas (e.g. small and medium enterprise suppon. and agricultural methods) to dcliver tcchniwl assistance and start-up support for village lcvcl income gcncnling activities. Altention lo poverty alleviation and the overall economic nerds of corn~~~unitics should be the focus of the relationship with communities. Villagers appear to have a strong understanding and commitment already to conservation. resulting lion1 ~ulucntion and awarcncss programs in carlicr phases of thc projcct. NOH hex: communities must be given hope and strong evidence that supplemental income can be created to replace ~hcir previous dependency on the forests (e.g. palm oil processing. soap processing. cocoa production, and access to markets ibr all products). 6. The GHCT Board of Trustees should recruit new board members with strengths in technical areas not currently present on the Board, most imporian1ly. fund-raising. The Board is in the process of identifying additional board membm. which will hopefully increase the active participation of the Board as a whole. The team recommends that the Board should focus as much as possible on its fund-raising capacity and begin to engage in fund-raising in the short term 7. An impartial team or auditing firm should examine data eoUeetcd on visitors to Kakum National Park. Cape Coast and Elminn Castles. Data made available by GHCT, GMMB and WD concerning visitors to these sights and the revenue collected for enlrance fees. was limited and incomplete. The tam recommends that an independent audit be conducted to dctcnninc the magnitude of leakages. if any. Assistance should then be provided to set up sFstems to improve revenuc collection. which will serve lo better maintain and upgrade Ghana's historic sites and natural resources. 9.2 Conclusions and Recommendations Related to the Economic impact of tbe Project I. Attention needs to be given to ensuring tbat a realistic and weU-focused tourism marketing strategy is in plan for tbe Cape Coast area and is being effectively implemented The team recommends that support be given to the Ghana Tourist support to effectively niarket the Central Region. Further. the team recommcnds that the Hoteliers Association in the Cape Coast area and in the Central Region, be encouraged to join with other community groups in working to develop and implement such a strategy. The strategy should take account of the need to set standards for improving sanitation in anas adjacent to hotels and guesthouses and provide incentives to residents and local businesses to beauti6 the anas around these facilities. as well as the areas around their own residences and places of business. The Association should also become more active in assisting with gmup activities such as advertising and tourism promotion. The team also recommends that a well-managed tourism database and tracking syaan be developed and maintained to ensure that the tourism marketing strategy is being effectively implemented. 2. A regional non-governmental organization @GO) witb an offi in tbe Cape Coast area should be designated to scne as a clearinghouse for tourism dcvclopn~cnt prupusals Unfortunately. the team was not able to identifj an existing regional NGO with the technical and nianagerial staff necdcd to manage such an opention. The establishment regional private sector counterpart to the Ghana Tourist Board would be a suitable choice. 3. lncrcascd public and private investment funds need to be mobilii to undenvrite the cost of rehabilitating tbe area's historic sites as wcU as tbe cost of constructing the supporting infrastructure needed to facilitate amss to tbc sita The team recommends that the District Assemblies become more active in seeking the investment funds needed to develop supporting infrastructure. such as access roads and utilities. Also. that the Assemblies institute and enforce policies that require potential sim for hotels be identified in advance. and take steps to ensure that the access roads and utilities needed are improved prior to authorizing actual construction at the site. 4. A follow-on p-ram of technical assistance and training is needed to apitalizc on thc progrcu: n~ndc tu Jatc iu tuurisiu Jcvelupn~ent and 10 accclcmtc and broaden its cconomie impact. A folio\\-on program of technical assistance should be developed by the Ghana Tourist Board norking closely with local groups and organizations interested and involved in tourism dcvelopmcnt in thc region. The funding ndcd to support such effons should be provided by llS.41D and other donor agencies. 5. In recognition of the need for buman resource development in the hospitality and travel industry, cousideration sbould be given to the ertabliibment ofa Hotel and Restaurant school. The team recognizes the concerns expressed by owners and managers of hotels and other accommodation facilities. for professionally trained. quality staff to deliver the required service standards in an increasingly competitive industry. Funding consideration should be given to the establishment of a national Hotel and Restaurant schwl. which takes advantage of the existing programs at the University of Cape Coast and the industry infrastructure available in the area for practical training. ANNEX 1 CURRENT ORGANIZATIONAL CHART OF THE GHANA HERITAGE CONSERVATION TRUST Y TRUSTEES MCUTIM DIRECTOR DEPUTY DIRECTOR AarXlNTS MANAGER OF OPERAnONS - u PROGRAM OFFICER BUSINESS UNIT MANAGER El MARKETING OFFICER Staff: ASSISTANT SECRETARY DRIVERS (21 OFFICE CLEANER Mr. Harry Ngoah Business Manager Ghana Heritage Conservation Trust Cape Coast. Ghana Mr. Frances Cobbinah Program Officer Ghana Heritage Conservation Trust Cape Coast. Ghana Mr. Raymond Orison Agbo Acting Regional Director Ghana Museums and Monuments Board Cape Coast. Ghana Ms. Naana Ocran Museum Educator Cape Coast Catle and Elmina Castle Ghana Museums and Monuments Board Cape Coast. Ghana Mr. Cletus Nateg Sr. Wildlife Officer Wildlife Division Forestry Commission Kakum National Park, Ghana Mr. Sylvester Azika Sr. Wildlife Protection Officer Wildlife Division Forestry Commission Kakum National Park. Ghana Mr. Daniel Ewur Assistant Wildlife Officer Wildlife Division Forestry Comniission Kakum Nalional Park. Ghana Mr. Kwotie Assemblyman, Kruwa Village Central Region - near Kakum National Park Ghana Mr. Daniel Akumah Elder, Kruwa Village Central Region - near Kakum National Park Ghana Mr. E.K. Duah Unit Committee Secretary Kruwa Village Central Region - near Kakum National Park Ghana Mr. Kojo ldun Unit Committee Porter Kruwa Village Central Region - near Kakum National Park Ghana Mr. Ackom Korsah Kruwa Village Central Region - near Kakum National Park Ghana Mr. Johnson Akumah Beekeeper Association. Head Kruwa Village Central Region - near Kakum National Park Ghana Mr. Paul Akumah Former Assemblyman Kruwa Village Central Region - near Kakum National Park Ghana Mrs. Juliette Akumah Kruwa Village Centnrl Region - near Kakum National Park Ghana Mr. Simdo Dabala Wildlife Officer Mesomagor Village Central Region - near Kakum National Park Ghana Mr. Samuel Arthur Wildlife Officer Mesomagor Village Central Region - near Kakum National Park Ghana Mr. Nana Asamoah Village Chief Mesomagor Village Central Region - near Kakum ~atibnal Park Ghana Mr. Kwesi Bah Linguist Mesomagor Village Central Region - near Kakum National Park Ghana Mr. Yaw Mahde Unit Committee Chairman Mesomagor Village Central Region - near Kakum National Park Ghana Mrs. Efua Demaa Queen Mother Mesomagor Village Central Region - near Kakum National Park Ghana Mrs. Akua Yeboah Mesomagor Village Central Region -near Kakum National Park Ghana Mrs. Rose Ankumah Mesomagor Village Central Region -near Kakum National Park Ghana Members of Kuchyakuchyakook Bamboo Orchestra Mesomagor Village Central Region - near Kakum National Park Ghana Mr. Nana Dudo 11 Village Chief Ahomaho Village Central Region - near Kakum National Park Ghana Mr. S.B. Meful Chairman, Parcnt-Teacher Assofiation Ahomaho Village Central Region -near Kakum National Park Ghana Mr. E.B. Nyantakyi Assemblyman Ahomaho Village Central Region - near Kakum National Park Ghana Mr. Nana Dadzie Kronthiene (Sub-chief) Ahomaho Village Central Region - near Kakum National Park Ghana Mr. Kojo Oteng Elder Ahomaho Village Central Region - near Kakum National Park Ghana Mr. Nana Agyeku Linguist Ahomaho Village Central Region - near Kakum National Park Ghana Mr. Kojo Donkor Elder Ahomaho Village Central Region - near Kakum National Park Ghana Mr. Abraham Ahomaho Village Central Region - near Kakum National Park Ghana Mrs. Adja Kowa Leader, Soap Production Coopcra~ive Ahomaho Village Central Region - near Kakum National Park Ghana Ms. Confort Adoba Member. Soap Production Cooperative Ahomaho Village Central Region - near Kakum National Park Ghana Mr. K. Olympio Deputy Director, Monuments Ghana Museums and Monuments Board Accra. Ghana Mr. Smiii~cl KO+ Gyin:il~ Elder Abrafo-Odumase Village Crntnl Region - ilwr Kakum National Park Ghana Mr. Thomas Owuw Mintah Membcr. Palm Oil Production Cooperarive Abrafo-Odumasc Village Central Region - near Kakum National Park Ghana Mr. Anthony Minrah Assemblyman Mfuom Village Cenbal Region - near Kakum National Park Ghana Mr. Solimon Arthur Mfuom Village Central Region - near Kakum National Park Ghana Mr. lsaih Taylor Mfuom Village Central Region - near Kakum National Park Ghana Mr. Yao Yam Mfuom Village Central Region - near Kakum National Park Ghana Mr. Justice Asamoah Chairman, Unit Committee Mfuom Village Cenual Region - near Kakum National Park Ghana hlrs. Ahna Nyanta hlfuom Village Central Region -near Kakum National Park Ghana Mrs. Yoa Oforiwaa Mfuom Village Central Region - near Kakum National Park Ghana Mr. Isaac and Mrs. Anastasia Hwper Proprietors Fairhill Group of Guest Houses Cape Coast Ghana Mr. Andrew M. Wilson General Manager Labadi Beach Hotel Accra Ghana Ms. Kim Bird Depue General Manager Labadi Beach Hotel Accra. Ghana Mr. Peter Fenwick Fmnt Office Manager Labadi Beach Hotel Mr. Sampson Donkor Volta Regional Manager Ghana Tourist Board Cape Coast Ghana Mr. Frank Kofigah Central Regional Manager Ghana Tourist Board Cape Coast. Ghana Ms. Stella Appenteng Managing Diretor Apstar Tours Accra. Ghana Mrs. M. Baeta Esecutive Director Expemvel and Tours. LTD. Accra. Ghana Mr. Sydney Baeta Managing Director Espenravel and Tours. LTD. Accra, Ghana Mr. Kwasi Agbley President Keben Associates. LTD. Accra, Ghana Mr. Walter Kleincbudde Proprietor. Bma Beach Hotel Direclor, Africa Nature Tours Cape CoasS Ghana Mrs. Elizabeth Hanson Director Hans Conage Hotel \ Cape Coast, Ghana Mr. Herben Aquawe General Manager Elmina Beach Rcson Cape Coast Ghana Mr. Cornelius Amevor Food and Beverage Managel Elmina Beach Reson Cape Coast Ghana Mr. Edmund McAddy Purchasing oNir Elmina Beach Reson Cape Coast Ghana Prof. Kofi Awusabo-Asarc. Ph.D. Professor of Geography University of Cape Coast Ghana Mr. Lankesha Ponnampemma General Manager Coconut Grove Beach Reson and Confemcc Center Elmina Ghana Mr. Osabarimba Kwesi Ana 11 President Oguaa Traditional Council Cape Coast, Ghana Mr. Kwaku Akpotosa Speaker Municipal Assen~bly Cape Coast Ghana Ms. Bertha Akosua Anku Technical Director Naku's Fashion Enterprise Cape Coast, Ghana Mr. T.E. Osam-Duodu Chief Economic Planning Officer Central Region Development Commission Cape Coast, Ghana Mr. A. Opoku-Boamah Regional Economic Planning officer Regional Coordinating Council Cape Coast. Ghana Hon. Isaac E. Edumadze (MP) Central Regional Minister Regional Coordinating Council Cape Coast. Ghana Prof. Kofi Awusabo-Asare. Ph.D. Professor of Geography University of Cape Coast Cape Coast. Ghana Mr. W.B. Bortier Project Engineer Ghana Water and Sewerage Corp. Cape Coast Ghana Mr. G.K. Asibu Regional Head. Central Region Ghana Telecoinmuniwrions Co.. Lld. Cape Coast. Ghana Mr. P.K. Addae Regional Director Electricity Company of Ghana Cape Coast. Ghana Mr. John F. K. Afonu Regional Accountant Community Water & Sanitation Agency Cape Coast. Ghana Ms. Pauline Ati Appiel Vanef Travel Service. Limited Accra, Ghana Mr. Kwaku Passah Sr. Executive Director Galaxy Travel and Toun LTD. Accra Ghana Mr. S. S. Annobil General Manager M & J Travel & Toun LID. Accra, Ghana Mr. Kwanc Anson Sunseeken Accra, Ghana Mr. Labie Amoahi Fredina Tours Accra. Ghana Mr. Joseph B. Goodwin Senior Economin Sigma One Corporation Accra, Ghana ANNEX Ill Bibliography Proposal to Establish an Endowment with Appropriated Funds for the Ghana Heritage Trust, USAID. December 1997 Valuation Report on the Assets of NatnraI Resource Conservation and Pm~rvation (NRCHP) Project Loated at Cape Coast and Abrafo Odnmue (Kaknm National Park Visitors Center) in the Central Region Prepared by Feli Dzubey & Company. September 2000 Final Report: Mid-Term Evaluation, Natllral Raonrce Consemtion and Hirtoric Preservation Project Dr. Nancy Lus~, Mr. Malcolm Childress. Mr. Dulal Duna. Mr. Andre Marcel, Mr. Solomon Atiase, Mr. lndrissa Samba Mr. John Gauds September 13, 1994 Conservation International Provision of Technical Assiitance to Ghana Heritage Tr~st PriceWaterhouseCoopers. April 1998 Gbana Economic Analysis, Weidemann Associates, Inc., and Dcloittc. Touche. Tohmatsu, International, June 2. 1997 Annual Program Statement: Trade and Investment Reform Program. Promotion of Tourism-led Economic Growth, FY 2001, USAIDIGhana Ghana. Natural Resources Conservation and Historic Preservation Project. Nathaniel H. Bowditch et.al, November 1996 Conservation and Tourism Development Plan for Capc Coast, USICOMOS. 2000 Tourism Development Action Programme for Ghana 1996-2000, Ministry of Tourism. Ghana UNDP. WTO. Feb~q 1996 Ghana Heritage Conservation Trust Organization Structure Dcvdopmemt and Transition Phase Management, Price Watchousc. May 1998 GHCT Options for Enterprise Asset Management Overview and Suggested Analysi CI. March 3. 1999 Ghana Hcritagc Cnnscrvatinn Trust Scltlor Dncumcmt. Augus~ 29. 1996 Ghana Heritage Conservation Trust Amended Trust Deed. February 10,2000 Needs Assessment of Restaurants in the Central Region. University of Capc Coast. Central Region Development Commission. University of Maryland, Eastern Shore. October 1999 Assessment of the Hotel Industry in the Central Region, University ofcape Coast Central Regional Development Commission, University of Maryland, Eastern Shore. October, 1999 Consolidation Phasc of the Natural Resource Conservation and Historic Prtservation Project, CI. May 7000 In Whose Interest? Individual and Soeital Needs in the Creation of Fom Reserves: TheCase of Kakum in Ghana, A.M. Abane. Kofi Awusabo-Asarc. A. K. Kissi. Bulletin of the Ghana Geographical Association No. 2 1. 1999 Tourism Development Financial Plan for Ghana: 1996-2000, Volume Two: Project Description, Ministry of Tourism UNDP. WO, October. 1996 Draft Memorandum of Understanding Between GMMB and GHCT', June 2001 Memorandum of Understanding Between WD and GHCT', signed December I2.2000 Ghana Tourism Revenue Sharing Action Plan. Nathaniel H. Bowditch. Sigma One Corporation. November. 2000 Consolidation Phasc of thc Natural Resource Conservation and Historic Preservation Projcct, Ccntrnl H~xion Ghana, Tcchnievl Hcpurts. CI, June-December 1998. January￾June. 1999 Attraction Sites: Visitor Arrivals and Revenue, The Ghana Tourist Board. November. 2000 A Tourism Policy Action Phn for Rwcnue Generation and Utilization. A Concept Paper, unknown Draft Final Report, The Consolidation Phase of the Natural Rcsroun and Historic Preservation Project, Central Region, Ghana CI, May 30.2001 Business Plan. Kakum Visitors Center at Kakum National Park The Centrsl Region Project. CI. GHCT. USACOMOS, June 1999 Briefing Papers, CI. February 16. 1999 Fort St. Jago: FeasibiliIy Summary, Cl, June 20. 1999 Heritage Enterprise and Travel Business Plan Summary, Cl. June 20, 1999 Busincss Plan. Rainforest Cafe at Kakum Visitors Center. The Central Region Project. CI. GHCT. USIICOMOS, June 1999 Principles and Plans for Enterprise Dcvelopn~cnt in CHCT, Sharon Flynn and Edward hliibrd. CI. March 2001 An Apprnisal or the Bc~Liecping Pruject oftbe Kakum National Park Kaamc Aidoo. UCC. Januan 13. 1999 Historic Presewation in Cape Coast. USACOMOS and GHCT Preparing for Your Next Capital Campaign. Alan M. Young, CFRE, Nctzel Associates. March 30. 1998 Community-Based Tourism Enterprise Development: A Proposed Strategy for C1 and the GHCT. CI Business Plan, Historic Walking Tours in Cape Coast and Elmina Towns, The Cenval Region Project. USIICOMOS. C1, Ghana Heritage Conservation Tnrsf June 1999 Memo on Background of Kuapa Kooko Societies around Kakum Conurvation Am: 2 Years of Operation. Internal CI document Keynote Address by Hon. Mike Afedi Gi (MP), Minister of Tourbm at the Workshop on a Tourism Action Plan for Rwenue Generation and Sharing at tbe lertihite of Lad Governn~ent Studies. Ogbojo in Accra. September 14.2000 Speech Delivered by Hon. Mike G& at r Workrho on A Tourism Action Plan for Rwenue Generation and Sharing, September 14.2000 Memorandum of Understanding Behveen GHCT and WD memo ran dun^ of Understanding Behveen The Regional Coordinating Conncil, Gpc Coast, and GHCT in Relation to Heritage House and the Ato Austin Memorial Garden, Novemkr. 1998 LetIer and Proposal from Cl, Ghana, for follow on activities to the Central Region NRCHP. Cl. May 15, 1998 Award LetIer from USAlD to CI, USAID, June 19,1998 Inception Report on the Plans and Activities ofthe GHCT Sccrctlriat, November 1998 Minute of inaugural Meeting of Boards ofTrustees, GHn. and Scssiins 2-8 Memorandum to All Board Members, GHCT re: Ratification of Dedsions of Board Meeting, December IS. 1997 Job Descriptions for Positions of Deputy Director, Executive Director. Execntive Secretary and Program Ollice, GHCT. CI and GHCT Transition Plan: Collaborative Action Plan for the GHCT and the Project to EstaMbb a Fully Operational GHn. CI Central Rrgion Projcct: Proposed Transition Methodology. CI hlemonndum on Projcct lmplcmentation Oversight Cornmiltee WIOC). GHCT. July 2, 1998 Various other leners. memos. workplans, and working documents obtained and reviewed