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REPUBLIC OF GHANA

on

PERFORMANCE AUDIT REPORT of the

AUDITOR GENERAL

DEVELOPING TOURISM

IN GHANA

TABLE OF CONTENT

TRANSMITTAL LETTER ……………………………………….. i

GLOSSARY................................................................................... iii

EXECUTIVE SUMMARY............................................................ iv

CHAPTER ONE............................................................................. 1

INTRODUCTION........................................................................... 1

1.1 Reasons for the audit............................................................ 1

1.2 Purpose and Scope of the audit............................................ 2

1.3 Methods and implementation............................................... 2

1.3.1 Survey and interviews.......................................................... 3

1.3.2 Documents reviewed............................................................. 4

1.3.3 Inspection............................................................................. 4

CHAPTER TWO............................................................................ 5

DESCRIPTIVE CHAPTER............................................................ 5

2.1 Historical background.......................................................... 5

2.2 Statutory mandate............................................................... 5

2.3 Major activities.................................................................... 6

2.4 Vision.................................................................................. 6

2.5 Mission................................................................................ 6

2.6 Objectives MoT and GTB.................................................... 7

2.7 Funding................................................................................ 7

2.8 System description............................................................... 8

2.9 Key players and activities.................................................... 8

2.10 Current development............................................................ 8

CHAPTER THREE........................................................................ 10

FINDINGS AND RECOMMENDATIONS.................................... 10

3.1 Introduction…………………………………………………… 10

3.2 Coordinating activities of MMDAs to develop tourist sites 10

3.2.1 Bad roads leading to tourists’ sites....................................... 13

3.2.2 Maintaining tourists’ sites..................................................... 15

3.2.3 Improving tourists’ sites....................................................... 17

3.2.4 Recommendation................................................................... 19

3.3 Ensuring adherence to standards by accommodation and

Catering facilities operators................................................. .... 20

3.3.1 Inspection of facilities.............................................................. 21

3.3.2 Establishing mechanism for excellent services........................ 23

3.3.3 Training staff of facilities......................................................... 24

3.3.4 Recommendation...................................................................... 25

APPENDICES................................................................................. 26

Appendix 1a Document reviewed............................................... 26

Appendix 1b Persons interviewed.............................................. 28

Appendix 1c Tourist sites and MMDAs visited......................... 29

Appendix 2 Key players and roles........................................... 30

Appendix 3 Tourists’ sites that needed infrastructure

improvement in 1996........................................... 31

Appendix 4 GTB’s online feedback form................................. 33

Appendix 5 MoT’s response to audit findings......................... 34

i Performance Audit Report of the Auditor-General on developing tourism in Ghana

Office of the Auditor-General

Ministries Block “O”

P. O. Box MB 96

Accra

Tel. (0302) 662493

Fax (0302) 662493

January 2012

Dear Madam Speaker,

PERFORMANCE AUDIT REPORT OF THE AUDITOR-GENERAL ON

TOURISM DEVELOPMENT IN GHANA

I have the honour to submit to you a performance audit report on Tourism Development

in Ghana in accordance with my mandate under Section 187(2) of the 1992 Constitution

of Ghana and Section 13(e) of the Audit Service Act which requires me to carry out

performance audits.

2. The main purpose of the audit was to determine whether Ministry of Tourism’s

activities were making Ghana the preferred place in West Africa for tourists. The report

will help the Ministry of Tourism focus on sensitising its key stakeholders and the

enforcement of standards in the hospitality industry.

TRANSMITTAL LETTER

Ref. No. AG/01/109/Vol.2/ 50

Performance Audit Report of the Auditor-General on developing tourism in Ghana ii

3. The audit was undertaken by the Performance Audit Unit under the supervision of

Jacob Essilfie, Lawrence Ayagiba, both Assistant Auditors-General and Yaw Agyei

Sifah, Deputy Auditor-General in charge of the Performance and Special Audit

Department.

4. I trust that this report will meet the approval of Parliament.

Yours faithfully,

AUDITOR-GENERAL

CC: THE RIGHT HON. SPEAKER

OFFICE OF PARLIAMENT

PARLIAMENT HOUSE

ACCRA

Performance Audit Report of the Auditor-General on developing tourism in Ghana iii

GLOSSARY

Tourism It is the activities of persons travelling to and staying in places outside

their usual environment for not more than one consecutive year for

leisure, business and other purposes.

Tourists’ Product It comprises the tourist attractions and activities, accommodation

and other tourist facilities and services, and the infrastructure that serves

the attractions and activities, facilities and services.

Historical sites This consists of castles and forts which constitute the country’s

historical legacy. They serve as tangible history of Ghana and represent

the treasure and monuments to the memory of the early European

contacts with Africans. With the designation of Ghana’s castles and forts

as World Heritage Monuments their maintenance is of paramount

importance to the Nation and other stakeholders.

Visitor Facilities These are facilities which provide the tourists with the reception

they might need, and give tourists the opportunity to buy souvenirs.

They include reception rooms, toilets and urinals, souvenir shops, and

food joints.

Accommodation Units These are hotels, guest houses, lodges and home stays

(individual homes which are used to house tourists during their visit).

They include rooms and beds of a housing unit. The number of

accommodation units is determined by the number of rooms and beds

available to tourists.

iv Performance Audit Report of the Auditor-General on developing tourism in Ghana

EXECUTIVE SUMMARY

Tourism has the potential to create jobs and wealth for local communities as well as

generate revenue for the Government of Ghana. Tourism development in Ghana has

been pursued since the 1960s. Attempts that have been made in this regard include the

white paper on tourism in 1972 and the 15-year tourism development plan in 1994.

2. In 1993 the Ministry of Tourism (MoT) was created with the mandate to

develop, promote and coordinate all tourism development in Ghana.

3. The Auditor-General within his mandate commissioned a Performance Audit

into the development of Tourism in Ghana. The audit sought to find out why tourists’

sites were in a poor state and also whether Ghana Tourist Board (GTB) ensured that

accommodation and catering facilities met quality standards set in the New

Harmonised Standards. The audit also examined whether MoT’s activities were

making Ghana an attractive tourist destination. This was necessitated by concerns

raised by the public through the media on the poor state of the tourist sites and services

and the need for the government to pay attention to the development of the tourism

sector.

4. The methods used in the collection of data were interviews, documents review

and inspections. We interviewed 420 people, inspected 22 sites, 50 accommodation

units, 35 catering units and reviewed 30 documents.

5. The audit team found that the inter-ministerial committee which co-ordinates

the activities of MDAs and MMDAs to develop and maintain tourists’ sites was not

functional from 2004 to 2008. It was re-inaugurated in April 2009 and has been

meeting quarterly. In spite of the co-ordination the team found that roads to tourists’

sites are in a bad state and tourists’ attractions are not improved and maintained.

Performance Audit Report of the Auditor-General on developing tourism in Ghana v

6. MDAs and MMDAs have not developed and improved the tourists’ sites

because MoT has not been able to sensitise them to understand and appreciate the need

to develop and maintain tourists’ sites.

7. We also found that GTB is not ensuring the adherence to standards by

accommodation and catering facilities. They do not adhere to standards because GTB

is not able to do a thorough inspection of the facilities and undertake ad hoc

inspections. Also, GTB’s mechanism to measure the satisfaction of tourists’ does not

solicit information on customer satisfaction. They also do not organise training for staff

of facilities because it is not their mandate to do so.

8. The team has concluded that Ministry of Tourism’s inability to carry out its

coordination activities and ensure the adherence to standards makes tourists not enjoy

their visit. Unsatisfied tourist may discourage potential customers from visiting Ghana

thereby making MoT not able to achieve their objective of making Ghana the preferred

tourist destination in West Africa.

9. To ensure tourists’ sites are improved and maintained we recommended that

MoT should:

Support the inter-ministerial committee to function well and encourage the

representatives of MDAs and MMDAs who are attending the meetings to

continue. MoT should ensure decisions taken at inter-committee meetings are

implemented by MDAs and MMDAs.

Ensure that decisions reached at the committee level are agreed on, documented

and signed by the implementing key players in order to hold them accountable

for their inaction.

Strengthen the communication link between the GTB regional and district

offices with Ministry of Tourism.

vi Performance Audit Report of the Auditor-General on developing tourism in Ghana

Sensitize stakeholders at the district level including opinion leaders, chiefs and

the Assemblies on their roles in the development of tourists’ sites within their

districts.

10. To ensure adherence to basic standards by accommodation and catering

facilities GTB should:

Embark on the ad hoc inspections especially focussing on the 2-star to budget

hotels.

Have an independent way of getting feedback from users of accommodation and

catering facilities to enable them measure the quality of service delivery in

accommodation and catering facilities. It would also help them to find ways of

improving the quality of service by these providers.

Ensure operators of accommodation and catering facilities train their staff

according to the provisions in the new harmonised standards for accommodation

and catering facilities to enhance their service delivery.

Performance audit report of the Auditor-General on developing tourism in Ghana 1

CHAPTER ONE

INTRODUCTION

1.1 Reasons for the audit

Tourism has become a global and highly competitive socio-economic and

environmental activity in both developed and developing countries. It is the largest

and fastest growing industry worldwide, and stimulates other sectors such as

agriculture, finance and manufacturing1.

2. Tourism creates jobs and wealth for local communities and generates

revenue for the Government of Ghana.

3. Ghana has a variety of natural, historical, cultural and other type (usually

man-made) tourists’ attractions. Examples of these are national parks and forest

reserves, forts and castles, festivals and museums. These attractions need to be

developed and managed to appeal to both local and international tourists.

4. The Government of Ghana has made attempts to develop the tourism

sector since 1960 to make Ghana the leading and preferred tourist destination in

the West African sub-region. The White Paper on Tourism in 1972, Tourism

Development Plan in 1974 and National Tourism Development Plan in 1994 were

strategies to develop tourism in Ghana.

5. In spite of these initiatives made by Ministry of Tourism (MoT), the public

has raised concerns through the media on the poor state of tourists’ sites,

accommodation and catering facilities. These concerns led the Auditor-General to

commission a performance audit on the development of tourism in Ghana in line

with section 13e of the Audit Service Act, Act 584, 2000.

1 MoT National Tourism Policy, August 25, 2006

2 Performance audit report of the Auditor-General on developing tourism in Ghana

1.2 Purpose and Scope of the audit

6. The purpose was to determine why tourists’ sites were in a poor state and

also whether Ghana Tourism Board (GTB) ensured that accommodation and

catering facilities met quality standards set in the New Harmonised Standards.

7. The audit team examined whether MoT’s activities were making Ghana an

attractive tourist destination.

8. The team focused on the following activities of MoT and GTB:

Coordinating with Ministries, Departments and Agencies (MDAs)

and Metropolitan, Municipal and District Assemblies (MMDAs) to

develop and manage tourist sites;

Application of the New Harmonised Standards; and

Monitoring the activities of the private sector engaged in tourism

9. The audit covered the period 2006 to 2010 and was carried out from May

2010 to July 2011.

1.3 Methods and implementation

10. The methods used in the collection of data were surveys, interviews,

document review and inspection. The team visited tourist sites and

accommodation and catering facilities in the Greater Accra, Volta, Western,

Central and Northern regions of Ghana. We selected these regions because

majority of tourists’ attractions (236 out of 436) identified for improvement in

1996 are located in these regions. We therefore made a sample out of the 236 for

the study. Details of documents reviewed, persons interviewed and tourists’ sites

visited, are in Appendix 1.


1.3.1 Surveys and interviews

11. We surveyed 250 tourists and interviewed 170 others. Category of people

surveyed and interviewed is presented in Table 1.

Table 1: Category of people surveyed and interviewed

Categories of people No

Staff of MoT 4

Staff of GTB 18

Tourist site Managers 25

Staff of MMDAs 26

Chiefs and Elders 3

Local residents 19

Managers of accommodation and catering facilities 30

Staff of accommodation and catering facilities 45

Tourists 250

Total 420

Source: GAS

12. The team interviewed officials of MoT and GTB to obtain information

relating to development of tourism. We also interviewed staff of MMDAs, chiefs

and elders to enable us find out whether they played their roles and

responsibilities in the development of tourism in their districts. We further

interviewed residents of communities that have tourists’ attractions to gather

information on their tourism awareness. In addition, the audit team interviewed

managers of accommodation and catering facilities to ascertain and confirm

evidence gathered on their role in providing service to tourists. The managers of

facilities were also interviewed to find out their opinions on the state of tourists’

sites. Finally, we surveyed tourists to find out their impressions on sites and

services to enable us conclude on our audit objective.


1.3.2 Documents reviewed

13. We reviewed 30 documents on tourism (see Appendix 1b) to gather

information on the development of tourism by MOT and GTB.

1.3.3 Inspection

14. The team visited 22 tourist sites and inspected facilities at the sites and

roads leading to the sites. We also inspected 50 accommodation units and 35

catering facilities. This was to corroborate what was reviewed in the documents.


CHAPTER TWO

DESCRIPTIVE CHAPTER

2.1 Historical background

15. A formal development of tourism in Ghana was an evaluation of the

country's tourism resources in 1970 which led to the formulation of a tourism

development plan for 1972 -1975. Subsequent plans have been developed

including a 15-year tourism development plan which was intended to guide

tourism planning for the period 1975-1990 and the National Tourism

Development Plan formulated by the Ministry of Tourism in collaboration with

the World Tourism Organisation in 1995 to guide domestic and international

tourism development from 1996-2010.

16. The Ministry of Tourism was created in 1993, with the mandate to

develop, promote and coordinate all tourism activities in Ghana. In 2003, the

functions of the Ministry were expanded to include the Modernisation of the

Capital City (MCC). From 2006, the Ministry was known as the Ministry of

Tourism and Diasporan Relations until it was renamed Ministry of Tourism in

2009. The Ghana Tourism Board (GTB) is the implementing body for the

development of tourism.

2.2 Statutory mandate

MoT

17. The Ministry of Tourism (MoT) was created by an executive instrument

in 1993 with the mandate to develop, promote and coordinate all tourism

activities in Ghana.

GTB

18. The Board was established by National Redemption Council Decree

(NRDC 224) 1973, amended by the SMCD 80 of 1977. It is the implementing

agency of the Ministry of Tourism.


2.3 Major Activities

MoT

Establishes tourism development policies and planning

Coordinates with MMDAs and MDAs to develop and manage tourist

sites

Identifies and develops products of public types of tourist attractions

GTB

Sets standards for commercial types of tourist facilities and major

infrastructure.

Monitors the activities of the private sector

Markets tourism domestically and internationally

2.4 Vision

MoT

19. To support and promote the achievement of the overall vision of the

Government of Ghana aimed at achieving a per capita income of US $1,000 by

2015 through the realisation of the sector’s full potential in contributing to

economic wealth creation, employment generation, poverty reduction,

environment conservation, as well as national and international cohesion. This

vision will be achieved through the Ministry’s effort to generate 20% growth

rate per annum by 2015.

GTB

The vision of GTB is to see Ghana become the tourism capital of West Africa.

2.5 Mission

MoT

20. The Ministry exists to create a conducive and favourable environment

for sustainable growth and development that would ensure that the tourism


sector achieves a greater contribution to GDP growth through effective and

efficient use of appropriate policies, corporate planning, programmes, and

projects as well as public/private partnership, and sustainable relationship with

the Diaspora for resource mobilisation and investment.

GTB

21. To ensure sustainable development through the creation of an enabling

environment for the provision of quality tourism facilities and services for the

travelling public with a well-qualified, highly motivated and dedicated

workforce and thereby promoting tourism to become the leading sector of the

economy.

2.6 Objectives MoT and GTB

To achieve a high level of customer satisfaction, by the proper linking

of attraction sites that will deliver a complete and satisfying experience.

Steps will be taken to ensure the provision of good facilities, and the

delivery of excellent service. The products will then be professionally

marketed, targeting both specific market segments in the major foreign

source markets as well as the domestic market.

To ensure that many opportunities are created for local entrepreneurs

and communities in terms of employment, income generation, training

and awareness, and access to better social infrastructure.

2.7 Funding

22. Activities by MoT and GTB to develop tourism are funded from the

Consolidated Fund (CF) and Internally Generated Funds (IGF). MoT received

a total amount of GH¢10.2 million for the period 2005 to 2010 for general

administration purposes. GTB received a total amount of GH¢ 13.8 million.

IGF is realised from registration and licenses fees paid to GTB. GTB used all

the IGF they collected in this period for their operations with approval from


Ministry of Finance and Economic Planning (MOFEP). The breakdown of

receipts is provided in Table 2.

Table 2: MoT and GTB’s receipts from 2005 to 2009 (in GH¢ Million)

Source of

fund

2005 2006 2007 2008 2009 2010 Total

MoT

CF 1.1 1.8 1.7 1.5 1.3 2.8 10.2

GTB

CF 0.9 1.4 1.8 1.9 1.6 4.6 12.2

IGF 0.2 0.2 0.2 0.3 0.4 0.3 1.6

Total 1.1 1.6 2.0 2.2 2.0 4.9 13.8

Source: MoT annual budget estimate 2005– 2010.

2.8 System description

23. The development of tourism begins with the identification of sites. This

is done by the Ministry of Tourism or members of public who make it known

to the Ministry of Tourism. If the Ministry considers the site as a potential

tourism resource, it coordinates with MMDAs to install visitor facilities,

improve access to the site, maintain and manage the tourism resources.

24. Ghana Tourist Board facilitates, sets standards and monitors the

operations of the hospitality industry. GTB markets the sites and the hospitality

facilities in the country to both domestic and international tourists.

2.9 Key players and activities

25. The various key players whose activities have a bearing on the

development of tourism in Ghana are shown in Appendix 2.

2.10 Current Development

26. Parliament in May 2011 approved the Tourism Development Bill

which gives a concise plan on the management of the industry. The bill re-


establishes Ghana Tourist Board as a National Tourism Authority to regulate

the industry. It is hoped that implementation of the bill will address the present

weakness in coordination among Ministries, Departments and Agencies as well

as the private sector.

27. The National Tourism Development Plan (1996-2010) is currently

under review by a consultant with the support of World Tourism Organisation

(WTO) and United Nations Development Programme (UNDP). The Ministry

will implement the recommendations of the review to enhance tourism.


CHAPTER THREE

FINDINGS AND RECOMMENDATIONS

3.1 Introduction

28. MoT has been developing tourism since the 1960’s to make Ghana the

preferred tourist destination in West Africa. However, roads to tourist sites are

bad and tourists’ sites are not improved and maintained. Service delivery by

accommodation and catering facilities are also poor.

29. The audit team noted the following areas that MoT can improve to

achieve their goal:

Co-ordinating activities of MDAs and MMDAs to develop tourists’

sites

Ensuring adherence to standards by accommodation and catering

facilities operators

3.2 Co-ordinating activities of MDAs and MMDAs to develop tourists’

sites

30. Ministry of Tourism aims at developing tourists’ sites which provide a

complete and satisfying experience to tourists. According to Ministry of

Tourism, a developed tourist site should have good access roads, maintained

features of attractions and the availability of visitor facilities.

31. Good roads are necessary to make travelling to tourist sites safe,

comfortable, and exciting. It also reduces time taken to travel and vehicle

operating cost. A road is said to be good when it has good surface condition

and can be travelled on with a speed limit of 60km/hr. and above.2

Maintaining features of tourists’ sites ensures the preservation of the attractions

2 Department of Feeder Roads standard definition of roads.


on the sites. The provision of visitor facility is necessary to offer comfort to the

tourist. Visitor facilities at tourists’ sites comprise toilets, urinals, food joints

and souvenir shops.

32. The development and maintenance of tourists’ sites are carried out by

various MDAs and MMDAs whose activities have a bearing on the

development of tourism. The role of the Ministry is to sensitise these MDAs

and MMDAs to understand and appreciate the need to develop and maintain

tourists’ sites. MoT coordinates the activities of the MDAs and MMDAs in this

regard through inter-ministerial and tourism sub-committees.

33. The inter-ministerial committee was set up by MoT in 2001 to bring the

MDAs on board to develop and promote tourism. The committee was to meet

periodically to address issues relating to tourism development. At meetings,

MoT presents tourism plans to members and members were expected to

include the plans into their sector plans and implement them. Members were

also expected to brief the committee on what they were doing to develop

tourism.

34. Decisions taken at the committee were sent to the representatives of

MDAs in the districts who were to implement them at the district level. The

districts had to form tourism sub-committees to oversee the development and

maintenance of tourism. This was made up of Metropolitan Chief Executives

(MCEs), Metropolitan Coordinating Directors (MCDs), Assembly men,

opinion leaders, representatives of GTB and managers of facilities and tourists’

sites. Decisions taken at these meetings were sent to MoT through GTB.

35. The inter-ministerial committee coordinates the activities of MDAs and

MMDAs to implement the development of tourism at the district level and to

align the development with the overall national strategy.


36. The team found that the inter-ministerial committee was not functional

after its inception in 2001, which led to its suspension by MoT. It was

reconstituted and re-inaugurated in 2004 but became defunct in 2005 and was

re-inaugurated in 2009. According to MoT, the committee was suspended

because their work did not live up to expectation.3 Decisions taken at meetings

were not carried out because junior officers that represented MDAs did not

have the authority to oversee the implementation of the decisions.

37. In their response to our findings, Management of MoT said the

committee has been meeting quarterly since its re-inauguration in 2009. Senior

officers attend the meetings and conclusions arrived at the meetings are

followed up with the respective MDAs for feedback.

38. Three out of the 12 MMDAs visited had functional tourism sub-

committees. Interviews with officials of the Metropolitan, Municipal and

District Assemblies visited indicated that though they have the role to develop

and maintain tourists’ sites, the MMDAs do not do so because they considered

it the responsibility of MoT. MMDAs have taken this position because MoT

has not sensitised MMDAs for them to understand that the development of

tourists’ sites was under their purview and that there are some benefits to be

derived.

39. While some representatives of MMDAs do not attend committee

meetings because they do not see tourism development as a priority, others do

not attend because there are no incentives attached.

40. Regional representatives of GTB told the team that they did not receive

feedback from GTB head office whenever they reported decisions taken at the

3 Chief Director of MoT at inaugural meeting of Inter-ministerial committee in April 2009


sub-committee meetings thereby undermining the coordination efforts at the

district level.

41. In their response, Management of MoT said the passing of the Tourism

Act 817 of 2011 which calls for the establishment of Regional and District

Tourism offices as integral structures of the MMDAs will help them overcome

the challenges of sensitisation. Consequently, MoT has written to the Ministry

of Local Government and Rural Development to take steps to make tourism

part of the decentralised Department of the MMDAs.

42. The inability of MoT to sensitise and coordinate the activities of MDAs

and MMDAs resulted in bad access roads to sites, unmaintained tourists’

attractions and the non-availability of visitor facilities at tourists’ sites.

3.2.1 Bad roads leading to tourists’ sites

43. Roads to 19 out of 22 sites the team visited were not as per the standard

definition of a good road (Para. 31). According to hoteliers and tourists, some

of the sites were not accessible without a vehicle with a higher suspension.

They also complained that the bad roads made travelling uncomfortable. The

tourists complained about lack of road signs which made it difficult to locate

the sites. They had to stop and ask for directions from other road users along

the routes increasing travelling times.

44. Daboya Craft village, one of the cultural sites in Northern Region and a

popular tourist destination is 59 km from Nyankpala, the only transit route to

the site. The road from Nyankpala to Daboya is untarred with potholes and

rigged, making driving on it difficult thereby increasing the travelling time.

45. For example, travelling from Daboya to Nyankpala at 60km/hr. as per

the standard for good roads should take one hour. On the contrary, the audit

team, driving in a four wheel drive in a reasonably good condition spent one


hour 45minutes because of the bad state of the road. Again we spent three

hours 45 minutes to travel from Fufulsu to Mole National Park a distance of

134 kilometres which should take about 2hours 23minutes. A 1 km road

between Likpe and Wli Township which should have taken the team one

minute to cover was covered in 12 minutes due to the bad nature of the road.

46. When the team got to Ankasa forest reserve in the Western Region,

there was a group of tourists who could not get access to the forest which was

the main purpose of their visit because the road to the forest was un-motorable.

Pictures 3 and 4 show the state of two roads that leads to Nzulezu and Mole

National Park which were riddled with potholes and bumps respectively.

Picture 3: Road from Tikobo II to Nzulezu Picture 4: Road to Mole National Park

Source: GAS(2010)

47. In their response to our finding, Management of MoT said they have

written to Millennium Development Authority (MiDA) and other organisations

such as the Ministry of Roads and Highways to improve the state of roads

leading to the tourist sites. MiDA has acknowledged receipt of the requests for

improvement of roads.

48. MoT has also erected ten billboards in the Greater Accra, Central and

Volta Regions and is awaiting funds to erect more.

3.2.2 Maintaining tourists’ sites


49. Maintenance of tourists’ sites is essential in preserving the facility so

that it can continue to attract tourists. The team visited six historical sites (Forts

and Castles) in the Central, Western and Volta Regions and observed that they

were not maintained although the Auditor-General’s report on ‘The

Management of Forts and Castles’ published in 2004 made specific

recommendation on the maintenance of these historical sites.

50. For example Fort Prinzenstein in Keta is in ruins. For lack of

maintenance, the walls have fallen apart, the roof left only covers a portion of

one room and there is nothing to show tourists about this historical relic except

what has been committed to memory by the tour guide (see pictures 5&6). The

tourists complained that there were no features to see and as a result the tour

guides had to follow them around and explain things to them interrupting their

reflective mood. Although maintenance of the Forts and Castles is under the

purview of the Ghana Museums and Monuments Board, MoT has failed in

their sensitisation and coordination role in seeing that they are maintained.

Pictures 5&6: Original and current state of Fort Prinzenstein

Original state captured in 1850 Current sate captured in 2010

Source: Management of Fort Prinzenstein Source: GAS (2010)

51. At Mountain Afajato, the highest mountain in Ghana, the team observed

that the vertical members on the railing along the trails were deteriorated and

infested with termites. This poses a risk to tourists who hold onto the rails for


support to climb the mountain. Pictures 7 and 8 shows the deteriorated railings

at the site.

Pictures 7&8: Railings at Afajato Mountain

Source: GAS(2010)

52. Ada and Labadi beaches both in the Greater Accra region were all

littered with human excreta, plastic bags and bottles. 30 tourists surveyed at the

beaches expressed disappointment at the sight of what were on the beaches

because the sites were not cleaned and maintained.

53. Management of MoT said the Tourism Act will help tackle the

challenges encountered with regards to maintaining tourists’ sites. In the

meantime, the Ministry has collaborated with the Ministry of Environment,

Science and Technology to formulate the Eco-Brigade Project being

implemented by Zoomlion to clean the beaches.

3.2.3 Improving tourists’ sites

54. MoT identified about 400 attractions that needed improvement in the

National Tourism Development Plan (1996-2010). The audit team visited 22 of

these attractions at the time of the audit in May 2010. Five of the 22 sites had


been improved, eight had been partially improved and nine had not been

improved. Refer to Table 4 for summarised details and Appendix 3 for full

details.

Table 4:22 tourists’ sites identified for improvement in 1996

Type of

attraction

No. in

sample Proposed improvement Status at audit time

Parks 2 Management plan

Visitor facilities

Improve access

Conserve

Visitor facilities in

place at both parks

Water bodies 3 Build resorts

Visitor facilities

Visitor facilities in

place though not in

good condition at 2

places.

Resorts in place

Forts and castles 6 Restore

Conserve

Interpretative signs

Visitor facilities

Site museum

Proposed

improvement

completed at Cape

Coast and Elmina

castle

All others have not

been improved

Religious places 2 Conserve/maintain

Restore

Visitor facilities


No interpretative signs

No visitor facilities

Larabanga Mosques

looks like a residential

place

Craft village 1 Develop Craft village in place

Road not in good

shape

Natural 8 Develop

Visitor facilities

Improve access

conserve

Roads not in good

shape

Visitor facilities not in

place

Total sample 22

Source: Audit Service Compilation

55. Table 4 shows that some improvements were carried out at some of the

sites but most was not done especially the provision of visitor facilities.

Surveys with 250 tourists revealed that the unavailability of visitor facilities at

the sites did not make them enjoy their visit. The team asked tourists about the

condition of the toilets at sites that had toilet facilities and they complained


about lack of soap, toilet paper and hand towels in toilets. Eighteen tourists

from England and Texas that the team surveyed at various sites in Greater and

Central Region said they had to take in fewer fluids in order to avoid frequent

use of toilets.

56. Wli waterfalls for instance had one toilet serving both male and female

tourists when the audit team visited even though the Ministry had planned to

build a visitor facility there in 1996. Pictures 9 and 10 show a visitor facility

that started at Wli waterfalls in 2002 and abandoned in 2004 due to lack of

funds.

Pictures 9&10: Abandoned visitor facility at Wli.

Source: GAS(2010)

57. In their response to our finding, Management of MoT said the Wli

receptive facility has been re-awarded on contract. The contract has been

signed and the Ministry is awaiting the commencement certificate from the

Ministry of Finance and Economic Planning to begin the project.

58. The bad access roads to sites, unmaintained tourists’ attractions and the

non-availability of visitor facilities at tourists’ sites has led hoteliers and

tourists to complain about the poor state of the roads and attractions. They also

complained about lack of security and street lights around the sites which

results in tourists being attacked and robbed of their valuable items like mobile


phones, cameras and wallets. They were also concerned about heaps of rubbish

along the beaches and streets which the Assemblies had not cleaned. Tourists

chanced upon people in the act of defecating and mounds of faeces along the

beaches.

3.2.4 Recommendation

59. To ensure that co-ordinating activities of MDAs and MMDAs are

carried out to develop tourists’ sites, MoT should:

Support the inter-ministerial committee to function well and encourage

the representatives of MDAs and MMDAs who are attending the

meetings to continue. MoT should ensure decisions taken at inter-

committee meetings are implemented by MDAs and MMDAs.

Strengthen the communication link between the regional and district

offices of GTB with Ministry of Tourism.

Ensure that decisions reached at the committee level are agreed on,

documented and signed by the implementing key players in order to

hold them accountable for their inaction.

Sensitize stakeholders at the district level including opinion leaders,

chiefs and the Assemblies on their roles in the development of tourists’

sites within their districts.

3.3 Ensuring adherence to standards by accommodation and catering

facilities operators

60. GTB is to “ensure the provision of good facilities and delivery of

excellent service” by accommodation and catering facilities operators to make

Ghana a preferred tourists destination in the sub-region.

61. Accommodation and catering facilities are provided by private investors

and developers in the hospitality sector. The private investors set up the

facilities and GTB inspects and issue operating licence to start operations. To


ensure the attainment of its objectives, GTB establishes standards and ensure

that they are adhered to by the operators.

62. In this regard, GTB has established the ‘New Harmonised Standards for

Accommodation and Catering Facilities’. The standards set out the operational

requirements for accommodation and catering facilities. It covers registration

and administration, basic requirement for accommodation, food and staff.

63. The basic requirements for accommodation facilities include:

Every guest room should be cleaned daily and beds made up

A fresh quality bed sheet should be spread on the bed for every new

guest. The bed sheet should be changed every two days if the guest

will spend more than two days

Potable, wholesome drinking water and drinking glass for each

person should be made available in every room

The rooms should have good natural and artificial ventilation.

The rooms should also have at least one bedside lamp which is good

enough for reading or a pillow switch per person, and

Staff should be trained at least once a year in their respective duties

and areas such as customer service

64. The basic requirement for catering facilities include:

Staff of facilities should be medically fit before they are employed

Food sold at facilities should be fit for human consumption

Customers should be served with the nature, substance and quality of

food they request for

Premises of catering facilities should be kept clean

Equipment used in handling of food should be kept clean


Washing facilities including soap and napkins should be provided

for staff, and

Staff should be trained at least once a year in their respective duties

and areas such as customer service.

3.3.1 Inspection of facilities

65. To ensure standards are adhered to, GTB undertakes planned and ad hoc

inspection of facilities. Planned inspection is undertaken annually for the

renewal of operational licenses and upon the request of a developer to start

operation. Ad hoc inspection is undertaken to follow-up on complaints or on

the volition of GTB.

66. The team found that GTB was not able to do a thorough inspection of

all the facilities because they do not have enough staff. They are also unable to

carry out the ad hoc inspection of facilities therefore operators only prepare for

planned inspections when the period is due. As at 10 November 2010, there

had not been any inspection for 2010 in all the regions visited because funds

had not been released from GTB head office for inspection. However, GTB

head office had inspected some facilities in the Greater Accra Region.

67. According to GTB regional managers the audit team interviewed, they

are unable to do thorough inspection of accommodation and catering facilities

and undertake ad hoc inspections due to lack of funds and logistics. To buttress

this point they went on to say that an inspection team of two members

(regional manager and his or her assistant) is responsible for an average of 178

units with an average of 2,605 rooms within a 30 days period every year.

68. Over the years operators of facilities have realised that GTB is unable to

carry out the ad hoc inspections and therefore there is no motivation to adhere

to the standards once they are aware they will not be caught and sanctioned.


69. Two hundred and fifty customers the audit team interacted with in the

four regions complained about the facilities in the accommodation units and

catering facilities. They complained about broken toilet handles which forced

them to put their hands in the cisterns to flush toilets, broken toilet paper

holders and toilet seats, no running water and mirrors, when we asked them

about the fixtures and fittings in the rooms. They also spoke about faulty air

conditioners and fans when we asked them about ventilation in the rooms.

When we asked them about lighting in their rooms, we were told the lighting

system was poor.

70. To verify the information obtained from the customers, the audit team

inspected 50 accommodation units. This consisted of seven 5 to 3-star hotels

and 42 2-star to budget hotels. The 5 to 3-star hotels which are mostly

patronised for business and seminars met the basic standards. The 2-star to

budget hotels which are mostly patronised by tourists did not meet all the basic

standards. Thirteen out of 42 of these units had problems with their lighting,

18 did not have bed lamps and seven had faulty air conditioners. Twenty-

seven of the rooms were dirty with dirty bed sheets or undressed beds and

filled rubbish bins in the rooms and washrooms.

71. In their response to our finding, Management of MoT said they have

bought 12 pick-up vehicles for the regional offices which should help address

the challenges faced during inspection.

3.3.2 Establishing mechanism for excellent services

72. Ghana Tourist Board has the responsibility to establish a mechanism to

ascertain the extent to which tourists products meet tourist’s needs and

expectations; and compare with other countries in the sub region.


73. GTB officials told the team that they had a mechanism in place at the

airport to ascertain the general impressions of tourists when they are leaving

the country. According to them the general impressions of tourists were good.

They also have online mechanisms to collect feedback on the impression of

tourists. The team found that, the online feedback forms does not solicit

information on the impressions of tourist on Ghana. They rather ask tourists to

seek more information from the Ministry. A copy of the online feedback form

is attached as Appendix 4.

74. We also found that the accommodation facilities had questionnaires and

suggestion boxes for guests to comment on the services rendered. The audit

team interviewed tourists to verify the information gathered from GTB. Guests

who stayed in 5 to 3-star hotels said services were good but could still be

improved. The ones who stayed in 2-star to budget hotels had a lot to complain

about. They complained about unfriendly and timid staff, staff irritated by

customers’ requests for basic services like hot water and more towels in the

rooms when we asked them about how the staff related to them.

75. With regard to quality of service by catering facilities, customers spoke

about long waiting times for food and drinks to be served when we asked them

how long it took for them to be served. Some tourists told us they had to stand

and wait for table to be cleaned before they sat down at restaurants because the

tables had not been cleaned after the last customers left. They also spoke about

some waiters serving drinks and food different from what they ordered. For

example they can serve Pepsi Cola in place of Coca Cola without informing

the customer about the unavailability of Coca Cola.

76. Some of the tourists we interacted with spoke about accommodation and

catering facilities advertising services that they did not have.


3.3.3 Training staff of facilities

77. GTB has the responsibility to organise training for staff of

accommodation and catering facilities. The owners of facilities are to enrol and

pay for their staff to participate in the training. The team interviewed 45

waiters and waitresses from different catering facilities who have been on the

job for at least two years to find out whether they had been trained, how often

and the content of training. Thirty-eight of them had never been trained whilst

the remaining seven had received training once. GTB organises periodic

seminars for managers of facilities.

78. Managers of the accommodation and catering facilities said they train

new entrants and employ experienced personnel who help to train newer staff

on the job. They also do refresher sessions to remind them of standards during

their monthly meetings. The managers, however, expect GTB to organise

training for their staff because they are more abreast with the changing trends

in service delivery being regulators of the tourism industry.

79. According to the GTB regional managers, they are not able to organise

training courses due to lack of funds.

80. In their response to our finding, Management of MoT said it is not their

core mandate to train staff of facilities. Their role is to ensure that the operators

train their staff. They however organise training for people in the service

industry when there are special occasions in the country for example during

Confederation of African Nations (CAN) 2008 football tournament.

81. Consequently, the inability of GTB to thoroughly inspect facilities,

establish a mechanism for excellent service and ensure that staff of facilities

are trained has contributed to the non-adherence to standards by operators of

facilities. Tourists do not get customer satisfaction from the services they

receive from these facilities and may not make repeated visits to the facilities.


Unsatisfied customers may also discourage potential customers from visiting

the facilities thereby making GTB not able to achieve their objective to make

Ghana a preferred tourist destination in West Africa.

3.3.4 Recommendation

82. To ensure adherence to basic standards by accommodation and catering

facilities operators, GTB should:

Embark on the ad hoc inspections especially focussing on the 2-star to

budget hotels.

Have an independent way of getting feedback from users of

accommodation and catering facilities to enable them measure the

quality of service delivery in accommodation and catering facilities. It

would also help them to find ways of improving the quality of service

by these providers.

Ensure operators of accommodation and catering facilities train their

staff according to the provisions in the new harmonised standards for

accommodation and catering facilities to enhance their service delivery.


APPENDICES

Appendix 1 a

Documents reviewed

1 National Tourism Development Plan

(NTDP)

To understand what the Ministry set to

achieve by the end of 2010.

2 Tourism Strategy (2003- 2007)

To know the policies and strategies the

Ministry had developed to execute vis-à-

vis the objectives of the NTDP.

3 National Tourism Policy (August 25, 2006)

4 Tourism Sector Medium-Term Development

Plan (2006- 2009)

5 Tourism Investment Opportunities Available

in Ghana for Ghanaians Living Abroad

6 Tourism Development Plan for the Western

Region

7 Ghana at a glance (Basic Tourist

Information)

To know how tourism products are

packaged (marketed) and sold.

8 Guides to Greater Accra and Northern

Regions

9 Festivals of Ghana

10 Making Tourism the Leading Sector of

Ghana’s Economy

11 Ministry of Tourism’s Presentation at Policy

Fair 2010

12 Inventory of Tourists Attractions in Ghana

13 Brochure of International Conference on the

Trans-Atlantic Slave Trade

14 New Harmonized Standards for

Accommodation and Catering

Establishments in Ghana

To know what goes into registration and

classification of tourist facilities.

15 Organogram of Ministry of Tourism To know who is responsible for what

activity. 16 GTB Job Schedule for Senior Staff

17 GTB Establishment (Act and Legal

Instrument)

To know the mandate of GTB

18 Annual Estimates for years 1998, 2000,

2001, 2004- 2010

To know the budgets of the industry for

the 15 year period and the specific

activities they were to undertake.

19 Annual Reports (2004,2006,2007 and 2009) To know what they have done; what is in

progress; what is in the pipeline and the

challenges confronting them. 20 Tourism Statistical Fact Sheet

21 Minutes of the Inaugural Meeting of the Re-

Constituted Inter-Ministerial Committee on

Tourism (March, 2004)

To know the sectors from which

members emanate; decision they take;

whether the decisions are carried out. 22 Minutes of Inaugural Inter-Ministerial

Committee (April 2009)

23 Minutes of 1st Meeting of the Inter-

Ministerial Committee on Tourism (2010)

24 Savannah land, up close and personal To know MoT’s plans to develop

tourism in the Northern part of the


country

25 GTB regional manager’s handing over notes

(Volta)

To know the activities undertaken by the

manager during her tenure of office

26 Annual reports of GTB regional offices To know the activities undertaken in the

year

27 Statement of accounts of the regional GTB

offices

To know the income and expenditure of

the offices

28 Tourist map To know the locations of the tourists’

sites

29 Medium term development plan of the

MMDA’s

Whether tourism development is

incorporated in their plans

30 Minutes of subcommittee meetings of

Jomoro district

To know efforts taken to develop tourism


Appendix 1 b

Persons interviewed

No. Persons Interviewed

1 Director PPME (MoT)

2 Chief director (MoT)

3 Deputy Executive Director of Operations (GTB)

4 Planning and Business Development Department, Manager (GTB)

5 Greater Accra Regional Manager (GTB)

6 Marketing Manager (GTB)

7 GTB Regional Managers supporting staff

8 Site managers and tourism development committee members

9 Coordinating Director of Kpando Municipal Assembly and two (2) other officers

10 Priest in charge of Grotto of Kpando

11 Committee of fifteen (15) in charge of Wli Water Fall and three (3) Tour Guides

12 Chief Executive Officer of Hohoe Municipal Assembly and his Coordinating Director

13 Coordinating Director of Keta Municipal Assembly and four (4) other officers

14 Wildlife Division Regional Director (Western)

15 Chief Executive Officer of Jomoro District Assembly and three (3) officers

16 Chief and elders

17 Tourists

18 Manager in charge of Ankasa Forest and three (3) other staff

19 Chief Executive Officer of Ellembelle District Assembly and his Budget officer

20 Manager in charge of Kwame Nkrumah Tomb

21 Coordinating Director of Nzema East Municipal Assembly (Axim) and four (4) other

officers

22 Tour guides

23 Northern Regional Director of GTB and three other staff

24 Hoteliers Association of the Northern Region

25 Manager in charge of Mole National Park and two (2) other officers

26 Coordinating Director of West Gonja District Assembly, Damongo and seven other officers

27 Two officers of SNV, Tamale branch

28 Wildlife Division, Manager of Kakum National Park

29 Kakum National Park, site manager

30 Manager of Cape Coast and Elmina Castles

31 Managers of accommodation and catering facilities

32 Staff of accommodation and catering facilities


Appendix 1 c

Tourist sites and MMDAs visited

Tourist sites visited MMDAs visited

1. Mole National Park 1. Ho

2. Larabanga Mosque 2. Hohoe

3. Daboya Craft Village 3. Kpando

4. Nzulezu 4. Keta

5. Ankasa Forest 5. Takoradi

6. Fort Antonio 6. Jomoro

7. Fort Metal Cross 7. Ellembelle

8. Shama Fort 8. Nzema East

9. Tafi Atome Monkey Sanctuary 9. Ahanta West

10. Grotto of Kpando 10. Shama

11. Mount Afajato 11. Tamale

12. Wli Waterfalls 12. West Gonja

13. Fort Prizenstein

14. Dodowa Forest

15. Big Baobab Tree

16. The Kyenku Waterfalls

17. Kokrobite Beach Resort

18. Labadi Beach Resort

19. Ada Beach Resort

20. Kakum National Park

21. Elmina Castle

22. Cape Coast Castle


Appendix 2

Key players and roles

No. KEY PLAYERS RESPONSIBILITIES

1

Ministry of Tourism

Develop, manage and facilitate tourism

development.

This is done through the Ministry of Tourism and

its implementing agencies and other MDA’s and

MMDA’s

2

Ghana Tourist Board

The Implementing body of the Ministry of

Tourism.

Sets standards for tourists’, accommodation and

catering facilities.

Monitors activities of private sector.

Markets tourism.

3

MDAs and MMDAs

Participate in the decision making on plans that

affect their sectors and areas.

Development and management of tourists’ sites in

their districts.

5 Tourists.

They travel to a country or area for tourism

purposes.

They patronise the tourism products.


Appendix 3

Tourists’ sites that needed infrastructural improvement in 1996

Tourists ‘site

(Stars defined below)

Location Infrastructural

requirement in 1996

State when team

visited in 2010

1. Nzulezu

village on

water٭٭٭

Jomoro District

Conserve and upgrade

village

Organise village tourism

programmes

Visitor facility not

provided at Nzulezu

but there is one at

Beyin which is about

an hour’s canoe ride to

Nzulezu

2. Mole national

park٭٭ Damongo District

Management plan

prepared.

Upgrade visitor facilities.

Improve access and

conserve.

Road from Fufulso to

Larabanga in bad state

but road from

Larabanga to Mole is

in a good state.

Visitor facility

developed.

3. Larabanga

mosque and

mystery

stone٭٭٭

Damongo District

Conserve and restore.

Develop visitor facilities.


There is no

interpretative sign at

the mosque. It looks

more like a residential

place.

There is no visitor

facility.

The road is in a bad

state.

4. Daboya

traditional

weaving

village٭٭

Central Gonja

District

Develop integrated village

craft market with sales and

demonstrations

Roads not in a good

state.

Craft village in place.

5. The great

baobab

tree٭٭٭

Dodowa

The tree is not fenced

and there are no

illustrations

6. Wli falls٭٭ Hohoe District

Feasibility studies

prepared.


Improve access.

Conserve.

The road from Hohoe

to Likpe is in a good

state but the distance

between Likpe and

Wli is not in a good

state.

The trails are okay.

Signs have been

provided

7. Afadjato ٭٭ Hohoe District

Conserve.

Improve access


Road not in a good

state.

Foot bridges and rails

decaying.

8. Tafi-Atome

monkey

sanctuary٭٭

Hohoe District

Conserve.


The road is untarred.

No visitor facility

9. Kpando

grottos٭ Kpando

Road in a good state.

The visitor facility is

furnished.


10. Fort

Prinzenstein

Keta ٭٭٭

In ruins.

Stabilise and conserve

ruins.

Install interpretative signs.

The fort is still in

ruins.

There were no

interpretative signs.

11. Ankasa

Forest٭٭٭ Western Region

Management Plan

Visitor Facility

Improve Access

Conserve

Visitor facilities

developed

Access road not

improved

12. Fort

Antonio٭٭٭ Axim

Restore

Interpretative Signs

Visitor Facilities

Site Museum



No site museum

13. Fort Metal

Cross٭٭٭ Discove

Restore


Visitor Facilities

Site Museum



No site museum

A private investor has

bought the place.

14. Fort

Sebastian٭٭٭ Shama

Restore


Visitor Facilities

Site Museum



No site museum

15. Dodowa

Forest٭٭٭ Dodowa

No visitor facility


16. Cape Coast

Castle٭ Cape Coast

Restore


Visitor Facilities

Site Museum

Restored

Interpretative signs in

place

Has visitor facilities

Has site museum

17. Kyenku

Waterfalls٭٭٭ Dodowa

Restore interpretative

signs

Visitor facilities

Improve access road


Abandoned visitor

facilities

Bad access road

18. Krokobite

Beach٭٭ Accra

Resorts

Develop with facilities

Bad access road


19. Labadi Beach

Resort٭ Accra

Resorts


Visitor facilities

available

20. Ada Beach

Resort٭٭ Ada

Resorts



21. Kakum

National

Park٭

Cape Coast

Management Plan

Visitor Facility


22. Elmina

Castle٭ Elmina

Restore


Visitor Facilities

Site Museum


Interpretative signs in

place

Site museum in place Source: Audit Service Compilation

Legend

*** no improvement

** partial improvement

* fully improved


Appendix 4

GTB’s online feedback form

Please complete our feedback form below if you require more information and we will

get back to you as soon as possible.

Full Name *

Email *

Address *

City * US State

Non US State (Please specify) N/A

Zip Code / Postal Code* Country

Home Phone *

Daytime Phone

Message


Appendix 5

MoT’s response to audit findings

Mission Statement The Ghana Audit Service exists

To promote

· good governance in the areas of transparency,

accountability and probity in the public financial

management system of Ghana

By auditing

· to recognized international auditing standards the

management of public resources

And

· reporting to Parliament