Poverty Dimensions of Public Governance and Forest Management in Ghana’
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Final Technical Report: NRSP Project R7957 ‘Poverty Dimensions of Public Governance and Forest Management in Ghana’ Kojo Amanor, David Brown & Michael Richards With Maxwell Kude Diderutuah, Eric Sam-Quartey, Kwabena Opoku-Mensah and Francis Hazel-Cobbina Overseas Development Institute, London & Institute of African Studies, University of Ghana, Legon 1 NATURAL RESOURCES SYSTEMS PROGRAMME FINAL TECHNICAL REPORT DFID Project Number R7957 Project title ‘Poverty dimensions of public governance and forest management in Ghana’ Project Leaders Dr. David Brown (UK) & Dr. Kojo Amanor (Ghana) Organisation Overseas Development Institute, London & Institute of African Studies, University of Ghana, Legon. NRSP Production System Date Forest-Agriculture Interface June 2002 2 TABLE OF CONTENTS Page List of Acronyms 1 1. EXECUTIVE SUMMARY 2 2. BACKGROUND 3 3. PROJECT PROPOSAL 6 4. OUTPUTS 7 4.1 Output 1 8 4.1.1 Research study sites 8 4.1.2 The context of environmental decision-making in the Brong Ahafo 12 4.1.3 Agricultural policy and its effects on the Brong Ahafo Region 15 4.1.4 The small farmer in policy discourse 17 4.1.5 Fallowing and permanent cultivation 17 4.1.6 Population and land tenure 18 4.1.7 Population and land tenure 20 4.1.8 Main circuits for land acquisition 21 4.1.9 Migrants and chiefs 23 4.1.10 Natural resource tenure 25 4.1.11 Supplementary livelihoods 25 4.1.12 Cropping systems 27 4.1.13 Agricultural intensification 31 4.1.14 Farming strategies 31 4.1.15 Adaptive strategies of farmers 33 4.1.16 Fallow tree resources and agriculture 34 4.1.17 Farmer adaptation and innovation 39 4.1.18 Agricultural research 40 4.1.19 Poverty and agricultural development 41 4.1.20 Managing the environment under decentralisation 46 4.1.21 Structures of decentralised environmental policy 46 4.1.22 An interim assessment of environmental decision-making 49 4.2 Output 2 51 4.2.1 The way forward 51 4.2.2 Taking account of complexity 52 4.2.3 Engaging with decentralisation 52 4.2.4 Other interventions 53 4.2.5 Entry points for research 57 4.2.6 The role of information 58 4.2.7 The proposed project 59 4.3 Output 3 63 4.3 Comparison between planned and actual outputs 65 5 RESEARCH ACTIVITIES 66 5.1 Research methodology 66 5.1.1 Choice of study areas 68 5.1.2 Study sites 69 5.1.3 Charcoal as a case study of multiple land use conflicts 69 5.1.4 Assembly members survey 70 5.1.5 Land cover change sub-project 70 3 5.1.6 Other aspects of research management 71 6 ENVIRONMENTAL ASSESSMENT 73 7 CONTRIBUTION OF OUTPUTS 75 8 PUBLICATIONS AND OTHER COMMUNICATION MATERIALS 78 9 REFERENCES CITED IN THE REPORT, SECTIONS 1-7 78 10 PROJECT LOGFRAME 78 11 KEYWORDS 82 12 ANNEXES 82 FIGURES 4.1 The Brong Ahafo Region 9 4.2 Fallow intervals 19 4.3 Tenure arrangements in the Brong Ahafo transition zone 23 4.4 Main crops grown in the Brong Ahafo transition zone 28 4.5 Project Logframe 79 TABLES 4.1 Characteristics of settlements, indicating main research themes 10 4.2 Fallow intervals in cropping systems 20 4.3 Sources of men’s and women’s land 24 4.4 Main off-farm incomes 26 4.5 Distribution of crops in men’s and women’s farm plots 29 4.6 Dominant cropping systems 32 4.7 Usage of inputs and mechanised technology on farm plots 35 4.8 Percentage of men and women using inorganic fertiliser 36 4.9 Investments in hired labour and tractor services 36 5.1 Profile of the survey area 72 BOXES 4.1 Uses and abuses of environment narratives – 1 14 4 ANNEXES ANNEX 1: A Brief History of Agriculture in the Transition Zone of Brong Ahafo 1.1 Phases of agricultural development 1 1.1.1 Colonial agricultural policy 2 1.1.2 Agricultural modernisation, input subsidisation and market liberalisation 2 1.1.3 Market liberalisation and crisis of mechanised high input agriculture 3 1.1.4 Agricultural Research Infrastructure and agricultural information systems 4 1.1.5 Environmental policy and information systems 5 1.2 Population and migrations in Brong Ahafo 6 1.2.1 Land Tenure 7 1.2.2 Population and land tenure 8 1.2.3 Main circuits through which land is acquired 8 1.2.4 Migrants’ Access to Land 19 1.3 Natural resource tenure 19 1.4 Supplementary livelihoods 21 FIGURES 1.1 Tenure arrangements in the Brong Ahafo transition zone 10 1.2 Extent of cultivation 14 TABLES 1.1 Density of population by region in Ghana 6 1.2 Sources of men’s and women’s land 11 1.3 Main off-farm incomes 21 ANNEX 2: Cropping Systems 2.1 Cropping profiles in the districts 1 2.2 Farming strategies 8 2.3 Fallowing and permanent cultivation 9 2.4 Farmers’ adaptive strategies 12 2.4.1 Ecological adaptation 12 2.4.2 Impact of agricultural policy and infrastructure on farming practice 12 2.5 Case studies 15 2.5.1 Case study 1: Kokoago - Agricultural intensification through adaptation to agricultural 15 infrastructure collapse 2.5.2 Case Study 2: Subinso - decline of agricultural input technology 16 2.5.3 Case study 3: Buoku - commercialisation without inputs in a changing environment 17 2.5.4 Case study 4: Bush fallowing and intensification in the yam belt 19 2.6 Fallow tree resources and agriculture 22 2.7 Farmer adaptation, innovation, and the agricultural research system 25 Figures 2.1 Main crops grown in the Brong Ahafo transition zone 2 2.2 Fallow intervals 10 Tables 2.1 Distribution of crops in men’s and women’s farm plots 3 2.2 Crops cultivated by men and women 5 2.3 Percentage of monocropped and intercropped plots cultivated by men and women 7 5 2.4 Dominant cropping systems 7 2.5 Fallowing intervals on farm plots 10 2.6 Fallow intervals in cropping systems 11 2.7 Fallow intervals for yam plots at Weila, Mansie and Nsawkaw 11 2.8 Usage of inputs and mechanised technology on farm plots 13 2.9 Percentage of men and women using inorganic fertiliser 14 2.10 Investments in hired labour and tractor services 14 2.11 Tree varieties preserved on farm plots 23 ANNEX 3: MANAGING THE ENVIRONMENT 3.1 Introduction 1 3.2 Structures for Decentralised Environmental Policy 2 3.2.1 Structures of decentralisation 2 3.2.2 The Forestry Service and natural resource management 8 3.2.3 The Fire Volunteers and natural resource management 10 3.2.4 Chiefs and natural resource management 11 3.2.5 District Chief Co-ordinating Executives and Natural Resource Management 12 3.3 Charcoal Management Issues 15 3.3.1 Social organisation of charcoal production 15 3.3.2 Case studies of charcoal production 17 Appendix Local Government Reform in Ghana 21 Tables 3.1 Revenues of the Wenchi District Assembly for 2000 16 Figures 3.1 Structure of the District Administration 5 ANNEX 4: THE WAY FORWARD 4.1 Changing Paradigms 1 4.1.1 Institutional mechanisms 3 4.2 Other interventions 3 4.3 Entry points for community action 7 4.4 The Proposed Programme 9 4.4.1 Project Outputs 11 6 Abbreviations and Acronyms AgGDP Agricultural gross domestic product CFC Community Forestry Committee CIDA Canadian International Development Agency CPP Convention Peoples’ Party (Ghana political party) CPR Common pool resources CDR Committee for the defence of the revolution DA District Assembly DANIDA Danish International Development Agency DCE District Chief Executive (presently, a political appointee) DCD District Coordinating Director (formerly, District Chief Coordinating Executive [DCCE] – a Civil Service appointee) DESC District Environmental Sub-committee DFID Department for International Development (UK) EPA Environmental Protection Agency (Ghana) FAI Forest-agriculture interface GFC Ghana Forestry Commission (replacing the Forestry Department [FD]) GNRC Ghana National Reconstruction Corps GTZ Deutsche Gesellschaft für technische Zusammenarbeit (German Agency for Technical Cooperation) IAS Institute of African Studies (University of Ghana, Legon). IITA International Institute for Tropical Agriculture NABFC National Anti-Bushfire Committee NDC National Democratic Congress (Ghana political party) NGO Non-governmental organisation NPK Nitrogen-Phosphorus-Potassium (ie. abbreviation for a fertiliser containing a mixture of these three) NPP New Patriotic Party (Ghana political party) NRSP Natural Resource Systems Programme (DFID) NTFP Non-timber forest product ODI Overseas Development Institute (London). OVI Objectively-verifiable indicators PDC Peoples’ Defence Committee PNDC Provisional National Defence Committee (former military regime). PRA Participatory rural appraisal (cf. GTZ’s ‘Programme of Rural Action’) 1 2 1. Executive Summary This is a scoping study to develop a research project on innovative strategies for natural resource management at the FAI in Ghana. This research stands to make a significant contribution to the realisation of the FAI Purpose, through improved understanding of the social and economic influences which have led to existing policies, and the decision-making processes which need to be taken into account in advancing environmental policy. The focus is socio-political, not technological. The first two of the Purpose-level OVIs have been achieved; the third is being addressed at a level appropriate to a scoping study. Local government decentralisation is widely anticipated to improve environmental management by bringing decision making closer to the resource users, but there is little evidence from the Ghana case that this is actually occurring. Here, the dominant process has been to give new life to the principles of cultural and technological modernisation which have guided policy formulation since Independence.