2007年-世界发展银行全球_Ghana_LPG_Gas_Sector_Study_73页_849kb

Summary of Ghana LPG Gas Sector Study

Core Content

This document presents a comprehensive analysis of the Liquefied Petroleum Gas (LPG) sector in Ghana, focusing on its structure, supply, distribution, safety, and policy implications. It is part of a broader study by the World Bank's Oil and Gas Policy Division (COCPO) aimed at understanding the reasons behind the LPG market failure in selected countries and applying lessons learned to improve the sector in Ghana.

Main Objectives

• To identify impediments to LPG market development in Ghana
• To develop a strategy for expanding LPG market access, particularly for the poor
• To improve the availability and affordability of LPG for household use
• To promote LPG as a cleaner and more efficient substitute for traditional biomass fuels

Key Findings

• LPG is the third most important cooking fuel in Ghana, used by approximately 10% of households
• The LPG market is constrained by limited supply and distribution infrastructure, particularly in rural and peri-urban areas
• LPG demand has grown steadily since the 1990s, but the supply remains unreliable due to inefficiencies at the Tema Oil Refinery (TOR) and insufficient storage and evacuation facilities
• The current LPG price is volatile, and the lack of a cylinder management system has led to poor maintenance and renewal of LPG cylinders
• Safety concerns are prevalent in the LPG supply chain and end-user handling, with no nationally accepted safety standards
• Access to LPG by the poor is limited due to high initial costs of equipment and lack of distribution infrastructure in rural areas

Industry Structure

• The LPG industry in Ghana is a sub-sector of the petroleum industry, involving both public and private entities
• Key players include the Ministry of Energy (MoEN), the Energy Commission (EC), the National Petroleum Authority (NPA), the Tema Oil Refinery (TOR), LPG Marketing Companies (LPGMCs), Oil Marketing Companies (OMCs), transporters, and retailers
• The NPA is responsible for regulating and monitoring LPGMCs, OMCs, and retailers, and for setting petroleum pricing formulas
• The MoEN formulates and coordinates energy policies, including those related to LPG
• The EC handles technical regulations and provides policy advice to the MoEN

Supply Chain

• The LPG market is primarily supplied by the TOR, which has limited storage capacity and faces inefficiencies
• Ghana relies heavily on LPG imports, which are expected to continue until the TOR's capacity is improved
• The lack of downstream storage and distribution facilities in the ten regions of Ghana exacerbates supply issues
• The current LPG production capacity at TOR is sufficient to meet domestic demand, but supply reliability remains a challenge

Distribution and Transportation

• Road transport is the only mode of LPG distribution currently available in the country
• There is a need to explore alternative distribution methods such as rail, pipelines, and marine coastal trade
• Strategic storage facilities need to be developed in key locations to improve supply reliability and access

Cylinders

• Most cylinders in use are in poor condition due to the absence of a maintenance and renewal system
• Cylinder ownership is currently with end-users, which is seen as a barrier to effective state management
• There is a need to standardize cylinder sizes, valves, and regulators, and to assign clear responsibilities for maintenance and replacement
• Production of smaller-range cylinders (3-6kg) should be encouraged to improve affordability and access

Safety and Standards

• There are no nationally accepted safety standards for the LPG industry
• Safety concerns are a major issue, as evidenced by past accidents such as the 2003 fire at the Household Gas Company Limited and the 2005 fire involving a bulk haulage truck
• Safety regulations and their enforcement need to be improved
• A centralized pressure testing facility and periodic inspection of cylinders should be established
• Training programs for refilling plant staff and a dialogue between the NPA and industry associations on safety practices are recommended

Access by the Poor

• The poor have limited access to LPG due to high initial costs and lack of infrastructure in rural areas
• Subsidies should focus on initial investment (cylinders and cookers) rather than variable costs
• A financing mechanism should be established to help the poor purchase LPG equipment
• LPG access should be promoted as a government flagship policy to improve social and economic outcomes

Investment and Funding

• The LPG sector requires significant investment in infrastructure, including storage, distribution, and refilling facilities
• Potential investment areas include primary transportation (coastal, rail, pipeline, road), storage depots, and refilling plants
• Funding sources include public and private investments, public-private partnerships, and international clean energy programs such as the African Rural Energy Enterprise Development (AREED)
• The government should introduce incentives and create an effective regulatory and safety environment to attract private investment

Recommendations

• Policy/Regulation:

  • Develop and implement policy measures to support LPG as a preferred cooking fuel
  • Strengthen the capacities of the NPA and GSB to enforce safety and quality standards
  • Clarify ownership, filling, and maintenance responsibilities for LPG cylinders through appropriate legislation

• Availability/Distribution:

  • Decentralize LPG storage to improve supply reliability and access
  • Improve evacuation facilities at the TOR
  • Establish additional refineries to increase LPG supply
  • Explore alternative modes of transportation such as pipelines, rail, and marine trade

• Institutional Development:

  • Create an all-inclusive, nationally recognized LPG industry association
  • Promote the benefits and safe use of LPG through public education
  • Work with the regulatory authority to adopt internationally recognized technical standards

• Safety and Standards:

  • Develop and enforce nationally accepted safety regulations
  • Involve the LPG industry association in the development of safety standards
  • Enhance the capacity of the NPA to enforce safety regulations
  • Implement a systematic mass-media campaign to disseminate safety and regulatory information
  • Establish mandatory periodic inspections and re-certification of LPG cylinders
  • Set up a central pressure testing facility for cylinders
  • Launch a training program for refilling plant staff

• Access by the Poor:

  • Implement a financing mechanism to support the poor in purchasing LPG equipment
  • Focus subsidies on initial costs rather than recurrent costs
  • Promote LPG access as a government flagship policy to ensure equitable distribution

Conclusion

The LPG sector in Ghana has potential for growth and development but faces significant challenges in terms of supply, distribution, safety, and access. A multi-faceted approach involving policy reform, infrastructure development, institutional strengthening, and public-private partnerships is necessary to ensure the sustainable expansion of the LPG market and its benefits to all segments of society, especially the poor.