SEISMIC SAFETY AND BUILDING CODES IN GHANA: BRIDGING THE GAP  BETWEEN LEGISLATION AND ENFORCEMENT

ABSTRACT 

Ghana faces increasing risks from earthquakes, particularly in the Greater Accra Region.  Although the country has a building code and relevant laws, enforcement remains weak and  seismic safety measures are inconsistently implemented. This paper reviews Ghana’s legal and  institutional approach to seismic safety and compares it with effective systems in Japan and  California. Major challenges include poor enforcement, low public awareness, and a shortage  of technical expertise. The study recommends making seismic design standards mandatory  nationwide, enhancing enforcement, building capacity, and increasing international  collaboration to better protect people and infrastructure.

INTRODUCTION

On 24 June 2020, a magnitude 4.0 earthquake shook Accra, Ghana’s capital, causing  widespread panic and minor structural damage. While the event was minor by global seismic  standards, it exposed a critical vulnerability in Ghana’s infrastructure and regulatory  environment: the country’s building codes and enforcement mechanisms are ill-equipped to  handle a major seismic event. Ghana lies within the West African seismic zone, an area of  increasing low-to-moderate seismic activity, particularly around the Greater Accra Region.  Despite this, Ghana’s building regulations remain largely reactive and lack the stringent  seismic design requirements and enforcement mechanisms characteristic of earthquake-prone  regions such as Japan and California.

This article argues that while Ghana has established building codes, weak enforcement,  outdated standards, and limited public awareness leave the country vulnerable to seismic risks.  By analyzing Ghana’s legal framework and comparing it with Japan’s rigorous compliance  system and California’s fault-based zoning laws, this article proposes actionable reforms to

enhance Ghana’s seismic resilience. It further explores the socio-economic and institutional  challenges that impede the effective implementation and enforcement of seismic safety  regulations in Ghana.

BACKGROUND

Ghana’s seismicity is primarily influenced by tectonic activities along several regional  geological structures, notably the Togo, Birimian, and Dahomeyan thrust faults. These fault  systems, while less active compared to those in globally recognized high-risk seismic zones,  have nonetheless generated recurrent low-to-moderate tremors over recent decades. Such  tremors are significant as they may serve as precursors to larger, more destructive seismic  events if stress accumulates along these faults. The southern coastal belt of Ghana, particularly  the Greater Accra Region, is especially vulnerable due to its high population density, rapid  urbanization, and concentration of critical infrastructure such as hospitals, schools, and  government buildings. ¹

The Ghana Geological Survey Authority (GGSA) has reported a noticeable increase in the  frequency of earthquakes, with data indicating a rise in both the number and intensity of seismic  events since the early 2000s. For instance, the 2020 Accra earthquake, though moderate in  magnitude (4.0), caused widespread alarm and exposed structural weaknesses in many  buildings. The GGSA warns that these tremors should not be dismissed as isolated incidents  but rather as indicators of ongoing tectonic stress that could culminate in more severe  earthquakes.¹

Compounding the seismic risk is the geological complexity of Accra’s soil profile. The city is  built on a heterogeneous mix of sedimentary deposits, including clay, sand, and loose alluvium,  which are prone to amplification of seismic waves and soil liquefaction during strong ground  shaking. Despite these scientific findings, there remains a critical gap in translating this  knowledge into enforceable building codes and construction practices, leaving many structures  vulnerable to seismic hazards.³

Furthermore, recent geotechnical surveys have identified several microzonation areas within  Accra, each with distinct seismic hazard profiles. These findings suggest the need for tailored building designs and localized risk assessments rather than a one-size-fits-all approach.  However, the lack of comprehensive seismic hazard maps and limited integration of such data  into urban planning and building regulation enforcement continue to undermine Ghana’s  preparedness for potential earthquakes.³

SECTION 1: GHANA’S CURRENT LEGAL FRAMEWORK ON BUILDING SAFETY A. Existing Laws & Regulations

Ghana’s legal framework for building safety is anchored primarily in the following  instruments:

• Ghana Building Code (GS 1207:2018): This code is the latest comprehensive regulatory framework for construction standards in the country. It includes seismic design guidelines adapted from international standards, such as the International  Building Code (IBC). However, seismic provisions are not compulsory nationwide  unless adopted by local authorities, leading to inconsistency in application across  regions.⁴
• National Disaster Management Organization (NADMO) Act (1996): NADMO is tasked with disaster response and management, but lacks a preventive mandate concerning construction practices or building safety regulations.⁹
• Local Government Act (2016): This Act delegates responsibility for building permit issuance and enforcement to Metropolitan, Municipal, and District Assemblies (MMDAs). However, these local bodies often lack the technical expertise, resources,  and institutional capacity to conduct effective inspections and enforce building codes  comprehensively.¹⁰
• Building Act (2011) (Act 829): This provides a legal basis for regulating building construction but does not explicitly mandate seismic safety measures or retrofitting of existing structures.⁵

Keys gaps in enforcement

Despite the existence of these laws, enforcement remains weak due to several systemic  challenges:

• No Mandatory Seismic Audits: Unlike Japan, Ghana does not require compulsory seismic risk assessments before construction permits are granted. This gap increases the likelihood of unsafe buildings, especially in high-risk zones.⁴
• Lack of Penalties: The Ghanaian legal framework imposes minimal or no fines on builders who violate building codes, thereby reducing deterrence against non compliance.⁵
• Urbanization Pressures: Rapid and often unregulated urban expansion in Accra and other metropolitan areas has led to the proliferation of unauthorized constructions. Many buildings exceed recommended height limits for seismic zones, and informal  settlements often lack any regulatory oversight.⁵
• Ageing Infrastructure: A significant portion of Accra’s building stock is over 50 years old, far exceeding typical design lifespans and lacking seismic retrofitting, thereby increasing vulnerability.⁵
• Limited Public Awareness and Professional Training: There is insufficient public education on seismic risks and inadequate professional training for engineers, architects, and builders on earthquake-resistant construction techniques.²
• Fragmented Institutional Oversight: Multiple agencies share overlapping responsibilities without clear coordination, leading to regulatory gaps and enforcement inefficiencies. The 2019 earthquake revealed structural cracks in several buildings in  Accra; however, no mandatory post-event structural audits were conducted,  highlighting enforcement lapses and institutional inertia.²

SECTION 2: COMPARATIVE LEGAL ANALYSIS: LESSONS FROM JAPN AND  CALIFORNIA 

JAPAN’S PROACTIVE LEGAL MODEL

Japan, located on the Pacific Ring of Fire, is one of the most earthquake-prone countries  globally and has developed an advanced seismic regulatory framework:

• Building Standard Law of Japan: This mandates performance-based seismic design, requiring all new buildings to withstand predicted seismic forces with objectives of life safety and damage limitation.⁶
• Mandatory Site-Specific Seismic Hazard Assessments: Before construction, detailed geological and seismic studies are compulsory, ensuring site-specific risk mitigation.⁶ • Strict Enforcement: Local governments conduct rigorous pre- and post-construction inspections, with severe penalties for violations, including criminal sanctions in  extreme cases.⁶
• Public Education: Regular mandatory earthquake drills and widespread awareness campaigns ensure high compliance and preparedness among the populace.⁶ • Retrofitting Programs: Older buildings, especially those constructed before the 1981 code revision, are subject to mandatory seismic retrofitting, supported by government  incentives.⁶
• Integration of Technology: Japan employs real-time earthquake early warning systems and advanced monitoring technologies, which inform building design and emergency response.¹³

CALIFORNIA’S FAULT-BASED ZONING SYSTEM

California’s seismic safety regime is governed primarily by the California Building Code  (CBC) and the Alquist-Priolo Earthquake Fault Zoning Act:

• Fault-Zone Restrictions: The Alquist-Priolo Act prohibits construction directly on active fault lines, significantly reducing risk in high-hazard areas.⁸
• Site-Specific Seismic Design: The CBC requires seismic hazard assessments tailored to local geology, with prescriptive and performance-based design standards.⁷
• Incentivized Retrofitting: Tax breaks, grants, and low-interest loans encourage property owners to reinforce vulnerable structures, particularly critical infrastructure and residential buildings.⁷
• Robust Enforcement: Local governments are responsible for inspections and compliance, supported by state funding and technical assistance.⁷
• Private Sector Involvement: Insurance companies incentivize compliance by offering premium discounts for buildings that meet seismic standards.⁷
• Public Education and Preparedness: Community outreach programs, drills, and educational resources are integrated into the legal framework.⁷

Comparative Table

SECTION 3: CHALLENGES AND OPPORTUNITIES IN GHANA  Challenges in Building Code Enforcement and Public Compliance

Several factors impede effective seismic safety enforcement in Ghana:

• Weak Inspection Capacity: MMDAs lack adequately trained personnel and technical tools to conduct thorough inspections and enforce compliance with seismic safety standards.⁵
• Informal Construction Practices: A significant portion of construction occurs informally, bypassing regulatory oversight and increasing vulnerability.⁵ • Public Awareness Deficit: Many property owners and developers underestimate seismic risks, leading to non-compliance with building codes and poor construction  quality.²
• Aging and Vulnerable Infrastructure: Numerous buildings in Accra and other urban centers exceed their design lifespan, with no mandatory retrofitting or seismic assessment requirements in place.⁵
• Economic Pressures: Developers often prioritize cost savings over safety, constructing multi-story buildings in areas where soil conditions and seismic risk warrant more conservative designs.⁵

Socio-Economic and Institutional Challenges

• Financial Constraints: Many local governments in Ghana lack sufficient budgets to recruit and train qualified building inspectors or conduct regular audits. This financial limitation hampers enforcement and monitoring.⁵
• Informal Construction Sector: A significant portion of construction in Ghana occurs informally, outside regulatory oversight. Informal builders often lack the technical knowledge or incentives to adhere to seismic safety standards.⁵
• Corruption and Political Interference: Reports indicate that corruption and political patronage sometimes undermine enforcement, with building permits issued without proper inspections or to non-compliant structures.²
• Limited Data and Research: Ghana lacks comprehensive seismic hazard maps and up-to-date geological surveys, which are critical for informed zoning and risk assessment.³
• Public Perception: Earthquakes are often perceived as rare or negligible risks, resulting in low demand for seismic safety measures among developers and homeowners.²

Opportunities for Improvement

• Integration of Seismic Risk into Urban Planning: Urban development plans should incorporate seismic hazard zoning, restricting construction in high-risk areas and guiding infrastructure investments.¹²
• Capacity Building and Professional Development: Partnerships with international agencies such as the Japan International Cooperation Agency (JICA) and the World Bank can provide technical training and funding for capacity building.¹³
• Digital Technologies: The adoption of digital permitting and inspection systems can improve transparency, reduce corruption, and enhance enforcement efficiency.¹² • Retrofitting Critical Infrastructure: Schools, hospitals, and government buildings should be prioritized for seismic assessments and retrofitting, with funding support  from the government and international donors.¹²
• Community Engagement: Grassroots education campaigns can raise awareness about earthquake risks and encourage compliance with building codes.¹¹

DISCUSSION

While Ghana’s building code (GS 1207:2018) establishes a foundational framework for  construction safety, significant enforcement gaps persist. The absence of mandatory seismic  provisions across all regions, coupled with limited public awareness and inadequate technical  capacity among regulatory bodies, leaves the nation vulnerable to potentially devastating  earthquake impacts.⁴ The 2019 Accra earthquake, though moderate in magnitude, starkly  exposed the fragility of Ghana’s building safety regime, revealing structural weaknesses and  the consequences of lax enforcement.¹

Research from the Ghana Geological Survey Authority and independent studies emphasize that  the frequency of seismic events is increasing, underscoring the urgency for Ghana to pivot from  a reactive disaster response model to a proactive disaster prevention strategy.¹ Lessons from  Japan’s stringent compliance system which includes regular inspections, mandatory seismic  design, and public education⁶ and California’s fault-zone zoning and incentivized retrofitting  programs⁷ provide valuable blueprints for Ghana.

CONCLUSION

Ghana’s seismic risk, especially in rapidly urbanizing areas such as Accra, represents a critical  and growing threat that demands immediate and sustained action. To achieve seismic  resilience, Ghana must undertake comprehensive legal reforms that make seismic safety  provisions mandatory nationwide, establish a dedicated National Seismic Safety Commission,  and strengthen institutional coordination. Capacity building for municipal inspectors and  engineers is essential, alongside nationwide public education campaigns to foster a culture of  compliance and preparedness. International collaboration with agencies such as the Japan  International Cooperation Agency (JICA) and the United Nations Office for Disaster Risk  Reduction (UNDRR) can provide technical expertise and funding support.¹¹ ¹³

Ultimately, strengthening Ghana’s seismic resilience is not solely a technical challenge but a  socio-political imperative. The time to act decisively is now—before the next major earthquake  transforms legislative and enforcement gaps into catastrophic human and economic losses.  Proactive investment in seismic safety will safeguard lives, protect infrastructure, and promote  sustainable urban development in Ghana’s rapidly evolving cities.¹²

REFERENCE(S):

1. Ghana Geological Survey, 2019 Accra Earthquake Report (2020)
2. S T Ahulu, ‘Respond to Imminent Earthquake with Enforcement’ Graphic Online (25 January 2021)
3. A K A Appiah and E K K Dzisi, ‘Seismic Hazard Assessment in Ghana: Implications for Building Safety’ (2019) 15 Journal of African Earth Sciences 123
4. Ghana Standards Authority, Ghana Building Code GS 1207:2018 (2018) 5. Ministry of Works and Housing, Report on Building Compliance and Safety in Accra (Accra 2023)
5. Building Standard Law of Japan 1950 (amended 2000)
6. California Building Code (CBC) 2019
7. Alquist-Priolo Earthquake Fault Zoning Act of 1972 (California)
8. National Disaster Management Organization Act 1996 (Ghana)
9. Local Government Act 2016 (Ghana)
10. United Nations Office for Disaster Risk Reduction, Sendai Framework for Disaster Risk Reduction 2015-2030 (2015)
11. World Bank, Urban Development and Disaster Risk Reduction in Ghana (2022) 13. Japan International Cooperation Agency (JICA), Seismic Safety Capacity Building Report (2023)