Introduction
Ghana’s decentralisation agenda has long aimed to empower local governments to better manage and respond to the unique needs of their constituencies. However, despite numerous policy reforms, most Metropolitan, Municipal, and District Assemblies (MMDAs) remain heavily dependent on allocations from the central government, namely the District Assemblies Common Fund (DACF) and other budgetary transfers.
A bold and transformative step in this decentralisation journey would be the introduction of municipal bonds: a debt-financing tool that enables local governments to raise capital independently for infrastructure and development projects. Globally, municipal bonds have successfully funded roads, schools, hospitals, and water systems in countries like the United States, South Africa, India, and Brazil.
This article outlines why Ghana should introduce municipal bonds and the wide-reaching benefits of allowing MMDAs to raise their own debt for development.
What Are Municipal Bonds?
Municipal bonds are debt instruments issued by local government authorities (e.g., city or district assemblies) to finance capital-intensive development projects. In return, the issuer agrees to repay the borrowed funds with interest over time, often from local tax revenues or project-specific income.
These bonds can take two main forms:
• General Obligation Bonds – backed by the full faith and credit of the MMDA, including its taxing power.
• Revenue Bonds – repaid from specific revenue sources, such as tolls, property rates, or utility charges.
Why Municipal Bonds Make Sense for Ghana
1. Bridging the Infrastructure Financing Gap Ghana faces a significant infrastructure deficit, from poor roads and drainage to insufficient sanitation and healthcare facilities. The central government alone cannot finance all these needs. Municipal bonds would allow local authorities to tap into the capital market to finance projects tailored to their specific needs.
2. Empowering Local Government Autonomy Currently, local governments operate with limited financial independence. Enabling them to raise funds through bonds would enhance their autonomy and accountability while deepening decentralisation in practice, not just in policy.
3. Attracting Private Sector Participation By issuing bonds backed by transparent repayment plans, local governments could attract institutional investors, pension funds, and development finance institutions (DFIs), thus bringing private capital into public infrastructure.
4. Spurring Regional Development Each region or municipality has distinct priorities — be it agribusiness, tourism, industrial parks, or urban renewal. Municipal bonds would allow MMDAs to pursue strategic projects without waiting for central funding, catalysing inclusive, balanced national growth.
5. Promoting Fiscal Discipline and Transparency Bond issuance requires creditworthiness, audited accounts, and transparency, incentivising MMDAs to improve governance, enhance internally generated revenue (IGR) systems, and adhere to sound financial management.
6. Creating New Investment Opportunities For investors, municipal bonds would introduce a new asset class with potentially attractive yields, helping deepen Ghana’s capital market and diversify portfolios beyond traditional government and corporate securities.
Potential Projects That Can Be Financed
• Urban roads and street lighting • Waste management and recycling plants • Affordable housing schemes • Market and lorry terminal redevelopment • Water and sanitation projects • Agro-processing zones or rural electrification
Examples From Other Countries
• South Africa: Cities like Johannesburg and Cape Town have successfully issued municipal bonds to fund water supply and urban transport.
• India: The Securities and Exchange Board of India (SEBI) has enabled dozens of municipal bond issuances under a structured framework, raising billions for smart city initiatives.
• United States: Municipal bonds are a pillar of infrastructure financing, with over $4 trillion in outstanding bonds issued by cities and states.
Addressing Concerns and Risks
While promising, municipal bonds require safeguards:
A Creditworthiness Assessments • Only fiscally disciplined and transparent MMDAs should be allowed to issue bonds, ideally subject to approval by a national regulatory body.
B. Project Viability Studies
• Every bond issuance must be backed by a credible development project with clear financial and social returns.
C. Strong Legal & Regulatory Framework • Ghana’s Public Financial Management Act and Local Governance Act would need amendments to create a framework for municipal borrowing, set debt limits, and establish oversight mechanisms.
D. Capacity Building • Training for MMDA finance officers, municipal assembly members, and oversight committees is essential for success.
Recommendations for Policy Makers
1. Develop a Municipal Bond Policy Framework – led by the Ministry of Finance in collaboration with the Securities and Exchange Commission (SEC) and the Local Government Service.
2. Pilot with Selected Assemblies – Target well-performing MMDAs like Accra, Kumasi, or Sekondi-Takoradi for initial bond issues.
3. Create a Municipal Bond Guarantee Fund – Backed by the central government or DFIs to provide risk-sharing for early issuances.
4. Standardise Credit Rating and Auditing – To assess local authorities’ financial health.
5. Promote Public-Private Partnerships (PPPs) – Allow blended financing models combining bond issuance with private sector participation.
Conclusion
Introducing municipal bonds in Ghana would be a game-changer, enabling local governments to unlock new financing for development, reduce overdependence on central transfers, and accelerate community-level transformation. It is time for Ghana to embrace this innovative tool as part of a broader strategy to decentralise development and democratize access to capital.
