Empire Cement Ghana Ltd.: The $50 Million Challenger That Built a Factory, Fought a War, and Is Still Waiting for Permission to Sell

From a 2020 sod-cutting under the One-District-One-Factory initiative to a 2022 regulatory showdown with the EPA and Ghana Standards Authority, this Chinese-backed venture has invested $35-50 million in a 1 million-tonne grinding plant near Accra, created over 500 construction jobs, and secured widespread community support—yet remains unable to legally sell a single bag of cement, caught between a presidential directive to cease operations and an official designation as a “1D1F” company.

Executive Introduction

In Ghana’s booming cement industry, the established players have long dominated the market: Ghacem with its 58-year heritage, Diamond Cement with its 25% market share, and CIMAF with its aggressive 25kg bag strategy. But for the past several years, a new challenger has been hovering on the periphery, its massive silos visible from the Weija enclave, its machinery in place, its workforce ready—and its production line silent.

Empire Cement Ghana Ltd. is perhaps the most paradoxical company in Ghana’s industrial sector. It has invested over $50 million in a state-of-the-art cement grinding and bagging plant . It was formally launched with government fanfare under the One-District-One-Factory (1D1F) initiative . It has received widespread support from local chiefs and residents who see it as a source of employment and affordable cement . Its annual import turnover exceeds $34 million, sourced from China, Algeria, and other countries . And yet, according to regulators, it has never been legally permitted to produce cement for the Ghanaian market .

The company’s journey has been one of relentless ambition met by regulatory resistance. In June 2020, sod was cut for the factory . In 2021, the Environmental Protection Agency (EPA) ordered the company to cease construction, and the Office of the President reinforced that directive . In April 2022, the Ghana Standards Authority (GSA) discovered Empire Cement products on the open market, bearing the GSA certification mark without a licence—an offence under Ghanaian law . The company has consistently denied producing cement for the market, blaming “detractors” for placing counterfeit products in the supply chain .

For policymakers, industry analysts, and potential investors, Empire Cement represents a case study in the regulatory complexities of Ghana’s cement sector, the tension between industrialisation and environmental regulation, and the high cost of regulatory non-compliance. This profile examines the company’s $50 million investment, its 2020 launch under 1D1F, its 2021–2022 regulatory battles with the EPA and GSA, its $34.5 million import trade, its community support base, and the critical question: After over four years of construction and regulatory disputes, will Empire Cement ever legally produce a bag of cement?

Company Overview: The $50 Million Investment

The Genesis: A Chinese-Ghanaian Joint Venture Under 1D1F

Empire Cement Ghana Ltd. was established as a joint venture between Chinese investors (70%) and Ghanaian company Obokom Civil Engineering Ltd (30%) . The company is led by Nana Obokomatta IX (also known as Archibald Ato Paitoo), the Chief of Gomoa Dasun, who serves as CEO .

The project was formally launched with a sod-cutting ceremony on June 12, 2020, attended by the then Greater Accra Regional Minister, the Member of Parliament for Weija-Gbawe, and the Municipal Chief Executive . The factory was designated as a project under the government’s One-District-One-Factory (1D1F) initiative, giving it a veneer of official endorsement .

Initial Plans vs. Reality

The initial claim of a $500 million investment appears to have been revised significantly, with later reports citing a **$35 million to $50 million** project cost . The factory was built on an 18.74-acre plot adjacent to the Panbros Salt Company, a location that would later become a point of contention .

Key Operational Metrics

The $34.5 Million Import Engine: Trade Data Analysis

Despite its regulatory limbo, Empire Cement Ghana Ltd. has been highly active in international trade, importing significant volumes of raw materials and equipment.

Import Turnover (December 2024 – November 2025)

According to MarketInside trade data, Empire Cement recorded substantial import activity during this period :

Top Import Sources

Major Import Commodities

Strategic Implications of Import Data

1. Clinker as the Dominant Import (89.01%):

Like all cement manufacturers in Ghana, Empire Cement relies on imported clinker—the primary raw material for cement production. The company’s primary import is even coloured clinker, sourced predominantly from China (45.60%) . This indicates that Empire Cement operates as a grinding plant, importing clinker and grinding it with gypsum and additives to produce finished cement.

2. Algeria as a Secondary Source (16.65%):

Algeria is a significant cement and clinker producer. Empire Cement’s diversification across China (45.6%) and Algeria (16.65%) reduces supply chain risk compared to relying on a single source.

3. No Export Activity:

The absence of export shipments suggests that Empire Cement’s production (if and when it occurs) is intended exclusively for the domestic Ghanaian market .

4. Continuous Machinery Imports:

Beyond clinker and gypsum, Empire Cement has imported complete conveyor belt machines, cement grinding aids, and other equipment, indicating ongoing investment in the plant’s infrastructure .

5. Primary Import Port:

The company primarily receives shipments through CEPS TEMA (the Port of Tema), with some imports arriving through other ports .

The Regulatory Battles: EPA, GSA, and the Fight for a Permit

The 2021 EPA Order: Cease Construction

In March 2021, residents of McCarthy Hill petitioned the Environmental Protection Agency (EPA) about the factory, which they argued would negatively impact their health and the environment . The EPA conducted an investigation.

By March 26, 2021, the EPA had ordered Empire Cement to stop all construction activities until an Environmental Permit was granted . A follow-up directive from the Office of the President in September 2021 reinforced this order, instructing the company “to cease all construction works currently ongoing within the Salt Production enclave” .

The Ministry of Environment, Science, Technology and Innovation (MESTI) upheld the EPA’s decision not to issue a permit . However, despite these directives, the company continued construction and erected three silos, confirming residents’ suspicions that the factory was intended to produce cement rather than just cement bags .

The 2022 GSA Discovery: Illegal Certification Marks

In April 2022, the Ghana Standards Authority (GSA) made a significant discovery: Empire Cement brands were being sold on the open market, labelled with the GSA’s certification mark without a licence .

GSA Director General Prof. Alex Dodoo warned that this constitutes an offence under Ghanaian law . In a letter dated March 31, 2022, the GSA wrote to Empire Cement, stating :

“Preliminary checks on the samples taken indicate that you are using the certification mark provided for in L.I. 662 (as amended by L.I. 664) without a licence and certificate from the GSA… This practice constitutes an offence and is in blatant contravention of the applicable legislation. It misleads consumers and the public that your product has been certified as conforming to the applicable national standards and is both fit for purpose and safe to use when it has, in fact, not been certified at all.”

The GSA found that the company had not been granted a licence to produce cement, yet products bearing its certification mark were already on the market .

Empire Cement’s Defence

The company denied producing cement for the open market . CEO Nana Obokomatta IX provided the following explanations :

1. “We have not started producing cement.” The company’s position is that the factory was producing packaging materials in anticipation of obtaining a permit, not finished cement.

2. “We have no idea how the product got to the market.” Nana Obokomatta claimed that the products found on the market “was certainly not produced at the Empire Cement factory.” He attributed this to “detractors who may have bagged this product and sold it on the market to give us a bad image.”

3. “We are working with the EPA for a permit.” The company insisted it was still engaging with the EPA to obtain the necessary permit to commence production .

The EPA’s Position: A Clear Refusal

The EPA’s position was unambiguous. Executive Director Dr. Henry Kokofu stated that the agency had denied Empire Cement a permit . The reasons cited included:

1. Health concerns for residents: The EPA considered that the operations of the company would not be in the health interest of residents of the area, including McCarthy Hill and Tetegu.

2. Impact on Panbros Salt: The EPA realised that the operations of the cement factory would be detrimental to the Panbros Salt Industries Ltd, which had been established long before Empire Cement came to the site.

The EPA indicated that it was no longer handling the issue because Empire Cement had petitioned the Minister of Environment, Science, Technology and Innovation on the refusal of the agency to grant the permit .

The Chamber of Cement Manufacturers: Industry Concerns

The Chamber of Cement Manufacturers Ghana (COCMAG) confirmed that its market survey had found Empire’s products on the market, specifically in Kasoa . This independent verification lent credibility to the GSA’s findings and raised concerns about unfair competition from an unlicensed operator.

The Community Divide: Supporters vs. Detractors

The Residents Association Lawsuit

A faction of residents in the McCarthy Hills area, led by the McCarthy Hills Residents Association, filed lawsuits against the factory’s operations . They claimed that the siting of the factory in the enclave would adversely affect the health of residents through the emission of dust particles into the atmosphere . They also petitioned the EPA, which directed the company to halt operations .

The residents alleged that the Chinese investors had initially claimed the factory would produce cement bags, not actual cement . When the silos were erected, their suspicions were confirmed.

The Counter-View: Chiefs and Residents Support the Factory

In September 2022, a counter-movement emerged. The United Southwest McCarthy Hills Residents Association and the chiefs and elders of Weija-Gbawe publicly declared their support for the factory’s operation .

Mr. Kwaku Danso, President of the United Southwest McCarthy Hills Residents Association, stated that the allegations against Empire Cement were “untrue” and born out of “pure malice” . He asserted that:

1. The Company had received all requisite permits to commence construction in 2020 after consultations with all residents associations and chiefs.

2. The factory had put in place measures to ensure dust was contained at the premises.

3. The Company had invested over US$35 million and employed in excess of 500 youth during construction.

4. The factory is earmarked to create in excess of 10,000 direct and indirect jobs .

Nii Mensah Kpashie, Gbawe Kwashon Manste, urged the government to quickly commission the factory. He called for its integration into the 1D1F programme to provide more jobs .

In October 2022, the traditional authorities and residents of Weija, Gbawe and Tetegu reiterated their support, describing the factory as a private investment that “held enormous potential for the Weija-Gbawe Constituency in particular and the larger Ghanaian economy” . They noted that the factory had demonstrated that the technology being used would generate no dust and, therefore, there would be no health or environmental hazard.

Key arguments from supporters :

The Ramsar Site Concern

A further complication was the revelation that the area where the factory was built is a Ramsar Site—a wetland of international importance . Cement production in such an ecologically sensitive area raised additional environmental red flags.

What the Company Is Not

Based on available evidence, Empire Cement is not:

1. A licensed cement producer: The EPA denied the company a permit, and the GSA has not certified its products .

2. A legal operator: The Office of the President directed the company to cease construction .

3. A manufacturer of cement bags: The company was registered at the Registrar-General’s Department for the purpose of manufacturing and bagging cement, not paper bags . It is not equipped to manufacture cement paper .

4. A company that has paid the required fees: The GSA discovered that Empire Cement was selling products bearing its certification mark without having obtained a licence or certificate .

Competitive Landscape

Empire Cement vs. Major Players

Future Outlook

As of June 2026, Empire Cement’s status remains unresolved. The company has:

• Invested $35-50 million in a 1 million-tonne plant 

• Imported $34.5 million in raw materials and equipment 

• Received widespread community support from local chiefs and residents 

• Built relationships with Chinese suppliers and a Ghanaian partner

However, it has also:

• Been denied a permit by the EPA 

• Been found selling products with the GSA’s certification mark without a licence 

• Been ordered to cease operations by the Office of the President 

Potential Scenarios

Scenario 1: Regulatory Resolution

• Empire Cement resolves its dispute with the EPA and obtains the required permit.

• The GSA certifies its products after proper inspection and payment of fees.

• The company begins production, creating thousands of jobs and providing affordable cement.

Scenario 2: Continued Stalemate

• The EPA’s refusal stands, and the company remains unable to operate.

• Legal battles continue, and the investment remains idle.

• The factory remains a monument to regulatory friction.

Scenario 3: Acquisition or Partnership

• A licensed cement manufacturer acquires the factory or partners with Empire Cement.

• The new operator handles regulatory approvals, and the plant becomes operational under a different brand.

The Verdict

Empire Cement Ghana Ltd. is the most dramatic “almost there” story in Ghana’s cement industry. It has everything a cement manufacturer needs: a multi-million dollar plant, a dedicated workforce, community support, and a steady supply of imported clinker. What it lacks is the one thing it cannot build or buy: regulatory approval.

The company’s journey illustrates the high stakes of Ghana’s cement sector. The government has long sought to encourage local manufacturing and reduce imports. The 1D1F initiative was designed to support such projects. Yet, environmental regulations, land use disputes, and quality control standards have created a web of requirements that have kept Empire Cement from operating.

The $34.5 million in imports , the $50 million investment , the over 500 construction jobs —all of these are on hold, waiting for a permit that may never come. Meanwhile, the GSA has found its products on the market, bearing certification marks without a licence , raising questions about the company’s compliance culture.

Empire Cement is not yet a cement manufacturer. It is a factory waiting for permission to become one. Whether that permission arrives will determine whether this $50 million investment becomes a Ghanaian industrial success story—or a cautionary tale about the importance of “getting the permits first.”

FAQ SECTION

1. Is Empire Cement Ghana operating legally?
No. Empire Cement Ghana Ltd. has been denied a permit by the Environmental Protection Agency (EPA) and has not been certified by the Ghana Standards Authority (GSA). The Office of the President directed the company to cease construction in 2021 .

2. When was Empire Cement Ghana founded?
The sod-cutting ceremony for the factory was held on June 12, 2020. The company was designated under the One-District-One-Factory (1D1F) initiative .

3. Who owns Empire Cement Ghana?
Empire Cement is a joint venture between Chinese investors (70%) and Obokom Civil Engineering Ltd (30%) . The CEO is Nana Obokomatta IX (Archibald Ato Paitoo), Chief of Gomoa Dasun .

4. How much did Empire Cement invest in the factory?
The company invested approximately $35 million to $50 million in the project .

5. Where is Empire Cement located?
The factory is located in Weija, Greater Accra Region, adjacent to the Panbros Salt Company .

6. Does Empire Cement have a permit from the EPA?
No. The EPA has denied Empire Cement a permit, citing health concerns for residents and potential harm to the Panbros Salt Company, which was established before Empire Cement .

7. Does Empire Cement have certification from the Ghana Standards Authority?
No. The GSA discovered in April 2022 that Empire Cement products were on the market with the GSA’s certification mark without a licence. The GSA warned that this constitutes an offence .

8. What was the response of the Office of the President?
The Office of the President issued a directive in September 2021 instructing the company “to cease all construction works currently ongoing within the Salt Production enclave” .

9. Who supports Empire Cement’s operations?
Local chiefs and residents of Weija, Gbawe, and Tetegu have publicly supported the factory’s operations, citing its potential for job creation and affordable cement. The United Southwest McCarthy Hills Residents Association described allegations against the company as “pure malice” .

10. How much does Empire Cement import annually?
Between December 2024 and November 2025, Empire Cement recorded an import turnover of $34.51 million, primarily from China (45.60%), Algeria (16.65%), and Pakistan (7.33%) .

11. What is Empire Cement’s production capacity?
The factory is designed to produce 1 million tonnes of cement per annum .

12. How many jobs has Empire Cement created?
The factory employed over 500 youth during the construction period and is expected to create over 10,000 direct and indirect jobs when fully operationa

Source: Accra Street Journal 

Last Updated on June 28, 2026 by Samuel Kwame Boadu

Samuel Kwame Boadu

Samuel Kwame Boadu is a Ghanaian media entrepreneur and storyteller with a passion for amplifying urban voices and uncovering everyday truths. He is the Editor-in-Chief and Founder of Accra Street Journal, a dynamic digital platform dedicated to capturing the pulse of Ghana’s capital—its people, culture, challenges, business, sports and innovations.

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