Strengthening artisanal mining research and policy through baseline census activities

Over the past 10–15 years, several governments have implemented an array of technology, support‐related, sustainable livelihoods (SL) and poverty‐reduction projects for artisanal and small‐scale mining (ASM). In the majority of cases, however, these interventions have failed to facilitate improvements in the industry's productivity and raise the living standards of the sector's subsistence operators. This article argues that a poor understanding of the demographics of target populations has precipitated these outcomes. In order to strengthen policy and assistance in the sector, governments must determine, with greater precision, the number of people operating in ASM regions, their origins and ethnic backgrounds, ages, and educational levels. This can be achieved by carrying out basic and localized census work before promoting ambitious sector‐specific projects aimed at improving working conditions in the industry.     

How has a shortage of census and geological information impeded the regularization of artisanal and small‐scale mining?

There is growing consensus that a combination of laissez‐faire policies, ad hoc regulation and debilitating support services has perpetuated socio‐economic and environmental deterioration in the artisanal and small‐scale mining (ASM) industry. However, a lack of anthropological and geological information on ASM prevents many governments both from improving the policy environment of the industry, and from providing more robust extension services to its operators. This article aims to examine more precisely how a deficiency of baseline census and geological data has inhibited industry formalization and undermined many of the measures implemented to address pressing problems at ASM sites. Specifically, it is argued that insufficient knowledge of artisanal mining populations — including their demographic structure — and of areas suitable for ASM activities affects the ability of a government to regularize, as well as to improve, the organization of this largely informal sector of industry. Case studies of Ghana and Zimbabwe are used to illustrate how the undertaking of low‐budget projects in areas of geological prospecting and population analysis could improve the efficiency of ASM assistance.     

How you start matters: A comparison of Gold Fields' Tarkwa and Damang Mines and their divergent relationships with local small-scale miners in Ghana

This paper argues that actions of large-scale mining companies at the early stages of a mining project establish a legacy which sets the tone for that mine's long-term relationship with the local artisanal and small-scale mining (ASM) stakeholders. This paper compares the experiences of Gold Fields' Tarkwa and Damang mines and the divergent histories of each of these mines' relationship with local small-scale mining stakeholders. Circumstances at Damang during the discovery and early development of the project drove a rift between the mine and the ASM community. As the mine developed, a chain of ASM engagement strategies were enacted in an attempted to repair the relationship but which has never able to regain sufficient trust between the mine and ASM stakeholders. At the nearby Tarkwa mine, ASM confrontations have been much easier to manage. Despite early disagreements at Tarkwa, a relationship characterized by greater trust between the mine and ASM communities was established early and therefore ASM engagement strategies have been simpler and more effective. This paper will conclude that establishing and maintaining a positive mine legacy as early as the exploration phase of a mining project is critical to maintaining a positive, trust-based relationship between LSM companies and their local ASM stakeholders over the life of a mine.     

Safeguarding livelihoods or exacerbating poverty? Artisanal mining and formalization in West Africa

In recent years, policy mechanisms to support a formalized artisanal and small‐scale mining (ASM) sector in sub‐Saharan Africa have gained increasing currency. Proponents of formalization argue that most social and environmental problems associated with the sector stem from the fact that ASM is predominantly unregulated and operates outside the legal sphere. This paper critically examines recent efforts to formalize artisanal and small‐scale mining in West Africa, drawing upon recent fieldwork carried out in Sierra Leone, Ghana and Mali. In exploring the sector's livelihood dimensions, the analysis suggests that bringing unregulated, informal mining activities into the legal domain remains a considerable challenge. The paper concludes by confirming the urgent need to refocus formalization strategies on the main livelihood challenges and constraints of small‐scale miners themselves, if poverty is to be alleviated and more benefits are to accrue to depressed communities in mineral‐rich regions.     

A dangerous bet: The challenges of formalizing artisanal mining in the Democratic Republic of Congo

Among policy-makers and governments, there is a broad consensus that artisanal and small-scale mining (ASM) needs to be ‘formalized’ – embodied in a standardized legal framework that is registered in and governed by a central state system-, the basic condition being that artisanal miners are given formal property rights. This article aims to contribute to this discussion, drawing on a case study from the Eastern Democratic Republic of Congo (DRC), where it is estimated that up to 90 percent of mineral production and export is ‘informal’. After having pointed out some of the theoretical assumptions behind the formalization canon, we study the challenges of formalizing the mining sector in the DRC. Next, we provide an in-depth analysis of one concrete policy measure of the Congolese government, the temporary ban on all artisanal activities. We argue that the mining ban was not only a radical example of a top-down formalization policy, but also an illustration of a bureaucratic and technical measure that compounds but does not address different problems associated with ASM: conflict, informality, poverty, illegality, state control. Looking at the empirical evidence from the DRC, we argue that these kinds of technical solutions can never address the broader socio-economic and political issues at stake.     

Pork knocking in the land of many waters: Artisanal and small-scale mining (ASM) in Guyana

The growth of artisanal and small-scale mining (ASM) in Guyana has received little attention in the literature, despite its rapid growth and now central importance in this small country's socioeconomic fortunes. Although the activity in Guyana shares commonalities with ASM activity elsewhere in the world, it also displays some unique characteristics. This article builds upon existing debates and current issues surrounding Guyanese ASM. A lack of baseline data and research on the dynamics, underlying forces and various outcomes of the ASM sector has acted as a significant constraint on the regulation and development of the sector in a completely desirable fashion. This has been the result of, but has also been exacerbated by, the ineffective nature of intervention, enforcement and assistance. This paper aims to demonstrate and argue for the need for developing much clearer understandings of and effective interactions with the ASM sector in Guyana. Such all developments are the more pressing given future policies, which may represent potentially sizeable challenges for the continued vibrancy of ASM operations.     

Precarious work or sustainable livelihoods? Aligning Prestea's Programme with the development dialogue on artisanal and small‐scale mining

Alternative livelihoods programmes (ALPs) are extensively executed in mining communities, often as models of development dialogue on artisanal and small‐scale mining (ASM). This paper assesses whether Prestea's ALP aligns with the development dialogue on artisanal mining. The conceptual design of ALP in Ghana's Prestea is based on the notions of substitution, homogenous community, and impact scalability. This paper argues that the Prestea ALP is not aligned with the development dialogue on artisanal mining, and therefore it is difficult to understand the role and function of environmentally‐damaging behaviours within livelihood strategies. The paper contends that it would be appropriate to concentrate on improving the existing artisanal miners’ operation of those most susceptible to resource access restrictions. Further, it may be more prudent to utilize livelihood‐centered interventions that create strong connections with sustainable development as a way of creating regular community engagements. Additionally, this paper argues that the term for the intervention programme on artisanal mining should be replaced with the broader term ‘livelihood‐centered intervention’. The replacement of the term ‘ALP’ avoids the tacit belief that ALP can adequately replace artisanal mining operations. Livelihood‐centered intervention should not necessarily utilize alternative livelihoods as direct behavioural change instruments.     

Perspectives on female participation in artisanal and small-scale mining: A case study of Birim North District of Ghana

This article critically examines the issue of growing female participation in the artisanal and small-scale mining (ASM) sector, particularly within its illegal segment, drawing upon experiences from Birim North District in the Eastern Region of Ghana. Although an estimated 50% of those employed in ASM are women, few researchers have investigated what roles women play in the sector, or how their participation contributes to rural development. The paper aims to examine the causes of female participation in the ASM sector and the impact of this type of employment on women's income, health and families. An analysis of collected data suggests that there is a growing need for policies to address female employment in ASM and, more generally, rural employment. The analysis demonstrates the utility of gender mainstreaming in the small-scale mining formalisation process, as well as the need to promote other viable employment opportunities for the benefit of women residing in rural areas.     

Abandoned artisanal gold mines in the Brazilian Amazon: A legacy of mercury pollution

The modern gold rush in the Brazilian Amazon attracted millions of people to become artisanal miners in order to escape complete social marginalization. The rudimentary nature of artisanal mining activities often generates a legacy of extensive environmental degradation,both during operations and well after mining activities have ceased. One of the most significant environmental impacts is derived from the use of mercury (Hg), which is illegal for use in gold amalgamation in Brazil, but continues to be the preferred method employed by artisanal gold miners. The general population is unaware of the capricious nature of mercury and artisanal mining activities. Moreover, individuals in positions of political or economic infiuence tend to be negatively biased towards artisanal mining and government policies do not effectively address the realities of these activities. Affected communities have consequently been ignored,and mistrust towards outside parties is high. Not surprisingly, miners are suspicious of and unlikely to employ externally derived solutions to reduce mercury emissions. This article reviews the use of mercury in artisanal mining and highlights the role miners, governments and non-governmental organizations (NGOs) have played in communicating facts, perpetuating myths and deriving solutions for mercury pollution. This article also raises some key concerns that must be addressed to understand the behaviour of mercury in the environment and identifies solutions for problems facing communities where artisanal gold mining operations have been abandoned.     

Challenges with eradicating illegal mining in Ghana: A perspective from the grassroots

This paper argues that artisanal mining communities are somewhat bound to their operations, and helps explain why formalisation, alternative livelihood projects and military intervention—the traditional strategies employed by governments to tackle illegal mining—have proved ineffective. Findings from recent research carried out in Noyem (Eastern Region of Ghana) are used to illustrate why illegal artisanal mining is such a deeply rooted activity in sub-Saharan Africa. The analysis provides four explanations in support of this: a heavy involvement of traditional leaders in operations; the mindsets of many operators toward alternative income-earning activities; the numerous and diverse range of employment opportunities provided by the sector; and the level of investment in operations.     

How have reforms fuelled the expansion of artisanal mining? Evidence from sub-Saharan Africa

This paper investigates whether and how World Bank mining sector reforms have fuelled the expansion of illegal artisanal mining activity in Sub-Saharan Africa. In doing so, the analysis examines three issues. First, the emerging correlation between reforms and poverty, mainly a result of increased unemployment caused by Structural Adjustment Programmes and concurrent privatisation of state-owned enterprises, is explored. Second, the possibility that reform of large-scale mining has decreased available land for peasant farming as well as legalised small-scale mining activity is discussed. Finally, the notion that the regularisation of informal mining activities has been an exceedingly bureaucratic procedure in Africa, therefore providing individuals with little incentive to operate within the legal domain, is examined. Faced with few employment prospects, a growing number of Africans are pursuing employment in the artisanal mining sector, a worrying prospect given its intimate association with environmental degradation and HIV/AIDS.     

A double‐edged sword: Realities of artisanal and small‐scale mining for rural people in the Alaotra region of Madagascar

A growing number of people are entering the artisanal and small‐scale mining (ASM) sector worldwide. In Madagascar, millions of individuals depend on this informal activity. Through a case study in the Alaotra‐Mangoro region of Madagascar, our research aimed to understand the “bottom‐up” dynamics and ripple effects of the sector, by looking at the realities for rural communities where inhabitants are both directly and indirectly affected by ASM. We were interested in community members' and miners' perceptions of the socio‐economic and environmental impacts of ASM, and in identifying the factors attracting people living in one of the country's agricultural hubs to this activity. Our results show a wide diversity of push and pull factors leading people to enter the sector. Although many positive impacts of ASM exist for miners and communities within the vicinity of mines, most miner participants considered themselves worse off since starting to mine, highlighting the high risk and low probability of return of ASM. ASM's potential for local and national development will remain squandered if its negative impacts continue to go unmanaged. Accounting for local contexts and the ripple effects of ASM will be crucial in achieving safety and security for miners, and to tap into the benefits it may offer communities while minimising environmental damage.     

Is the god of diamonds alone? The role of institutions in artisanal mining in forest landscapes,Congo Basin

This paper examines the institutional framework of artisanal mining in the forests of the Sangha Tri-National Landscape (TNS) in the Congo Basin. Artisanal miners in Cameroon and the Central African Republic (CAR) commonly make sacrifices to their god of diamonds, to improve fortunes. This study looks into ‘the other forces’; institutions that play a role in shaping the sector and its outcomes. These institutions comprise formal and informal institutions at a local, national, regional and international level. Although artisanal miners in TNS benefit by gaining cash income, this activity also carries risks as income is highly disparate and environmental impacts in this priority forest conservation area are expected to increase due to the growing competition over land use. It was concluded from a literature review, interviews and site visits that informal arrangements dominate the sector, especially in Cameroon, leading to poor relations between officials and miners and meaning that miners have few rights and no voice. The current institutional setup is inadequate to deal with current and anticipated social and environmental issues. Future interventions need to take into account the existing (local) types of organization, vulnerable groups, the interests of multiple actors and the fact that most miners are experienced but combine mining with other activities, such as agriculture, fishing and harvesting forest products. African initiatives concerning ASM offer opportunities to Cameroon and CAR to collaborate with other countries to combat similar issues. A regional integrated approach of both the forest and mining sector would be especially relevant for trans-boundary agreements, such as concerning the TNS, to reinforce positive outcomes for the landscape and the area's population.     

Multiple scales of diamond mining in Akwatia,Ghana: addressing environmental and human development impact

Ghana is the second largest producer of gold in sub-Saharan Africa, and has experienced a significant increase in national mining production over the last two decades. Between 1983 and 1998, the mining industry brought approximately US $4 billion in foreign direct investment to Ghana. While large-scale gold mining has seen a significant increase, artisanal gold and diamond mining product have grown exponentially. While much research has been conducted on gold mining in Ghana, there is relatively little research on the environmental and human development consequences of diamond mining in the country. Unlike other West African countries such as Sierra Leonne and Liberia, small-scale diamond mining in Ghana has not been linked to conflict but its role in development has also been relatively modest. This paper examines large and small-scale mining in Ghana's largest diamond mining town, Akwatia, and their relative impact on environmental degradation, health, and the livelihood of artisanal miners. We conclude that while an increase in artisanal diamond mining has been a means of employement and income-generation for small-scale miners, there are some human development challenges, related to environmental burden from land degradation and health. GCD is an ailing mining company in Ghana, in desperate need of an injection of capital to keep the mine alive, but botched bidding has slowed the process of de-regulating the company. We also conclude that the de-regulation of GCD may lead to a relatively reduced environmental burden in Akwatia and more revenue for the GCD to invest in the human development needs of communities in the town.     

Small–scale mining in South Africa: Past, present and future

Mining is an important part of the South African economy and has been the driver of much of the economic development of the country. However, the small–scale mining subsector still has to realise its full potential. A small–scale mine has been defined as a mining activity employing less than 50 people and with an annual turnover of less than 7.5 million Rand and includes artisanal mines. Small–scale miners are involved in many commodities but there appears to be a bias towards gold, diamonds and quarrying for construction materials, including brickclays. Small–scale mining is regulated by the same legislation (i.e., for the environment, labour, mineral rights, exploration and mining permitting, and skills development) as large–scale mining, though compliance is low, particularly where artisanal mining in concerned. The effective participation of small–scale miners in the mining sector is hampered by their lack of skills, i.e., technical, business and management, and their limited access to mineral deposits, capital and markets. Some of these hindrances have been inherited from the imbalances of the colonial and apartheid eras and continue to act as barriers, making entrance to the industry difficult. For those who have entered the industry out of desperation, as is the case with most artisanal miners, their activities result in negative impacts evident in the inefficient, unsafe and environmentally unfriendly operations. With the advent of the new political dispensation in South Africa, a new era is dawning for the country’s small–scale mining subsector. This has resulted in a change of attitude and new government policies which have led to special programmes being put in place to promote the subsector. Intervention strategies for the support of small–scale mining (some of which are already in operation) include programmes for kickstarting mineral beneficiation and value–addition projects, development of appropriate technologies and skills and technology transfer. Proponents of small–scale mining see a well–regulated industry as being the cornerstone of future rural economic development, particularly for previously disadvantaged communities in the poverty nodes.     

The dynamics of artisanal and small-scale mining reform

Artisanal and small‐scale mining are activities that have long been established in many developing countries, employing millions of people globally, either directly or in affiliated industries. Also, such activities are deplored for their adverse environmental impacts and their general avoidance of governments, tax collectors and other regulators. Decades of work have gone into addressing these problems, but with limited overall progress in evidence. Going back to some of the key dynamic relationships involved in artisanal mining and small‐scale mining, the need for policy reform that gives consistent and effective incentives is argued to be the foundation on which other discussions about environmental protection, sustainability and livelihoods can be built.     

Criminalization of “galamsey” and livelihoods in Ghana: Limits and consequences

The fact that the artisanal and small-scale mining (ASM) sector in Ghana is driven largely by poverty means that the sector is a major source of livelihood for people in mining communities across the country. However, given the various social and environmental problems associated with the ASM sector, there is now an emerging consensus that the formalization of the sector would not only allow for these associated problems to be addressed but also ensures that the sector contributes to sustainable development and safeguard the livelihood of local communities. While a large body of extant literature has examined the challenges and opportunities facing the process of formalization, the question of the criminalization of the sector and its consequences for local livelihood has received only limited attention. Drawing from primary data collected during fieldwork in Ghana, this study examined the livelihood implications of the ban on galamsey in the Tarkwa-Nsuaem Municipality in South-Western Ghana from the perspectives of local communities and other key stakeholders. The study reveals that the ban on galamsey has imposed significant socio-economic hardships on the people and appears to be entrenching poverty rather than sustainable development. The study considers the theoretical and practical implications of the findings for sustainable livelihood enhancement in developing countries.     

Artisanal mining: an economic stepping stone for women

Artisanal mining is about reaping the riches of the earth to make a living. Artisanal mining is the informal, and more primitive type of small-scale mining. It is usually characterized by individuals or groups who very inefficiently exploit superficial mineral deposits, often illegally and with simple equipment. Artisanal mining is also about women who take employment which involves dangerous working conditions and seldom leads to economic security. Artisanal mining is, furthermore, about women venturing into new and challenging territories and subsequently changing their role. This article on women and artisanal mining is a vignette that underscores all the obstacles to women's fulfilment. These critical and cross-sectoral obstacles are, to cite a few, economic exclusion, discrimination in terms of access to land and natural resources, the increasing feminization of poverty and the lack of recognition of women's valuable work. Two-pronged action is recommended: to give women themselves hope and recognition for their isolated efforts, and that their endeavours are acknowledged breakthroughs; and to reshape the environment, which is oppressing these women, to create a new one.     

Reforming small-scale mining in sub-Saharan Africa: Political and ideological challenges to a Fair Trade gold initiative

In sub-Saharan Africa, artisanal and small-scale mining (ASM) has caused a range of environmental, social and economic problems. Most of the donor support pledged to improve conditions in the sector to date, however, has failed to facilitate marked improvements, in large part because emphasis has been placed on technical interventions; at the same time, impoverished miners’ needs and concerns have been seriously overlooked. It is against this background that this paper critically examines the underpinnings and potential of “Fair Trade gold” as a solution to many of the problems plaguing the ASM sector and a mechanism for alleviating the hardships of its operators. Unlike the majority of ASM-support support measures implemented in the past, “Fair Trade gold” is entrenched in the discourse of “partnership” and “participation”. To ensure its effectiveness initiatives must be adapted according to the specificities of ASM.     

Collecting data in artisanal and small-scale mining communities: Measuring progress towards more sustainable livelihoods

This short note discusses methodological obstacles to the collection of microeconomic data in artisanal and small-scale mining communities. International donor organizations are supporting policy efforts that enhance the contribution to poverty alleviation of this mining subsector. The design and evaluation of such policy interventions require data on income, expenditure, investment, and savings in mining households and communities. These data are difficult to come by. Incomes are variable; migrants may work far from home; miners often work informally and sometimes illegally; mining populations and communities are heterogeneous and transient; and miners have many reasons to distort information. Legalization and organization of miners in cooperatives would facilitate documentation and research. These processes, however, are beyond the control of the typical policy consultant or donor organization. On their part, these parties can adopt an alternative model of research. This model involves the community in project development, data collection, and monitoring. It emphasizes continuity, cultural diversity, trust building and learning. The data thus collected should provide a firm basis for programmes that promote more sustainable livelihoods in artisanal and small-scale mining communities.