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.     

Innovation for sustainable development in artisanal mining: Advances in a cluster of opal mining in Brazil

The objective of this article is to understand how the promotion of clusters of small economic agents in the gem sector has brought some improvements in the economic, social and environmental conditions in the mining sector and activities related to it. The research provides policy and theoretical contributions to the field of gem production, as well as enhances understanding of the under researched opal production in Brazil. It argues that government funding and technical support dedicated to the development of mining clusters, i.e. working with small economic agents as a whole and not individually, could promote not only more economic development, but also effectively incorporate social and environmental issues, such as workers safety, water management and tailings recycling. The argument is based on an evaluation of environmental, economic, social and institutional aspects of the opal mining cluster in Pedro II municipality, Piauí state. The results suggest that some formalisation of existing practices and adequate policies have triggered innovation with some positive effects on the performance of artisanal mining. Nevertheless, there are indications that if decision-makers plan to make this cluster more sustainable, they will have to include other issues in the debate including developing substituting economic activities.     

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.     

The incidence of land tenure insecurity in Southern Africa: Policy implications for sustainable development

The study presented in this article used a combination of key informant interviews and a review and synthesis of existing country level literature to identify the major sources of land tenure insecurity in six Southern African countries: Botswana, Lesotho, Malawi, Mozambique, South Africa, and Zambia. Findings reveal that the main causes of land tenure insecurity experienced in Southern Africa include lack of land rights of minority groups, unclear or overlapping land rights, overcrowding, land alienation into leasehold, insecurity of farm workers and farm labour tenants, inappropriate and exploitative administrative practices, land encroachment and illegal settlers and limited women's land rights. The article presents a summary of land tenure security related initiatives that the study countries have or are in the process of adopting. Analysis of these initiatives shows that tenure reforms have focused on changing the law and rules but little has been done to translate new laws into implementable programs; capacity building; prioritization of resources to support tenure reform; provision of complementary policies and incentives; addressing HIV/AIDS‐land tenure related problems; and monitoring and evaluation. The paper contends that these policy issues should be addressed in order to ensure realization of land tenure security for all.     

Toward sustainable livelihoods after war: Reconstituting rural land tenure systems

Land tenure plays a primary role in sustainable development efforts. However armed conflict and its repercussions reconfigure the network of social relations upon which all land tenure systems depend. In post‐conflict settings new laws have the opportunity to address tenure issues in the context of what people are already doing ‘on the ground’, with a view to moving from the fluidity of post‐conflict situations to a more solidified and peaceful social and legal environment. However there exists a lack of tools to analyze postwar land tenure and the prospects for reconstituting tenure systems to support recovery and development. This paper uses the Sustainable Livelihoods framework to examine postwar land tenure issues in order to draw out latent opportunities within emergent informal smallholder tenure constructs which may have utility in the reconstitution of national tenure systems.     

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.     

Strategies for sustainable development of the small-scale gold and diamond mining industry of Ghana

The small-scale gold and diamonds mining industry is of great importance to Ghana. Since its regularization in 1989 the sector has produced and sold over 1.5 million troy ounces of gold and 8.0 million carats of diamonds. During the same period the sector also provided direct employment to over 100,000 people and improved the socioeconomic life of many individuals and communities. However, these were largely achieved at a cost to the environment in areas where mining is carried out and there is the need to develop the industry in a sustainable manner. This paper looks at the developments in the small-scale gold and diamonds mining industry in Ghana and proposes some strategies on how the concepts of sustainable development could be applied to the industry.     

Land pressure and customary tenure: Cropland allocations in Swaziland

This paper examines the effects of growing land pressure on the distribution and quality of cropland allocations on customary tenured land (CTL) in Swaziland. Within the wider Sub‐Saharan context, the reform of indigenous tenure systems is now generally seen as a process of adaptation rather than replacement. The legal recognition of (existing and future) user rights is considered a practical way forward. This essentially rights‐based approach may divert attention from technical inadequacies indigenous systems may have, particularly under conditions of increasing land pressure. The case of CTL substantiates such shortcomings. CTL has seen a marked growth in population and land allocations since Independence. This had led to concerns on the land distribution efficiency in view of the improved agricultural production required to sustain the increasing number of rural households. By analysing historical changes in the number, size and quality of cropland allocations in selected rural communities, this paper demonstrates the occurrence of a high degree of inconsistency in cropland distribution at the community level, as well as inefficient land distribution at higher levels of scale. These shortcomings threaten the sustainability of the local agricultural production systems, and will need to be addressed in any meaningful reform process.     

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.     

The influence of geomorphology on the role of women at artisanal and small‐scale mine sites

The geologic and geomorphic expressions of a mineral deposit determine its location, size, and accessibility, characteristics which in turn greatly influence the success of artisans mining the deposit. Despite this critical information, which can be garnered through studying the surficial physical expression of a deposit, the geologic and geomorphic sciences have been largely overlooked in artisanal mining‐related research. This study demonstrates that a correlation exists between the roles of female miners at artisanal diamond and gold mining sites in western and central Africa and the physical expression of the deposits. Typically, women perform ore processing and ancillary roles at mine sites. On occasion, however, women participate in the extraction process itself. Women were found to participate in the extraction of ore only when a deposit had a thin overburden layer, thus rendering the mineralized ore more accessible. When deposits required a significant degree of manual labour to access the ore due to thick overburden layers, women were typically relegated to other roles. The identification of this link encourages the establishment of an alternative research avenue in which the physical and social sciences merge to better inform policymakers, so that the most appropriate artisanal mining assistance programs can be developed and implemented.     

The decline of a regional fishing nation: The case of Ghana and West Africa

Inadequate trade policies, globalization of the fishing industry, dominance of Europe's distant water fleets, declarations of exclusive economic zones (EEZs) by neighbouring West African nations, overfishing and a lack of good governance contributed to the decline of Ghana as a regional fishing nation, a position it had held since the 18^th century. The prohibitive cost of access arrangements limited Ghana's access to distant waters. The country's marine environments have been impacted by overexploitation of stocks and the use of destructive methods. Subsistence fishing has become the sole means of survival for many fishers. The decline of the fishing sector has limited the country's ability to meet domestic demand and threatened the economic and food security of many Ghanaians. The article traces the early history of Ghana's fisheries, their gradual decline during the last four decades, and outlines recommendations for policy changes to address the situation and steer the nation on a course towards sustainable fisheries.     

Community-company relations in gold mining in Ghana

As a result of Structural Adjustment Programme from the 1980s, many developing countries have experienced an increase in resource extraction activities by international and transnational corporations. The work reported here examines the perceived impacts of gold mining at the community level in the Wassa West District of Ghana, Africa and discusses those perceived impacts in the context of globalization processes and growing multinational corporate interest in Corporate Social Responsibility (CSR). Interview data compared community members' perceptions with those of company representatives in three communities. The results indicate that communities held companies responsible for a series of economic, social, and environmental changes. While recognizing some of the benefits brought by the mines, communities felt that the companies did not live up to their responsibility to support local development. Companies responded by denying, dismissing concerns, or shifting blame. Findings from this work show that lack of engagement and action by government agencies at all levels resulted in companies acting in a surrogate governmental capacity. In such situations, managing expectations is key to community-company relations.     

Challenges to measuring,monitoring, and addressing the cumulative impacts of artisanal and small-scale gold mining in Ecuador

Portovelo-Zaruma, Ecuador is an artisanal and small-scale gold mining (ASGM) region with approximately 6000 gold miners working with mercury and cyanide. Although artisanal gold mining (AGM) has taken place in Portovelo-Zaruma for centuries, highly mechanized small-scale gold mining (SGM) processing plants capable of increased throughput began being built in the 1990s. While there are benefits associated with ASGM, there are also negative impacts experienced by the miners and the surrounding communities. To take advantage of ASGM as a poverty-alleviating mechanism while reducing unwanted externalities, the cumulative impacts must be understood. Numerous challenges to measuring, monitoring, and addressing ASGM impacts result from the complexity of the impacts themselves, the nature of the gold mining as an informal industry, and the shortfalls in the current regulatory framework. These are discussed in the context of ongoing, unresolved issues including efforts to address trans-boundary water pollution, management of mining waste, and conflicts regarding priorities, ambiguities, and enforcement of existing regulations and policies. Internationally, interventions to address both AGM and SGM impacts have typically focused almost exclusively on technological changes through the elimination of mercury use. Our analysis suggests that to better address ASGM and their cumulative impacts in Ecuador, it will be beneficial to revisit the legal definitions of AGM and SGM. Additionally, promotion of information-based strategies including educational outreach programs and cross-scale and cross-level mitigation methods may also be beneficial. The success of these strategies to reduce ASGM-related cumulative impacts will depend on sufficient funding and the commitment of stakeholders.     

Distribution and mobility of mercury in soils of a gold mining region, Cuyuni river basin, Venezuela

An extensive and remote gold mining region located in the East of Venezuela has been studied with the aim of assessing the distribution and mobility of mercury in soil and the level of Hg pollution at artisanal gold mining sites. To do so, soils and pond sediments were sampled at sites not subject to anthropological influence, as well as in areas affected by gold mining activities. Total Hg in regionally distributed soils ranged between 0.02 mg kg(-1) and 0.40 mg kg(-1), with a median value of 0.11 mg kg(-1), which is slightly higher than soil Hg worldwide, possibly indicating long-term atmospheric input or more recent local atmospheric input, in addition to minor lithogenic sources. A reference Hg concentration of 0.33 mg kg(-1) is proposed for the detection of mining affected soils in this region. Critical total Hg concentrations were found in the surrounding soils of pollutant sources, such as milling-amalgamation sites, where soil Hg contents ranged from 0.16 mg kg(-1) to 542 mg kg(-1) with an average of 26.89 mg kg(-1), which also showed high levels of elemental Hg, but quite low soluble+exchangeable Hg fraction (0.02-4.90 mg kg(-1)), suggesting low Hg soil mobility and bioavailability, as confirmed by soil column leaching tests. The vertical distribution of Hg through the soil profiles, as well as variations in soil Hg contents with distance from the pollution source, and Hg in pond mining sediments were also analysed.     

The production of uneven access to land and water in peri-urban spaces: de facto privatisation in greater Accra

ABSTRACT

Peri-urban spaces are frontiers of privatisation where inequalities in access to land and water evolve. In this article, we analyse a particular mode of land and water privatisation in peri-urban spaces of the Greater Accra Metropolitan Area (GAMA), Ghana. We illustrate that in the domain of land, traditional authorities tend to act as private owners rather than custodians of customary land, while in the domain of water, multiple private water providers have emerged next to the official water utility. A combined reading and analysis of these processes as forms of de facto privatisation contributes to understanding the similarities in the control over and access to land and water in peri-urban spaces. We show that in the de facto privatised control context of the peri-urban GAMA, access gained to land and water has to be actively maintained. Both gaining and maintaining access exhibit socio-economic inequalities and this is particularly so in the case of maintaining access. The article is a call for a better connection between land and water studies in order to deepen understanding of the processes at play in peri-urban spaces.     

Promoting sustainable development in Ghanaian small-scale gold mining operations

This paper provides an overview of the initiatives that have been undertaken by the Ghanaian government to promote more sustainable development in resident small-scale gold mining operations, and recommends a series of strategies for perpetuating a pattern of continued improvement. Since the passing of the Small Scale Gold Mining Law (PNDCL 218) in 1989, which effectively legalized small-scale gold mining as an industry in Ghana, the government, in particular, the Minerals Commission, has made a concerted effort to regularize operations, and to provide technical and financial support to miners. Under the auspices of the German non-profit Gesellschaft Technishe Zusannebarbeit (GTZ), a small-scale gold mining registration system has been implemented, district support centres for small miners have been constructed and the Precious Minerals Marketing Corporation (PMMC) has been created, which purchases products from small-scale miners at near-market prices. Careful analysis reveals, however, that these efforts have collectively only had a marginal impact, and that the industry is still in dire need of aid. Specifically, to perpetuate further a pattern of improved sustainability--improvements in both the socio-economic and environmental arenas--additional technical and financial support must be provided, and sound environmental management practices implemented. The Minerals Commission has been burdened with these tasks and challenges but because it is largely understaffed, it is highly unlikely that it will be able to facilitate sufficient improvement in the sector on its own. Nevertheless, marked improvements can be achieved if: (1) avenues for technological dissemination are created and improved; (2) research partnerships are forged with local universities; (3) experienced consultation is hired when needed; and (4) other governmental agencies, namely the Mines Department, Environmental Protection Agency (EPA) and Geological Survey, provide the Minerals Commission assistance with prospecting, monitoring, regulation and environmental auditing activities.     

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.     

Ghana: revival of the mineral sector

After almost two decades of decline, Ghana's mineral sector has rebounded significantly and is currently the main foreign exchange earner. Gold mining is the principal activity within the sector and accounted for 41 percent of total export earnings in 1996. This paper presents an overview of Ghana's mineral industry and covers mineral resources, production and reserves; mining investments; the role of mining in the economy; and the structure of the industry. An overview of the national mineral policy is also presented to depict the current regulatory and fiscal environment in which the industry operates. The spectacular reversal in mineral sector performance can be attributed to the adoption of World Bank recommendations in a new national mineral policy, the 1986 Minerals and Mining Law, aimed at revitalizing the sector.     

Where artisanal mines and forest meet: Socio‐economic and environmental impacts in the Congo Basin

While mineral exploitation can provide significant income and employment, it may negatively impact the environment, being ultimately detrimental to livelihoods in the long term. The consequences of mining are of concern in high value forest ecosystems such as the Sangha Tri‐National (TNS) landscape covering Cameroon, the Central African Republic and Republic of the Congo. This paper captures the socio‐economic and environmental impacts of small‐scale mining in the TNS. Using structured questionnaires, consultations and observation, diamonds and gold were found to contribute directly to the livelihoods of at least 5% of the landscape's population. Although up to eight income‐generating strategies are used, mining contributes on average to 65% of total income and is used mainly to meet basic needs. A gold miner's average income is US$ 3.10 a day, and a diamond miner earns US$ 3.08, making them slightly wealthier than an average Cameroonian and three times wealthier than an average non‐miner in the TNS. Environmental impacts were temporary, low impact and of limited scale. However, with mining likely to increase in the near future, an increasing population and miners' low environmental awareness, measures are needed to ensure and reinforce the positive impact of artisanal mining on livelihoods and maintain its low environmental footprint in the TNS landscape.