Spoken but not Heard: The promise of the precautionary principle for natural resource development

Too often, mining developments provide short-term jobs and taxes, and long-term environmental and community degradation. The 'precautionary principle', as practised by the European Union and increasingly by other nations, may provide an opportunity for local communities and others who bear the brunt of mining to employ a cautionary approach to mine permitting. Using the case of the Zortman-Landusky gold mine in Montana, the article illustrates how the precautionary principle might have precluded the tremendous losses suffered by the Fort Belknap residents who live near the now abandoned mine. The Native Americans and other protestors against the mine were correct in their worries about mine drainage affecting their watercourses and the precautionary principle might have limited mine development. The case also illustrates that economic data on mining companies need to go well beyond simple reclamation bond capability in order to avoid bankruptcy resulting in the neighbours and the government having to pay for clean-up.     

Spoken but not Heard: the promise of the precautionary principle for natural resource development

Too often, mining developments provide short-term jobs and taxes, and long-term environmental and community degradation. The 'precautionary principle', as practised by the European Union and increasingly by other nations, may provide an opportunity for local communities and others who bear the brunt of mining to employ a cautionary approach to mine permitting. Using the case of the Zortman-Landusky gold mine in Montana, the article illustrates how the precautionary principle might have precluded the tremendous losses suffered by the Fort Belknap residents who live near the now abandoned mine. The Native Americans and other protestors against the mine were correct in their worries about mine drainage affecting their watercourses and the precautionary principle might have limited mine development. The case also illustrates that economic data on mining companies need to go well beyond simple reclamation bond capability in order to avoid bankruptcy resulting in the neighbours and the government having to pay for clean-up.     

Evaluating a small deposit next to an economically viable gold mine in West Africa from the points of view of the mining company,the government and the local community

This paper addresses the question of evaluating how much the different stakeholders stand to gain from a mining project. By carefully analysing the breakdown of the cash-flows generated, we were able to estimate the amounts received by the local community and by the national community (outside the mining area), the taxes and royalties received by the government and the profits made by the mining company. A real options framework was used to take account of the inherent uncertainty on the commodity price and the reserves, and the operating flexibility (that is, the possibility for the company to stop mining if the commodity price drops and/or the reserves prove to be lower than that had been envisaged). A synthetic case-study of a gold mine in West Africa was used to illustrate how this procedure could be applied in practice. By using the real option framework we were able to envisage scenarios for developing an extension to a deposit as a function of future values of the commodity price. The procedure proposed should provide governments and NGOs with more objective data for making policy decisions.     

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.     

Local voices on renewable energy projects: the performative role of the regulatory process for major offshore infrastructure in England and Wales

There is currently a considerable emphasis on delivering major renewable energy infrastructure projects. Such projects will have impacts on local communities; some impacts may be perceived as positive but others will be viewed more negatively. Any just regulatory process for considering and permitting such infrastructure will need to heed the concerns that local communities voice. But what counts as a local voice? In this paper it is argued that the regulatory process plays a performative role, constructing what counts as a local voice. Furthermore, this has consequences for how regulatory deliberations proceed and the outcomes of regulatory processes. The empirical basis for this argument is a study of major offshore renewable energy infrastructure in England and Wales and the way that it is regulated through a specific regime – the Nationally Significant Infrastructure Projects (NSIPs) regime established by the Planning Act 2008. Through a detailed study of eight projects that have passed through the regime, the analysis unfolds the way that the voices of local residents, local businesses, local NGOs and local authorities are constructed in the key boundary object of the Examining Authority’s report; it then draws out the implications for the mitigation measures that are negotiated. The research suggests that what counts as a local voice is constrained by how the performative role of the NSIPs regulatory regime differentiates between interests and suggests that new ways of giving voice to local people are required.     

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.     

National benefits,local costs? Local residents' views on environmental and social effects of large‐scale mining in Chingola,Zambia

This study examined the environmental and social effects of large‐scale mining in Chingola, Zambia. Data was collected through semi‐structured interviews with 164 residents living close to Zambia's largest open pit mine, key informants and desk analysis of secondary data. Quantitative data was analysed using the chi‐square test, one sample T‐test and two sample Z‐proportions test, while qualitative data was analysed using content analysis. Results show that the residents reported being most affected by sulphur dioxide air emissions and noise pollution due to the proximity of the copper smelter and heavy moving machinery to their residences. The residents received domestic water containing rust and copper ore particles from the water utility company which draws raw water from the mine. Although the mine was a source of employment for locals, over 4,000 jobs (representing a 33% decrease) have been lost over a period of 4 years, negatively affecting the local economy. Mine management attributed the job losses to high production costs and mechanization of mining processes. The residents perceived the job losses to have led to crime, alcohol abuse and prostitution among youths as well as a general increase in poverty levels. Analysis of air emissions data from the mine found elevated levels of dust, cadmium, copper and lead pollutants. Key informants from Nchanga Mine reported implementing bioremediation to reduce soil contamination by the heavy metals and recycling SO₂ to produce sulphuric acid. The study recommends an increase in social corporate responsibility from the mine management to ensure residents derive more substantive benefits from their proximity to the mine.     

Mining with communities

To be considered as sustainable, a mining community needs to adhere to the principles of ecological sustainability, economic vitality and social equity. These principles apply over a long time span, covering both the life of the mine and post-mining closure. The legacy left by a mine to the community after its closure is emerging as a significant aspect of its planning. Progress towards sustainability is made when value is added to a community with respect to these principles by the mining operation during its life cycle. This article presents a series of cases to demonstrate the diverse potential challenges to achieving a sustainable mining community. These case studies of both new and old mining communities are drawn mainly from Canada and from locations abroad where Canadian companies are now building mines. The article concludes by considering various approaches that can foster sustainable mining communities and the role of community consultation and capacity building.     

Perspectives on community health issues and the mining boom-bust cycle

The health of mining communities is becoming a priority for the mining industry, governments, and researchers. This paper describes an exploratory qualitative study into community health issues and mining activities (associated with the mining boom-bust cycle) from the perspective of health and social service providers in the northern Canadian coal mining community of Tumbler Ridge, British Columbia. Health and social service providers report on increases in pregnancies, sexually transmitted infections, and mine related injuries during booming mine activities. During bust times, mental health issues such as depression and anxiety were reported. Overarching community health issues prominent during both boom and bust periods include burdens to health and social services, family stress, violence towards women, and addiction issues. This paper concludes by providing recommendations as to how the industry can enhance community health made by this important stakeholder group.     

Designing tools to track health and well-being in mining regions of India

The objective of this article is to illustrate the use of a framework to design a set of tools to assess progress towards improved well-being in a mining region. The framework uses an ecosystem approach to assess human well-being and is sensitive to the needs, concerns, and interests of at least the major stakeholders: government, company and community. The framework seeks to be useful to stakeholders and to be of policy relevance. The article presents the proposed framework with illustrations from a case study in Goa, India. Mining in Goa has had both positive and negative impacts on the well-being of local people. These impacts vary depending on the age of mining. In areas where mining is well established and active, the economic impacts are more positive. The social and environmental impacts are more negative in the regions where mining is new or is closing down. These characteristics generate their own set of issues of concern to stakeholders. Based on these issues, three types of tools to assess current well-being and progress towards improved well-being are suggested: (i) Indicators based on identified issues using the Pressure-State-Response (PSR) framework; (ii) A quality of life instrument, which can be developed either as an aggregate measure of well-being or in a more limited way to capture the satisfaction of the community with their living conditions; (iii) A regional income accounting framework to assess whether the mining region is able to continue functioning into the indefinite future without being forced into a decline through the degradation of its key natural, social, and human assets and resources. The article suggests that if these tools are used regularly, an information system will emerge that will, over time, provide markers of what mining is doing to the region and to the local communities.     

Maintaining land use agreements in Papua New Guinea Mining: ‘Business as usual’?

Most large scale resource extraction projects in Papua New Guinea (PNG) require companies to negotiate with customary landowners for access to development sites. In the discussion of process and challenges of development and operation of projects, particularly mines, the paper, basing as a case study of land use arrangements in PNG mining, has several objectives to address. First, it discusses land use arrangements in the mining industry and how they have evolved over the last few decades. Today, most of these arrangements involve pluralistic framework agreements which have been shaped by land tenure debates, civil uprisings, government initiatives and increasingly politically savvy customary landowners. This pluralistic process encourages key stakeholder involvement, particularly customary landowner participation which has been an innovative piece of sustainable mineral policy development in PNG. Second, the paper argues that ‘it is not business as usual’ for mining companies as it would generally be the case in developed and many developing countries because they are increasingly forced to be proactive in addressing landowner and community interests while managing mining projects. A brief overview of land use debates in PNG is summarised at the outset to provide background to mining and development in the country. Third, the significance of the corporate social responsibility (CSR) paradigm and its impact on business, particularly the mining industry is acknowledged intermittently in the discussion to shed light on how it is influencing development of local communities. Finally, the paper argues that the post-Bougainville period has led to a change of the old enclave model of mining development to a broad based community driven form of development around mining. However, it is difficult to predict as to how this model of mining led development in rural PNG will span out in the long run. In the meantime, genuine landowner partnerships with developers and government in the management and operation of mining projects in the country are proving to be a positive outcome for everyone despite some major challenges.     

Local Transport Problems and Possible Solutions: Comparing perceptions of residents,elected members,officers and organisations

It is generally accepted that the current growth in personal car use poses a serious threat to local communities and the environment, and that radical changes in transport policy are needed. In order for local authorities to develop acceptable sustainable transport options, it will be necessary that they have a clear view of the attitudes and perceptions of various groups in their community. This research compared the views of elected members and officers with those of residents and organisations in relation to the local transport situation and the use of car travel reduction measures. It was found that the views of elected members and officers reflect those of residents rather well. The views of local organisations, however, were different. Organisations were, in particular, more negative about policy measures that aim to reduce car use in the town centre. They also attached more importance to the viability of the local economy than the other respondents. However, they did agree with the other groups that the quality of life in the community would improve if there was less traffic. The consequences of these findings for local transport planning are discussed.     

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.     

Mining and social development: Refocusing community investment using multi-criteria decision analysis

This paper addresses the question: How can mining companies assess social investment projects so that projects create value for the company and communities in which they operate? Mining companies are still wrestling with the limits of their responsibility in relation to social development even though they accept the business case for community investment at a general level. Fully aware of the practical hazards involved in taking an active role in facilitating local development, companies increasingly avoid methods that are overly paternalistic or assume the functions of the national or local governments. Gaining senior management's commitment to long-term social projects, which are characterised by uncertainty and complexity, is made easier if projects are shown to benefit the site's strategic goals. Case study research on large global mining companies, including interviews with social investment decision makers, has assisted in developing a Social Investment Decision Analysis Tool (SIDAT), a decision model for evaluating social projects. Multi-criteria decision analysis techniques integrating business planning processes with social impact assessment have proved useful in assisting mining companies think beyond seeking reputational benefits, to how they can meet their business goals and contribute to sustainable development.     

Local Transport Problems and Possible Solutions: comparing perceptions of residents, elected members, officers and organisations

It is generally accepted that the current growth in personal car use poses a serious threat to local communities and the environment, and that radical changes in transport policy are needed. In order for local authorities to develop acceptable sustainable transport options, it will be necessary that they have a clear view of the attitudes and perceptions of various groups in their community. This research compared the views of elected members and officers with those of residents and organisations in relation to the local transport situation and the use of car travel reduction measures. It was found that the views of elected members and officers reflect those of residents rather well. The views of local organisations, however, were different. Organisations were, in particular, more negative about policy measures that aim to reduce car use in the town centre. They also attached more importance to the viability of the local economy than the other respondents. However, they did agree with the other groups that the quality of life in the community would improve if there was less traffic. The consequences of these findings for local transport planning are discussed.     

Community gardens and sustainable land use planning: A case-study of the Alex Wilson community garden

An analytical account of the history and aspirations of the Alex Wilson Community Garden in Toronto provides an ideal opportunity to examine the connections between two typically distinct enterprises: ecological restoration and community gardening. These are both important contemporary ecological movements, but are rarely combined in a single project that demonstrates the principles of sustainable land use and community planning. The garden is named in memory of Alex Wilson, a landscape designer, community activist and writer who worked and lived in Toronto, Canada. During his life, Wilson established a community garden which was eventually replaced by conventional urban development. After his death in 1993, friends and colleagues decided to honour his memory by establishing a permanent community garden in his name. The Alex Wilson Community Garden opened to the public in June 1998. The case-study explores how the garden reflects Wilson's work by linking community gardening and ecological restoration. These features are unified in Wilson's work as a means of nurturing relationships between people, communities and the landscape—relationships that are social, economic and ecological. In his book,The Culture of Nature: North American landscape from Disney to the Exxon Valdez (1991), Wilson argues that “we must build landscapes that heal and empower, that make intelligible our relations with each other and the natural world”. The Alex Wilson Community Garden illustrates in a practical manner the principles espoused by Wilson through its design, planning and functioning. The case-study reports on the innovative approach to landscape design taken in the garden, which reconstructs the natural and cultural history of southern Ontario, featuring lake-shore, agricultural and woodland sections. The garden has been planted exclusively with native plant species, and is expected to have a positive impact on local biodiversity. The planning process which led up to the design of the garden was participatory in nature, encompassing friends and colleagues of Alex Wilson, local residents and city planning officials, and made use of a number of planning tools not usually applied in an urban setting, including the granting of a conservation easement. The garden also addresses emerging issues associated with globalisation and large cities by providing food production opportunities for local residents, including a low-income housing complex and a nearby drop-in centre. Ecological monitoring and assessment of the naturalised area will be carried out by local residents.     

Off-site consequences: Life after risk management plans,Part I—public response

Many environmental and facility managers view the submittal and public availability of their facilities' risk management plans (RMPs) as discrete events and give little thought about how RMP information may influence their future relations with plant communities and other stakeholders. In fact, the public availability of RMPs will have some significant and lasting consequences that have the potential to alter RMP sources' relations with a wide variety of stakeholders. This article is the first of two installments that will explore some of the likely outcomes of the risk management program, with a particular emphasis on those consequences tied to the public availability of the RMPs themselves. This installment considers likely responses at the community level and from both national and local environmental advocacy groups. The second installment will look at likely responses to RMP information in land use planning, by the financial services sector, by regulatory agencies, and by the senior management of RMP sources' owners and operators. Although the responses of individual communities to RMPs will be governed by a number of variables, including the nature of existing relations with individual RMP sources, proximity (or perceived proximity) of residences or other public and environmental receptors to RMP sources, and stakeholders' attitudes toward chemicals and chemical use, there are certain potential responses that managers should look for in their communities. These RMP-driven responses and expectations are discussed in the first installment of this article.© 1999 John Wiley & Sons, Inc.     

Development of Soils and Communities of Plants and Arbuscular Mycorrhizal Fungi on West Virginia Surface Mines

Surface mining followed by reclamation to pasture is a major driver of land use and cover change in Appalachia. Prior research suggests that many aspects of ecosystem recovery are either slow or incomplete. We examined ecosystem structure—including soil physical and chemical properties, arbuscular mycorrhizal fungal (AMF) infectivity and community composition, and plant diversity and community composition—on a chronosequence of pasture-reclaimed surface mines and a non-mined pasture in northern West Virginia. Surface mining and reclamation dramatically altered ecosystem structure. Some aspects of ecosystem structure, including many measures of soil chemistry and infectivity of AMF, returned rapidly to levels found on the non-mined reference site. Other aspects of ecosystem structure, notably soil physical properties and AMF and plant communities, showed incomplete or no recovery over the short-to-medium term. In addition, invasive plants were prevalent on reclaimed mine sites. The results point to the need for investigation on how reclamation practices could minimize establishment of exotic invasive plant species and reduce the long-term impacts of mining on ecosystem structure and function.     

Rethinking remediation: mine reclamation,environmental justice,and relations of care

ABSTRACT

To date, research on mine remediation in North America has focused primarily on technical management; relatively less is known about the historical, political and social dimensions of remediation. Remediation, as a continuation of the mining process, alters local landscapes and economies and can be both dangerous and beneficial for surrounding communities. Because remediation projects tend to focus on the technical aspects of clean-up, such projects risk overlooking the environmental injustices associated with past development and obscuring blame or responsibility from industry and government for environmental degradation. Insofar as it is understood as cleaning up or repairing environmental damage, remediation is generally seen as “doing the good” and is less amenable to political or ethical challenges based on community concerns or values. This paper argues that greater attention needs to be paid to public participation and justice concerns associated with cleaning up mine sites. Drawing from the literatures on ecological restoration, environmental justice, reconciliation, discard studies, and matters of care, we highlight critical, yet overlooked issues in the remediation of post-mining landscapes. We argue that remediation projects present a unique opportunity for the negotiation and articulation of morals, values, histories, and physical experiences associated with mine sites and we seek to re-frame remediation as an ongoing, creative process of community healing.     

Corporate social responsibility in the mining industry: Perspectives from stakeholder groups in Argentina

Since the liberalisation of its investment regime in the 1990s, Argentina has seen a rise in foreign direct investment into large-scale exploration and exploitation of mineral resources. However, many social groups (local communities, grassroots movement and the church) often strongly oppose new mining projects on the grounds of environmental, ethical and economic concerns. In a situation marked by widespread conflict, mining companies continue operating and develop Corporate Social Responsibility (CSR) initiatives which are often promoted as a means of contributing to the sustainability and development of the nation. The paper develops a framework to highlight how the principles of stakeholder theory could be used as conceptual and practical guidance for conflict-resolution oriented CSR policies. The framework is further used to analyse two case studies of conflictive mining projects in Argentina. The paper explores how key stakeholders perceive contribution of CSR to welfare and the socio-economic development of mining communities and sustainable development of the nation. It demonstrates that institutional and social stakeholder networks often strongly oppose the idea of voluntary self-regulation implied by CSR in situations characterised by weak governance. Even though the CSR of companies could be improved in areas of corporate communication, transparency, stakeholder engagement and dialogue, it is not seen as a panacea for the social conflicts in the sector.