By Kgothatso Nhlengetwa
Artisanal and Small-Scale Mining (ASM) is not a new phenomenon in Africa. In fact, it is a historic activity that simply is only recently being brought to the forefront as a potential contributor to the economies of African countries. There have been many developments over the past decades, but the past five years have proved to be a growth spurt for the ASM sector. Various countries in Africa have developed regulatory frameworks for the sector and have even developed government-led initiatives to support the sun-sector in different ways.
Nhlengetwa in the field with artisanal miners. All images supplied by Kgothatso Nhlengetwa
The perspective of ASM as a marginal activity which pollutes the environment and is problematic is slowly changing. The narrative is moving towards developing a sector with economic potential that provides employment opportunities for millions of people across the continent. Despite its challenges, ASM provides an opportunity for governments to provide innovative solutions to an industry that inputs millions of dollars into the gold, gemstone and critical minerals industries.
Given the huge role ASM plays in the mining industry, it is pertinent to know what the developments in the sector are currently, what some countries are doing right and where the opportunities are for growth. Formalisation of the sector is the key and many countries are moving in that direction with different approaches.
Zimbabwe
In Zimbabwe, at least 2 million people are active in the artisanal mining sector in the country and in 2022 artisanal mining contributed an estimated USD1.2-billion to the country’s economy. Minerals produced from artisanal mining include gold, diamonds, gemstones and critical minerals such as chrome and tantalite.
In what can be perceived to be a move towards formalisation, the Zimbabwean government introduced the Harare Guidelines on Small-Scale Mining in 1993. The guidelines were a collaboration between the United Nations Department for Economic and Social Development and national authorities. Furthermore, in 2013 the government announced a plan to decriminalise Chikorokoza (illegal miners) and to make Fidelity Printers and Refiners (FRP) the sole buyer of artisanally mined gold.
Despite the above developments, ASM in Zimbabwe is, however to date, not well regulated, and the sector is largely informal. In fact, the Zimbabwe Mines and Minerals Act of 1961 criminalises ASM, and the sector is not recognised in mainstream policy. The Ministry of Mines and Mining Development charges high fees for registration, which are considered to exclude the ASM miners. The Mines and Minerals Act does not differentiate between ASM and large-scale mining activities. The lack of regulation has led to rampant illegal digging, smuggling and illicit trade. This has proved to impede the formalisation process despite the calls for regulation of ASM in a country where it is so widespread.
South Africa
In South Africa, ASM is quite unique because there are two different types of illegal mining.
The first type of illegal mining known locally as Zama-Zama mining and is infamous for its invasion of disused, ownerless or derelict gold mines. This type of mining is syndicate based and includes illegal migrant labourers from Lesotho and Mozambique. There is an indication that these workers are typically trafficked from South Africa’s neighbouring countries.
It is estimated that R6-billion is lost each year to illegal mining in South Africa and that the illegal gold is brought back into the legal gold stream at some point high up in the syndicate system. This type of mining is criminalised in South Africa and is met with an iron fist as the current operation “Vala Mgodi” is currently trying to curb the scourge of illegal mining.
Artisanal mining, which is more community based or traditionally based, is the alternative to the violent Zama-Zama sub-sector. This form of mining includes the mining of various commodities including gold, chrome, diamonds and industrial minerals. This type of mining has been recognised by the South African government through its implementation of the Artisanal and Small-Scale Mining Policy of 2022. It calls for the formalisation of artisanal mining through the formation of national artisanal miners’ organisations and cooperatives.
Despite the progress with the policy, there have been no further developments in formalising the sector through drafting and implementing regulation. This is despite the artisanal miners in the country formalising themselves and calling for ‘artisanal mining zones’ to be delineated and given to legitimate artisanal miners to mine.
Democratic Republic of Congo (DRC)
The DRC is known for widespread artisanal mining which is estimated to employ around 2 million people. Minerals produced from the sector include gold, diamonds, coltan and cobalt. A 2020 study by IPIS has mapped about 2 951 mines, employing 427 469 people which is quite significant.
With the government recognising the importance of the sector in the country, a new regulatory framework that included artisanal mining was introduced in the Mining Code of 2014. The regulatory framework states that artisanal miners must mine within an artisanal mining zone and that there are concessions that are specifically for artisanal and small scale mining. This marks progress in the formalisation process as this articulates the provision specifically for ASM.
A progressive scheme to increase competitiveness was recently set up in the province of Lualaba where a government-backed depot tests and buys cobalt ore from the miners at a fixed price. This innovative solution provides access to market and a way for the country to benefit from the high productivity in cobalt mining by artisanal miners in the country.
Although this is a success story, there is still a long way to go with regard to formalisation in the country with many miners still working in dire conditions and vast instances of alleged human rights violations and child labour.
To ensure sustainability of the sector innovative solutions incorporating all stakeholders are crucial but must also include a bottom-up understanding of what is needed on the ground.
Tanzania
Tanzania is also a country which has recognised the potential of ASM and is providing multiple support mechanisms for the sector. It is estimated that between 1 –2 million people are active in the Tanzanian ASM sector. The minerals that are mined include gold and gemstones. There is provision for ASM in the mining law in Tanzania which allows for the legal ASM activities.
Tanzania is promoting ASM by empowering the organisations that have formalised themselves including the Tanzanian Women’s Mining Association (TAWOMA) and Tanzanian Women in Mining and Minerals Industry (TWiMMI). The government body that supports the empowerment of these organisations as well as actively plays a supportive role in the ASM industry is the State Mining Corperation (STAMICO).
STAMICO’s mandate with respect to ASM is to promote, facilitate and support its formalisation. Some of the STAMICO activities in this regard include providing drilling at a discounted rate for ASM, providing financial and business workshops to ASM participants as well as promoting health and safety on the ground at various sites. STAMICO was also an active participant in promoting a value chain in the artisanal and small-scale gold mining industry.
There are more projects in the country run by other organisations that include, for example, upskilling women artisanal gemstone miners. This involves training them on how to cut, polish and evaluate gemstones and providing access to international markets. Tanzania has showcased innovative ways the government as well as other organisations can aid in the formalisation process of ASM.
The rate and range of formalisation differs from country to country. What speaks to the progression of formalisation is not only the willingness of government but also the collaboration of government with other organisations and miners. This collaboration is useful in creating the groundwork for drafting applicable and implementable regulations, which are critical to formalisation. To ensure sustainability of the sector innovative solutions incorporating all stakeholders are crucial but must also include a bottom-up understanding of what is needed on the ground. It is possible to formalise the sector, but we must be willing to do the groundwork and work together collaboratively and collectively. African countries must be willing to learn from one other and acknowledge shortfalls and successes and apply regional solutions where possible. A sustainable ASM sector is a possibility, however, it is up to us in the sector to make sure that we get it right by playing our role in the whole process of formalisation.
 Kgothatso Nhlengetwa, founding director of Imbokodo Mining Services (Pty) Ltd, serving as an ASM consultant, researcher and advisor.
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About Kgothatso Nhlengetwa:
Nhlengetwa obtained a BSc (Hons) in geology from the University of the Witwatersrand in South Africa. She started her career at AngloGold Ashanti in mining geology before leaving to study social entrepreneurship at the Gordon Institute of Business Science. Her academic research work focused on a comparative study of Artisanal and Small Scale Mining (ASM) in South Africa. Her multidisciplinary research included the key aspects of geology, livelihood, mining value chain and policy analysis. She worked as an associate lecturer in the School of Geosciences at the University of the Witwatersrand where she taught on a range of topics including orebody modelling, ASM and social licence to mine. She is a Canon Collins Scholarship recipient and winner of a masters’ fellowship award from the Women in Science Awards by the Department of Science and Technology (2014). Her work has been published on various platforms including scientific journals, online publications and newspapers. She has spoken on multiple platforms on the topic of ASM, both on TV and on radio. She is the founding director of Imbokodo Mining Services (Pty) Ltd, serving as an ASM consultant, researcher and advisor. She serves as a special advisor to the National Association of Artisanal Miners and is a founding member of the Black Geoscientists Forum. She is a mentor, motivational speaker and member of Women in Mining South Africa. |