There is neither a widely accepted definition of small-scale mining nor any hard and fast rules for differentiating between small-scale and artisanal mining. In many countries the two are grouped together under one or other title, while other countries identify them according to their legal position. Whatever the definition, the characteristics of both activities are often very similar and include:
• low-level or no mechanization;
• labour intensive;
• low safety standards;
• poorly trained workforce;
• lack of technical expertise;
• poor utilization of the resource;
• seasonal activity;
• high level of environmental impact; and
• high level of social disruption.
To avoid confusion, the use of the term “small-scale mining” in these Guidelines will include the poorly regulated and non-regulated sector of the mining industry. The regulation of small-scale mining is a complex problem and requires a coordinated approach since it encompasses economic, social and cultural issues, as well as environmental concerns. It has caused widespread environmental damage in many countries and is often associated with serious health problems for the miners and associated community.
Small-scale mining often provides economic improvement for people who usually live in a subsistence economy. Any solutions must take into account the health and environmental impacts of poverty, the needs of small-scale miners and their extended families, the ability of the regulating authority to monitor and enforce legislation and the requirements of the large mining companies that often compete with small-scale miners for minerals and access to land. The special needs of women, who often represent up to 50 per cent of the small-scale mining workforce, and child labour should also be taken into consideration.
Environmental problems caused by small-scale mining include mercury pollution, heavy metal contamination, deforestation, erosion of fertile soils, degradation of river banks, digging of holes and trenches that endanger wildlife, etc. Major health risks to small-scale miners include: exposure to dust, exposure to mercury and other chemicals, effects of noise, effects of poor ventilation and physical injury due to inadequate working spaces and inappropriate equipment. The associated community health is also at risk from poor sanitation facilities, lack of clean water, malaria, cholera, typhoid, dysentery, tuberculosis, bilharzias, sexually transmitted diseases (including AIDS), malnutrition and substance abuse.
In order to regulate small-scale mining effectively authorities need to fulfil both a regulatory and a training and assistance role. In a recent report on the “Design and Pilot Implementation of a Model Scheme of Assistance to Small-Scale Miners” produced by Wardell Armstrong (Department for International Development, United Kingdom, KAR Project No. R7181) the authors identified a number of model policies and possible actions to assist in the development of a sustainable and productive small-scale mining sector.
These are:
• Establish two separate bodies to oversee the small-scale mining sector: a regulatory unit and a technical services unit.
• Provide both bodies with adequate budgets and qualified personnel to ensure effective regulation and monitoring of activities of the sector.
• Provide legislation and guidance for the small-scale mining sector that is concise, transparent and relevant.
• Legalize small-scale mining operations, set basic standards, encourage adoption of “best practice” and make clear the obligations of all stakeholders.
• Implement a system of best practice for environmental and health and safety protection.
• Minimize the use of harmful substances and unsafe practices by small-scale miners.
• Minimize the environmental degradation caused by small-scale miners.
• Mitigate the historical degradation caused by small-scale mining activities.
• Maximize the effective, efficient and environmentally responsible exploitation of the mineral resources of the country to the benefit of all.
• Provide a mineral exploitation framework within which all types of mining enterprises are catered for and their interests protected.
• Declare the percentage of the country’s mineral output that shall be sourced from small-scale mining.
• Provide technical assistance and training schemes that are long-term and sustainable and aim to be self-financing.
• Establish sub-national training centres based around mining areas.
• Implement a non-discriminatory approach to all small-scale miners regardless of gender, educational capacities, physical conditions, etc.
• Encourage mainstream mining industry to aid in training programmes.
• Provide long-term and sustainable credit schemes that ensure good repayment results based on firm business terms.
• Ensure that miners get a fair price for the commodities that they produce and eliminate or minimize illegal (black market) trading activities.
• Encourage as much downstream processing of commodities as possible within the country.
References to these model policies and possible actions can be found in Appendix 3(i). In most countries the small-scale mining sector requires radical reform if it is to be turned into an industry that provides a net benefit to all concerned. However, any reform should focus on the alleviation of poverty by providing financial betterment and empowerment to small-scale miners. Such obvious and visible improvements will then act as a catalyst to other miners who will also wish to improve their financial position. Small-scale miners must also act within some sort of regulatory framework and with due respect for their health and safety and the preservation of the environment. The Wardell Armstrong report identifies the issues that are fundamental to improving the general management, efficiency, safety and environmental performance of the small-scale mining sector in developing countries as:
• defining a model government institution, unit or department to administer and manage the small-scale mining sector;
• establishing an “enabling” mechanism within an appropriate legislative framework and licencing scheme;
• defining relevant and consistent health and safety standards and practices;
• establishing appropriate and realistic environmental protection;
• delineating or defining potential mineral bearing areas suitable for small-scale mining exploitation;
• establishing self-sustaining technical assistance and training schemes;
• providing a viable and efficient financing scheme;
• providing a simple and effective system for purchasing mine produce at fair and equitable rates.
Governments also have a central role to play in the transfer of new technology and training of small-scale miners in acceptable environmental management practices.