By Dr. Kariuki Muigua, PhD (Leading Environmental Law Scholar, Natural Resources Lawyer and Dispute Resolution Expert in Kenya)*
Africa hosts 30% of the earth’s mineral reserves, including 40% of gold, 60% of cobalt, and 70% of platinum deposits, and produces about 30% of the world’s gold, 70% of the world’s platinum, 28% of the world’s palladium, and 16% of the world’s bauxite. In addition, Africa also produces (yearly, in thousand metric tons) 205,056 of hard coal, 67,308 of nickel-bearing ores, and 29,174 of iron bearing ores, as well as 595,507 kg of gold-bearing ores. The extractive or mining industries generally have long been touted as key to anchor ‘development’ or ‘economic growth’ to alleviate poverty in developing countries.
But despite this, African countries continue to exhibit low levels of development and poor standards of living. This has been attributed to various factors including exploitative multinational corporations, lack of expertise and corruption, and African countries negotiating unfavourable mining development agreements, with the result that the Continent has received inadequate returns for its mineral wealth. At the continental level, the Africa Mining Vision is expected to address most of these challenges if not all. But even with this Vision document, most of the African countries still struggle with making the mineral resources work for them, in uplifting the lives of their people.
Kenya is no exception as it has a number of mineral deposits albeit in smaller amounts, which, unfortunately, have not contributed much to the country’s GDP as would be expected. The communities are also yet to boast of any significant benefits from the mining activities going on within their regions. GDP from Mining in Kenya is estimated to have increased from 12313 KES Million in the third quarter of 2018 to 26757 KES Million in the first quarter of 2021. This is a significant growth as GDP from Mining in Kenya averaged 8963.05 KES Million from 2009 until 2018. According to the Mining and Minerals Policy, Sessional Paper No. 7 of 2016, as at 2016, the sector was contributing 0.8 percent to gross domestic product (GDP) per annum. The contribution to GDP was expected to increase to three (3) percent by 2017 and ten (10) percent by 2030 according to the Medium Term Plan (MTP) II (2013-2017).
While these statistics paint a hopeful picture with the figures increasing over the last ten years, there is still a lot of room for not only growth in these figures but also positive contribution of the mining sector to the lives of the ordinary citizens especially those to be found within the localities where such mining takes place. Indeed, the discovery of such minerals as the titanium deposits in the Coastal region gives hope to the expectation of a brighter future for the sector and country at large. Reserves for Titanium and Niobium, both found in the Coast region, are projected to be worth Sh9 trillion, and Sh3.8 trillion for the estimated of 750 million barrels, according to Tullow Oil’s 2017 projections.
The Mining Minister has already made Regulations to ensure that the mining activities do not only go on smoothly but also that they benefit the local communities even as they contribute to the national development agenda. These Regulations include: Mining (Dealings in Minerals) Regulations, 2017; Mining (Licence and Permit) Regulations, 2017; Mining (Work Programmes and Exploration Reports) Guidelines, 2017; Mining (State Participation) Regulations, 20I7; Mining (Use of Local Goods and Services) Regulations, 2017; Mining (Employment and Training) Regulations, 2017; and Mining (Use of Assets) Regulations, 2017. These Regulations are meant to streamline the mining sector in the country by ensuring that the main provisions in the Mining Act 2016 are fully and efficiently implemented.
Notably, some of these Regulations such as the Mining (Use of Local Goods and Services) Regulations, 2017; Mining (Employment and Training) Regulations, 2017 are meant to directly empower the local communities by promoting job creation and market for locally produced goods. However, while these Regulations mean well for the local communities and local industries, a lot still needs to be done to ensure that the environment favours the implementation of such Regulations. For instance, the Regulations on use of local goods and services require that the holder of a mining licence, its contractors and sub-contractors, to the maximum extent possible, give first priority to materials and goods made in Kenya; and services provided by citizens of Kenya or Kenya entities, provided that such goods and services are equal in quality, quantity and price to, or better than, goods and services obtainable outside of Kenya. This proviso defeats the purpose of these Regulations because many factors of production make locally produced goods more expensive when compared to imported ones.
Thus, as long as investors can prove that they can source such goods and/or services at more competitive prices or those with better quality, they will easily bypass the compliance requirements of these Regulations. The manufacturing sector and other factors affecting the local production of goods and services may thus need to be fixed before these Regulations can effectively be implemented. Similarly, the Regulations on employment and Training assume that locals have some basic knowledge that can be built on to achieve the level of expertise required in the execution of the corresponding duties within the industry. Exclusive reliance on the foreigners to create expertise through technology transfer may not yield the desired results. There is need for the government to do much more through the local institutions of higher learning through sponsoring courses to build capacity and even having the students/professionals taking such courses leaving the country for specialized training and to gain experience. Such candidates would then be ripe to learn more through any exchange and technology transfer programmes set up under the Mining (Employment and Training) Regulations, 2017.
Further, the lack of proper guidelines or failure to implement any existing regulations and guidelines can lead to conflicts as has been witnessed in other African countries such as the Democratic Republic of Congo, where the locals feel sidelined as far as mining benefits sharing is concerned. For instance, there have been queries on how to manage expectations of the local people living within the mining areas in order to avert possible conflicts in future. There is a need for ensuring that the constitutional principles of public participation, inclusive decision making, environmental protection and conservation, respect for human rights and respect for occupational health and safety are taken into account when engaging investors in the mining sector in order to avoid any potential conflicts as well as ensuring that these natural resources benefit communities as well.
These are just few examples of the many challenges that are likely to arise in the implementation of these Regulations and which therefore may need to be addressed before the mining sector can benefit from the well-meaning Regulations as enacted by the Cabinet Secretary. Indeed, unless capacity is built across all stages of mineral extraction right from minerals agreements’ negotiations all the way to the actual extraction of these resources, then Africa, including Kenya, will continue to lag behind in development despite its rich deposits in minerals.
*This is article is an extract from an article by Dr. Kariuki Muigua, PhD Muigua, K., “Regulating Mining: A New Vision for Kenya? http://kmco.co.ke/wp-content/uploads/ 2019/07/Regulating-Mining-A-New-Vision-Kariuki-Muigua-12th-July-2019.pdf. Dr. Kariuki Muigua is Kenya’s foremost Environmental Law and Natural Resources Lawyer and Scholar, Sustainable Development Advocate and Conflict Management Expert. Dr. Kariuki Muigua is a Senior Lecturer of Environmental Law and Dispute resolution at the University of Nairobi School of Law and The Center for Advanced Studies in Environmental Law and Policy (CASELAP). He has published numerous books and articles on Environmental Law, Environmental Justice Conflict Management, Alternative Dispute Resolution and Sustainable Development. Dr. Muigua is also a Chartered Arbitrator, an Accredited Mediator, the Africa Trustee of the Chartered Institute of Arbitrators and the Managing Partner of Kariuki Muigua & Co. Advocates. Dr. Muigua is recognized as one of the leading lawyers and dispute resolution experts by the Chambers Global Guide 2021 and nominated as ADR Practitioner of the Year (Nairobi Legal Awards) 2021.
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