By Dr. Kariuki Muigua, PhD (Leading Environmental Law Scholar, Natural Resources Lawyer and Dispute Resolution Expert in Kenya)*
Introduction
The mining subsector in Kenya can be considered relatively small considering that its current contribution to the national Gross Domestic Product (GDP) is much smaller than the expected potential. However, there have been improved hopes of higher incomes from this sector especially with the discovery of several mineral deposits in various parts of the country. It is documented that Kenya has four belts of minerals – the gold green stone belt in Western Kenya, which extends to Tanzania; the Mozambique belt passing through central Kenya, the source of Kenya’s unique gemstones; the Rift belt, which has a variety of resources including soda ash, fluorspar and diatomite; and, the coastal belt, which has titanium.
These mineral resources come with great hopes of boosting the country’s development agenda. The Mining sector in Kenya is mainly governed by the Constitution of Kenya 2010, the Mining Act 2016 and numerous Regulations made under the Act to promoted proper administration and implementation of the Act. The Mining Act 2016 was enacted to give effect to Articles 60, 62b (1) (f), 66 (2), 69 and 71 of the Constitution in so far as they apply to minerals and provide for prospecting, mining, processing, refining, treatment, transport and any dealings in minerals. We briefly explore the legal framework regulating minerals and mining in Kenya.
The Provisions of the Constitution of Kenya 2010 on Mining
The Constitution of Kenya 2010 makes provisions on “natural resources” which means the physical non-human factors and components, whether renewable or non-renewable, including— rocks, minerals, fossil fuels and other sources of energy. Article 60 of the Constitution provides for the principles of land policy which include sustainable and productive management of land resources. Under Article 62 (1) (f) of the Constitution “all minerals and mineral oils as defined by law” are classified as public land and by Article 62 (3) they are vested in and are held by the national government in trust for the people of Kenya.
Further, the Constitution also outlines the obligations of the State in respect of the environment which include, inter alia, to: ensure sustainable exploitation, utilization, management and conservation of the environment and natural resources, and ensure the equitable sharing of the accruing benefits; and utilise the environment and natural resources for the benefit of the people of Kenya. The Constitution also spells out the national values and principles of governance which bind all State organs which, among others, guide decision-making or implementation of any law affecting the mining sector. The Constitution thus provides some overarching principles that should guide the implementation of any laws governing the mining sector.
Mining and Minerals Policy, Sessional Paper No. 7 of 2016
The Mining and Minerals Policy, Sessional Paper No. 7 of 2016 was informed by the lack of predictability and certainty hence low investment in the mining sector, thus necessitating the need for policy framework to provide a clear guidance for sustainable mineral resources development. The Policy was put in place to address gaps that have existed in the mining sector, form the basis for review of the outdated Mining Act of 1940 and align the industry’s strategic direction with African Mining Vision, Vision 2030 and Constitutional Provisions to provide for exploration and exploitation of mineral resources for socio-economic development. In addition, the Policy was also expected to strengthen the institutional framework and address governance and operational issues, environmental protection, equity, mineral value addition, post-mine closure activities, capacity building and mainstream artisanal and small scale mining and promote the use of appropriate technology in the mining sector.
Mining Act, 2016 and Relevant Mining Sector Regulations
The Mining Act 2016 was enacted to give effect to Articles 60, 62b (1) (f), 66 (2), 69 and 71 of the Constitution in so far as they apply to minerals; provide for prospecting, mining, processing, refining, treatment, transport and any dealings in minerals and for related purposes. The Act also came about as a result and part of implementation of the Mining and Minerals Policy, Sessional Paper No. 7 of 2016 and applies to the minerals specified in the First Schedule and does not apply to petroleum and hydrocarbon gases.
The Act establishes a state mining corporation which shall be the investment arm of the national government in respect of minerals. The Act also establishes the Mineral Rights Board whose functions include advising and giving recommendations, in writing, to the Cabinet Secretary on: the grant, rejection, retention, renewal, suspension, revocation, variation, assignment, trading, tendering, or transfer of Mineral Rights Agreements; the areas suitable for small scale and artisanal mining; the areas where mining operations may be excluded and restricted; the declaration of certain minerals as strategic minerals; cessation, suspension, or curtailment of production in respect of mining licences; fees, charges and royalties payable for a mineral right or mineral; and any matters which under this Act, are required to be referred to the Mineral Rights Board. The Act also sets up the Directorate of Mines; and the Directorate of Geological Survey.
The Mining Act has provisions covering various mining issues including but not limited to: mineral rights disputes relating to license and permits; structures for negotiating mineral agreements; terms and conditions for minimum activity and work programs, structure for payments; and artisanal and small scale mining operations. The Act also empowers the Mining Cabinet Secretary to make Regulations necessary or convenient for the proper administration and implementation of the law. The following Regulations have so far been passed under the Act: 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.
*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.
References
- Chimboza, R., “More should and can be done to start taking mining sector seriously,” Daily Nation, Tuesday October 4 2016.
- East African Community, Investment in Mining, available at https://www.eac.int/investment/why-eastafrica/investment-opportunities/mining [Accessed on 3/7/2019].
- KPMG, “Analysis of Mining Act 2016,” July 2016, p. 1. Available at https://assets.kpmg/content/dam/kpmg/ke/pdf/kpmg-mining-act-2016-analysis.pdf (Accessed on 03/7/2019).
- Mining Act, No. 12 of 2016, Laws of Kenya.
- Ministry of Mining, http://www.mining.go.ke/index.php/about-us/about-ministry [Accessed on 3/7/2019].
- Ndemo, B., “Kenya’s mineral resources could pull millions out of poverty, Daily Nation, Monday June 24 2019. Available at https://www.nation.co.ke/oped/blogs/dot9/ndemo/2274486-5169428-990fwj/index.html [Accessed on 3/7/2019].
- Republic of Kenya, Executive Order No.2 of 2013 – Organization of the Government of Kenya, May 2013. 10 http://www.mining.go.ke/index.php/about-us/about-ministry [Accessed on 3/7/2019].
- Scola Kamau and Christine Mungai, “Kenya’s $100 billion hidden mineral deposits,” The East African, Saturday July 20 2013. Available at https://www.theeastafrican.co.ke/news/Kenya-hits-USD100-billion-rare-earth-jackpot- /2558-1920964-ma895tz/index.html [Accessed on 3/7/2019].