Governance fragmentation and agency of miners in Ghana’s artisanal mining sector

Abstract

Artisanal mining in Ghana was established by law as a legitimate indigenous economic activity in 1989, but the sector still lacks a designated formalized governance architecture. Artisanal mining in Ghana borrows from a governance architecture that is designed for large-scale corporate mining. Aspects of artisanal mining fall under governance of various issue areas. Mechanisms that are exclusive to artisanal mining are mostly temporary, including such ad hoc measures as moratoria and paramilitary operations. Also, non-state actors adopt measures to address specific needs in the sector. Hence, Ghana’s artisanal mining governance architecture includes duplicate, overlapping, uncoordinated, and competitive formal and informal measures. This creates confusion and uncertainty, complicates and derails governance, and disrupts legal mining activity. Miners manage to navigate the environment, often through illegal operations. Sometimes, miners also craft independent governance architectures in the mining sites. Literature on governance of artisanal mining in Ghana addresses various empirical and theoretical questions, without highlighting the sector’s fragmented governance architectures and miners’ agency in that context. Redirecting attention to the trend, this paper examines the following questions: 1) In what ways does governance fragmentation manifest in Ghana’s artisanal mining sector? How do miners navigate the environment and how does miner agency impact the fragmented governance? The paper applies a global governance concept to shed new light on governance of artisanal mining, an informal domestic sector, in relation to miner agency in the fragmented governance environment in Ghana. Focusing on environmental issues, the paper uses data from field research in Ghana and relevant secondary sources. Although miners’ independent governance effort extends the governance fragmentation, it is an important guide on formalizing artisanal mining in the Ghanaian context. The paper makes novel empirical and theoretical contributions to discussions on governance fragmentation and governance of artisanal mining.