FOCUS □ WORKERS'RIGHTSINFORMALANDINFORMAL MINING Perils and opportunities: artisanal, small-scale and informal mining Jobs inthissector are precarious, conditionsare poor,and accident rates are routinely six orseven times higherthanin largerformal operations GLEN MPUFANE isDirector of Mining and DGOJP with IndustriALL Global Union in Geneva Ensuring Artisanal mal mining the Small-Scale labour sector rights is Mining a huge of (ASM) workers challenge or in inforthe for Ensuring Artisanal Small-Scale Mining (ASM)orinformal mining sectoris a huge challengefor unionsandworkers. Whiletradeunionrights are indivisible, the oppositeis truein thissector, whichis dividedand deprived ofa homogenous conceptualisation right acrossthepolicy-making spectrum. Definitions of small-scaleminingor informal miningvaryfromcountry to country. Whilea consensusexistsaboutwhatconstitutes ASMorinformal mining, there existsan extremelyunevenpolicyresponsetowards thissectorof the mining industry, largely because the sector lacksa voiceand an audience,particularly within the international fora,and because of the absenceofa homogenous conceptualisation. ASMis characterised by circumstances devoid of official recognition at worstand grudgingly scantrecognition bytheauthorities, theindustry and in some cases thetradeunions.Whilethe jobs in thissectorare precarious, theconditions are beyond any conformity withnationaland international labourstandards. The International LabourOrganisation ('ILO') estimates thataccidentsratesareroutinely sixorseventimeshigherthaninlarger operations, eveninindustrialised countries. The ASMor informal mining sectoris characterised byexploitation, hazardous working conditions, and unfair pricesfortheirproducts, whichfeedintothemainstream market andtherebykeepsthesector alive,ifbarely so. Many workersselltheir minerals atlowerthanmarket prices to middlemen, who sponsor theiroperations. According to the UnitedNationalsEceonomic Commission forAfrica's 2011report on Minerals and Africa's Development, theincomesof such miners areusually belowthepoverty line,further reinforcing the cycle of poverty. Mineralsproducedwithin thesectorareemployed intechnological devices worldwide, fromColtanin the DRCforuse inmobilephonestolithium forbatteries from Afghanistan, Argentina, andBolivia. The sectoris also vulnerable to the employmentof children, a scourgethatis difficult to eradicatein theabsence of a targeted and specificpolicyattention . According to Communities and Small-Scale MiningCCASM'),a global networkingand coordinating body, an estimated two million children are involvedin thissector (www.artisanalmining.org). Whilethere is no generally agreeddefinition of ASMtheoftenaccepteddescription in terms of theoutput, capitalinvestment, number ofpeople employedor managerialstructure betraysthe establishment's biastowards largescaleindustrial mining as thereference. Thisgenerally accepted description accommodates verysmalloperations that provide subsistence living (e.g. artisanal miningwith pickandshovel;manualorportable panning equipment),to 'junior'companies (e.g. mechanised operation involving severalemployees ) forwhichrevenueand profit aretheprime motivators. A typicalsmall-scale minehas also beencharacterised as one that operates atornear thesurface, workswithnon-complex ore,which requiresnon-complexminingand processing methods, andwouldoperateon estimated, ifnot proven,reserves. It is oftenequatedwithinformal ,unstable orillegal operations that aretypified by completelack of capital,haphazardmining methods, and environmental damageand high healthand safety risks. Itis also often portrayed as an illegitimate mining activity, largely due to theabsenceoffunctioning state regulatory frameworks , enforcement andmonitoring capabilities. By the ILO's estimates, miningaccountsfor about one percentof the world'sworkforce, some30million people.Itis estimated that a further sixmillion peopleworkinsmall-scale mines withabout100million peopleglobally depended on ASMfortheir livelihood. Trade unions and artisanal,small-scale and informal mining Tradeunionstraverse thewholespectrum orcontinuum ofallforms ofproduction andas such,to a varying degree,populatetheproduction landscape ,exceptinthecase ofinformal mining and otherprecarious forms of employment. ASMor informal mining has notbeen able to attract the attention ofthetradeunionmovement withthe resultthattherehas been an almostcomplete absenceoftrade unionactivity. Although thereasonsforthisarevaried , stratification orclassificationas appliedinmining development policy isat therootoftheproblems associated withASMor informal mining. Thistype ofmining policy development , witha focuson thescaleandvolumeof theoperation has and continues to bedevilthe relationship betweenASMor informal mining on theone handandbusiness, trade unions andgovernment ontheother, ina very strange twist tothe logicof theinherent relationship betweenbusiness and tradeunions.Mostgovernment policy articulation andregulation areaimedatlarge scale industrial mining, reflecting a biasagainst theASM and informal mining sector. Thissector is shifted to thepolicymargins and operational periphery thereby increasing itsvulnerability and leadingit toa frequently illegalandinformal status. Disparatetradeunionexperiencesin various countries, mainly intheGlobalSouth,related to attempts to encroachintothissectorhave not coalescedintoconcrete modelsoforganising in thesector. Recognition of the role of the sectorin the mainstream economybytheauthorities canlead INTERNATIONAL union rights Page 10Volume 19Issue 32012 FOCUS □ WORKERS'RIGHTSINFORMALANDINFORMALMINING to a relationship whereASMor informal mining can coexistwithlargescale industrial mining. A processof certification thatlegalisesand integratesASM or informal miningintothe mainstream oftheeconomy canbring certainty, order and stability to theindustry and theassociated remediesto the ills of the sector.The UN's African MiningVisiondescribesthe benefitof recognition and mainstreaming of thesectoras 'harnessing thepotential ofASMtoimprove rural livelihoods, to stimulate entrepreneurship in a socially-responsible manner,to promotelocal and integrated development as well as regional cooperation'. Recognition willalso inevitably open up space andpossibilities fortradeunionactivity. Tradeunionsare alwaysconfronted withthe challenge ofhowtoorganise workers intheASM or informal mining sectorand moreimportantly whether ASMor informal mining lendsitself to thetypeofrepresentation and organisation hithertosymbiotic to...
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