National Strategic Plan for the Phaseoutof MercUry in Artisanal and Small-Scale Gold Mining in the Philippines CONTENTS
Acknowledgement 4 Executive Summary 5 Acronyms & Abbreviations 8 Introduction and Background 10 United Nations Environment Programme Process 10 Philippine Process 10
National Overview 12 Artisanal and small-scale gold mining (ASGM) 12 Gold Trading and ASGM 12 Mercury Use in ASGM – Environmental and Health Concerns 13 Mercury Trade in the Philippines 14 Prevailing Issues Concerning ASGM 14 Priority Goal and Objectives 16 Problem Statement 16 Goal 16 Objectives 16
Implementation Strategy 17 National Strategic Plan for the ASGM National Action Plan 18 Information, Education and Communication 24 IEC Strategies and Key Activities 24 Phaseout of IEC Concepts Document 24 Overarching Message 24
Priority Activities 25 MercUry in Overall Budget 26 Artisanal and SmalL-Scale Gold Mining Evaluation Mechanism 29 Evaluation Methodologies 30 in the Philippines 2 0 1 1 - 2 0 2 1 Annexes Annex 1 – Distribution of Gold Deposits in the Philippines 31 Annex 2 – Location of ASGM Activities in the Philippines 32 Annex 3 – Summary of Health Studies and Findings Related to Mercury Use and Emission in ASGM 33 Annex 4 – IEC Key Messages and Strategies in Support to ASGM Objectives 35 Annex 5 – Acknowledgements 38
The National Strategic Plan for the Phaseout of Mercury in ASGM in the Philippines was developed by the Philippine government under the auspices of the Environmental Management Bureau (EMB) of the Department of Environment and Natural Resources (DENR) with assistance from the United Nations Environment Programme (UNEP). The views, expressions and opinions contained in this document do not QHFHVVDULO\UHÁHFWDQRIÀFLDOSRVLWLRQ or statement of policy by UNEP. National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
Acknowledgement Executive Summary
Thanks are due to a number of individuals, organizations and institutions for sharing UNEP and Philippine Process The National Strategic Plan for the Phaseout of Mercury in their resources, time and expertise to complete this National Strategic Plan: the Artisanal and Small-scale Gold Mining in the Philippines The United Nations Environment Programme (UNEP) 1DWLRQDO6WUDWHJLF3ODQRU163 LGHQWLÀHVDQGGHVFULEHV Governing Council, recognizing mercury as a global those activities considered achievable by the appropriate 7KHGHYRWHGPHPEHUVRIWKH1DWLRQDO6WHHULQJ&RPPLWWHH 16& DQG7HFKQLFDO concern, has requested the UNEP Executive Director to government agencies in partnership with all concerned Working Group (TWG) for their continuous and active participation in all the strengthen the UNEP mercury programme partnerships and and interested stakeholders within a 10-year time frame. activities that led to the formulation of this plan; to continue and enhance international actions on mercury, The NSP takes into account existing regulations of the including the conduct of awareness-raising and the setting Philippines, past projects on improving the state of ASGM, 7KH(QYLURQPHQWDO0DQDJHPHQW%XUHDX (0% XQGHUWKHOHDGHUVKLSRI'LUHFWRU up of pilot projects in key countries to reduce mercury use in results of consultations with various stakeholders, Juan Miguel Cuna for taking the lead in the preparation and completion of this artisanal and small-scale gold mining (ASGM). In this regard, recommendations from international institutions, ongoing plan; UNEP initiated regional projects in South East Asia and South process of international environmental governance and America under the Quick Start Programme of the Strategic rural development. The Draft Strategic Plan is composed of 7KHUHJLRQDORIÀFHVRIWKH(QYLURQPHQWDO0DQDJHPHQW%XUHDXLQWKH&RUGLOOHUD Approach to International Chemicals Management in a strategic text for short to medium term activities (2011- Administrative Region, Region 05 and Region 11 for providing administrative and cooperation with a number of interested partners. As part of 2015) and Action Table that covers the full period of logistical support in the conduct of regional consultations; the South-East Asian Quick Start Programme, the Philippines activities from 2011-2021. and Cambodia were selected to test the Guidance 7KH 8QLWHG 1DWLRQV (QYLURQPHQW 3URJUDPPH 81(3 IRU WKH SDUWQHUVKLS DQG WKH Document developed by UNEP for the Development of a SURYLVLRQRIÀQDQFLDODQGWHFKQLFDODVVLVWDQFHWRIRUPXODWHWKLVSODQ National Strategic Plan for Artisanal and Small-Scale Gold Mining (National Strategic Plan), the main goal of which is 7KHVPDOOVFDOHJROGPLQHUVORFDOJRYHUQPHQWXQLWVYDULRXVQDWLRQDOJRYHUQPHQW to supplement regional efforts to protect health and the agencies and institutions and non-government organizations for their cooperation, environment from mercury in ASGM. understanding and assistance in the formulation of this plan; The plan formulation process commenced with a regional %DQ7R[LFVIRUWKHLUDVVLVWDQFHLQWKHFRQGXFWRIFRQVXOWDWLRQV7:*DQG16&PHHW- inception workshop in the Philippines on January 2010. The ings, for extending support in the plan formulation and for providing the photos workshop brought together various ASGM key players to and images that were used in the NSP; review Plan requirements and to identify the next steps OHDGLQJWRSODQIRUPXODWLRQDQGÀQDOL]DWLRQ6XEVHTXHQWO\ 'U.HYLQ7HOPHURI$UWLVDQDO*ROG&RXQFLO0V%UHQGD.RHNNRHNRI81(3DQG0V a National Steering Committee and an inter-agency Susan Keane of Natural Resource Defense Center (US) for providing substantial Technical Working Group were created to spearhead the LQSXWVWRZDUGVUHÀQHPHQWRIWKHSODQ drafting of the NSP. The planning process adopted the combination of bottom-up and top-down approach to provide opportunity for sectors at the frontline of the issue And above all, to our Creator for providing us the wisdom and strength to enable (e.g. small-scale miners, gold and mercury traders and us to craft a document that will serve as a roadmap for a mercury-free ASGM in the processors, concerned government agencies and large- Philippines. VFDOHPLQLQJFRPSDQLHVDPRQJRWKHUV WRSURYLGHÀUVWKDQG input to the NSP. In this regard, three consultative workshops were conducted in the three regions that are heavily HQJDJHGLQ$6*07KHÀUVWRIWKHUHJLRQDOFRQVXOWDWLRQV were held from April 19 - May 6, 2010 and ended on March ÀQDOL]LQJWKH163
4 5 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
ASGM National Overview Interviews conducted by NGOs with local miners revealed e. Enhance cooperation and partnership at all levels that mercury is sourced out mostly from dental clinics, among miners, public authorities, industry sector, The ASGM sector which employs about 200,000 to 300,000 which aside from supplying the substance, also operate as NGOs, Church, Academic Institutions, and other miners is a vital contributor to the Philippine economy as gold buyers. In some mining areas, mercury is available in stakeholders; and it helps ease rural unemployment while producing about local stores at P4 to P10 per gram. f. Develop and promote the safe handling and long- 80 percent of the country’s annual gold supply. In spite of term storage of excess mercury coming from the the presence of gold buying stations by the Bangko Sentral Prevailing Issues Concerning ASGM ASGM sector. ng Pilipinas (BSP) which were established to buy gold from ASGM at prices competitive with those prevailing in the Aside from health and environmental concerns, other issues A set of interrelated and mutually supportive strategies are world, a big chunk of ASGM production still ends up in the that were noted from the sector include the following: proposed to support the concrete implementation of the EODFNPDUNHWGXHWRWKHGLIÀFXOW\RIPHHWLQJWKHVWDQGDUGV (a) Lack of capacity of Provincial/City Mining Regulatory LGHQWLÀHGREMHFWLYHV7KHVHDUH set by the bank, and their distance to the gold buying Boards to regulate ASGM; (b) Weak enforcement of small- centers. scale mining and other related laws; (c) Informal ASGM (QJDJHPHQWZLWKYDULRXVJRYHUQPHQWDJHQFLHV RSHUDWLRQVGXHWRFRVWO\DQGGLIÀFXOWSHUPLWWLQJDQG industry, non-governmental organizations, ASGM is the single largest mercury emitting sector in the licensing process; (d) Small-scale mining companies academe and other stakeholders; Philippines, having been recognized to discharge about undertaking large-scale operations; (e) Uncontrolled $GMXVWPHQWRIUHGXFWLRQJRDOVDVPD\EH 70 metric tons or more than 30 percent of the country’s ASGM activities in the ancestral domains of indigenous necessary after due evaluation by the National annual mercury releases. Small-scale gold mining activities peoples, protected and watershed reservation areas; Steering Committee of data provided by academic utilizing mercury has been recorded in more than 20 and (f) Inadequate laws and regulations addressing institutions, non-governmental organizations or provinces engaged in ASGM. The indiscriminate use of mercury use in ASGM. other concerned stakeholders. mercury in ASGM contributes to serious long-term 'HYHORSPHQWRIDQRXWUHDFKSODQWKDWFRQVLGHUV environmental and health problems burdened with broader environmental and health protection initiatives, and links activities to existing programmes social, technical and institutional issues, as well as the Priority Goal, Objectives and implementation of regulations. Studies on the effects of and networks building on past and current mercury pollution in selected ASGM sites reveal that Implementation Strategies experiences; drinking waters and river systems have exceeded )RUPXODWLRQDQGLPSOHPHQWDWLRQRIIXQGUDLVLQJ recommended water quality criteria, marine mollusks The goal of the National Strategic Plan is to protect strategies to support the National Strategic Plan; DQGÀVKHVKDYHPHUFXU\OHYHOVWKDWDUHPRUHWKDQWKH human health and the environment through the ,QFUHDVHGFROODERUDWLRQZLWKUHJLRQDODQG allowable limit, while some people that were examined introduction of responsible ASGM practices focusing international institutions and networks ; exhibited symptoms of mercury intoxication. In 2006, the on mercury use reduction and eventual elimination of ,QFUHDVHGDZDUHQHVVDQGDGYRFDF\RQWKHXVH United Nations reported that miners in the Philippines are mercury use and releases in the environment, adoption of local technology/know-how/experience for the found to have mercury levels up to 50 times above World of cleaner and toxic-free gold production technologies reduction of mercury use in ASGM; Health Organization limits. DQGVLPXOWDQHRXVO\DGGUHVVVRFLDOLQVWLWXWLRQDOÀQDQFLDO 3HULRGLFUHYLHZPRQLWRULQJDQGHYDOXDWLRQRI regulatory reform, among others. activities in relation to the agreed milestones; and /LQNLQJ$6*0LQWHUYHQWLRQVZLWKQDWLRQDODQGORFDO Mercury Trade in the Philippines 7KHIROORZLQJREMHFWLYHVIXUWKHUGHÀQHKRZEHVWWRDWWDLQ development processes and their products. the goal set:
Since the closure of a mercury mine in the Philippines in a. Effectively reduce mercury use in the ASGM sector; the mid-70s, the country’s mercury supply, especially those b. Develop and implement coherent national policies used in ASGM relied primarily on import. The known sources and regulations that promote the sustainability of of mercury for gold mining in the Philippines are the United ASGM and its allied sectors, as well as States, European Union, Algeria, Saudi Arabia, Italy and environmental and safety measures to protect .\UJ\]VWDQ6RPHRIWKHPHUFXU\ÁDVNVUHDFKLQJWKH miners, communities surrounding ASGM sites and Philippines do not indicate their source, raising suspicion other; that they may have been illegally brought into the country. c. Establish a legal and organized group of ASGM Mercury also enters the country legally usually for dental miners with a national constituency and and other permitted uses. representing the needs of the ASGM sector; d. Build and strengthen institutional capacity of PMRBs, LGUs and other ASGM support institutions; The exemption of dental amalgamation in the application of the requirements for Chemical Control Order for Mercury No. 38 appears to have resulted in the proliferation of dental clinics that supply mercury for gold mining.
6 7 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
Acronyms & Abbreviations
ASGM Artisanal and Small-scale Gold Mining MROD 0LQWDQGUHÀQHU\2SHUDWLRQVGHSDUWPHQW 052' BOC Bureau of Customs NCIP 1DWLRQDO&RPPLVLRQRQ,QGLJHQRXV3HRSOHV BOE Bank of England NEDA 1DWLRQDO(FRQRPLF'HYHORSPHQW$XWKRULW\ BSP Banko Sentral ng Pilipinas NIMD 1DWLRQDO,QVWLWXWHRI0LQLPDWD'LVHDVH BT Ban Toxics NIPAS 1DWLRQDO,QWHJUDWHG3URWHFWHG$UHD6\VWHP$FW C/PMRB City/Provincial Mining Regulatory Board NSC 1DWLRQDO6WHHULQJ&RPPLWWHH CAR Cordillera Administrative Region NSP 1DWLRQDO6WUDWHJLF3ODQ CASM Communities and Small-scale Mining OP 2IÀFHRIWKH3UHVLGHQW CCO Chemical Control Order PAMB 3URWHFWHG$UHD0DQDJHPHQW%RDUG CDA Cooperative Development Authority PCU 3URMHFW&RRUGLQDWLRQ8QLW CHED Commision on Higher Education PD 3UHVLGHQWLDO'HFUHH CIL Carbon-in-Leach PENRO 3URYLQFLDO(QYLURQPHQWDO1DWXUDO5HVRXUFHV2IÀFH '(15 CIP Carbon-in-Pulp PLGU 3URYLQFLDO/RFDO*RYHUQPHQW8QLW DAO Department of Administrative Order PSSMA 3HRSOH·V6PDOOVFDOH0LQLQJ$UHD DENR Department of Environmental and Natural Resources PSSMPF 3HRSOH·V6PDOOVFDOH0LQLQJ3URWHFWLRQ)XQG DepEd Department of Education QSP 4XLFN6WDUW3URJUDP DILG Department of Interior and Local Government RA 5HSXEOLF$FW DMC Department of Memorandum Circular RDC 5HJLRQDO'HYHORSPHQW&RXQFLO DOF Department of Finance R&D 5HVHDUFKDQG'HYHORSPHQW DOH Department of Health SAICM 6WUDWHJLF$SSURDFKWR,QWHUQDWLRQDO&KHPLFDOV0DQDJHPHQW DOLE Department of Labor and Employment SSM 6PDOO6FDOH0LQLQJ DOST Department of Science and Technology SSMC 6PDOO6FDOH0LQLQJ&RQWUDFW DSWD Department of Social Welfare and Development SSMP 6PDOO6FDOH0LQLQJ3HUPLW DTI Department of Trade and Industry TRC 7HFKQRORJ\5HVRXUFH&HQWHU '267 EMB Environmental Management Bureau TWG 7HFKQLFDO:RUNLQJ*URXS ENRO (QYLURQPHQWDO1DWXUDO5HVRXUFHV2IÀFH /*8 UN 8QLWHG1DWLRQV EO Executive Order UNEP 8QLWHG1DWLRQV(QYLURQPHQW3URJUDPPH EU (XURSHDQ8QLRQ UNIDO 8QLWHG1DWLRQV,QGXVWULDO'HYHORSPHQW2UJDQL]DWLRQ GDP Gross Domestic Program WB :RUOG%DQN GEUS Geological Survey of Denmark and Greenland WGC :RUOG*ROG&RXQFLO GFI Government Financial Institution WHO :RUOG+HDOWK2UJDQL]DWLRQ IEC Information, Educational, Communication INC International Negotiating Committee LGU /RFDO*RYHUQPHQW8QLW LSGM Large Scale Gold Mining MGB Mines Geosciences Bureau MIRDC Metals Industry Research and Development Center
8 9 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
Introduction and Background
United Nations Environment Programme Philippine Process To facilitate the development of the NSP, the Department The National Strategic Plan for the Phaseout of Mercury Process of Environment and Natural Resources-Environmental in the Artisanal and Small-scale Gold Mining in the As part of the South-East Asian Quick Start Programme, Management Bureau (DENR-EMB) designed three Philippines (National Strategic Plan or NSP), which is consultative workshops to be conducted in three regions SUHVHQWHGLQWKHVXFFHHGLQJVHFWLRQVLGHQWLÀHVDQG The United Nations Environment Programme (UNEP) the Philippines and Cambodia were selected to test that are heavily engaged in ASGM – Cordillera describes those activities considered achievable by the Governing Council/Global Ministerial Environmental Forum, the Guidance Document developed by UNEP for the Administrative Region (CAR); Region 5; and Region 11, appropriate government agencies in partnership with all DWLWVWZHQW\ÀIWKPHHWLQJLQ)HE UHFDOOHGWKHÀQGLQJV Development of a National Strategic Plan for Artisanal for the collection of baseline data covering mercury concerned and interested stakeholders within a 10-year of the 2002 global mercury assessment published by the and Small-Scale Gold Mining (National Strategic Plan). use in ASGM. time frame. The NSP takes into account existing UNEP and the Inter-Organization Programme for the Sound regulations of the Philippines, past projects on improving Management of Chemicals that mercury is a chemical of A regional inception workshop (Inception Workshop) was The regional consultations were further designed to adopt the state of ASGM, results of consultations with various global concern due to its long-range atmospheric transport, conceived to set the impetus for the development of the a combination of the bottom-up/top-down strategic stakeholders, recommendations from international its persistence in the environment once anthropogenically National Strategic Plans for Philippines and Cambodia planning approach in drafting the NSP to create an institutions, ongoing process of international introduced, its ability to bioaccumulate in ecosystems and which will supplement regional efforts to protect health opportunity for sectors at the frontline of the issue to environmental governance and rural development. LWVVLJQLÀFDQWQHJDWLYHHIIHFWVRQKXPDQKHDOWKDQG and the environment from mercury in the sector. The SURYLGHÀUVWKDQGLQSXWWRWKH163)XUWKHUWRSURYLGHD The Draft Strategic Plan is composed of a strategic text the environment. Inception Workshop was successfully held in the Philippines from 19-21 January 2010. (The Inception Workshop Report platform for including various ASGM stakeholders the for short to medium term activities (2011-2015) and regional consultations were opened to varied stakeholders Action Table that covers the full period of activities from The Governing Council of UNEP, by its decision 24/3 IV on is available at: from government agencies, small-scale miners and 2011-2021. chemicals management, requested the UNEP Executive ODUJHVFDOHPLQLQJFRPSDQLHV7KHÀUVWRIWKHUHJLRQDO Director, working in consultation with Governments and http://www.unep.org/hazardoussubstances/Mercury/ consultations were held from April 19-May 6, 2010 and The draft strategic plan was presented to various other stakeholders, to strengthen the UNEP mercury PrioritiesforAction/Meetings/tabid/4490/language/ HQGHGRQ0DUFKÀQDOL]LQJWKH163 stakeholders in the same ASGM regions from 20 October programme partnerships by taking a number of steps, to 10 November 2010 to generate feedback and elicit including enhancing the artisanal and small-scale gold en-US/Default.aspx Building on the momentum gained from the Inception more inputs pertaining to the formulated goals and mining partnership. Workshop and to provide a structure for the development objectives, implementation strategies and activities. of the NSP, Director Juan Miguel Cuna of the DENR-EMB The third regional consultations were conducted from Recognizing the role of various sectors, the Governing executed Special Order No. -2010 creating a National )HEUXDU\WR0DUFKIRUWKHÀQDOUHYLHZE\ Council further requested the Executive Director of UNEP to Steering Committee (NSC) to oversee and advise a the stakeholders of the revised plan. Additional inputs work with Governments, intergovernmental organizations, national inter-agency technical working group (TWG) JHQHUDWHGZHUHFRQVLGHUHGLQWKHÀQHWXQLQJDQG stakeholders and the Global Mercury Partnership to continue tasked in developing a National Strategic Plan on ÀQDOL]DWLRQRIWKHSODQ and enhance, as part of the international action on mercury improving practices and working conditions and in several areas, including the conduct of awareness-raising reducing the environmental impacts of artisanal and and pilot projects in key countries to reduce mercury use in small-scale gold mining, and a Secretariat within the artisanal and small-scale gold mining (ASGM). EMB to provide administrative and logistical support to the NSC and TWG. The National Steering Committee was In this regard, UNEP initiated regional projects in South East responsible in bringing together relevant government Asia and South America under the Quick Start Programme agencies whose representatives have shared their of the Strategic Approach to International Chemicals experiences and expertise on the various facets of ASGM. Management in cooperation with a number of interested The committee also provided guidance and direction in partners. The projects aim to contribute to existing capacity the crafting of goals and objectives, in identifying building efforts to tackle the challenging issue of mercury use implementation activities and in enlisting commitments in artisanal and small-scale gold mining. for the joint implementation of the agreed activities.
10 11 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
National Overview
Artisanal and small-scale gold mining Gold Trading and ASGM Mercury Use in ASGM- Environmental and The amount of mercury used by miners varies depending on (ASGM) Health Concerns when it is applied during the gold production process. For Pursuant to Republic Act 7076, the Bangko Sentral ng every gram of gold produced, miners practicing whole ore amalgamation utilize about 10 to 25 grams of mercury while $UWLVDQDODQGVPDOOVFDOHJROGPLQLQJ $6*0 LVDVLJQLÀFDQW Pilipinas (BSP) has established gold buying stations. The indiscriminate use of mercury in ASGM contributes to those who practice amalgamation after grinding use about global development issue. An estimated ten million people Although gold is purchased in Philippine pesos, the prices serious long-term environmental and health problems one (1) to three (3) grams. in more than 70 countries depend on ASGM for income, are competitive with those prevailing in the world. Gold sold burdened with social, technical and institutional issues, as producing about 12 % of the world’s gold supply (Telmer K. to BSP must however conform to certain conditions set by well as the implementation of regulations. In 2002, small-scale gold mining activities utilizing mercury and Veiga M., 2008). The number of gold miners is expected the bank as to physical form, maximum dimension, weight has been recorded in at least ten provinces namely: to increase as gold mining becomes increasingly lucrative: and minimum assay. BSP’s current gold buying stations Mercury is one of the most toxic metals known to man. Benguet, Camarines Norte, Negros Occidental, Zamboanga the price of gold has nearly quadrupled in the past seven LQFOXGHWKH0LQWDQG5HÀQHU\2SHUDWLRQV'HSDUWPHQW It bio-accumulates in the food chain, and becomes del Norte, Zamboanga del Sur, Bukidnon, Agusan del years, rising to over US$900/oz in July 2008, from $260/oz in 052' LQ4XH]RQ&LW\DQGLWVRIÀFHVLQWKHFLWLHVRI%DJXLR increasingly concentrated at higher levels. Mercury Norte, Agusan del Sur, Surigao del Norte and Davao del March 2001. Naga, Davao and Zamboanga. poisoning can lead to skin irritation, fever, headaches, Norte . There are also recent accounts of mercury use nausea, irritability, fatigue, loss of speech and memory, among the small-scale miners in the provinces of Abra, The ASGM sector is a vital contributor to the Philippine Gold produced by small-scale miners which meet the decline in sensory ability blindness, depression, kidney Kalinga, Apayao, Oriental Mindoro, Compostella Valley, economy. ASGM occurs in more than 30 provinces in criteria are sold directly at the MROD or at BSP’s buying disease, tremors, brain damage, serious birth defects Isabela, Nueva Vizcaya, Quezon, Romblon, Southern Leyte, the Philippines and provides a very important source of VWDWLRQVZKLFKLQWXUQEULQJWKHPWR052'IRUUHÀQHPHQW and death. and South Cotabato. subsistence to about 200,000 to 300,000 miners and their and conversion into London gold delivery bars. Some of the IDPLOLHV)RUWKHODVWÀYH\HDUVWKHVHFWRUKDVEHHQ JROGPD\DOVREHPDQXIDFWXUHGLQWRVHPLÀQLVKHGPDWHULDO There are many reasons why mercury use is widespread in Studies on the effects of mercury pollution in selected producing an average of 30 tonnes or about 80 percent in the form of grains and sheets for re-sale to local jewellers ASGM. One of the principal reasons cited by miners is that ASGM sites reveal that drinking waters and river systems of the country’s annual gold supply. and industrial users. The BSP may enter into a location swap mercury produces quick money for their family’s daily have exceeded recommended water quality criteria, transaction so that bars held in the bullion vault may be subsistence, after which, they can still bring their mine PDULQHPROOXVNVDQGÀVKHVKDYHPHUFXU\OHYHOVWKDWDUH $ERXWSHUFHQWRI3KLOLSSLQHWHUULWRU\KDVEHHQLGHQWLÀHG mobilized and made readily available for gold-related tailings to cyanide processing plants for further recovery of more than the allowable limit, while some people that to have high potential of mineral deposits. Gold is one of the transactions in the international market . gold. Another reason mentioned is that mercury is easy to were examined exhibited symptoms of mercury intoxication . most important. Based on density of deposits per one-square- XVHDQGLVKLJKO\HIIHFWLYHDWFDSWXULQJJROGXQGHUÀHOG In 2006, the United Nations reported that miners in the kilometer land area, the country is ranked third in the world. 'XHWRWKHGLIÀFXOW\RIVPDOOVFDOHJROGPLQHUVWRPHHWWKH conditions. It is also very accessible and cheap. They can Philippines are found to have mercury levels up to 50 times In 2002, the Mines and Geosciences Bureau (MGB) of the standards set by the bank, and their distance to the gold either buy mercury at local stores or source it out from gold above World Health Organization limits. A summary of health DENR estimated the country’s gold reserves at 5,080,785,289 buying centers, they sell their gold to independent gold dealers. Apparently, the input cost for mercury is minuscule VWXGLHVDQGÀQGLQJVUHODWHGWRPHUFXU\XVHLQ$6*0LV metric tons, based on its consolidation of resource inventory buyers and jewellers at a lower price. considering that it costs only P4 to P10 per gram while gold provided in Annex 3. data supplied by mining companies. Gold deposits have prices can be as high as P1,800 a gram. Other reasons cited been reported in about 40 provinces while ASGM activities In Compostella Valley province for instance, about 60 are lack of awareness of the risks of mercury use and lack of accordingly take place in more than 30 provinces. Annex percent of ASGM production is believed to be diverted into knowledge of mercury-free alternatives. 1 provides a map for the distribution of gold deposits in the the black market . In Benguet province, it is said that at least Philippines while Annex 2 provides the location of ASGM 40 percent are traded outside BSP. Mercury release from the ASGM sector in the Philippines is activities in the country. estimated at 70 metric tons per year, making the industry In determining the price of gold, the miners merely rely on the single largest emitter of mercury pollution in the country . the information supplied by local gold dealers, who monitor Mercury use in the sector also poses great danger to the In spite efforts, there is yet no authoritative estimate as to the price of gold. In the international market, gold units are life of the miners, their families and communities living in the actual number of people engaged in small-scale gold PRVWO\UHÁHFWHGLQWUR\RXQFH,QWKH3KLOLSSLQHVWUR\RXQFH the affected regions. Mercury emitted from the sector also mining in the Philippines. Studies however suggest that is converted into grams. Price of gold per gram depends on contributes to the mercury contamination of local and there are about 200,000 to 300,000 small-scale gold miners gold grade or “carat”. The term “carat” is used to describe JOREDOÀVKHULHV nationwide, which includes close to 18,000 women and the purity of gold and is based on a total of 24 parts, where children . ASGM also supports directly and indirectly the pure gold is known as 24 carat and those with lower carats livelihood of about two million people mostly in the have other metal components like copper or silver . rural areas.
12 13 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
Mercury Trade in the Philippines Based on interviews with mercury traders and miners, Manila is the main source of mercury for gold mining Because of its unique properties, mercury is used in a wide while Baguio City, Bacolod City, Davao City, Zamboanga 6XUYH\SODQZLWKWKHWHFKQLFDOGHVFULSWLRQRIWKHDUHD Uncontrolled ASGM activities in protected and watershed UDQJHRISURGXFWVDQGSURFHVVHV7KHLGHQWLÀHGVRXUFHVRI City and Paracale, Camarines Norte are the secondary applied for which must be prepared by a registered reservation areas. Small-scale mining activities are also mercury include residual mercury from decommissioned sources. geodetic engineer; reported to have encroached upon ancestral domains of chlor-alkali facilities, recycled or recovered mercury from %DUDQJD\DQGPXQLFLSDOHQGRUVHPHQW Indigenous Peoples and in established protected areas wastes and mercury products, primary mercury from mercury The exemption of dental amalgamation in the application &OHDUDQFHIURPYDULRXVJRYHUQPHQWDJHQFLHV as well as watershed reservation areas such as in Mount mines and by-product mercury from other resource of the requirements for Chemical Control Order for (QYLURQPHQWDO&RPSOLDQFH&HUWLÀFDWH Guiting-Guiting Natural Park in Sibuyan Island, Romblon, extraction operations. Mercury No. 38 appears to have resulted in the 6XUHW\ERQGLQWKHDPRXQWRI7ZHQW\7KRXVDQG3HVRV the Bugkalots Ancestral Domain in Nueva Vizcaya, and the proliferation of dental clinics that supply mercury for gold (P20,000.00); and Mainit Hotspring Protected Landscape in Maragusan, Most of the global mercury supply is mined in Algeria, China, mining. Interviews conducted by NGOs with local miners $UWLFOHVRISDUWQHUVKLSLQFRUSRUDWLRQDVVRFLDWLRQDQG Compostella Valley to name a few. Spain, and Kyrgyzstan. Spain, once a leading producer of revealed that mercury is sourced out mostly from dental by-laws duly registered with concerned government mercury from its centuries-old Almaden Mine, stopped clinics, which aside from supplying the substance, also agencies. Inadequate laws and regulations addressing mercury use mining in 2003, and production is from stockpiled material. operate as gold buyers. In some mining areas, mercury is in ASGM. There are several laws and policies that directly In the United States, there are mercury mines in Alaska, available in retail stores from P4 to P10 per gram . Weak enforcement of small-scale mining and other related or indirectly regulate mercury use and emission in the Arkansas, California, Nevada, and Texas; however, mercury laws. The seeming culture of tolerance and hands-off policy Philippines, however, there is a need to enact or promulgate has not been mined as a primary metal commodity since Prevailing Issues Concerning ASGM by both the national and local governments have likewise more stringent laws and regulations to address the issue of 1994 when the last mercury mine shut down, hence mercury rendered ineffectual the enforcement of small-scale unabated mercury use in ASGM. The main piece of originating from the country either comes from leftover The principal laws governing small-scale gold mining in the mining laws. Enforcement of other environmental laws such legislation that deals with the regulation, restriction or stockpiles, as a by-product from gold mining and from Philippines are Presidential Decree 1899 and Republic Act as those that concern air and water pollution, protected prohibition of the importation, manufacture, processing, sale, closed chlor-alkali plants. The United States is the leading 7076, also known as the People’s Small-scale Mining Act. area, wildlife, toxic, hazardous and solid waste which are distribution, use and disposal of mercury in the Philippines is exporter of mercury . Both laws require artisanal and small-scale miners to secure also commonly violated in most mining sites. Republic Act 6969 or the Toxic Substances, Hazardous and permits/licenses before commencing operation. Republic Nuclear Wastes Control Act of 1990. DENR Administrative In the Philippines, mercury mining was also conducted in the Act 7076 mandates the setting up of People’s Small-scale While most sectors complain about the non-implementation Order 1992-29, the statute’s Implementing Rules and province of Palawan from 1955 to 1976 producing 140 tons Mining Program and the establishment of funds to promote of the important provisions of extant laws on small-scale Regulations (IRR), include mercury and mercuric compounds annually. Since its closure, however, the country’s mercury the industry. It also requires the formation of Provincial/City mining, others criticize the statute’s irresponsive and (D407) in the table of prescribed hazardous waste. DENR supply relied primarily on import. Mining Regulatory Board to regulate small-scale mining antiquated provisions, which accordingly discourage them Administrative Order No. 38, Series of 1997 which provides activities. Almost all city and provincial mining regulatory to formalize their operations. the Chemical Control Order (CCO) for Mercury and $FFRUGLQJWRUHVHDUFKPRVWRIWKHPHUFXU\ÁDVNUHDFKLQJ boards in the country have been organized; however, Mercury Compounds pursuant to RA 6969, provides the miners do not reveal their sources , raising suspicion that it appears that foremost in the agenda pertains to quarry Small-scale mining companies undertaking large-scale additional requirements and procedures in the importation, they may have been shipped into the country illegally, more operations save for the case of PMRBs in some provinces operations. Under local small-scale mining laws, small-scale manufacture, processing, use and distribution of mercury so that mercury trade for gold mining has accordingly gone which may be cited for their support for small-scale gold mining permittees are allowed to mine up to 20 hectares and mercury compounds and addresses the treatment, XQGHUJURXQGLQWKHODVWÀYHWR\HDUVDQGLVYHU\VHFUHWLYH mining. per permit and extract up to 50,000 dry metric tons of storage and disposal of mercury-bearing or mercury The known sources of mercury for gold mining in the metallic and non-metallic minerals annually. There have contaminated wastes in the Philippines. The CCO however Philippines are the United States, European Union, Algeria, Almost two decades have passed since the enactment of been reports, however, that some small-scale mining permitted, among others, mining and metallurgical industries Saudi Arabia, Italy and Kyrgyzstan. 5HSXEOLF$FWDQGWKHUHLVVWLOOQRRIÀFLDOO\GHFODUHGRU companies exceed the extraction and area limits. and dental amalgam as end-users of mercury. Other laws established People’s Small-scale Mining Area, a geographic and regulations on small-scale mining such as RA 7076 and According to reports, most countries import much greater area devoted for the ASGM sector. The legal requirement for Need for the strengthening of local government units DAO 92-34, the Implementing Rules and Regulations of RA quantity of mercury than actually needed for legal uses . LGUs to establish central processing zones for ASGM activities (LGUs) for effective local mining governance. While the 7076 do not explicitly prohibit the use of mercury in ASGM. The excess amount is sold to the miners through the black has not yet been complied hence, most miners process their enforcement of small-scale mining laws have been They however direct small-scale mining contractors to be market. As the liquid metal passes through brokers on its ores near or within habitation areas, exposing children and devolved to the provincial LGUs by virtue of the Local responsible in ensuring that the use of mercury, cyanide or ZD\WRDJROGPLQHLWEHFRPHVYHU\GLIÀFXOWWRWUDFN$ÁDVN women to mercury’s toxic threats. Government Code, there has been little active participation any other poisonous substance is handled in accordance of mercury can originate in Spain, go on to popular transit of most provinces with small-scale gold mining activities, with provisions directed by the DENR. points like Singapore or Vietnam and then get transferred &RVWO\DQGGLIÀFXOWSHUPLWWLQJDQGOLFHQVLQJSURFHVV7KH let alone smooth coordination in addressing small-scale in Indonesia or Philippines. Mercury also enters the country demanding procedures to gain formal operation have mining concerns. Existing laws on artisanal and small-scale legally usually for dental and other permitted uses. likewise dissuaded small-scale gold miners to apply for gold mining likewise grant limited role to municipal and permits. A checklist for the application of small-scale mining barangay LGUs in the regulation of ASGM activities within permit under Presidential Decree 1899 issued by the their territorial jurisdictions. Provincial Mining Regulatory Board of Benguet, for instance, requires small-scale gold miners to comply, among others, the following requirements:
14 15 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
Priority Goal and Objectives Implementation Strategy
Problem Statement i. To establish by2017, a legal and organized group A set of interrelated and mutually supportive strategies are of ASGM miners with a national constituency and proposed to support the concrete implementation of the representing the needs of the ASGM sector, LGHQWLÀHGREMHFWLYHV7KHVHDUH The ASGM sector is a vital contributor to the Philippine especially from areas where small-scale gold economy however it also contributes to environmental and mining activities are undertaken, working either as (QJDJHPHQWZLWKYDULRXVJRYHUQPHQWDJHQFLHV health problems through continued use of mercury and a cooperative, association or a formalized group industry, non-governmental organizations, academe other toxic chemicals, and is in itself burdened with social, as determined by the Technical Working Group. and other stakeholders in providing options and LQVWLWXWLRQDOÀQDQFLDODQGUHJXODWRU\LVVXHVDPRQJRWKHUV activities for achieving the goal and objectives of the which affect principally the workers and also the com- j. To build and strengthen institutional capacity of National Strategic Plan. munities living near or downstream from ASGM operations, PMRBs, LGUs and other ASGM support institutions. FRDVWDOFRPPXQLWLHVWRORFDODQGJOREDOÀVKHULHVDQGRWKHU 5HGXFWLRQJRDOVFDQEHIXUWKHUUHGXFHGRUDGMXVWHG stakeholders. k. To enhance cooperation and partnership at all for the period 2017 to 2021, as may be necessary, after levels among miners, public authorities, industry due evaluation by the National Steering Committee of Goal sector, NGOs, Church, Academic Institutions, and data provided by academic institutions, non-govern- other stakeholders. mental organizations or other concerned stakeholders. Protect human health and the environment through the introduction of responsible ASGM practices focusing l. To develop and promote the safe handling and 'HYHORSPHQWRIDQRXWUHDFKSODQWKDWFRQVLGHUV on mercury use reduction and eventual elimination of long-term storage of excess mercury coming from broader environmental and health protection mercury use and releases in the environment, adoption of the ASGM sector which may include but are not initiatives, and links activities to existing programmes cleaner and toxic-free gold production technologies and limited to mercury suppliers, dental shops, gold and networks building on past and current VLPXOWDQHRXVO\DGGUHVVVRFLDOLQVWLWXWLRQDOÀQDQFLDO dealers, freight forwarders, etc. experiences; regulatory reform, among others. )RUPXODWLRQDQGLPSOHPHQWDWLRQRIIXQGUDLVLQJ Objectives strategies to support the National Strategic Plan;
7KHIROORZLQJREMHFWLYHVIXUWKHUGHÀQHKRZEHVWWRDWWDLQWKH ,QFUHDVHGFROODERUDWLRQZLWKUHJLRQDODQGLQWHUQDWLRQDO goal set: institutions and networks to facilitate exchange of information, and assistance in the promotion of g. To effectively reduce mercury use in the ASGM successes achieved under the National Strategic Plan; sector, based on the quantities determined by the baseline data from the DENR-EMB Mercury Inventory ,QFUHDVHGDZDUHQHVVDQGDGYRFDF\RQWKHXVHRI report as updated from other sources, by 25% in 2014, local technology/know-how/experience to facilitate 45% in 2017 and a further 20% by 2021 through the technology transfer and support capacity-building for HOLPLQDWLRQRIPDMRULQHIÀFLHQWDQGXQVDIHSUDFWLFHV the reduction of mercury use in ASGM; such as but not limited to whole ore amalgamation, open-burning of mercury amalgam without using re- 3HULRGLFUHYLHZPRQLWRULQJDQGHYDOXDWLRQRIDFWLYLWLHV WRUWVÁDPHKRRGVHWFDQGE\PLJUDWLQJWRUHGXFHG in relation to the agreed milestones. or mercury-free practices or technologies.; /LQNLQJ$6*0LQWHUYHQWLRQVZLWKQDWLRQDODQGORFDO h. To develop and implement coherent national poli- development processes and their products, such cies and regulations that promote the sustainability of as poverty reduction strategies and Millennium ASGM and its allied sectors, as well as environmental Development Goal-based National Development and safety measures to protect miners, communities Plans. surrounding ASGM sites and other stakeholders within the timeframe of the National Strategic Plan.
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. the needs assessment shall be conducted in the areas/region in the order of shall be conducted in the areas/region the needs assessment : Identify and provide appropriate supplemental livelihood programs to miners 0LQHVDIHW\UXOHVDQGUHJXODWLRQV 4XDOLW\RIOLIHRIPLQLQJFRPPXQLWLH (QYLURQPHQWDOPHGLDDURXQGRUWUDYHUVLQJ$6*0VLWHV +HDOWKRIPLQHUVDQGWKHLUIDPLOLHV $TXDWLFRUJDQLVPVFRQVXPHGE\GRZQVWUHDPFRPPXQLWLHVIURP$6*0VLWHV before cyanidation 3RVLWLYHUHVXOWVRISLORWSURMHFWV (QYLURQPHQWDOHGXFDWLRQDQGDZDUHQHVVSURJUD 5LJKWVRI,3VLQPLQLQJDUHDVZLWKLQWKHLUDQFHVWUDOGRPDLQV ,QGLJHQRXVPLQLQJSUDFWLFHVDQGRWKHUFOHDQJROGSURGXFWLRQWHFKQLTXH 0LQLPXPHQYLURQPHQWDOLPSDFWPLQLQJLQFOXGLQJPHUFXU\IUHHRUUHGXFHG and processes, and milling operations, especially calling for mercury techniques of whole-ore amalgamation, open-burning, and mercury-use the elimination ([WHQWRI+JXVHDQGHPLVVLRQV 1XPEHURIPLQHUVDQGFRPPXQLWLHV ([LVWHQFHRIRUJDQL]DWLRQLQIUDVWUXFWXUHDPRQJPLQHUVLQWKHUHJLRQ &RRSHUDWLRQDPRQJPLQHUV/*8VDQGRWKHUVWDNHKROGHUV 6HFXULW\ HWF mercury-free processes and technologies in Priority Region/s looking at addressing and technologies in Priority Region/s mercury-free processes and mercury-use prior to amalgamation, open-burning, the following: whole-ore cyanidation practices. training, e.g. TESDA, and civil society initiatives on mercury or the environment, training, e.g. TESDA, Programme, Catholic Church’s social action commission, etc. e.g. Hg-Free Schools The IEC shall endeavor to utilize existing government technical or vocational of major inefficient and unsafe practices, such as but not limited to whole ore amalgamation, open-burning of mercury amalgam w ore amalgamation, open-burning such as but not limited to whole and unsafe practices, of major inefficient OBJECTIVE 1 simultaneously to achieve Objective 1: simultaneously to DENR-EMB Mercury Inventory report as updated from other sources, by 25% in 2014, 45% in 2017 and a further 20% by 2021 through 45% in 2017 and a further 20% from other sources, by 25% in 2014, Inventory report as updated DENR-EMB Mercury following activities can practices or technologies. The to reduced or mercury-free hoods, etc., and by migrating retorts, flame 14. and their familie 13. Conduct regular inspection and monitoring of the following: 11. Provide technical assistance to small-scale miners on the proper and systematic mining and milling operations, with emphasis on reduced mercury or mercury free processes and technologies 12. Conduct information and education campaign (IEC) on: 8. Develop alternative mineral extraction process with high gold recovery. and tailings pond 9. Designate mineral processing zones with common engineered tailings pond 10. Conduct appropriate mine rehabilitation efforts, such as tree-planting, etc. 7. Undertake research and development (R&D) to further improve existing mineral processing technique particularly in developing less toxic techniques in gold processing and recovery and in the recovery of mercury and gold in tailings and tailings pond.
priority developed by the NSC above. 2. Coordinate with DENR-EMB Regional Offices together with BOC and other 2. Coordinate with DENR-EMB Regional Offices of amendments to DAO 97-38 and appropriate agencies on the implementation stakeholder provide training to the above agencies and or inventory of elemental 3. Renew monitoring and control of existing stocks products currently in the country. mercury, certain mercury compounds, and with a view to identifying practical difficulties and obstacles to their effective with a view to identifying practical difficulties application NOTE 4. Develop an ASGM priorities area/region list to focus Hg reduction efforts, 4. Develop an ASGM priorities area/region list considering issues such as, but not limited to capacity of reduced-Hg practices 5. Conduct a needs assessment on the technical 1. Amend DAO 97-38 to gradually phase-out the importation of elemental mercury, gradually phase-out the importation of elemental 1. Amend DAO 97-38 to products into the country certain mercury compounds and mercury containing resulting in a complete ban by 2014 6. Develop pilot project/s to help reduce Hg use and promote reduced-mercury or 6. Develop pilot project/s to help reduce Hg use
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: : . OBJECTIVE 2 as well environmental and safety measures to protect miners, communities surrounding ASGM sites other stakeholders. OBJECTIVE 3 ASGM sector, especially from areas where small-scale gold mining activities are undertaken, working either as a cooperative, ASGM sector, formalized group as determined by the Technical Working Group formalized group
1. Conduct a review and assessment of ASGM regulations policies as well other regulations affecting ASGM including but not limited to chemicals management, trade regulations, gold buying and royalties to determine gaps and overlaps. 2. Prepare draft legislation or regulation covering the regulatory gaps and synchronizing legislation on ASGM including the development of economic/ financial and other relevant instruments/mechanisms. 3. Preparation of training manuals/kits on the elaboration national legislation policy and enforcement to be used by appropriate government agencies 4. Incorporate the issue of ASGM within national sustainable development plan or agenda 5. Conduct regular briefing with key legislators and government officials on the needs of the ASGM sector; prepare groundwork for legislative or regulatory solutions; initiate legislative or regulatory adjustments. 1. Encourage small- scale mining to form cooperatives/organizations/ corporations or similar entities. 2. Conduct cooperative/organization training and preparation use of the business plans for the development of two regional ASGM groups whose goal is to improve mining practices particularly reduction and if feasible phase-out of mercury use in ASGM. 3. Conduct municipal and provincial mining summit according to priority areas regions following the goal of regional groupings above 4. Legalize the mining operations of artisanal and small-scale located in conflict areas or public lands 5. Educate small-scale miners on mining laws, rules and regulations particularly the acquisition of mining rights and/or contracts, organization, etc. utilizing miner-to-miner trainings and similar methods 6. Collaborate with international institutions to help mainstream the issue of ASGM file and approve the Amended Small-Scale Mining Act 7. Congress to Amended Small-Scale Mining Act 8. Promotion of 6. Strictly implement policies and regulations on child labor develop upholding the role of women in small-scale mining 7. Establish structures for social benefits such as day care centers, health clinics, and LGU sub-stations in small-scale mining areas 8. Develop programmes - technical outreach, organizational finance, fund-raising, etc. to support the functions of ASGM groups and their business plans. 9. Develop and publicize financing instruments fiscal incentives for organized small scale miners are developed and publicized
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CA CA CA DI DI DI . . . . IN IN IN echanism Amended law. Number of operational PMRB/CMRB Number of trainings Number of permits issued Simplified procedures. Creation of arbitratio m PSSMA allocation Number of unused areas identifie List of stakeholde partners Number of symposiums hel Operational network of stakeholders established. Multi stakeholder financial strategie list developed. Assesment report issued Assesment report issued Working Grou established. Financial Feasibility Issued Collection an Transport Repor Facility Created 0 0 0 Y1 Y1 Y1
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ES ES ES TI TI TI . VI VI VI TI TI TI . AC AC AC To enhance cooperation and partnership at all levels among miners, public authorities, industry sector, NGOs, Church, Academic To enhance cooperation and partnership at all levels among miners, public mercury coming from the ASGM sector which may To develop and promote the safe handling long-term storage of excess
: : s ) ) Institutions, and other stakeholders OBJECTIVE 5 OBJECTIVE 6 include but are not limited to mercury suppliers, dental shops, gold dealers, freight forwarders, etc.
1. Amend R.A. No. 7076 and P.D. 1899, to make it more responsive the needs of artisanal and small- scale miners 2. Operationalization of PMRB/CMRB as per R.A. No. 707 3. Train LGUs on improvements in law affecting SSM – strengthening of PMRB/CMRB, etc. 4. Promptly and efficiently execute mandated functions in processing regulating the issuances of small- scale mining/commercial permits. 5. Simplify the procedures in issuance of small scale mining permits. 6. Provide arbitration to large-scale and small-scale miners arrive at an amicable settlement of conflict 7. Allocate people's small scale mining areas (PSSMA) and identification of mineralized area 8. Identify unused areas in mining permit fit for ASGM operations 1. Identification of key industry/business stakeholders and opportunities for partnership to support the goal of environmentally sound ASGM (eg: corporate foundations, industry, associations, multinational companies, companies operating at the national level 2. Symposium, meetings, forum discussion organized with key industry sector’s partners, environmental and development NGOs, academia local communities 3. Establishment of operational network key stakeholders to support the goal environmentally sound ASGM at the provincial and national level. 4. Development of multi-stakeholder financial strategies and innovative fund-raising for environmentally sound ASGM activities 1. Assess options for managing the excess mercury supply, including safe and secure long-term storage of mercury and containing waste, disposal mercury. 2. Assess technologies to sequester excess mercury (amalgamation and stabilization) and facilities for safe long term storage (above ground below storage facilities 3. Develop Committee / Working Group to manage terminal storage project. 4. Develop financing options to support terminal storage project 5. Develop collection and transport protocol for excess mercur 6. Creation of terminal storage facility/option and acceptance excess mercury.
22 23 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
Information, Education and Communication Priority Activities
The Information, Education and Communication (IEC) IEC Concepts Documents The ten-year plan contains a total of 59 activities which (g) Conduct IEC baseline data gathering and training component of the National Strategic Plan provides the are assumed to contribute to the attainment of the overall needs assessment for miners and other ASGM support overall direction and content of IEC interventions which An Information Education and Communication goal and objectives of the NSP and in helping address the institutions shall be embodied in an IEC plan that will be developed (IEC) Concepts Document that has been initially intricate problems and issues surrounding ASGM. Critical in (h) Facilitate formation and strengthening of mining to support the attainment of the goals and objectives laid developed is structured in a modular format to ensuring the overall success of plan implementation is the cooperatives, associations, corporations or similar down in the NSP. The IEC plan will include, among others, facilitate the review of the IEC Concepts to setting of priorities which need to be undertaken during the entities; analysis of target audience, formulation of key messages, determine their effectiveness in addressing and early stage of implementation. Foremost is the forging of L ,GHQWLI\DUHDVWKDWDUHÀWIRUVPDOOVFDOHPLQLQJ major strategies and activities as well as budget contributing to the accomplishment of the a Memorandum of Understanding between and among operations and facilitate establishment of People’s UHTXLUHPHQWV,WZLOOIRFXVRQVSHFLÀFDXGLHQFHVHJPHQWV overall goal and objectives of the NSP, and to relevant government agencies to provide a framework for Small Scale Mining Areas; and that will be exposed to a barrage of particular messages, check where gaps may exist. The format also lends collaboration and cooperative undertaking among the par- (j) Develop committee/working group to assess encouraging them to adopt, practice or support the itself better to quick adjustments and revisions in WLHV7KH028SDUWLFXODUO\GHÀQHVWKHUROHVDQGUHVSRQVLELOLWLHV options and technologies for the safe and secure behavior being promoted. VSHFLÀFVHFWLRQVDVPD\EHQHFHVVDU\HYHQGXULQJ RIWKHSDUWLHVDQGUHDIÀUPWKHLUFRPPLWPHQWVIRUWHFKQLFDO long-term storage of excess mercury coming from the implementation process of the NSP. support, resources, manpower and logistics, among others, the ASGM sector. IEC Strategies and Key Activities during plan implementation. Although the preliminary draft covers a limited To reach out to various stakeholders with diverse interests period of one year as a start-up phase, the con- The following activities shall likewise be undertaken imme- DQGWRLQÁXHQFHRULQVSLUHWKHPLQWRDFWLRQDFRPELQDWLRQ cepts and key messages presented here provide a diately to pave the way for the smooth implementation of of any, but not limited to the following strategies and key concrete foundation upon which to build effective other activities laid down in the plan: activities will be pursued: communication strategies in succeeding years. (a) Promote NSP to local and national leaders to main- XVHRIPLQHUWRPLQHUWUDLQLQJVDQGPLQLQJH[WHQ- It is widely recognized that communication is an stream ASGM in the local and national governance sion agents all-important factor that can make or break the agenda and generate the needed support for its WDUJHWLQJRILQÁXHQWLDOVHFWRUV success of a product or project, as evidenced by implementation; XVHRIYLVXDOO\KHDY\SRSXODUL]HG,(&PDWHULDOV the huge and growing amounts of money poured (b) Ensure continuity of the NSC-TWG and facilitate crea- DXGLHQFHVHJPHQWDWLRQWKDWUHTXLUHVGHYHORSLQJ into advertising, public relations and various forms tion of regional TWGs to facilitate plan implementation; DXGLHQFHVSHFLÀF,(&PDWHULDOVWKDWFDUU\VSHFLÀF of IEC activities. To ensure coherence and F 'HYHORSÀQDQFLQJPHFKDQLVPVDQGLQQRYDWLYHIXQG messages in local languages; FRQWLQXLW\DVZHOODVHIÀFLHQF\PD[LPXPLPSDFW raising strategies, forge partnerships with key industry/ DOOLDQFHFRDOLWLRQEXLOGLQJWRJHWVXSSRUWRIRWKHU and effectiveness -- it is best to have a single entity business stakeholders and prepare project proposals to sectors of society, e.g., civic organizations, media LH3URMHFW&RPPXQLFDWLRQV+HDGRU2IÀFHU EHVXEPLWWHGWRYDULRXVIXQGLQJDJHQFLHVIRUÀQDQFLDO groups, church groups; dedicated to overseeing the preparation of a support; SURYLGLQJLQFHQWLYHVGLVLQFHQWLYHV ÀQHO\GHWDLOHGFRPPXQLFDWLRQSODQDQGLWV (d) Review existing laws and administrative regulations XVHRIVKRZFDVHDUHDV GHYHORSPHQWRIIHDWXUH eventual implementation. governing small-scale gold mining to determine gaps stories, press releases) and overlaps and conduct advocacy for the amend- HQFRXUDJLQJUHJXODUPHGLDFRYHUDJHDQGRUJDQ- Overarching Message PHQWRIWKHVHUHJXODWLRQVDQGIRUWKHÀOLQJE\&RQJUHVV L]LQJSUHVVEULHÀQJVLQYDULRXVSDUWVRIWKHFRXQWU\ of a bill that will address these gaps and overlaps; (e) Institute legal and regulatory reforms including amend- XVHRIPXOWLPHGLDHJUDGLR79QHZVSDSHU The overarching message for IEC as derived from ment of DAO 97-38 to facilitate gradual phase-out cyber-media, mobile phones combined with inter- the stated Goal of the National Strategic Plan for towards complete ban in the importation of elemental personal communications such as orientations, FGDs, ASGM is: Increased incomes of artisanal and small- mercury, certain mercury compounds and mercury community and school visits legislative presentations/ scale gold miners and protection of human health containing products into the country; EULHÀQJVPHHWLQJV and the environment from toxic harm through (f) Identify ASGM priorities for mercury reduction and XWLOL]LQJFROODWHUDOPDWHULDOVHJH[HFXWLYHSULPHUV WKHDGRSWLRQRIFOHDQHUVDIHUDQGPRUHHIÀFLHQW initiate ASGM interventions for mercury reduction in )$4VSRVWHUVOHDÁHWVÁ\HUVDXGLRYLVXDOSUHVHQWD- mercury-free gold extraction methods. tions, calendars these priority regions including, but not limited to, IEC and awareness campaigns, undertaking research and RUJDQL]LQJVSHFLDOPDVVSDUWLFLSDWLRQHYHQWV From this overarching message emanates a num- development and conduct of miner-to-miner trainings IRUPDWLRQDQGRUVWUHQJWKHQLQJRIORFDO,(&DQG ber of key messages that are formulated and on mercury-free and/or reduced mercury use and training teams SRVLWLRQHGVSHFLÀFDOO\WRHQFRXUDJHLGHQWLÀHG emission; IHHGLQJSURPRWLRQDOPDWHULDOVLQWRWKHQHWZRUNRI VWDNHKROGHUVRUVSHFLÀFWDUJHWDXGLHQFHWRSUDFWLFH RWKHUDJHQFLHVZLWKVLJQLÀFDQWPXOWLSOLHUHIIHFWV HJ or perform the desired behavior for the attainment newsletters, blogs, websites, etc.) RIWKHSODQ·VVSHFLÀFREMHFWLYHV$QQH[SURYLGHV VRFLDOPDUNHWLQJDQGYHUWLFDODQGKRUL]RQWDODGYR- the details for the key messages and approaches in cacy VXSSRUWRIVSHFLÀFREMHFWLYHV ,(&EDVHOLQHGDWDJDWKHULQJDQGSHULRGLFPRQLWRU- ing and evaluation of the effectiveness of IEC activi- ties and strategies
24 25 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
Budget (Initial 5-years)18
Ref ,,1DWLRQDO3URÀOHRQ+JXVHLQ$6*0 KEY ACTIVITIES AMOUNT O-bjective A-ctivity 1. Monitoring and control of existing stocks or inventory of elemental mercury, 20,122 O1, A3 I. Policy (Development of a plan or framework) certain mercury compounds, and products currently in the country. 2. Development of an ASGM priorities area/region list to focus Hg reduction 33,556 O1, A4 1. Amendment of DAO 97-38 4,856 O1, A1 efforts 2. Implementation of amended DAO 97-38 20,000 O1, A2 3. Needs assessment on the technical capacity of reduced-Hg practices 8,556 O1, A5 3. Review and assessment of ASGM regulations and policies to determine gaps and overlaps. 4,500 O2, A1 4. Preparation of draft legislation or regulation covering the regulatory gaps and 4,467 O2, A2 Sub-Total 62,234 synchronizing legislation on ASGM and other related concern III. Reasearch and Development 5. Preparation of training manuals/kits on the elaboration of national legislation/policy and 5,978 O2, A3 1. Development of an innovative pilot project to help reduce Hg use and promotion enforcement 80,000 O1, A6 of reduced-mercury or mercury-free processes and technologies. 6. Incorporation of the issue of ASGM within the national sustainable development 2,344 O2, A4 2. Research and development (R&D) to further improve existing mineral plan or agenda. 330,000 O1, A7 processing technique %ULHÀQJZLWKNH\OHJLVODWRUVDQGJRYHUQPHQWRIÀFLDOVRQWKHQHHGVRIWKH$6*0VHFWRU 1,133 O2, A5 3. Development of alternative mineral extraction process with high milling recovery. groundworking for legislative or regulatory solutions; initiation of legislative or 17,000 O1, A8 (Included in the budget for IEC) regulatory adjustments. 8. Collaboration with international institutions to help mainstream the issue of ASGM. 4,778 O2, A6 Sub-Total 427,000 9. Harmonization of applicable laws and regulations on ASGM and related issues and 20,000 O2, A7 IV. Information, Education and Communication promotion of resulting harmonized regulations/laws 1. Information and education campaign (please refer to another sheet for IEC 300,000 O1, A12 10. Facilitate legalization of the mining operations of artisanal and small-scale mining 34,000 O3, A4 budget details) ORFDWHGLQFRQÁLFWDUHDVRUSXEOLFODQGV DOVROLQNHGZLWK2EMHFWLYH$FWLYLW\ 2. Educate small-scale miners on mining laws, rules and regulations particularly on the 36,889 O3, A5 11. Harmonization of R.A. No. 7076 and P.D. No. 1899, to make it more responsive to the - O4, A1 acquisition of mining rights and/or contracts, organization, etc. needs of artisanal and small- scale miners. 3. Formulation and implementation of policies on child labor and discrimination of 27,489 O3, A6 12. Operationalization of PMRB/CMRB as per R.A. No. 7076 125,000 O4, A2 women in small-scale mining. 13. Training of LGUs on improvements in law affecting SSM – strengthening of 75,611 O4, A3 4. Establishment of operational network of key stakeholders to support the goal of 75,500 O5, A3 PMRB/CMRB, etc. environmentally sound ASGM at the provincial and national level. 14. Assist PMRB/CMRBs in executing mandated functions in processing and regulating 3,556 O4, A4 the issuances of small-scale mining/commercial permits. Sub-Total 456,878 15. Simplify procedures in the issuance of small scale mining permits. 28,000 O4, A5 V. Environmental Control 16. Arbitration to large-scale and small-scale miners to arrive at an amicable settlement 76,000 O4, A6 1. Assessment of options for managing the excess mercury supply, including safe and 27,222 O6, A1 RIFRQÁLFW secure long-term storage of mercury and mercury containing waste, and $OORFDWLRQRISHRSOH·VVPDOOVFDOHPLQLQJDUHDV 3660$ DQGLGHQWLÀFDWLRQRIPLQHUDOL]HG 28,444 O4, A7 disposal of mercury. areas (including those from ancestral domain areas and idle/abandoned lands) 2. Designation and establishment of mineral processing zones with common 250,000 O1, A9 ,GHQWLÀFDWLRQRIXQXVHGDUHDVLQPLQLQJSHUPLWÀWIRU$6*0RSHUDWLRQV 22,889 O4, A8 engineered tailings pond. 19. Develop Committee/Working Group to manage terminal storage project. 7,222 O6, A3 3. Mine rehabilitation and tree planting. 27,278 O1, A10 20. Assessment of technologies to sequester excess mercury (amalgamation and stabilization) 27,222 O6, A2 Sub-Total 304,500 and facilities for safe long term storage (above ground and below ground storage facilities) VI. Technical Assistance 'HYHORSÀQDQFLQJRSWLRQVWRVXSSRUWWHUPLQDOVWRUDJHSURMHFW 5,222 O6, A4 1. Provision of technical assistance to small scale miners on the proper and systematic 182,556 O1, A11 22. Develop collection and transport protocol for excess mercury 5,667 O6, A5 mining and milling operations, with emphasis on reduced mercury or mercury free 23. Undertake preparatory steps towards the creation of terminal storage facility/option 5,778 O6, A6 processes and technologies. vand acceptance of excess mercury. 2. Provide assistance to the formation of small- scale mining cooperatives/ 70,000 O3, A1 organizations/corporations or similar entities. Sub-Total 512,667
26 27 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
Evaluation Mechanism
3. Cooperative/organization training; preparation and use of the business plans 23,111 O3, A2 for the development of two regional ASGM groups to improve mining practices in ASGM. Evaluation forms an integral element of the National The evaluation criteria are anchored, among others, on 4. Municipal and provincial mining summits according to priority areas/regions 162,889 O3, A3 Strategic Plan because it provides the means by which HFRQRPLFVHIÀFLHQF\DQGHIIHFWLYHQHVVRIPHDVXUHV the progress and overall success of plan implementation (2) timeliness of delivery (3) relevance (4) prioritization 5. Development and implementation of programmes - technical outreach, 100,000 O3, A8 will be tracked and measured. It also creates a mechanism based on urgent health and/or environmental needs and RUJDQL]DWLRQDOÀQDQFHIXQGUDLVLQJHWFWRVXSSRUWWKHIXQFWLRQVRIWKH for ensuring accountability and transparency in the use VXVWDLQDELOLW\(FRQRPLFVHIÀFLHQF\DQGHIIHFWLYHQHVV ASGM groups and their business plans. and allocation of resources and in strengthening partnerships relate to the affordability of the measure as well as the 6. Evaluation of NSP 190,444 between and among ASGM stakeholders. Towards this end, productive use of resources and the value or outcomes an evaluation framework that integrates criteria and indica- derived from the allocation of such resources. Timeliness Sub-Total 729,000 tors, outcomes, process and impacts as well as mechanisms involves a logical sequence of interventions or activities by which the evaluation system will be carried out will be that will be carried out according to priorities and extent of VII. Social Assistance developed. One such mechanism will be the conduct of impacts based on certain practical considerations such as, 1.Regular inspection and monitoring of the following: 119,444 O1, A13 periodic evaluation both at the regional and national level but not limited to, strategic areas for achieving high to determine the degree of success in achieving the reduction on mercury use and lessening existing health (QYLURQPHQWDOPHGLDDURXQGRUWUDYHUVLQJ$6*0VLWHV O1, A14 objectives of the plan, collect and build strategic information and/or environmental risks. Relevance delves into the extent +HDOWKRIPLQHUVDQGWKHLUIDPLOLHV O1, A15 on implementation needs, results achieved, processes of validity of the objectives and the consistency of the $TXDWLFRUJDQLVPVFRQVXPHGE\GRZQVWUHDPFRPPXQLWLHVIURP$6*0VLWHV O1, A16 and effectiveness, among others, which can be used by activities and outputs with the overall goal and attainment decision–makers as basis for future planning, revision or of the objectives and the intended impacts and effects. 0LQHVDIHW\UXOHVDQGUHJXODWLRQV O1, A17 re-framing of objectives and strategies to help further Sustainability is concerned with measuring whether the +HDOWKDQGRWKHULPSDFWVRIPLQLQJ O1, A18 improve the program’s level of success. EHQHÀWVRIDQDFWLYLW\DUHOLNHO\WRFRQWLQXHDIWHUWKH$6*0 ,GHQWLÀFDWLRQDQGSURYLVLRQRIDSSURSULDWHVXSSOHPHQWDOOLYHOLKRRGSURJUDPVWR 150,000 O1, A19 interventions shall have ceased. miners and their families Evaluation will be carried out in a manner that is consistent with the principles of (1) impartiality, (2) timeliness, (VWDEOLVKPHQWRIVWUXFWXUHVIRUVRFLDOEHQHÀWVVXFKDVGD\FDUHFHQWHUVKHDOWK 52,133 O3, A7 (3) transparency, (4) competency and (5) ethics . Impartiality clinics, and LGU sub-stations in small-scale mining areas. ZLOOEHUHÁHFWHGDPRQJRWKHUVE\WKHXVHRIYDOLGPHDVXUH- ment and analysis and appropriate criteria, indicators and Sub-Total 321,577 benchmarks agreed upon beforehand by key stakeholders. VIII. Investment Timeliness suggests that evaluations will be designed and completed in a timely fashion to achieve the purpose for 'HYHORSPHQWDQGSXEOLFDWLRQRIÀQDQFLQJLQVWUXPHQWVDQGÀVFDOLQFHQWLYHVIRU 56,833 O3, A9 which they were conceived and to ensure well-timed use of organized small scale miners. information generated from such undertaking. Transparency will entail meaningful consultation with the stakeholders and ,GHQWLÀFDWLRQRINH\LQGXVWU\EXVLQHVVVWDNHKROGHUVDQGRSSRUWXQLWLHVIRUSDUWQHUVKLS 36,000 O5, A1 the availability of current, complete, credible and accurate to support the goal of environmentally sound ASGM information on evaluation results to the public. To ensure 3. Symposium, meetings, forum discussion organized with key industry sector’s 21,889 O5, A2 competency, evaluation will be carried out by well-trained, H[SHULHQFHGDQGTXDOLÀHGWHDP(YDOXDWLRQVZLOOOLNHZLVHEH partners, environmental and development NGOs, academia and local REMHFWLYHVRDVQRWWRUHÁHFWSHUVRQDORUVHFWRUDOLQWHUHVWV communities and will be conducted with due regard to rights, beliefs and 'HYHORSPHQWRIPXOWLVWDNHKROGHUÀQDQFLDOVWUDWHJLHVDQGLQQRYDWLYHIXQGUDLVLQJ 120,389 O5, A4 customs. It must also be sensitive to and address issues of for environmentally sound ASGM activities. discrimination and gender inequality. Sub-Total 235,111 GRAND TOTAL 3,048,967
28 29 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
Annex 1
Distribution of Gold Deposits in the Philippines Evaluation Methodologies Evaluation activities will be carried out using as basis the benchmarks and targets as outlined in the plan Internal and external evaluation will be carried out in a and the criteria and indicators as agreed upon by time-bound manner to determine results and outcomes the stakeholders. It will also cover assessment of the based on established criteria. Internal or self-evaluation extent of reduction of mercury concentration in will entail an annual review by all organizations engaged mining areas and in areas downstream. in implementing the NSP for timely feedbacking, tracking and highlighting of achievements, reviewing of roles of Evaluation will employ a combination of any of various players, identifying constraints, best practices and the following: (a) formal and informal surveys, lessons learned over the period and for the reorientation of (b) semi-structured interviews, (c) key informant activities, if and when necessary, to align with the objectives interviews, (d) focus group discussions, (e) RIWKH1637KHHYDOXDWLRQÀQGLQJVZLOOOLNHZLVHEHWUDQVODWHG community meetings, (f) case studies, (g) into a workplan for the ensuing year. The workplan will participatory rural appraisal, (h) direct observation, DGGUHVVWKHJDSVLGHQWLÀHG,QWHUQDOHYDOXDWLRQVZLOOOLNHZLVH (i) analysis of written documents, and (j) review of cover granting of recognition and incentives to ASGM implementation methods. stakeholders and partners for outstanding performance. To ensure credibility and competency of internal evaluation, concerned stakeholders will undergo training and/or updating of evaluation skills as well as development and implementation of evaluation plans.
External evaluation, on the other hand, involves independent review by evaluators not involved with the implementation of the NSP. External evaluation will take place in 2015 (mid-term) and in 2020 (terminal evaluation). The mid-term evaluation will focus, among others, on the assessment of the impact of implementation activities on the overall goal of reducing and eventually eliminating mercury use in ASGM, the adoption of cleaner gold production alternatives and the institution of needed reforms to address the social, institutional, regulatory and other issues and concerns besetting the sector. The results of the mid-term evaluation can be used as basis in re-framing RUÀQHWXQLQJREMHFWLYHVVWUDWHJLHVDQGDFWLYLWLHVIRUWKH second half of the plan implementation.
Outcomes and impacts will also be analyzed in terms of their contribution towards the attainment of certain key development priorities (Millennium Development Goals) in small-scale gold mining communities based on data generated from the Community-Based Monitoring Strategy (CBMS) survey of local government units that are KRVWWR$6*0DFWLYLWLHV6SHFLÀF0'*VWKDWPD\EHOLQNHG with ASGM interventions include eradication of extreme poverty, achieving universal primary education, promoting gender equality and empowering women, combating malaria and other diseases and ensuring environmental sustainability in ASGM communities.
30 31 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
Annex 2 Annex 3
Location of ASGM Activities in the Philippines Summary of Health Studies and Findings 6XUIDFHZDWHUTXDOLW\DWWKHPLQLQJDUHD+RQGD%D\ and Palawan Bay exceeded total mercury standards Related to Mercury Use and Emission in at NV>0.002 ng/ml. ASGM 6RLOVDPSOHVLQ7DJEXURVYLOODJHDQG+RQGD%D\ exceeded the EPA Region 9 Primary Remediation Goal Several studies have been conducted to probe the problem recommended values for total mercury for residential of mercury pollution due to small-scale gold mining in the purposes at NV>23 mg/kg. Philippines. The following discussion presents a summary of 6WDWLVWLFDOO\VLJQLÀFDQWUHVXOWVZHUHREWDLQHGIRULQIDQWV WKHVLJQLÀFDQWÀQGLQJVRIWKHVHVWXGLHV when comparing the methylmercury levels in hair for both exposed and control sub-groups. Likewise, A national study on ASGM recently released by Ban Toxics, a FRPSDULQJWKHLQLWLDODQGÀQDOKDLUPHWK\OPHUFXU\ Manila-based environmental NGO concluded that mercury levels among pregnant women/mothers in the ex- use in the ASGM is widespread and unless its use from the SRVHGJURXSVKRZHGVWDWLVWLFDOO\VLJQLÀFDQW S sector is halted, the health and environmental impacts to results. Comparing the exposed and control sub- WKHFRXQWU\FRXOGEHGLVDVWURXV7KHJURXSLGHQWLÀHG groups’ mercury hair levels per sub-group showed mercury use in ASGM activities in more than 20 provinces VWDWLVWLFDOO\VLJQLÀFDQWUHVXOWVDPRQJWKHIROORZLQJ in the country . D LQLWLDODQGÀQDOWRWDOPHUFXU\KDLUOHYHOVDPRQJ FKLOGUHQ E LQLWLDODQGÀQDOPHWK\OPHUFXU\KDLUOHYHOV In 2008, a report which summarizes more than 30 years of DPRQJFKLOGUHQ F ÀQDOWRWDOPHUFXU\KDLUOHYHOV ÀVKPHUFXU\UHVHDUFKLQ'DYDRJXOIVKRZHGWKDWPHUFXU\ DPRQJSUHJQDQWZRPHQ G LQLWLDODQGÀQDOWRWDO lowers children’s IQ levels for life. The report also mercury hair levels among mothers, and (e) initial and demonstrated that fetuses and babies are particularly ÀQDOPHWK\OKDLUOHYHOVDPRQJPRWKHUV KDUPHGE\PHUFXU\LQÀVK $VWXG\PDGHE\WKH'DYDR5HJLRQDO2IÀFHRIWKH ,QDSDSHUSUHVHQWHGGXULQJDVFLHQWLÀFFRQIHUHQFH Department of Health (DOH) estimated that 13.5 metric in Davao City revealed that mercury-tainted water from WRQVRIWR[LFPHUFXU\ÁRZDQQXDOO\WKURXJKULYHUVLQWR Diwalwal mining site which drains into the Agusan River poses WKH'DYDR*XOI([DPLQDWLRQRIÀVKVDPSOHVIURP'DYDR a serious threat to the inhabitants. It was also reported that Oriental, Davao del Sur and Davao City markets also WHVWVPDGHRQZHHNO\GLHWVRIULFHÀVKDQGPXVVHOVRISHRSOH revealed that they have mercury contents higher than in mining areas revealed the presence of mercury three the allowable limit of 0.3 microgram per gram. times over the permissible levels. In 2000, a study was commissioned by the United Nations In September 2006, the Department of Health presented in Industrial Development Organization (UNIDO) to the conference on Chemical Safety for Sustainable Develop- investigate the effects of mercury contamination in ment in Budapest, Hungary the health and environmental risk regions affected by the mining operations in Diwalwal, assessment made among communities near an abandoned Monkayo, Compostella Valley. Results of said study mercury mine especially those whose diet includes con- showed that mercury level from the Naboc River, the sumption of marine or aquatic products . The study was car- major river system draining the operations in the gold rush ried out in Honda Bay and Palawan Bay and in villages near area exceeds all drinking water quality criteria as well as an abandoned mine that was in operation for more than 20 recommended water quality criteria for the protection of years. The assessment unveiled the following: aquatic organisms and their uses. The investigation also reported that mercury concentration in bottom and )RXU ÀVKVSHFLHVKDGH[FHHGHGWKHUHFRPPHQGHG suspended sediment in the rivers exceeds the Toxic WRWDOPHUFXU\DQGPHWK\OPHUFXU\OHYHOVLQÀVKZKLOH Effects Threshold for the Protection of Aquatic Life by WZR ÀVKVSHFLHVQDPHO\VDJLQJDQGNDQXSLQJKDG factors of up to 55 and 166, respectively. Mercury levels exceeded the permissible levels for methylmercury. in rice and other food crops were found to be within :KLOHWRWDODQGPHWK\OPHUFXU\LQFDQQHGÀVKWRWDO DSSURSULDWHVDIHW\VWDQGDUGV1HYHUWKHOHVVLIÀVKRU mercury in rice, ambient air and drinking water were VKHOOÀVKIURPHLWKHUULYHUDUHXVHGDVSDUWRIDVWDSOH within the recommended levels, additional mercury regular diet, weekly intake levels of mercury (or meth- load from these sources may contribute to the over-all ylmercury) may exceed WHO guidelines, with possible body burden of mercury among residents in the area. negative consequences on human health.
32 33 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
Annex 4
IEC Key Messages and Strategies in Support to ASGM Objectives
Objective Primary Target Desired Behavior Key Messages Media/Venue Timeframe Part of the study commissioned by UNIDO was the The assessment conducted by the DENR on the impact of Audience/s examination of the mine workers from Diwalwal and in the gold mining in Murcielagos Bay in Sibutad, Zamboanga impact barangays in the lowland area of Monkayo. The del Norte also found out that the bay exceeded the a. To gradually 0LQHUVIDPLO\ 0LQHUV²WR +HDOWKULVNVRI 9LVXDOO\KHDY\,(& Q1: Production miners were found to exhibit severe symptoms of mercury allowable mercury limit for seawater and that stations reduce and members and stop using mercury use materials in pop ed intoxication such as fatigue, tremor, memory problems, nearest in proximity to the mining area tend to acquire eventually mining mercury to miners, their format (e.g. illustrated Q2: Dissemina- restlessness, loss of weight, metallic taste and sleeping higher concentrations in water, sediment, suspended eliminate communities )DPLO\PHPEHUV families and af- primers, komiks, post- tion disturbances. People from the lowland area of Monkayo particulates and organisms. Four out of ten marine mercury use – to convince fected ers) in the ASGM the gold miners communities )*'VPLQLIRUXPVIRU and surrounding barangays, on the other hand, complained molluscs examined were also found to have as much sector to use safer (QYLURQPHQWDO “community mes- Q1 of headache, vision problems and nausea, other symptoms as a factor of 5 more than the allowable limit . alternatives risks of mercury sengers” (e.g. Brgy. which could be related to mercury. Of the workers tested, 0LQLQJ and how these Health Workers, Brgy. communities – affect them and 2IÀFLDOVFKXUFKDQG 55 percent of the ball-mill workers and 61 percent of the A study on mercury contamination associated with small- to put pressure the next community leaders) amalgam smelters were found to have mercury levels scale mining in Benguet also noted that the seven to the miners to generation 2WKHUYHQXHV KHDOWK above toxicological threshold limits. sub-basins of the Upper Ambalanga River and the use safer and 3UHVHQFHRI centers, schools, sub-basins immediately downstream are experiencing cleaner gold cleaner and church, brgy. meet- production safer gold pro- ings, and places 7KHÀQGLQJRIWKH81,'2VWXG\LQWKH1DERF5LYHU%DVLQZDV secondary mercury contamination from the small-scale methods duction where miners and ODWHUUHFRQÀUPHGE\WKHDVVHVVPHQWFDUULHGRXWE\WKH gold mining and processing plants. The sub-basins were &RQFHUQHG &RQFHUQHG alternatives their families often Department of Environment and Natural Resources in 2009. found to have sediments containing total mercury government government where miners gather) Q2-Q4 agencies/ agencies – to can earn and &RPPXQLW\UDGLR According to its report on the geological and bio-physical concentrations higher than the estimated geogenic authorities educate the save more with TV, newspapers and characteristics of the Naboc River Basin, the water quality concentration of 0.060 µg/g. Results of the study also (including LGUs) miners, their less risk mobile phones of the watershed is categorically critical because of its high showed that Acupan, Dalicno and Batuang sub-basins families and 6DQFWLRQV mercury content . are the most contaminated and that the main mining penalties for communities on violation of Ambalanga River downstream from the seven sub-basins the ill-effects of existing laws and In February 2000, Dr. Hirokatsu Akagi of the National Institute is more than ten times as contaminated by mercury mercury regulations for for Minamata Disease (NIMD) collected blood specimen based on the geogenic estimate . the protection Q2-Q4 of health and samples from 49 residents of Aroroy, Masbate to determine the environment mercury levels in their bodies. Results of laboratory exami- An attempt to quantitatively assess the economic cost of nation showed that 35 out of 49 or about 71 percent have mercury pollution was made by the Philippine Institute for elevated mercury level which is beyond the normal level of Development Studies in 1999. Site visits and interview with 6.5µg/l. miners were done in Panique, Aroroy in Masbate, Tugos, Paracale in Camarines Norte and Diwalwal, Monkayo b. To develop &RQFHUQHG (QDFWODZV 9DOXHRIWKH 3UHVVUHOHDVHV PXO- Q1-Q4 In 1999, the Department of Health, in collaboration with in Compostella Valley as study sites. Using the defensive and government promulgate industry in terms timedia, including the UP-National Poisons Control and Information Service expenditure approach in the economic valuation of implement agencies/ regulations of livelihood, cyber-media) investigated the extent of mercury exposure among school- mercury, the authors estimated that about PhP933.5M coherent authorities in support to income 57'V Q2-Q4 national (including ASGM generation, $XGLRYLVXDOPDWHULDOV Q1: Production children in Apokon, Tagum, Davao del Norte, a community or less than a billion pesos is required annually for the policies and LGU’s) ,PSOHPHQW poverty Q3: ZKRVHVWDSOHGLHWLQFOXGHVÀVKPRVWO\FRPLQJIURPWKH purchase of protective equipment and facility to control regulations… enforce relevant alleviation and ([HFXWLYHSULPHUV Dissemination nearby village in Pantukan which is actively involved in small- the occurrence of future mercury pollution in small-scale OHJLVODWLYH laws and contribution FAQ’s Q1: Production scale mining. The investigation found out high levels of mining in the country . The estimate was made on the bodies regulations to rural Q2-Q4: 2SHUDWLRQDOL]H development )HDWXUHVWRULHV Dissemination mercury among schoolchildren examined, attributed mostly assumption that there are 250,000 small-scale gold miners PMRBs; &RQWULEXWLRQRI /HJLVODWLYHSUHVHQWD- Q3: to their simultaneous exposure to inorganic and methyl in the Philippines, where 215,000 of them are involved in designate organized and tions Presentations PHUFXU\2IWKHÀVKVSHFLHVFROOHFWHGDQGH[DPLQHG processing. PSSMAs or adequately Q4: Lobbying minahang supported three (grunt, gopher and tuna) were also reported to have bayan and ASGM industry exceeded the WHO environmental criteria for mercury establish ASGM to community FRQFHQWUDWLRQVLQIUHVKZDWHUÀVKIURPQRQSROOXWHGDUHDV and national A related study conducted by DOH among gold miners in Kingking, Pantukan, Compostella Valley also revealed that mercury levels in blood samples taken from miners as well as soil and water samples taken from the river exceeded the existing WHO standards.
34 35 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
Primary Target Primary Target Desired Behavior Objective Audience/s Desired Behavior Key Messages Media/Venue Timeframe Objective Audience/s Key Messages Media/Venue Timeframe
processing security e. To enhance *HQHUDO3XEOLF 6XVWDLQHG 3XEOLFKHDOWK ,(&SULQWPDWHULDOV Q1: Production zones 3URSHU cooperation support and and Q2: Distribution 0HGLDFKXUFK management and active environmental environmental of the ASGM partnership participation to risks related to $XGLRYLVXDO Q2: Production groups, etc. – sector at all levels ASGM activities the use of presentations Q4: to put pres- contributes among 3URYLGH mercury in Dissemination sure and help to improved miners, public feedbacks and ASGM practices these agencies national and authorities, inputs to ASGM $6*0 3UHVVUHOHDVHV Q1-Q4 develop and local industry interventions contribution (multimedia, including implement these environmental sector, NGOs, to Philippine cyber-media) policies and governance Church, economy regulations %HQHÀWVWRWKH Academic 3UREOHPVDQG /HDÁHWVÁ\HUV Q1 concerned Institutions, challenges agencies/LGUs and other 7KHLPSHUDWLYH 57'·VIRUXPV Q1-Q4 for developing stakeholders. DQGEHQHÀWVRI conferences and working implementing together to these policies address all major issues and concerns c. To establish 6PDOOVFDOHJROG 7RRUJDQL]H %HQHÀWVRI 6DPHPHGLDYHQXH Q1-Q4 by 2017, a miners themselves into being organized as legal and small-scale (personal, Objectives a and b. organized &RQFHUQHG mining community, &DSDFLW\EXLOGLQJ group of agencies associations/ national) leadership training, Q4: Preparation f. To develop 0LQHUV 0LQHUV²7R (QYLURQPHQWDO 9LVXDOO\KHDY\,(& Q2: Production cooperatives/ cooperative training, of training ASGM (e.g. LGUs, MGB, +RZWRRUJDQL]H and promote surrender Health, and materials in pop ed Q3: miners… CDA) federations a small-scale organizing, etc. modules and the safe 1DWLRQDODQG mercury to Security risks format (e.g. illustrated Dissemination and by 2021, &RQFHUQHG mining entity/ materials handling and Local concerned of improper primers, komiks, establish a agencies group long-term Government agencies for storage and posters) national (e.g. LGUs, MGB, (corporation, storage of safe storage handling )*'VPLQLIRUXPVIRU Q1 ASGM CDA) – to pro- partnership, excess 1DWLRQDODQG community federation vide support to cooperative, mercury Local 3URWRFROVIRU “messengers” the organization foundation, coming from Governments safe handling (e.g. Brgy. Health and QRQSURÀWHWF the ASGM – To convince and storage Workers, Brgy. strengthening sector which miners to 2IÀFLDOVFKXUFKDQG of ASGM may include surrender community leaders) associations but are not mercury 2WKHUYHQXHV KHDOWK limited to 'HYHORSDQG centers, schools, mercury publish protocols church, brgy. suppliers, for safe handling meetings, and places Q1 dental shops, and storage of where miners and gold dealers, mercury their families often d. To build and 305%V/*8V 3URYLGHVXSSRUW $OORIWKHNH\ &RPSUHKHQVLYHSULP- Q1: Production freight for- (VWDEOLVK gather) strengthen MGB, other to ASGM by messages of ers/FAQ’s Q2: warders, etc. terminal storage &RPPXQLW\UDGLR institutional ASGM support designating Objective b as Dissemination newspapers and capacity of institutions PSSMAs, resolve background facility for FRQÀVFDWHG mobile phones ASGM support FRQÁLFWVLQWKHVH information $XGLRYLVXDOPDWHULDOV Q1: Production mercury institutions. areas, facilitate Q3: formalization of 8QGHUVWDQG Dissemination Q3-Q4 ASGM their legislative 7UDLQLQJPDQXDO operations mandate Q2: Production 0HHWUHJXODUO\ Q4: to discuss ASGM +RZWR 6\PSRVLDZRUNVKRS Dissemination concerns/ implement their handouts develop legislative Q1 meeting mandate. protocols $OORFDWHIXQGV %HQHÀWVWRWKH to support concerned PMRBs/LGUs for supporting ASGM activities
36 37 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
Annex 5
Acknowledgements TECHNICAL WORKING GROUP (TWG) ON ASGM
The National Strategic Plan process would not have been completed without the tireless efforts and Chair - Atty. Juan Miguel T. Cuna - DENR-EMB support from the following: Vice-Chairman - Engr. Gilbert Gonzales - DENR-EMB Members - Engr. Ana Trinidad Rivera - DOH Ms. Thelma P. Perez - DOH-BFAD DENR-EMB CORE GROUP FOR ASGM Ms. Myra Magabilin - DTI-BPS Ms. Nelia Granadillos - DOLE-OSH Atty. Juan Miguel T. Cuna - EMB Director & Project Director Director Norlito Gicana - DA-FPA Mr. Renato T. Cruz - Chief, EQD & Project Adviser Major Nicomedes Enad - DOF-BOC Ms. Angelita T. Brabante - Chief, CMS & Project Adviser Ms. Carmel C. Gatcho - DOST-ITDI Ms. Elvira S. Pausing - Sr. EMS & Project Coordinator Ms. Ma. Sonia Gabarieles - DepEd Atty. Richard Gutierrez - Project Consultant Mr. Joven T. Battung - DENR-MGB Mr. Allan Talag - DENR-MGB Atty. Gil Villoria - BAN Toxics Mr. Rodelio Duaso - BSP Mr. Victor Maglambayan - Philex Mining Corp. NATIONAL STEERING COMMITTEE (NSC) ON ASGM Mr. Ramon Velasco - Filminera Engr. Leoncio Naoy - Benguet Small Scale Miners Assoc. Chair - Atty. Juan Miguel T. Cuna - DENR-EMB Mr. Roberto Buniales - MINFED Vice-Chairman - Engr. Gilbert Gonzales - DENR-EMB Fr. Archie Casey SX - JPICC-AMRSP-ATM Members - Atty. Cirila Botor - DTI-BPS Dr. Eduardo Janairo - DOH Atty. Ronald R. De Veyra - DOH-BFAD (0%&HQWUDO2IÀFH Dr. Ma. Teresita S. Cucueco - DOLE-OSHC Director Norlito Gicana - DA-FPA Mr. Renato T. Cruz - EMB-EQD & Project Adviser Director Nestorio B. Gualberto - DOF-BOC Ms. Angelita T. Brabante - EQD-CMS & Project Adviser Director Thelma R. Navarrez - DepEd Ms. Elvira S. Pausing - Project Coordinator Director Nuna E. Almanzor - DOST Atty. Richard Gutierrez - Project Consultant Asst. Secretary Rolando Acosta- DILG Mr. Geri Geronimo Sanez - EQD-HWMS Director Leo L. Jasareno - DENR-MGB Engr. Marcelino Rivera - EQD-WQMS Asst. Governor Manuel H. Torres- BSP Ms. Jean Rosete - EQD-AQMS Atty. Leilene Gallardo - NCIP Ms. Elen DL Basug - EMB-EEID Mr. Rene Tongson - CaCoDec Mr. Victor Maglambayan - Philex Mining Corp. EMB Regional Focal Persons Mr. Roberto Buniales - MINFED Fr. Archie Casey SX - JPICC-AMRSP ATM RD Roberto Sheen - EMB-NCR Mr. Jacinto Orcullo - EMB-NCR RD Paquito Moreno - EMB CAR Mr. Alex Luis - EMB-CAR RD Fernando Quililan - EMB Region V Engr. Eva Ocfemia - EMB Region V RD Metodio Turbella - EMB Region XI Engr. Teresita Tagorda - EMB Region XI
Project Secretariat
Mr. Gilbert Maximo - EQD-CMS Ms. Josephine Monilla - EQD-CMS Ms. Monina Macandog - AFD-Cashier
38 39 National Strategic Plan for the Phaseout of Mercury in Artisanal and Small-Scale Gold Mining in the Philippines
1.7KLVÀJXUHLVEDVHGRQWKHGDWDREWDLQHGIURP0*%DQGUHYLHZRISURYLQFLDOSURÀOHV 2. Bugnosen, Country Case Study on Artisanal and Small-scale Mining: Philippines, 2001 3.&ROXPEDQ)DWKHUV0LQLQJLQWKH3KLOLSSLQHV&RQFHUQVDQG&RQÁLFWVFLWLQJ$QWRQLR$7XMDQ-UDQG5RVDULR%HOOD Guzman’s Globalizing Philippine Mining, IBON Foundation Inc. and Research Centre 4. International Labour Organization Press release, 10 June 2009 posted at www.haribon.org.ph 5. Ma. Ramona GDT Santiago, Bangko Sentral ng Pilipinas Gold Reserves, presentation to the GFMS Annual Precious andBase Metals Seminar, London, September 2008 6. The information was shared by the miners during the ASGM Consultation held on May 05, 2010 in Tagum City, Davao del Norte 7. UNIDO, Manual for Training Artisanal and Small-scale Gold Miners, 2006 8. DENR-EMB, Mercury Assessment for the Philippines Using UNEP Inventory Toolkit, September 2008 9. Desiree M. Narvaez, Human Exposure to Mercury in Fish in Mining Areas in the Philippines, 2002 10.%DQ7R[LFV7KH3ULFHRI*ROG 0HUFXU\8VHDQG2WKHU,VVXHV6XUURXQGLQJ$UWLVDQDODQG6PDOO6FDOH*ROG0LQLQJLQWKH Philippines, 2011 11. Peter Maxson, Global Mercury Production, Use & Trade, presented during the EEB conference in Madrid, Spain, April 22,2005 12. U.S. Geological Survey, Mineral Commodity Summaries, January 2009. In September 2009, then US President George W. Bush signed a law which makes all exports of elemental mercury from the United States banned as of Jan. 1, 2013. The law also required that by 2010,the government should provide a long-term management and storage option for elemental mercury generated by the private sector. 13.%DQ7R[LFVSS 14. Copperwiki website, last accessed March 15, 2010 15. Idem 16.%DQ7R[LFVSS 17. Checklist of Requirements for the Application of Permit/License under PD 1899 obtained from the Benguet Federation of Small-Scale Miners, Inc. 18. Based principally from the UNESCO Evaluation Handbook, 2007 http://unesdoc.unesco.orgimages/0015/001557/155748e.pdf 19.%DQ7R[LFVSS 20. Dr. Edmundo Prantilla, 2008 21. The paper was presented by Engr. Elnor Roa, Mindanao State University 22. Ethelyn P. Nieto, Health and Environmental Risk Assessment Among Mother and Child Residents Living Near an Abandoned Mercury Mine: A Toxic Legacy, 2006 23. Fish species namely ibis, tabas, lapu-lapu and torsillo registered NV>0.5 ug/g fw total mercury level and NV>0.3 ug/g fw PHWK\OPHUFXU\OHYHOZKLFKDUHDFFRUGLQJO\EH\RQGWKHDFFHSWDEOHPHUFXU\OHYHOVLQÀVKHV 24. Nieto, 2006 25. Palero et al, Watershed Characterization of Naboc River Basin, 2009. 26.$NDJLHWDO+HDOWK$VVHVVPHQWIRU0HUFXU\([SRVXUH$PRQJ6FKRROFKLOGUHQ5HVLGLQJ1HDU*ROG3URFHVVLQJDQG5HÀQLQJ Plant in Apokon, Tagum, Davao del Norte Philippines, 2000 27. Georgina Lacastesantos – Fernandez, Accumulation of Mercury and Other Heavy Metals in Some Edible Marine Molluscs in Sibutad, Zamboanga del Norte 28. Maglambayan et al., Mercury Contamination Associated with Small-Scale Gold Mining in the Upper Ambalanga River, Benguet, Philippines from River Sediment Sampling 29. Israel & Asirot, Mercury Pollution Due to Small-Scale Gold Mining in the Philippines: An Economic Analysis, Philippine Institute for Development Studies, 2002
40