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Phaseout of M E R C U 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
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