The Minerals and Metals Policy of the Government of Canada © Minister of Public Works and Government Services Canada 1996

Pa r tnerships for Sustainable Deve l o p m e n t

Catalogue no. M37-37/1996E ISBN 0-662-25154-7

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Cette publication est aussi disponible en français, sous le titre

No de catalogue : M37-37/1996F ISBN 0-662-81606-4

This publication is printed on recycled paper. Foreword

Whitehorse Miningdevelopment Initiative of the(WMI) Canadian Leadership minerals Council and Accord metals sector. In September 1994, the Minister of Indian Affairs and Northern Development and I, along with A decade after the federal government last unveiled representatives of industry, labour, the Aboriginal a minerals and metals policy, and as we approach and environmental communities, and many pro v i n c i a l the end of the 20th century, Canada remains among and territorial governments, signed the the foremost producers of minerals and metals in the . world, and the leading exporter. The industry continues WMI participants developed a common vision of a to play an essential role in Canada’s economy. It s o c i a l l y, economically and environmentally sustainable provides jobs for more than 340,000 Canadians, and and prosperous mining industry in Canada. is the economic foundation for some 150 communities WMI Leadership Council Accord in Canada’s rural and northern regions. These In fulfilling these commitments, the Policy represents contributions cannot be over-emphasized, for they the first attempt by the Government to incorporate are an important part of the economic and social the concept of sustainable development into a com- fabric of Canadian society. prehensive policy document in the natural resources area. It incorporates many of the principles found Yet, as we look ahead to the future of Canada’s in the , and supports minerals and metals industry, dramatic change the Government’s agenda for jobs and growth by is occurring. This change is brought on by several presenting a framework that promotes the industry’s challenges: prosperity in Canada. • concerns about the state of our natural environment; In the 1996 Speech from the Throne, the Government stated its willingness to withdraw from functions, • rapidly growing competitive forces brought on by in such areas as mining, that are more appropriately globalization and the emergence of new mineral- the responsibility of provincial governments, local producing countries in the developing world; authorities or the private sector. The Policy gives effect to the Speech from the Throne by: • a need for a more efficient and effective federation; and Creating Opportunity • affirming provincial jurisdiction over mining; • the need to achieve sustainable development. • delineating a new role for the federal government in minerals and metals that is tied to core federal The new Minerals and Metals Policy addresses these responsibilities; and challenges and responds to important government • committing the Government to pursue partnerships commitments. For example, in , A Guide with industry, the provinces and territories, and the Government acknowledged that sustainable to Green Government others in addressing issues within its jurisdiction. development must be integrated into the way the Government defines its business and makes its decisions. It also made jobs and growth the centrepiece The Policy flows out of an intense consultative of its agenda for the 1990s, and committed itself to process with all stakeholders. It represents an the renewal of Canada’s rural regions. In important source of guidance to federal decisions on minerals and metals in the context of sustainable Mining Agenda, the Government elaborated upon its commitment to a sustainable development development. For example: approach. All ministers undertook to ensure that • it sets parameters for federal decisions on minerals the concept is given due consideration in their and metals, including a recognition of the need respective mandates. for sound science, the importance of global markets, and the benefits of both regulatory iii In the , the Government made a and non-regulatory approaches in pursuing commitment to update the 1987 Mineral and Metal environmental protection; Policy and to formulate a strategy for the sustainable • it commits the Government to continued efforts environmental and social objectives. This shift to a to secure international mineral investment for multi-disciplinary approach in decision-making will Canada and notes the importance of a fiscal and not happen overnight, but I am confident that if we tax environment that recognizes the special chal- continue to work together, we will be able to achieve lenges of the industry and its global context; and our goal of an economically, environmentally and socially sustainable minerals and metals industry. • it enunciates the Government’s support of the principle of safe use of minerals and metals In times of change, challenges can and should be and engages the Government to advance this turned into opportunities. The Government remains principle both domestically and internationally. committed to a prosperous Canadian minerals and metals industry. The Minerals and Metals Policy Turning the concept of sustainable development into provides the Government with the direction and practice will require stakeholders to question their decision-making tools that will help to ensure old assumptions, and to examine minerals- and metals- that the industry flourishes into the 21st century. related issues in light of the integration of economic,

Minister of Natural Resources Canada

iv Executive Summary

The Minerals and Metals Policy of the Government of Canada: Partnerships for Sustainable Development

In light of the foregoing, the Policy has six major objectives:

• integrating the concept of sustainable development in federal decision-making affecting the minerals and metals industry; Part(the Policy) I. Introduction describes, within areas of federal jurisdiction, the Government’s role, objectives • ensuring the international competitiveness of and strategies for the sustainable development Creating Canada’s minerals and metals industry in the of Canada’s mineral and metal resources. These Opportunity, context of an open and liberal global trade and are set out in eight separate parts. A Guide to Green Government, Toxic Substances investment framework; Management Policy, • advancing the concept of sustainable develop- Whitehorse Mining Initiative (WMI) Leadership ment of minerals and metals at the international CouncilThe Policy Accord. builds on important commitments and initiatives of the Government including level through partnerships with other countries, the Government’s Mining Agenda, stakeholders, and multilateral institutions and the organizations; and the principles and goals • establishing Canada as a global leader in promot- of the ing the safe use of minerals and metals, and their It does this by contributing to three related products; key elements of the Government’s agenda: promoting economic growth and job creation, furthering an • promoting Aboriginal involvement in minerals- efficient and effective federation, and meeting the and metals-related activities; and Part II. Federal Decisions in Minerals challenge of sustainable development. •andproviding Metals: a Implementingframework for the adevelopment Sustainable Developmentand application Approach of science and technology to Minerals and metals are of vital interest to Canada enhance the industry’s competitiveness and and are relevant to federal policies and programs environmental stewardship. because of their substantial contribution to Canada’s social and economic well-being. Two important and inter-related developments have implications for Canada: the globalization of the industry, and the mounting need for governments around the world To achieve sustainable development, environmental, to collaborate in the development of solutions to economic and social considerations must be taken environmental concerns and other challenges. into account as early as possible in the decision- making process. To help the Government meet this Provincial governments are responsible for mining challenge in the area of minerals and metals, the within their respective jurisdictions. In this context, the Policy enunciates a number of principles for sustain- Government’s role in minerals and metals has been able development-based decision-making, including: more sharply focused on core federal responsibilities, including international trade and investment, science • a responsive public policy framework; and technology, environmental protection, and • the role of the market mechanism; Aboriginal affairs. The Government is committed to forging enhanced partnerships with others in • the role of regulation; exercising its responsibilities in minerals and metals. • the role of non-regulatory approaches;

The Government has adopted the Brundtland • the importance of science; Commission’s definition of sustainable development. • endorsement of the concept of pollution v The Policy applies this definition by identifying the prevention; key elements of sustainable development in the context of minerals and metals. Part III. The Business Climate: Ensuring the Competitiveness of Canada’s •Mineralsaffirmation and of Metals the precautionary Industr yprinciple; and Recycled minerals and metals constitute an important source of secondary materials for industry, and • recognition of the polluter pays principle. generate environmental benefits. As a consequence, the Government will work to: enhance the efficiency and effectiveness of regulations; promote a more efficient metals recycling industry in Canada; advance recycling as a feature of product design; and, at the Canada must compete as never before to attract international and domestic levels, promote common investment capital to sustain its minerals and metals approaches to the definition of waste (including industry. In this environment, all governments must a distinction between metal-bearing recyclables work together to ensure that a positive investment destined for recovery and wastes destined for climate is maintained. As a consequence, the Govern- final disposal). ment makes a series of commitments in the spheres of finance and taxation, regulatory efficiency, and The federal government has a role to play in the investment and export promotion. reclamation of mine sites within its areas of responsibility, including establishing fiscal and regulatory The Government affirms its support for the creation conditions respecting reclamation for mine develop- of a Canadian Securities Commission, in partnership ment on federal lands. The Policy recognizes the with interested provinces, and establishes four princi- need to clean up those abandoned and orphaned ples to guide the development of all federal fiscal mine sites within federal jurisdiction that represent measures affecting the minerals and metals industry. an unacceptable risk to the environment or human The Government also sets out a seven-item checklist health and safety. It also acknowledges the need for the development of any new federal regulatory for site owners, where they can be identified, to processesPart IV. thatMinerals, affect minerals Metals and and metals. Society: As well, pay for clean-up costs. Promotingthe Policy states Products, that the industry Markets must and continue to assume greater responsibility for environmental Stewardship Land access for mineral exploration and development performance and for stewardship of minerals and is necessary if the minerals and metals industry is metals throughout their life cycle. to continue to contribute to Canada’s economic and social well-being. In re g a rd to Canada’s ocean territory, that access will be determined through an integrated oceans governance strategy adopted by the Govern- ment. In addition to land access, governments must The Government supports the responsible use and Safe Use Principle. provide reasonable certainty to the industry that management of minerals and metals. Given Canada’s when it finds a mineral deposit, it can develop role as a world leader in the production of these com- Safe Use Principle that deposit. modities, managing issues related to health and the e n v i ronment is a policy priority. The Policy intro d u c e s The Government affirms its commitments respecting an approach to the responsible use and management the completion of the National Parks network and the of minerals and metals called the establishment of National Marine Conservation Toxic Substances Areas. It also remains committed to identifying and The takes a life cycle-based Management Policy protecting terrestrial and marine critical wildlife approach to the use and management of minerals habitat in Canada, and developing and implementing and metals, including the application of risk assess- protected area strategies for federal lands and waters. ment and management strategies, in accordance with In meeting these commitments, the Government will well-established stewardship practices. The Principle follow certain guidelines that recognize the important builds on and complements the economic and social role played by the minerals and vi (TSMP). In doing so, it sends metals industry in Canada. the message domestically and internationally that minerals and metals and their products can be used safely and responsibly. Part V. Aboriginal Communities: Promoting Involvement in Minerals and Metals Activities

The Government will pursue the following strategic, long-term directions in S&T related to minerals and metals: Aboriginal concerns and interests in relation to • providing a comprehensive geoscience mineral development are important factors in the information infrastructure; Government’s policy approach. The Government also respects existing provincial, territorial and municipal • supporting a sustainable minerals and metals mechanisms for mineral development. Within matters industry (through the use of S&T to promote of federal jurisdiction, it promotes cost-effective technological innovation both in mining regimes for the sustainable development of minerals operations and in the safe and efficient use and metals on lands under claim, settlement areas, of minerals and metals); and Indian reserves. • enhancing the health and safety of Canadians;

The Government affirms its support for the timely •Partpromoting VII. Minerals the competitiveness and Metals of atthe theCanadian resolution of land claims to remove uncertainty over Internationalindustry; and Level: Providing Leadership the ownership and use of land and resources, as well in the Implementation of Sustainable Development• developing value-added mineral and metal as to encourage self-reliance by Aboriginal communi- products. ties and promote their participation in economic opportunities.

The Government acknowledges Aboriginal concerns about the effect of mineral exploration and develop- Agenda 21. ment on traditional lifestyles and the environment, Canada plays a leadership role at the international as well as the desire of Aboriginal peoples to be level, deriving from its position as the world’s largest Partinvolved VI. inScience decision-making. and Technology: Collaboration Progress between exporter of minerals and metals and a major player in thethrough industry Innovation and Aboriginal communities is encour- the promotion of sustainable development, including aged. The Government supports partnership the implementation of the Rio Summit’s approaches involving Aboriginal communities The international nature of many of the pressures on and the industry. the sector and the lessons learned to date, including the potential of initiatives aimed at environmental, health and social concerns to affect the competitiveness and acceptability of minerals and metals in Science and technology (S&T) play a critical role the marketplace, requires an effective and flexible in the health and well-being of Canadians, our ability response by the Government. to protect the environment, and our success in creating jobs and fostering economic growth. Federal S&T The Government reaffirms its commitment to a activities that are based on associated goals (i.e., job liberalized, predictable, rules-based international creation and economic growth, improved quality trading and investment regime. It also sets out of life, and the advancement of knowledge) will objectives and conditions for the promotion of the continue to support sustainable development sound management of minerals and metals through objectives. In addition to focusing on these goals Safe Use Principle. a variety of instruments from legally binding agree- in an integrated manner, the Government supports ments to government-sponsored non-regulatory the development of stronger science-policy linkages. approaches to voluntary industry initiatives. Central to the Government’s approach are the In this light, the Government is committed to concepts of risk assessment, risk management, pursuing a number of goals related to Canada’s and the application of the The vii S&T activities in relation to minerals and metals. It Government reaffirms the value of bilateral and also affirms its commitment to promote partnerships regional cooperation, and makes a commitment among stakeholders in pursuing these goals. Part VIII. Measurement and Follow-Up to continue to provide technical cooperation based on Canada’s solid foundation of minerals- and metals-related knowledge, expertise and world- class technology.

Part VIII focuses on the effective implementation of the Policy, noting the importance of developing sustainability criteria and indicators related to minerals and metals. The Policy recognizes the need for ongoing accountability for, and assessment of, results that flow from the Policy. To this end, the Minister of Natural Resources, in cooperation with other federal departments and agencies, will issue periodic progress reports on its implementation.

viii Table of Contents Page

FOREWORD ...... iii EXECUTIVE SUMMARY ...... v I. INTRODUCTION ...... 1

Purpose ...... 1 ...... 1 ...... 1 ...... 2

The Relevance of Minerals and Metals to Canada ...... 2

• Promoting Economic Growth and Job Creation ...... 2 • Furthering an Efficient and Effective Federation ...... 2 The Role• Meeting of the Federal the Challenge Government of Sustainable in Minerals Development and Metals ...... 3 ...... 3 • The Economic Contribution of .Minerals ...... and . . . Metals...... 3 • The Globalization of the Minerals . . and. . . .Metals . . . . . Industry...... 4 Defining Sustainable Development in the Context of Minerals and Metals ...... 4

The Objectives• Provincial of the Jurisdiction Minerals and Metals Policy ...... 5 II. FEDERAL• Core DECISIONS Federal Responsibilities IN MINERALS AND METALS: IMPLEMENTING A SUSTAINABLE DEVELOPMENT APPROACH ...... 6 • Progress through Partnerships Sustainable Development as the Integration of Environmental, Economic and Social Objectives in Decision-Making ...... 6 Principles for Sustainable Development-Based Decision-Making ...... 6 ...... 6 ...... 6 ...... 6 ...... 6 ...... 6 •A Responsive Public Policy Framework ...... 7 • The Role of the Market Mechanism ...... 7 • The Role of Regulation ...... 7 • The Role of Non-Regulatory Approaches III. THE BUSINESS CLIMATE: ENSURING THE COMPETITIVENESS • The Importance of Science OF CANADA’S MINERALS AND METALS INDUSTRY ...... 8 • Endorsement of the Concept of Pollution Prevention Attracting Investment: “Canada is Open for Business and Committed to Sustainable Development” . . 8 • Affirmation of the Precautionary Principle ...... 8 Finance• Recognitionand Taxation of the Polluter Pays Principle Regulatory Efficiency ...... 9 Helping Exporters of Minerals and Metals and Related Products and Services ...... 10

ix IV. MINERALS, METALS AND SOCIETY: PROMOTING PRODUCTS, MARKETS AND STEWARDSHIP ...... 11

The Policy Significance of Environmental Issues Related to Minerals and Metals ...... 11 ...... 11 ...... 11

Health and the Environment ...... 11 ...... 11

• Life-Cycle Management ...... 12 Recycling• Risk of MineralsAssessment and and Metals Management ...... 12 Mine Reclamation ...... 14 Land• AccessThe Safeand UseProtected Principle Areas ...... 14 • Defining and Implementing the . Safe . . . .Use . . .Principle ...... 15 ...... 15 V. ABORIGINAL COMMUNITIES: PROMOTING INVOLVEMENT IN MINERALS AND METALS ACTIVITIES ...... 17 VI. SCIENCE AND TECHNOLOGY: PROGRESS THROUGH INNOVATION ...... 18 • Protected Areas Commitments Federal• ScienceEstablishing and Technology Protected Areas in Minerals and Metals ...... 18 The Importance of Partnerships ...... 18 Strategic Directions in Science and Technology ...... 19 ...... 19 ...... 19 ...... 20 ...... 20 ...... 21 • Providing a Comprehensive Geoscience Knowledge Base VII. MINERALS AND METALS AT THE INTERNATIONAL LEVEL: PROVIDING • Supporting a Sustainable Minerals and Metals Industry LEADERSHIP IN THE IMPLEMENTATION OF SUSTAINABLE DEVELOPMENT ...... 22 • Enhancing the Health and Safety of Canadians Trade Liberalization and Investment ...... 22 • Promoting the Competitiveness of the Canadian Industry ...... 22 Sound• ManagementDeveloping Value-Addedof Minerals and Mineral Metals and Metal Products Bilateral and Regional Cooperation ...... 24 Technical Cooperation ...... 24 Consultations with Stakeholders ...... 24 VIII. MEASUREMENT AND FOLLOW-UP ...... 25

Criteria and Indicators ...... 25 Implementation and Accountability ...... 25

x I. Introduction

The Minerals and Metals Policy of the Government of Canada: Partnerships for Sustainable Development The Government is committed to forging While the Minister of Natural Resourcesenhanced has partnerships… principal responsibility for this Policy, it also touches on the responsibilities and mandates of a number Creating Opportunity of other federal ministers. A Guide to Green Furthermore, this Policy is Government,sets out, within areasT ofoxic federal Substances jurisdiction, Management the intended to be consistent with Government’s role,1 objectives and strategies for the Policy. Sustainable Development and PURPOSEapproved government policies Mineralssustainable and development Metals: An Issues of Canada’s Paper, mineral and that advance the Government’s economic, social and metal re s o u rc e s . The Policy builds on relevant federal environmental agendas, including those related to, policy initiatives, including , for example, protected areas, toxic substances, and the Government’s Mining Agenda, fiscal matters. and the Promoting Economic Growth and Job Creation It also builds on which was The Policy contributes to three central elements of released by the Minister of Natural Resources in the federal government’s agenda: September 1995. That Paper developed a conceptual foundation for the application of sustainable development to minerals and metals. A cornerstone of the Policy is that the…the minerals minerals and and metals The PolicyLeadership re p resents Council an important Accord step by the federal metals industry is a major contributorindustry to Canada’s is a major government to advance the principles and goals economic well-being. It is also vitalcontributor to the economic to Canada’s of the Whitehorse Mining Initiative (WMI). WMI and social cohesion of many rural andeconomic remote well-being. participants – industry, the environmental community, communities. The Policy recognizes that Canada Aboriginal groups, labour, academics, and federal, faces i n c reased global competi- provincial and territorial governments – developed tion for investors and capital, in their a shared vision and that if this competition is of a “socially, economically and environmentally not adequately addressed, the sustainable, and prosperous mining industry, industry’s ability to generate underpinned by political and community consensus.” Furtheringwealth and employment an Efficient for Canadians and will seriously Effectivediminish. Consequently, Federation the document addresses In developing this document, the Government has those areas within federal jurisdiction that are impor- consulted widely with stakeholders, including tant to attracting new investment and establishing a provincial and territorial governments, as well positive investment climate internationally. as others associated with the WMI.

The Policy defines a flexible and supportive role for the Government of Canada towards the minerals and The Policy helps the federal government to meet its metals industry. It recognizes the responsibilities of commitment to define a renewed and more effective the provincial and territorial governments and their relationship with the provinces and territories need – with industry – to respond to their particular in the area of minerals and metals. The document circumstances and challenges. The Policy is not a is based on a fundamental recognition by the uniform, national blueprint for mineral development Government of Canada of provincial ownership or the implementation of sustainable development. and management of mineral resources. Within this This would be incompatible with Canada’s federal context, the Policy delineates a role for the federal structure, and the realities of both a large and government in relation to the Canadian minerals diverse country and a heterogeneous minerals and metals industry that is focused on core federal and metals industry. 1 1 Minerals are defined here as nonmetallic industrial minerals responsibilities. and coal. Metals are understood in the broad sense as all forms, i.e., metallic minerals, compounds, solutions, alloys, etc. The Minerals and Metals Policy

Meeting the Challenge of Sustainable Development

• generates substantial additional employment for Canadians, not only in mineral exploration, The Government is committed to meeting the challenge p roduction and processing, but also in enviro n- of sustainable development in its policies and pro g r a m s . m e n t a l services and in a range of supporting, The Policy supports this goal by defining sustainable value-added and down-stream sectors such development in relation to minerals and metals, and as transportation, equipment maintenance, outliningTHE RELEVANCE a federal approach OF MINERALS to decision-making for specialized equipment manufacturing, semi- mineralsAND METALS and metals TO issuesCANADA based on this important fabrication, fabrication, and construction. concept. It also sets out policy and science directions The Globalization of the Minerals for addressing specific minerals- and metals-related andMany Metals of the factors Industr that yaffect the ability of the concerns in the context of sustainable development. minerals and metals industry to continue to make this contribution are within the policy purview of the federal government. The Economic Contribution of Minerals and and metals Metals are, and will continue to be, of vital interest to Canada and, consequently, to federal policy and program agendas in the years ahead. The second reason why minerals and metals will There are two reasons for this: continue to be important to the federal government has two inter-related dimensions: 2 • the increasingly global nature of today’s minerals and metals industry; and Canada’s minerals and metals industry: • the mounting need for governments around • is a world leader in the production of many the world to collaborate in the development mineral and metal commodities, of which of solutions to environmental concerns and approximately 80 percent are exported; other challenges. • is a capital-intensive, high-technology-driven industrial sector that plays an important role The globalization of the industry and the international in Canada’s “new economy” as a purchaser of scope of many issues, including environmental con- advanced technological goods and services, a sup- cerns, has changed the landscape for policy-making plier of new materials, and a significant employer; in ways that are being addressed by the federal government. New issues frequently, and sometimes • is one of the few industrial sectors that consis- u n e x p e c t e d l y, emerge beyond…Canada our borders, must challengingcontinue to tently contributes to Canada’s balance of trade – the Government to respondbe in an an active,effective effective and flexible and representing over one third of our merchandise manner. International organizationsinfluential and partner institutional on the trade surplus in 1995; mechanisms have become internationalimportant venues stage… for • accounts for almost 60 percent of the volume resolving social, economic and environmental concerns. of Canada’s rail and intra-coastal freight; As a consequence, Canada must continue • currently employs more than 340,000 Canadians to be an active, effec- and sustains or contributes to the economic tive and influential viability of over 150 communities, mostly in partner on the interna- rural and remote areas of Canada; and tional stage, both at the multilateral and bilateral 2 For the purposes of this Policy, the minerals and metals levels. We will need to forge stronger partnerships industry is defined as including: Stage I: primary mineral production (exploration, with countries that share our views and concerns, 2 mining and concentrating); and to promote our interests vigorously and persua- Stage II: metal production (smelting and refining); sively in all international spheres in order to manage Stage III: minerals and metals-based semi-fabricating indutries; and effectively our participation in international organiza- Stage IV: metal fabricating industries. tions, processes and relations. Partnerships for Sustainable Development

General Agreement on Tariffs and Trade THE ROLE OF THE FEDERAL GOVERNMENT IN MINERALS AND METALS Provincial Jurisdiction Globalization presents both challenges and opportu- e m e rging domestic issues that may affect the minerals nities for Canada. Successive trade liberalization and metals industry. efforts by the members of the /World Trade Organization (GATT/WTO) have resulted in markets that are m o re open to exports of Canadian minerals and metals and their products. The conclusion of the GATT Uruguay Provincial governments are responsible for mining – Round of multilateral trade negotiations promises to the exploration for, and the development and extrac- extend these open markets to trade in services and tion of, mineral resources, and the construction, eventually foreign investment. management, reclamation and close-out of mine sites – within their jurisdiction. Comparable, direct federal Concurrent with this trend towards more open trade involvement in the regulation of mining operations and a greater reliance on trade rules, there has also is limited and specific in nature. It includes uranium been a significant change in attitudes towards foreign in the context of the nuclear fuel cycle (i.e., from investment. Where many governments were once hes- exploration through to its final disposal, including itant to accept this investment in their minerals and both reactor and mine waste), mineral activities re l a t e d metals sector, they now actively compete to attract it. to federal Crown corporations, and mineral activities As a consequence, Canada must compete aggressively on federal lands and in offshore areas. for a share of finite investment capital. All governments in Canada must work together to ensure that a In particular, the federal government,Provincial through governments are positive investment climate is maintained and that the Department of Indian Affairsr esponsibleand Northern for mining… potential foreign investors are made aware of what Development, is directly responsible for mining …CanadaCanada has must to offer compete as a destination for capital. The aggressively for a share of activitiesGovernment, North however, of 60°, including is committed mineral to reducing exploration finite investment capital. andits role extraction, North of the 60 development,° by devolving management provincial-type and As a world leader in the exploration for, and produc- reclamation of mine sites, tion and export of, minerals and metals, their pro d u c t s , jurisdictional responsibilities to the territorial governments.and the collection of resource and related services, Canada also has considerable revenues and royalties interest and expertise in in the Yukon and Northwest Territories. questions involving these commodities in relation to human health and Core Federal Responsibilities the environment. Canadian industry and govern- Devolution of these responsibilities ments have made substantial progress in avoiding will result in “made in the North” decision-making or mitigating the adverse environmental effects of concerning the development of mineral re s o u rces minerals- and metals-related activities and products. in the Te r r i t o r i e s . However, t h e re remains an ongoing need for policy c o o rd i n a t i o n to promote the efficient use of scientific and other resources. Since 1994, the federal government has reduced and refocused its role in minerals and metals. For example, The growing influence on domestic issues of interna- it has withdrawn from programs providing direct tionally driven initiatives and trends must also be financial support to the industry and has significantly reflected in domestic policy- and decision-making streamlined the organization and budget of Natural p rocesses. In a global economy, the federal government Resources Canada, the focal point of minerals and must be sensitive to international developments in metals activities at the federal level. This action order to maintain competitiveness and ensure that reflects the Government’s commitment – which was policy responses at the international level do not have also expressed in the 1996 Speech from the Throne –3 a negative impact on national interests. As a conse- to operate only in areas of federal jurisdiction, and quence, the Government must take international fac- to do so in a cost-effective manner. tors into account in assessing and responding to The Minerals and Metals Policy

This action reflects the overnment’s commitment… to operateWhile only its in direct areas involvement of in mining operations is business in the minerals and metals area. Partner- federallimited, jurisdiction… and its minerals- and metals-related activities ships with other stakeholders, particularly the are reduced and streamlined, the Government recog- industry and non-governmental organizations, are nizes the importance of the also important factors in the federal government’s industry to Canadians. It also approach to managing minerals and metals issues clearly understands that its within its jurisdiction. policies – particularly those of a fiscal nature – and its various Building and strengthening partnerships and using As a priority, therefore, the Government’s responsi- regulatory responsibilities in areas such as environ- consultative approaches are also important aspects bilities will be exercised and solutions achieved by mental protection, fisheries management, navigable of ensuring Canada’s continued influential role in strengthening existing collaborative and consultative waters, and taxation, significantly affect the minerals international organizations and other global fora mechanisms. Where appropriate, new bilateral and and metals industry. Core federal responsibilities that touch on minerals and metals issues. multilateral vehicles will be developed in an eff o r t relevant to the industry include: to reflect the diversity of stakeholder interests. • international affairs, trade, and investment;

• fiscal and monetary policy; • science and technology;

• Aboriginal affairs;

• Crown corporations and federal lands; WhileDEFINING nurturing SUSTAINABLE these partnership DEVELOPMENT vehicles, the IN • environmental protection and conservation GovernmentTHE CONTEXT remains OF committedMINERALS to eliminatingAND METALS any (a shared responsibility with the provinces); remaining inefficiencies resulting from shared jurisdictions and developing more efficient and effective • integrated management of ocean-related arrangements for the delivery of services. activities; • fisheries and fish habitat management; “development that meets the needs of the present without • navigable waters management; The World Commission oncompromising Environment and the ability of future generations to meet • health (a shared responsibility with the Development (the Brundtland Commission) defined their own needs.” provinces); sustainable development as “development that meets the needs of the present • national coordination of joint federal-provincial without compromising responses to policy issues; the ability of future • international developmental assistance; generations to meet their own needs.” • regulation of all activities related to mineral This definition has been Progressdevelopment through in the Partnerships territories; accepted by the Government of Canada and represents a point of departure for applying the concept • national information and statistics on minerals to minerals and metals. As a building block of this and metals; and Policy, sustainable development in the context of • nuclear energy, including uranium mining. minerals and metals is considered as incorporating the following elements:

• finding, extracting, producing, adding value to, Partnerships with the provinces in their role as using, re-using, recycling and, when necessary, dis- owners and managers of mineral resources are an 4 posing of mineral and metal products in the most essential and fundamental feature of how the federal e f ficient, competitive and environmentally re s p o n - government does, and will continue to, conduct sible manner possible, utilizing best practices; Partnerships for Sustainable Development

• respecting the needs and values of all resource • to provide a framework for the development users, and considering those needs and values and application of science and technology to in government decision-making; enhance the industry’s competitiveness and environmental stewardship. • maintaining or enhancing the quality of life and the environment for present and future generations; and Within these broad objectives are specific policy initiatives and approaches that constitute the • securing the involvement and participation Government of Canada’s strategy for minerals of stakeholders, individuals and communities and metals. Consistent with federal fiscal objectives, in decision-making. all activities are to be undertaken within available financial resources. In defining sustainable development in the context of THEminerals OBJECTIVES and metals, OFit should THE MINERALSbe recognized that the economicAND METALS and social POLICY benefits of mineral development are not all consumed by the present generation. Current investments in human and physical capital benefit future as well as present generations.

In meeting the desire of Canadians for economic growth and job creation, a more efficient and effective federation, and the implementation of sustainable development, the Government of Canada has established in this document six principal policy objectives:

• to integrate the concept of sustainable development in federal decision-making affecting the minerals and metals industry;

• to ensure the international competitiveness of Canada’s minerals and metals industry in the context of an open and liberal global trade and investment framework; • to advance the concept of sustainable development of minerals and metals at the international level through partnerships with other countries, stakeholders, and multilateral institutions and organizations;

• to establish Canada as a global leader in pro m o t i n g the safe use of minerals and metals, and their related products;

• to promote Aboriginal involvement in minerals- and metals-related activities; and 5 The Minerals and Metals Policy

II. Federal Decisions in Minerals and Metals: Implementing a Sustainable Development Approach alternative activities and investments. The Government SUSTAINABLE DEVELOPMENT AS THE recognizes that the industry must compete interna- INTEGRATION OF ENVIRONMENTAL, tionally on the basis of production costs. In such an ECONOMIC AND SOCIAL OBJECTIVES environment, the viability of the minerals and metals IN DECISION-MAKING Theindustry Role cannot of Regulation be maintained through artificial support. Consequently, the Government is of the view that it is primarily the private sector that must assess the risks and marshall the resources for its investment decisions.

The exploration, development, production, use, Regulatory intervention is sometimes required re-use, recycling and disposal of minerals and metals to ensure that societal objectives are met. Indeed, inevitably involve the need to integrate enviro n m e n t a l , regulations play a central role in furthering the PRINCIPLESeconomic and socialFOR considerationsSUSTAINABLE in decision- Government’s efforts to protect the natural environ- making.DEVELOPMENT-BASED The sustainable development DECISION-MAKING challenge is ment, and public health and safety. The regulatory to ensure that each of these three elements is taken framework, however, should: into account fully and as early as possible in the decision-making process. • recognize, in the context of federal-provincial relations, the benefits of, and the need to strive to achieve, harmonization and the avoidance of duplication; A Responsive Public Policy Framework To ensure that environmental, economic and social • be performance-based rather than prescriptive; considerations are integrated effectively in its decisions on minerals and metals issues, the Government •Theminimize Role of uncertainty, Non-Regulatory delay and Approaches costs to ensure will be guided by the following principles: that Canadian resource opportunities can compete in a global marketplace; and

• take full account of underlying market forces. The minerals and metals industry re q u i res a stable and predictable public policy framework that is responsive to the particular conditions that characterize Non-regulatory approaches sometimes offer the most it, including the risks associated with exploration efficient means of meeting a desired policy objective, investment, the long lead times and high costs of and are thus important to governments and industry bringing a project into production, and the cyclical as a complement to regulation. These approaches n a t u re of commodity markets. include environmental performance agreements, memoranda of understanding, codes of practice, As well, the framework should recognize that mining Theguidelines, Importance and other of voluntary Science initiatives. Important operations can put stresses on the environment, and features are provisions to ensure inclusiveness in that they must be undertaken in a cost-effective man- policy development processes, transparency of ner that minimizes or mitigates adverse enviro n m e n t a l decisions, accountability for results, and recourse Theand social Role impacts. of the Consequently, Market Mechanism government decision- in the event of unacceptable performance. makers should incorporate the principles of sustainable development into their respective policy frameworks to ensure that these impacts are addressed in their Federal policy decisions – in both the domestic and review and decision-making processes. international context – should be based on the best 6 available information and science. The importance of science to proper risk assessment is also The competitive market mechanism is the most acknowledged. effective means of allocating resources among Partnerships for Sustainable Development

Endorsement of the Concept of Recognition of the Polluter Pays Principle Pollution Prevention Pollution Prevention: A Federal Strategy for Action

The polluter pays principle, as expressed in Principle 16 The Government’s of the Rio Declaration, is also an important factor. It defines pollution prevention as provides that: the use of processes, practices, materials, products or energy that avoid or minimize the creation of “National authorities should endeavour to pollutants and wastes, and reduce the overall risk promote the internalization of environmental to human health and the environment. Pollution costs and the use of economic instruments, Affirmation of the Precautionary taking into account the approach that the preventionPrinciple encourages the kinds of changes that are likely to lead to lower production costs, increased polluter should, in principle, bear the cost efficiencies and more effective protection of the of pollution, with due regard to the public environment. interest and without distorting international trade and investment.”

The precautionary principleRio is Declarationan important on factor whenEnvironment the Government and Development needs to make a decision in the face of scientific uncertainties about cause and effect, and when the potential environmental consequences are generally considered to be serious or irreversible. This principle was enunciated clearly as Principle 15 in the 1992 (the Rio Declaration) of the United Nations Conference on Environment and Development (UNCED), to which Canada is a signatory: “Where there are threats of serious or irreversible damage, lack of full scientific certainty shall not be used as a reason for postponing cost-effective measures to prevent environmental degradation.”

The principle complements science-based approaches for the management of risks. Its use is premised on the recognition that our scientific understanding of the potential magnitude and consequences of impacts on human health and the environment of the production and uses of some minerals and metals may be incomplete. While there is a need to work toward closing such gaps in our understanding, there is also a requirement, where potential impacts are “serious or irreversible,” to consider a cost-effective precautionary approach.

7 The Minerals and Metals Policy

III. The Business Climate: FINANCE AND TAXATION Ensuring the Competitiveness of Canada’s Minerals and Metals Industry

ATTRACTING INVESTMENT: “CANADA IS Canada has become one of the world’s principal OPEN FOR BUSINESS AND COMMITTED venture capital markets for mineral exploration TO SUSTAINABLE DEVELOPMENT” and development. ObstaclesCanada remain, hashowever, become to theone of ready access by firms to riskthe capital. world’s Consequently principal ventur, e the Government supports, incapital partnership markets with for mineral interested provinces, the reductionexploration of the multipleand s e c u r i t i e s-related regulatorydevelopment. requirements for raising investment funds through the develop- With the globalization of capital markets and the ment of a Canadian liberalization of investment regimes around the Securities Commission world, Canada must compete, as never before, and other appropriate for mineral investment capital. Given comparable mechanisms. Such action geological potential, mineral capital will be attracted would help make securities regulations and capital to countries that are politically stable and that have markets across Canada more coordinated and competitive tax rates, efficient infrastructure, a skilled efficient, thus facilitating the raising of risk labour force, and efficient and predictable policies capital, especially for the junior sector. and regulations. The Government’s fiscal regime is an important In this environment, all governments in Canada must component in promoting investment, maintaining work together to ensure that a positive investment competitiveness and ensuring a positive investment climate is maintained, and that domestic and foreign climate. The Government has introduced many investors are adequately and accurately informed important fiscal improvements. These have been about the quality of that investment climate. These based on the principles of fairness, simplicitythe, challenges require two related initiatives by govern- Governmenteconomic growth, will: stability of revenues, and ments: the improvement of the investment climate competitiveness. through policy, regulatory and fiscal reforms, and the afford the minerals and metals industry fiscal effective promotion of the improvements achieved In developingtreatment newthat recognizesfiscal measures, exploration and in r risk,e c o g n ore i t i o n through those reforms. Significant progress has been of thereserve important risk, roleand thatother the specific minerals risks and unique metals to made by the federal government in both regards. industrythe sector; plays in the Canadian economy, Nevertheless, room for improvement remains. the provide, to the extent possible, fiscal treatment Government will continue to promote Canada as to the Canadian industry that is competitive with Efforts by the Government to address the challenge • a leading source of mineral and metal commodities, the type of treatment afforded by other govern- of improving the investment climate are outlined minerals- and metals-related semi-fabricated and ments to mineral developers and producers below. fabricated products, and minerals- and metals-related operating in their jurisdiction; technology and services To address the need to inform investors, • seek to ensure that government measures aimed at cost recovery reflect the cost of providing the goods or services received

, including technology and consulting services in such fields as mineral explo- • ration, environmental protection and management. It will undertake these activities in close collaboration . Such measures 8 with the industry and provincial and territorial should also be developed in consultation with governments, utilizing the “Team Canada” approach. industry and take into account competitiveness concerns; and Partnerships for Sustainable Development

within areas of federal jurisdiction, maximize the benefits for Canadians of their mineral resource endowment by ensuring that royalty rates and mining taxes are set at an equitable l e v e l

• • develop, in consultation with the provinces and territories, national goals and standards, particularly in air and water quality, the application of which may take into account the local and REGULATORY, taking intoEFFICIENCY account the industry’s need to regional variability of natural environments realize a return on its investment that is reflective as determined by scientific studies; of the risk taken and opportunity costs involved, • ensure that regulatory processes are clear, coordi- and bearing in mind that Canada’s mineral nated in their delivery, and administered with endowment is largely a publicly owned resource. minimal delay; include time lines, wherever possible; maintain procedural fairness; and achieve their objectives in a cost-effective manner; Regulatory instruments are an important means for the federal government to achieve public policy • ensure that the design or amendment of regula- objectives. The efficiency and effectiveness of these tions is based on a sound, scientific approach and regulatory regimes have a substantial impact on a cost-benefit analysis, and that administration Canada’sThe investment efficiency climateand and the international and enforcement are supported by the monitoring effectivenesscompetitiveness of…regulator of Canadiany mineral producers. of environmental effects to ensure compliance regimes have a substantial and verify environmental or human health The Governmentimpact on Canada’ recognizess the vital role that impacts; and investment climate… regulations play in achieving Canada’s enviro n m e n t a l , • provide monitoring and reporting on progress economic and social in regulatory reform so that the Canadian public objectives. It also can judge progress in achieving…encourage sustainable the minerals clearly understands development goals. and metals industry to thethe Government need to ensure is com that- continue to assume greater they do not impose mitted to continuing to streamline environmental Consistent with the partnership approachresponsibility taken in for environ- unnecessary costs and regulations affecting mining, while maintaining this Policy, and building on its beliefmental that traditional performance…and other burdens on minerals and metals activities. high standards of environmental protection regulatory approaches should to be a steward for miner Regulatory reform, as an ongoing process, con- be complemented by non- als and metals throughout tributes to a more efficient national environmental regulatory measures, the their life cycle… framework. Consequently, Government will also encourage the minerals and metals industry to continue to assume . In greater responsibility for envi- undertaking those reforms, and in establishing any ronmental performance wher- new regulatory processes, the Government will: ever it operates, and to be a s t e w a rd for minerals and metals throughout their • ensure the early involvement of stakeholders in Canada life cycle in a manner that is transparent and, where defining a problem and developing regulatory Labour Code approaches; possible, measurable.

• ensure that a broad range of non-regulatory The Government is also committed to improving approaches are considered as alternatives or regulatory efficiency in uranium mining and milling. complements to regulation prior to making To facilitate this, it recently amended the any decisions to develop new regulations; to allow for the delegation of regulatory • strengthen processes for federal-provincial coop- responsibilities for labour matters, including conven- eration and harmonization (e.g., environmental tional occupational health and safety, to the pro v i n c e s. management and freshwater fish habitat protec- The Government will work closely with provincial 9 tion), notably through multilateral, bilateral, governments, particularly the Government of industry-specific or project-specific agreements; Saskatchewan, to negotiate the transfer of these regulatory responsibilities to them when reasonable and practical. The Minerals and Metals Policy

HELPING EXPORTERS OF MINERALS AND METALS AND RELATED PRODUCTS AND SERVICES

the Government recognizes the need to cooperate with industry to facilitate enhanced exports and access to both traditional and new markets Both commercial and non-commercial factors play a major role in the sourcing decisions of customers. For this reason,

, bearing in mind that the marketing of products and services remains a private sector responsibility. In this context, the Government will:

• provide timely, relevant and incisive market intelligence and reporting as a complement to private sector efforts; • work to raise the profile of Canadian mineral and metal products and services, including environmentally related products and services in traditional and new markets; and

• continue to emphasize the need for greater market transparency for minerals and metals and the value of intergovernmental commodity study groups and other such information-sharing mechanisms.

10 Partnerships for Sustainable Development

IV. Minerals, Metals and Risk Assessment and Management Society: Promoting Products, Markets and Stewardship

THE POLICY SIGNIFICANCE OF ENVIRONMENTAL ISSUES RELATED TO MINERALS AND METALS Life-cycle management of minerals and metals involves the application of risk-assessment and risk-management approaches: • Risk assessment estimates the degree and likeli- hood of adverse effects resulting from exposure to a substance from a process or product. HEALTH AND THE ENVIRONMENT • Risk management is the process of deciding what Minerals and metals are naturally occurring substances The Safe Use Principle that are indispensable materials for the development to do about an assessed risk, taking into account Safe Use Principle of human societies. While it is recognized that trace the results of the assessment as well as legal, amounts of a number of minerals and metals are economic and social factors. essential to all life forms, the extraction and processing, as well as the particular uses, of certain minerals Safe Use Principle and metals can and have resulted in adverse effects on human health and the environment. The federal The is an extensionThe Safeof life-cycle Use Principle… government is committed to mitigating these effects recognizes that…minerals, management, and Tincorporatesoxic risk-assessment and through an improved scientific understanding of the metals and their products ca Substancesrisk-management Management principles. Policy Borrowed from occupa- role and behaviour of these substances, through the tional health and safety terminologybe produced, and focused used, re - u s e d , implementation of sound risk reduction and manage- on use, the integratesrecycled the and notion re t u rn e d to the ment strategies, and through the administration of of “risk” with “use.” As well, environment in a manner its jurisdictional responsibilities concerning human it builds on and complements that is consistent with health and the environment. the Government’s sustainable development; Life-Cycle Management Given Canada’s role as a world leader in the (TSMP). The T S M P p ro v i d e s production of minerals and metals, the management a framework for making Safe of issues related to health and the environment is process product science-basedUse Principle decisions on a policy priority. the effective management of toxic substances that are Process of concern because they are or may be released to In managing minerals- and metals-related health the environment, or because CanadiansSafe Use may Principle be and environmentalproduction issues, the principle of life-cycle exposed to them through the environment. The management for both and life cycles sends the message domestically and plays an essential role: internationally that minerals and metals, and their products, can be used safely and responsibly. • life-cycle management applies to specific Productoperations and their associated risks in relation The TSMP, and by extension the , to the of minerals and metals, such recognizes two points pertinent to minerals and as exploration, extraction, processing, smelting metals and of importance to this Policy: and refining. It includes waste management, decommissioning and site rehabilitation. • naturally occurring substances, such as minerals and metals, cannot be virtually eliminated from • life-cycle management applies to specific the environment; and elements, substances or products and their associated risks based on assessments of all stages in • there are instances where certain products the cycle of manufacturing, use, re-use, recycling containing minerals and metals, or their uses, and disposal of that particular element, substance because of the associated risks, may be candi- 11 or product. dates for bans, phase-outs or virtual elimination of releases from specific anthropogenic sources. The Minerals and Metals Policy

Safe Use Principle,

Safe Use Principle. The in building on the TSMP, the following approaches both domestically and recognizes that: internationally. The Government will:

• minerals, metals and their products can be pro- • work with Canada’s minerals and metals industry duced, used, re-used, recycled and returned to to develop and implement strategies that pro m o t e the environment in a manner that is consistent the Such strategies would with sustainable development; include, for example, the adoption of steward- shipSafe programs Use Principle based on the life-cycle approach. • society enjoys important benefits from the use of The industry can and must play a leadership role these natural resources, in conjunction with their in addressing health and environmental issues sound management; related to minerals and metals; • certain mineral- and metal-containing products • e n s u re that Canada is a global leader in pro m o t i n g may pose risks to human health or the environ- the for environmental and ment and, as a consequence, need to be managed health initiatives of relevance to minerals, throughout their entire life cycle; metals and their products; and • naturally occurring inorganic substances, such as • promote effective mechanisms to obtain and minerals and metals, behave diff e rently than syn- coordinate input from the provincial and territor- thetic organic chemicals and, as a consequence, RECYCLING OF MINERALS AND METALS ial governments and others for the development The rGovernmente q u i re diff e rent supports risk-management the Safe Use approaches; Principle and of appropriate policy responses to scientific or and will promote its implementation domestically • minerals and metals, in and of themselves, are technological advances in the safe management and its adoption internationally as a policy approach not candidates for bans, phase-outs or virtual of minerals and metals and related products. for minerals and metals and their related products elimination. and uses.

Defining and Implementing the With world population growth and rising standards Safe Use Principle of living, global demand for minerals and metals – as essential raw materials for economic and social development – continues to increase. This growth in demand presents governments with a range of policy issues concerning the sustainable use of minerals and metals and their availability for future generations.

The concept of safe use provides an approach for There are a number of factors that will promote the minerals and metals that follows well-established continued availability of mineral and metal resources. stewardship practices. In practical terms, the While the pace of growth in demand dictates that Principle calls for an assessment of the risks at vari- virgin materials will remain the primary source of ous stages throughout the life cycle associated with mineral and metal commodities, another important the uses of a mineral- or metal-containing product. source is recycled materials. Because of their value, The results of the assessment are then used to deter- consistent performance characteristics, durability, mine the most appropriate management approaches chemical properties, and versatility of use, many to address these risks. It is generally accepted that, in minerals and metals can be re-usedRecycling almost extendswithout some cases, the risks associated with certain products limit. As a consequence, recycled materials are a Safe Use Principle, the efficient use of metals, reduces pressures on or product uses cannot be properly controlled or vitallandfills secondary and incinerators, source of supply, and results and arein major traded energy managed. Consequently, where such a situation on national and global markets based on long-term exists, the Government will either discontinue or contracts or at spot market prices. The fact that prohibit the specific product or product use. recycling generates environmental benefits is an 12 added and important dividend. In implementing the and in the context of the TSMP, the Government will take Partnerships for Sustainable Development

savings relative to the level of energy inputs required to produce metals from primary sources.

in keeping with the Government’s commitment to undertakeBasel Convention steps to derive on the a Transboundary logical definition of Movement“wastes” (the of Hazardous current definition Wastes and of Their ”wastes” Disposal. includes Given these substantial benefits to Canadians, the material destined for recycling) to be used in both Government of Canada, within its jurisdictional domestic and international legislation, and to exempt secondary materials containing metals used in responsibilities and resources, will: the Government recycling from the boundary restrictions imposed will continue to work with the provinces and its • work with the provinces and territories, industry, by the and other stakeholders to enhance the efficiency international counterparts to apply appropriate and effectiveness of regulations and remove movement and management controls to metals unnecessary impediments to recycling; in relation to their risk to human health and the Consequently,environment so as not to impede the continued • p romote a more efficient metals recycling use of these valuable resources, i n d u s t r y in Canada through better collection systems and technological advances in Canada-U.S. Agreement separation and recovery processes; on the Transboundary Movement of Hazardous Waste, • encourage the development of products that take Basel Convention. . In undertaking discussions on the into account recyclability in their design; and definition of waste, the Government will recognize • promote, in both domestic and international fora, existing international legal obligations, including the common approaches to the definition of waste OECD Council Decisions, the that underline the need to differentiate between metal-bearing recyclable materials destined for and the While the final outcome Recyclingrecovery extends operations the on the one hand, and wastes of domestic discussions on the management of efficientdestined use of metals… for final disposal on the other. recyclable metals is uncertain at this time, the Government will be guided by the following The lengthy history of metals recycling demonstrates precepts in seeking to ensure that it provides for: that domestic and international trade in recyclable • normal commercial controls for recyclable metals metals and metal-bearing and metal-bearing materials that do not exhibit materials generally operates hazard characteristics; on a commercial basis. These valuable metal commodities account for between • appropriate regulatory controls for recyclable 30 and 60 percent of the total world consumption metals and metal-bearing materials that exhibit of metals and should not be considered as wastes. hazard characteristics, but do not need to be managed as if they are hazardous wastes, and The Government recognizes that recyclable metals are whose risks to human health and the environ- c a p t u red by the current definition of “wastes” and that ment can be soundly managed under conditions this description can inhibit their use. The Government of normal use; and has further recognized that these metals are essential • hazardous waste-like regulatory controls for raw material components in metallurgical industries. recyclable metals and metal-bearing materials the that exhibit hazard characteristics and that, GovernmentThe Government will remains follow cognizanta risk-based of itsapproach international to despite management, continue to pose obligationsthe regulatory and management will continue of to recyclable consult with metals the unreasonable risks to the environment or andprovinces metal-bearing and other materials Canadian stakeholders in where there is a history of mismanagement. deliberations on the appropriate management of recyclable materials. In approaching these discussions, and without prejudice to their outcome, 13

. This direction is fully The Minerals and Metals Policy

MINE RECLAMATION

In addition to the need to address issues related to Mine reclamation seeks to rehabilitate a mine site to a present and future mine sites, the Government must viable,…the andGovernment wherever practicable, self-sustaining, ecosys- also deal with problems associated with past practices3 willtem continue that is compatibleto play a with a healthy environment and that are no longer permitted. Such practices have led centralother role human with respectactivities. The Government recognizes to numerous abandoned and orphaned mine sites, to thethat many the provinces scientific, oversee mine reclamation in their some of which pose a risk to the environment, technologicalrole as and owners economic and managers of mineral re s o u rces. The human health, or public safety. challenges associated federal government, however, with mine reclamation. has direct responsibilities in The Government will work with other governments this area in the Yukon and and industry to evaluate and develop alternative Fisheries Act, Northwest Territories,C a n aand d i a n financing mechanisms that are acceptable to all E n v i ronmental Assessmentin Act,relation to uranium. It also stakeholders. In addition, more information on the contributes to the resolution number and condition of these sites is re q u i red. It is of mine reclamation issues at re c o g n i z e d that initiatives are under way in some the Governmentthe national has level a role through in ensuring provinces to conduct a survey of abandoned and the administrationreclamation of ofcurrently the fish habitatoperating provisions and future of orphaned mine sites. The Government is aware of themine sites. Consequently,the administration it will ensure of the that: the need for action to clean up those abandoned and and through its tax orphaned mine sites within federal jurisdiction that policiespost-production and science and mine technology decommissioning activities. and represent an unacceptable risk to the environment or land reclamation are an integral part of the human health and safety. It also recognizes the need mine development process; In this context, forUranium the owner and Thorium of the site, Mining where Regulations one can be identified, to pay for the clean-up costs. financial provisions for the costs incurred in mine closure are accorded a level of priority similar to With respect to the reclamation of uranium mine • that given to start-up investment costs; and and mill tailings, the Government has taken a com- governments and industry work together to prehensive approach through amendments to the ensure that efficient mechanisms are developed and other • to finance responsible closure practices. means, under the aegis of the Atomic Energy Control Board. As a related initiative, the Government has LANDdeveloped ACCESS a policy AND framework, PROTECTED including AREAS financial and institutional responsibilities, for the disposal of • all radioactive wastes. The principles contained in the framework apply equally to all radioactive waste categories.

As well, the Government will continue to play a central role with respect to the many scientific, techno- For the minerals and metals industry to continue logical and economic challenges associated with mine to make its important contribution to the Canadian reclamation. Priority areas for federal science and economy, new mineral deposits must be discovered. technology (S&T) activities relating to this issue are The Government will ensure that, as a condition for As well, for Canada to realize the full potential of its described in Part VI. mine development on federal lands, comprehensive mineral endowment, the industry, within specified plans for the reclamation of disturbed areas are devel- limits, must have access to the widest possible land Consistent approaches, including continuous oped, including the provision of satisfactory financial base for exploration purposes. improvementassurances to coverbased the on coststhe principle of reclamation of best practices,and, 3 Abandoned sites are those sites where an owner/operator can a re essential for efficient and effective mine re c l a m a t i o n . be identified but who no longer actively manages the pro p e r t y, where necessary, long-term maintenance. and the rights have not yet reverted to the Crown. In some cases, the owner is insolvent or otherwise unable to pay for 14 reclamation. In other cases, the owner/operator may be able to pay but has neglected to institute the proper reclamation activities for other reasons. Orphaned sites are those sites where an owner/operator of the mine site can no longer be identified and where the mineral rights have reverted to the Crown. Partnerships for Sustainable Development

In the oceans territory of Canada, this access, as well • developing and implementing protected area as the conduct of minerals and metals activities, will strategies for federal lands and waters. The be integrated within an oceans governance strategy Government will continue to develop and imple- adopted by the Government. This strategy is based ment a comprehensive coordinated approach for on the integrated planning and management of the establishment of all categories of protected ocean-related activities to protect the health and areas in the Canadian offshore. In addition, prosperity of ocean systems. the governments of Canada and the Northwest Territories, Aboriginal groups and interested Along with access, governments should provide: parties will be working together to put a pro t e c t e d a reas strategy in place in the Northwest Te r r i t o r i e s • reasonable certainty that when industry finds Establishingby the end of Protected 1998. The strategy Areas will recognize a mineral deposit, it may develop that deposit, the existing contribution of federal and territorial p ro v i d e d that all statutory and regulatory protected areas, such as national parks, national obligations are met and the required approvals Protected Areas Commitments wildlife areas, migratory bird sanctuaries, and are obtained; and territorial parks. …the Government will… • clear policies on mineral tenure, revocation fully take into account the and compensation that have been communicated mineral potential of the area to investors. In establishing and managing protectedin question areas, before taking the Government recognizes the mineralsdecisions and to createmetals protected industry’s important contri- areas on federal lands; Although access is crucial to industry and its continued bution to Canada. It also contribution to Canada’s economic well-being, it is recognizes the desirability of also important that certain terrestrial and marine are a s leaving federal lands, partic- be protected from development. These areas make ularly those with high mineral essential contributions to Canada’s enviro n m e n t a l potential, open for mineral health, biological diversity, and ecological pro c e s s e s . development when this is In this context, the Government is committed to: consistent with federal legislation and government policies, and compatible with environmental and • in cooperation with the provinces and territories, social objectives. Consequently, the Government will: and Aboriginal communities, completing the federal network of National Parks by the year 2000 • use the best available scientific, traditional and accelerating the establishment of National and local knowledge pertaining to the natural Marine Conservation Areas. The Government environment, the geographic and demographic will achieve its objectives by setting aside from setting, as well as the mineral development industrial development (including mineral potential of the areas, in developing policies exploration and development activities) those and decisions respecting the identification, protected areas required to achieve representa- selection and establishment of protected areas; tion for Canada’s 39 terrestrial and 29 marine • fully take into account the mineral potential natural regions; of the area in question before taking decisions • identifying and protecting terrestrial and marine to create protected areas on federal lands; critical wildlife habitat in Canada, including the • impose land withdrawals that preclude mineral implementation of federal legislation to protect development activities only when specific endangered species and the establishment and conditions justify such action, and only after management of marine wildlife areas; economic and social impacts have been carefully • identifying and protecting oceans ecosystems considered. These interim land withdrawals are and the resources they contain, including the to be for periods of up to five years, and can be15 development and designation of marine renewed with justification following consultation protected areas; and with affected ministers; The Minerals and Metals Policy

• take decisions only after stakeholders, especially local and Aboriginal communities, industry and non-governmental organizations, have been consulted; and • enhance its ongoing efforts to collaborate with the provincial and territorial governments, appropriate local and Aboriginal communities, and key stakeholders to facilitate the design, coordination and implementation of federal- p rovincial networks of protected areas.

16 Partnerships for Sustainable Development

V. Aboriginal Communities: Promoting Involvement in Minerals and Metals Activities

The Government affirms its support for the timely resolution of land claims to remove uncertainty over the ownership and use of land and resources, and to encourage self-reliance by Aboriginal communities and promote their participation in economic opportunities. The Government acknowledges important Aboriginal concerns and interests that are related to mineral Off-reserve federal lands are locatedThe Governmentprimarily in affirms development, particularly: the Yukon and Northwest Territories.its support With respect for the to timely • a relationship between the political aspirations development on these lands, ther esolutionGovernment of recogland claims…- and rights of Aboriginal peoples and mineral nizes Aboriginal concerns about the effect of mineral development; exploration and development on traditional lifestyles and the environment. It also • the significant potential contribution of exploration recognizes the desire of and mineral development to the economic Aboriginal peoples to be well-being of Aboriginal peoples; involved in decision-making, • the potential adverse impacts of mineral and to participate in the economic benefits derived development on the social structures of f rom exploration and development activities. Subject Aboriginal peoples; and to land claim settlements and territorial jurisdiction, the Government is of the view that these intere s t s • the potential contribution that information, should be addressed through timely notification of including traditional knowledge, can make developments and environmental assessment pro c e s s e s in relation to the planning and assessment that identify and mitigate environmental concerns. of proposed projects. Where mineral development occurs on land under The Government of Canada respects existing provincial jurisdiction, the federal government has provincial, territorial and municipal mechanisms an interest regarding the effect of these developments for mineral development. Within matters of federal on federal lands, including Indian reserves, and on The Government believes that collaboration between jurisdiction, it promotes cost-effective regimes for Aboriginal communities located outside federal the industry and Aboriginal communities related to the sustainable development of minerals and metals lands. The federal government provides funding local mineral development should be encouraged. on lands under claim, settlement areas, and Indian to Aboriginal communities to negotiate economic reserves. benefit agreements with developers. Indian Act, Federal policies vary depending on whether the mining development takes place on Indian reserves, lands involved in claims negotiations, other federal lands, or off-reserve provincial lands. When develop- One mechanism for encouraging such collaboration ment occurs on Indian reserves, the Government, in is the Aboriginal Participation in Mining Sub- carrying out its responsibilities under the Committee of the Intergovernmental Working has as objectives: a fair return to the First Nations Group on the Mineral Industry (IGWG). from their minerals, protection of the environment, rehabilitation and restoration of the site for future With respect to large-scale projects, where several generations, and First Nations involvement in pro j e c t s , government agencies – federal, provincial and/or in keeping with their aspirations. Through mechanisms territorial – and other stakeholders have an interest or such as the First Nations lands initiative and the federal re s p o n s i b i l i t y, the Government supports the partner- policy on the inherent right of self-government, the ship approach described in this Policy in working with17 Government encourages First Nations control over these parties to address major issues. A p p roaches that reserve lands and resources. a re tested and found to be successful in this context will be reviewed for their possible broader application. The Minerals and Metals Policy

VI. Science and Technology: Progress through Innovation

Science and Technology for the New Century: A Federal Strategy, • promote enhanced productivity of the industry through collaborative efforts focused on technological innovation;

• provide a window and access point for Canadian As articulated in companies – particularly small- and medium- the Government of sized enterprises – to acquire international Canada recognizes the critical role played by science minerals- and metals-related S&T; and technology (S&T) in three broad areas: the health and well-being of Canadians, our ability to protect • evaluate external technological developments … C a n thea d a environment,’s S&T activities and our success in creating jobs to assess their usefulness and value to Canadian relatedand to fostering minerals economic and growth. operations in the minerals and metals sector and metals will continue to the degree to which they complement and build supportAs a consequence, sustainable the Government, in acknowledging upon Canada’s own S&T advances; developmentits responsibility objectives. as a major participant in Canada’s • promote the transfer of technologies within “innovation system,” e s t a b- Canada in order to transform research into lished three re l a t e d goals for exploitable know-how and to promote the its science and technology sharing of expertise among all participants; a c t i v i t i e s : job creation and economic growth, improved • provide Canadians with the geoscience and geo- quality of life, and the matics knowledge and infrastructure to support advancement of knowledge. The Government recog- public policy objectives and furnish Canadians nizes the interdependence of these three goals and with the information, expertise and technologies the need to pursue them in a mutually reinforcing necessary to exploit domestic and foreign markets; manner. By focusing on these goals, Canada’s S&T • facilitate collaborative approaches to problems activities related to minerals and metals will continue for which national effort and coordination are to support sustainable development objectives. necessary;

In addition to focusing on these three goals in an • share internationally Canada’s scientific and integrated manner, the Government will take the technological experience and expertise in imple- following approach: menting sustainable development in the area of minerals and metals and, in particular, • minerals- and themetals-related Government policies supports will stronger be with developing countries and international linksbased between on sound scientific science; and andpolicy organizations development assistance agencies; who work on common topics • science activities should be informed by, and • promote the development of environmental responsive to, public policy priorities. p rotection and pollution prevention technologies – equipment and processes – in partnership with ForFEDERAL these reasons, SCIENCE AND TECHNOLOGY other federal stakeholders, industry, and the IN MINERALS AND METALS provinces and territories; and . Such linkages will THE IMPORTANCE OF PARTNERSHIPS better serve the needs of stakeholders, as well as • work with industry to realize more benefits in society as a whole. terms of employment and revenues from mineral and metal resources through value-added manufacturing of mineral- and metal-based products.

In its approach to S&T activities in relation to minerals and18 metals, the Government will pursue the Federal S&T organizations working on minerals- and following goals: metals-related activities include the Canada Centre for Mineral and Energy Technology (CANMET), Geomatics Canada, and the Geological Survey of Partnerships for Sustainable Development

Canada (GSC), as well as Agriculture and Agri- • give stakeholders a greater role in determining Food Canada, the Department of Fisheries and the Government’s geoscience priorities through Oceans, Environment Canada, Health Canada, and the advisory structure established under the the National Research Council. In pursuing the above federal-provincial geoscience accords; goals, these organizations, individually and coopera- • use geoscience mapping programs to achieve tively, will work towards the further development of a balance between areas of highKnowledge development of the landmass partnerships with industry, provincial and territorial potential, where enhanced knowledgeis fundamental will to sustain- governments, international organizations, government increase the probability of discoveryable development… of new agencies in other countries, academic research institu- reserves, and frontier areas, particularly in the tions, and other groups actively involved in S&T. North, where new maps will attract investment and increase exploration The Government will continue to promote partner- efficiency. Collaborative ships among stakeholders to ensure that: projects with the provin- • p rograms are delivered with maximum efficiency; cial and territorial geological surveys under the National Geoscience • synergies across programs are exploited fully; Mapping Program (NATMAP) will be an impor- • governments can develop long-term S&T tant mechanism for the delivery of this work; research strategies and goals; and • p romote the development of innovative exploration • activities – either by the federal government methods that will help industry discover the deeply or others – are enhanced. buried orebodies needed to sustain production in existing mining districts. The multi-disciplinary a p p roach exemplified by the GSC’s Exploration MechanismsIntergovernmental such as the Memorandum Geoscience Accord of Understanding between Agriculture and Agri-Food Science and Technology (EXTECH) Program will Canada, Environment Canada, the Department of be a key element of this initiative; Fisheries and Oceans, and Natural Resources • improve the understanding of the relative contri- STRATEGICCanada (“Science DIRECTIONS and Technology IN SCIENCE for Sustainable butions from natural and anthropogenic sources DevelopmentAND TECHNOLOGY in the Natural Resource Sectors”) to metal loadings in the environment and the sig- and the are nificance of the long-range atmospheric transport considered important to the creation of further of metals in the atmosphere, and establish the opportunities for collaboration and cooperation. natural background concentrations of metals as a Supportingbasis for environmental a Sustainable impact Minerals assessments; and and Metals Industry • further enhance the timely dissemination of geo- Providing a Comprehensive Geoscience scientific maps and data through the application TheKnowledge Government, Base in consultation with the provinces and territories and other stakeholders, is committed of state-of-the-art information technologies. to the following broad strategic and long-term directions in the area of S&T and minerals and metals:

An effective response to many of the sustainable development challenges facing the minerals and Knowledge of the landmass is fundamental to metals industry largely depends on the development sustainable development, including efforts to ensure and use of S&T to promote technological innovation resource adequacy and sound environmental stew- and to improve the knowledge base for decision- ardship. In particular, geoscience maps, data and makers. In recognition of this, the Government will give the following areas priority attention in federal concepts provided by governments play an impor- 19 tant role in attracting investment and in enhancing S&T activities in minerals and metals: the cost-effectiveness of mineral exploration. To this end, the Government will: The Minerals and Metals Policy

Sustainable Mining Operations Enhancing the Health and Safety of Canadians

• Work will address acidic drainage and effluents, The Government recognizes that S&T related to aquatic effects monitoring, and mine decommis- minerals and metals can play a vital role in enhancing sioning and rehabilitation, including: the health and safety of workers and other Canadians. – negotiating with the provinces and territories In support of this objective, the Government will give for the development of a national repository the following areas priority attention: of physical, chemical and biological data on • the underground mine environment; mine sites, building on the federal government’s current cooperative activities with • ground stability and control; Ontario and Nova Scotia; • testing of equipment for underground use; – conducting research into improved high- strength, high-density fill systems; • technical support for the development of standards and regulations addressing worker – continuing laboratory and field studies safety and health in mining operations; and on underwater and other methods for the disposal of reactive wastes, and research into • extension of the service reliability of Canadian the restoration of affected land and waters to infrastructure (i.e., oil and gas pipelines, environmentally acceptable standards; and transportation, and offshore structures).

Safe– transferring and Efficient to Processing the private and sector, Use through of Consistent with its theme of partnerships, the Minerals and Metals the Mine Environment Neutral Drainage GovernmentPromoting supports the Competitiveness the continued development (MEND) program, technology that enhances of its the linkages Canadian with the Industr industry,y the provinces and our ability to predict, prevent, control and territories, and others. This will include exploring, treat acidic drainage. with provincial and territorial mine inspectorates, • possible increased collaboration in S&T. S&T are essential tools in support of the Attention will focus on: competitiveness of the S&T are essential tools in support Canadianof the competitive minerals- and – developing more efficient and environmen- metals industry. tally friendly production and conversion ness of the Canadian minerals and metals industry. processes; S&T can assist in spurring innovation that leads to – extending the effective life of metal products; reduced costs, increased productivity, and achievement – reducing energy consumption entailed in of environmental standards. product use, as well as employing other The Government will focus strategies to reduce adverse environmental on the following areas in seeking to utilize S&T to impacts that may arise in the use of mineral- improve the competitive position of the Canadian and metal-based products; minerals and metals industry: – maximizing the acceptance of recycled • understanding the genesis of mineral deposits; materials in the production of metal parts and developing technologies to facilitate • exploration technology; recycling; and • mine mechanization and automation; – providing a sound scientific base and • metallurgical processing; 20 technology for the development of policies and regulations in relation to metals and • increased energy and materials efficiencies the environment. in manufacturing; and

• the re-use and recycling of mineral and metal products. Partnerships for Sustainable Development

The Government recognizes the importance of ensuring that its S&T activities assist Canadian enterprises in their development of export opportunities. As a consequence, the Government will:

• support efforts to develop international technical standards for product specifications to facilitate trade in mineral commodities; and

•Developingpromote international Value-Added sales of Mineral Canadian andexpertise Metal andProducts technologies in areas such as mineral exploration and development, environmental monitoring, pollution prevention and control, and site rehabilitation.

The production of value-added mineral and metal p roducts is an important source of jobs for Canadians, especially as the primary production of mineral and metal commodities becomes increasingly globalized. Through its science and technology programs, the Government provides assistance to this sector in its efforts to achieve sustainable development goals, for example, in the areas of environmental quality, safety, and the efficient use of energy and materials.

The Government will continue to provide assistance to the value-added sector, including the following activities:

• implementing the Technology Partnerships Canada program, a collaborative initiative by the Government with Canadian business to enhance technological innovation, competitiveness, and productivity; • identifying Natural Resources Canada as a hub for cooperative metals and materials research in Canada through active negotiation of collaborative research agreements with organizations that have common interests and complementary programs; and

• developing, in partnership with industry, technologies to improve the manufacturing processes for, and the performance of, mineral- and metal- based products. 21 The Minerals and Metals Policy

VII. Minerals and Metals at the International Level: Providing Leadership North in the Implementation of American Free Trade Agreement (NAFTA), Sustainable Development Organization for Economic Co-operation and Development (OECD) – in particular, current efforts to develop a multilateral international investment framework. Free trade areas, such as the and bilateral agreements can advance global free trade by promoting the flow of goods, services and investment through the progressive lowering of tariffs and elimination of non-tariff barriers. Minerals and metals are vital to modern industrial activity, global development and quality of life. Whether from naturally occurring or anthropogenic The Government will promote: sources, they have an impact on the daily lives of • the progressive reduction in tariffs on mineral every inhabitant of our planet. Although mining and metal commodities and products; activity is domestic, markets are global, as is the competition for investment capital. The environmental • the elimination of unjustifiable non-tariff barriers impact of minerals and metals extraction, processing, that impede the industry’s access to international use, re-use, production, transportation, recycling, or markets; disposal does not always respect borders. Associated • the use of existing trade remedy and dispute set- social issues have had an increasingly international tlement mechanisms to redress unjustified health dimension. The international nature of many of the and environmental standards that restrict trade; pressures on the sector will necessarily influence the type of partnerships, programs and activities • the expansion of free trade areas such as the one that need to be developed in response. Canada’s established under NAFTA; global role in the sustainable development of minerals •SOUNDa multilateral MANAGEMENT framework ofOF rules MINERALS that will protect andTRADE metals LIBERALIZATION is elaborated below. AND In playing INVESTMENT that role, ANDand METALS promote international investment; and Canada has developed an approach that is assertive, action-oriented, and cognizant of multi-stakeholder • appropriate bilateral double taxation and foreign interests. It is a role the international community investment protection agreements. expects of us.

Canada is the world’s largest exporter of minerals As for other sectors, the international community Canadaand metals, is the exporting world’s approximately 60 different is grappling with the translation of sustainable minerallargest commodities exporter of to over 100 countries around development of minerals and metals into practice. mineralsthe globe. and Canada metals… is also a major exporter of down- Environmental, health and labour standard initiatives stream, value-added mineral- and metal-related have the potential to affect the competitiveness and products, as well as environmentally sound technolo- acceptability of mineral and metalSafe products Use Principle. in the gies. As a major trading marketplace. Canada is expected to play a defining nation, and as the home of role in international fora engaged in the development several large, integrated of instruments aimed at viable long-term solutions multinational minerals and to problems of sustainable development. Central to metals producers, as well as a growing number of Canadian approaches are the concepts of risk assessment, risk management, and the junior mining companies involved in direct invest- Agenda 21, ment, and exploration and development activities abroad, Canada is dependent on transparent, pre- A number of international institutions are involved. dictable,22 rules-based international trade and invest- The Intergovernmental Forum for Chemical Safety ment regimes. The World Trade Organization (WTO) (IFCS) was established to identify priorities for is an essential forum for their pursuit. Also important cooperative action in pursuit of Chapter 19 of is the work being done under the auspices of the the Rio Summit’s which addresses the Partnerships for Sustainable Development

Environmentally Sound Management of Toxic The Government will promote consideration of an Chemicals. The United Nations Environment integrated mechanism for the sound management of Programme (UNEP) and other United Nations chemicals, providing for the full range of appropriate bodies, including the Commission onHeavy Sustainable Metals instruments from legally bindingCanada agreements is expected to to DevelopmentProtocol (CSD),ECE Convention the Economic on Long-Range Commission government-sponsored non-regulatoryplay a definingapproaches role in Tforransboundary Europe (ECE), Air Pollution.the International Maritime to voluntary industry initiatives.international fora… Organization (IMO), and the Interorganization for the Sound Management of Chemicals (IOMC), are The Government will continue to support the active on a variety of initiatives, including a Prior development of multilateral Informed Consent Convention and a environmental agreements to the (MEAs) that are enviro n m e n- t a l l y effective, science-based, and take into account economic and social The OECD is playing a lead role on a number of considerations. fronts, including the development of an approach to the management of trade in hazardous waste Trade measures have been used to enforce MEAs destined for recycling. Its risk reduction program has and to prevent non-parties from circumventing led to pilot projects for five chemicals and, in particu- obligations contained in an agreement. They are, lar, the voluntary industry Action Program on lead. however, generally not a first best option and should Intergovernmental commodity study groups are also only be considered when the policy objectives of the Where trade provisions are considered necessary, playing an increasing role in the development and agreement would otherwise be thwarted. The rela- the Government will seek to ensure that: implementation of such initiatives. tionship between the use of trade measures in MEAs (and i ) internationalall other reasonable trade rules approaches is currently to achieving under the Increased global cooperation has fostered a variety examinationdesired outcomeby the WTO. have been properly evaluated of mechanisms to address environmental, health and and have been deemed to be ineffective; safety concerns related to particular minerals and ( i i ) the selected approach is consistent with metals. The experience of recent years, however, has C a n a d a ’s international trade obligations and yielded important lessons. There is a recognition of established government policies and programs; the need to be creative in developing approaches that and are practical, effective and, where necessary, legally enforceable. The goal is to address environmental, ( i i i ) the selected measure is the least trade-restrictive health and safety concerns while ensuring that available and is not intended to confer a society continues to derive the benefits from the competitive advantage. responsible use of minerals and metals. The potential adverse economic consequences of the various The Government will seek to ensure that interna- instruments will require close attention. It will also t i o n a l approaches allow for the safe production, be important to differentiate more clearly between transportation, use, re-use, recycling or disposal of minerals and metals and other chemicals in the mineral and metal products and raw materials, as development of such instruments. well as the appropriate regulatory measures for managing products and materials that exhibit risk Social policy issues are also being addressed, factors of concern. notably in the World Health Organization and the International Labour Organization (ILO). An ILO Convention and Recommendation on Safety and Health in Mines, adopted in 1995, set comprehensive international standards to improve safety and health 23 for the 25 million workers directly involved in mining. The Government will be examining the implementation of these instruments in consultation with the The Minerals and Metals Policy

Basel Convention provinces, including the possible future ratification (GSC), has played a major role to this end. In a of the Convention. Canadian initiatives such as the m u l t ilateral setting, Canada has also played a role Workplace Hazardous Materials Information System through mechanisms such as training and education (WHMIS), which is designed to ensure that p rograms, and technology transfer workshops, hosted, information on hazardous products is consistently for example, under OECD auspices or conducted as BILATERALand systematically AND transferred REGIONAL from COOPERATION suppliers to part of the implementation process. employers to workers on a national basis, have As a goal, the Government, within the scope of existing been favourably viewed internationally. Human rCONSULesources,TA willTIONS continue WITH to promote STAKEHOLDERS its willingness rights questions, including child labour abroad, to share Canada’s experience and expertise in imple- will receive increasing attention. menting sustainable development in the area of minerals and metals, particularly with developing countries and international development assistance agencies. Traditionally, Canada has benefitted from bilateral working groups, such as the Canada-EU Metals and Minerals Working Group, as fora for consultations Responding to diverse issues and policy pressures aimed at market transparency and economic coopera- requires that governments be well informed about tion. Increasingly, these fora have provided opportu- the interests and viewpoints of the many stakeholders nities for raising sustainable development concerns. likely to be affected. To promote the free exchange A number of countries in the Americas are major of information between the federal government and p roducers of minerals and metals and look to affected stakeholders, transparency and effective Canada as an example of workable and sustainable means of communication are essential. Therefore, development-based policy approaches. Memoranda the Government is committed to managing its of Understanding can provide a framework for participation in multilateral fora to ensure clarity enhanced cooperation, as can regional initiatives and transparency for clients. Whenever possible, such as the Mines Ministers of the Americas meetings. Canadian positions will be developed in consultation TheS i m i lGovernment a r l y, the Government affirms its supports commitment, the work through of with the provinces and territories, and with input bilateralsuch regional and regional bodies as initiatives, the NAFTA to promoteE n v i ro n m the e n t from the industry, the environmental community, Commissionsustainable development and the Asia-Pacific of minerals Economic and metals Coop- and and other stakeholders. toeration develop, (APEC) where Expert resources Group permit, on Minerals partnerships and Ewith n e rgy countries Exploration that share and Development our views and (GEMEED). concerns.

TECHNICAL COOPERATION

Over the past 130 years, Canada has developed the knowledge, expertise and world-class technology in mining that enables it to play a leadership role. With this foundation, Canada provides policy advice and scientific and technological assistance to developing countries that are trying to respond to the sustainable development challenge in the context of24 minerals and metals. For example, the Canadian International Development Agency (CIDA), through the Canada Centre for Mineral and Energy Te c h n o l o g y (CANMET) and the Geological Survey of Canada Partnerships for Sustainable Development

VIII. Measurement and Follow-Up

CRITERIA AND INDICATORS

the Government views the development of sustainability criteria related to environmental, economic and social objectives and indicatorsThe Government for minerals recognizes and thatmetals criteria as a priorityand indicators a re essential because they help us to measure pro g re s s by industry toward the achievement of sustainable development. A c c o rd i n g l y,

. It IMPLEMENTalso acknowledgesATION that ANDthe formulation ACCOUNTABILITY of criteria and indicators should be a collaborative undertaking involving all stakeholders, and is prepared to work with the provinces and territories, and other stakeholders, in this area.

The Government acknowledges that the implementation of the Minerals and Metals Policy will only be successful through ongoing accountability for, and assessment of, results. For this reason, the Minister of Natural Resources will, in cooperation with other federal departments and agencies, issue periodic progress reports on the implementation of this Policy.

Public accountability for the implementation of the Policy will also be ensured through the Commissioner of the Environment and Sustainable Development in the Office of the Auditor General.

In implementing this Policy, the Government will take intoCanada account will appropriate promote the internationally Policy’s objectives estab- lishedand strategies, standards including and Canada’s the sustainable international development commit- mentsof minerals to sustainable and metals, development both domestically and to free and trade. iBy n t eworking r n a t i o n a bilaterallyl l y and multilaterally with other countries, and through international fora such as the United Nations and its agencies, the OECD, and the WTO,