Conflicting interests in natural resource management - A case study on mining in northern Sweden Author: Evelina Svensson Supervisor: Johanna Dahlin Södertörn University | School of Natural Sciences, Technology and Environmental Studies Master’s thesis in Environmental Science, 30 credits 2017 ABSTRACT Conflicting interests in natural resource management –a case study on mining in northern Sweden Author: Evelina Svensson Sweden is the leading mining country in Europe and the Swedish government intends to retain this position by fostering innovation, investments and cooperation. However, mining is an extractive industry with massive consequences on the surrounding environment and the people living there. In resource abundant northern Sweden mineral extraction is a contested subject, not least in respect to the traditional land use by the Sami population. This study intends to increase the understanding of the current mining trial process in Sweden, the effects on sustainable regional development and the implications for local communities. To do so, this study aims to identify which aspects that are brought forward during the trial for exploitation concession and how different interests are evaluated. For the purpose of this study, the bureaucratic mining trial process is examined and 15 mining cases studied in detail considering the exploitation concession phase. The material indicates that conflicts over the bureaucratic process is based both in what aspects that should be included in the assessment, how these aspects are evaluated and at what stage in the formal process various aspects should be brought up. Guided by the concepts of extractivism and subnational resource curse, the main finding identified is that the mining trial process is state-centred. This is displayed in the limited influence of local actors on the decision and in the use of national interest as a policy tool to evaluate conflicting land use claims. These characteristics can in turn increase the risk of a subnational resource curse in northern Sweden. Key words: mining, natural resource management, sustainability, resource curse, extractivism, Sweden i TABLE OF CONTENTS ABSTRACT I TABLE OF CONTENTS II ABBREVIATIONS IV AUTHORITIES V CHAPTER 1 INTRODUCTION 1 1.1 Introduction 1 1.2 Mining and conflicting interests in Sweden – a literature review 2 1.3 Research problem 3 1.4 Aim & research questions 4 1.5 Disposition 4 CHAPTER 2 BACKGROUND 6 2.1 The Swedish mining industry 6 2.2 Environmental impacts 7 2.3 Northern Sweden as a location for natural resource extraction 7 2.4 National interests 9 2.5 Coexistence of national interests 10 CHAPTER 3 THEORETICAL FRAMEWORK 11 3.1 Sustainable development and natural resource use 11 3.2 Extractivism 12 3.3 The subnational resource curse 16 CHAPTER 4 METHODOLOGY 19 4.1 Philosophical assumptions 19 4.2 Research design and scope 19 4.3. Data collection 20 4.4 Data analysis 21 ii 4.5 Research quality 22 CHAPTER 5 THE MINING TRIAL PROCESS 23 5.1 Exploration permit and work plan 23 5.2 Exploitation concession 24 5.3 Environmental permit 28 5.4 Land allocation 30 5.5 Building and ground permits 30 5.6 A process under change 30 CHAPTER 6 CASE STUDY: INTERESTS IN THE MINING TRIAL PROCESS 32 6.1 The procedure 32 6.2 The cases 33 6.3 Interests brought forward 33 6.4 The scope of the concession trial 36 6.5 Main results 39 CHAPTER 7 ANALYSIS 40 7.1 A state-centred process 40 7.2 Colliding interests 41 7.3 Reasons behind conflicts over land use 42 7.4 Scope of assessment 44 7.5 Main Findings 45 CHAPTER 8 DISCUSSION 47 CHAPTER 9 CONCLUSION 49 ACKNOWLEDGEMENTS 50 REFERENCES 51 APPENDIX 54 iii ABBREVIATIONS EIS Environmental Impact Statement EU European Union NGO Non-Governmental Organisation SDG Sustainable Development Goal SEPA Swedish Environmental Protection Agency SGU Geological Survey of Sweden UNDP United Nations Development Programme UNEP United Nations Environment Programme iv AUTHORITIES Abbreviation English title Swedish title Task N/A County Administrative Länsstyrelse Regional governmental agency. Board Ensures a healthy environment. Referral body in trials for exploration permit and exploitation concession. Takes decision on special permits and test mining permits. SGU Geological Survey of Sveriges Geologiska Expert agency for issues Sweden Undersökning relating to bedrock, soil and groundwater. Provides geological information and supports the development of the mining industry. N/A Mining Inspectorate Bergsstaten Decision body under the SGU. Responsible for issuing permits for exploration and mining. N/A Chief Mining Inspector Bergmästaren Chief of the Mining Inspectorate. Takes decisions to allow or deny exploration permit, exploitation concession and land allocation. N/A Reindeer Herding Sameby Economic and administrative District association holding the exclusive right to exercise reindeer herding in a specific area. N/A Sami Parliament Sametinget Works for a living Sami culture and increased self- determination. N/A National Board of Boverket Coordinates and oversees Housing, Building and national interests. Planning N/A Ministry of Enterprise Näringsdepartementet N/A and Innovation SEPA Swedish Environmental Naturvårdsverket N/A Protection Agency N/A Land and Environment Mark- och Hears trials for environmental Court miljödomstolen permit and take decisions to allow or deny environmental permits. N/A Land and Environment Mark- och Consider judgements on appeal Court of Appeal miljööverdomstolen from the Land and Environment Court. N/A Supreme Administrative Högsta Consider judgements on appeal Court förvaltningsdomstolen from the Land and Environment Court of Appeal. If certain conditions apply, it can examine if the government violates any rule of law. v CHAPTER 1 INTRODUCTION 1.1 Introduction Northern Sweden is sparsely populated and characterised by vast intact nature areas, abundancy in natural resources and the Sami cultural heritage. It’s a popular destination for tourists as well as opportunists seeking to commodify its resources. Nevertheless, the region is often referred to in terms of declining populations, unemployment and deterioration of small local economies. The existence of a subnational resource curse in northern Sweden have been scrutinised by the Swedish journalist Arne Müller. In his book, Norrlandsparadoxen – En utvecklingsdröm med problem [The paradox of Norrland - A problematic dream for development], Müller investigates the situation for local communities in northern Sweden. Huge investments have been made in mining and wind energy projects in different parts of Norrland, but the small societies in the region do still not flourish. The author finds that the investments did not result in vast employment opportunities, increased populations or improved services as is usually promised. The local communities have thus not experienced any major long-term benefits, instead they often bear the costs of environmental degradation and outcompeted businesses. The author brings forward increased efficiency in the mining industry, centralised business centres, irregular mineral prices, rushed decisions (the projects must start to make profits soon after initiated to pay back investments), restrained municipalities, and profits ending up elsewhere as underlying reasons for the poor outcome. Müller argues that the problem is the huge gap that occurs between the investments and promises made, and the actual outcome for the local communities (Müller 2015). To use the natural resources provided by earth is a fundamental feature of how humans develop societies all over the world. Still, there is not usually consensus on what to withdraw, where and when. Instead conflicts arise between actors with diverging values and perceptions. What is regarded as a good and proper use and management of natural resources differ between actors. For this study, mining in northern Sweden is used as a case of natural resource management. Opinions on mining is diverse in Sweden, both between actors on a local level but also between national and regional governmental agencies. Especially apparent in this case Introduction • 1 is the fundamental different understandings of the central government and the Sami Parliament, on land in northern Sweden and how it should be managed. Their views on mining in Sweden, and especially in the regions inhabited by the indigenous Sami people, are described in the national mineral strategy titled Towards a sustainable usage of Swedish mineral assets, creating growth for the whole country and the Sami Parliament view on minerals and mines in Sápmi1. The aim of the national mineral strategy is to promote innovation, research, infrastructure, cooperation and to remove barriers for international investments in order to foster a growing mineral sector in Sweden. The objective is to increase the competitiveness and strengthen Sweden’s position as the leading mining country in Europe. To mine in harmony with the environment, cultural heritage and other businesses is identified as one of five strategic areas. Emphasis is put on early dialogue between actors with competing interests and to always strive for coexistence (Ministry of Enterprise and Innovation 2013). The Sami Parliament acknowledges that they, as an indigenous people, have special rights to the land and water resources. The need for land and water resources to ensure their livelihoods and preserve their cultural heritage should be prioritised. The standpoint put forward is that the Sami Parliament, affected Reindeer Herding Districts