LA RGE-SCA LE Betw een New Caledonia and MINES AND Papua New Guinea LOC AL-LEVEL POLI TICS Edited by Colin Filer and Pierre-Yves Le Meur LARGE-SCALE MINES AND LOCAL-LEVEL POLITICS Between New Caledonia and Papua New Guinea LARGE-SCALE MINES AND LOCAL-LEVEL POLITICS Between New Caledonia and Papua New Guinea EDITED BY COLIN FILER AND PIERRE-YVES LE MEUR ASIA-PACIFIC ENVIRONMENT MONOGRAPH 12 Published by ANU Press The Australian National University Acton ACT 2601, Australia Email: [email protected] This title is also available online at press.anu.edu.au National Library of Australia Cataloguing-in-Publication entry Title: Large-scale mines and local-level politics : between New Caledonia and Papua New Guinea / edited by Colin Filer, Pierre-Yves Le Meur. ISBN: 9781760461492 (paperback) 9781760461508 (ebook) Series: Asia-pacific environment monographs ; no.12. Subjects: Mines and mineral resources--New Caledonia. Mines and mineral resources--Papua New Guinea. Local government--New Caledonia. Local government--Papua New Guinea. Other Creators/Contributors: Filer, Colin, editor. Le Meur, Pierre-Yves, 1962- editor. All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopying or otherwise, without the prior permission of the publisher. Cover design and layout by ANU Press. Cover photograph by John Burton: Peakame Taro airing a grievance at the Apalaka resettlement village, Porgera mine, 9 June 2006. This edition © 2017 ANU Press Contents Tables ...............................................................vii Figures .............................................................ix Boxes ...............................................................xi Acknowledgments ..................................................xiii Contributors .........................................................xv 1. Large-Scale Mines and Local-Level Politics ......................1 COLIN FILER AND PIERRE-YVES LE MEUR 2. From Anticipation to Practice: Social and Economic Management of a Nickel Plant’s Establishment in New Caledonia’s North Province ................................................61 JEAN-MICHEL SOURISSEAU, SONIA GROCHAIN AND DAVID POITHILY 3. Social and Environmental Transformations in the Neighbourhood of a Nickel Mining Project: A Case Study from Northern New Caledonia ................................................99 MATTHIAS KOWASCH 4. The Boakaine Mine in New Caledonia: A Local Development Issue? ..........................................133 CHRISTINE DEMMER 5. Conflict and Agreement: The Politics of Nickel in Thio, New Caledonia ...............................................157 PIERRE-YVES LE MEUR 6. Contesting the Goro Nickel Mining Project, New Caledonia: Indigenous Rights, Sustainable Development and the Land Issue ...................................................183 CLAIRE LEVACHER 7. Dissecting Corporate Community Development in the Large-Scale Melanesian Mining Sector ........................207 GLENN BANKS, DORA KUIR-AYIUS, DAVID KOMBAKO AND BILL F. SAGIR 8. Negotiating Community Support for Closure or Continuation of the Ok Tedi Mine in Papua New Guinea .....................229 COLIN FILER AND PHILLIPA JENKINS 9. Disconnected Development Worlds: Responsibility towards Local Communities in Papua New Guinea ......................261 JOHN BURTON AND JOYCE ONGUGLO 10. Gender Mainstreaming and Local Politics: Women, Women’s Associations and Mining in Lihir ...............................291 SUSAN R. HEMER 11. Migrants, Labourers and Landowners at the Lihir Gold Mine, Papua New Guinea ...........................................313 NICHOLAS A. BAINTON 12. Bougainville: Origins of the Conflict, and Debating the Future of Large-Scale Mining ........................................353 ANTHONY J. REGAN 13. Between New Caledonia and Papua New Guinea ..............415 COLIN FILER AND PIERRE-YVES LE MEUR Tables Table 7.1 A typology of motivations for corporate community development activities ........................................217 Table 9.1 Disclosures in relation to mining on the lands of indigenous peoples by six mining companies undertaking sustainability reporting in PNG .............................................267 Table 9.2 Seven Global Reporting Initiative indicators of heightened importance to local communities and indigenous peoples, for the Lihir, Hidden Valley, Porgera and Ok Tedi mines, 2009–10 and 2013–14 ......................................272 Table 12.1 Distribution of Panguna cash revenues, 1972–89 .........358 Table 12.2 Numbers of blocks in the three main BCL leases ..........360 vii Figures Figure 2.1 North Province, New Caledonia ...........................63 Figure 2.2 The politics of the large-scale mining project cycle .........70 Figure 2.3 Employment offers and applications in North Province, 2000–10 .....................................................76 Figure 2.4 Net annual average of semi-annual business start-ups, 1995–2010 ..................................................81 Figure 2.5 Popular participation in SAS Vavouto ......................88 Figure 2.6 Employment offers and applications in North Province, 2000–16 .....................................................90 Figure 2.7 Net annual average of semi-annual business start-ups, 1995–2016 ..................................................91 Figure 3.1 The Koniambo project construction site, September 2012 .............................................100 Figure 3.2 Location of the studied Kanak villages in northern New Caledonia ...............................................103 Figure 3.3 Environmental value model ...............................104 Figure 3.4 First stone of the new cultural centre in Koné, 2008 .......109 Figure 3.5 Rental housing on customary land, Baco, 2011 ............110 Figure 3.6 Education level of the peoples in the four villages motivated to work in the Koniambo project .....................112 Figure 3.7 Subcontracting companies belonging to SAS Vavouto in August 2012 ..............................................114 ix Large-Scale Mines and Local-Level Politics Figure 3.8 Number of enterprises per working area in Baco, August 2012 .................................................115 Figure 3.9 Size of customary lands of the villages of Netchaot, Baco, Oundjo and Gatope .....................................118 Figure 3.10 Difference in perceptions of the four neighbouring Kanak villages vis-à-vis the Koniambo project (per cent per village) ...................................................121 Figure 6.1 The model for participation of the population of the Grand Sud in development of the mining project ................191 Figure 7.1 Mining and immanent development .......................209 Figure 7.2 Mining, immanent and intentional forms of development ....211 Figure 7.3 Papua New Guinea mining operations ....................213 Figure 8.1 CMCA trust regions in Western Province ..................241 Figure 9.1 Three ‘development worlds’ ..............................262 Figure 9.2 Sustainability reporting by 33 mining companies with PNG interests in 2013–14 ...............................267 Figure 11.1 Villages and council wards on Aniolam Island ............320 Figure 11.2 Lihir population by ward group, 2002–13 ................324 Figure 11.3 Former plantation labourers from Sandaun Province ......326 Figure 11.4 Enumerated Lihirian and non-Lihirian population figures, and adjusted non-Lihirian population figures, December 2013. .328 Figure 11.5 Birthplace of enumerated resident non-Lihirians, December 2013. .329 Figure 11.6 Village development scheme house .....................334 Figure 11.7 Late Anna Ikuluom of Tinetalgo clan in lower Landolam, 2011 ..............................................339 x Boxes Box 9.1 The ICMM sustainable development principles ...............263 Box 9.2 Definition of Indigenous people by the UN Special Rapporteur José R. Martínez Cobo .............................269 xi Acknowledgments Initial drafts of most of the chapters in this book were first presented as papers at a conference on ‘Mining and Mining Policy in the Pacific: History, Challenges and Perspectives’, which was hosted by the Pacific Community and the French National Research Institute for Sustainable Development (Institut de Recherche pour le Développement) in Nouméa from 21 to 25 November 2011. Although this book is not to be read as the proceedings of that conference, since many other papers were presented, the editors would like to acknowledge the contributions made to its organisation and funding, without which this book would never have eventuated. Additional organisational support was provided by the University of New Caledonia (Université de la Nouvelle-Calédonie), the New Caledonian Institute of Agronomy (Institut Agronomique Néo- Calédonien), the French Agricultural Research Centre for International Development (Centre de Coopération Internationale pour la Recherche Agronomique pour le Développement), the National Centre for Technological Research on Nickel and Its Environment (CNRT Nickel) and CORAIL (Coordination pour l’Océanie des Recherches sur les Arts, les Idées et les Littératures). Additional financial support was provided by the Pacific Fund (Fonds Pacifique) of the French Ministry of Foreign Affairs, the Congress of New Caledonia, the authorities of South Province and North Province, and the mining companies Société Le Nickel, Koniambo Nickel SAS and Vale SA. xiii Large-Scale