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The Extractive Industries and Society


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Original article

Making extractive industries-led growth inclusive: An introduction


M.P. McHenrya,* , D.G. Doepelb , K.C. Uramac
a
School of Veterinary and Life Sciences, Murdoch University, Australia
b
Africa Research Group, Murdoch University, Australia
c
Sir Walter Murdoch School of Public Policy and International Affairs, Murdoch University/African Development Bank, Australia

A R T I C L E I N F O A B S T R A C T

Article history:
Received 12 November 2016 The extractive industries are often perceived as extremely lucrative, with civil society, international
Received in revised form 28 March 2017 agencies, governments, and NGOs commonly arguing for greater levels of local return. Unfortunately, it is
Accepted 30 March 2017 also common for foreign-owned extractive company community engagement/development activities in
Available online xxx poorer host nations to be ‘ad-hoc’ and overlap with basic government services and responsibilities. We
present six papers that represent examples of development opportunities in the supply chains of the
Keywords: extractive industries capable of facilitating inclusive engagement while simultaneously reducing poverty
Extractives and diversifying economies, and which align with government social responsibilities. Staying within the
Mining
supply chain enables the companies to benefit directly from their investments, enhance their operational
Growth
security, and prevent others from ‘free-loading’. These six papers show a diversity of opportunities that
Development
can benefit foreign extractive engagement, improve the potential of inclusive growth to local
communities, enhance the capacity of local governments, and avoid common pitfalls by maintaining
communication between important stakeholders.
© 2017 Elsevier Ltd. All rights reserved.

1. Introduction (Godfray et al., 2010), opportunities for the international private


sector to bolster African countries’ ability to export to large
This special section of The Extractive Industries and Society European and Asian markets are enormous (McHenry and Cakir,
features six papers that span the breadth of the broad engage- 2013).
ments that extractives industries are advancing in areas of relative At present, in a number of countries in sub-Saharan Africa, the
poverty and low economic diversity: 1) water supply provision in mining sector is the largest single sectoral contributor to GDP,
areas of poverty in a mining growth corridor; 2) post-mine island- taxes, foreign investment and foreign exchange (Hanlin, 2011).
based mine rehabilitation into agricultural land uses; 3) emerging Today, around 70% of private capital flows into Africa are in the
infectious diseases mitigation and response; 4) balanced regula- form of Foreign Direct Investment (FDI) (Africa Progress Panel,
tion for local content; 5) large greenfield mineral, rail and port 2014). Mining, and oil and gas projects are an overwhelmingly
investments; and 6) complexities of mine closure planning and large source of FDI in African countries (Africa Progress Panel, 2013,
environmental impact assessment. 2014; African Development Bank Group et al., 2014; Anyanwu,
These papers were developed following the Africa Australia 2012; Asiedu, 2002; Dupasquier and Osakwe, 2005; Imoudu, 2012;
Research Forum’s ‘Making Growth Inclusive’ event hosted by Mijiyawa, 2013; Robbins, 2013; Robbins and Perkins, 2012).
Murdoch University in Perth, Western Australia in 2015. Growth in FDI is a relatively stable form of investment that is less
international investment in sub-Saharan Africa as a primary vulnerable to short-term crises and changing market conditions
resource producer (food, minerals, energy, etc.) is highly related to (Africa Progress Panel, 2014; Busse and Hefeker, 2005). FDI
global strategic food, land, water, resource and energy competition stimulates employment, technological progress and access, higher
(African Development Bank Group et al., 2014; Godfray et al., 2010; productivity, economic growth, exports, access to new and large
Lynd and Woods, 2011; McHenry and Cakir, 2013; Opara, 2011; foreign markets, education and training, entrepreneurship, tech-
Schut et al., 2010). Because the recent global competition for nical skills, management standards, cost of capital reductions and
commodities is expected to increase for at least another 40 years mitigation of investment risk (Asiedu, 2004; Djokoto, 2012;
Dupasquier and Osakwe, 2005; Imoudu, 2012; Lederman et al.,
2010; Penney et al., 2012; Robbins, 2013). However, the net impact
* Corresponding author. of FDI on a host country’s economy is complex and, in many cases,
E-mail address: mpmchenry@gmail.com (M.P. McHenry).

http://dx.doi.org/10.1016/j.exis.2017.03.006
2214-790X/© 2017 Elsevier Ltd. All rights reserved.

Please cite this article in press as: M.P. McHenry, et al., Making extractive industries-led growth inclusive: An introduction, Extr. Ind. Soc.
(2017), http://dx.doi.org/10.1016/j.exis.2017.03.006
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2 M.P. McHenry et al. / The Extractive Industries and Society xxx (2016) xxx–xxx

ambiguous and dependent on the ability of the host country to positive impacts on livelihoods and a significant area of tension is
extract the benefits and minimise negative impacts (Akinlo, 2004; the positive and negative impacts on local inhabitants, which is
Anyanwu, 2012; Asiedu, 2006; Claassen et al., 2011; Robbins, 2013). where additional transparency, good relationships and supportive
Investment in the extractive industries in sub-Saharan Africa is communication is needed.
occurring in historically poor agricultural/rural regions (Weng This special section presents six case studies where the mining
et al., 2013); yet, these investments often are not interconnected sector has both stimulated new investment and economic
with the local community or economy. For example, mines are engagement directly or where preparations for either new mining
commonly located in remote areas and are unwilling or unable to activity or the loss of it is expected to have a large local impact
source their production inputs locally. (Chuhan-Pole et al., 2017; (both positive and negative elements). These international
Ovadia, 2016). extractive-related investments and associated impacts are largely
Traditionally, multinational companies in the extractive indus- occurring in undeveloped rural and/or agricultural locations and
tries in sub-Saharan Africa have been resistant to deepening their this special issue delves into a purposefully broad level of
engagement with local or national economies. Host governments discussion in terms of their applicability to SSA’s future economic
are mostly interested in taxes and royalties, and tend to let other development of rural and agricultural contexts.
opportunities to maximise net benefits pass by (Robbins, 2013).
Upstream and downstream linkages between sustained mining 2. Organisation of the special section
options and the immediate precincts, towns and regional hubs are
a major economic development and diversification opportunity Because mining is all too frequently portrayed as a competitor
that are at present largely being missed (Dupasquier and Osakwe, to the interests of the local community in terms of water use,
2005; Robbins, 2013; Robbins and Perkins, 2012). Economic taking a more active role in ensuring the effective delivery of local
integration of projects is a win-win for both foreign investors water supply provides opportunities for mining companies to
and host countries (African Development Bank Group et al., 2014; change this perception. Mining can stimulate rapid population
Shen, 2013) and include opportunities for technical training to growth, and can therefore place an increased strain on existing
supply the mining sector (Robbins, 2013). Environmental rehabili- water infrastructure and potentially, negatively impacting avail-
tation, mine decommissioning activities and social health pro- able local water capacity.
grammes (for the direct mine workforce and local communities) This first paper explores how mining activities requiring the
are a new added element to mining supply chain value to a region development of new (or expansion of existing) water infrastruc-
(Robbins, 2013). Without economic integration and diversification, ture provide an opportunity to benefit local communities with
rural populations in the region will remain underdeveloped with limited access to clean water. Using recent Australian Government
enduring food and water supply shortages (Barrett et al., 2017; funded water and sanitation interventions along the Nacala
Counguara and Moder, 2011; Prime Minister’s Science Engineering Economic Corridor (Mozambique) as a case study, the paper
and Innovation Council, 2010). examines how mining companies can most effectively ensure the
Attracting private sector investments capable of facilitating delivery of sustainable water infrastructure to local communities.
broad-based economic development requires coordination be- Experience has shown that decision-making regarding regional
tween private investors and national and international govern- water infrastructure investment should be as decentralised as
ments (Crawford et al., 2003). Indeed, in sub-Saharan Africa, it has possible and focus on economically sustainable operators able to
long been expected that companies (in addition to their primary install and maintain water infrastructure (Foster and Briceno-
business) provide numerous benefits to the local community Garmendia, 2009; Levite and Sally, 2002; Rosegrant et al., 2009).
(historically largely ad-hoc benefits) and, more recently, at more The paper discusses if it is possible to supply water profitably and,
sophisticated levels they are expected to build regional capacity if so, how securing private investment may still require some form
and facilitate effective public-private partnerships prior to, during of investment (‘hard’ or ‘soft’) by mining companies or the local/
and after an individual projects’ operational lifespan (Kotey and provincial government to achieve economic sustainability. A series
Adusei, 2009; Werblow and Williams, 1998). The eexpectations of of guidelines and supporting examples are presented that outline
extractive companies by local SSA communities are commonly how to secure long-term viability of community water supplies
excessively unrealistic for a number of reasons. Yet, most extractive that are directly and indirectly impacted by mining activity. The
companies are either unable to follow through on the high main findings from the study are as follows:
expectations of the host country and community unless there is a
clear commercial advantage (Kivuiti et al., 2005). From a global  Any expansion of existing water supply infrastructure can be
perspective, extractive companies operating in developing coun- aided by detailed plans and contractual agreements that clearly
tries are increasingly requiring project finance to displace equity define the infrastructure to be provided by the system owner to
and borrowing, and financial institutions are requiring higher the operator in a transparent manner to ensure that water
standards of operation (Kotey and Adusei, 2009), requiring the quality and pressure are preserved.
transfer of global best practice in private sector investments  Expansion plans and agreements that provide a high level of
(McHenry and Cakir, 2013). detail can help safeguard both the owner and the operator from
A number of countries in sub-Saharan Africa have the poor decisions by the other party, thereby ensuring that all
opportunity to foster the development of appropriate local service parties do what is in the best interest for the system as a whole,
sectors to support and extend local service industries and diversify the community and all parties to the contractual agreements.
from primary to secondary and tertiary economic activities  Changes to these plans in response to new technologies,
(Pezzini, 2013). However, this can be difficult when multinational variances in town planning, social equity considerations, pricing
involvement in the mining and exploration sector in the region structures, etc., can be enacted through joint agreement between
commonly applies traditional global corporate procurement the parties.
systems all the way through the design, construction, operational  An active supporting role with in-house water supply technical
and decommissioning phases. This approach effectively excludes and economic expertise enables a mining company to become a
service sectors from the major contracts, even from mature strong advocate for community access to clean water and
extractive service centres in South Africa (Hanlin, 2011). The guarantors of one of the most basic human rights.
activities of the extractive sector have and do have negative and

Please cite this article in press as: M.P. McHenry, et al., Making extractive industries-led growth inclusive: An introduction, Extr. Ind. Soc.
(2017), http://dx.doi.org/10.1016/j.exis.2017.03.006
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The second paper explores the IDRAM pilot initiative in technical and experience based); 2) dual authorisations, in the
Katanga, Democratic Republic of Congo. The extractive industries form of closure certificates and EIAs; 3) and multiple, required
have long overlooked the seriousness of emerging infectious ministerial authorizations along with added financial, closure
diseases (EIDs). This, however, changed following the 2014 Ebola design and risk assessment requirements are but some of the
outbreak, which led to a significant downturn in mining activity contributing factors.
and planned expansions. Some companies ceased operations However, complexities are not isolated to the South African
altogether (e.g., China Union) (World Bank, 2015a). The extractive experience and are common in many mining jurisdictions. The vast
industries can cause significant environmental, social, demograph- majority of nations on the continent already have specific
ic, health, and economic change, all of which can trigger outbreaks legislation or regulations for mining and EIA that relate to mine
of disease (Wilcox and Ellis, 2006; Heymann and Dixon, 2012; closure, with broad intentions that EIA occur early, be regularly
Morens et al., 2004; Morse, 1995; Patz et al., 2004; Smolinski et al., reviewed and updated and that the community be engaged in
2003; Walsh et al., 1993). This can put extractive companies on the defining post mining land-use. What is not commonly considered
frontline of EID outbreaks. For example, the economic losses in the legal framework are the very human elements of mine
associated with SARS in 2003 amounted to at least US$80 billion closure planning and how different government agencies imple-
(World Bank, 2012) and the economic impact of the 2014 Ebola ment the framework and work together to achieve the best
outbreak in the three most affected countries (Guinea, Liberia and outcomes post-mining, and also as the intermediary between the
Sierra Leone) is estimated to be at least US$2.2 billion, over 12 mining companies and communities in terms of how to engage and
percent of their combined GDP (World Bank, 2015b). define a post mining land-use. As South Africa is an advanced
The IDRAM pilot initiative focussed on: 1) the assessment of economy on the continent with extensive experience in mining,
which kinds of risk reduction measures were in place during the there are many lessons that are applicable to emerging countries in
2014 Ebola outbreak among selected mining companies; 2) the region that wish to attract the benefits of the extractives
explored the industry’s attitudes towards control interventions, industries and minimise their potential negative consequences.
and; 3) explored opportunities for collaboration among multiple The fifth paper explores Chinese politics and investments as
stakeholders. Because findings from the research suggest that they relate to the world’s largest known and highest-grade iron ore
extractive companies with disease control and prevention systems deposit located in Guinea’s Simandou Mountains. China has
cannot control outbreaks by themselves, the paper discusses the explicitly promised to help build a ‘post-Ebola’ era for some eight
ways in which companies should strengthen their risk reduction million primarily impoverished Guineans, many of whom are
role by assessing the health consequences of their projects through located in the area. More widely, China has expressed plans to
an integrated Environmental Impact Assessment (EIA), including: invest in steel-intensive infrastructure and steel milling capacity
1) leveraging staff health and safety training courses to benefit the across Africa to industrialise the continent, which will also support
wider community surrounding mining sites; and 2) improved China’s own on-going economic transition and improve the
partnering with health authorities, other companies, and external influence of China on the global iron ore market. China’s increasing
stakeholders. While companies often exercise good control ‘inside investment in infrastructure and industrial projects is an example
the fence’, they lack the same influence ‘outside the fence’, even of how development models and global mineral markets are
within their own concession. Good design, preparation, and increasingly interdependent in the context of developing coun-
implementation of company management plans that include tries. Further examination of China’s investments in Africa and
multiple stakeholders will better enable a reduction of the impact other commodity-rich countries can enable a better understanding
of an outbreak on company operations and the community. of global iron ore markets.
The third paper in this special section builds on a policy, legal The sixth and final paper in this special issue is a unique
and regulatory framework review of the mining and the small- description of initial trials to convert disused mine sites for
scale supply sector business environment undertaken by the commercial agricultural purposes (rather than restoration to an
author for the Donor Committee for Enterprise Development. The original condition) to achieve an economic strategy to combat
review focused largely on Nigeria, Ghana, Mozambique and South post-mining decline and food security on a small island in the Asia-
Africa. Recognizing that many governments are eager to ensure Pacific (Christmas Island, administered by Australia). Despite a
resource-based investments lead to broad-based economic growth well-established international expectation by industry, financiers
through local content policies, legislation, and regulatory instru- and practitioners that consideration of post-mining land use
ments, this paper analyzes how effective these instruments are. should be an intrinsic element of the entire life cycle of mining (e.g.
The study finds that, without external impetus, extractive International Council on Mining and Metals (ICMM), 2008;
companies generally have little regard for local content because, International Finance Corporation, 2007; Mining Minerals and
in practice, most existing local content instruments enable non- Sustainable Development (MMSD), 2002; Sweeting and Clark,
compliance and can be a barrier to investment. The paper discusses 2000), there is a growing demand among local interests that stable
opportunities for governments to focus on developing the and productive land be available to a local community after mining
conditions for improved procurement (better energy and transport activities cease (Davies et al., 2012; International Council on
infrastructure, adequate human capital, access to finance, econo- Mining and Metals (ICMM), 2008; Mining Minerals and Sustain-
mies of scale and outreach or technical assistance programs) rather able Development [MSSD], 2002 p. 27; Morrison-Saunders et al.,
than simply regulating/mandating for local content. 2014; Otto, 1997; Sassoon, 2009; Stacey et al., 2010). This paper
This fourth paper charts the course, past to present, of legal describes the change of approach to land use from an apatite
developments related to mine closure in South Africa with (phosphate) mine site to farmland. It details methods and results,
observations about possible future trends. The South African including: 1) pre-commercial trials of selected broadacre crops; 2)
legislative framework for mine closure and rehabilitation generally rotational cropping using legumes; 3) high value crops; and 4) a
conforms to international expectations for best practice. The microbial prospecting program to determine capability of indige-
system, however, is extremely complex, featuring many individual nous bacteria to fix nitrogen to enhance plant productivity without
laws, regulations and guidelines that are specific to mine closure nitrogen fertiliser imports. The paper demonstrates that post-
planning and management in the country. These include: 1) mining lands can become a productive and commercially viable
interconnected rafts of specific provisions and expectations agricultural system in a rapid enough timeframe to achieve the
alongside identified governance capacity constraints (financial, socio-economic development objectives of a small, relatively

Please cite this article in press as: M.P. McHenry, et al., Making extractive industries-led growth inclusive: An introduction, Extr. Ind. Soc.
(2017), http://dx.doi.org/10.1016/j.exis.2017.03.006
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Surety for Mine Closure Extractive Industries for Development Series 7, A

Please cite this article in press as: M.P. McHenry, et al., Making extractive industries-led growth inclusive: An introduction, Extr. Ind. Soc.
(2017), http://dx.doi.org/10.1016/j.exis.2017.03.006

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