The following is an excerpt from Volume 25, Issue 2 (September 1997) Desmond M. Connor
1. Adopt a comprehensive definition of the "environment."Biology can resolve only about 50% of mining issues termed "environmental"; the other half can be dealt with only by understanding and working on the social and cultural concerns of nearby communities, regional towns and the NGOs and politicians of capital cities. For example, high heavy metal levels in a lake because of drainage through a waste rock pile can be solved with a lime flocculation system. Convincing the residents of a community who draw their potable water from that lake that their water supply is safe is something else again.In the mine development process, the Environmental Impact Study should have a Social Impact Assessment and Management component which will identify and address the social and cultural issues created by the proposed mine. A systematic program of public education and dialogue will be needed to develop informed majority public understanding, acceptance and support for the project.
2. Recognize the impacts of different value orientations of "people-to-nature".While most of us in the developed world practice a value orientation of "mastery-over-nature", the majority of traditional people believe in living by fundamental values of "harmony-with-nature" or "subjugation-to-nature". In many cases, there may be some mix of harmony and subjugation, with perhaps a minority who have lived "outside" tending towards mastery. Other important value orientations have to do with people's views on human nature, time, activity and relationships; these should also be investigated and understood.
3. While exploring the geology of the area, explore also the social and cultural structures you will have to work with.While the exploration team is concentrating on the geology of the area, one member of the team should be tasked with preparing a social profile of the nearby community(ies). This report will provide a systematic understanding of the structure and dynamics of the community or region, including attitudes to nature, change and growth, and knowledge of and attitudes to the mining industry, the proponent and the mine prospect. The structure of a community is at least as complex as any orebody; identifying the dynamic relationships between key families and amongst community organizations adds a whole other layer of challenge. The sooner someone starts to assemble this social data base, the better the team will be able to begin to build the foundation of mutual trust which is critical for ongoing good relationships in the mine development process. Everyone who works on the project is an ambassador of goodwill or ill-will; social and cultural ignorance makes the latter more likely.
4. Even in the exploration phase, begin a modest program of public education and mutual support.With an appreciation for the residents of the community or area obtained from preparing the social profile, use the linkages already made to deal with some of the principal areas of ignorance, myth or concern, and keep community expectations low, e.g. only 3% of prospects actually become operating mines. In small communities, local education is often best done face-to-face by discovering and using key nodes on the local grapevine which are the designated "windows on the world" for the community. When you need some assistance or a concession from the community, ensure that you generate some local benefits that affect most of the residents. e.g. road improvements. My general principle is that: "Everyone should win something", though it doesn't have to be the same thing or have the same value. Often some people simply want recognition of themselves or some value important to them, like honouring a local saint's day in an appropriate way.
5. Mutual trust is essential; build it systematically and carefully.In the process of creating trust, for example with a group of community leaders, the four principal steps are to develop acceptance, understanding, shared goals and leadership. Achieving each step takes time, especially in a cross-cultural situation.The first step is to develop acceptance because, while you are like everyone else in the group in some ways, you are also unlike them in some other ways. The key question is: "Will I be accepted in the group?" Acceptance develops as people become more aware of their similarities and less conscious of their differences; sharing each other's company and eating together help this process. Trust will be blocked until people feel sufficiently accepted by each other. With this achievement, they can begin dealing with the next step - understanding. Because each one of us lives in a particular world of experience, knowledge, attitudes and values, the second core question is understanding: "Will I really be understood in this group, and will they understand me?" Words have meanings, based on our experiences, so when each of you talk about the "land", will you really know what the other means? Even in our own culture, look at what has happened to the meaning of the word "gay" in the last 10 - 15 years. People will typically remain defensive and unwilling to risk until they have some sense of being understood by others who have clearly different backgrounds. The next issue is shared goals. e.g. "Despite our differences, do we have enough shared goals to make co-operation between us possible and productive?" As a positive group climate develops, participants will be prepared to surface their hopes, fears and objectives for their community With the insights provided by the social profile, representatives of the mining company should be able to talk about how the proposed mine can help the community to achieve its goals, and how any feared negative aspects can be managed. The final issue is leadership e.g. "How will mining-community decisions be made?" Will each side inform and consult with the other before making a decision and an announcement, or will it be the old DAD (Decide-Announce-Defend) mode? Once a commitment is made, consistent performance will reinforce confidence in each other. Once trust is built up in this way, it can break down through thoughtless action or a lack of maintenance work, e.g. not continuing the relationships just develped. If there are changes in the composition of the core group which initially worked through this process, then the newcomer(s) have to be brought on board. Continuity in mining personnel dealing with the community is especially important; frequent staff turnover predicts poor community relations.
6. The media is a dubious ally with its own agenda. If you want something said clearly and well, say it yourself.The media plays a vital role in the life of a community, but it is often interested in publicizing conflict as a means of increasing its audience. Reporters often believe that, in the interest of balance, they must feature the views of opponents. Instead of putting out news releases, it is often better to buy space in a newspaper to present your information systematically, using an engaging question-and-answer format and some relevant graphics.In a mine expansion on Vancouver Island in British Columbia, the local reporter was a keen environmentalist but ignorant of mining; the project manager walked him through the Stage One report, giving him a condensed Geology 101 in the process. He remained concerned about environmental issues, but from then on his articles were much more factually correct.
ConclusionDeveloping positive mining-environment relations in the mine development process is not easy - it requires consistent and effective effort from early exploration through to operations. These essential elements, if implemented, will contribute to positive results for the environment, the community and the mining company.
ReferenceConnor, Desmond M., Constructive Citizen Participation, Sixth Edition, Development Press, Victoria, B.C., Canada; 1997; 236 pp.; $49.00. Includes five mining case studies.
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