ATC141030: Report of the Portfolio Committee on Mineral Resources on its oversight visit to the Province of Gauteng, on the 25 – 26 September 2014, dated 29 October 2014
Mineral Resources and Energy
Report of the Portfolio Committee on Mineral Resources on its oversight
visit to the Province of Gauteng, on the 25 26 September 2014, dated 29
October 2014
The Portfolio Committee on Mineral Resources, having
undertaken an oversight visit to Gauteng, reports as follows:
1.
Introduction
Illegal mining activities have assumed
serious proportions, with about 6 000 people estimated to be involved in
illegal underground mining and another 8 000 in illegal surface mining. In
2011 alone, it was estimated that illegal mining subtracted about R6-billion
from the countrys fiscus. Free State Supreme Court Judge Jake
Moloi
stated that these illegal activities are
orchestrated and are syndicated with the foot soldiers doing the dirty work for
the faceless bosses.
In many cases
illegal miners have died either because of accidents underground or because
of fights between rival gangs underground or through the actions of mine
security. Illegal mining and also the theft or destruction of mining assets
have
been a feature of the poorly managed liquidations of
mines such as
Pamodzi
Gold and
Blyvooruitzicht
.
Illegal mining activities have jeopardised or prevented the re-opening of such
mines, with further negative implications for mining employment.
Illegal mining is also associated with
increased environmental harm.
Since 1999, the scale and intensity of
illegal mining has only increased. Judge Jake
Moloi
pointed out in a judgement in March 2014 that: There is no law regulating the
illegal mining activities.
The most the
State can charge the illegal miners with is Trespass and Theft or Attempted
Theft as in our case. In an unusual intervention, Judge
Moloi
called on Parliament to enact a law that will have harsh punishment for
illegal [mining] activities which are assuming horrendous proportions.
Acid Mine Drainage (AMD) related to gold
mining is a malady that affects many areas in SA, but particularly the Vaal
River basin in Gauteng. The problems are huge. They are the result of careless
mining practices in the past and pose a serious threat to future generations of
South Africans. The old mine shafts are filled with groundwater when they are
abandoned and the minerals in the rocks leach into the water.
The overall effect is to render the water
toxic to varying degrees, making it both a hazard and unfit for human or animal
consumption or for agriculture. This problem of AMD is now largely the
responsibility of government and the Department of Mineral Resources (DMR) allocate
funds both to the Council for Geoscience and
Mintek
from its budget specifically to find practical and economical methods to deal
with AMD.
2.
Background
A
delegation of the Portfolio Committee on Mineral Resources (the Committee)
visited Gauteng Province from 25 26 September 2014
The
Committee visited the Council for Geoscience and
Mintek
(at its pilot
Savmin
plant in Roodepoort) to
understand the practical measures that are in
place and to form a view on whether the resources currently voted to deal with
AMD are sufficient
. The National House of Traditional Leaders was also
visited to engage with traditional leaders on mining issues as they relate to
communities.
The
visit included an orientation briefing by the management of the DMR, mine
owners and national security officials on illegal mining and a tour to illegal mining
areas,
3.
Composition of Delegation
3.1
Parliamentary
Delegation
The
delegation was composed of the Chairperson of the Committee as the Leader of
the delegation, Mr S
Luzipo
(ANC), Mr ZMD Mandela
(ANC), Mr MH
Matlala
(ANC), Ms MV
Mafolo
(ANC), Ms NM
Mdaka
(ANC) Mr I M
Pikinini
(ANC), Mr J Lorimer (DA), Mr S
Jafta
(AIC).
Accompanying
the committee was the Committee Secretary Miss A Boss, Committee Researcher, Dr
M
Nicol
, Communication Officer, Mr J
Molafo
, Committee Assistant, Mr M
Zibeko
.
3.2
Department
of Mineral Resources
Mr D
Msiza
, Chief Inspector of Mines, Mr S
Phetla
,
Assistant Director: Communication, Mr V
Magagula
,
Parliamentary
Liason
Officer, Ms M
Malebe
, Regional Manager, Mr R
Masenya
, Director:
Mine Closure, Mr K
Mhlongo
, Office of the DG, Mr K
Matrose
, Office of the DG, Ms R
Zwane
,
Office of the Minister, Mr R
Serota
,
Communication officer
3.3
Council
for Geosciences
Prof P E
Ngoepe
, Chairperson of the Board, Mr M W Kota, CEO, Mr LD
Matsepe
, CFO, Dr G Graham, COO, Mr T
Mawela
,
Quality Assurance, Mr M J
Moyapuo
, Business
Development, Dr M
Makgae
, Manager.
3.4
Mintek
Dr A
Mckenzie
, General Manager Technology, Mr H Michau, Manager:
Inforcomms
, Ms L
Letsholo
,
Executive PA, Ms F
Tanjekwayo
, Events Coordinator, Mr
M Makhafola, General Manager: Research and Development, Mr L Kruger, Manager:
HMD, Ms P
Muzadi
, Senior Engineer, Mr S
Mokoena
, Senior Engineer, Mr F
Mathebula
,
Chief Operator, Mr J
Makharetsa
, Senior Operator, Mr
N
Nyambeni
, Technician, Mr E
Tshweneyame
,
Communication Officer.
4.
Briefing by the Department of Mineral
Resources on illegal mining
The
Committee met with the task team that deals with the illegal mining in Gauteng
in the head office of the Department of Mineral Resourced in Pretoria. The
Committee was welcomed by the Minister of Mineral
Resources,
Adv Ngoako Ramatlhodi hoped the Committee would have fruitful engagement during
the course of the visit.
The Deputy Minister, Mr Godfrey Oliphant said
the DMR wanted by to see stability in the fight against illegal mining by December
2014, eventually leading to the total eradication of the practice by February 2015.
He commented that the battle against illegal mining is not getting any better
but they are determined to reclaim the country from illegal miners and needed
to get all the co-operation.
Mr David
Msiza
gave
a presentation on the illegal mining. He indicated that the illegal mining
activities in Gauteng Province mainly occur in the Far East Rand, Ekurhuleni,
Central Rand, West rand and Far West Rand.
Illegal mining adversely affects the health and safety of the mine
employees, communities and illegal miners as it is in the past resulted in a
significant loss of life mainly as a result of underground fires, fall of
ground accidents and murder. It has a negative impact on the countrys economy
and results in a significant loss of revenue for the state and the mines.
According to a 2007 study it was found that close to 10 % (i.e. R5.6 billion)
of gold production is stolen and smuggled out of the country.
Mr
Msiza
reported
that factors fuelling illegal mining included national and international
organised crime syndicates which are targeting the mining sector. They are
highly organised, dangerous, well financed and complex. They take advantage of
mine closures and liquidations with consequential job losses especially on
derelict mines. The majority of the people doing the digging are from outside
South Africa, most come from Lesotho, Mozambique and Zimbabwe.
They use proceeds from the illegal mining and
asset theft for furtherance of other crimes including murder and many
robberies. The miners have explosives, some of which are smuggled in from
Zimbabwe. The syndicate activities fall within the framework of Prevention of
Organised Crimes Act (POCA).
Mr
Msiza
briefed
the Committee on the Level 1 illegal Mining Modus Operandi. He said that some mine
employees on operating mines give or sell clocking cards to illegal miners.
They mine for personal gain during normal work hours or outside normal hours.
Mine employees supply illegal miners, who spend extended periods underground,
with food and consumables at exorbitant prices. The illegal activities are also
linked to theft of gold and assets from processing plants.
The illegal miners access underground
operations through collusion with employees or mine security, getting access
cards and sometimes they can pay around R7500 as bribes to get underground.
Alternatively, they dig around concrete slabs of sealed shafts, enter through derelict
mine shafts and openings in the ground. This activity is very dangerous, with
poor ventilation and the risk of cave-ins. The illegal miners dig for gold
bearing material (GBM) on surface at demolished plant locations, rail tracks
and slime dumps. They process GBM using mercury in old underground workings,
hostels, next to streams and in their backyards.
Mr
Msiza
reported
that the DMR established a Gauteng Stakeholder Forum which is implementing
measures on key focus areas to strengthen access control and security measures
at mines. Derelict and ownerless mines are rehabilitated. Open holes, shafts
and openings are continuously identified and sealed by DMR, CGS and mining
companies. Stakeholders review and implement effective methods for preventing
access to underground workings. The DMR encourages mining of surface outcrops
where possible utilizing opencast mining methods. The use of land where illegal
mining sites have been rehabilitated is encouraged. A workshop was conducted
with all the stakeholders including the NPA, SAPS and mining companies on all
the relevant legislation which will strengthen the formulation of charges and
sentencing of kingpins/illegal miners. Small (registered) metal refineries have
been identified as a weak point and the validity of licences have been verified.
He further reported that the National
Coordination Strategic Management Team (NCSMT) was established by the JCPS to
coordinate governments efforts to fight illegal mining and the trafficking of
precious metals. The Gauteng Forum also reports to the NCSMT. SAPS have
established Mines Crime Combating Forums for the purpose of combating crimes
that are occurring in the mines and also to tackle illegal mining.
Mr
Msiza
reported
that there are many challenges which the authorities face, including, amongst
other things, the violent attacks on SAPS, DMR, CGS and mine officials;
continuous re-opening of sealed holes and new holes being excavated by illegal
miners; mine and surface infrastructure being compromised as a result of mining
of remnants and stability pillars; degradation of the environment including
water, soil and air pollution by processing using water from streams and using
mercury; the increase in crime associated with illegal mining including murder
as a result of rival gang activity and the theft of copper cables and steel.
The achievements were reported as follows:
The DMR and CGS have sealed 126 open shafts and holes in Gauteng Province;
improvements have been introduced in the access control at the mines including,
amongst others, Facial Biometric Access Control Systems. The frequent vetting
of security personnel has been accompanied by successful disruption operations,
raids and arrests. During March 2014, a mine manager was arrested after he was
allegedly found in possession of 1
,3
kilograms of gold
believed to have been 80% pure and worth about R500 000. In June 2014,
Sibanye
Gold employees were arrested at
Driefontein
Gold Plant for an alleged multi-billion Gold theft. It was believed that the
employees were part of a syndicate. ITAC, which is subsidiary of DTI, has
imposed customs controls to stem the export of scrap metal.
Ms
Msiza
concluded
that the Gauteng Illegal Mining Forum will continue implementing measures to
eradicate the illegal mining activities. They will continue with the
rehabilitation of derelict mines and the sealing of open shafts and holes to
prevent access to underground workings. They will support the enforcement agencies
initiative including strengthening of charges and sentencing of criminal
syndicates. The DMR will consider how to strengthen the legal provisions to
criminalize illegal mining activities. Small refineries will be identified and the
validity of their licences (to deal in precious metals) will be investigated.
The DMR will promote legitimate mining and removal of exposed minerals where possible.
4.2
Briefing by National
Coordination Strategic Management Team
The
National Coordination and Strategic Managements (NCSMT) briefing was presented
by Ms
Sebona
on behalf of
Maj
Gen
Mabula
of the SAPS Directorate of Priority Crime
Investigations (DPCI).
The
purpose of the presentation was
two fold
; first was
to apprise the Portfolio Committee on the threat of illegal mining and the
subsequent trafficking of precious metals and related crimes; second was to
highlight current strategies employed and progress in implementing them.
A
comprehensive and impressive presentation gave a background on where the
Illicit Mining project stems from, gave insights into the scope and extent of
illicit mining as well its cross-cutting, cross-impacting nature.
Because of the international criminal links,
its impact on national security was amplified.
The
committee was also briefed on the work of the NCSMT, its strategic alignment,
governance structure and interventions, both operational and strategic. The
modus operandi of syndicates was shared and project successes were also
highlighted.
Ms
Sebona
concluded the briefing by highlighting some
constraints that impact on the efficacy of the existing NCSMT strategies.
4.3
Briefing by Gold One
Mr John
Hericourt
,
representative from Gold One briefed the Committee on the mining company
perspective on the illegal mining. He reported that with over 230 known shafts
and holes for access on the East Rand, organised illegal mining and theft has
increased dramatically since 2009. Apart from the substantial theft of gold
bearing material and scrap metal, these activities have resulted in significant
loss of life due to fall of ground incidents, gassing and heat exhaustion,
smoke and fume inhalation and faction fighting. He reported that shaft closure
work carried out by Gold One alone since 2010 cost R7 125 626.
Mr
Hericourt
indicated that as a way forward an Illegal Mining Security Task Team should be put
in place specifically to monitor and target illegal mining activities. There
should be regular ongoing liaison with DMR and CGS on all incidents and new holes.
When holes are located they are fenced and security put place to guard them. A two
week warning notice of closure is distributed in and around the
hole
and, where possible, holes are sealed with concrete
plug in the solid rock. Gold One personnel are active participants in the
Illegal Mining Forums.
5. Visit to Council for Geosciences
Prof
Ngoepe
, Chairperson
for Council for Geoscience (CGS) welcomed the delegation from Parliament and
introduced his team.
The
problem of Acid Mine Drainage (AMD) related to gold mining is now largely the
responsibility of government. The DMR allocates funds both to the Council for
Geoscience and
Mintek
from its budget specifically to
find practical and economically viable methods to deal with AMD. The purpose of
the visit was to understand the practical measures that are in place and to
form a view on whether the resources currently voted to deal with AMD are
sufficient. CGS is involved in closing/rehabilitating ownerless and derelict
gold mines in ways that stop the ingress of illegal miners into the old
workings.
Mr M Kota,
the CEO presented the mandate, strategy and objective, business model, funding
and key programmes for CGS. CGS has faced many challenges which include
declining contract revenue, inadequate statutory funding, delays in the implementation
of the Geoscience Amendment Act (Act No 16 of 2010), ageing infrastructure and the
need to refocus and align the organisation to address SAs development
challenges. Different scenarios for the practical rehabilitation of derelict
and ownerless mines were presented to the Committee.
Mr Kota reported
that there is a closure programme aiming at sealing 45 holes in the current
financial year. Illegal mining poses challenges for the safety of field staff
and contractors. The sustainability of closures is jeopardised as holes are
often re-opened by illegal miners after they have been sealed by the CGS.
Dr M
Makgae
outlined the objectives of the strategic mine water
management project which are to prevent ingress of surface and groundwater into
the underground workings; manage decanting of mine-polluted water; predict and
prevent harm to the environment; apportion pollution sources and liabilities;
develop a mine water management strategy and canalisation of the natural
watercourse between Florida lake and
Fleurhof
Dam.
6.
Visit to the National
House of Traditional Leaders
The Committee paid a courtesy visit to the
National House of Traditional Leaders (NHTL). The Chairperson, Kgosi
Maubane
welcomed the delegation from Parliament and
introduced the delegation of traditional leaders.
The Chairperson outlined the purpose of the
visit which was to engage with NHTL on issues related to mining. He indicated
that the committee had an initial stakeholder engagement on the 20
th
August with some mining stakeholders and the Committee felt that as the time
goes it needs to engage with traditional leaders and the mining communities.
The discussion between the NHTL and the
Committee included:
-
It
was realised that communities are not conversant with the sort of
agreements which they need to sign with mining companies. A proposal was
made on the model that could be used when dealing with mining companies
especially by allocating the 26% HDSA ownership minimum for communities.
-
There
are challenges experienced by communities as there is no proper
consultation. It should be obligatory for mining companies to indicate the
consultation times with the communities;
-
The
NHTL raised a concern on the manner in which rural communities are
exploitated
by mining companies. Communities say there
is very little in terms of co-operation;
-
They
felt that people who own land must also get a share in the mining
business, and not be involved just as labourers;
-
The
communities are never offered workshops or other opportunities to get
education about legislation affecting them. The traditional leader will
just only be asked to sign the document without any understanding;
-
There
is a big concern on the level of benefit the communities get from mining;
-
The
percentage received by communities should a free ride and should not
include debts of the company and should not have any conditions.
-
Housing
conditions should be revisited;
-
The
NHTL indicated that mining must not create families that do not have
fathers. Benefits in terms of shelter must begin where the worker comes
from.
-
The
Institution of traditional leaders must be involved from the initial stage
and not only be roped in the middle;
-
The
Traditional Council should make sure that it does not only benefit one
family but the community must benefit broadly;
-
The
issue of mining companies interacting directly with communities creates
huge problems as it divides the communities. In an area where there is
traditional leader, the mining companies should liaise with traditional
leaders; and
-
The
issue of BEE partnership is a serious concern. First consultation should take
place with the communities of the area to allow them to get the rights to
minerals, before someone from another province is approached.
7.
Visit to
Mintek
treatment Plant
Mr A McKenzie
welcome
the delegation from Parliament and outlined the process of water treatment for
Acid Mine
Drainange
(AMD). There are four stages that
takes place before water can become clean and fresh. Stage 1 is Metal
Precipitation, Stage 2 is
Ettringite
Precipitation, Stage
3 is
Carbonation and the final stage is
Recovery of Al(OH)3 Reagent.
Mr McKenzie further reported how
Mintek
is conducting its part in the project on Derelict
and Ownerless mines. In the Project planning, he outlined that they attend to
site characteristics, data collection, mapping and surveying, soil sampling, geotechnical
investigation and health and safety investigation for two months. For detailed
design, they hold community meetings, site the access roads, locate water and
fill material, undertake detailed engineering design and specification and complete
construction drawings for two months.
The tendering process takes about two months
where tender documents are complied, site meetings conducted and the contractor
is introduced to the community. The construction takes about four to twelve months.
This includes the site establishment, hire of local labour and conduct of medicals,
constructing access roads, site construction, regular monitoring and
inspections, quantity surveyor verification, invoicing control, final surveys
and inspections and reporting.
Mr McKenzie stressed that dealing with the
legacy of ownerless and derelict mines is a long term and almost an endless
project.
Mintek
has, so far been dealing mainly with
old asbestos mines. These are the most urgent in terms of health hazards, but
they are many other
coal
, gold and other mines,
including quarries, where the state has the responsibility for rehabilitation.
There is an urgent need for funding to be made available on a rolling basis so
that work does not come to an end when the present fixed term funding is
completed. This means that work has to start again from scratch when new
funding is allocated.
8.
Walk about to areas
where illegal mining is taking place
The Committee visited the following areas:
A.
West
Rand
Illegal mining takes place in Krugersdorp (
Mogale
Gold) and Roodepoort (Durban Roodepoort Deep Gold
Mine).
B.
Ekurhuleni
The illegal mining
activities take place along the mining belt from
Germiston
(Primrose Gold Mine) through
Boksburg
,
Benoni
(
Benoni
Gold Mine and
Gravelotte
Gold Mine)
Brakpan
(New
Kleinfontein
Gold Mine and Consolidated
Modderfontein
Gold Mine),
Springs
(
Grootvlei
Gold Mine) and Nigel (
Marievale
Gold Mine).
None of the old gold mines
in the area are operating and
Pamodzi
Grootvlei
Gold Mines, which occupies much of the area, is
in liquidation.
The Committee had an
opportunity to engage with the Community in
Roodeport
.
They indicated that they had a problem with illegal mining as their lives on a
danger. Illegal mining happens in a day light and they have a problem with
police as when they report the incidents, the illegal miners dont get
arrested. One of the community members indicated her house might fall any time
as she discovered that there is a hole at the back where illegal miners used to
mine gold.
Committee members spoke to
some illegal miners and saw then coming up from underground with bags of ore,
hammers, chisels and head-torches. They were shown how the ore is crushed by
hand and then washed out on James tables constructed by the illegal miners.
Many miners ran away when the Committee (and the police, emergency services,
DMR and CGS) approached them. The Committee saw stockpiles of ore in bags piled
up just off Main Reef Road, waiting for collection by
bakkie
.
The scale of the illegal mining is evident right along the reef. The freshly
dug holes many substantial excavations go steep and deep into the earth,
posing an immediate threat to communities in these heavily populated areas.
9.
Findings
The Committee observed the following:
Illegal Mining
·
The reports presented to the
Committee were not just
good,
they were a real eye
opener. The Committee was very impressed by the knowledge, dedication and
professionalism of all the officials, security and mine staff they interacted
with;
·
There is an evident of lack
of capacity and resources in dealing with illegal mining at present. All
parties said the problem is worse than in 2009, when the PC last considered the
issue;
·
The issue of legislation to
combat illegal mining is quite critical. There should be careful consideration
of creating silos legislation;
·
Most of illegal miners are
foreign citizens and they enter the country illegally;
·
The Committee found out that
there were more than 700 people underground these holes who are illegally
mining; and
·
Police officials are not
sure how to take statements when these illegal miners get arrested.
House of Traditional Leaders
·
There should be more
engagements with traditional leaders especially with the departments that issue
mining licenses and the Committee;
·
As the Mining Charter
reaches it ten year milestone, it would assist if the NHTL would undertake to
contribute to the process of evaluation; and
·
The visibility of NHTL is
not seen.
Acid Mine Drainage
·
The Council for Geosciences
and
Mintek
have done a lot of work in dealing with
AMD and Derelict and Ownerless mines; and
·
More funding is needed
especially in CGS for ageing infrastructure.
10.
Recommendations by the Committee
The
Portfolio Committee on Mineral Resources having heard evidence from all
stakeholders listed above recommends the following:
·
The Department of Home Affairs
needs to tighten immigration laws to prevent foreign illegal miners from being
in the country;
·
There should be a workshop
of police officials on how to take statements with regards to illegal mining;
·
There should be more
engagements between the NHTL and the department on the issuing of mining
licenses, a process that should also include community participation;
·
The DMR should increase the
funding for CGS in order to carry out its mandate and implement the Geoscience Amendment
Act;
·
The DMR should suggest how
the law can be changed to prosecute illegal miners and make the job of police
easier. This is already recommended by the Free State High Court judgment:
Mugota
v S (A244/2013) [2014] ZAFSHC 25 (13 March 2014)
;
·
When the police arrest
people there is a 9 month backlog to verify that they were in possession of
unwrought gold. This makes it almost impossible to follow-up with cases because
a person has to be released within 48 hours if there is no evidence of breaking
the law. The scientific facilities of the CGS should be made available to
assist the police rapidly with these forensic inquiries;
·
The illegal use of water by
illegal miners requires consideration by the PC on Water and Sanitation;
·
There should be a study by
DMR to see if some illegal miners can be made into legal small scale or artisanal
miners in this environment;
·
There is a need for better legislation
to deal properly with the closure of mines. The more you close the gold mines,
the more you are creating conditions that encourage illegal miners. The DMR
should research sustainable mine closure, that considers both the environment
and community issues; and
·
The municipalities approve
zoning for human settlement despite the fact that these may be in danger zones
because of the geology (dolomite), pollution/radioactivity or because of
undermining by old mining and present illegal mining. The Constitutional Court has
found that land use management is a local and provincial function and is not
within the powers of the DMR. There needs to be a better intergovernmental
arrangement to stop municipalities zoning for human settlement land that is
subject to
geohazards
.
Report to be
considered
Documents
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