Involving the Public - Mining and the Environment: From Ore to Metal - page 146

want to use natural resources - land, forests, water, mineral resources, etc. - in different
ways. Differences can lead to conl ict for three reasons: (1) there is competition for natural
resources, economic benei ts, property or power; (2) stakeholder groups believe that their
needs cannot be met; and (3) stakeholder groups perceive that their values, needs or inter-
ests are under threat (Engel and Korf 2005).
Each new mine development is likely to encounter all three potential conl ict areas.
Sharing of economic benei ts will never be received as fair by all parties. Some will argue,
whether justii ed or not, that their interests and needs have not been met by the mine
developer, while most people will tend to see change as threatening their comfort zone,
at least initially. People generally resist change, especially when they do not understand
or agree with the goals, the methods, the sponsor or the timing of the proposed change.
Accordingly, to keep the public in the dark is a recipe for disaster (Connor 2001).
Sometimes it is best to monitor a conl ict without intervening. At other times, how-
ever, if a conl ict is ignored or attempts to manage it fail, it can grow into dispute. A dis-
pute occurs when a conl ict over a specii c issue becomes public. A dispute can be a i ght,
an appeal to authorities, or a legal action. The difference between dispute and conl ict is
important. All disputes rel ect conl ict, but not all conl icts develop into disputes (see also
Chapter Fifteen on community development).
Some conl icts develop into disputes quickly. As one example a disagreement over land
compensation will quickly turn into a dispute if not managed and resolved in a timely
fashion. Then there are other conl icts that remain latent for a long time until triggered or
aggravated by something new. Dissatisfaction with the way the mine operates may build up
over time before anger is released, sometimes violently, triggered by say a mining accident.
Conl icts may occur only locally, but in the mining sector they often involve regional, national
or even global parties. Conl icts range from disagreement over land use, to conl icts between
host community and the mine over shared economic benei ts. Another common example is
disagreement by community members concerning workforce recruitment policies.
Mining conl icts often have many causes that are closely linked - some form the core,
others are underlying or contributing. Engel and Korf (2005) divide the various factors
causing conl ict into four principle types: (1) growing competition for natural resources; (2)
structural causes; (3) development pressures; and (4) natural resource management poli-
cies, programmes, and projects.
Competition for natural resources, of course, can often be accommodated by com-
pensation. Land acquisition is an obvious example. Compensation can take many forms.
Experiences demonstrate that i nancial compensation, often the preferred option by
affected people, is the least effective choice. Multi-lateral development agencies favour
land for land compensation, and encourage non-monetary assistance to affected communi-
ties rather than cash payments. This is further discussed in Chapter Fifteen.
Structural causes of conl icts are more difi cult to address. Established organizations
and patterns of host communities govern how traditional law works. Natural resource
conl icts are often underpinned by these traditional or customary structures. A conl ict
becomes more complicated when customary law and State law are organized differently;
one is local and the other national. Broader social, political, economic or legal frameworks
at national level may be perceived as unjust, ineffective or exclusionary by local affected
communities. This makes it difi cult to solve structural conl icts, which often lie dormant
until awakened by development of a new project. Customary land rights often remain
unclear, even when they are acknowledged legally. Wider inequalities (real or perceived)
may also lead to conl icts over use or control of natural resources, and the distribution of
economic benei ts in terms of taxes, royalties, and dividends. Struggling for resource access
then often becomes linked with a search for recognition of identity, status, and political

Some will argue, whether
justifi ed or not, that their
interests and needs have
not been met by the mine
developer, while most people
will tend to see change as
threatening their comfort zone,
at least initially.

Dissatisfaction with the way the
mine operates may build up over
time before anger is released,
sometimes violently, triggered by
say a mining accident.

Experiences demonstrate that
fi nancial compensation, often
the preferred option by affected
people, is the least effective
choice.

Customary land rights often
remain unclear, even when they
are acknowledged legally.