The Antamina copper and zinc operation operated by Compañía Minera Antamina (CMA) in Peru has from the beginning faced community challenges emanating from the country’s mining history, which is marred by environmental liabilities associated with past land use. Such issues have been a source of ongoing concern for local communities. While CMA implemented stringent environmental standards and policies, appropriate channels did not exist for communicating this to communities. In turn, communities had no avenues for airing their concerns and grievances. A solution has been to establish local environmental committees for building consensus and resolving conflicts.
Antamina is located in the district of San Marcos, Department of Ancash, in the central Andes of Peru. The mine lies 270 kilometres directly north of Lima (473 kilometres by road) and 45 kilometres north-west of Huánuco at an elevation of between 4200 and 4800 metres above sea level. The operation includes an employee housing complex in Huaraz, the capital of Ancash, and a 302-kilometre pipeline that runs from the mine site to the port of Punta Lobitos in the municipality of Huarmey.
Mining projects in Peru, as elsewhere in the world, are typically in remote areas, and surrounding communities are characterised by extreme poverty and limited services. Many historic environmental liabilities, mostly associated with land and water contamination, have been left unattended. There is a lingering perception among communities that mining projects have significant impacts upon people’s health and their surrounding environment.
In the 1990s, the introduction by government of the Code on the Environment and Natural Resources and the Private Investment Growth Law, together with mandatory Environmental Impact Assessments for every new mining project, created the conditions to attract reputable mining companies to the country. New mining projects have included stringent environmental policies and standards intended to have the least possible negative impact on the environment.
The challenge for Antamina
Since the beginning of the Antamina operation in 2001, CMA’s range of stakeholders have included employees and contractors; the Peruvian government and its relevant authorities; municipalities; agrarian communities; private landholders; local environmental committees; community associations; non-government organisations (NGOs); groups entrusted with developing environmental management proposals and policies for the region; the National Agreement to Fight Poverty, which includes an environmental consensus-building sub group; and the media.
CMA recognised that stakeholders should be kept informed of project development and also have avenues for the communication and resolution of grievances. There also needed to be ongoing interaction with government authorities. There were, however, no mechanisms in place to facilitate interaction with stakeholders. CMA saw the establishment of such mechanisms as an opportunity to generate synergies among its stakeholders and earn the confidence of its host communities on a sustained basis.
The solution – environmental committees
CMA has promoted and supported the formation of environmental committees as consensus-building and conflict resolution mechanisms. The following organisations have been created to date.
San Marcos Environmental Conservation Committee
This committee was the first group formed, in 1999, with the objective of being an official intermediary in environmental issues between Antamina and the community. Its aim was to strengthen the mechanisms of conflict resolution through initiatives such as joint environmental monitoring, public presentations and monthly information sharing meetings.
Over time, the committee has become more involved in internal environmental issues and forestry development, participating in different worktables and regional groups in Ancash. The committee also manages the Environmental Committees Network in Ancash, which includes the environmental committees of Huallanca, Huarmey and Jangas.
San Marcos Environmental Association – Huari
The association was established in June 2001 with a mission to ‘help preserve the environment by leading the concerted effort of the different stakeholders involved to achieve the harmonious and sustainable development of San Marcos’.
Félix Chávez, President of the association, says it was formed because ‘a real concern exists about the social and environmental impact of Antamina’s mining operations’. The association’s main function is to monitor the environmental impacts of CMA. Its strategic objectives include preventing environmental damage and facilitating the handling of conflicts; helping create environmental sensitivity and awareness among the population; and seeking the conservation of the region’s environment and natural resources.
Environmental Protection Association in and for the Ayash Watershed
The association was established in 2001 to represent the communities located within the watershed area where CMA’s tailings dam is located. Its role is to oversee CMA’s environmental monitoring program and to report to CMA any concerns about environmental issues.
The association was created to give a voice to the watershed communities and to gain their confidence. It operates as a workgroup where people can learn about issues and express their concerns and is being legally incorporated as part of the community’s organisational system.
Environmental Management Committee of Huallanca
The committee was established in August 2001 in response to the community’s concern about environmental liabilities and environmental impacts created by neighbouring mines. It was legally incorporated in early 2003.
Huallanca is located in the province of Bolognesi, which neighbours the CMA mine site. It serves as a dormitory town for people travelling from Huánuco to the coast or to Huaraz and is impacted by commercial and mining activities. The committee focuses its efforts on environmental training and improving basic health conditions, with a view to raising the standard of living of the Huallanca people.
Environmental Monitoring, Surveillance and Audit Committee in and for Huarmey
The committee commenced in April 2002 with the power to:
- manage the multi-sector process for building consensus on local environmental issues
- facilitate people’s access to environmental information
- act as a channel of communication between the community, the authorities and CMA
- participate in environmental monitoring, surveillance and audit programs and involve the community and local institutions in these programs
- facilitate the resolution of conflicts that are exclusively related to the environment
- enforce compliance with the commitments assumed by public and private institutions in relation to environmental responsibilities in the Huarmey area.
Martín Farromeque is President of the committee. He says, ‘We are working on this committee to take better care of our environment and, through the members of the different institutions that make up this committee, propose alternatives to better resolve the environmental problems. We will keep a watchful eye on the activities carried out by Antamina and the fishing industries located at Puerto Huarmey, as well as other industries that could damage the environment in the province of Huarmey’.
Public consultation process and communication channels
The consultation process carried out by these environmental committees is based on an open-door policy and on the people’s right to gain access to environmental information.
Consultation processes are being carried out through:
- public meetings to discuss environmental issues
- distribution of quarterly reports on CMA´s environmental monitoring program
- delivery of the Environmental Impact Assessment (EIA) and the Sustainability Report
- joint monitoring work with the participation of the community, local entities, government authorities, NGOs and other stakeholders
- resolution of environmental grievances and claims
- guided visits by stakeholders to CMA´s operations
- involvement by CMA in regional environmental work groups, sponsoring the participation of the environmental committees and assisting in the development of local environmental policies.
Lessons from the consultative process
As in any participative process, many lessons have been learned by CMA, as summarised below.
Standards are not enough – Having high environmental, health and safety standards is not enough to prove that environmental impacts generated by the operation are being managed responsibly. The application of environmental standards does not in itself help CMA earn the confidence of the communities.
Consider cultural diversity – Not all projects can apply the same strategy in order to be accepted by and earn the confidence of local communities. It is important to understand each community’s views of the world, their organisational structure, their internal relations, and their perceptions about the project in order to design an appropriate consultative strategy.
Transparency is essential – Acknowledging that communities have an intrinsic right to learn about the operations to be carried out within their regions, it is essential to be transparent and provide stakeholders with adequate environmental information. It is also important to define the Company’s position on community relations and sustainable development.
Earning people’s confidence – Holding regular discussions and promoting community awareness through the environmental committees is one of the foundations of a process of earning people’s trust and confidence.
Making information available – Based on CMA’s experience, it is essential to use simple language to communicate environmental information and to provide easy access to the information. The challenge consists in developing an information disclosure culture where environmental information is delivered to the community on an open and timely basis.
Establishing appropriate mechanisms – It is important to develop consultative mechanisms collaboratively in order to earn the people’s confidence and strengthen the channels of communication through the environmental committees. A collaborative approach also facilitates the undertaking of joint monitoring work, organising public meetings and resolving environmental conflicts and claims to the benefit of all parties.
Consultation – Consultation should be encouraged from the moment a project is conceived. After identifying the stakeholders, consultation can help to effectively provide information about the Company and its environmental management and sustainable development programs. Consultation also facilitates gaining the necessary community input to improve environmental management programs.
Going forward
Through the creation of the environmental committees, CMA has found a valid and transparent mechanism to earn the people’s confidence and deliver environmental information. This is supported by a constant feedback process that can further improve collaboration with the communities. In turn, the government has a mechanism to disclose information, strengthen its role as managing entity, and receive the people’s input on its environmental policies related to the mining sector.
The environmental committees have become a formal channel of communication between CMA, the government and the community. However, additional mechanisms are required to formalise, institutionalise and strengthen the committees’ right of representation and legitimacy in order to foster a culture of environmental awareness and sustainable development. The mining industry, government and communities need to work together on this task, with the understanding that it is a long-term, step-by-step process.
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