SMALL SCALE MINING IN
BENGUET: A Scoping Study
Contents of the Report
OVERVIEW
A. Objectives and Scope
B. Methodology
C. Limitations
BACKGROUND
A. Policy History of SSM from the Spanish Period to the Present
B. Relevant Policies Governing Small Scale Mining
THE CURRENT SITUATION OF SMALL-SCALE MINING IN BENGUET
A. Current Status of Minahang Bayan Applications
B. Small-Scale Mining Operators
C. Number of Small-Scale Miners
D. Description of Major Stakeholders, Issues, Recommendations
E. Indigenous Practices (sourced from Caballero, 1996)
Objectives and Scope
To provide an overview of small-scale mining
(SSM) in Benguet by describing the major
stakeholders of the industry,
to provide a brief historical context of the policy
environment that they operate in, and
to identify and document the issues and concerns
that they face.
Methodology
Undertaken for 4 weeks; field work January 15 to February
7, 2018
Methods:
secondary data review
primary data collection: focus group discussions (FGD),
key informant interviews (KII) and participant observation
Conducted close to 80 interviews
6 focus group discussions
Direct observation of activities in 9 SSM areas.
Limitations
Done in Benguet only
The very nature of small -scale mining which is deemed
“illegal”/”informal” so limit of access to public
information
Limited time frame
The timing of the crackdown on SSM by the National Task
Force Mining Challenge – hesitation to provide more data
Background
Benguet has various municipalities that are
declared and claimed as ancestral domains by
indigenous peoples and indigenous cultural
communities.
Mining is the second major economic activity in the
province, providing employment to about 30% of its
residents.
Small-scale mining is a major livelihood for
households in 7 of the 13 Benguet towns
Background
There are 11 large-scale mining corporations in
Benguet
They hold 4 patented mining claims, 8 mineral
production sharing agreements and 2 exploration
permits covering a total of 15,547.16 hectares
Only 4 are commercially operating as of
December 2017
Pertinent Laws Republic Act No. 7076.
People’s Small-Scale Mining Act of 1991
rationalize viable small-scale mining activities and to
generate more employment opportunities.
Its salient features are:
the declaration of People’s Small-Scale Mining Areas to be made
available exclusively for small-scale mining operations;
thecreation of a Provincial/City Mining Regulatory Board as the
permitting and regulatory arm of government for small-scale
mining activities,
and the P/CMRB to be under the direct control of the DENR
Secretary.
Pertinent Laws
Republic Act No. 7160 or the Local Government Code:
devolution of some DENR functions to the LGUs.
DENR Administrative Order No.30 series of 1992: Guidelines
for the transfer and implementation of DENR functions devolved
to the LGUs are the enforcement of small scale mining laws and
the issuance of permits to extract sand and gravel and other
quarry resources.
DENR Administrative Order No. 37 (amended DAO No. 30):
small scale mining permits set by PD 1899 and RA 7076 shall be
issued by the provincial Governor.
The Philippine Mining Act of 1995 (RA 7942)
or the Philippine Mining Act of 1995
it is the responsibility of the State to promote the rational exploration,
development, utilization and conservation of the country’s mineral
resources through the combined efforts of government and the private
sector to enhance national growth, effectively safeguards the environment
and protects the rights of the affected communities.
This principle was the basis that President Benigno Aquino III issued EO 79
on July 6, 2012.
It institutionalizes and implements reforms in the mining sector by
providing policies and guidelines to ensure environmental protection and
responsible mining in the utilization of mineral resources. Consequently,
DENR revised the implementing rules of RA 7076 to operationalize these
reforms in small scale mining on March 16, 2015.
Distribution of SSM
Associations (81)
4 10 LIST2.docx
8 58
Distribution of BFSSMI Member-Associations
by Municipality as of January 2018
Municipality No of SSM
Associations
Itogon 53
Mankayan 11
Tublay 5
Bakun 4
Tuba 3
Kabayan 3
Bokod 2
Total 81
Status of Minahang Bayan Applications
12 endorsements, to DENR Secretary, 11 returned
for validation
Additional 12 endorsements to DENR Secretary
LIST.docx
Location of
Minahang
Bayan
Applications
in Benguet
(MGB-CAR)
Minahang File petition/proposal for the Declaration of Minahang Bayan
Petitioner/
Board
Bayan
Application Decision: YES (Open for Declaration as Minahang Bayan)
Process NO (Petition/ Proposal Denied) MGB/Region
Viability Evaluation by the concerned Regional Office with MGB DENR
consideration for Mining Processing Zone if Applicable
Forward the evaluation result to the Secretary thru the Director for MGB DENR
initial review to the Board
Notices from the Board to Holder/s of conflicted Mining tenements
but within the categories of MB; Posting of Notices to the Bulletin
Board
Boards, Publication in Newspaper, notice to NCIP and secure
certificate of non-overlap, Notice to LGU and secure favorable
endorsement.
If with
opposition: If with opposition or protest, for resolution Board
Clearance from DENR Secretary
MGB-DENR
Clearance from DENR Secretary Secure
Environmental Compliance Certificate for the Entire Petitioner &
Area EMB
Declaration of Minahang Bayan. Posting and Board
Publication
Environmental Impact Assessment
The process of predicting the likely
environmental consequences of
implementing a project and
designing appropriate preventive
mitigating and enhancement
measures
EIA is used to enhance planning and
guide decision-making.
Enables the proponent to integrate
environmental concerns in the
planning process of projects at the
feasibility stage.
Adverse environmental impacts of
proposed actions are considerably
reduced thru a reiterative review
process of project siting, design and
other alternatives, and the
subsequent formulation of
environmental management and
monitoring plans
EIA Schedule
Site visitation
Public scoping
Submission of Project Description for Scoping (PDS) to
EMB
Technical scoping
Conduct of field sampling and surveys
(dry season), (wet season)
Conduct of perception survey, key informant interviews
and focus group discussions
The
FPIC
Process
Commission en banc
Latest development, as of February 23,
2018 following the creation of the NTF
DENR starts crackdown
on illegal small-scale
miners
By: Karl R. Ocampo- @inquirerdotnet
Philippine Daily Inquirer / 05:22 AM February 21, 2018
After clamping down on large-scale mines last year, Environment Secretary Roy
Cimatu is now on a mission to separate the good and the bad in small-scale mining
as he begins with its legalization and regulation.
Following his recent order to shut down illegal small-scale mines, the secretary
vowed to fast track the processing of Minahang Bayan applications by small-scale
miners and assured that no mining activities would be allowed outside designated
areas identified by the agency.
To operate as Minahang Bayan, small-scale miners must organize themselves and
prove that they have the capability and financial resources to adhere to the
standards and requirements set by the Department of Environment and Natural
STAKEHOLDERS
Mines and Geosciences Bureau
directly in charge with the administration and
disposition of the country’s mineral lands and
mineral resources (DAO 96-40, Article 4 Section 3)
P/CMRB
TWG
Environmental Management Bureau (EMB)
charged with the formulation and implementation
of policies and guidelines concerning
environmental management and pollution,
prevention and control.
The Environmental Compliance Certificate (ECC)
for the Minahang Bayan as one of the
requirements prior to the issuance of a small-
scale mining contract.
National Commission on Indigenous Peoples
Safeguarding the interests of ICCs:
“The ICCs/IPs shall have priority rights in the harvesting, extraction,
development or exploitation of any natural resources within the ancestral
domains.
A non-member of the ICCs/IPs concerned may be allowed to take part in the
development and utilization of the natural resources for a period of not
exceeding twenty-five (25) years renewable for not more than twenty-five (25)
years
Provided, that a formal and written agreement is entered into with the
ICCs/IPs concerned or that the community, pursuant to its own decision
making process, has agreed to allow such operation:
National Commission On Indigenous
Peoples
All departments and other governmental agencies shall
henceforth be strictly enjoined from issuing, renewing, or
granting any concession, license or lease, or entering into any
production-sharing agreement, without prior certification from
the NCIP that the area affected does not overlap with any
ancestral domain.
Local Government Units
Under the LGC, certain functions of the DENR have been fully
devolved to the LGUs.
However, the functions, powers and responsibilities pertinent to
environment and natural resources have been described to be
limited and ambiguous.
The permitting procedure for SSM activities are mainly the
responsibility of the MGB and the Provincial Mining Regulatory
Board of Benguet.
Banko Sentral Ng Pilipinas
Authority of BSP to Purchase Gold
Republic Act No. 7653
(New Central Bank Act of 1993)
The Bangko Sentral ng Pilipinas may buy and sell gold in
any form, subject to such regulation as the Monetary
Board may issue.”
BSP’s purchase of gold helps strengthen the country’s international reserve.
Benguet Federation of Small Scale
Miners
Composed of SSM associations based in Benguet
that caters to all interested SSM associations.
Municipality No of SSM Associations
Itogon 53
Mankayan 11
Tublay 5
Bakun 4
Tuba 3
Kabayan 3
Bokod 2
Total 81
Issues/Concerns and Suggestions
1. MGB
Issues/Concerns Suggestions
The budget allotment for the The MGB regional office has suggested allocating more
implementation of PMRB program is not funds to support the programs, plans and activities of the
enough. PMRB.
Long process of filing of applications, The inclusion in the Regional Office’ Organizational
processing, evaluation and approval of a Structure a Section whose main function is to assist the
Minahang Bayan takes years. small-scale miners and the PMRB.
1. MGB
Issues/Concerns Suggestions
Time frames have not been set Proposes the provision of a monitoring facility to track
as to how long it takes to the status of Minahang Bayan petitions/applications.
secure certain milestones once
an application to declare a This will include a specific timeframe per step in the
Minahang Bayan is made with processing of applications. The requirement or task will
the PMRB. be deemed completed if the said requirement has been
complied with and even if not yet acted upon by the
concerned office within the timeframe without any valid
reason, or the Minahang Bayan application will be deemed
approved if the timeframe is exceeded.
1. MGB
Issues/Concerns Suggestions
There are restrictive provisions in DAO Review the provisions of DAO 2015-03
2015-03, such as the use of certain chemicals
and blasting which are not allowed, but which
small-scale miners use and do.
Most small-scale miners do not have the Expand the IEC topics to include the necessary
expertise and training to handle the requirements in the application for the SSM contracts,
requirements for a Minahang Bayan with simplified forms and a simplified process flow.
application, a process that is highly technical.
For the MGB-Central Office to come up with
simplified pro-forma forms on the mandatory and
Current IEC topics and the campaign against reporting requirements.
illegal mining are still limited within the
Bureau.
1. MGB
Issues/Concerns Suggestions
DAO 2015-03 has vague provisions: Internally, the MGB-CAR to level-off
absence of clarity on the terms of office for with their central office counterparts
PMRB members and no specific guidelines on to agree on a simplified and common
the accreditation process on PMRB format acceptable to both levels.
membership,
the treatment of SSM operations in existence
before 1987 considering the provisions under
Section 8 which provided that SSM areas of
operation before 1987 can be declared as
Minahang Bayan
Clarify PD No. 1899 on the regulation of SSM.
No specific penalty per violation is provided
in the law or a single penalty for a violation.
1. MGB
Issues/Concerns Suggestions
Within the regional and national MGB offices, a Internally, the MGB-CAR to level-off
number of applications that were endorsed to with their central office counterparts
the central office and were returned for further to agree on a simplified and common
evaluation by the Region. format acceptable to both levels.
2. Small Scale Mining Associations
Issues/Concerns Suggestions
The stringent nature of The BFSSMI has repeatedly
requirements from the different requested that these be
agencies involved in permitting and simplified and for fees to be
the long duration of certification. reduced.
Requirements in applying for a
Minahang Bayan that are
too technical
too long-drawn
too expensive
2. Small Scale Mining Associations
Issues /Concerns Suggestions
Restrictive provisions in DAO 2015- MGB to review the provisions.
03, such as the use of certain
chemicals and blasting that are not
allowed, but which SSM operators
use and do.
2. NCIP
Issues and Concerns Suggestions
The FPIC Process is long, difficult There are no separate rules at the moment that will apply
and expensive to SSM, but a proposal to discuss the modification of rules
and procedures of the FPIC process has been raised at the
Requirements for FPIC is difficult
NCIP central office.
to produce
Applicants need to submit a comprehensive EIA and
technical study on the area since these are important
inputs during consultations and in securing the consent
from ancestral domain holders.
It is in the interest of the community to know clearly what
the effects of mining are on their lands.
2. EMB
Issues/Concerns Suggestions
The widespread non-compliance of Setting up and updating of small scale mining
SSM operators and workers to operations databases in the areas will aid in the
existing environmental laws and monitoring and enforcement of existing laws.
regulations.
This is attributed to the difficulty in LGUs need to strengthen their Municipal Environment
convening a multi-agency task force to and Natural Resources Office/Councils not only to help
monitor and enforce laws and monitor along with the TWG of the PMRB, but also to
regulations. assist the small-scale miners in complying with
regulations as well.
2. BSP (on buying)
Issues/Concerns Suggestions
SSMs do not sell to the BSP Currently studying the possibility of
Refining Fee seen as a deterrent lowering the required amount of Gold to be
bought by BSP.
Taxes withheld
opening up more buying stations to come
closer to the SSMs (The Loacan buying station
is being built)
lowering the cost of the refining fee
2. Small-Scale Miners (on selling)
Issues/Concerns Suggestions
The Bangko Sentral ng Pilipina Remove minimum requirement
requires a certain minimum volume
BSP to accredit local buyers
to be sold
BSP and BIR to coordinate so that the BIR can
Early afternoon cut-off time at the
authorize “accredited buyers” to withhold taxes
buying station
from sellers
Require paperwork and the
Reduce paper requirements
payments are in checks that
require the miners to take another Pay in cash
step of cashing the check.
2. Small-Scale Miners (on selling)
Issues/Concerns Suggestions
Taxes withheld and a processing Decrease the processing fee
fee of P1,600.
There are buyers in the area, so accredit more
buyers locally
2. Small-Scale Miners (on selling)
Issues/Concerns Suggestions
These local traders provide credit
at no interest to the operators
when capital runs low, for as long
as they are the buyers of the gold
produced.
SSM want to be anonymous
Seller for the association is
identified as the sole producer
Taxation
No Taxes have been collected from the production of Gold
The lack of information regarding payments made by SSM operators to the LGUs can be
attributed to the fact that the SSMs are regarded as belonging to the “informal’ sector
and are thereby not registered at the Municipal or the Barangay level.
No revenues are collected from this small-scale gold mining. In Bakun, the revenue
code for 2018 shows that it will charge P5,000.00 for a permit for SSM.
No data is available on permits taken by other businesses (stores, hardwares) that have
thrived because of SSM activities.
Prior to EO 79 and the Revised IRR, the MGB Regional Office did not impose nor collect
any fees. Under the Revised IRR, the MGB Regional Office is now mandated to collect
application fees of P1,000 for a small-scale mining license by an individual miner and
P20,000 for a small-scale mining contract.
Taxes
No collection was ever made based on the products from SSM, and not one municipality was
able to show data regarding gold production.
In 2017, Itogon was able to collect P 121,110.81 from business permits from small scale mining
and for 2018 the figure was fractionally lower at P 111,224.72. Also, as of January 2018, Tuba
collected P38,000 for only one business permit filed by a SSM association (Camp 6 Small Scale
Mining Association Inc (CSSMMAI). In 2017, Mankayan collected taxes from property and
buildings involved in SSM worth P43,200.00; no updated data for January 2018 as of this
writing.
Taxes
Revenues have been minimal based on records from the province and municipalities.
Process-wise, the Provincial ENRO issues the order of payments and the permit-holders or
contractors pay to the Office of the Treasurer.
All payments received form part of the General Fund of the province and are spent on
various priority socio-economic programs. These revenues are basically for issuing business
permits or real property taxes.
Based on 2017 records from the Benguet Provincial Treasurer’s Office, the income collected
in the form of payments for application of SSM permits amounted to P 46,920.00. The
municipalities collected fees from the SSMs in the form of property and building taxes and
business permits, determined based on their respective local revenue codes. No
2. LGUs (on income earned from SSM)
Issues and Concerns Suggestions
LGUs not able to collect taxes from gold Speed up the approval of Minahang
production in their municipalities. Bayan Applications.
Income from SSM vary:
In Mankayan, the LGU has collected
taxes based on registered ball mills and
sluice boxes based on their assessed
value.
In Itogon, fees from permits to
operate as well as assessed values of
ball mills and plants are also collected.
In Tuba, a business permit has been
collected (from CSSMAI, Goldsteam
SSM).
2. LGUs (on income earned from SSM)
Issues/Concerns Suggestions
Only pay for real propertiesbased For MB applications to be approved so
on local revenue codes: that uniform fees can be collected
for ball mills and sluice boxes
clearances needed for
operations and employment
Mayor’s permits
2. BIR
Issues/Concerns Suggestions
Non-payment of taxes (SSM being
illegal)
Remarks on Incomes
Arrangements vary
SSMA with an agreement with a corporation: sharing is 40% for the corporation
and 60 % for the operator. The Corporation checks the production and both
parties get their shares.
Sharing of incomes between surface owners and tunnel owners vary, from 1 to 4
shares,
Other arrangements exist:
One SSMA in Itogon was just required to pay the realty taxes on the land
In Mankayan, prior rights had been given to companies/ outsiders in most of
the areas where the SSMs operate. Land owners find it difficult to ask for
royalties, rent or even get permission to mine their “own lands” as all of these
companies are Manila based.
Indigenous Practices
Sagaok
One of the most common ways of sharing is through sagaok, which
is the process of going from one tunnel to another requesting for
ore with gold. It is a community activity of the miners . It is not
uncommon to see a line of men and women of varying ages waiting
outside a tunnel with their sacks waiting for their turn to request
gold-ore (makisagaok). It is important that the miners share a
portion of the ore which they are mining. Caballero says that in
the begnas ritual, the panglakayn cite themselves as examples of
sharing with the community the gold that mined.
Makilinang
A process of distributing gold through the
sharing of the concentrate. It is an internal
community activity of small scale miners.
Adults of varying ages of either sex can
request concentrate (linang) although this is
mostly for the (elderly) women.
Residence
It is predominantly patrilocal, but matrilocal and
neolocal residence are also practiced.
For lode mining communities, because the mining claims
are corporately owned by a group of elders, what
becomes important is to establish a consanguineous or
affinal tie to a founding father /mother or an important
living descendant in order to establish residence in the
community.
Rituals
A majority of the rituals are performed to ward off
sickness or to avert bad luck in mining, such as not
finding ore containing gold. All the rituals secure the
goodwill of the deities and spirits.
Their performance results in the long and prosperous
life of the community members and assures them of a
continuous supply of gold in their lode and placer
deposits, luck in their gambling and other livelihood
endeavors, wealth and a long and healthy life.
Tungtung
It is a manner of settling disputes through dialogue.
Done with the elders (or barangay officials or even with
officers of the federation) (formal, informal structures within
the community) of the community facilitating discussions
between the parties involved and meting out fines to the
offending party based on the offense that is committed.
Ends in a ritual, which aims to repair the damage and restore
trust in the community by sharing a meal.
SALAMAT
