The Zambian flag symbolises Zambia’s sovereignty and freedom, reflecting unity, the struggle for liberation, and the natural resources that have been the backbone of the economy for the past 60 years. Mining, particularly copper, has been central to Zambia’s economic freedom, contributing significantly to national development and foreign exchange. Zambia’s mining history dates to the 1920s, and copper remains at the core of this sector and the economy. Regulation has been pivotal in shaping Zambia’s mining sector, providing stability, legal certainty, and fostering investment.
The Role of Regulation in Mining Development: Pre and Post Independence
Over the years, mining policies have evolved to support national growth.
Before independence, mining rights were privately owned by the British South Africa Company (BSA) through concessions granted by local chiefs. The Mining Ordinance of 1912 was the first pre-independence statute regulating the mining rights held by the BSA.
At Independence, mineral rights owned by the BSA went to the Zambian government and following this, several reforms were embarked upon to enhance participation of Zambians in the mining economy, which reflected Zambia’s desire for economic sovereignty and control over its natural resources.
The Mines and Mineral Act of 1969 effectively gave the Zambian government control over the copper Industry by terminating underdeveloped concessions and giving the government the option to acquire a 51 per cent interest in existing mines. The 1969 Act authorised the government to issue licences contingent upon productive use. This was the beginning of the government’s regulatory power over the country’s minerals.
The Mines and Minerals Act No. 32 of 1976 was underpinned by the radical Mulungushi reforms where it was directed that all mining undertakings be housed under the Mining Development Corporation (MINDECO).
The 1976 Act further strengthened the government’s hold on mining operations and made the mining of minerals, especially copper, an exclusive activity for the Government.
Following the nationalisation of the mines, the Zambian government was able to direct profits generated from mining towards infrastructure development such as housing, schools, hospitals, and road infrastructure.
However, despite the nationalisation’s agenda to enhance national development, the mining sector saw a down-turn in its operations as the mines suffered undercapitalisation and could not adequately sustain operations.
After an economically challenging period, the shift from state-controlled mining to privatisation in the 1990s coincided with significant economic reforms in Zambia, such as the liberalisation of the economy which opened investment opportunities from international players through Foreign Direct Investment (FDI).At privatisation, the government enacted the Mines and Minerals Act of 1995 which allowed the government to enter in development agreements with mining companies, providing fiscal incentives to create an attractive investment environment to promote new investment.
The Mines and Minerals Development Act of 2008 abolished development agreements and all those in existence at the time of the Act were rendered non-binding. The objective was to allow equitable distribution of mineral benefits between the government and the mining companies
Current Regulations
Today, the primary law governing the mining sector in Zambia is the Mines and Mineral Development Act No.11 of 2015 (MMDA) as amended by the Mines and Minerals Development (Amendment) Act No.14 of 2016.
The mining industry has been subject to a myriad of legislative changes and amendments. The Minerals Regulation Commission Bill, Geological and Minerals Development Bill and the Local Content Regulations are among some of the current proposed regulations being considered in the mining sector. To enhance effective regulation of the sector, the Minerals Regulation Commission Bill seeks to set up an independent regulator to oversee mining regulation and compliance.
Further, the Local Content Regulations aim to increase the participation of Zambian businesses and individuals in the mining industry by outlining specific mining opportunities and activities reserved for Zambian nationals.
These regulations are part of broader efforts to promote local economic development and ensure that Zambian citizens and companies benefit directly from mining activities.
Looking into the Future
As we celebrate Zambia’s 60th independence anniversary, the future of mining looks promising. Global demand for minerals like copper, critical for the transition to clean energy, is surging.
The ambition to increase annual production of copper to 3 million tonnes is the government’s response to the global demand and desire to position Zambia as a key copper producer on a global scale. To support this goal and to foster innovation in the mining industry, the National 3 Million Metric Tonnes Copper Production and the National Critical Minerals Strategy (2024 – 2028) have been launched.
In addition, the recently launched national geological mapping exercise to better understand the country’s mineral resource deposits and untapped potential is another key milestone in the sector. The mapping exercise will promote mineral exploration in the country by quantifying resources and supporting strategic investments with a view to capitalise on the growing demand for critical minerals.
Enhanced collaboration between stakeholders will also play a major role in achieving these goals and unlocking the full potential of Zambia’s mining sector.
The recent stakeholder engagement between the Ministry of Mines and Mineral Development and the Zambia Chamber of Mines in reviewing the Geological and Minerals Development Bill of 2024 to address areas of concern is a sure example of the value of stakeholder engagement.
Looking to the future, we have a call as a nation to enact mining legislation that will stand the test of time, legislation that balances the interests of all stakeholders, i.e. the interests of investors to secure a return on their investment and that of economic development and empowerment of citizens. Legislation that supports the development of the sector and consequently contributes to the nation’s economic transformation, job creation and improved livelihood.
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