A JOURNALIST’S HANDBOOK
REPORTING MINING
A JOURNALIST’S HANDBOOK
Reporting Mining: A Journalist’s Handbook
First Edition
CONTENTS
Preface 02
 
The mining beat 04
 
The extractive industry value chain 07
 
Africa’s evolving mining sector 18
 
Policy issues, principles and objectives of 23
Uganda’s mining and mineral policy
 
The place of mining and minerals in 36
Uganda’s national development plans


Using data to tell the mining story 41
1
Preface
CHAPTER 1 : PREFACE 3
The mining beat
By ACME Team
The exploration stage of the mining value chain is another major part of the beat.
Where is exploration on-going? What minerals are targeted? Are the deposits
commercially viable? Is the exploration under formal or artisanal small-scale
mining? Is it done under the law?
The actual mining, of course, is central to the beat. How are the mines managed?
What are the sizes of the different operations? Is whatever is going on under the
law?
Then there is the beneficiation stage, which includes mineral processing. Who is
involved? What are the volumes?
The fundamentals
To secure the greatest benefit for citizens, effective management of extractive resources
starts with the implementation of a series of vital preliminary procedures led or overseen
by the government, with the active and open participation of an informed public.
These procedures are intended “to ensure exploration and production operations are
carried out efficiently within a comprehensive national strategy and to establish a legal
and regulatory framework as far in advance as possible”1.
Thinking long term
Decisions about the management of extractive resources ought to be guided by a
national strategy. Such a strategy defines the comprehensive framework that sets out
how the resources are to be exploited and shared for the benefit of the present and future
generations of citizens. Without such a strategy, decisions can be ad hoc, unhelpfully
expedient, inconsistent, and narrowly focused on immediate gains.
The Mining and Mineral Policy for Uganda 2018 states that the overall goal is “to
develop the mining industry through increased investment, value addition, national
participation and revenue generation to contribute significantly to socio-economic
transformation and poverty eradication”2.
The guiding principles for the policy are: strengthening the legal and regulatory
framework for the mining industry; promoting transparency, accountability and public
participation in management of mineral revenues; enhancing geodetic acquisition and
1. Natural Resource Governance Institute (2014). Natural Resource Charter, Second Edition, page 13.
2. The Republic of Uganda. Ministry of Energy and Mineral Development (2018). The Mining and
Mineral Policy for Uganda, page 20.
Public participation
To enjoy wide and sustained legitimacy among the population, the development of
a national strategy should be inclusive and participatory. In fact, the strategy is more
likely to succeed if it is based on a broad consensus that reflects the voices, desires,
and expectations of citizens and stakeholders with legitimate interests. An informed and
active citizenry — represented by well organised interest groups across the spectrum
of non-state actors and stakeholders, including project affected people — plays an
indispensable role of holding the government and decision makers accountable.
Comprehensive approach
The government is in a better position to come up with and implement quality decisions
and initiatives in the extractive sector if it is guided by a comprehensive framework.
First, such a framework gives the government a 360-degree understanding of the
operating context. Second, a comprehensive approach enables the government to link
the upstream, midstream, and downstream decisions, environmental and social issues,
revenue and fiscal issues, and the overall national development plan for the country.
For this to happen, there needs to be a proper coordination mechanism within the
government that provides strategic direction and harmonises the roles, mandates, and
interests of the various ministries, departments, and agencies involved.
Reporter’s Notes
• Is there a national strategy/policy that provides a comprehensive framework
on how the extractive resources are to be exploited and revenues shared?
• Was the strategy or policy developed in an inclusive and participatory
manner?
• Is a legal and regulatory framework already in place?
• Did the public support the decision to extract or not to extract?
• Were social and environmental impact assessments carried out to
understand how best to mitigate the risks and potential adverse impacts
of extraction?
• Have environmental and social costs actually been mitigated? If so, how?
• Are communities aware of the risks and potential impacts of extraction?
• Are communities aware of what to do in the event of, say, accidents?
• Does the company regularly inform the local communities and leaders
about its own environmental and social safety standards?
• Has the government negotiated the best fiscal terms for the public good?
• Who is doing what at the institutional level?
Reporter’s Notes
• What is contained in the work programme of the contractor or licence holder?
• Are the development plans submitted by the contractor/licence holder
consistent with the government’s policy objectives?
• Are the plans consistent with international best practice?
• Has the government followed the procedures laid down in its regulations?
• What do the companies say about the regulations they are subjected to?
• How do civil society and the public view the regulations? Are they adequate
to ensure the achievement of the overall development goal?
• What is the government’s own assessment of anticipated revenues and
benefits to the country?
Reporter’s Notes
• What is the government’s policy on revenue distribution?
• What mechanisms have been put in place to implement the policy?
• How does the policy compare or contrast with those in other resource-
rich countries?
• Who are the winners and losers?
• Who takes what share?
• How does actual practice compare with the policy on paper?
• How are revenues actually managed in order to address the common
challenges associated with extractive industry revenues?
• Is the government “blowing” all the revenue or saving prudently?
• Does the government regularly report to the public how it is managing
extractive revenue funds?
Mining cap. goods Processing cap. goods Refining cap. goods Fabrication cap. goods
Expl. capital goods • Crusher/ mills • Rolling
• Geophsical • Drilling • Smelters
• Cutting • Hydromet plant • Furnaces • Moulding
• Drilling • Materials handling • Machining
• Survey, etc • Hauling • Electric winning calls
• Hoisting, etc • Furnaces, etc • Casters • Assembling
Exploration services Mining services Processing services Refining services Value adding services
• GIS • Mine planning • Communication • Reductants • Design
• Analytical • Consumables/spares • Grinding media • Chemicals • Marketing
• Data processing • Sub-contracting • Chem/reagects • Assaying • Distribution
• Financing, etc • Financing • Process control • Services
• Analytical, etc • Analytical, etc
Excerpt from the AFRICA MINING VISION (February 2009). For full report: <http://
www.africaminingvision.org/amv_resources/AMV/Africa_Mining_Vision_English.pdf>
The Africa Mining Vision was formulated by a taskforce jointly established by the African
Union and the UN Economic Commission for Africa, which also included representatives
from the African Mining Partnership (the intergovernmental forum of African ministers
responsible for mining), the African Development Bank, the UN Conference on Trade and
Development, and UN Industrial Development Organization.
Africa has long exploited its mineral resources. In fact, the oldest mines in the world are
to be found in Africa, for example the Ingwenya mine in Swaziland, which was exploited
20000 years ago for iron ochres for rock paintings.
In addition, there are thousands of ancient gold and base metal mines across the continent.
In general, these mines were integrated into the local pre-colonial economies, providing
essential raw materials and high value goods for trade (gold, copper). With European
colonial conquest, African mining became integrated into the economies of European
countries, providing raw material for their industrialisation.
With independence, Africa’s leaders became preoccupied with enhancing the contribution
of the minerals sector to the economic and social development of the continent. In the
1960’s and 70’s, in line with the then prevailing strong assertion of national sovereignty as
a follow-up to the end of colonialism, the dominant thinking was that this development
could be achieved only if the state had significant or, indeed, full ownership of mining
enterprises. That thinking led to the nationalisation of large private companies. In a
number of countries, such as Ghana, Guinea, and Zambia, the State took over control of
the industry. Hopes were raised that the nationalised sector would be the engine of growth
and rapid industrialisation, which would provide more significant economic benefits to
the nation and improve livelihoods of the people.
However, among others, the following factors contributed to the stagnation and, even,
decline of the nationalised mining industry: political interference in business decisions; lack
of or inadequate respect for managerial and technical expertise; low reinvestment leading to
capital consumption; inability to access finance; and depression of mineral prices.
By the late 1980’s, much of Africa’s mining industry was in a state of crisis and
underperformance.
This forced government attitudes to change. There was a fundamental paradigm shift
and redefinition of the role of state, from 100% ownership and control, to deregulation
and almost complete withdrawal. Many African countries embarked on a radical reform
i. To strengthen the legal and regulatory framework for the development of the mineral sector;
ii. To ensure efficient, equitable, accountable and transparent management of mineral revenues;
iii. To establish, manage and promote the country’s mineral potential;
iv. To enhance and strengthen the institutional capacity for effective governance of the mineral
sector;
v. To organize and legislate artisanal and small scale mining in Uganda;
vi. To promote and protect Health, Safety and Environment in the mineral industry;
vii. Provide a framework for gender mainstreaming, equity and human rights and eradication of
child labour in the mining industry;
viii. To provide a framework for marketing and value addition of minerals;
ix. To promote local content and national participation in the mineral industry; and
x. To promote regional and international cooperation.
Strategic interventions
Objective 1 : To strengthen the legal and regulatory framework for the development of
the mineral sector.
Strategy 1 : Establish comprehensive, stable, transparent, efficient and effective regulatory
framework to maximize mineral development.
Key Actions:
i. Maintain and update a modern, computerised mining cadastre and registry system to
facilitate online applications, returns and payments;
ii. Put in place effective mechanisms to ensure efficient mineral resource management
and compliance in the sector;
iii. Legislate and regulate the commercial exploration, development and exploitation of
substances excluded from the definition of minerals in article 244 (5) of the Constitution of
1995 as amended in 2005;
iv. Guarantee security of tenure by granting licences for specified periods, which are subject to
the ‘use it or lose it’ principle through the enforcement of mandatory relinquishment, fines
and penalties to minimise passive speculation and hoarding practices;
v. Restrict the exploitation of rocks that are connected to ecological systems and those with
historical relevance and tourism importance; and
vi. Create an enabling environment that regulates the co-existence of mineral rights and other
land use rights.
i. Ensure that fiscal frameworks are harmonized with the prevailing international mining
industry fiscal regimes;
ii. Introduce electronic lodgment of royalty returns which includes standardised quarterly and
monthly reports;
iii. Ensure that royalties and other mineral revenues are spent on the development of durable and
wealth-creating socio-economic infrastructure both at central and local government level;
iv. Communicate effectively on mineral royalty sharing and disbursements;
v. Periodically audit mineral production and royalty returns submitted by mining companies; and
vi. Establish a Mineral Reserve Fund to store mineral revenues for creation of a permanent source
of wealth as a provision for intergenerational equity.
i. Ensure effective collection, analysis, archiving and dissemination of data and information
about the mining industry in Uganda;
ii. Ensure comprehensive airborne geo-physical survey, ground surveys to identify potential
mineralized zones;
iii. Undertake detailed exploration, evaluation and feasibility studies of mineral deposits;
iv. Establish and maintain national minerals databases and data management information
systems;
v. Put in place a framework for development of infrastructure that facilitates access to, and
eases exploitation of mineral wealth;
vi. Establish a mineral promotion and investment unit at DGSM;
vii. Establish and promote geo-sites and geo-parks to support the tourism sector;
viii. Domesticate an appropriate Code for assessment and valuation of mineral assets; and
ix. Establish a communication strategy for the mineral sector.
Objective 4 : To enhance and strengthen the institutional capacity for effective governance
of the mineral sector.
Strategy 4 : Strengthen and build institutional and human capacity for effective and
efficient governance and management of the mineral sector.
i. Provide adequate funding and equipment to DGSM to efficiently carry out its mandate;
ii. Provide capacity building and skills development of government officials and stakeholders
in the mineral sector;
iii. Separate DGSM administrative functions of licensing from inspection and monitoring of
compliance;
iv. Permit the DGSM to retain at source some of the funds generated from mineral exploration
and mining activities to strengthen the exploration, regulation, monitoring and inspection
functions of the DGSM;
v. Promote inter-agency collaboration and linkages;
vi. Provide adequate remuneration and incentives to motivate and retain staff responsible for
mining industry promotion and management;
vii. Establish and strengthen earthquake, landslides and other geo-hazard monitoring systems;
viii. Establish and equip institutions for quality vocational training and postgraduate
qualification apprenticeships;
ix. Enact a law regulating geo-scientists and its associate professionals; as well as set up a
professional registration body for geo-scientists in Uganda; and
x. Establish a unit in DGSM to coordinate and promote research and development.
Objective 7 : Protect and uphold gender, equity and human rights in the mineral industry.
Strategy 7 : Develop and implement frameworks, structures and mechanisms that ensure
equitable participation, ownership and decision-making of vulnerable groups.
Key Actions:
i. Promote gender inclusiveness and equity in the mineral sector;
ii. Strengthen the monitoring and enforcement of laws and regulations relating to child
labour and welfare in the mining industry;
iii. Promote respect for human rights through free, prior and informed consent and
consultations while accessing surface rights for mineral projects;
iv. Recognise and promote labour rights for mine workers
v. Create awareness programmes on gender and equity for mining communities; and
vi. Put in place a framework of binding norms relevant for human rights protection in the
mining industry.
i. Develop and put in place mechanisms that encourage in-country value addition of mineral
resources to discourage the export of low value mineral concentrates;
ii. Strengthen and maintain a modern internationally certified mineral analysis and
beneficiation laboratory at the DGSM;
Objective 9 : To promote local content and national participation in the mineral industry.
Strategy 9 : Develop and implement measures to enhance local workforce, facilitate
knowledge and skills transfer and promote the use of local goods and services in the
mining industry.
Key Actions:
Story Ideas
Each of the 10 strategies in the mining and mineral policy as well as many of the recommended
key actions provides a good foundation for important stories on the sector.
Again, the key thing is to ask questions. In particular, has the strategy been implemented? If
so, how far? With what success? If not, why not?
Questions on Strategy 1:
At the broad level,
• How far has the government gone in establishing a comprehensive, stable, transparent,
efficient and effective regulatory framework to maximise mineral development?
• What seems to be standing in the way of establishing this framework?
• What is being done about it?
At the specific level,
• Is the mining cadastre and registry system up to scratch?
• Has the exploitation of rocks connected to ecological systems and those with historical
relevance and tourism importance been restricted?
• Has an enabling environment that regulates the co-existence of mineral rights and other land
use rights been created? If not, how are these two playing out?
Questions on Strategy 2:
At the broad level,
• What system or regime is in place for the collection and management of mineral revenues?
• Is it stable and transparent?
Note : The same questions could be asked about the revenue management sections of proposed
mining legislation.
At the specific level,
• How are royalty returns lodged?
• How or on what are royalties and other mineral revenues spent on?
• Are mineral production returns submitted by mining companies? If yes, are they accurate?
If not, why not?
• Is data about the country’s mining industry being collected, analysed, archived and
disseminated?
• What types of surveys are conducted?
• What exploration, evaluation and feasibility studies of mineral deposits have been undertaken?
• Has a national minerals database been established?
• Is there a framework for the development of infrastructure that facilitates access to and eases
exploitation of mineral wealth?
• Has a mineral promotion and investment unit been established at the DGSM?
Questions on Strategy 4:
At the broad level,
• What is the state of institutional and human capacity at DGSM and other relevant
institutions in the Ministry of Energy and Mineral Development?
At the specific level,
Uganda’s second five-year National Development Plan, which ends in the financial year
2019/20, prioritises the mining sector in the country’s sustainable development journey.
The NDP-II lists seven objectives for the mining and mineral sector.
Objective 1 : Establish the geological and mineral potential of the country
Interventions:
• Conduct detailed geological appraisal and quantification of the 16 identified mineral
potential targets.
• Map, evaluate and build institutional capacity to develop uranium resources into
nuclear energy.
• Promote the development of Rare Earth Elements (REE).
• Map and gazette geosites for geo-tourism and mining industrial parks.
• Establish the mineral potential of Karamoja region.
Objective 2 : Increase monitoring and regulation in the mining sector
Interventions:
• Develop a mineral development master plan.
• Complete the review of mining policy and legislation.
• Inspect and monitor exploration and mining activities and ensure existence of health
and safety standards including eliminating child involvement.
• Conduct due diligence on potential investors in the sector.
Objective 7 : Increase the stock of skilled human capital along the mineral development
value chain
Interventions:
• Develop and maintain national skills and expertise in the mineral sector.
• Implement the oil and gas workforce development strategy and plan.
• Develop appropriate training programs for ASM.
• Develop the capacity of institutions under the Directorate of Geological Survey and
Mines.
• Develop and maintain linkages with other geo-scientific institutions and bodies globally
such as Southern and Eastern Africa Mineral Centre (SEAMIC), Comprehensive
Nuclear – Test – Ban Treaty Organization (CTBTO)
• Promote research and development in the mineral sector.
Story Ideas
The objectives provide a higher-level yardstick against which to measure progress. The
interventions, on the other hand, offer key actions whose implementation should be
monitored over the five-year NDP-II life.
The key thing is to ask questions. In particular, have the objectives been achieved? If so, how
far and with what success? If not, why not?
Have the interventions been implemented? If yes, which ones and with what success? If not,
why not?
Questions on Objective 1
• Has detailed geological appraisal and quantification of the 16 identified mineral
potential targets been conducted? If yes, what were the findings?
• What is the state of development of Rare Earth Elements?
• Have geo-sites for geo-tourism and mining industrial parks been mapped and
gazetted?
• Has the mineral potential of different parts of the country been established?
Questions on Objective 2
• Has a mineral development master plan been developed? If yes, what are its key
planks?
• What is the status of the review of mining legislation?
• What is the state of exploration and production?
Questions on Objective 3
• Has a regional certification mechanism been developed and/or implemented?
• Has a public institution been established to handle the certification process?
• Has an inspection system been established?
Questions on Objective 4
• Is beneficiation and value addition in priority minerals being promoted?
• Do we have up-to-date accurate and reliable geo-information/data for the promotion
of the mining sector?
• What strategy, if any, is in place for the promotion of the sector locally and
internationally?
• Has the capacity of the mineral testing laboratory been strengthened?
Questions on Objective 5
• What is the status of investment in geothermal energy in the country?
• What is the government’s capacity in geothermal exploration?
Questions on Objective 6
• Has the mapping of all areas prone to seismic risk been done?
• Has an earthquake administration policy and disaster management plan been
established?
• Has the seismological network coverage been extended and strengthened in areas
open to seismic and volcanic risk?
Questions on Objective 7
• What is the state of national skills and expertise in the minerals sector?
• Are appropriate training programmes being developed?
• Has the capacity of the Directorate of Geological Survey and Mines been strengthened?
• What is the state of research in the minerals sector?
ACME has curated a rich body of data on extractives in Uganda because we believe data is
an important part of improving coverage of the sector.
What is data?
Data is recorded and structured information that includes numbers, text, pictures such as
maps, and satellite imagery.
Land under freehold tenure is registered under the Torren System of conveyance based on the
principle of title by registration and indefeasibility of titles, meaning that:
• No interests in land are created by any document unless such document is registered
in the register of titles.
• A title once registered is indefeasible except on grounds stated under the law, such as
fraud, default on repayment of mortgage, or if there existed a title in the same area
prior to registration.
1. Land owned in fee simple is owned completely, without any limitations or conditions. This type of
unlimited estate is called absolute. < https://www.law.cornell.edu/wex/fee_simple# >
Leasehold tenure
This is a system whereby one party grants to another the right to exclusive possession of land
for a specific period, usually, although not necessarily, in return for a periodic payment of
money called rent.
Like freehold tenure, land held under leasehold may be registered under the Torrens System
of Registration
Leases can be created over land owned under customary, freehold, and mailo land tenure
systems.
The maximum leasehold period is 99 years but the Land Policy proposes to reduce it to 49
years for non-Ugandans.
Tenancy by occupancy
This is a landlord-tenant relationship created by operation of law, comprised of lawful and
bona fide occupants of land held by another person under freehold or mailo tenure system.
It is not a form of land tenure system in strict sense, but the right enjoyed by tenants by
occupancy tend to make it a quasi land tenure system.
Tenants by occupancy enjoy security of tenure hence they cannot be evicted except with a
court order, for non-payment of ground rent.
The regalian system is the most common and is the one applicable to Uganda under Article
244(1) of the Constitution of Uganda. Construction minerals are commonly excluded under
the regalian system, and this is the case for Uganda, as per Article 244(5).
• The value of buildings on the land is taken at open market value for urban areas, and
depreciated replacement cost for rural areas.
International practice
The Kampala Convention, which Uganda ratified, incorporates international standards
such as IFC Standards as applicable standards to resettlement of project-induced
displacement. IFC Standards encourage minimisation of physical and economic
displacement where possible. They encourage negotiated access as opposed to forceful
acquisition of land through compulsory acquisition.
Land-for-land compensation should be encouraged since affected persons may not be
used to handling large amounts of money, and may not be in position to properly plan
for the money.
The resettlement process follows the following guide:
• Identification of the project impacts and the effected population through a social and
baseline survey.
• Description of the legal framework for land access or acquisition and compensation.
• Description of the compensation framework to be applied.
• Description of the plan for resettlement assistance and restoration of livelihood.
• Description of a detailed budget for implementing the resettlement plan.
• Description the resettlement implementation schedule.
• Description of the organisational responsibilities of government and project
developer.
• A framework for public consultation, participation, and development planning.
• Description of provisions for redress of grievances.
• A framework for monitoring, evaluation, and reporting.
By ACME Team
Before sharing a story idea with your editor you should invest some time in thinking
about and justifying why it would produce a viable story. What appear to be very
promising ideas sometimes disappear once reporters are asked to give them some meat,
to flesh them out.
Below are some tips to help you strengthen your story pitch.
1. What’s your CATCH PHRASE? Get some key words or preliminary idea for a working
title.
2. WHAT is the story about? What’s the key issue(s)?
3. What has CHANGED? What’s NEW and/or SURPRISING about this story? Why is it
worth covering NOW as opposed to last month, last year, or two years from now? What,
if anything, would your reader/viewer/audience be surprised to learn in this story? [Be
ready to back up claims about change with evidence, however preliminary it may be.]
4. WHO CARES? What’s the SIGNIFICANCE of the story? Why does it MATTER? [This is
where you show the importance of the story or development you are covering i.e. what
makes it news worthy? Why should people pay attention?]
5. What does your PRELIMINARY RESEARCH about the issue show? [You could include
some brief background here, where appropriate. You could also mention if you have
engaged with the issue/subject of investigation previously.]
6. What QUESTIONS will you attempt to answer in order deliver depth? [e.g. What are
the causes of this? How does this work? What’s the impact of this? Who benefits? Who
loses? What are the (hidden) interests behind this? Where is this coming from? How has
this been handled elsewhere?]
7. What’s the SCOPE of the story? [e.g. How widespread is the development? Is it local,
regional, national? How many people are affected?]
8. What TYPE of story will you be doing? [Will you go for a special or investigative
report, a series, a TV or radio documentary, a radio package, a multimedia report, or a
combination of reports including Q & A interviews, talk shows, etc.?
9. What REPORTING METHODS do you plan to employ to deliver the story? [e.g. How
will you gather the information you need to tell the story. Will you review or analyse
reports, conduct interviews with human sources, mine data from datasets you have
access to, etc.?]
10. What SOURCES/RESOURCES do you plan to use to prepare this story? [It helps if you
can list a few sources, both documentary and human, that you plan to draw on, showing
how and/or what you will use them (for)].
11. How LONG will it take you to deliver the story? [It is important to provide a reasonable
timeline or date by which you will have completed the story.]
12. What is your estimated BUDGET for delivering the story? [This is particularly important
if delivering the story requires you to have more than the usual financial resources.]