小規模な金採鉱コミュニティにおける水銀汚染の把握および基礎データの構築
バン・トクシックス ●リチャード・グティエレス〔概要〕

途上国などで行われている小規模な金採鉱（ASGM）は、開発がもたらす複雑な問題を示している。ASGMは、調査への参加を促し、ASGM コミュニティの人々の水銀汚染に対する認識を深めるとともに、金採鉱の現場で人々が水銀を使用せざるを得ない社会的背景の理解を試みた。

多くの貧困層の人々の生計手段となっており、その年

ASGM で使用される水銀のほとんどは先進国から輸間生産量も大きい。その一方で、特に鉱石から金を取出されるものである。EU および米国はすでに水銀輸出り出す際に水銀を使うことから、水銀の最大排出源との禁止に踏み切ったが、日本はいまだに水銀含有製品して知られており、環境・社会・人々の健康に深刻ななどから回収された余剰水銀を年間約 100 トン輸出し影響をもたらしている。ている。水銀条約では、水銀供給を絶つための輸出禁

現在 UNEP（国連環境計画）は、水銀のリスクを国止も大きなテーマのひとつとなっている。

際的に削減するための「水銀条約」を 2013 年の採択

本調査では、以下の結論が得られた。

を目指して策定中であるが、この条約の中でも ASGMにおける水銀使用の将来的な廃止を目指して、削減方法などが議論されている。

• フ ィリピンの水銀汚染は拡大しており、水銀の環境への排出を食い止めるためには、緊急かつ抜本的フ ィ リ ピ ンの ASGM からの 水 銀 排 出 量 は 年 間 70な取り組みが必須。近年では、水銀を使用しないトンとされ、2006 年の国連報告では、フィリピンのASGM 技術として、シアン化合物の使用が増加してASGM 労働者から WHO（世界保健機関）の基準値のいることも懸案事項である。

50 倍の水銀が検出されている。現在、フィリピン政府• フ ィリピンの ASGM を取り巻く複雑な問題解決には UNEP の支援のもと、ASGM に関する国家戦略計決定打はない。効果的な介入を行うには、ASGM コ画を策定しており、この取り組みを補完するため、バミュニティのニーズや発展のための目標に対する理ン・トクシックスは、高木仁三郎市民科学基金などか解を深める必要がある。

ら支援を得て、ASGM における貿易や水銀使用・排出• 様々な制約がある中で、ASGM を適正化し、管理体の現状、金の採掘・生産方法、水銀汚染が人の健康や制を築くためには、以下のような戦略やメカニズム

環境に与える影響に焦点を当てて、実態調査（魚、土あるいは潜在的な解決手段を考慮する必要がある。

壌、水質、大気のサンプル調査）を行った。さらに本1．水銀の採掘を停止し、国際的な水銀供給の流調査では、ASGM の労働者やその家族などに水銀汚染れを絶つ■ バン・トクシックス（Ban Toxics!）
バン・トクシックスは、特にアジア太平洋地域における廃棄物や製品、技術における有害化学物質の問題に取り組む環境 NGO。現在は汚染物質である水銀問題に注力し、水銀貿易、小規模金採鉱、水銀の保管と処分の問題に取り組んでいる。2008 年度は調査研究テーマ「廃棄水銀の最終保管をフィリピンで行う場合：最終保管施設運用リスクと国や自治体に求める政策の把握」で 40 万円の助成を受けている。http://bantoxics.org/●助成研究テーマ
小規模な鉱山開発コミュニティにおける水銀汚染の把握およびベースラインデータの構築――水・土壌のサンプル調査を通じて●助成金額
2009 年度

30 万円
Ban Toxics! の報告書＊ 1＊ 1 “The Price of Gold : Mercury Use and Current Issues Surrounding Artisanal and Small-scale Gold Mining in the Philippines”は、こちらからダウンロードできます。http://bantoxics.org/v2/images/downloads/BanToxics_The_Price_of_Gold.pdf
バン・トクシックス79

2．全 てのセクターでの水銀および水銀化合物の貿易及び使用の禁止
3．ASGM に対する以下の技術支援の実施①鉱床の探査及び抽出②採掘のための小規模な鉱物インベントリーの作成③州や市の鉱業管理当局による「民衆の小規模金採鉱地域」の特定④水銀を使用しない金抽出技術を確立するための金鉱石の特性研究

4．ASGM に対する運転資本や信用供与、適切な採鉱装備の提供
5．ASGM の労働者に対する搾取をなくすためのASGM の正式団体の組織化および強化
6．ASGM を適法化するため、鉱業に関する一貫性のある国家政策の策定と規制や事務手続きの緩和化
7．地域レベルの鉱業規制局の強化
8．鉱山労働者や家族、コミュニティに対する水銀の毒性に対する意識向上

Engaging small-scale mining communities in understanding
the impact of mercury pollution through sampling of fish,
water and sediments and establish a baseline of mercury
pollution in these communities.

Richard Gutierrez
BAN TOXICS!

1. Overview of the Research
Ar tisanal and Small-scale Gold Mining (ASGM)
presents a complex development issue. While itprovides livelihood to a significant number of people
worldwide and accounts for a sizeable volume of annual
gold production, it is also confronted with various
grave environmental, social and health concerns. The
sector is also known as the largest emitter of mercury.
The global mercur y treaty, which is currently being
developed through a series of intergover nmental
negotiating committee meetings, seeks to incorporate
ASGM elements to reduce, moving towards eliminationof mercur y use in the sector and to protect humanhealth and the environment. While the terms of the
global pact are being considered, parallel ef for ts
are under way to encourage migration of miners tomercury-free gold liberation techniques.
The Philippines is in the process of formulating its
National Strategic Plan on ASGM with support fromthe United Nations Environment Programme (UNEP).
To supplement this initiative, Ban Toxics a non-profit
environmental non-governmental organization thataims to promote environmental justice, with the help of
the Takagi Fund for Citizens Science and that Natural
Resources Defense Council, and the Swedish Society
for Nature Conser vation conducted a study on theinner workings of ASGM focusing, among others, on80

高木基金助成報告集 Vol.7（2010）

the trading, use and emission of mercury, gold mining
and production methods, and the human health andenvironmental impacts of mercury pollution. The study
was also conducted to verify levels of mercury in theircommunities, to acquaint grassroots communities such
as ASGM miners to the processes used to measure
mercur y contamination, and understand the social
context that prompts ASGM miners to continue using
mercury in gold mining.
Mercur y release from the ASGM sector in thePhilippines is estimated at 70 metric tons per year,
making the industr y one of the biggest contributorsof mercur y pollution. In 2006, the United Nations
reported that miners in the Philippines are found tohave mercury levels up to 50 times above World HealthOrganization limits. About 18,000 women and children,
the sectors most likely to succumb to mercury’s toxic
threats are also engaged in small-scale gold mining.
The study arrived at the following conclusions:
1.	T h e p r o b l e m o f m e r c u r y p o l l u t i o n i n t h ePhilippines is widespread and that unless anduntil urgent and drastic steps are carried out tocontain its further discharge into the environment,
the ef fects will be disastrous. It also noted thesector’s growing shift from mercury to cyanide andattempts to move to mercury-free gold production
technologies.

2.	There is no silver bullet that can adequately
address the complex issues surrounding ASGM
in the Philippines. Care should be taken tounderstand the specific ASGM areas, the needs ofthe community and its goals for development be
for any effective intervention can take place.
3.	Considering these constraints, to rationalize
ASGM activities and improve gover nance ofASGM operations, the following broad strategies,mechanisms and potential solutions to various
ASGM concerns may be considered:development agenda.

A.	Stop the global supply flow of mercury by putting
an end to primary mining of mercury.
B.	Prohibiting the trade and use of mercur y andmercury compounds in all sectors.
C.	Provide technical support to ASGM in:i.	Exploration and delineation of mineraldeposits;ii.	Mineral inventory for extraction at the smallscale level;iii.	Identify areas that can be set aside by theprovincial or city mining regulatory boards as
People’s Small Scale Mining Area; andiv.	Study gold ores proper ties to determine
mercury- free gold liberation techniques
D.	Provide needed working capital, credit facilities
and suitable mining equipment to ASGM;
E.	Organize and strengthen ASGM formal groups
to reduce and eventually eliminate exploitation ofminers.
F.	Develop coherent national policy on mining
and streamline regulator y and administrative
procedures to remove barriers for formalization.
G.	Strengthen local mining regulatory boards.
H.	Increase awareness on mercury’s toxic effects tominers, theirs families and affected communities.

Primar y use of mercur y comes from whole-ore
amalgamation, wherein mercury is poured into the goldore as it is being crushed in either a ball mill or rodmill.

Ban Toxics also recommends for the governmentand civil society to initiate a dialogue to find out how
and where does ASGM fit into national development.
Oftentimes, ASGM is linked with sustainable
development, but no concrete consultation with mining
and other stakeholders have taken place to define
ASGM’s role. Currently the serious social, health andenvironmental costs that accompany small-scale gold
mining are externalized and borne by communities
and local governments where these operations occur.
Any real discussion of the benefits of ASGM and its
role in national development must be weighed by theseexternal costs that are often ignored. Par ticularly,
efforts towards internalizing the external costs of gold
production must be carried out before we seriously
consider mainstreaming ASGM into the national

2. Outcome of the Researcha.

Continued use of mercury in ASGM.

The use of mercur y in the artisanal and small-scalegold mining sector is still quite prevalent. However
there are areas that have migrated away from mercuryuse, while others still utilize large quantities of mercury
in their operations.

b.	There is awareness of the danger of mercury
use among miners, however, this is nottranslated into action.
In our inter views, we often see that miners have asense of the dangers posed by mercury to health andthe environment. However, the miners persist to use
mercur y due to lack of alternatives that can address
their financial and technical needs for gold processing;availability of mercury and inexpensive cost; and habit.
c. Mercury is used in areas where communities
have migrated away from this technology, becauseof the need for quick money.
d. Almost all small-scale miners operate illegally,and have no tenure in the areas where they conduct
small-scale mining activities.
This contributes to a vicious loop among the mining
community not invest in safety gears and equipment.
Since they do not have tenurial insecurity in the areas
where they operate, they are not motivated to clean up
their process or make it safe.
e.

Sampling results have been variable.

Ban Toxics is revisiting some of the sites andconducting new samples for the following reasons:Initial results did not coincide with the observed practice;
Lack of available sample media in the initial visit; 
Checking if there was error in the analysis of the 
first laboratory; andIsolate possible discrepancies 
Par ticular concer n was raised in the Paracale,
Camarines Norte samples. See table below. In BanToxics’ visit, this area is one of the high mercury usage
バン・トクシックス81水銀使用が多いエリアでの魚介類サンプル調査
SampleParacale,Camarines
Norte
January 22-24,
2010

Fish

CrabHinobaan,
Negros Oriental
February 15-18,
2010

Fish

Shellfish

Aroroy, Masbate
February 22-25,
2010
FishItogon, Benguet
April 17-18,
2010
Fish

Shrimp

ベンケット州イトゴンで測定された大気中の元素水銀濃度

Samplecode

Total Hg
content /ppm

1

ND

2

ND

3

ND

4

Averagereading

Maximum
reading

Ball Mill Plant

19.2 ng/m3

30.4 ng/m3

Top-Hill Panning Area

92.4 ng/m3

710.7 ng/m3

ND

Retail Store

18.1 ng/m3

33.0 ng/m3

1

ND

Miners Barracks

3751.8 ng/m3

30000.0 ng/m3

2

ND3ND

Field Test

6.3 ng/m3

7.7 ng/m3

4

ND

3.44 ng/m3

17.3 ng/m3

1
Hito

Ball Mill Plant with Women
Miners0.04

Lime Process Area

26.3 ng/m3

41.0 ng/m3

2
Hito

0.05

Cyanidezation Area

8.9 ng/m3

10.4 ng/m3

3
Dalag

0.05

Carbon and Leach Area

26.5 ng/m3

64.7 ng/m3

1
Bungkawel

0.03

2
Sikad

0.02

Location

北カマリネス州で測定された大気中の元素水銀濃度（2010 年 11 月 24 ～ 25 日調査実施）

Averagereading

Maximum
reading

Brgy. Maluguit
Residential Area

266.7 ng/m3

5516.2 ng/m3

0.02

Mangrove Forest

9.0 ng/m3

19.7 ng/m3

2
Bugaong

0.8Gold processing Area

14275.3 ng/m3

30000.0 ng/m3

3Bugaong

93.2 ng/m3

96.4 ng/m3

0.47548.5 ng/m3

30000.0 ng/m3

10.03

20.02

Brgy. Hall-Tugos, Paracale

78.8 ng/m3

86.9 ng/m3

30.02

Tunnel area

17.8 ng/m3

142.7 ng/m3

40.03

Ball Mill and Panning Area

227.0 ng/m3

620.4 ng/m3

50.03

60.02

10.02

Location

3Susong
Dalag

0.081
BalanakCompressor mining area

areas. Yet, in the sample results, mercur y is nonedetected (ND). We are going to re-visit the area andobtain new samples to corroborate the older samples,
and we will have samples analyzed in a new laboratory
to isolate if there was error by the first laboratory weutilized.
f.

（2010 年 11 月 21 ～ 22 日調査実施）

Distrust by miners over scientific process.

Actual amalgamationin obtaining environmental samples was greeted withsuspicion. Due to the resource conflict between largescale (LSM) and ASGM miners, the favorable treatment
LSM gets from the national and local governments,
and the financial resources LSM has to conduct
environmental samplings, ASGM miners were ver ysuspicious of the research being undertaken by BanToxics.

Due to the perceived collusion among large-scale
mining companies, local gover nment units, andacademic institutions, ASGM miners were very waryof attempts to engage them in undertaking sampling
process.

Ban Toxics succeeded in encouraging ASGM miners
to participate in some areas, but were unsuccessful inothers.

Ban Toxics initial attempt to work with ASGM miners

Ban Toxics has obser ved that in areas where there82

高木基金助成報告集 Vol.7（2010）g.

Use of cyanide has become prevalent.

写真 1 フ ィリピン北カマリネス州 Paracale の採鉱現地にて

写真 2 フィリピン上院でのイベントにて、ファン・ミゲル・

has been a decline in the usage of mercur y, cyanide
processing has increased. Although, cyanide has
dif ferent chemical characteristics from mercur y,
unregulated use of cyanide could present problems to
the community if left unchecked.

free technologies not from an environmental or healthperspective, but from a profit-maximization perspective.
There are areas that have migrated away from mercury
because they were able to maximize profits throughthe use of cyanide. Concrete change in miner behavior
should take this into account, especially in formulating
environmental and health interventions.

使用中の水銀濃度分析計“Lumex”

3. Perspective after the research
The ASGM use of mercur y is not simply a technicalquestion, replacing one technology for another, but isver y much rooted in the social context surrounding
the ASGM miners. Poverty, lack of education, illegalityof operations, absence of government suppor t andfinancial credit, resource conflict with large-scale
miners, negative public perception, among others, arethe challenges that ASGM miners face.
Oftentimes, mercury use continues because this is theonly process they are comfortable with or what they
perceive is the cheapest alternative available. Thereis openness among ASGM miners to look at mercury-

ズビリ上院議員（右）に ASGM に関する報告書を手渡
すバン・トクシックス代表リチャード・グティエレス（左から 3 人目）It was also obser ved that there are sectors within
the mining community that is receptive to change,
particularly well-off miners or cyanide facility owners.
These actors have the financial leeway to look at thebroader issue and can be approached to initiate andinstill changes among ASGM miners.
Lastly, the conduct of scientific sampling and healthmonitoring is important, and needs to be sustained.
The ASGM community can benefit from being familiar
with this scientific process, by engaging them to raise
their awareness of the impact of mercur y in theirenvironment and health.

バン・トクシックス

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