2013年-世界发展银行全球_Mongolia___Raising_Female_Participation_in_the_Large_Scale_Mining_Sector_32页_2mb

Summary of MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR

Core Content

This policy note addresses the issue of female participation in the large-scale mining sector in Mongolia, highlighting the economic opportunities and gender-related challenges that accompany the expansion of the mining industry. It emphasizes the importance of gender equity in a sector that is becoming increasingly central to Mongolia’s economy, driven by the development of significant mineral resources and the construction of major mining projects such as Oyu Tolgoi.

Main Points

• Economic Importance of Mining:

  • Mining has become a major contributor to Mongolia’s GDP, currently accounting for about 20%, and is projected to grow further due to upcoming projects like Oyu Tolgoi.
  • Mining accounts for over 80% of exports and a third of government revenue, making it a key sector for economic development.
  • The expansion of mining is expected to generate significant employment opportunities, both directly and indirectly, in sectors such as construction, transport, utilities, and services.

• Current Female Participation:

  • Women are largely underrepresented in the mining sector, with most working in service support roles (e.g., catering, cleaning, laundry).
  • Female participation in the mining workforce is limited due to lack of technical skills and cultural norms that discourage women from entering the sector.
  • There is a gap in wages between men and women, with women earning 17–23% less than men in mining and related industries.

• Challenges to Female Participation:

  • Legislative Restrictions: Until 2008, labor regulations in Mongolia prohibited women from working in certain roles, including underground mining, driving heavy vehicles, and operating heavy machinery.
  • Cultural and Social Norms: Gender stereotypes and cultural expectations contribute to occupational segregation, with women seen as unsuitable for "hard jobs."
  • Discrimination and Harassment: Sexual harassment is a widespread issue in the mining and related industries, further deterring women from entering or staying in the sector.

• Benefits of Increasing Female Participation:

  • Economic Efficiency: Studies from Chile, Zambia, and Papua New Guinea suggest that women are more efficient in operating and maintaining heavy equipment, potentially leading to cost savings.
  • Diversification of Workforce: Including women in mining can reduce labor costs and improve workplace diversity, enhancing the attractiveness of the industry to a broader talent pool.
  • Social Equity: Women should not bear a disproportionate share of the risks and burdens associated with mining expansion, as they constitute half of the population and should be equally involved in the sector’s benefits.

Key Recommendations

• Implement and Enforce Gender Equality Laws:

  • The Law on Gender Equality (2011) should be fully implemented, with a focus on affirmative action and complaint mechanisms.
  • Sexual harassment policies must be enforced in both public and private sectors, including the establishment of a legal cell by the National Committee on Gender Equality (NCGE) to support victims.

• Promote Technical and Vocational Training:

  • Develop skills programs for women to enter technical and professional roles in mining.
  • Coordinate between Ministry of Social Welfare and Labor, Ministry of Education, and mining companies to ensure targeted training and internship opportunities for female students.

• Improve Working Conditions:

  • Assess and address health and safety needs for women in the mining sector, including separate and secure living conditions, childcare facilities, and flexible work policies.
  • Ensure equal pay and non-discriminatory hiring practices across all sectors.

• Encourage Women as Business Owners:

  • Promote transparency in mining license awards to create a level playing field for women entrepreneurs.
  • Provide microcredit and business training to support women in becoming local suppliers to the mining sector.

• Introduce Affirmative Action Policies:

  • Mandate a minimum percentage of female representation in the mining workforce within a specific timeframe (e.g., 5 years).
  • Align this with skills development programs to ensure women are equipped to take on these roles.

• Promote Best Practices and Light Touch Regulation:

  • Encourage companies to adopt equal opportunity policies and report on compliance.
  • Use light touch regulation to guide industry behavior without imposing excessive administrative burdens.

Conclusion

The mining sector in Mongolia is poised for significant growth, which will bring both economic opportunities and gender-related challenges. Addressing these challenges through policy reforms, affirmative action, and improved working conditions is crucial to ensuring that women benefit equally from the sector’s expansion. The National Committee on Gender Equality (NCGE), along with international partners and NGOs, should play a central role in implementing these reforms. The successful integration of women in the mining sector is not only a matter of social justice but also a strategic economic move to enhance productivity and diversity in the industry.

Key Information

• Female employment in mining: ~4% of total employment, with most in service support roles.

• Potential employment gains: Up to 15,000 jobs in the mining sector and related industries between 2012 and 2014.

• Wage gaps: Women earn 17–23% less than men in mining and related sectors.

• Major Mines in Southern Mongolia:

  • Tavan Tolgoi (Coal, 15,000 tons/year)
  • Uhahudag (Coal, 10,000 tons/year)
  • Baruun Naran (Coal, 6,000 tons/year)
  • Tsagaan Tolgoi (Coal, 2,000 tons/year)
  • Nariin Sukhait (Coal, 12,000 tons/year)
  • Ovoot Tolgoi (Coal, 5,000 tons/year)
  • Sumber (Coal, 5,000 tons/year)
  • Shiveer Ovoo (Coal, 14,000 tons/year)
  • Oyu Tolgoi (Copper, 2,000 tons/year)

• Potential Policy Actions:

  • Implement the Law on Gender Equality.
  • Develop technical and vocational education for women.
  • Enforce anti-sexual harassment policies.
  • Promote affirmative action in mining.
  • Improve infrastructure and working conditions for women.
  • Encourage women as business owners and suppliers.

• International Examples:

  • Lonmin Plc in South Africa is cited as a successful example of integrating women into the mining workforce through targeted programs and cultural shifts.

References

• The CGE-MAMs model is used to simulate the economic impacts of mining expansion.
• Dutch Disease is a risk associated with mining expansion, which may cause contraction in non-mining sectors such as agriculture and manufacturing.
• Affirmative action and equal opportunity policies are emphasized as key tools for increasing female participation.