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EXECUTIVE SUMMARY
In a perfect world, mines would only close when their economic reserves and resources are exhausted and a mine closure
plan is in place and progressively implemented, e.g. the coal seam is completely extracted, or the mineral orebody has been
completely recovered, and no more coal or ore can be extracted economically. Mine closure is a process: a period of time
when the operational stage of a mine is ceasing or has ceased, and the final decommissioning and final mine rehabilitation is
being undertaken. Closure can be temporary in some cases, and/or may lead into a program of care and maintenance. The
term mine closure encompasses a wide range of drivers, processes and outcomes. A century ago when mines ran out of ore,
production stopped and mines were simply boarded up and abandoned. That was mine closure. Even today, that practice is
sometimes still followed. However, most countries and most companies now recognize that mine closure is much more than
stopping production and decommissioning the mine. They readily accept that mine closure also requires returning the land to
a useful purpose (Sheldon and Strongman,2002).
Mine completion ultimately determines what is left behind as a benefit or legacy for future generations. If mine closure
and completion are not undertaken in a planned and effective manner, a site may continue to be hazardous and a source
of pollution for many years to come. The overall objective of mine completion is to prevent or minimise adverse long-term
environmental, physical, social and economic impacts, and to create a stable landform suitable for some agreed subsequent
land use. Effective mine closure is dependent on correct management of the mining waste through the life of the mine. This
is best facilitated by understanding the potential mine waste before mining commences. Mine closure planning therefore
commences before mining starts and continues through the mine life till the lease is handed back.
Mine closure planning is an essential component of any mining operation. It is a process that must be ongoing from the
mines inception and throughout the entire life of the mine to ensure, as far as practicable, that the post-mining landscape
is environmentally, socially and economically sustainable. Although mine closure planning has been practiced since the mid
1970s, voluntary forfeiture of mining leases and closure acceptance by regulators has been rare. To help understand why, this
position paper provides an evaluation of a few successful closure cases and discusses the technical and commercial aspects
required for successful closure.
This discussion paper provides a follow- up to a seminar series presented by Environmental Earth Sciences throughout 2011
at various locations around Australia. The seminars were held for scientists, engineers, planners and lawyers who work directly
or indirectly in the mining industry, including mining companies, suppliers, consultants and regulators.
Environmental Earth Sciences
CONTENTS
EXECUTIVE SUMMARY
2
WHY HAS MINE CLOSURE BEEN SO DIFFICULT TO ACHIEVE?
3
The Mining Legacy
3
Tools for gaining a social license to operate
5
Communication with the publicpoints to ponder
6
TECHNICAL ISSUES OF MINE CLOSURE
7
Key concepts and issues of mine closure
7
Traditional mining waste cover designs
8
MANAGING THE CLOSURE PROCESS
11
Current closure practices
11
Lessons from successful relinquishment of mine lease
12
How to calibrate your CSM for closure: process monitoring
13
Systematic management of mine waste
14
A working example of systematic mine waste management
15
Conclusion 15
References 15
ABOUT THE AUTHORS
16
About Environmental Earth Sciences
16
Contact 16
Acid and metaliferous drainage from a rock wall in the in-filled pit of
Mt Todd Gold Mine, NT. The mine closed in 2000 leaving the NT
Government to fund around $10M deficit from the mining bond to
manage the site. (Source Philip Mulvey)
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The numerous scars of open cut coal mines in the Upper Hunter Valley, NSW as
visible to the public via Google Earth images. (Source: Google Earth)
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Acid mine drainage from a tailings dam at the Ardlethan Tin Mine, NSW.
The mining company went into liquidation without undertaking any
remediation, leaving a $1.9M clean up bill, mostly funded by taxpayers.
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Redefining risk
Public involvement in environmental issues was first proposed by
Risk Communicator, Professor Sandman in the mid 1980s. He
realised that the traditional way of assessing risk was incomplete
when considering environmental impacts.
Traditionally, the risk of a hazard occurring = consequence +
likelihood of occurrence. However, Sandman noted that some
projects were still being stopped or had failed to gain approval
due to political and public pressure, even when the risk was low.
Consequently he redefined risk by introducing a new term
outrage:
risk = hazard + outrage
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Peter Scott inspecting a waste rock dump at Brukunga, SA. (Source: Philip
Mulvey)
Iron sulfate salts forming on the surface of exposed tailings in the presence
of water and oxygen. (Source: Philip Mulvey)
Metals that often leach from mine waste material include: iron,
aluminium, manganese, copper, lead, zinc, cadmium, arsenic,
antimony, cobalt, chromium, nickel, mercury and molybdenum.
Aluminium is the most toxic of these metals to aquatic organisms
and plants, and is amongst the most common of the metals
released as a result of acid drainage. While acid drainage
most often occurs in areas where mining waste is stored such
as waste rock dumps, stockpiles and leach piles, and tailings
storage facilities, it may also occur in mine voids (both open
cut and underground mines), wall rocks, and from high walls.
The environmental impacts of acid drainage from historic poor
practices can be readily seen by the public in aircraft or access to
these abandoned mines, and include impacts to water supplies
and resources such as those used for drinking, irrigation, livestock,
fishing, recreation, tourism, aquatic ecosystems and loss of
habitat.
Community outrage is often a result of these environmental
impacts or the perception that they may occur. Economic
and business impacts can also be extreme, and the costs
are usually borne by the community or government. This can
lead to accumulating liabilities for governments, for example
superfund sites, and governments are decreasingly willing to
accept the liabilities. As such, liabilities remain with the mining
companies in the form of prevention of lease relinquishment,
expensive remediation and rehabilitation processes and potential
compensation payouts in the event of environmental and
social damage, all of which will negatively impact on the mining
companys reputation and future project approval prospects, as
well as creating a negative perception of the mining industry as a
whole.
In Australia, there are more than 100 mining companies
and government organisations committed to acid metalliferous
drainage treatment in perpetuity, although many sites have been
returned to the community to fund. The Australian examples listed
in the List of Minings Legacies on Page 4 are all orphaned sites,
that is, sites in which the profits have been privatised and the
liabilities socialised, so the public picks up the bill (through tax) for
the environmental damage caused.
Surface water issues regarding mining waste primarily relate
to limiting the erosion caused by water run-on, containment of
contaminated runoff water, and limiting the flow velocity and flow
volume of water over the site. Any reshaping of stockpile side
slopes crushes and buries boulders, which causes decreasing
erosion resistance and leads to an increase in slope length
Philip Mulvey inspecting a seepage point at the toe of a waste rock dump,
NT. (Source: Philip Mulvey)
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Schematic cross-section showing encapsulation of mineralised waste (PAF) (Source: Williams, Scott and Gerrard, 2012)
07
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Expected maximum
closure cost
(planning stage)
Cynicism
Design
Operations
Production
ceases
Closure
Monitoring
TIME
Schematic diagram of community and regulator confidence (red) and costs (green) over the mine life.
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11
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No
3.
Is monitoring data/output
information assessed,
interpreted and managed
to track risk alteration and
evaluate the need for
improved risk mitigation?
Category 3 Gap
Yes
No Gap identified
Gap analysis process flow chart used to identify and define gaps in
environmental monitoring systems.
13
Expected maximum
closure cost
(planning stage)
1
Cynicism
Design
Production
ceases
Operations
Closure
Monitoring
TIME
Constant calibration of confidence and closure costs over the life of the mine.
14
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Today, not only is a social license to operate essential, but so too is a social license to close. For
authorities to allow the successful relinquishment of
a mining lease, it is essential for the mine operator
to reduce uncertainty in the closure predictions regarding future environmental impacts of mine waste.
To achieve this requires the systematic constant
management of mine waste and voids for closure by
either mine management or a designer-contractor
combination. Part of this systematic management is
likely to include incentivising mine managers to be
actively engaged in reducing uncertainty of the site
conceptual model for closure.
References
Mulvey (1998) Conceptual model for groundwater
monitoring around tailings dams evaporation
ponds and mills Groundwater Monitoring Mining
Environment Magazine, July 1998 pp13-20.
Rising Tide (No Date), Boggabri ProtestPhoto,
available at: http://www.risingtide.org.au/
node/1165?size=_original
Sheldon, C.G. and Strongman, J.E. (2002) Its Not
Over When Its Over: Mine Closure Around the
World; Mining and Development, World Bank
Group Mining Department, World Bank and International Finance Corporation.
Williams, Scott and Gerrard (2012) Rehabilitation
Commitments for Pits and Waste Rock Stockpiles
at Frances Creek Iron Ore Mine, ICARD 9 Proceedings, Ottawa Canada, May 2012.
Modern mine tailings storage facility with clay dust cover placement over the inactive
tailings cell, and tailings beaches in the active cell to encourage evaporation of water.
(Source: Environmental Earth Sciences, 2012)
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