77511 MONGOLIA: RAISING FEMALE PARTICIPATION INTHE LARGE SCALE MINING SECTOR This policy note was prepared by a team consisting of Tehmina Khan, Economist EASPR (TTL) and Rogier Van Den Brink, Lead Economist EASPR (co-TTL); Oyunbileg Baasanjav, Operations Officer, EACMF; Munkhnasaa Narmandakh, Economist EASPR; Andy Mason, Lead Economist EASPR; Trang Van Nguyen, Economist EASPR; and Altantsetseg Shiilegmaa, Economist, EASPR. Tehmina Khan was the lead author of this policy note. The note was prepared under the guidance of Ivailo Izvorsky, Sector Manager (EASPR), Rogier Van Den Brink, Lead Economist (EASPR) and Coralie Gevers, Country Manager, Mongolia. Useful comments and inputs were provided by John Strongman, Sudhir Shetty and Coralie Gevers. 2 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR CONTENTS Introduction.............................................................................................................................................5 Background and context.........................................................................................................................10 Potential growth and employment impacts associated with an expansion of the mining sector.........12 Impediments to female participation in mining and related industries in Mongolia............................16 Female participation in the mining sector in other countries...............................................................18 Conclusions and policy recommendations.............................................................................................21 Appendix A. The CGE-MAMs model for Mongolia..................................................................................26 Appendix B. Regulations restricting women’s employment in the mining sector (1999-2008)...........28 References.....................................................................................................................................31 Figures Figure 1. Employment by sector (2008)..................................................................................................6 Figure 2. Projected impact of OT mine on GDP growth.........................................................................11 Figure 3. Scaling up of mineral output: exchange rate movements.........................................................13 Figure 4. Average economy wide rents by factor.......................................................................................14 Figure 5. Employment by sector after scaling up of mineral output......................................................14 Figure 6. Employment gains/losses by sector and gender........................................................................15 Figure 7. Actual employment by gender and sector, 2008-09...................................................................15 Figure 8. Average wages by sector and wage gaps between men and women.........................................15 Figure 9. Occupational segmentation in mining, engineering, construction, and other related industries.................................................................................................................17 Figure 10. Occupational segmentation in mining and exploration sector in Canada, 2006................19 Figure 11. Representation of women in managerial positions in Canadian mining sector, 2006.......19 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 3 Table Table 1. Suggested Policy Actions and Implementing Agencies............................................................8 Table 2. Potential Major Mines in Southern Mongolia.......................................................................11 Table 3. Baseline factor payments as % of total input payments by sector......................................27 Boxes Box 1. Integrating women into the mining workforce: the example of Lonmin Plc in South Africa....................................................................................................................................23 4 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR INTRODUCTION AsAs Mongolia has begun to develop its abundant workplace, drawing upon a broad pool of labor mineral resources over the past decade, the share of in what has traditionally been and still is a male mining in GDP has more than tripled to around 20 dominated industry. By overlooking women who percent currently. The sector has also contributed are as productive and effective as men, extractive up to a third of total government receipts in recent industry companies drive up labor costs for what years and more than 80 percent of exports in 2010. may already be a very small pool of skilled workers. With one large-scale copper-gold mining project Recruiting workers from overseas is an option but tapping a domestic pool of labor (women) (Oyu Tolgoi) expected to come onstream in 2013 is likely to be a politically and economically and several other large projects in the pipeline, the more palatable/cost effective solution. 5 Other economy’s dependence on the mineral sector will potential benefits include evidence from Chile, only grow in the coming years. Zambia and Papua New Guinea that operating and Evidence suggests that women tend to miss maintenance costs for mining and related heavy out on the potential benefits associated with a equipment are lower when these are operated by booming mining sector1. For example, data from women, increasing their lifespan and bringing cost mining companies worldwide shows that only savings to firms6. That said, it is important that a 5-10 percent of the extractive industry workforce “women are safer� or “take fewer risks� approach tends to be female, typically in service support does not reinforce occupational segregation and roles, while the bulk of risks relating to health, gender stereotyping. social and family disruptions also tended to be These issues are even more timely in Mongolia borne by women2. In addition, large scale mines given that several large scale mines are expected typically tend to be the dominant employers to be developed in the near future. Currently in remote locations. But as a study of the coal the formal mining sector in Mongolia employs mining industry in Indonesia finds, when large- roughly 40,000 people7 or about 4 percent of scale mining is combined with an overwhelmingly total employment (Figure 1).8 Although mining male workforce, there can be profound effects tends to be capital intensive, its expansion should on gender relations with women being forced to nevertheless generate significant employment depend on men for their economic survival, either opportunities. Moreover, as it scales up, there as wives or prostitutes.3 should be direct knock-on effects on other sectors, The development case for greater involvement such as transport, utilities and construction which of women in minerals and related sectors is 5 Mining companies worldwide are currently struggling to meet straightforward. Women constitute half of society rapidly growing global demand for iron, copper and other and therefore should share equally the benefits essential commodities and skilled labour shortages are a key constraint. In Australia, looming skill shortages – an estimated from mining and not bear a greater burden than 86,000 workers are needed this decade on top of the 200,000 men from the risks of mining4. The business case is that the industry already hires – are leading to a rethink of to develop a culture of equity and diversity in the industry and government policy towards women and indigenous minorities. For example, see http://www.e-mj.com/index. php/features/461-australian-mining-industrys-looming-labor- 1 Eftimie, Heller and Strongman (2009) shortage.html 2 For an excellent review of these see Eftimie, Heller and 6 IFC (2006)�Promoting gender equality in the private sector – Strongman (2009) hiring women in mining production jobs� 3 Lahiri-Dutt and Mahy (2006) 7 Rising to nearly 47,000 in 2008 before the drop in global 4 Strongman, J. (2008) Gender mainstreaming in the mining sector commodity prices led to a deep economic downturn and a sharp and mining communities. Another argument is that while men rise in unemployment. tend to use their income on the gratification of their immediate 8 Although it is estimated that the actual figure as high as 100,000 consumption needs, women tend to save more of their money or once seasonally driven artisanal mining is also taken into spend it on their dependents, health, education, etc. account, see ILO (2006). MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 5 currently account for another 13 percent of total towards “easier jobs� and a male-dominated employment. However, there has been little mining industry culture where discrimination and discussion of large scale mining in Mongolia from harassment against women is rife.10 It is worth a gender perspective, although small-scale or nothing that although there are fewer female artisanal mining and its gender related impacts than male graduates with natural science and have received growing attention in recent years9. technology degrees in Mongolia, their numbers are not small: of the 5800 or so students with such degrees that graduated in 2009/10, some 2300 were women suggesting that there are two problems with female employment in the mining sector in Mongolia: firstly that there are insufficient women with the requisite technical skills, and secondly, those that do possess these skills, do not get hired or choose to self-select out of mining sector jobs. Evidence from around the world indicates that gender equal laws are a necessary and crucial first step towards guaranteeing gender equality and equity, but by themselves are not sufficient. Instead the government also needs to introduce policies that promote gender equity e.g. through affirmative action policies in the mining sector as well as regulations that ensure the health and safety of both men and women. Meanwhile laws Accordingly the objective of this note is to against sexual harassment which tends to be wide- identify strategies, policies and practices to help spread in mining and associated sectors also need improve women’s access and participation in to be enforced. mining. The policy note starts by gauging potential growth and employment effects associated with In addition, the mining sector in Mongolia the expansion of the mining sector on other is already experiencing a shortage of skilled sectors, using a computable general equilibrium professionals, and given the scale of expansion model specially calibrated for the Mongolian expected over the medium to longer term, economy. It then considers experience and the paucity of skilled workers is likely to grow lessons from other countries that are trying to even more acute. Government intervention, integrate and ensure the participation of women coordinated with industry and aimed at vocational in large-scale mining and the practical policy and technical training can help to ensure that recommendations to do so. women are able to shift from service support roles to the professional mining (and related industry) The key findings are that there is a high stream, helping to overcome this shortage. degree of occupational segmentation in the mining sector, with women mostly located in Furthermore, female participation in the service support roles, although this is by no means mining sector concerns not only women as unique to Mongolia. However in Mongolia’s case, workers, but also women as owners. Given that this segmentation also likely reflects Mongolian women tend to have smaller business networks labor regulations that existed until 2008 and 10 As elsewhere in the world, extractive industries and related which limited women’s participation in the sector. sectors tend to be heavily male dominated, and a combination The impact of these regulations is likely to have of discrimination and self-selection by women – mining is seen as a “tough job,� takes place in remote areas where been further compounded by gender stereotyping family relationships are hard to maintain, support services and cultural norms which encourage women are inadequate and women may feel socially isolated – can all operate to reduce women’s participation even further. 9 E.g ILO (2006), and World Bank (2012) 6 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR than men, policy actions such as ensuring that the the world’s largest platinum producers located in award of mining licenses is transparent will go a South Africa is provided in Box 1. Such measures long way towards providing a level playing field for will prove extremely important in encouraging women. Other measures that can help include the women to invest in technical and mining related provision of micro credit and business training to education, to apply to mining sector jobs and women entrepreneurs who are local suppliers to to continue working in the mining sector. mining firms11. The government can also mandate Mining firms will accordingly need to make firm the reporting of how companies (and not just in commitments, reinforced by clear incentives and the mining sector) are applying equal opportunity targets with clearly stated consequences in case policies. A summary of the policy actions suggested of failure to progress, to diversify their workforce. and the implementing agencies is set out in Table This needs to be accompanied by a review and 1 below. understanding of where women are located in the work force, what their key concerns are and Finally, institutional reforms are needed at the whether existing infrastructure support female industry level to ensure that women are fully able workers (e.g. separate accommodation and to participate in the mining sector. An example toilet facilities, child care facilities, flexible work of how this has been successfully done by one of policies). Companies may also consider revising 11 Local supply companies employ substantial numbers of people recruitment/hiring strategies with the objective of and their importance should not be overlooked. The catering company which supplies the Oyu Tolgoi mine for example raising the share of female employment across all employs some 4000 workers, nearly three quarters of which are professional categories in the mining sector. women. MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 7 Table 1: Suggested Policy Actions and Implementing Agencies Key Policy Actions Implementing Agencies/Partners Broad policy actions Implement the Law on Gender The main implementing agency is the National Equality passed in February 2011. Committee on Gender Equality (NCGE), supported by all The law sets out the responsibilities organs of government to ensure that there is adequate of public agencies including through representation of women in all spheres of government affirmative action and mandates and that the minimum ceilings for female employment in the establishment of a complaint the public sector set out in the Law on Gender Equality are mechanism through the National adhered to. Partners: ADB, World Bank, other international Human Rights Commission and donors and national and international agencies employment dispute commissions. Create opportunities for Ministry of Social Welfare and Labor, Ministry of work for women in the mining Mineral Resources and Energy and Ministry of Education and related growth industries will need to coordinate with each other, with mining through appropriate technical and companies and with local (and possibly international) higher vocational skills programs, technical education institutions to assess particular skills required and scientific education and small and how to provide training on those skills. Currently there business training are high levels of occupational segregation by gender in the mining workforce, with women working mainly in service support roles (catering, laundry, cleaning). The government could set up appropriate technical, vocational and business education programs that provide the skills for women to enter mining related career streams, both as employees as well as owners/managers of supplier businesses The government could also support mining companies in setting up work-training or internship programs for female students Address sexual harassment in NCGE / Ministry of Social Welfare and Labor and the work place, which also tends to NGOs. The newly passed law on gender equality contains be problematic in mining industries. provisions including establishing internal procedures for its prevention as well as a complaint mechanism. Adherence to these by the public and private sector need to be carefully monitored. The NCGE could also set up a small “legal cell� which provides legal, financial and informational assistance to women subject to sexual harassment. The government could introduce informational awareness campaigns on various electronic and print media. Annual campaigns of “best companies to work for� could also help pressure companies to improve their working environment. 8 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR Encourage the presence of Ministry of Mineral Resources and Energy could women not just as workers but also ensure greater transparency in award of mining contracts as owners in the mining and related and openness in bids, which would encourage women to sector. compete on a level playing ground for lucrative mining contracts. In addition, the Ministry of Social Welfare and Labor and Ministry of Finance could coordinate to provide small business training to women and access to SME finance. This would increase women’s presence in supplier businesses (to the mining sector). Introduce decrees that Ministry of Social Welfare and Labor /Ministry of promote affirmative action in the Mineral Resources and Energy. Following the example of mining sector where female under South Africa (see Box 1), the government could mandate representation is particularly acute. that a certain percentage of the workforce in mining, where women are acutely under-represented, are female within a specific time frame (say 5 years). This would complement other programs that equip women with the necessary technical and vocational skills to work in the mining sector (see section above). Introduce best practice Ministry of Mineral Resources and Energy in partnership recommendations on how to with NGOs and/or international agencies, trade unions and incorporate equal opportunities company and workers representatives. in the mining sector and require companies to either comply with or explain why they are not doing so (“light touch regulation�). Assess health and physical Ministry of Social Welfare and Labor supported by needs and safety to improve NGOs and/or international agencies (e.g the IFC) and in working conditions for both men consultation with employers, trade unions and workers. and women in the mining industry. In the case of women, this also requires assessing whether the right facilities and services are in place to help them integrate better into the workforce (e.g. separate and secure living condition, change and toilet facilities etc) MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 9 BACKGROUND AND CONTEXT Mongolia has some of the world’s largest are developed as well, then the mining sector untapped mineral deposits, including copper, share of GDP will rise even further. uranium, coal and gold. Close proximity to fast- In addition, significant investment is required growing China, which for example is estimated to to get Mongolia’s mineral resources out of the have imported 165 million tons of coal in 2010 up ground and to market. Accordingly, large multiplier from 103 million tons a year earlier,12 means that effects on other sectors directly related to mining, there is a ready market for these commodities. particularly infrastructure, transport and utilities It is estimated that Southern Mongolia alone are expected. For example, an estimated US$5bn has the potential to produce more than 45 million is required in the Southern Mongolia region by tons of coal per year (Table 2) generating revenues 2015 for investment in railways, electricity, towns, of $5bn or more a year13. Oyu Tolgoi (OT), which and water.15 The largest investment needs are in is the world’s largest undeveloped gold-copper electricity generation (about US$2.7bn) to meet project and which is located just north of the the energy needs of the population and mining Chinese border, is currently under construction, projects. Considerable investment in railways and is expected to produce from 2013 onwards and road transportation links (of up to US$1.1bn) some 500,000 tonnes of copper and 500,000 is also needed. Meanwhile, some US$1.4 bn is ounces of gold per year for at least 35 years. It is required for urban development around mining widely expected that the government will allow centers to house workers and their families as well other mines to expand or begin operations as well as associated service providers. For every mining including Tavan Tolgoi which is believed to be one job created, there may be 2 - 4 additional jobs of the largest untapped coal deposits in the world, generated indirectly among local suppliers such and, once developed is expected to produce 15mn as catering, laundry, clothing and uniform supply, tons a year. 14 clerical support and so on.16 As a result, the economy is expected to But increasing natural resource specialization experience significant structural changes as its will also affect other sectors aside from those dependence on the mineral sector grows. The directly related to mining and these impacts may development of the OT mine alone is expected to not be all positive. Typically a mining boom or result in more than a quadrupling of GDP within a windfall carries the risk of Dutch Disease. This few years when production begins in 2013 (Figure occurs when large commodity rents associated with 2). While medium to long term projections are a boom in mining exports cause the exchange rate subject to uncertainty, the share of the mineral to appreciate and/or push up domestic inflation. sector in overall GDP is expected to rise from With the tradable sector (typically manufacturing, about one-fifth currently to more than one-half by but also other sectors such as agriculture or 2016 simply as a result of the OT mine becoming firms exposed to import competition) unable operational. If over the medium term, other mines to raise its prices in response to rising domestic input prices its competitiveness and profitability 12 http://www.mineweb.com/mineweb/view/mineweb/en/ page38?oid=120867&sn=Detail. It has previously been reported is undermined and it contracts while the non- that China is building up to two coal fired power plants a week. http://news.bbc.co.uk/2/hi/asia-pacific/6769743.stm 15 World Bank (2009) 13 World Bank (2009) 16 Eftimie, Heller and Strongman (2009). Multipliers associated 14 The Tavan Tolgoi coking and thermal coal deposit for instance, with an expansion in mining output can be quite large. For for which the government is currently is seeking contract mining instance it has been estimated that output multipliers associated agreements to develop the deposit, holds about 6 – 6.5 billion with the mining industry in southern Australia are in the region tones in reserves, thus making it one of the largest unexploited of 2, income multipliers are 3 and employment multipliers are as fuel reserves in the world. high as 4. 10 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR traded sectors (services) expand. Accordingly an the contraction of others such as agriculture or expansion in mining and associated industries manufacturing that are hit by Dutch Disease. may aid the expansion of some sectors, but also Table 2. Potential Major Mines in Southern Mongolia Figure 2. Projected impact of OT mine on GDP growth Mine Mineral Life Production (years) (000, tons/ % yoy % of GDP year) Tavan Tolgoi Coal 200+ 15,000 Uhaahudag Coal 40 10,000 Baruun Naran Coal 20 6,000 Tsagaan Tolgoi Coal 20 2,000 Nariin Sukhait Coal 40 12,000 Ovoot Tolgoi Coal 50 5,000 Sumber Coal 50 5,000 Shiveer Ovoo Coal 200+ 14,000 Oyu Tolgoi* Copper 50 2,000 ________________ Tsagaan Source: IMF, WB.Notes: The chart shows the impact Suvraga* Copper 20 250 of OT coming onstream, and GDP growth may stay Source: Southern Mongolia Infrastructure Strategy high beyond 2018 if other major mines are also (2009). * Production figure is for copper concentrate able to expand output. (30 percent copper) MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 11 POTENTIAL GROWTH AND EMPLOYMENT IMPACTS ASSOCIATED WITH AN EXPANSION OF THE MINING SECTOR To explore the potential growth and construction, the private non-traded sector and employment impacts associated with the government sector which expands in line with upcoming mining boom a multi-sector computable rising mineral sector tax revenues. The extent to general equilibrium model specially calibrated which employment expands/contracts by depends to the Mongolian economy is employed. The upon the intensity of factor use, the degree of analysis uses the World Bank’s MAMS (Maquette substitutability between different types of factor for MDG Simulation)17, which provides a general inputs and the relative increase in factor prices. framework for economy-wide country-level For instance, as agriculture and manufacturing medium to long run analysis. However given data shed jobs, these are more readily absorbed by constraints, the MAMs model for Mongolia (as the service sector which is labor intensive and indeed any CGE model for any economy) should where the opportunity to switch to labor-saving be seen as providing a general approximation of technologies may be more limited (Figure 5). the economy and the simulations as indicating the The simulations suggest that the expansion broad magnitudes and directions of change. of the mining sector could add some 5000 jobs The simulations assume that mining sector annually (Figure 6) between 2012 and 2014 (or output doubles between 2012 and 2014. The some 15,000 jobs). But it is important to emphasize results are compared to a baseline in which the that these are broad indicators of the extent to mining sector continues to grow at the same rate which employment could expand.18 A lower bound as the overall economy, assumed to be 6.5 percent (and one that is more plausible) is provided by the over the long run. The resulting surge in mining Southern Mongolia Infrastructure Strategy Report sector exports requires, for equilibrium to be (2009) according to which the development of regained and the current account to balance over mines in Southern Mongolia could generate an the medium to long-term, imports to expand and/ additional 10,000 or so jobs in the near to medium or other non-mining exports to decrease. In part term with further jobs likely if mines in other parts this is achieved by a nominal appreciation of the of the country are also developed. Additional jobs exchange rate which hurts the competitiveness in mining related sectors – construction, catering and profitability of the traded sectors (Figure 3). and other local companies that supply the mines – are also likely to be substantial19 and similar in However a real exchange rate appreciation number to those created directly within mining. is also an important part of the adjustment mechanism. This is primarily driven by a reallocation of the relatively scarce lab our factor to the mining sector which pushes up economy- 18 The MAMs model assumes that labour is used in fixed proportion wide wages. In turn, this also undermines to other factors in the mining sector. Accordingly, as the mining profitability in the traded sector and agriculture, sector doubles in size so do its labour needs. However the production technology in the other sectors assumes that profit- which contract (and Figure 4) releasing factors to maximizing producers choose factor input ratios including labour on the basis of relative factor costs that minimize production 17 See Löfgren, Lee and Robinson (2001) and Löfgren and Díaz- costs (or maximize profits). Bonilla (2006) for a description of the basic features of a MAMs 19 As noted above, employment multipliers can be fairly large for model. these related sectors 12 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR Most mining jobs, as well those in other high However it is worth noting that irrespective growth sectors such as construction, will likely of which sector they are located in, large gaps accrue to men. In part this reflects legal and in what women and men earn (Figure 8). For other impediments to women regarding work example, women were paid 23 percent less than in extractive and related industries in Mongolia men in mining and 17 percent less in transport (for example women are not allowed to work on average and nearly a third less in community in underground mining or drive trucks above a and social services where female participation certain haulage as discussed in the next section), is relatively high. In addition, as documented in but also industry cultural factors that discourage the companion policy note on labor markets in women from working in mining. Offsetting this, Mongolia, 20 women are located mostly in informal employment will expand in sectors where women’s sector wage employment in the service sector, economic participation is already relatively high heavily concentrated in support positions in retail e.g. the private non-tradable sector and the public and catering. sector (Figure 7). 20 Gender disparities in Mongolian labor markets and policy suggestions (2011), World Bank, forthcoming. MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 13 Moreover, there is unlikely to be a seamless shift to constrain government spending as the economy of workers out of contracting sectors into those that grows helping to minimize appreciation pressures, are expanding as assumed in the MAMS model. then the Dutch Disease effects could be much Large job losses e.g. in the low-skill agricultural smaller 22. 21 sector which accounts for more than a third of total employment (refer back to Figure 1) are unlikely to be mopped up completely by the mining sector. Neither is it clear how the private non-tradable sector will mop up the influx of low-skilled workers from agriculture. Instead, what is most likely is skill shortages in some sectors (mining, financial services) 21 Labor supply is exogenously determined by population and unemployment in others (agriculture and retail). growth within MAMS. Accordingly these charts simply depict a reallocation of factor inputs from one sector to another in Alternatively depending on policy actions, the results response to wage movements and given elasticity of substitution could be very different. For example if all the mining between factor inputs. export revenue is saved overseas in a sovereign 22 The impact of different government policies in minimizing Dutch Disease effects is being explored in a separate World-Bank and wealth fund, or if the government makes an effort IMF study. 14 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 15 IMPEDIMENTS TO FEMALE PARTICIPATION IN MINING AND RELATED INDUSTRIES IN MONGOLIA Low female participation in the extractive nature of work (e.g. as geologists, engineers, or industry and related sectors is the outcome mine surveyors). They also prohibited women from of several factors. On the one hand, extensive working in crushing and in using certain machine legislative impediments mean that women have tools in construction, restricted employment in far fewer opportunities in these sectors. On the transportation including driving vehicles that other, the absence of affirmative action policies had more than 2.5tons of carrying capacity or 25 in combination with discrimination may also play passengers or more, and other types of work in a role and may also encourage women to choose the utilities sector. The main objective of these other occupations. restrictions was to address health and safety concerns, but their extensive nature prevented Mongolia is a signatory to core international women from undertaking jobs that are deemed human rights instruments and treaties relating “safe� in other countries. For example, the list to women, including the Convention on the covered industries such as meatpacking, textile, Elimination of all forms of Discrimination Against tailoring and publishing, where such health and Women (CEDAW) and also has a relatively strong safety concerns may be quite small. In addition, legislative framework including the Family health and safety concerns could arguably have Law, a Law on Social Welfare, Law on Domestic been more directly addressed, to the benefit Violence and a Labor Code that aim to prevent of both men and women, rather than through any discrimination or violation of human rights, exclusionary labor regulations including women’s rights. More recently the country also passed a Law on Gender Equality. Gender stereotyping is also important in This is an important first step in a country which Mongolia, with anecdotal evidence suggesting previously lacked any specific national law on that women are not encouraged to enter jobs gender equality, and particularly because it spells that are deemed “unsuitable and unsafe� and out responsibilities of specific public agencies to that women should be protected from “hard ensure gender equality. jobs.� Case study and interview evidence also points to sexual discrimination as an imposrtant However labor regulations that were in factor restricting women’s entry into mining. For place until 2008, and gender stereotyping are instance, an ILO study documented that although together likely to have played an important role domestic mining companies did not explicitly in reducing women’s participation in the mining discriminate against female geology students sector. The labor regulations prohibited women when requesting recommendations for hiring from participating in a wide range of activities from the Mongolian University of Science and (Appendix B). Although formally not “law� they Technology (MUST) student body, nevertheless were legally binding as they were effectively a they preferred male employees (ILO, 2006). As regulation authorized by the law. The prohibited a result, even though women comprise half of activities included “all kinds of underground work� all geology graduates, they amounted to only 10 in the mining industry, irrespective of whether or percent of mining sector employees. In addition, not these were safe, involved hard physical labor, most female employees worked in service support were mechanized or not and irrespective of the 16 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR roles such as cooks, cleaners, brick-makers, or reluctance to register any complaints because tended livestock and vegetable patches for the such behavior was considered the norm. In companies. addition, there was limited support provided for The ILO study also interviewed women women with families with some mining companies employees in a number of companies in the formal requiring women to live at the mine and charging mining sector and documented sexual harassment a fairly high daily fee if their families wanted to and a lack of gender-sensitive company policies stay over. Others interview respondents reported with respect to living and working conditions. For having to share living quarters/accommodation example, women working in both service support with men, tough working conditions that included and professional roles reported harassment exposure to chemicals and high temperatures. and disrespectful treatments23 and there was a 23 “The women working at Mongolgazar, the much larger mining children and families. They alleged that the male workers called company located in Omnogov province… complained of them “local Indians,� a derogatory phrase, and were arrogant disrespectful treatment and harassment from the male mine – sometimes subjecting them to humiliating experiences� (ILO, workers and security guards, being unreasonably overworked 2006) by their supervisors and enduring forced separations from their Figure 9. Occupational segmentation in mining, engineering, construction, and other related industries % of total employment by occupation and gender Source: HIES 2007-08 survey The upshot is that there is considerable only 16 percent of the National University’s School occupational segmentation in mining and of Mining graduates24, reflecting their limited associated industries. For instance, only 5 percent employment opportunities and their occupational of all employees working as “drivers of heavy choices. And, of the 5800 or so students that engines and engine (pulling) machinery,� are graduated with natural science and technology women (Figure 10). The corresponding figures for degrees in 2009/10, 40 percent were women machine operators and mechanics in mining and compared with 70 percent of the 22,000 social chemicals, and for officers in mining, construction, science, humanities and education graduates.25 transportation and other heavy industries are 10 and 11 percent respectively (2007-08 Household 24 Student Statistics of the School of Mining, 2009-2010 academic Income and Expenditure Survey). Meanwhile the year. Women constitute 22% of Master’s degree students and 39% of Doctor’s degree. ADB (2010) documents that women comprise 25 NSO (2010). MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 17 FEMALE PARTICIPATION IN THE MINING SECTOR IN OTHER COUNTRIES Gender Gender unfriendly company policies, Labor force statistics are similar in Australia, sexual discrimination and harassment are where the mining sector hires some 120,000 not unique to Mongolia’s extractive industry. employees fulltime, of which some 13 percent are However, there are concerted efforts being women. In addition, surveys show that women made to document and improve the working are heavily concentrated in support, clerical conditions of women, to better integrate them or administrative roles and there are large pay into the mining workforce in both developed gaps within mining occupations that cannot be and developing countries. This is being driven by explained by differences in the number of hours the mining industry itself to address acute skills worked by men and women. Moreover even in shortages that are harming corporate profitability occupations where women are well-represented, otherwise. they do not hold a proportionate number of managerial positions (Figure 11). 29 The first (and crucial step) taken in Australia and Canada for instance, is that the mining industry Generally, surveys from both Australia and in conjunction with academia and the government Canada document that the mining culture and has undertaken audits and surveys of what factors working conditions are heavily skewed against affect female participation in the mining sector, women. This was despite the fact that women were and how to retain and attract female staff.26 experienced, willing and prepared to participate fully in the whole range of jobs and occupational What these surveys from developed roles available in the sector, including as heavy countries show that despite the presence of equipment operators and in remote exploration gender equal laws, the mining sector workforce camps30. is overwhelmingly dominated by males and that the work culture and gender unfriendly policies In both countries women identify a “male followed by firms are important reasons why the dominated work culture� as a key challenge sector was both unable to attract and to retain for a successful career at every stage31 and women workers. also reported discrimination against women as a “serious and systemic issue�32. Although Canada for example, has some 840 mines serious sexual harassment was not identified and some 1400 mining companies listed on as a major complaint, nevertheless �moderate the Toronto Stock Exchange and its mining and levels of sexual harassment and bullying, such as exploration sector hires some 150,000 workers inappropriate comments and displays of sexually directly27. Although the representation of woman offensive material� were accepted at mine sites in mining and exploration has risen from less than and women were typically reluctant to formalize 11 percent in 1996 to 14 percent in 2006 (Figure complaints of harassment and discrimination.33 10), it is much lower than their participation in the overall workforce at 47 percent. 28 29 Office for Women and Minerals Council of Australia Report 26 For example, see the Office for Women and Minerals Council of (2007) Australia Report (2007) and the WIM (2010) survey of women in 30 WIM (2010) survey of women in the Canada’s mining industry. the Canada’s mining industry. 31 WIM (2010) survey of women in the Canada’s mining industry. 27 If workers in mineral and metal manufacturing sectors are 32 Office for Women and Minerals Council of Australia Report included, the number rises to 350,000 or about 2 percent of the (2007) workforce. 33 Office for Women and Minerals Council of Australia Report 28 WIM (2010) survey of women in the Canada’s mining industry. (2007) 18 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR Figure 10. Occupational segmentation in Figure 11. Representation of women mining and exploration sector in Canada, in managerial positions in Canadian 2006 mining sector, 2006 In addition, women were likely to experience child care, or difficulties in climbing the corporate social and professional isolation because of the ladder due to taking maternity leave. relatively few number of women working in the However, there is a growing recognition industry. The surveys show that with men recruiting within industry itself that current practices have “in their own image� and most supervisory and to change. The main driver behind this is an managerial positions held by males, women had acknowledgement that, in the face of acute labor relatively few mentors or role models to look up shortages, an increase in women’s participation in to. Meanwhile working conditions resulted in the mining sector will be an integral part of the difficulties in retaining female staff, for example sector’s future success35. Thus the surveys for due to a lack of suitable child care facilities, long Australia cited above are the outcome of a research working hours, unattractive shifts and extended partnership between the Australian government periods of travel to mine sites34. Even where and the Minerals Council of Australia to understand flexible work programs were available, the work and to establish a baseline of the factors affecting culture was not regarded as being supportive of women’s participation and experiences in the workers accessing these programs. These factors mining industry, with the objective of improving also played an important role in career choices its attraction to and retention of female workers. made by female students with many viewing mining as a tough industry to work in. Care issues and the lack of support were particularly 35 For example it is estimated that the Canadian mining industry will face a shortfall of some 60,000 workers over the next decade, important, with women disengaging from the with less than a 1000 expected to be filled annually through workforce in the absence of support regarding migration. An estimated 70,000 are needed to fill skilled worker shortfalls in the Australian mining sector. Ignoring women, who 34 Mineral Council of Australia (2006), Office for Women and have and are still historically under-represented in the mining Minerals Council of Australia (2007) and Sardar (2008) sector, will only serve to hurt profitability. MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 19 Essentially, rising labor costs and a shortage conditions for women. The number of women of workers in the face of high commodity prices in Rio Tinto’s employment, for example, has risen hurts corporate profitability as projects are from 11 percent in 2000 to 15 percent by 2007, delayed. Companies have therefore begun to with mothers being offered flexible working address what is essentially an issue of “bodies�: schedules to go home at night to their children. they need workers and it doesn’t matter whether For remote mining sites in Australia, Rio-Tinto also these are male or female. This has meant that in offers its staff (men and women) fly-in and fly-out order to attract and retain women, companies options in which the company flies employees to have to offer not only better remuneration but the mine and back again when the shift is over. also better career prospects and better working 20 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR CONCLUSIONS AND POLICY RECOMMENDATIONS This section summarizes the key findings of d) Gender equal laws are a necessary and this policy note and proposes recommendations crucial first step towards guaranteeing and reform areas that will help women to better gender equality and equity, but by access opportunities in the mining sector and themselves are not sufficient. They also related sectors. The overarching message is that need to be backed up by institutional and cultural reforms at companies to ensure a) Mongolian labor regulations that lasted that gender equality is well-rooted in law until 2008 restricted women’s participation and practice. Indeed, as the difficulties in the high-growth and high-pay mining experienced by female workers in the sector. Women’s participation is limited to Australian and Canadian mining sectors service support roles. demonstrates, the presence of laws can b) The impact of these regulations has provide the illusion of equality which may been further compounded by gender not exist in reality. However, in these stereotyping and cultural norms which countries serious efforts are being made to encourage women towards “easier jobs� document women’s working conditions, in and a male-dominated mining industry an effort to improve them, and which are culture where discrimination and being supported and adopted by companies. harassment against women is widespread. Another serious impediment is the lack e) c) A shortage of mining sector workers is of complaint mechanisms and the lack already a key challenge for the mining sector of gender equality awareness among in the coming years and will likely grow people to use available mechanisms (trade worse as the sector expands. The Mongolian unions, courts, inspection agency) for mining sector and associated industries will claiming their gender equal rights. Women generate a significant number of jobs as use these when they are laid off or miss the mineral industry scales up. Women are eligible benefits but usually not against an easily available36 but overlooked source gender discrimination in the workplace. No of labor which companies will be foolish programs exist to raise awareness of both to overlook. The alternative – importing employers and employees. workers from overseas or waiting for more males to graduate – is more costly and in the case of migration possibly politically With regard to national policies that would unfeasible. Recruiting from overseas is be beneficial for women in the mining sector, likely to be hard as well give that the mining the main recommendations are set out in detail industry globally is currently facing a severe below: shortage of workers, which is expected to a) Implement the Law on Gender Equality worsen over the coming decade. passed in February 2011. The law was prepared by the National Committee on Gender Equality (NCGE), in consultation with NGOs and the government and with 36 In terms of currently available mining and mining related assistance from the Asian Development graduates that could be hired, augmented by technical and vocational education programs to increase existing numbers. Bank. The objective was to promote equality MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 21 between men and women in political, assessments should also take into account economic, family and educational spheres.37 three main categories of women: those of Aside from setting out the responsibilities of reproductive age but not breastfeeding or public agencies including through affirmative pregnant; pregnant women and women action, it also mandates the establishment who are breastfeeding (see IFC 2010b for an of a complaint mechanism through the example of how such assessments have been National Human Rights Commission and carried out in other mining companies). The employment dispute commissions. objective of such an exercise can be two-fold: the first is to identify areas where current b) Promote safe and healthy working legal provisions are too broadly applied or practices for both women and men in the outdated, and the second is to mandate mining sector better health and safety regulations for all, o The 1999 Ministerial Decree that lasted both men and women. until 2008, contained extensive prohibitions that prevented women from working in key high-growth occupational areas, including o The labor regulations, in combination with the mining sector, for health and safety cultural stereotypes in an industry that is reasons. The regulations were withdrawn in already not regarded as female-friendly have 2008, but the issue of mining as a hazardous left a legacy of acute under-representation occupation as the recent experience of women in the mining sector. it may also of Chilean miners who were trapped be possible to use ministerial decrees to underground for several months indicates. directly address gender imbalances, as However these are concerns that apply to for example has happened in South Africa both men and women. Accordingly health where the government set an explicit target and physical risk assessments for both that 10 percent of total employment in the men and women should be undertaken, in mining sector comprise women by 2010 consultation with employers, trade unions (Box 1). and workers. In the case of women, these 37 ADB (2010) Country Gender Assessment 22 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR Box 1 Integrating women into the mining workforce: the example of Lonmin Plc in South Africa Lonmin Plc which is the world’s third largest primary platinum producer and is based in South Africa, has successfully worked to incorporate women at every level in its operations in recent years. The move, supported by a three year partnership with the International Financial Corporation (IFC), has been driven by legislative requirements (the South African Department of Mining directed that 10 percent of all mining workers comprise women by 2010), a desire to create equal opportunities for women and also a view to the company’s bottom line. The Women in Mining (WIM) program focused on the following four aspects: preparation, recruitment, development and retention of women. To prepare the company to absorb women into the workforce, a detailed employment equity audit was conducted to asses gaps and issues hindering women’s participation. The areas covered included: employment barriers, types of jobs suitable for women, policies to support recruitment and retentions, state of physical infrastructure for women such as toilets and change houses, management structures, cultural readiness, communication, monitoring and evaluation strategies. As a result of the audit, the following steps were taken to prepare for the recruitment and retention of women. First the management and governance structures were changed at Lonmin. For example, a steering committee composed of senior executives was set up to provide guidance, troubleshoot and monitor support for the WIM program as well as an employment equity forum that met monthly, and one senior woman VP was appointed as an internal champion for the program. Incentives were also established, notably a scorecard which which required each department to achieve female recruitment targets as well as performance scorecards for managers. Also four WIM related policies were identified in order to institutionalize the programs. These include general guidelines for the WIM program, an employment equity policy that required managers to provide equal recruitment opportunities for women, a pregnant and breastfeeding policy that provided direction on how to handle these issues including alternative placement strategies, and a sexual harassment policy that clearly spelt out what constituted sexual harassment, the complaint mechanism, and consequences. The physical environment was also made more comfortable for women, e.g through building separate toilet and change facilities in underground shafts, and designing a two-piece overall for women. A comprehensive communication strategy was also developed to communicate the key features and female success stories of the WIM program, awareness campaigns and workshops on sexual harassment. What was the outcome? Starting in 2007, the company had raised total female employment from 4.6 percent to 6.9 percent in 2009, an increase of 42 percent (or some 480 women). Other key program successes included the adoption of the four WIM policies, including on employment equity, sexual harassment and maternity leave. 12 women change houses and nearly 200 toilets were built in mining shafts. The project is also notable for the fact that it provides a clearly documented practical approach towards raising women’s’ participation in the mining workforce. In this sense it is a manual that can be amended/modified to be used in other countries. For example, it sets out templates that can be used for conducting a physical health assessment and suitability of jobs by gender, sets out how salaries should be evaluated in order to determine to what extent and why wage disparities are based on gender and concrete recommendations to address discrepancies and so on. Source: IFC (2010a) and IFC (2010b) MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 23 c) Provide technical and vocational training corruption and nepotism in license allocations. It to women to ensure that they are suitably is crucial that women, who tend to have smaller qualified for mining sector jobs. Currently there business and political networks than men and are high levels of occupational segregation by were therefore at a particular disadvantage gender in the mining workforce, with women with respect to obtaining licenses, face a level working mainly in service support roles playing field with regard to bidding for these (catering, laundry, cleaning). The government licenses. The Ministry of Mineral Resources could set up appropriate technical, vocational and Energy has recently prepared and adopted and business education programs that provide regulations that increase the efficiency and the skills for women to enter professional transparency of mining cadastre operations and mining career streams. This would require has implemented a fully computerised cadastre various arms of the government, including the management system to further increase the Ministry of Social Welfare and Labor, Ministry of transparency and integrity of the licensing Mineral Resources and Energy and Ministry of system. Education to coordinate with each other, with Other policy actions that might be suitable mining companies and with local (and possibly include supporting women business forums international) higher education institutions including meetings with mining sector to assess particular skills required and how to professionals and investors (male and female, provide training on those skills. domestic and overseas) where women d) Enforce sexual harassment laws and create entrepreneurs are able to network and to awareness among victims on their legal exchange ideas for business opportunities rights. Sexual harassment has been widely in mining. Women as owners of supplying documented in educational institutes and in the companies should also not be overlooked and workplace in Mongolia (ADB, 2010), but it can useful policy actions in this regard include be particularly acute in mining sites. Companies business training and micro-credit finance. (and universities) should be encouraged to f) Mandate reporting of how companies are introduce a systematic (and sympathetic) policy applying equal opportunity policies. These vis-à-vis sexual harassment and also provide policies are non-existent as such, while the complaint mechanisms through which women few general provisions in the labor code are can report their concerns. Nationally, the not enforced. It also slips the attention of government can try and increase awareness the Professional Inspection Agency which is of sexual harassment through advertising mandated to oversee labor laws and standards. and information campaigns as well as setting While there has been considerable emphasis in up support services for women experiencing recent years on corporate social responsibility sexual harassment. vis-à-vis environmental, gender and social e) Female participation in the mining sector impacts on the communities in which mining concerns not only women as workers, but also companies are situated, relatively less has women as owners . As discussed previously, a been attention paid to gender issues within the key problem with the mining industry is that workplace. The government (or the NCGE) could there are insufficient women in managerial or produce a list of best practice recommendations leadership roles, and this is one area that may for mining companies, and require companies qualify for government support. to either comply with or explain why they are not doing so. This is an example of “light touch� A good example of appropriate policy actions regulation followed, for instance, in the UK – on which the Mongolian government has with respect to corporate governance, which made progress – concerns the method by which recognizes that the burden for compliance and mining licenses are awarded. Until recently, the reporting is much higher for smaller companies. process by which mining licenses were issued was ad hoc and opaque and led to allegations of 24 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR The main areas of concern at the company operations. It also requires an assessment level are how to change industry “culture� and of what jobs are most suitable for women, practices with regard to hiring, developing and and whether existing infrastructure supports retaining female staff. These include issues female workers. For example, change houses, of diversity, health and occupation safety, separate accommodation facilities for women sexual harassment, inflexible work practices and families, underground toilet facilities are and occupational segregation. The main all important factors that could help improve recommendations in this area are: existing work practices vis-à-vis women. a) Review company policy, communicate c) Improve workplace culture, address career commitment to all stakeholders and establish development issues and provide gender clear benchmarks with penalties. Companies appropriate work options for women. The need to be aware that by overlooking an sector needs to address the “maleness� of the easily and locally available pool of labor, they industry by awareness raising activities, ensure are harming their own profitability. The first that women have sufficient access to complaint step is management commitment that is mechanisms and have a zero-tolerance policy reinforced by clear incentives and targets, towards sexual harassment. Flexible work with clearly stated consequences in case of policy arrangements which take into account failure to progress. Management commitment the family and care responsibilities of women also needs to be communicated to and shared and child care facilities are also important. With with by other stakeholders. These include regard to career development, given the low the Human Resources Department, unions levels of female participation in the minerals and/or unorganized workers, core operations sector, affirmative action policies may be needed (mining and processing) in mining firms. These initially with clear targets identified, substituted stakeholders can be brought on board through by training and mentorship opportunities later explaining why women are a valuable part of the on. workforce e.g through sensitization workshops. d) Revise recruitment/hiring strategies with This could also include incorporating gender the objective of raising the share of female considerations (e.g. the number of women on employment across all professional categories. the team, whether women have been able to Actions that companies could consider include participate in training and courses that could recruiting women from undergraduate and help career advancement) in performance graduate campuses from across a broad indicators for senior management (See range of disciplines (engineering, metallurgy, Appendix C for an example on how Lonmin management, finance etc) so as to raise Plc, the third largest global platinum producer awareness of the kind of career possibilities has incorporated women into its workforce in that exist in the mineral sector. Vocational South Africa). training/ internships targeted to women may b) Assess existing operations to assess the also help in offsetting some of the negative extent to which they incorporate women perceptions of the industry and help influence and changes that are needed38. This includes their educational and career choices. audits of where the female workforce is located within an organization, and what is impeding the presence or career mobility (horizontally or vertically) for women in core mining 38 See IFC (2010b). Women in Mining: A Guide to Incorporating Women into the Workforce, Draft V.10, IFC. This provides comprehensive details and guidelines on how to assess mining operations , facilities and services and the degree to which they are female-friendly. MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 25 APPENDIX A: THE CGE-MAMS MODEL FOR MONGOLIA MAMS is a multisectoral real CGE (computable to clear the budget, the exchange rate adjusts general equilibrium) model that can incorporate to balance the current account and domestic policy efforts to achieve the Millennium household investment (or private investment) Development Goals (MDGs) and more broadly, adjusts to clear any savings-investment imbalance. poverty reduction and growth by explicitly The MAMs model for Mongolia is disaggregated accounting for and modeling the health, education, as follows: there is one representative household and water-sanitation and infrastructure sectors which primarily earns its money from labour and their linkages with the rest of the economy. income, from the ownership of private capital As noted in Lofgren and Diaz-Bonilla (2006), and mining capital. Households pay taxes to the the main requirement is the development of a government and also receive transfers from it, as country specific database in a social accounting well as from the rest of the world. The economy matrix (SAM),that replicates the behavior and has 6 sectors, producing 6 different goods and structure of the economy of the economy. Its services, namely agriculture, mining, tradable main advantage over other macro models is that (mostly manufacturing), construction, non- it has much richer set of households, sectors and tradables39 and the public sector40. In addition, factor input types and can be easily scaled up or there are three main factors of production: scaled down depending on the desired degree of labour which is disaggregated by gender, private sophistication and complexity. MAMS also has capital and mining capital. Each sector also uses micro-foundations, i.e. prices clear markets (both the products of other sectors as inputs, as well as product and factor), producers maximize profits two other goods which are entirely imported as and consumers maximize utility. intermediate inputs, namely fuel and intermediate The baseline SAM for Mongolia is calibrated capital vwhich is used solely by the mining sector. using publicly available national statistical data, Overall labour supply is determined by exogenous notably 2005 input-output and supply-use tables. population growth. Private capital formation The SAM provides a comprehensive account depends on private savings and investment rates of the circular flow of income in an economy, in the economy. Baseline factor payments as encompassing factors of production, institutions a percentage of total input payments are given (households, government, the rest of the world), below. demand (intermediate and final, with the latter including consumption, investment, exports) and supplies (domestically produced goods and 39 Wholesale and retail trade, hotels and restaurants, financial imports). The main closures adopted to achieve intermediation, real estate, renting and other activities, utilities. equilibrium are that government spending adjusts 40 Public Administration and Defence, Health and Social Services, Education, Other Community, Social and Personal Services 26 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR Table 3. Baseline factor payments as % of total input payments by sector % of total Agr Con Pvt Pvt Non- Min Gov Trad Trad Intermediate exc pvt 19 63 50 27 33 65 non-tradables Pvt non- tradable 5 14 18 23 6 7 Labour 19 13 16 23 7 23 Pvt. Capital 57 9 17 28 5 5 Min. Capital 0 0 0 0 48 0 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 27 APPENDIX B: REGULATIONS RESTRICTING WOMEN’S EMPLOYMENT IN THE MINING SECTOR (1999-2008) ORDER OF THE MINISTER OF HEALTH AND SOCIAL PROTECTION 13th August 1999 Number A/204 Ulaanbaatar city TO ORDER on the basis of the article 101 and the section 5 of the article 109 of the Law on Labor of Mongolia: 1. To reapprove the “Listing of works prohibited to be performed by women� as an annex 1 and the “Listing of workplace prohibited to be performed by minors� as an annex 2. 2. To oblige senior authorities of organizations and entities to work in compliance with the listing. MINISTER’S ROLE EXECUTIVE S. SONIN 28 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR Mining • All kinds of underground Air • Airplane mechanic Extractive work, oil exploitation and Transport • Airplane connector Industry refining, use of flammable gas • To perform a technical service for airplane and its engine Leather • All kinds of work using chalk Wood • All works transmitted through Industry (bleaching powder) in its preparation wood generation and water float lifecycle such as tanning, and • To load and unload timber by preparing extract from generation hand sodium and chrome, to carry industry • To cut, sort and collect wood in and gather a tanned leather the underground storehouse • To compose chlorine of a paper mill • To crush wood Glass • Blow a glass by mouth Construc- • To assemble a stovepipe and industry • To crush a carbide by hand tion canal assembly • To dig a well • To pour, broke and crush a platen by hand • To crush a rock • Autoclave men Textile • To prepare aniline salt and flux Social • Clean the drainage filter industry by hand Services • Plumber of drainage canal • To prepare hydrochloride by hand Publishing • Printing machine Common • Antenna work industry • To develop and poison a picture, work and • To pot bitumen and asphalt zinc and an offset printing profession • Mountain rescue work • To mould a stereotype • Parachutist and fireman • To melt lead • To work in contact with mercury • Letter roll • To blend and dye paint with • Machinist of an one-sided chop mercury machine • Stoker of all kind of heat boilers Tailor • Machinist of a minute and • To clean, dye, repair and seal Industry separate chopping machine tank and cistern going inside of used for incise transmission it, which stores flammable and • To operate a special function greasing materials iron press • To mix ethyl with fuel MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR 29 Meat • To cause numbness of cattle, • To clean heat boilers, stovepipe, industry pig and bird, and to execute canal and camera them • To extract and carry coal, lava • To butcher cattle and ash • To work in a storehouse with • To fire heat boilers, repair and amikan refrigerator clean boiler house, carry fuel and ash • To melt, cast, discharge and pack cast iron and metal Railway • Train connector and composer • To melt, pour, stretch, cast, transport • Install twin wheel band and rim mould and scroll pot lead, to • Bridge locksmith (plumber) make and seal an accumulator, • To tan, lift and unload bearer to plumb cable, to generate a pot (tie) lead made things by hands • To clean, bloat and blow • To melt a base metal such as pot stovepipe lead, copper, mercury, gold, zinc • Padding men and silver out of ore • To go under the train for service • To seal channel and canal and control check • Striker • Maintenance work of diesel- • Auto machine operator and locomotive, supply equipment, presser that prints metal in a fuel and electric motor cold condition with a power • To block in a road by an electric higher than 25 tones blocker • Base machinist of drum chipping • Driver of heavy vehicles for road • Smasher maintenance • Steam auto machine’ wheel Water • Diesel engineer of a ship • Stove/boiler repairmen transport • Steersman/pilot, sailor-man • To seal and repair high pressure • To dive canal • Ship mechanic • To pour an electric filter • To put a seamark • Machine operator and repairmen of a stationary diesel electric station Auto • Vehicle with more than 2.5 ton • Compressor man Transport of carrying capacity, driver of a • To polish and cover metal by a vehicle with more than 25 seats chemical method • Flammable and greasing material, storing reservoir, to repair internal part of cistern, to seal Source: Government of Mongolia and World Bank 30 MONGOLIA: RAISING FEMALE PARTICIPATION IN THE LARGE SCALE MINING SECTOR REFERENCES Eftimie, A., Heller, K. and Strongman, J. 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