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Les ressources minérales profondes en Polynésie française / Deep-sea mineral resources in French Polynesia

 | 
Pierre-Yves Le Meur
, 
Pierre Cochonat
, 
Carine David
, 
et al.

I. Executive summary

I. Executive summary

Texte intégral

Aims and method

1This expert group review has been conducted by the Institute for Research and Development (IRD) upon request from the governments of French Polynesia and France. The aim was to review the current state of knowledge on deep-sea mineral deposits in French Polynesia in order to measure the potential for establishing a deep-sea mining sector, and to formulate precise recommendations on the issue in a context with several levels.

2The international context is characterised by renewed interest in accessing deep-sea mineral resources against a backdrop of rising demand for mineral commodities, despite a drop-off in prices since their 2008 peak. This interest is also connected with geostrategic concerns.

3The Polynesian context, on the other hand, is marked by the search for sustain-able economic alternatives following the end of annual payments for nuclear testing and by the dual priority of developing/preserving a vast exclusive economic zone (EEZ) accounting for 50% of the French EEZ, itself the second largest in the world.

4The initial request is based on a seeming paradox. On the one hand, the existence of deep-sea mineral resources needed to be confirmed, described and assessed with a view to exploiting these resources and boosting the country’s economic growth. On the other hand, it is necessary to do away with any mirage of a supposed treasure buried under the sea, the exploitation of which would cure all the socio-economic ills plaguing the country. This paradox created a productive tension that shaped the work of the panel of experts, requiring it to consider the facts from both angles.

  • 1 On a personal basis.

5The review brought together ten experts working on an intuitu personae1 basis with an interdisciplinary approach, as was needed to cover all the issues surrounding deep-sea mining: anthropology, biology, law, economics, geography, geoscience and technology. The experts were asked to respond to around twenty questions, divided into four separate themes and one cross-cutting issue:

  1. Knowledge, social representations and resource economics;
  2. Governance capacities: rules, responsibilities and stakeholders (state and non-state);
  3. Technological challenges for exploration and mining;
  4. Environmental challenges for exploration and mining;
  5. Cross-cutting issues.

Analysis

6Based on an extensive review of the scientific and grey literature, comparative analyses and a series of interviews and meetings with public and private stakeholders concerned with deep-sea mineral resources, the panel of experts reached a qualified conclusion. Their analysis highlights the world-class potential of the cobalt-rich polymetallic crusts of the French Polynesian EEZ, mentions the specific risks their exploitation would involve, emphasizes the need to deepen knowledge, which currently remains insufficient, and recommends the formulation and implementation of a policy to unlock this potential.

World-class potential of the cobalt-rich crusts

7Of the various types of deep-sea mineral formations – polymetallic nodules, muds rich in rare earth elements, massive sulphides and polymetallic crusts – only the latter, and to a lesser extent the nodules, are of potential value for French Polynesia. These are crusts found at depths from 800 to 4,000 m, rich in cobalt and containing other important metals (nickel, manganese, titanium, platinum, etc.); they are located in seamount areas with low sedimentation. Phosphorite has been observed in the substrate of the crusts and could be exploited too. The most promising areas lie in the zones north-east and south-west of the Tuamotu Plateau and, to a lesser extent, the Tarava seamount chain south of the Society Islands.

Uncertainties and specific risks involved in their exploitation

8The criteria of age, depth, slope, surface area and thickness of the crusts need to be viewed alongside other parameters relating to the surrounding ecosystems, namely all compartments of the water column, from the sea floor to the surface, as well as the habitats connected to these via trophic chains and organisms’ lifecycles. The uniqueness of organisms (endemism and ecological specialisation) and the vulnerability and resilience of these habitats are poorly understood and we are therefore currently unable to predict the impact of deep-sea mining. Furthermore, fishermen are certainly familiar with the seamounts which have higher concentrations of pelagic organisms and predators. The uses and cultural representations of deep-sea areas, often casually categorised as mare nullius, must therefore be taken into consideration as part of an approach to acquire the population’s acceptance and consent. Lastly, the technical and economic dimensions of exploiting the deep-sea mineral potential contain many unknowns, which is why this review takes a scenario-based approach.

Urgent need to deepen knowledge

9Evidence of significant mineral potential must be accompanied by some major precautions. First, knowledge about this potential is still too fragmentary to reach a decision about its development, whether in terms of specific location, metal content, surface areas, thicknesses or topography of the crusts. Secondly, there are large gaps in information about the ecosystems likely to be disturbed by exploitation (baseline situation of the environment, spatial distribution of biodiversity, changes to the physical and chemical characteristics of the water, current strengths and directions, pollution plume, resilience of habitats in the event of destruction, etc.). Extensive scientific exploratory campaigns are needed to fill in these gaps and develop policy options. There are also technological deficiencies when it comes to exploration (e.g. micro-drilling techniques need to be developed) and exploitation (the research and development work already conducted in order to exploit nodules and massive sulphides cannot be fully applied to the crusts: the mining and ore transfer methods are different).

Need for an explicit, tailored development policy

10An explicit, tailored policy to exploit French Polynesia’s deep-sea mineral assets must be defined very early on. In this respect, the situation is ideal in that no deep-sea mining is currently taking place and no exploration permits have been granted in French Polynesia. This means there is time to formulate an entirely new policy, tailored to the country’s realities and taking on board contributions from residents. By taking into account cultural practices and social representations of the environment where the resource is found, there will be better knowledge and foresight on how the affected populations might react. At the same time, work to define the institutional framework and strategic orientations of this policy must begin right away, applying processes and drawing on the acquisition of information that complements existing knowledge. As a prerequisite, it is also necessary to address the allocation of jurisdiction with regard to exploration and exploitation of the Polynesian seabed. The legislation currently refers to the residual jurisdiction of the French State concerning “strategic metals”, which have been categorised as substances needed for atomic energy, and oil and gas. It may therefore be concluded that for the ores identified in the Polynesian seabed, the residual jurisdiction of the French government does not apply. Ultimately it is the country’s responsibility to ready itself and anticipate the development of mining projects, with regard to political and administrative expertise and mechanisms. To this end, the recommendations below will contribute to the formulation of an appropriate public policy.

Recommendations

11The terms of reference for this expert group defined recommendations as the key component of the request. In response, the panel of experts drew up a restricted list of nine recommendations presented in a consistent, logical sequence. Each one is expressed in the same format (rationale and relevance, time-frame, proposed actions, constraints and conditions).

12R1 Create an information system to impose consistency and organise access to existing data;

13R2 Instigate programs to generate knowledge and develop suitable technology;

14R3 Define a development strategy for a deep-sea mining industry or, alternatively, decide to abandon the project, after combining the acquired data with detailed technical and economic scenarios as well as initial consultations.

15What happens next will depend on the choice made in R3. If the decision is made to develop the industry, the panel recommends the following actions:

16R4 Organise governance at a sufficiently early stage and with the participation of all stakeholders;

17R5 Involve the country in regional, European and international initiatives to further the development of marine mineral resources, including co-operation, research and innovation;

18R6 Conduct research and development programmes focused on innovative technology in the fields of exploration, mining and metallurgy of deep-sea mineral resources;

19R7 Create efficient and attractive administrative and regulatory instruments to develop a deep-sea mining sector;

20R8 Set standards for selecting, monitoring and evaluating mining projects in order to promote control and transparency in public communication;

21R9 Organise the monitoring and evaluation of the deep-sea mineral resources policy in order to measure its effects and, when necessary, make changes.

Notes

1 On a personal basis.

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