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6.1 Mining a Union Matter?
The Act is applicable throughout the United Republic and it, therefore, makes mining generally part of Union matters. This is of particular interest in that although the Constitution of the United Republic of Tanzania, 1977, provides for mineral oil resources (including crude oil and natural gas) as being a Union matter; the Mining Act expressly excludes in its application, 'the search for and production of petroleum'.
It is for this very reason that this provision was hotly debated in the National Assembly when the Bill for the Mining Act came before the Assembly during the its 11th Meeting of the 6th Session held on 23rd April 1998. Hon. Danhi B. Makanga, MP, is on record as saying the following in connection with the above issue:
'
Honourable Chairman, I want clarification on clause 5. It says 'The entire property in and control over minerals in, on, under land to which this Act applies is vested in the United Republic of Tanzania.' Now, Honourable Chairman, as I understand it, this Ministry (i.e. of Energy and Minerals) is not a Union Ministry and this kind of statute does not exist in Zanzibar and there is a different Minister there and different programmes. Now how could we Tanzanians be understood? I seek clarification?' (Sic!)(Tanzania, 1998:32)(Original emphasis, free translation from the Swahili original).
To this the Attorney General replied at length:
'Honourable Chairman,
clause 5 only says that all minerals on, in or under the land are the property of the United Republic. This does not have any relation with the question as to whether the exploration for minerals or mining activities will be carried out by the Revolutionary Government (of Zanzibar) or by the Government of the United Republic. I presume the Honourable MP intended to ask the question concerning Part One clause 2 which we have covered. Since I have risen up in order to help him, it is only proper that I should help him understand this Part.
'First, what this Bill does provide is not new, for the existing mining law says clearly that this law is applicable in the area of the United Republic. Since, however, mining is not one of the Union matters, this law (i.e. Bill) provides, as does the existing law, that it will be applicable in all areas which are under the jurisdiction of the United Republic. These areas include land under the territorial waters, on or under the continental shelf and on or under the sea bed
. Now since this is not a Union matter, the Union Government which is responsible for non-Union matters in respect of Tanzania Mainland may apply this law to permit miners or mineral explorers to operate in the areas I have referred to above.
'Second, the Revolutionary Government of Zanzibar may also operate in this area because there is a mining law to that effect in Zanzibar. So what needs to be done is to have a good system; and since Parliament has passed the Joint Finance Commission law, a system for the division of these matters of natural resources and the proceeds from this area is being prepared through this institution' (Ibid., 33) (free translation from the Swahili original).
When further pressed by Hon. Makanga to be specific as to whether this law will apply to Zanzibar or not, the Attorney General unambiguously stated that '
this Bill will not apply to Zanzibar' (Ibid, 33-34).
It would appear implicit in the Attorney General's formulation that the jurisdiction of the Revolutionary Government of Zanzibar does not extend beyond mainland Zanzibar and Pemba Islands; that since Zanzibar is not a sovereign state it cannot, therefore, claim to have territorial waters nor a continental shelf of its own. It logically follows from this view that the waters off the two main islands of Zanzibar thus fall under the jurisdiction of the Union Government which has jurisdiction on both the Union matters and the non-union matters for Tanzania Mainland. In this view the Mining Act would, therefore, cover the continental shelf and the territorial waters of the United Republic but not mainland Zanzibar.
It is submitted, however, that the Attorney General's interpretation of section 2 is incorrect. That section states, in no uncertain terms, that the Act is applicable throughout the United Republic and if it was not intended to apply in mainland Zanzibar, the draftsperson would have easily stated so and would have completely left it out. Secondly, if - as the Attorney General contended - it was not meant to apply in mainland Zanzibar why has it been retained in the statute book in exactly the same formulation even after its legal propriety had been challenged? Be that as it may, this provision has great potential of attracting political controversy as it seems to amount to one more addition (through the back door, as it were) in the list of Union matters whose constitutionality has previously been challenged in academic literature.