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CopperMininginZambia

RegulatoryEfficiency

AssessmentintheCopperbeltandNorth-WesternProvinces

WORLDBANKGROUP

REGULATORYEFFICIENCY

DEVELOPMENTECONOMICS·GLOBALINDICATORS

©2025InternationalBankforReconstructionandDevelopment/TheWorldBank

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CopperMininginZambia:RegulatoryEfficiencyAssessmentintheCopperbeltandNorth-WesternProvinces,

Contents

Acknowledgment 2

MainFindings 3

Overview 4

ProjectDescriptionandMethodology 6

Pillar1-RegulatoryFrameworkforMininginZambia 9

Pillar2-ProvisionofPublicServicesforMininginZambia 11

ArtisanalMining:EfficiencyoftheLicensingProcess

intheCopperbeltandNorth-WesternProvinces 12

Small-ScaleMining:EfficiencyoftheLicensingProcess

intheCopperbeltandNorth-WesternProvinces 14

Large-ScaleMining:EfficiencyoftheLicensingProcess

intheCopperbeltandNorth-WesternProvinces 17

ConclusionsandReformRecommendations 20

Annex1–ListofProcedures 22

Annex2–InformalCopperMininginZambia 24

Annex3–Long-TermGrowthModel 25

References 27

Figures

Figure1.ImprovementsinthebusinessenvironmentforZambia’s

coppersectorcantranslateintosignificantgainsinGDP 5

Figure2.MainStakeholdersintheZambianMiningIndustry 10

Figure3.ProcessofObtaininganArtisanalMiningLicense 12

Figure4.IttakessevenmonthsintheCopperbeltProvinceandninemonths

intheNorth-WesternProvincetoobtainanartisanalmininglicense 13

Figure5.ProcessofObtainingExplorationandMiningLicenses

forSmall-ScaleMines 14

Figure6.Thetimerequiredtoobtainasmall-scaleexplorationlicense

variesbetweenprovinces 15

Figure7.ProcessofObtainingExplorationandMiningLicenses

forLarge-ScaleMines 18

Figure8.Thetimerequiredtoobtainalarge-scaleexplorationlicense

variessignificantlybetweenthetwoprovinces 17

Figure9.ThecostofdraftingaMiningOperationsFeasibilityStudy

showssubstantialvariationbetweenthetwoprovinces 17

Figure10.ZambiaCopperProductionScenarios 25

Figure11.ProjectedRealAnnualGDPGrowthRate 26

Tables

Table1.InternalstepswithinZEMAtoapprovetheEnvironmental

ProjectBriefattheexplorationstage 19

Table2.Stepstoobtainanartisanalmininglicense 22

Table3.Stepstoobtainsmall-scaleexplorationandmininglicenses 22

Table4.Stepstoobtainlarge-scaleexplorationandmininglicenses 23

2CopperMininginZambia:RegulatoryEfficiencyAssessmentintheCopperbeltandNorth-WesternProvinces

Acknowledgment

CopperMininginZambia:RegulatoryEfficiencyAssessmentintheCopperbeltandNorth-WesternProvincesisaWorldBankGroup(WBG)pilotprojectconductedundertheauspicesofthePolicyIndicatorsGroup,DevelopmentEconomicsVice-PresidencyincollaborationwiththeFinance,CompetitivenessandInvestment(FCI)GlobalPracticeoftheWorldBank.

ThisreportwaspreparedbytheWorldBankteamledbyMarkoGrujicic,withadvisorysupportfromAlessioZaneli,andundertheoverallsupervisionofValentinaSaltane.TheteamcomprisedLeoniAyoub,ZeynepBaykal,ChisalaTendaiChola,MartaFernandezCoppelVelasco,CyrilleFougere,MihirNikhilMadhekar,MustaphaWassejaMohammed,LutanguDaisyMwilima,HenrySichembe,ElizabethSimakando,BurakTurkgulu,JulienVilquin,andMariamZhorzholiani.TheteamisgratefulforvaluablecommentsprovidedbypeerreviewersfromacrosstheWorldBankGroup.MartinLokancandCharlesDouglasHamiltonreviewedthefulltext.TheteamisalsogratefultoNormanLoayzaforhisleadershipandguidance.MoniquePellouxandHopeZuluprovidedvaluableadministrativeassistanceatvariousstagesoftheproject.

ThereportwaseditedbyMatthewZoller;thelayoutwasproducedbyVladimirMirzoyev.

TheRegulatoryEfficiency(DECRE)unitextendsspecialthanksforprojectsupporttoMinistryofMinesandMineralsDevelopment,BusinessRegulatoryReviewAgency,MinistryofSmallandMediumEnterpriseDevelopment,andZambiaEnvironmentalManagementAgency.

Datacollectionwascarriedoutwithparticipationandcontributionofmorethan60miningexperts,businessconsultants,lawyers,engineers,andpublicofficials.

TheprojectdesignandscopebenefitedfromtheinputofBlertaQerimi,JeanArlet,MartinLokanc,CharlesDouglasHamilton,LobnaAbdellatifAhmed,AlwaleedAlatabani,AchimFock,RobertSchlotterer,SoniaPlaza,andAbdirahmanZeilaDubow.

CopperMininginZambia:RegulatoryEfficiencyAssessmentintheCopperbeltandNorth-WesternProvincesisaproductoftheDevelopmentEconomicsVice-Presidency(DECVP),ledbyIndermitGill,SeniorVicePresidentandChiefEconomistoftheWorldBankGroup.DECREishousedinthePolicyIndicatorsGroup,DevelopmentEconomics(DECIG),ledbyNormanLoayza(DECIGDirector).DECREprojectsareimplementedbyateamledbyValentinaSaltane(Manager,DECRE).

CopperMininginZambia:RegulatoryEfficiencyAssessmentintheCopperbeltandNorth-WesternProvinces3

MainFindings

.TheMineralsRegulationCommissionActof2024repealedtheMinesandMineralsDevelop-mentActof2015andmodernizedtheregulato-ryframeworkbyconsolidatingoversightundertheindependentMineralsRegulationCommis-sion.TheGeologicalMineralsDevelopmentActof2025introducedanArtisanalandSmall-ScaleMiningFundtopromotesustainablede-velopmentinthesesubsectors.However,sec-torprogressremainsconstrained:the2024ActonlytookeffectinJune2025,theCommissionisnotyetfullyoperational,andimplementingregulationsforthe2024Actarestillpending,sustainingregulatoryuncertainty.

.Thelate-February2025launchoftheZambiaIntegratedMiningInformationSystem(ZIMIS)—anditsswiftsuspensionduetomajortechnicalissues—highlightedpersistentweaknessesinthemining-rightsapplicationprocessandtheneedtostrengthendigitalinfrastructuretore-storeconfidenceandimprovetheefficiencyofissuingminingrights.

.TheMiningCadasterPortal,intendedtodig-itizetheapplicationprocessforexplorationandmininglicenses,isnotyetfullyoperation-al.Frequenttechnicaldisruptionsaffectcorefunctions,forcingrepeateduploadattemptsand,attimes,emailsubmissiontoCadasterofficers.Tosustainservicecontinuity,theMin-istryofMinesandMineralsDevelopmentrein-statedhard-copysubmission,andmostappli-cationsarenowdeliveredinpersontocentralorregionalCadasterOffices.

.Licensingforexplorationandminingremainsinefficientandcumbersome,withweakcoor-dinationwithinandbetweenagenciesandap-provaldelaysthatrequirein-personfollow-up,addingadministrativeburdensforapplicantsandlicenseholders.

.PersistentbacklogsattheMiningCadasterandtheMiningLicensingCommittee(MLC),combinedwiththeCommittee’smonthlymeet-

ingschedule,continuetodelaytheissuanceofexplorationandmininglicenses.ArtisanalminersintheCopperbeltProvincetypicallywaitaboutsevenmonths,whilethoseintheNorth-WesternProvincefaceaveragewaitsofninemonthsbeforereceivinganartisanalmin-inglicense.Asignificantshareofdelaysstemsfromapplicants’slowresponsestoqueriesandincompleteforms,particularlyamongar-tisanalminers.

.Small-scaleminersfacesimilardelays.Despitea60-daylegaldeadline,obtainingsmall-scaleexplorationlicensestakesaboutfourmonthsintheNorth-WesternProvinceandnearlyfiveandahalfmonthsintheCopperbeltProvince;small-scalemininglicensestakeroughlythreemonthsintheNorth-WesternProvinceanduptosevenandahalfmonthsintheCopperbeltProvince.Delaysstemfromlostfiles,paymenterrors,missingoroutdateddocuments,andbacklogsrequiringmultipleMLCsessions.

.Large-scaleminingoperatesatafundamen-tallydifferentscalefromartisanalandsmall-scalemining.Obtainingalarge-scaleexplo-rationlicensecantakejustovertwomonthsintheCopperbeltProvinceandjustovereightmonthsintheNorth-WesternProvince,buttotalprocessingtimecanbesignificantlylon-ger—sometimesyears—duetobacklogs,theMLC’smonthlymeetingschedule,andre-questsforadditionalinformation.

.Staffingconstraintsandredundant,duplica-tiveproceduresattheZambiaEnvironmentalManagementAgency(ZEMA)furtherdelayap-provalsandincreaseburdensonstakeholders.StreamliningapprovalofEnvironmentalProjectBriefsforlarge-scaleexplorationcouldhelp:thecurrentprocessrequirestenstepsbetweenZEMA’slocalofficesandtheEnvironmentalAs-sessmentCommitteeatZEMAHQ,withdoc-umentsfrequentlyshuttledbackandforthfordraftingandsignature,furtherdelayinglarge-scaleexplorationlicenseissuance.

4CopperMininginZambia:RegulatoryEfficiencyAssessmentintheCopperbeltandNorth-WesternProvinces

Overview

ZambiaisAfrica’ssecond-largestandtheworld’sninth-largestcopperproducer.Mining—particularlycopperextraction—isacornerstoneoftheeconomy.

1

Thesectorgeneratesmorethan44percentofgovernmentrevenue,primarilythroughroyaltiesandcorporateincometaxes,andiscon-centratedlargelyintheCopperbeltandNorth-West-ernProvinces(Map1).Zambiaaccountsforabout4percentofglobalcopperoutput,producingroughly800,000tonnesannually.Copperalonecontributes

around15percentofGDPandover70percentofexports,underscoringitsroleasthecountry’sprin-cipalsourceofforeign-currencyearnings.

2

Globaldemandforcopperisexpectedtoremainstrong,drivenbytheenergytransitionandrisingdemandforcriticalminerals,evenasglobalsupplyremainsconstrained.Thisoutlookpresentsmajordevelop-mentopportunitiesforZambia,particularlygiventhattheminingsector’scontributiontotheecono-myhasbeensuboptimal.

3

Map1:MostcopperminingoccursintheCopperbeltandNorth-WesternProvinces

North-WesternCopperbelt

Source:RegulatoryEfficiencyUnit,DevelopmentEconomics,WorldBank

Inthiscontext,theZambiangovernmentpub-lishedtheNationalThreeMillionTonnesCop-perProductionStrategyby2031tostimulateinvestmentinmineralresourceexploration,mining,processing,andthesupplyofgoodsandservices.

4

Despitethispotential,thesectorfacesseveralconstraints,includingregulatoryun-

certainty,limitedavailabilityofgeologicaldata,andweakenvironmental,social,andgovernance(ESG)standards.

5

InApril2025,theWorldBankGrouppublishedadetailedroadmapforreformstosup-portZambia’seffortstomaximizetheeconomic,social,andenvironmentalbenefitsfromitsrichen-dowmentofEnergyTransitionMinerals(ETMs).

6

CopperMininginZambia:RegulatoryEfficiencyAssessmentintheCopperbeltandNorth-WesternProvinces5

Zambia’sminingsectorisgovernedbylawsintendedtoadvancesustainabledevelopmentandeconomicdiversification;however,theregulatoryenvironmentremainsuncertain.

TheMinesandMineralsDevelopmentActof2015wasrepealedand,inJune2025,replacedbytheMineralsRegulationCommissionActof2024.Asimplementingregulationsarestillpending,thenewMineralsRegulationCommissionisnotfullyoperational.Thissituationhascreatedaregulatoryvacuum,whiletheformerMiningLicensingCommitteehascontinuedissuingexplorationandmininglicenseswithoutfullregulatoryclarity.

Licensingprocessesremaincumbersomeandinefficient.TheZambiaIntegratedMiningInfor-mationSystem(ZIMIS)wasdiscontinuedduetotechnicalproblems,delayingdigitalizationefforts.TheMiningCadasterPortalisonlypartiallyfunc-tional,withfrequentdisruptionsaffectingregis-trationsandsubmissions.Apersistentbacklog

attheMiningCadaster,combinedwiththeMiningLicensingCommittee’smonthlymeetingcycle,fur-therslowsapprovals,weakeningthebusinessen-vironmentforsectorgrowth.

IncreasedcopperproductionresultingfromimprovementsinthebusinessenvironmentcouldtranslateintosignificantgainsinGDPgrowth.SimulationsindicatethatGDPgrowthratescouldreach6.1percentby2040,comparedto5.8percentunderabaselinebusiness-as-usualscenario(Figure1).Underanunconstrainedscenario,cumulativeGDPgainscouldreach5.5percentabovethebaselineby2050.Theseresultsrelectboththedirectandtheindirecteffectsofincreasedcopperproductiononeconomicgrowth.Inadditiontohighervalueaddedfromtheminingsectoritself,thereinvestmentofadditionalgovernmentrevenuesintothebroadereconomyindirectlyraisesoverallgrowthrates.

Figure1.ImprovementsinthebusinessenvironmentforZambia’scoppersectorcantranslateintosignificantgainsinGDP

6,2%

AnnualRealGDPGrowthRate(%)

6,0%

5,8%

5,6%

5,4%

5,2%

5,0%

2025

2026

2027

2028

2029

2030

2031

2032

2033

2034

2035

2036

2037

2038

2039

2040

2041

2042

2043

2044

2045

2046

2047

2048

2049

2050

Baseline--Unconstrained

Source:CalculationsbyRegulatoryEfficiencyUnit,DevelopmentEconomics,WorldBank

Note:GDPgrowthratesarederivedfromLTGM-NRsimulations.

7

Thebaselinescenarioreflectsabusiness-as-usualscenariousedbytheWorldBank

8

andcapsmaximumcopperproductionat1.5mtpa,consistentwiththeassumptionofnoreform.Theuncon-strainedscenarioassumesregulatoryreforms,improvementsinenergyandlogisticsinfrastructure,andthediscoveryofcurrentlyunknownmineraldeposits.

6CopperMininginZambia:RegulatoryEfficiencyAssessmentintheCopperbeltandNorth-WesternProvinces

ProjectDescriptionandMethodology

“CopperMininginZambia:RegulatoryEfficiencyAssessmentintheCopperbeltandNorth-WesternProvinces”isaWorldBankGroup(WBG)pilotproject.ItisledbytheRegulatoryEfficiency(DECRE)unitwithintheDevelopmentEconomicsPolicyIndicatorsGroupandimplementedinclosecollaborationwiththeEastAfricateamintheFinance,Competitiveness,andInnovationGlobalPractice,aswellascolleaguesfromtheGlobalMetalsandMineralsDepartment,whoseongoingsupportandguidancehavebeenintegraltoitsdevelopment.

Theassessmentadaptsandexpandstheprevi-ouslytested,cross-sectoraldatacollectionandprocess-mappingmethodologyofSubnationalBusinessReadytoasector-specificcontext.

9

Indoingso,ithasgeneratedaquantitativedata-setwithnew,actionableprimarydatatoassesstheprocessesandregulatoryrequirementsfacedbyartisanal,small-scale,andlarge-scalefirmsoper-atinginZambia’sformalminingsector.Whilethemethodologyisreplicableacrossothereconomies,thefindingsareintendedtoinformongoingandfu-

tureregulatoryreformsandpolicyactionsunder-takenbytheGovernmentofZambia.

Theassessmentanalyzesthebusinessenvi-ronmentattheregionallevel,detailingthepro-cessesandregulatoryrequirementsfacedbybothexistingfirmsandnewmarketentrantsengagedinformalminingactivities.Datacol-lectionfocusesonactivecopperminesandmin-ingstakeholdersintwoprovinces—CopperbeltandNorth-Western—whichareresource-richandhostasignificantshareofZambia’scopperproduction.

Theassessmentconcentratesonexplorationandmininglicenses,withanemphasisontheirpracticalimplementationandimplicationsfortheminingindustryandbroaderprivatesectordevelopment.Bymappingadministrativeprocess-esandidentifyingkeybottlenecks,theassessmentseekstohighlightregulatoryandadministrativeob-staclesaffectingcopperminingattheregionallev-elandtosupportbroaderWBGeffortstomitigatetheirimpactonindustrygrowthandprivatesectordevelopment(Box1).

Box1.StrengtheningZambia’sInvestmentClimatetoAdvanceItsETMAgenda

TheWorldBank’sRepositioningZambiatoLeverageEnergyTransitionMineralsforEconomicTransformation:ARoadmapsetsoutawhole-of-governmentstrategytoincreaseEnergyTransitionMinerals(ETM)production,strengthensectorgovernance,andexpandvalueadditionacrosstheminingvaluechain(theRoadmap).Developedjointlywithgovernmentcounterparts,theRoadmaphighlightsthatachievingZambia’sambitionofreaching3millionmetrictonnesofcopperproductionby2031willrequiresubstantialnewinvestmentandasignificantaccelerationinthepaceatwhichprojectsmovefromexplorationtoproduction.Globally,ittakesanaverageof16yearstobringanewmineonlinefrominitialdiscovery—underscoringtheurgencyofestablishingaregulatoryenvironmentthatreducesdelays,providesclaritytoinvestors,andenablesprojectstoadvancemoreefficiently.

CopperMininginZambia:RegulatoryEfficiencyAssessmentintheCopperbeltandNorth-WesternProvincescontributesdirectlytothisagendabyidentifyingthepracti-callicensingandpermittinghurdlesfirmsfacewhenseekingtoinvestinexplorationandminingactivities.Thestudydocumentsbottlenecksrelatedtoadministrativedelays,

CopperMininginZambia:RegulatoryEfficiencyAssessmentintheCopperbeltandNorth-WesternProvinces7

overlappingrequirements,andcoordinationgapsacrossinstitutions.Thesechallengesmir-rorthegovernanceconstraintsidentifiedintheRoadmapandprovidethegovernmentwithactionableentrypointstomodernizeprocedures,improvetransparency,andalignregulatoryprocessesmorecloselywithinternationalgoodpractice.

TheRoadmapalsoemphasizesadditionalprioritiesthatarecriticalforstrengthen-ingZambia’scompetitivenessandensuringthatrisingETMdemandtranslatesintodomesticeconomicopportunities.Theseincludeimprovingtheavailabilityanduseofgeologicaldata;strengtheninginvestorservicesandaftercarethroughtheZambiaDevel-opmentAgency;enhancingtradelogisticsandborderprocesses;anddevelopingpracticallocal-contentandsupplier-readinessprogramstoenableZambianfirmstoparticipateinupstreamandmidstreamsegments.AsemphasizedintheWorldBank’sAfrica’sResourceFuture,suchcomplementarymeasuresareessentialforresource-richcountriesseekingtodeepenvalueadditionandbuildresilient,competitiveeconomies.a

Together,thesereformscreatetheenablingconditionsneededforZambiatoattractinvestment,boostproduction,andexpanddomesticvalueadditionintheminingsector.Byintegratingregulatoryimprovementswithbroadercompetitivenessmeasures,Zambiaisbetterpositionedtoleverageitsmineralendowmentforlong-term,inclusiveeconomictransformation.

aCust,James;Zeufack,AlbertG..2023.Africa’sResourceFuture:HarnessingNaturalResourcesforEconomicTransformationduringtheLow-CarbonTransition.AfricaDevelopmentForum.

/handle/10986/39599

Asapilotproject,thisassessmentcommencedinJune2024withthedevelopmentofaconceptnoteandinitialbackgroundresearch.InOcto-ber2024,theDECREteambegandevelopingthebenchmarkingmethodologyandidentifyingpoten-tialstakeholders.Followinganinitialphaseofdeskresearchandcountryanalysis,theteamconduct-edafieldmissiontoZambia(Lusaka,Ndola,Kit-we,andSolwezi)inMarch2025.Themissioncov-eredthetwoprovincesincludedintheassessmentandinvolvedconsultationswithrepresentativesfromthepublicandprivatesectors,civilsociety,andacademia.

10

Basedontheseconsultations,thesurveyinstrumentanddatacollectionmeth-odswererefinedtoreflectlocalconditionsandtoreachabroadrangeofrespondents,including

thoseinvolvedinartisanalminingandoperatinginunderdevelopedareas.

DatacollectiontookplacebetweenJuneandSeptember2025throughacombinationofemailsurveys,telephoneinterviews,andface-to-faceinterviewsconductedinEnglish,Bemba,andKaonde.TheDECREteamcollecteddatafrommorethan60contributors.

11

Followingdataanaly-sisandreportdrafting,theassessmentunderwentacomprehensiveinternalpeer-reviewprocess.Thisreviewverifiedtheaccuracyandreliabilityofthefindings,ensuredthattheconclusionsweresupportedbyevidence,andassessedwhethertheproposedreformrecommendationswereconsis-tentwithinternationalgoodpracticeintheminingsectorandfeasibletoimplement.

Methodology

TheRegulatoryEfficiency(DECRE)unitas-sessessector-specificbusinessenvironmentstosupportthedevelopmentofadynamicandresilientprivatesector.Itanalyzeschallengesandoperatingconditionsfacedbyfirmsanden-trepreneursatthenationalandregionallevelsand

providestargeted,high-impactrecommendationstoimprovethebusinessclimateandunlocksectorpotential.DECREalsoproducesprimarydataandknowledgeproductstoinformcountrypoliciesandWorldBankoperations,withaparticularfocusontheminingsector.

8CopperMininginZambia:RegulatoryEfficiencyAssessmentintheCopperbeltandNorth-WesternProvinces

Thispilotprojectadaptstherobust,previouslytestedSubnationalBusinessReadymethodol-ogytoassessZambia’sbusinessenvironmentintheminingsector.

12

Thecross-sectoralSubna-tionalBusinessReadyframeworkoffersabalancedapproachtoevaluatingkeydimensionsofthebusi-nessenvironmentandisstructuredaroundthreecorepillars:

1.Pillar1–RegulatoryFramework:Assess-eslawsand