纳米比亚总统向那些看好该国关键矿产资源的外国投资者发出了明确警告：要么在纳米比亚境内建设加工厂，要么另寻投资机会。
Namibia’s president has a message for foreign investors eyeing the country’s critical minerals: build processing plants at home, or look elsewhere.
“来纳米比亚投资的话，你们不能只是做简单的贸易生意；你们必须在我们国内建立加工厂，”内通博·南迪-恩代特瓦（Netumbo Nandi-Ndaitwah）在本周联合国大会期间举行的“Invest Africa”活动中对媒体表示。“纳米比亚是一个以矿业为主的经济体，我们的矿产资源长期以来都被其他国家所利用。”她的言论反映了整个非洲大陆在矿产资源开发政策上的强硬立场：随着对关键矿产需求的激增，华盛顿和北京都在争夺这些资源的供应权，非洲各国政府希望借此机会获得更多的利益（而不仅仅是 royalties，即矿产开采权使用费）。包括几内亚、马拉维和津巴布韦在内的十几个国家已经限制了未加工矿产的出口，要求企业在当地进行加工——这一做法借鉴了印度尼西亚的镍产业政策。他们的目标是掌握更多的产业链价值，并创造更多的就业机会，而不是仅仅作为其他国家工业的原材料供应者。
“When you are coming to Namibia, you don’t want to be a briefcase business,” Netumbo Nandi-Ndaitwah told Semafor at an Invest Africa event on the sidelines of the UN General Assembly this week. “You have to put up a processing plant in our country.” Namibia is a mining-based economy, she said, whose minerals have for too long been e Her pitch reflects a hardening line across the continent. With demand for critical minerals surging and Washington and Beijing competing for supply, African governments are betting they have the leverage to demand more than royalties. About a dozen countries, including Guinea, Malawi and Zimbabwe, have restricted exports of unprocessed minerals to force local refining, borrowing from Indonesia’s nickel playbook. The goal is to capture more of the value chain, and the jobs that come with it, rather than remain suppliers of raw inputs for other countries’ industries.
南迪-恩代特瓦在推动外资企业本地化方面的立场也比许多同行更为坚决。当被问及是否要求外国投资者必须与当地企业建立合作关系时，她明确表示：“事实上，我们已将这一要求写入了法律。”
Nandi-Ndaitwah is also going further than many peers on ownership. Asked whether local partnership would be mandatory for foreign investors, she told Semafor: “In fact, we are putting it in the law.”
这一政策其实有着悠久的历史：纳米比亚的“赋权法案”早在2015年就获得了内阁的批准，原计划在2018年正式成为法律。但由于其中一项规定（要求原本享有优势的纳米比亚企业将25%的股份转让给社会弱势群体）引发了争议，该法案的实施一度停滞。企业界也担心这一规定会吓跑外国投资者。直到去年10月，官方仍称该法案已进入“最后阶段”。不过，纳米比亚在矿业领域的改革步伐正在加快：自2021年起，新颁发的采矿许可证必须要求外国投资者持有至少15%的股份；去年官方又提出了51%的持股比例要求，但这一提议遭到了矿业界的强烈反对——他们担心这种做法会破坏当地的商业环境，并影响外国投资。
That promise has a long history. Namibia’s empowerment framework won cabinet approval in 2015 and was meant to become law by 2018. It stalled over a clause forcing businesses owned by previously advantaged Namibians to cede 25% to previously disadvantaged citizens, which was dropped in 2018. Business groups also warned it would scare off foreign investment. As recently as last October, officials described the bill as at an “advanced stage.” Mining is moving faster. Namibia has required 15% local ownership for new mining licenses since 2021. Officials floated a 51% threshold last year, drawing pushback from the Chamber of Mines, which warned against importing other countries’ models.
南迪-恩代特瓦（Nandi-Ndaitwah）拒绝了将她的政策与南非的赋权措施进行比较的请求，认为这取决于具体的实施方法。她以自己担任环境部长期间负责管理的旅游保护区为例：在这些项目中，投资者的初始持股比例约为60%至70%，后来逐渐降至51%和49%。
Nandi-Ndaitwah dismissed comparisons with South Africa’s empowerment rules, saying it depends on the approach. She cited tourism conservancies she oversaw as environment minister. There, investors started with 60% to 70% stakes that stepped down to roughly 51-49 with local communities.
她之所以采取强硬立场，是因为纳米比亚面临着严重的就业危机。“我国超过40%的人口处于失业状态，我们正面临着一个巨大的安全隐患，”南迪-恩代特瓦对《Semafor》杂志表示，“即使拥有矿产资源，也不意味着就业问题就能得到解决。”南迪-恩代特瓦在2024年当选总统时承诺，将在2029年前投入850亿纳米比亚元（约合50亿美元）用于创造50万个就业机会——对于一个仅有300万人口、国内生产总值仅为140亿美元的国家来说，这是一个艰巨的目标。
Behind the hard line is a jobs emergency. “Over 40% of our people are unemployed. And we are sitting on a time bomb,” Nandi-Ndaitwah told Semafor. “Even when you have your mine there, it’s not safe.” Nandi-Ndaitwah won the presidency in 2024 on a pledge to spend 85 billion Namibian dollars (about $5 billion) creating 500,000 jobs by 2029, a steep target for a country of 3 million people with a GDP of about $14 billion.
她从整个非洲大陆的角度阐述了问题的严重性：如果非洲年轻人没有在国内获得发展机会，他们就会选择离开。“如果他们真的必须离开，那也是出于自己的选择，”她说，“但目前的情况是，他们是被非洲大陆的糟糕环境所迫。”如果海外石油勘探能够为纳米比亚的就业计划提供资金支持，或许还能缓解人们认为纳米比亚财富被转移到其他国家的担忧。
She framed the stakes in continental terms: without opportunity at home, young Africans will keep leaving. “If they have to leave, it is by choice,” she said. “But as it stands now, they are pushed out by the conditions in the continent.” Offshore oil discoveries could bankroll her jobs promise, or deepen the sense that Namibia’s wealth flows elsewhere.