Author: Dania Ahmed
As the world grapples with an escalating plastic pollution crisis, the need for a comprehensive and binding international agreement has never been more pressing. This sentiment was evident as national delegates gathered at the fourth session of the Intergovernmental Negotiating Committee on Plastic Pollution (INC-4), held in Ottawa, in April 2024. Despite significant progress, the negotiations revealed both the potential and the obstacles in crafting a robust treaty by the end of the year.
Background and Context
Plastic pollution has emerged as a global environmental crisis, affecting marine and terrestrial ecosystems alike. The United Nations Environment Assembly (UNEA) recognized this in its 2022 resolution (UNEA 5/14), mandating the creation of an International Legally Binding Instrument (ILBI) to address plastic pollution comprehensively. The first three sessions of the INC, held in Punta del Este, Paris, and Nairobi, made limited progress, often stymied by divergent national interests and the strong influence of the fossil fuel and chemical industries.
The urgency for a robust treaty is underscored by projections from the Organisation for Economic Co-operation and Development (OECD), which predict a near tripling of global plastic waste by 2060 without decisive action. The experience of the UN Framework Convention on Climate Change (UNFCC) illustrates the risks of deferring critical issues like production reduction. If the ILBI fails to address plastic production, it may follow a similar protracted trajectory, delaying substantial action for decades.
The negotiations brought together over 2,500 delegates from 175 countries, along with representatives from Indigenous communities, non-governmental organizations, and industry lobbies. Canada's Minister of Environment and Climate Change, Steven Guilbeault, hosted a Partnership Day with high-level ministers from France, Germany, Rwanda, and Spain to galvanize support for a robust treaty. Industry influence at the negotiations was palpable, however, with 196 lobbyists from the fossil fuel and chemical sectors present.
The High Ambition Coalition & Like-Minded Group of Nations
The legal framework under negotiation seeks to address the entire lifecycle of plastics, from production to disposal. However, significant divisions exist between two primary coalitions. The "High Ambition Coalition" (HAC), comprising over 60 countries, advocates for broad, stringent measures to curb plastic production and promote sustainability. This coalition's approach aligns with scientific recommendations that stress the importance of reducing plastic production to achieve significant environmental benefits. Conversely, a "like-minded" group of nations that rely on fossil fuel production says that they prefer to focus predominantly on ‘waste management’, resisting broader regulatory scopes that could impose production limits. This approach is more aligned with the interests of industries that produce and rely on plastics, aiming to maintain economic stability while addressing pollution through improved waste management practices.
The HAC, comprising mostly wealthier nations (i.e. Canada, Norway, Germany, etc.) with stronger environmental movements, pushes for ambitious global standards. Meanwhile, the like-minded group, which includes countries with significant industrial and economic stakes in plastic production (i.e. China, Saudi Arabia, Iran), seek to protect their economic interests while addressing the symptoms rather than the causes of plastic pollution.
The draft text of the ILBI, circulated before INC-4, highlighted these tensions, with nearly 1,000 bracketed terms indicating unresolved issues. Major areas of contention included definitions and principles (i.e. differing interpretations of what constitutes "sustainable" or "recyclable" plastics), chemicals of concern (i.e. strict controls on harmful chemicals in plastics vs lenient regulations to minimize production disruptions), microplastics (i.e. microplastic emissions monitoring or improved filtration), and waste management protocols (i.e. whether to implement global waste management standards or adopt flexible national approaches). The negotiation tactics varied, with the HAC pushing for comprehensive regulations and the like-minded group inserting multiple options to retain flexibility and dilute stringent proposals.
INC-4 saw the establishment of two contact groups to review the draft text. Significant progress was made in agreeing on intersessional work. Two ad-hoc expert groups were formed to advance discussions on criteria for plastic products and financial mechanisms for treaty implementation. This move aims to build consensus ahead of INC-5, scheduled for November 2024 in Busan, Republic of Korea.
Looking Forward
As a member of the HAC, Canada advocates for a robust global agreement on plastics, aligned with its life cycle approach. Domestically, Canada is working on initiatives such as the Ocean Plastics Charter and Canada-wide Strategy on Zero Plastic Waste. However, this push for strong international and domestic regulations on plastic pollution faces significant lobbying efforts from industry players like Dow Chemical, Imperial Oil, and the Chemistry Industry Association of Canada.
The progress made at INC-4 is a positive development. However, the divisions between the HAC and the like-minded group pose significant challenges. Reaching a consensus will require compromises on both ends and innovative solutions that balance environmental imperatives with economic realities. The forthcoming INC-5 will be a critical juncture, potentially culminating in a landmark agreement that could reshape global plastic production and waste management practices.
In the words of the representative from Fiji, "Break free from brackets!" The call to transcend entrenched positions and seize this historic opportunity resonates as a clarion call for all stakeholders. The next six months are pivotal; the world watches with bated breath as nations strive to turn the tide on plastic pollution.
