[Weekly Preview] How Much Consensus Can Be Reached in the Next Round of Global Plastic Talks? (AI Translation)
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文｜财新周刊 王克柔
By Caixin Weekly's Wang Kerou
2024年11月25日至12月1日，按照既定计划，为制定一项关于塑料污染具有国际法律约束力文书的政府间谈判委员会第五届会议（INC-5），将在韩国第二大城市釜山举行。
From November 25 to December 1, 2024, according to the established plan, the fifth session of the Intergovernmental Negotiating Committee (INC-5) for the development of an internationally legally binding instrument on plastic pollution will be held in Busan, South Korea's second-largest city.
两年前，175个国家齐聚东非国家肯尼亚首都内罗毕，于2022年3月第五届联合国环境大会续会（UNEA-5.2）期间，正式通过了一项历史性决议——《终结塑料污染：争取制定具有国际法律约束力的文书（包括海洋污染在内）》（第5/14号决议）。联合国环境规划署（UNEP）执行主任英格·安德森当时表示，该协议是自《巴黎协定》以来最重要的国际多边环境协议。
Two years ago, 175 countries gathered in Nairobi, the capital of the East African nation of Kenya, during the resumed session of the Fifth United Nations Environment Assembly (UNEA-5.2) in March 2022. They formally adopted a historic resolution titled "End Plastic Pollution: Towards an Internationally Legally Binding Instrument (Including Marine Pollution)" (Resolution 5/14). Inger Andersen, Executive Director of the United Nations Environment Programme (UNEP), stated at the time that the agreement is the most significant international multilateral environmental accord since the Paris Agreement.
决议要求联合国环境规划署在2022—2024年间召开5次国际政府间谈判会议，力求在2024年底前完成谈判。2022年11月至今，前四次会议分别于乌拉圭埃斯特角、法国巴黎、肯尼亚内罗毕和加拿大渥太华举行，每次会议间隔约半年。四次会议谈毕，不少观察机构感到失望——其进度过慢，核心议题一直未能深入，遑论达成共识。按照目前的进度，想在2024年结束之前形成文书内容相当困难。
The resolution calls for the United Nations Environment Programme to hold five international intergovernmental negotiation meetings between 2022 and 2024, with the aim of completing the negotiations by the end of 2024. Since November 2022, the first four meetings have been held in Punta del Este, Uruguay; Paris, France; Nairobi, Kenya; and Ottawa, Canada, approximately six months apart. After these four meetings, many observer organizations have expressed disappointment, noting that progress has been too slow and core issues have not been thoroughly explored, let alone consensus reached. Given the current pace, it seems quite challenging to finalize the document content before the end of 2024.
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- The fifth session of the Intergovernmental Negotiating Committee (INC-5) on creating a legally binding plastic pollution agreement will be held in Busan, South Korea from November 25 to December 1, 2024.
- Slow progress in previous negotiations has been noted, and key issues remain unresolved, though two expert groups were formed to discuss financing and technologies.
- The United States has indicated a policy shift to support a plastics treaty, while upcoming elections and other global conventions may influence the negotiations' outcome.
The fifth session of the Intergovernmental Negotiating Committee (INC-5) for creating a legally binding international treaty on plastic pollution is set to take place in Busan, South Korea, from November 25 to December 1, 2024. This follows a 2022 resolution adopted by 175 countries during the United Nations Environment Assembly in Nairobi, which aimed to end plastic pollution through an internationally legally binding instrument. The resolution calls for five negotiation meetings between 2022 and 2024, but observers have criticized the pace and lack of consensus in the sessions so far, making it challenging to finalize the document by the end of 2024. [para. 1][para. 3]
Between the fourth and the upcoming fifth session, additional groundwork was laid with expert groups discussing financing mechanisms and technologies. An informal document was released by INC Chairman Luis Vayas Valdivieso to steer INC-5 negotiations. Yet, environmental organizations like the World Wildlife Fund find its clarity insufficient for ensuring the treaty meets its objectives. Observers anticipate contentious debates over governance goals, lifecycle definitions, and reduction measures during INC-5. [para. 2][para. 3][para. 4]
The initial draft after INC-4 was met with dissatisfaction, prompting Vayas to issue a non-paper which is informal in nature to foster discussions without legal implications. Vayas emphasizes a focused and productive discussion at INC-5 to draft a treaty that is effective and enforceable. Environmental groups see the informal document as a necessary step yet criticize its lack of binding language. They argue that a strong treaty should include global bans, product design requirements, and enforcement mechanisms. [para. 3][para. 4][para. 6]
The negotiations face multiple challenges, notably around defining the lifecycle of plastics, assessing governance frameworks, and establishing mandatory targets. The High Ambition Coalition (HAC) supports reducing plastic production as a means to ending plastic pollution, gaining support for concrete goals as seen in the INC-5 Ministerial Declaration. Conversely, some countries prefer downstream management of waste to address pollution. The debate also covers the incorporation of primary plastic polymers into regulatory frameworks. [para. 7][para. 8][para. 9][para. 10]
The political climate further complicates negotiations, as global elections in 2024 and changes in political leadership, particularly in the United States with the recent election of Donald Trump, could influence the treaty discussions. The U.S. had shown a subtle shift towards supporting a global treaty but remains polarized on internal stances regarding plastic regulations. Trump’s impending administration might impact future U.S. involvement, though the current delegation remains under Biden's policies for INC-5. [para. 15][para. 16][para. 17]
China, displaying a consistent stance, advocates for multilateralism, national autonomy, and pragmatic progress toward a practical treaty, aligning itself with Japan and South Korea in supporting the negotiation of a legally binding instrument. China emphasizes consideration of national capacities and developmental stages in managing plastic pollution effectively. INC-5 is a critical moment for establishing a global commitment to addressing plastic pollution, with nations poised to tackle divergent views for a collective resolution. [para. 18][para. 19][para. 20]
- World Wildlife Fund
世界自然基金会 - The World Wildlife Fund (WWF) analyzed the recent 18-page informal document for the INC-5 negotiations. They noted it was clearer than the previous 80-page draft, but lacked core measures to meet the treaty's objectives. WWF's global plastic policy head, Eirik Lindebjerg, stressed the need for a strong treaty with binding global bans and phased reduction measures.
- American Chemistry Council
美国化学理事会 - The American Chemistry Council represents oil producers and has criticized the U.S. policy shift to support limiting plastic production via a UN plastic treaty, arguing it betrays American manufacturing and jobs.
- Plastics Industry Association
美国塑料工业协会 - The Plastics Industry Association criticized the U.S. government's shift in supporting limits on plastic production through a UN treaty. Their CEO, Matt Seaholm, stated that this change would harm American manufacturers and not effectively address environmental goals.
- March 2022：
- 175 countries gathered in Nairobi, Kenya during UNEA-5.2 and adopted Resolution 5/14.
- November 2022：
- First meeting of the INC for developing a legally binding instrument on plastic pollution held in Punta del Este, Uruguay.
- April 30, 2024：
- INC delegates departed Ottawa after INC-4, deciding to form two expert groups during a recess.
- July 2024：
- INC Secretariat released the third revised draft compilation of texts after INC-4.
- August 24-28, 2024：
- Two expert groups met in Bangkok for a four-day closed-door meeting.
- As of September 25, 2024：
- HAC member countries issued the INC-5 Ministerial Declaration.
- September 30 - October 1, 2024：
- An informal in-person meeting of INC delegation heads took place in Nairobi.
- By October 30, 2024：
- Luis Vayas Valdivieso issued an 18-page informal document for INC-5 negotiations.
- October 21 - November 2, 2024：
- 16th Conference of the Parties to the United Nations Convention on Biological Diversity held in Cali, Colombia.
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