agenda-21.pdf

(a) Financial and cost evaluation

19.18. Most of the data and methods for chemical risk assessment are generated in the developed countries and an expans ion and acceleration of the assessment work will call for a considerable increase in research and safety testing by industry and research institutions. The cost projections address the needs to strengthen the capacities of relevant United Nations bodies an d are based on current experience in IPCS. It should be noted that there are considerable costs, often not possible to quantify, that are not included. These comprise costs to industry and Governments of generating the safety data underlying the assessment s and costs to Governments of providing background documents and draft assessment statements to IPCS, the International Register of Potentially Toxic Chemicals (IRPTC) and OECD. They also include the cost of accelerated work in non -United Nations bodies su ch as OECD and EC.

19.19. The Conference secretariat has estimated the average total annual cost (1993 -2000) of implementing the activities of this programme to be about $30 million from the international community on grant or concessional terms. These are indi cative and order -of-magnitude estimates only and have not been reviewed by Governments. Actual costs and financial terms, including any that are non-concessional, will depend upon, inter alia, the specific strategies and programmes Governments decide upon for implementation.

(b) Scientific and technological means

19.20. Major research efforts should be launched in order to improve methods for assessment of chemicals as work towards a common framework for risk assessment and to improve procedures for using toxicological and epidemiological data to predict the effects of chemicals on human health and the environment, so as to enable decision makers to adopt adequate policies and measures to reduce risks posed by chemicals.

19.21. Activities include:
a. Strengthening res earch on safe/safer alternatives to toxic chemicals that pose an unreasonable and otherwise unmanageable risk to the environment or human health and to those that are toxic, persistent and bio -accumulative and that cannot be adequately controlled;
b. Promotion of research on, and validation of, methods constituting a replacement for those using test animals (thus reducing the use of animals for testing purposes);
c. Promotion of relevant epidemiological studies with a view to establishing a cause -and- effect relationship between exposure to chemicals and the occurrence of certain diseases;
d. Promotion of ecotoxicological studies with the aim of assessing the risks of chemicals to the environment.
(c) Human resource development

19.22. International organizations, with the participation of Governments and non -governmental organizations, should launch training and education projects involving women and children, who are at greatest risk, in order to enable countries, and particularly developing countries, to make maximum national use of international assessments of chemical risks.

(d) Capacity-building

19.23. International organizations, building on past, present and future assessment work, should support countries, particularly developing countries, in developing and strengt hening risk assessment capabilities at national and regional levels to minimize, and as far as possible control and prevent, risk in the manufacturing and use of toxic and hazardous chemicals. Technical cooperation and financial support or other contributions should be given to activities aimed at expanding and accelerating the national and international assessment and control of chemical risks to enable the best choice of chemicals.

B. Harmonization of classification and labelling of chemicals
Basis for action

19.24. Adequate labelling of chemicals and the dissemination of safety data sheets such as ICSCs (International Chemical Safety Cards) and similarly written materials, based on assessed hazards to health and environment, are the simplest and most efficient way of indicating how to handle and use chemicals safely.

19.25. For the safe transport of dangerous goods, including chemicals, a comprehensive scheme elaborated within the United Nations system is in current use. This scheme mainly takes into account the acute hazards of chemicals.

19.26. Globally harmonized hazard classification and labelling systems are not yet available to promote the safe use of chemicals, inter alia, at the workplace or in the home. Classification of chemicals can be made for different purposes and is a particularly important tool in establishing labelling systems. There is a need to develop harmonized hazard classification and labelling systems, building on ongoing work.

Objectives

19.27. A globally harmonized hazard classification and compat ible labelling system, including material safety data sheets and easily understandable symbols, should be available, if feasible, by the year 2000.

Activities

(a) Management-related activities

19.28. Governments, through the cooperation of relevant international organizations and industry, where appropriate, should launch a project with a view to establishing and elaborating a harmonized classification and compatible labelling system for chemicals for use in all United Nations official languages including adequate pictograms. Such a labelling system should not lead to the imposition of unjustified trade barriers. The new system should draw on current systems to the greatest extent possible; it should be developed in steps and should address the subject of comp atibility with labels of various applications.

(b) Data and information

19.29. International bodies including, inter alia, IPCS (UNEP, ILO, WHO), FAO, the International Maritime Organization (IMO), the United Nations Committee of Experts on the Transport of Dangerous Goods and OECD, in cooperation with regional and national authorities having existing classification and labelling and other information-dissemination systems, should establish a coordinating group to:
a. Evaluate and, if appropriate, undertake studies of existing hazard classification and information systems to establish general principles for a globally harmonized system;
b. Develop and implement a work plan for the establishment of a globally harmonized hazard classification system. The plan should include a description of the tasks to be completed, deadline for completion and assignment of tasks to the participants in the coordinating group;
c. Elaborate a harmonized hazard classification system;

d. Draft proposals for standardization of hazard communic ation terminology and symbols in order to enhance risk management of chemicals and facilitate both international trade and translation of information into the end -user's language;
e. Elaborate a harmonized labelling system.
Means of implementation

(a) Financial and cost evaluation

19.30. The Conference secretariat has included the technical assistance costs related to this programme in estimates provided in programme area E. They estimate the average total annual cost (1993 -2000) for strengthening international organizations to be about $3 million from the international community on grant or concessional terms. These are indicative and order -of-magnitude estimates only and have not been reviewed by Governments. Actual costs and financial terms, including any tha t are non - concessional, will depend upon, inter alia, the specific strategies and programmes Governments decide upon for implementation.

(b) Human resource development

19.31. Governments and institutions and non -governmental organizations, with the collaborat ion of appropriate organizations and programmes of the United Nations, should launch training courses and information campaigns to facilitate the understanding and use of a new harmonized classification and compatible labelling system for chemicals.

(c) Capacity-building

19.32. In strengthening national capacities for management of chemicals, including development and implementation of, and adaptation to, new classification and labelling systems, the creation of trade barriers should be avoided and the limited capacities and resources of a large number of countries, particularly developing countries, for implementing such systems, should be taken into full account.

C. Information exchange on toxic chemicals and chemical risks

Basis for action

19.33. The following activities, related to information exchange on the benefits as well as the risks associated with the use of chemicals, are aimed at enhancing the sound management of toxic chemicals through the exchange of scientific, technical, economic and legal inform ation.

19.34. The London Guidelines for the Exchange of Information on Chemicals in International Trade are a set of guidelines adopted by Governments with a view to increasing chemical safety through the exchange of information on chemicals. Special provisions have been included in the guidelines with regard to the exchange of information on banned and severely restricted chemicals.

19.35. The export to developing countries of chemicals that have been banned in producing countries or whose use has been severely rest ricted in some industrialized countries has been the subject of concern, as some importing countries lack the ability to ensure safe use, owing to inadequate infrastructure for controlling the importation, distribution, storage, formulation and disposal of
chemicals.

19.36. In order to address this issue, provisions for Prior Informed Consent (PIC) procedures were introduced in 1989 in the London Guidelines (UNEP) and in the International Code of Conduct on the Distribution and Use of Pesticides (FAO). In additi on a joint FAO/UNEP programme has been launched for the operation of the PIC procedures for chemicals, including the selection of chemicals to be included in the PIC procedure and preparation of PIC decision guidance documents. The ILO chemicals convention calls for communication between exporting and importing countries when hazardous chemicals have been prohibited for reasons of safety and health at work. Within the General Agreement on Tariffs and Trade (GATT) framework, negotiations have been pursued with a view to creating a binding instrument on products banned or severely restricted in the domestic market. Further, the GATT Council has agreed, as stated in its decision contained in C/M/251, to extend the mandate of the working group for a period of three months, to begin from the date of the group's next meeting, and has authorized the Chairman to hold consultations on timing with respect to convening this meeting.

19.37. Notwithstanding the importance of the PIC procedure, information exchange on all chemicals is necessary.

Objectives

19.38. The objectives of this programme area are:
a. To promote intensified exchange of information on chemical safety, use and emissions among all involved parties;
b. To achieve by the year 2000, as feasible, full participation in and implementation of the PIC procedure, including possible mandatory applications through legally binding instruments contained in the Amended London Guidelines and in the FAO International Code of Conduct, taking into account the experience gained within the PIC procedure.
Activities

(a) Management-related activities

19.39. Governments and relevant international organizations with the cooperation of industry should:
a. Strengthen national institutions responsible for information exchange on toxic chemicals and promote the creation of national centres where these centres do not exist;
b. Strengthen international institutions and networks, such as IRPTC, responsible for information exchange on toxic chemicals;
c. Establish technical cooperation with, and provide information to, other countries, especially those with shortages of technical expertise, including training in the interpretation of relevant technical data, such as Environmental Health Criteria Documents, Health and Safety Guides and International Chemical Safety Cards (published by IPCS); monographs on the Evaluation of Carcinogenic Risks of Chemicals to Humans (published by the International Agency for Research on Cancer (IARC)); and decision guidance documents (provided through the FAO/UNEP joint programme on PIC), as well as those submitted by industry and other sources;
d. Implement the PIC procedures as soon as possible and, in the light of experience gained, invite relevant international organizations, such as UNEP, GATT, FAO, WHO and others, in their respective area of competence to consider working expeditiously towards the conclusion of legally binding instruments.
(b) Data and information

19.40. Governments and relevant international organizations with the cooperation of industry should:
a. Assist in the creation of national chemical information systems in developing countries and improve access to existing international systems;
b. Improve databases and information systems on toxic chemicals, such as emission inventory programmes, through provision of training in the use of those systems as well as software, hardware and other facilities;

c. Provide knowledge and information on severely restricted or banned chemicals to importing countries to enable them to judge and take decisions on whether to import, and how to handle, those chemicals and establish joint responsibilities in trade of chemicals between importing and exporting countries;
d. Provide data necessary to assess risks to human health and the environment of possible alternatives to banned or severely rest ricted chemicals.
19.41. United Nations organizations should provide, as far as possible, all international information material on toxic chemicals in all United Nations official languages.

(c) International and regional cooperation and coordination

19.42. Governments and relevant international organizations with the cooperation of industry should cooperate in establishing, strengthening and expanding, as appropriate, the network of designated national authorities for exchange of information on chemicals and establi sh a technical exchange programme to produce a core of trained personnel within each participating country.

Means of implementation

Financing and cost evaluation

19.43. The Conference secretariat has estimated the average total annual cost (1993 -2000) of implementing the activities of this programme to be about $10 million from the international community on grant or concessional terms. These are indicative and order -of-magnitude estimates only and have not been reviewed by Governments. Actual costs and fina ncial terms, including any that are non-concessional, will depend upon, inter alia, the specific strategies and programmes Governments decide upon for implementation.

D. Establishment of risk reduction programmes
Basis for action

19.44. There are often alter natives to toxic chemicals currently in use. Thus, risk reduction can sometimes be achieved by using other chemicals or even non -chemical technologies. The classic example of risk reduction is the substitution of harmless or less harmful substances for har mful ones. Establishment of pollution prevention procedures and setting standards for chemicals in each environmental medium, including food and water, and in consumer goods, constitute another example of risk reduction. In a wider context, risk reduction involves broad-based approaches to reducing the risks of toxic chemicals, taking into account the entire life cycle of the chemicals. Such approaches could encompass both regulatory and non -regulatory measures, such as promotion of the use of cleaner produ cts and technologies, pollution prevention procedures and programmes, emission inventories, product labelling, use limitations, economic incentives, procedures for safe handling and exposure regulations, and the phasing out or banning of chemicals that pos e unreasonable and otherwise unmanageable risks to human health and the environment and of those that are toxic, persistent and bio -accumulative and whose use cannot be adequately controlled.

19.45. In the agricultural area, integrated pest management, includin g the use of biological control agents as alternatives to toxic pesticides, is one approach to risk reduction.

19.46. Other areas of risk reduction encompass the prevention of chemical accidents, prevention of poisoning by chemicals and the undertaking of toxi covigilance and coordination of clean -up and rehabilitation of areas damaged by toxic chemicals.

19.47. The OECD Council has decided that OECD member countries should establish or strengthen national risk reduction programmes. The International Council of Chemi cal Associations (ICCA) has introduced initiatives regarding responsible care and product stewardship aimed at reduction of chemical risks. The Awareness and Preparedness for Emergencies at Local Level (APELL) programme of UNEP is designed to assist decisi on makers and technical personnel in improving community awareness of hazardous installations and in preparing response plans. ILO has published a Code of Practice on the prevention of major industrial accidents and is preparing an international instrument on the prevention of industrial disasters for eventual adoption in 1993.

Objectives

19.48. The objective of the programme area is to eliminate unacceptable or unreasonable risks and, to the extent economically feasible, to reduce risks posed by toxic chemica ls, by employing a broad -based approach involving a wide range of risk reduction options and by taking precautionary measures derived from a broad -based life -cycle analysis.

Activities

(a) Management-related activities

19.49. Governments, through the cooper ation of relevant international organizations and industry, where appropriate, should:
a. Consider adopting policies based on accepted producer liability principles, where appropriate, as well as precautionary, anticipatory and life -cycle approaches to chemi cal management, covering manufacturing, trade, transport, use and disposal;
b. Undertake concerted activities to reduce risks for toxic chemicals, taking into account the entire life cycle of the chemicals. These activities could encompass both regulatory an d non-regulatory measures, such as promotion of the use of cleaner products and technologies; emission inventories; product labelling; use limitations; economic incentives; and the phasing out or banning of toxic chemicals that pose an unreasonable and otherwise unmanageable risk to the environment or human health and those that are toxic, persistent and bio -accumulative and whose use cannot be adequately controlled;
c. Adopt policies and regulatory and non -regulatory measures to identify, and minimize exposure to, toxic chemicals by replacing them with less toxic substitutes and ultimately phasing out the chemicals that pose unreasonable and otherwise unmanageable risk to human health and the environment and those that are toxic, persistent and bio - accumulative and whose use cannot be adequately controlled;
d. Increase efforts to identify national needs for standard setting and implementation in the context of the FAO/WHO Codex Alimentarius in order to minimize adverse effects of chemicals in food;
e. Develop national policies and adopt the necessary regulatory framework for prevention of accidents, preparedness and response, inter alia, through land -use planning, permit systems and reporting requirements on accidents, and work with the OECD/UNEP international dire ctory of regional response centres and the APELL programme;
f. Promote establishment and strengthening, as appropriate, of national poison control centres to ensure prompt and adequate diagnosis and treatment of poisonings;
g. Reduce overdependence on the use of agricultural chemicals through alternative farming practices, integrated pest management and other appropriate means;
h. Require manufacturers, importers and others handling toxic chemicals to develop, with the cooperation of producers of such chemicals, where applicable, emergency response procedures and preparation of on -site and off-site emergency response plans;
i. Identify, assess, reduce and minimize, or eliminate as far as feasible by environmentally sound disposal practices, risks from storage of outdated chemicals.
19.50. Industry should be encouraged to:
a. Develop an internationally agreed upon code of principles for the management of trade in chemicals, recognizing in particular the responsibility for making available information on potential risks and environmentally sound disposal practices if those chemicals become wastes, in cooperation with Governments and relevant international organizations and appropriate agencies of the United Nations system;
b. Develop application of a "responsible care" approach by producers and manufacturers towards chemical products, taking into account the total life cycle of such products;
c. Adopt, on a voluntary basis, community right-to-know programmes based on international guidelines, including sharing of information on causes of accidental and potential releases and means of preventing them, and reporting on annual routine emissions of toxic chemicals to the environment in the absence of host country requirements.
(b) Data and information

19.51. Governments, through the cooperat ion of relevant international organizations and industry, where appropriate, should:
a. Promote exchange of information on national and regional activities to reduce the risks of toxic chemicals;
b. Cooperate in the development of communication guidelines on chemical risks at the national level to promote information exchange with the public and the understanding of risks.
(c) International and regional cooperation and coordination

19.52. Governments, through the cooperation of relevant international organizations and industry, where appropriate, should:
a. Collaborate to develop common criteria to determine which chemicals are suitable candidates for concerted risk reduction activities;
b. Coordinate concerted risk reduction activities;
c. Develop guidelines and policies for the disclosure by manufacturers, importers and others using toxic chemicals of toxicity information declaring risks and emergency response arrangements;
d. Encourage large industrial enterprises including transnational corporations and other enterprises wherever they operate to introduce policies demonstrating the commitment, with reference to the environmentally sound management of toxic chemicals, to adopt standards of operation equivalent to or not less stringent than those existing in the country of origin;
e. Encourage and support the development and adoption by small- and medium-sized industries of relevant procedures for risk reduction in their activities;
f. Develop regulatory and non-regulatory measures and procedures aimed at preventing the export of chemicals that are banned, severely restricted, withdrawn or not approved for health or environmental reasons, except when such export has received prior written consent from the importing country or is otherwise in accordance with the PIC procedure;