Subprogramme

#5

Harmful substances and hazardous waste

Lead Division:

DTIE

Expected Accomplishment

#1

The capacities and financing of States and other stakeholders to assess, manage and reduce risks to human health and the environment posed by chemicals and hazardous waste are increased.

Coordinating Division:

DTIE

Indicator of Achievement

(a)(i) The number of countries and stakeholders demonstrating progress in implementing sound management of chemicals and hazardous waste, including through the identification of their needs in infrastructure strengthening, is increased.

(ii) The number of enabling activity project proposals from countries and other stakeholders approved for funding by the SAICM Quick Start Programme increases.

(iii) The number of UNEP  supported sub-regional, regional and global networks (involving Governments and other stakeholders) established in support of the sound management of chemicals and hazardous waste is increased.

(iv) The number of countries that have market-based incentives and trade policies promoting environmentally friendly approaches and products aimed at reducing releases and exposures to harmful chemicals and hazardous waste is increased.

Baseline and Target

1. Number of countries and private sector entities that report having strengthened policies, practices or infrastructure for sound management of chemicals and hazardous waste through the SAICM reporting process: Dec 2007: n/a; Dec 2009: 70; Dec 2011: 100.

2. Overall number of projects: Dec 2007: 40; Dec 2009: 75: Dec 2011: 100.

Total amount of project funding approved under Quick Start programme: Dec 2007: $6 million; Dec 2009: $18 million, Dec 2011: $30 million.

3. Number of networks: Dec 2007: 11; Dec 2009: 13; Dec 2011: 15.

Number of countries and private sector entities participating in UNEP supported networks. Dec 2007: n/a; Dec 2009: 200; Dec 2011: 250.

3. Number of countries adopting incentives and other policies: Dec 2007: 24; Dec 2009: 33; Dec 2011: 43.

PoW Outputs and ID Numbers (#ID: SP-EA-Output, e.g. 1-1-1)

IMDIS Category, Quantity

Accountable Division

#511

Integrated guidance and financial instruments for mainstreaming management of harmful substances and hazardous waste in development policies are tested in pilot projects [10 LDCs and SIDS],

Advisory services, 10

DTIE

#512

National programmes and inventories to assess and manage harmful substances and hazardous waste are implemented [7 countries in Africa, Asia and the Pacific, Latin America and Caribbean, and West Asia],

Advisory services, 7

DTIE

#513

National and regional information networks are established and demonstrated to support regional-level actions on chemical-related priority issues [3 regional initiatives],

Training courses, seminars and workshops, 3

DTIE

#514

Technical tools, methodologies and strategic frameworks for environmentally sound production and use of pesticides and industrial chemicals are tested [7 countries in Asia and the Pacific, Latin America and the Caribbean, and West Asia],

Advisory services, 3

DTIE

#515

Small and medium enterprises are reached through partnerships with business and industry associations to improve the sound management of harmful substances, chemicals in products and hazardous waste,

Advisory services, 3

DTIE

Environment Fund

Extra-Budgetary

GEF

Total

Estimated Budget

$

$

$

$

Secured

$

$

$

$

Unsecured

$

$

$

$

Programme Framework logic:

The 2002 World Summit on Sustainable Development (WSSD) renewed the commitment, advanced in Agenda 21, to sound management of chemicals throughout their life cycle and of hazardous wastes with the aim that, by 2020, chemicals are to be produced and used in ways that lead to the minimization of significant adverse effects on the environment and on human health. Chemicals affect human health and wildlife through a variety of mechanisms; for example, many chemicals used intentionally or generated by human activity influence and upset healthy human development; as a result, children exposed to such chemicals through improper or inadequate practices are particularly at risk; other chemicals accumulate in animals and humans giving rise to chronic intoxication.

Key challenges to achieving the WSSD goal at the national level are;

• the widespread responsibilities and dispersed institutional mandates for chemicals and hazardous wastes used in or generated by many sectors of the economy and society;

• the lack of evidence of the full costs and benefits, including environmental and human health impacts, of the use - and misuse, of chemicals; and

• the lack of an assessment of the true costs attributable to the improper management of hazardous wastes.

Without such knowledge, it is difficult for national authorities to come together to adopt a precautionary approach, as set forth in Principle 15 of the Rio Declaration on Environment and Development, which forms an underlying approach to the multilateral environmental agreements on chemicals and wastes. Similarly, without such knowledge, it is difficult to persuade industry and other stakeholders, as users of chemicals and generators of hazardous waste, to take up best environmental practices and adopt best available techniques.

The purpose of this programme framework is to overcome these obstacles and assist countries to introduce and sustain the sound management of harmful substances and hazardous waste at the national level in order to achieve the 2020 goal. It adopts a life cycle approach to chemicals and hazardous waste management to ensure that opportunities for reducing risks to human health and the environment are maximised through cost-effective interventions. It provides the means to leverage the financing to support such interventions and recognizes that financing may come in a variety of forms from a wide range of contributors. It provides a balance of actions not only strengthening regulatory efforts within government but also providing risk-based interventions for industry, including SMEs, and users. With these objectives, it represents the response of the Harmful Substances and Hazardous Waste sub-programme to the Bali Strategic Plan.

The programme provides a national-level response to requests to UNEP from intergovernmental forums such as the Intergovernmental Forum on Chemical Safety (IFCS) and the International Conference on Chemicals Management (ICCM) of the Strategic Approach to International Chemicals Management (SAICM). It builds on UNEP’s long experience in promoting sound chemicals management at the national and international levels, including continuing initiatives delivered by programme frameworks 52 and 53 that support the implementation of sound chemicals management at international and global levels. In turn the activities at national level feed back lessons learned and demonstration experience necessary to inform and improve international and global efforts.

The programme recognizes that neither global and international work, as established in programme frameworks 520 and 530, nor regulatory efforts at national level are sufficient to ensure the wide adoption of sound chemicals management practices. The engagement of industry and user groups is critical. The programme framework attempts to address the particular needs of different stakeholders and to take into account differences in socio-economic backgrounds and functions of those stakeholders. The programme framework recognizes that workers are often directly exposed and that the poor are disproportionately affected by risks from harmful substances and hazardous waste. Within this category, women and children are particularly at risk as a result of the actions of chemicals on human developmental processes. It follows that codes of conduct and guidance developed at international level need to be converted into practical advice and support that is accessible to these groups. In this regard, pesticides represent a chemical group of high concern; they are often prepared for application by family groups and applied by farming families that lack adequate training.

This programme framework brings UNEP’s comparative advantages to bear at the national level, in particular:

• Our understanding of the needs of member states developed, inter alia, through experience and lessons learned in the delivery of technical assistance to country teams executing national planning for the implementation of sound chemicals management and of the chemicals MEAs, including through major programmes funded by the GEF;

• Our existing and substantial partnerships with UNDP and WHO combining specialist technical skills held within UNEP and WHO with regional and national delivery mechanisms available through UNDP and WHO;

• Our position as a founding and leading member of the Inter-Organization Programme for the Sound Management of Chemicals (IOMC)¹, established in 1995 as the pre-eminent mechanism for initiating, facilitating and coordinating international action to achieve the WSSD 2020 goal, through which the guidance developed by participating organizations, including UNEP, is validated and shared by the community of chemicals- and waste-competent agencies; and

• Our ability, as an implementing agency of the GEF, to guide and influence strategy building in relevant focal areas and amongst partner agencies; to supervise and execute GEF-funded projects; and to leverage additional financing, both from GEF and co-financing partners, supporting priority actions at regional and national levels.

UNEP acting alone has insufficient capacity to deliver the range of services set out in this programme framework. For this reason, key partnerships with other IOMC participating organisations are critical to our delivery and considerably expand the leverage of UNEP’s work; these partnerships are described in the ‘Key Actors’ section below.

The programme comprises 5 complementary projects that together serve to create and maintain enabling environments at the national level:

Project 511 ‘Integrated guidance and financial instruments for mainstreaming and support coherent national programs to manage harmful substances and hazardous waste’ will build national legal and institutional capacities enabling national authorities to integrate – or mainstream, the sound management of harmful substances and hazardous waste into central development-related decision-making processes. It will test and deliver guidance integrating regulatory and economic instruments that incorporate assessments of the true economic costs of inaction in relation to the improper management of harmful substances and hazardous waste. The project will strengthen the ability of chemicals and waste managers to collect, maintain and interpret local data; to develop risk-based situation analyses; and to select and apply appropriate internationally-available tools and methodologies for setting priorities in development-related decision-making processes.

An important advantage of such mainstreaming is that it incorporates the sound management of harmful substances and hazardous waste into sustainable development strategies and so, via negotiated development assistance strategies, including UNDAF processes, mobilises the financial resources necessary to promote, sustain and supervise national programmes towards the adoption of best techniques and practices and the achievement of lower risks.

Preparing national multi-agency processes builds inter alia on the Chemicals Profiling initiatives, led by UNITAR, and GEF-funded enabling activities led by UNEP. Risk assessment and management with regard to harmful substances and hazardous waste builds on a number of UNEP-led initiatives including projects in support of the Stockholm Convention.

Component 1 of the project comprises core functions and a portfolio of national projects funded largely through the SAICM Quick Start Programme (QSP) trust fund. These projects are executed jointly with UNDP. This strategic partnership represents the chemicals component of the PEI initiative and allows a high gearing of resources to results.

Similarly, Component 3 of the project is conducted in partnership with WHO while DRC/ROs will continue their engagement with regional health and environment processes.

The QSP trust fund responds to direct requests from governments that may then invite UNEP, or another agency, to assist in execution. The objective of the QSP is to “support initial enabling capacity building and implementation activities in developing countries, least developed countries, small island developing states and countries with economies in transition”. It follows that such countries are the focus of attention for the project.

Project 512 ‘National and regional information networks for accessing and exchanging information on harmful substances and hazardous waste’ will develop, test and deliver technical tools, methodologies and frameworks facilitating the access of a wide range of stakeholders to both internationally-available validated information relevant to the management of harmful substances and hazardous wastes and to national information, experiences and good practices. The project builds on the existing work of UNEP’s Chemical Information Exchange Network (CIEN) that has already delivered policy advice, technical guidance and knowledge management training related to the chemicals and waste MEAs in 53 countries, principally in Africa but also in Asia/Pacific and in Central America. The curriculum of the CIEN workshops will be broadened for the 2010/11 biennium to include current chemicals issues – such as newly listed chemicals under the Stockholm Convention and emerging issues agreed under SAICM, enhanced national inventory taking to complement internationally-available information, and to facilitate local/national risk assessments.

The project will continue to support countries in the implementation of their obligations under chemical and waste related MEAs, in particular the Stockholm Convention, and will be implemented to complement national actions in other projects of the programme framework. Information and knowledge materials developed in particular in programme framework 52, and, potentially, in the appropriate elements of the Environmental Governance sub-programme, will be used to enrich the content of the networks.

Project 513 ‘Building capacities for environmentally sound production and use of chemicals; technical tools, methodologies and strategic frameworks’ is designed to meet the needs of industry and its regulators for technical tools, methodologies and strategic frameworks for the environmentally-sound and safe production and use of chemicals.

The project builds, in component 1, on the continuing successful collaboration between UNEP, WHO and FAO with respect to pesticides and use guidance developed in programme framework 52 as a basis for the development of nationally applicable tools that will be tested amongst pesticide user groups.

Component 2 comprises the work of the UNEP expert working group for the development of a Flexible Framework for addressing Chemical Accident Prevention and Preparedness. This work, initiated in 2007, responds to a request from the International Conference on Chemicals Management to develop the locally-applicable work of APELL into more generic guidance of widespread application. Guidance prepared by the expert group, and building from more than 30 years of developed country experience of preparedness and accident prevention following the Seveso accident, will now be tested and deployed. As such, the project represents a logical transition from the responsive or locally proactive work of the Disasters and Conflicts sub-programme to a more precautionary and policy-oriented approach within the Harmful Substances and Hazardous Waste sub-programme.

Project 514 ‘SME partnerships for sound management of harmful substances and hazardous waste’ recognises that, in many developing countries, a large proportion of industrial activities involving chemicals are carried out by small- and medium-sized enterprises (SMEs) that lack the human and technical capacity to take up tools and methodologies more suited to larger-scale industries. This project seeks to reduce the risks to workers, local communities and the environment from the improper management of chemicals in these enterprises. The project will support local SME networks and partnerships involving national authorities, business and industry associations, and technical institutions in order to raise awareness and build the capacity of small- and medium-sized enterprises (SMEs) in developing countries with the necessary knowledge, technical tools and best environmental practices for managing hazardous chemicals; thereby reducing the risks of chemical accidents.

Project 515 ‘Technical tools, methodologies and strategic frameworks for the environmentally sound management of hazardous waste’ This project follows an emergency response initiative and seeks to build the capacity of, initially, Cote d’Ivoire to implement an environmentally sound national plan for hazardous solid waste management. Work in the project is not limited to issues directly related to the emergency but extends to provide a comprehensive approach to national hazardous waste planning. As such, this project too represents a transition from response to the building of a precautionary approach and so is included in the Harmful Substances and Hazardous Waste sub-programme. Neighbouring governments have expressed similar needs for a comprehensive approach to hazardous waste management and it is likely that the policy and planning processes developed in the project will be of immediate interest within the sub-region. For this reason, and subject to a favourable evaluation, plans to replicate this approach will be developed.

Together, these elements of the programme framework will ensure that States and other stakeholders increase their capacity and access to finance in order to establish the enabling environment necessary for the sound management of harmful substances and hazardous wastes right around their life-cycle.

A stand-alone activity will monitor and evaluate the programme framework.

Key Actors in the field and Programme Framework partnerships:

A number of IOMC organisations are key actors in supporting the establishment, at national level, of the sound management of harmful substances and hazardous waste. UNEP, UNDP, FAO and WHO are key and have established strong links in order to enhance delivery to member states. Other members, in particular ILO, have expressed interest to collaborate within their mandates while UNIDO collaborates with UNEP in the delivery of the Cleaner Production programme that contributes, within the Resource Efficiency sub-programme, to the objectives of the sound management of chemicals and waste minimization.

The chemicals mainstreaming initiative is a partnership, established in 2006, between UNEP and UNDP. It represents the sectoral component of the Poverty and Environment Initiative (PEI) that is coordinated within UNEP by DRC.

UNEP and WHO have been collaborating closely on the linkages between health and the environment initiative. In 2008, this collaboration resulted in the first conference of African Ministers of Health and Ministers of Environment. Implementation of the resulting Libreville Declaration receives support from the SAICM Quick Start Programme. More recently, G8 environment ministers called for renewed commitment to children’s environmental health (CEH). This was taken up at the 3^rd international conference on CEH that pledged to develop a global plan of action, urging WHO and UNEP, amongst others, to support the development and implementation of the plan.

UNEP has been collaborating closely with FAO and WHO to promote approaches that will reduce the use and risks linked to pesticides. This work will be enhanced through project 513. Work in project 513 also relies on the UNEP expert working group for the development of a Flexible Framework for addressing Chemical Accident Prevention and Preparedness.

Work with SMEs in project 51-P4 will be in partnership with AccountAbility, under the ‘Responsible Production’ framework, and will involve Global Compact Local Networks and the UNEP-UNIDO network of NCPCs.

515 provides an important partnership between DEPI, the Secretariat of the Basel Convention and DTIE (IETC).

Implementation of this programme framework is supported by the SAICM Quick Start Programme. The programme may also benefit during the GEF5 phase, from any broadening of eligibility of the current POPs and Ozone focal areas to provide support for SAICM and other chemicals management mechanisms. It should be noted, however, that projects developed during the biennium are unlikely to generate final results before the end of 2011.

UNEP’s role as an implementing agency of the GEF is important in highlighting national needs to the GEF as it builds its technical strategies for the 2010-2013 period. Despite this strategic role, national delivery of GEF projects does not form part of UNEP’s mandate with the GEF. In this respect, the strategic partnerships set out above will be important vehicles to secure the delivery of technical assistance at the national level.

This programme framework is focused on delivery at the national and regional levels. UNEP Regional Offices play an important role in the delivery of existing initiatives and are expected to play a major role in the delivery of the projects comprising the programme framework.

Other critical information:

This programme framework focuses on national and regional activities. It complements the work to be undertaken in programme frameworks 52 and 53 at the international and global levels. Strategies, tools and guidance developed in those programme frameworks may be tested and applied in this programme framework with lessons learned in national level implementation being fed back to improve work at the international and global levels.

Internal management arrangements and reporting requirements:

The programme framework is one of 3 frameworks comprising the harmful substances and hazardous waste sub-programme. DTIE is the Lead Division for this sub-programme.

DTIE (Chemicals Branch) is the coordinating division for the expected accomplishment addressed in this programme framework and is accountable for its PoW outputs.

Projects in the programme framework will be managed by DTIE units: Chemicals Branch will manage 511 and 512 while Sustainable Consumption and Production will manage 513 and 514.

515 will be managed by DEPI. The work is executed is close cooperation with the Secretariat of the Basel Convention. During the biennium, opportunities will be sought to replicate initial experience with the assistance of DTIE (IETC).

Outreach and communications activities required in many of the projects will benefit from collaboration with DCPI, including through project 536.

A Stand-alone Activity will fund Sub-programme and/or Expected Accomplishment baseline and monitoring activities, e.g. data collection and indicator assessment. The support activities are the responsibility of the sub-programme Coordinator in close coordination with Coordinating Divisions.

Kaj Madsen is assigned by the Programme Framework Coordinating Division to compile and report on Programme Framework progress six monthly to the Sub-programme Coordinator.

Framework risk rating

MEDIUM

Risk analysis

Economic risks are considered MEDIUM but vary between the components of the programme; mainstreaming efforts rely on the internalization of costs that are not yet well defined and may be subject to considerable assumption and dispute. Certain industries may be considered too strategic for governments to promote change; industry leaders in many countries regard environmental actions as a cost to be avoided. Risks are likely to occur and may have considerable impact at project or activity level.

Political risk is MEDIUM; actions at the national and regional level are built on political will and momentum but are subject to changes in personnel and government. Implementation of sound management of harmful substances and hazardous waste may not be considered of high priority at national level. Political risks are likely to be higher in countries with over-riding economic development objectives; where environmental awareness is low; and where environmental costs are difficult to internalize.

Organization risks are MEDIUM; actions at national level to execute activities rely to a greater or lesser extent on coordination between national institutions and authorities and on technical capacity and capability not yet fully built and partly outside UNEP’s control. Smaller states may be challenged by multiplicity of calls made on small departments. Reliable partners may be lacking at national and regional levels or have difficult relationships with national authorities. Risks are likely to occur and may have considerable impact at project or activity level.

Financial risks are MEDIUM; only a small proportion of required funding is currently secured; a number of actions rely on partnerships that are at least partly outwith UNEP’s control; National funding is likely to be lacking, slow to materialize or to be provided only in-kind. Fund-raising may not generate required amounts or may provide funds that are earmarked to certain activities only.

Environmental risks are MEDIUM; a combination of the above risks may lead to fragmented implementation and a lack of impact for key actions – and thus continuing environmental and health risks.

Proposed risk management strategy

Economic and Political risks are being addressed through close consultations with participating governments and other actors to address main concerns. National and regional contacts will be strengthened via closer engagement with UNEP’s ROs. Links to other UNEP instruments – NCPC, BCRCs etc. are all highly pertinent to changing behaviour at national level and within industry.

Management of Organisational risks will be improved via the closer supervision available through regional offices and by careful selection of participating countries. Integrating actions between several projects of this and other programme frameworks will assist to provide integrated support and thus greater impact.

Resource mobilisation strategies based on close collaboration with key donors and the integrated in work programmes with those of key donors reduces the risks that resource mobilization will not succeed. Furthermore, resources from the SAICM QSP will continue to be available to eligible countries during the coming biennium and GEF resources may also be available for the actions covered in this programme.

Third party validation/monitoring for demonstration projects