IFCS/FSC/07.11
6 June 2007
Lead and Cadmium: Need for International Action?
IFCS Forum VI Agenda Proposal
Monika Luxem, Germany – Lead Sponsor
I. Background:
1. Already IFCS Forum II (1997)1raised the issue of “international/global concern” of
some poisoning, hazardous persistent chemicals, other than POPs, that could pose
significant health and environmental risks to human beings and the environment.
IFCS participants mentioned interest in working cooperatively together with experts
to review the (UNEP) “Report of the Government-Designated Group of Experts on
Further Measures to reduce the Risks from a Limited Number of Hazardous
Chemicals” and its annexes2 as an effort to clearly understand chemical problems
that also need international answers.
2. The challenge behind these efforts is that international action 3 seem to be
appropriate and needed in cases of
 hazardous chemicals for which local activities lead to international exposure
and risks and
 hazardous chemicals which are distributed internationally and which result in
local problems.
3. To meet this challenge, there is a need to
 identify a high priority problem – a “global concern” - for chemicals in
question and
 prove the need for an international cooperative approach in case respective
countries cannot protect themselves effectively.
4. This draft proposal concentrates on lead and cadmium in the specific context of
whether and how there is such a global concern separately for the two heavy
metals that might call for such an international cooperative approach. The proposal
takes into account key recent international events main reference documents4 on
lead and cadmium such as
 the UNEP GC-24 (February 2007, Nairobi),
 the UNEP Working Group on Lead and Cadmium (Sept. 2006, Geneva) and
 IFCS Forum V (September 2006, Budapest)
allowing for orientation on current views of parts of the international community
regarding the need for international action on lead and cadmium. A summary on
recent international events in the areas of lead and cadmium is annexed to this draft
proposal.
1See
para 56f of the Final IFCS II Report
document UNEP/PIC/EG/1/13 and UNEP/GC.19/L.57
3Irrespective of any (non)binding character and whether and how covered by existing and/or new agreement(s)
4E.g. UNEP/GC/24/INF/16, UNEP-GC24 decision 24/3 III (February 2007) together with UNEP-GC23 Decision 23/9 III (February 2005);
2See
IFCS/Forum-V/8 INF, Final Report on the Side-event on Heavy Metals as of 29 September 2006 together with the Budapest Statement
on Mercury, Lead and Cadmium of 29 September 2006
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6 June 2007
5. In this context, the following aspects regarding lead and cadmium could be further
considered
 their wider international transport focusing on atmospheric transport and
 the relevance of globally traded lead and cadmium goods as metals and/or in
products or waste which cause problems especially in some developing
countries (DC) and countries with economies in transition (CiTs).
 DC and CiTs might not have broad possibilities and capabilities for
distributing chemical information and chemicals control or enhanced waste
management and environmental control practices. Human exposure to lead
and cadmium might occur through polluted air, unprotected handling of
products and waste containing lead and cadmium, especially in the informal
sector which handles recycling of most lead and cadmium batteries and
other such waste. Open burning of waste is another huge problem in some
countries. Cadmium is used e.g. as stabilizer and pigment for plastics. Lead
can be found as contaminant in spices, food colors, cosmetics and toys.
Cadmium is also transported internationally as contaminant in traded
foodstuffs such as in grain products, vegetables, fruits, fish and other
seafood. The cadmium content of foodstuffs is affected by the cadmium
control policy in the originating country.
II. Goals/Objectives of an IFCS Forum VI Plenary Session:
6. Key issue for further discussion could be a definition/interpretation of “global
concern” in the context of lead and cadmium and their compounds including their
potential for transport beyond national borders, related trade and the potential
exposure and end of life problems from imported goods containing lead and
cadmium. This could be done complementary to other international processes with
regard to lead and cadmium such as the follow up of the UNEP GC-24 or the review
undertaken under the LRTAP Convention and its Heavy Metals Protocol.
7. A plenary session at IFCS Forum VI could look into
 the definition/interpretation of 'global concern' separately regarding lead and
cadmium, based on already identified conditions of global concern as is the
case in the context of POPs and POP similar substances5 and
 the question whether there already exists adequate protection from releases
of these two toxic heavy metals, in particular at the local/national level to stop
and reduce releases of lead and cadmium into the environment without
further action at the international level6
III. Issues that would be considered by the Forum:
8. The plenary session could discuss
 the scientific problems in the context of transport beyond national boundaries
of lead and cadmium and interpretation of the potential for those transports;
5(Un)intentional release(s), long-range transport, deposition far away from the emission source(s) and bioaccumulation via organisms
and eco-toxicological results
6
As the objective is to examine whether concerned countries are in a position to protect themselves without international cooperation,
given any global mobility of released lead and cadmium
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6 June 2007
 the risks arising from international trade in form of lead and cadmium metals
but also in form of related traded goods;
 challenges that exist in various DC and CiTs, notably
o similar problems to effectively address the risks arising from lead and
cadmium together with
o additional problems that arise from the fact that these partners lack
necessary capacities to protect their countries, population and the
environment and/or control international trade with these
metals/goods or the
o promotion of the application of alternatives due to related costs.
IV. Possible Forum actions
9. This follow up activity to IFCS Forum V with the Budapest Statement and its Side
Event on Heavy Metals7 hopes to provide for clarification – scientifically and
politically – on the question of “global concern” regarding lead and cadmium, also
as complementary contribution to the
 UNEP GC25 on implementation of decision 24/3 III
 review process of the LRTAP and its Heavy Metals Protocol and
 implementation of SAICM and its Overarching Policy Strategy (OPS) and
Global Plan of Action (GPA)8 as input of the preparation of ICCM2 (2009),
together with options for
 creation/enhancement of coordination and cooperation on international
action regarding lead and cadmium.
10. The consideration of the need for possible international action on lead and cadmium
could cover, as necessary and as appropriate, recommendations for
environmentally sound use, storage, recycling and disposal of lead and cadmium,
voluntary agreements including partnerships alongside more binding instruments to
promote management of identified problems related to lead and cadmium. In
addition, the outcome of the discussions could contain further information on main
data/information gaps (e.g. data on the scope, quantities and potential risks) for
complementary input, especially to UNEP.
11. In planning voluntary and other international action on lead and cadmium, as
necessary and as appropriate, the Forum could explore any interest on the side of
the potential beneficiaries such as DC and CiTs on the one hand and related
(intergovernmental) organizations (such as UNEP, WHO, UNDP, UNIDO, UNITAR
or World Bank and OECD) on the other hand to provide for a platform for further
discussion how best to assist DC and CiTs in their capacity building efforts on lead
and cadmium.
12. Also non-governmental organizations, business and industry and scientific
institutions could be involved in this open debate for best possible, realistic and also
affordable – if possible win-win - solutions to reduce the lead and cadmium releases
into the environment.
7
8
That would also match with the Forum III results, notably the Bahia Declaration and activities beyond 2000
Such as GPA activity 57 on mercury and other chemicals of global concern
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6 June 2007
V. Plenary session structure
13. The structure could be the following:
 A half day plenary session supported by presentations and possibility for
questions/first comments of participants could be followed by
 an ad hoc Working Group in the evening preparing for a potential outcome of
Forum VI (Additional Resolution on Lead and Cadmium)
 Organization of work
o Half day plenary with
 General introduction and overview on other ongoing related
international activities, status of available scientific data,
objectives/perspectives and deadlines9
 Experiences and concerns regarding lead and cadmium10
presented by a(n)
o DC and CiT
o developed country
o industry representative (e.g. ICMM and also down
stream user) and
o NGO representative (labour and public interest)
o An ad hoc Working Group discussing the draft of a short concise draft
resolution (in addition to the Budapest Statement) for
o Concluding the plenary session on this agenda item.
VI. Process of preparing – how the plenary session documents
(decision, information and/or thought starter) will be prepared:
14. As this is a follow up action to Forum V and not a new issue, there is no need for a
thought starter, but a background information could be compiled as basis for
discussion from volunteer countries, international organizations, NGOs and
business and industry in advance and put together by the lead country and the
Secretariat for circulation for further input/comments.
Annex
Summary of Relevant Recent International Events
on Lead and Cadmium
1. Forum V – Side Event on Heavy Metals (here: Lead and Cadmium)
9
e.g. in UNEP, WHO, OECD, UNITAR, UNIDO and/or SAICM
10
including, where possible, effectiveness of risk reduction of lead and cadmium
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6 June 2007
1. IFCS Forum V (2006) and the side-event on heavy metals, as arranged by
Switzerland, showed worldwide concern on lead and cadmium. Whereas the
side-event discussed the importance of long-range transport of lead and
cadmium for exposure of humans or eco-systems controversially, this was also
identified as knowledge gap. Furthermore, trade in products was identified as an
important dispersal route. The side-event identified regarding lead (Chapter 5)
an international dimension with air transport, water transport and environmental
fate together with trade-related dispersal. This was less clear with regard to
cadmium (Chapter 6). The list of options for future possible action (Chapter 7.3.)
shows that there remains a need to consider further the issue of global concern
for lead and cadmium so as to better identify effective action, as appropriate, at
various policy levels including at the international level.
2. IFCS Forum V finally adopted the Budapest Statement on Mercury, Lead and
Cadmium calling for, with specific regard to lead and cadmium, on the initiation
of action to address the health and environmental impact of lead and cadmium
and consider, where appropriate, a variety of activities including environmentally
sound use, storage, recycling and disposal of lead and cadmium, partnership
programmes and voluntary agreements alongside more binding instruments, as
appropriate, to promote management of problems related to lead and cadmium
giving emphasis on the needs of developing countries and countries with
economies in transition. Participants also pointed out that there were probably
also strong socio-economic reasons for preventing negative effects from these
chemicals, not least the children’s development due to effects of lead, apart from
the moral aspect of preventing risks to vulnerable groups.
2. UNEP Working Group on Lead and Cadmium including Reviews of
Scientific Information on Lead and Cadmium
1. The UNEP Working Group on Lead and Cadmium (2006) summarized key
findings (see below) but did not make recommendations on further action e.g. on
risk management11. According to its key findings, lead and cadmium once
emitted to air will undergo atmospheric transport mainly in particles and may,
depending on several factors, be transported also over long distances. However,
lead and cadmium are mainly transported over local, national or regional
distances.
2. There is only scarce evidence available on the long-range transport of cadmium
but this indicates that it is also to some extent, probably to a minor degree,
transported on an intercontinental scale. For lead, some estimates indicate that
on average <5-10% of atmospheric deposition is due to long-range including
intercontinental transport. Airborne lead is reaching also the Artic area where
over 95 % of lead deposition is anthropogenic, mainly from Eurasia where in
some parts lead is still used in gasoline. However, lead deposition has
11
UNEP-GC24 document UNEP/GC/24/INF/16 provides for an overview of the work of this Working Group together with
http://www.chem.unep.ch/Pb_and_Cd/WG/WG-meeting-documents.htm . During the First meeting of the Lead and Cadmium Working
Group, the Working Group assisted UNEP with the further development of the interim reviews of scientific information on lead and
cadmium, which can be downloaded at: http://www.chem.unep.ch/Pb_and_Cd/SR/Interim_reviews.htm
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significantly decreased since removal of lead in petrol in many countries. No
clear trends have been observed in the cadmium deposition to the Artic area.
Rivers and oceans also transport lead and cadmium.
3. The most serious adverse effects on human health are neurological,
cardiovascular, renal, hematological, gastrointestinal and reproductive effects for
lead, and kidney and skeleton damage and carcinogenicity by inhalation for
cadmium. Both metals are toxic to plants, animals and micro-organisms and bioaccumulate to organisms.
4. According to the UNEP review it seems that lead is causing health problems
especially in developing countries and countries with economies in transition, as
well as in vulnerable or susceptible population groups such as in children and
fetuses. Lead causes local and regional adverse environmental effects in soils
and water (mainly in waterfowl). Also (and despite existing legislation) in a
significant portion of European soils the lead load exceeds the threshold for
adverse effects in soil (critical load).
5. Food is the main source of cadmium exposure in the general population. The
level of dietary exposure of cadmium can exceed the FAO/WHO guidelines
especially in vulnerable population groups. WHO considers that the safety
margin for the weekly intake of cadmium is below 10, for smokers even lower
and there may be no margin of safety for populations at high risk. Cadmium is
assessed to cause adverse effects in some aquatic environments in Europe.
The high cadmium concentrations measured and estimated in some European
areas are exceeding the threshold concentration for adverse effects on
terrestrial soil ecosystems (critical load). Also cadmium levels in some Arctic
sea-birds are suspected to be high enough to cause kidney damage.
6. The residence time of lead in the atmosphere ranges from hours to weeks and
for cadmium it is days or weeks. Tetra-alkyl lead compounds have atmospheric
residence times ranging from a few hours to a few days. Therefore, it seems that
both lead and cadmium have a potential for long-range atmospheric transport
and, at least, some lead compounds might also be candidates for persistent
organic pollutants (POPs).
7. In addition, the results within the UNECE LRTAP modelling activity (see also
1.3. below) indicate that in large European areas the critical loads of lead are
exceeded. The area at unacceptable risk for human health due to lead
deposition in 2000 covered about 24 % of the EU25 area and the area at
unacceptable ecosystem risk covered about 49 % of the EU25 area. Also the
high cadmium concentrations measured and estimated in some European areas
are exceeding the threshold concentration for adverse effects on terrestrial soil
ecosystems (critical load).
8. These key findings showed that the regional and wider international atmospheric
transport of lead and cadmium contributes to the possible critical levels of top
soil concentrations of these metals. For cadmium, agricultural soils are most
critical due to accumulation in plants and subsequent transfer to foodstuffs.
There is variation in the contribution of different sources to the total cadmium
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6 June 2007
load in agricultural soils: often atmospheric deposition is about half of the total
cadmium load and the rest come from fertilizers, manure and sewage sludge.
The relative proportions of the latter three sources depend on the (possibly
restricted) cadmium content in phosphate fertilizers and sewage sludge. There
may also be restrictions on the maximum amount of sewage sludge that can be
put into agricultural soils annually.
9. During the discussions in the UNEP Lead and Cadmium Working Group,
representatives from developing countries, supported by e.g. WHO, expressed
concern about the challenges faced by developing countries in terms of the use,
management and disposal of new and used products containing lead and
cadmium, including batteries and electronic equipment, as those countries often
lacked the necessary infrastructure to ensure the environmentally sound
management of such wastes. Concern was also expressed about exports to
developing countries of products whose normal use could cause exposure to
lead and cadmium.
10. With decision UNEP-GC24 24/3 III (February 2007) the UNEP Executive
Secretary is asked to address the data and information gaps identified by the
interim Reviews and to compile an inventory of existing risk management
measures. See Annex 2 for details of the information requested by UNEP in
response to the GC Decision.
3. Other Related Recent Activities on Lead and Cadmium
1. The UN ECE Convention on Long-Range Transboundary Air Pollution (LRTAP)
and its Heavy Metals Protocol (1998) is currently under review by a Working
Group on Strategies and Review as regards its sufficiency and effectiveness.
The Annexes of the Protocol contain the agreed binding product control
measures for lead and mercury and the agreed voluntary product management
measures for mercury to reduce air emissions of these heavy metals from the
life-cycle of products containing them. They also contain various kind of
emission control measures on mercury, lead and cadmium. The sufficiency and
effectiveness of these control measures and the need to include in the Protocol
further control measures on heavy metals was discussed in the UNECE
Executive Body (EB) meeting of the LRTAP Convention in December 2006. The
EB agreed that the sufficiency and effectiveness review of the Protocol had
been completed and that further international action on heavy metals is planned.
The next step decided by the EB is to "explore from a technical point of view
potential options for further reducing emissions of the heavy metals listed in
Annex I" [of the Protocol]. It will also assess quantitative and, where this is not
possible, qualitative information on health and ecosystem benefits of further
measures to reduce emissions of heavy metals listed in Annex I.12
2. The WHO HQ in Geneva as well as the WHO Europe Copenhagen in its
CEHAPE (Children and Environmental Health Action Plan for Europe) also look
at the issue of children and lead as children belong to the most vulnerable
12
Fourth meeting of the Working Group on Strategies and Review, 6-8 June 2007in Vienna; regarding the status of
discussion, see also document ECE/EB.AIR/WG.5/2006/2 of 20th July 2006
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population groups.
3. The need for further international controlling action on lead and cadmium (apart
from mercury) arose also from concerns expressed by the Arctic Council,
especially the AMAP Assessment 2002 “Heavy Metals in the Arctic”. These
concluded that, at least, lead warrants international action, and cadmium needs
further study.
8
Annex 2
1
Attachment IV
Lead and Cadmium
Decision:


acknowledges the data gaps identified in the Interim Scientific Reviews on Lead and Cadmium, and that
further action is needed to fill those data and information gaps, taking into account the specific situation
of developing countries and countries with economies in transition.
requests UNEP to work to address these data gaps and also to compile an inventory of existing risk
management measures.
Data gaps:









Exposure assessments and use and release inventories, especially in developing countries
Modelling for the southern hemisphere (ocean transport)
Contribution of anthropogenic versus natural sources
Levels in various media
Data regarding accidental spills
Concentration levels in large migrating marine mammals
Quantities disposed of in the environments, particularly in developing countries
Level of contamination of drinking water
Global flow in products
For lead – mechanism of lead toxicity is not well understood, with exposure-response relationship
incomplete for many effects.
For cadmium – sources of cadmium contributing to waste are not well investigated. Also, some aspects of
consumer exposure and aspects of cadmium toxicity may warrant further investigation.
Plan for further work
Data addressing the above gaps should be submitted to UNEP Chemicals by 30 September 2007
Reports will be amended accordingly and circulated for comment.
Comments will be addressed and reviews finalised to be submitted to GC 25.
Deadline for information
To allow work to progress in a timely fashion, data is requested no later than 30 September 2007.
1
The attachment IV corresponds to the areas of work-planning i.e. Update of lead and cadmium reviews, as
categorized in the letter, dated 24 April 2007, from the Director, Division of Technology, Industry and
Economics, calling for a range of further activities on mercury and other metals in relation to decision 24/3
adopted by the twenty-fourth session of the Governing Council/Global Ministerial Environment Forum on 9
February 2007.
9