4 INF
Agenda item 9
IFCS
Chemical Safety for Sustainable Development
IFCS/FORUM-V/4 INF
Original: English
15 May 2006
FORUM V
Fifth Session
of the
Intergovernmental Forum on Chemical Safety
Budapest, Hungary
25 - 29 September 2006
************************************
Addressing The Widening Gap Among Countries In Following
Chemical Safety Policies
Progress Report to Forum V
Prepared by: Forum Standing Committee
Secretariat: c/o World Health Organization, 20 Avenue Appia, CH-1211 Geneva 27, Switzerland
Tel: +41 (22) 791 3873/3650; Fax: +41 (22) 791 4875; Email: ifcs@who.int; Website: www.ifcs.ch
Intergovernmental Forum on Chemical Safety
Fifth Session - Forum V
25 - 29 September 2006
IFCS/Forum-V/4 INF
Introduction
In response to a proposal from the Islamic Republic of Iran, the Forum Standing Committee
(FSC) included the topic of the “Widening Gap Among Countries in Following Chemical Safety
Policies” in the Forum IV agenda. The working document for Forum IV 1 highlighted obstacles
faced by many developing countries in meeting chemical safety requirement. The paper states
that the transboundary nature of threats by hazardous chemicals requires that all countries move
toward the implementation of sound management of chemicals, more or less at the same pace.
The current wide implementation gap is contrary to the main aim of these efforts and is
counterproductive. Therefore, ways need to be found to overcome the wide gaps that exist
between developed countries and developing countries in their ability to pursue chemical safety
policies need to be bridged. The need to strike a balance between developing further policies and
helping those lagging behind was stressed.
To address the wide gaps that exist between developed countries and developing countries in their
ability to pursue chemical safety policies, Forum IV "decided to establish an ad hoc Expert Group
including interested observers with the objective to propose a systematic way of strengthening the
sound management of chemicals in countries with an expressed need and requested the Forum
Standing Committee to decide on the modalities for the ad hoc Experts Group. The group is
mandated to propose a system by which a government could avail itself, if appropriate, of the
expertise available within the group to identify areas in the country where there is room for
improvement." The full text of the Forum IV decision is presented in Annex 1.
Forum IV requested the Forum Standing Committee to review the implementation of the system
in its regular sessions and report back to Forum V. This paper reports on international efforts
undertaken in response the Forum IV decision and recommendations.
Progress Report
The IFCS Forum IV brought forward the issue of addressing the widening gap to the Preparatory
Committee (PrepCom) for the Development of a Strategic Approach to International Chemicals
Management (SAICM). The SAICM PrepCom in its deliberations acknowledged the issue as a
priority.
The FSC approved Terms of Reference for an Expert Group, guidance and options for the
development of the work structure for the Expert Group, and developed a list of experts
(government, intergovernmental and nongovernmental organizations) to be invited to an Expert
Group meeting.
An IFCS meeting of experts was convened 11-13 July 2005 in Geneva with the support of the
Government of Switzerland. The objective of the meeting was to develop an open and transparent
process to provide advice to countries with an expressed need on implementation of IFCS
chemical safety policies and priorities. The purpose of the process is to provide concrete advice to
a requesting country on issues or items, such as identifying, prioritizing, and accessing
information, guidance, and resources to enable implementation of the IFCS Priorities for Action
1
Addressing The Widening Gap Among Countries In Following Chemical Safety Policies,
IFCS/FORUM-IV/12w (http://www.who.int/ifcs/documents/forums/forum4/meet_docs/en/index.html )
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Intergovernmental Forum on Chemical Safety
Fifth Session - Forum V
25 - 29 September 2006
IFCS/Forum-V/4 INF
and other Forum recommendations. Since the Forum IV recommendation was made, the work to
further develop a strategic approach to international chemicals management (SAICM) had
evolved substantially. As such, the Expert Group determined that its work should respond to
these developments. The draft SAICM draft documents were, therefore, used as a basis for the
elaboration of this proposed new initiative. Specifically, the Expert Group meeting undertook the
task of providing advice on the draft SAICM Concrete Measure capacity building activity to
“Establish and implement a process for provision of advice on the systematic implementation of
the activities at the national level to achieve the SAICM objectives as delineated by the concrete
measures.”2 The development of the process was done in active partnership with those working
in the area with an aim to enhance their on-going efforts. To this end, intergovernmental
organizations and other organizations with experience/interest in this area were invited to
participate.
The outcome of the meeting was a "Proposal for a new initiative to facilitate strengthening
country capacity building for the sound management of chemicals". The proposal was presented
to SAICM PrepCom3 in September 2005 (Annex 2) and included the recommendation that
"Should PrepCom 3 agree that the process outlined could be useful in SAICM implementation, it
is recommended that accommodation for the process be made in the SAICM institutional
arrangements".
The recommendations if the IFCS meeting of experts are reflected in the SAICM documents
adopted at the International Conference on Chemicals Management (ICCM, 4-6 February 2006)3.
The SAICM Overarching Policy Strategy (OPS) includes "capacity building and technical
cooperation" (para 17) as an objective. Specifically the adopted text lists the following key
objectives that reflect the recommendations of the Expert Group meeting:
17 (b) To narrow the widening gap in capacities between developed countries on the one
hand and developing countries and countries with economies in transition on the other hand;
17(e) To promote coordination and access to information on capacity building for the
sound management of chemicals and to enhance transparency and accountability;
17(g) To encourage stakeholders to develop and promote programmes on chemical safety
and scientific research and analysis and to assist with capacity-building programmes in
developing countries and countries with economies in transition.
The Executive Summary of the Global Plan of Action (GPA) calls for priority to be given to
activities which:
7. (a) Focus on narrowing the gap between developed countries on the one hand and
developing countries with economies in transition on the other hand in their capacities for
the sound management of chemicals;
7. (b) Facilitate the implementation of existing agreements and work areas.
The GPA includes a specific activity (208) incorporating the Forum IV recommendations and
citing the IFCS Expert Meeting Proposal in the Implementation Aspects (Annex 3).
2
SAICM Global Plan of Action (containing the concrete measures) SAICM/PREPCOM.3/4.
http://www.chem.unep.ch/saicm/prepcom3/Default.htm
3
http://www.chem.unep.ch/saicm/
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Intergovernmental Forum on Chemical Safety
Fifth Session - Forum V
25 - 29 September 2006
IFCS/Forum-V/4 INF
Moreover, the agreed functions to be performed by the SAICM secretariat4 provide the scope for
the secretariat to undertake specific activities recommended by the IFCS meeting of experts.
These functions include:
28.(e) To provide guidance to stakeholders in the initiation of project proposals;
28.(f) To provide information clearing-house services, such as provision of advice to
countries on implementation of the Strategic Approach, referral of requests for information to
relevant sources, and facilitation of access to information and expertise in support of specific
national action;
28.(h) To promote the exchange of relevant scientific and technical information;.
4
SAICM Overarching Policy Strategy, VII. Implementation and taking stock of progress
http://www.chem.unep.ch/saicm/
4
Intergovernmental Forum on Chemical Safety
Fifth Session - Forum V
25 - 29 September 2006
IFCS/Forum-V/4 INF
ANNEX 1
Forum IV
Fourth Session of the Intergovernmental Forum on Chemical Safety
Bangkok, Thailand, 1-7 November 2003
Final Report5
Executive Summary
Addressing The Widening Gap Among Countries In Following Chemical Safety Policies
Since the 1992 United Nations Conference on Environment and Development – UNCED held in
Rio de Janeiro, Brazil - the international community has developed numerous policies regarding
chemical safety. Some have lead to conventions (namely the Rotterdam, Basel and Stockholm
conventions). Some have resulted in policy guidelines for international organizations, regional
arrangements, national governments, NGOs and other actors. The tide of events has lead some
countries of the world to be left far behind, compared to some others, in the implementation of
policies and conventions. The transboundary nature of threats by hazardous chemicals requires
that all countries move towards the implementation of sound management of chemicals, more or
less at the same pace. The current wide implementation gap is contrary to the main aim of these
efforts and is counterproductive. Therefore, wide gaps that exist between developed countries and
developing countries in their ability to pursue chemical safety policies need to be bridged.
As a step to find a practical solution to this,
1.
The Forum decided to establish an ad hoc Expert Group including interested observers
with the objective to propose a systematic way of strengthening the sound management of
chemicals in countries with an expressed need and requested the Forum Standing Committee to
decide on the modalities for the ad hoc Experts Group. The group is mandated to propose a
system by which a government could avail itself, if appropriate, of the expertise available within
the group to identify areas in the country where there is room for improvement. Possible elements
of such a system might include:





A list of states with greater challenges in implementing chemical safety policies.
Taking stock of all available capacities (e.g. as identified through National Profile
process) to the extent possible and the specific and explicit demands of countries seeking
support for strengthening their chemicals management.
Preparing an indicative survey of the circumstances of developing countries and countries
with economies in transition with regard to the challenges they face in the
implementation of chemical safety policies. The survey would be based on alreadyexisting information and on any input provided by countries concerned.
On a voluntary basis, as funds are available, facilitation of visits to states that so request
to evaluate the situation.
Recommendations on actions in chemical safety to be taken by the requesting
5
(IFCS/FORUM-IV/16w)
http://www.who.int/ifcs/documents/forums/forum4/final_report/en/index.html
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Intergovernmental Forum on Chemical Safety
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25 - 29 September 2006

IFCS/Forum-V/4 INF
government and/or the Inter-Organization Programme for the Sound Management of
Chemicals (IOMC) organizations.
2.
Countries requiring external assistance, OECD countries, non-governmental
organizations and other institutions, and other IFCS participants, in particular the IOMC
organizations, should give high priority to this undertaking in line with the general
recommendation from IFCS Priority for Action E36 to mobilize sufficient financial resources and
technical assistance for the sound management of chemicals.
3.
Forum IV requested the Forum Standing Committee to review the implementation of the
system in its regular sessions and report back to Forum V.
6
Intergovernmental Forum on Chemical Safety, Priorities for Action Beyond 2000. Adopted at Forum III,
15-20 October 2000, Salvador Bahia Brazil.
(http://www.who.int/ifcs/Documents/Forum/ForumIII/index.htm#priorities)
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Intergovernmental Forum on Chemical Safety
Fifth Session - Forum V
25 - 29 September 2006
IFCS/Forum-V/4 INF
ANNEX 2
Strategic Approach to International Chemicals Management (SAICM)
Distr.
General
SAICM/PREPCOM.3/INF/9
26 July 2005
Original: English
Preparatory Committee for the
Development of a Strategic Approach
to International Chemicals Management
Third session
Vienna, 19–24 September 2005
Item 3 of the provisional agenda*
Further development of a strategic approach
to international chemicals management
Paper submitted by the Intergovernmental Forum on Chemical
Safety on the strategic approach to international chemicals
management – addressing the widening gap
Note by the secretariat
1. At its second session, the Preparatory Committee for the Development of a Strategic Approach to
International Chemicals Management agreed that the Intergovernmental Forum on Chemical Safety
(IFCS) would prepare a “thought-starter” paper with respect to the implementation of the strategic
approach and taking stock of its progress. One proposal for the paper was that it would identify drivers
for meeting targets, catalysts for meeting targets ahead of time and obstacles that might keep targets
from being met. Documents SAICM.PREPCOM.3/INF/6 and INF/7 are thought starters on institutional
aspects of implementing the strategic approach to international chemicals management. The present
paper, on “addressing the widening gap”, was prepared at an IFCS meeting of experts and discusses the
identification of obstacles that may prevent targets for the improvement of chemicals management from
being met. It proposes a new initiative to facilitate strengthening country capacity for the sound
management of chemicals.
2. The secretariat has the honour to circulate, in the annex to the present note, the IFCS paper on
addressing the widening gap, for consideration by the Committee at its third session. The annex is being
circulated as received, and has not been formally edited by the secretariat.
*
SAICM/PREPCOM.3/1.
For reasons of economy, this document is printed in a limited number. Delegates are kindly requested to bring their copies to
K0582377
010805
meetings and not to request additional copies.
Intergovernmental Forum on Chemical Safety
Fifth Session - Forum V
25 - 29 September 2006
IFCS/Forum-V/4 INF
Annex
SAICM
Addressing the Widening Gap
PROPOSAL FOR A NEW INITIATIVE TO FACILITATE
STRENGTHENING COUNTRY CAPACITY FOR THE SOUND
MANAGEMENT OF CHEMICALS
Prepared by an IFCS meeting of experts
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Intergovernmental Forum on Chemical Safety
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IFCS/Forum-V/4 INF
SAICM
Addressing the Widening Gap
PROPOSAL FOR A NEW INITIATIVE TO FACILITATE STRENGTHENING
COUNTRY CAPACITY FOR THE SOUND MANAGEMENT OF CHEMICALS
Prepared by an IFCS meeting of experts
The draft SAICM Concrete Measures includes as an activity under Objective 4 :
Capacity building to support national actions:
Establish and implement a process for provision of advice on the systematic
implementation of the activities at national level to achieve the SAICM
objectives as delineated by the concrete measures.
Such a "process" can provide essential support for the overall implementation of SAICM and thus
may be considered as a high priority activity.
The Fourth Session of the Intergovernmental Forum on Chemical Safety (Forum IV) considered
the issue of the widening gap between developed countries and developing countries in their
ability to pursue chemical safety policies. It recommended that a systematic7process to strengthen
the sound management of chemicals in countries with an expressed need be implemented. The
development and implementation of the process is to be done in active partnership with those
working in the area and will enhance their on-going efforts. The Forum Standing Committee
(FSC), mandated by Forum IV to decide on the modalities for the process, convened a meeting of
experts to prepare a proposal for the process.
This paper presents the outcome of the expert group’s deliberations. It presents a proposal for the
establishment and implementation of the "process" called for in the draft SAICM Concrete
Measures as part of the SAICM institutional arrangements. The proposal suggests functions and
working methods as well as an initial pilot project.
The PrepCom is requested to consider the proposal and, if found to have merit, it is recommended
that accommodation for the process be made in the SAICM institutional arrangements and further
work to elaborate the proposal including the development of an initial pilot project for its
implementation be undertaken between PrepCom3 and the International Conference on
Chemicals Management (ICCM).
7
"Systematic" was interpreted broadly by the Forum Standing Committee to include flexible approaches to
meet a wide range of country needs.
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1. INTRODUCTION
The IFCS Forum IV meeting recommended that a process to strengthen efforts to address the
widening capacity gap between developed and developing countries should be developed.8 The
IFCS convened an Expert Group meeting in July 2005, comprised of a broad range of
stakeholders, to further elaborate such a process. Representatives of several Inter-Organization
Programme for the Sound Management of Chemicals (IOMC) participating organisations
attended this meeting as observers.
The Forum Standing Committee (FSC) requested that the Expert Group undertake the
development and implementation of the process in active partnership with those working to build
capacity for the sound management of chemicals, and to enhance their ongoing efforts.
Since this Forum IV recommendation was made, the work to further develop a strategic approach
to international chemicals management (SAICM) has evolved substantially. As such, the Expert
Group determined that its work should respond to these developments. The SAICM documents
were, therefore, used as a basis for the elaboration of this proposed new initiative. Specifically,
the Expert Group meeting undertook the task of providing advice on the SAICM Concrete
Measure capacity building activity to “Establish and implement a process for provision of advice
on the systematic implementation of the activities at the national level to achieve the SAICM
objectives as delineated by the concrete measures.”9
2. BACKGROUND
The Expert Group noted with appreciation the major efforts of the international community,
donors, and intergovernmental organizations (IGOs) in capacity building activities. These
activities provide a valuable resource to countries who need assistance in building their capacity
to manage chemical safely. However, notwithstanding these efforts, the gap in the capability for
sound management of chemicals is widening.10 This reinforces the need for a new process to
facilitate the strengthening of chemicals management in developing countries and countries with
economies in transition. Another challenge facing all countries is the need to integrate chemical
safety issues into broader development strategies and to achieve the Millennium Development
Goals.
The proposal below seeks to complement and support the activities of international organizations,
donor agencies, and others to strengthen capacity building for the sound management of
chemicals, including the capacity to further integrate chemicals management into development
strategies.
8
Fourth Session of the IFCS, Bangkok, Thailand, 1-7 November 2003, Final Report, Executive Summary,
Addressing the Widening Gap Among Countries in Following Chemical Safety Policies,
IFCS/ForumIV/16w. http://www.who.int/ifcs/Forums/ForumIV/FIVreport.htm
9
SAICM Global Plan of Action (containing the concrete measures) SAICM/PREPCOM.3/4.
http://www.chem.unep.ch/saicm/prepcom3/Default.htm
10
Addressing the Widening Gap Among Countries in Following Chemical Safety Policies, Prepared by:
Forum Standing Committee Working Group, Chaired by the Islamic Republic of Iran, IFCS/ForumIV/12w, 28 April 2003. http://www.who.int/ifcs/Forums/ForumIV/Meet_docs.htm
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3. STRENGTHENING CAPACITY BUILDING EFFORTS
The Expert Group proposes a new process to facilitate the provision of advice concerning
capacity building for the sound management of chemicals at the country level, in support of
SAICM objectives.
The funding and institutional elements of this process should be further elaborated after PrepCom
3 has developed more detailed text on funding and institutional arrangements for SAICM, and
how guidance would be provided to countries for the implementation of SAICM.
The overall objective of this process would be to further empower countries in the sound
management of chemicals. The process would operate and build on existing capacity building
principles such as ownership, engaging stakeholders, building on synergies and sustainability
beyond intervention, within a framework of sustainable development.
This process should include, as a first step, a Help Desk which provides basic advice to countries
and/or referral of requests to relevant sources (policy institutions, experts, data banks,
information, etc.) of expertise, policy guidance, funding and guidelines. The development of a
second component in the process should also be considered, for responding to more complex
requests. In addition, as experience accumulates, tools could be developed to facilitate responses
to the most frequently asked questions.
Information to respond to a request could be obtained from existing information sources such as
Information Exchange Network on Capacity Building for the Sound Management of Chemicals
(INFOCAP), the IOMC inventory of activities, local offices and country desks, or websites of
bilateral and multilateral donors and other international and regional agencies.
The response to a request could involve referral to IOMC organizations; referral to other
international or regional agencies; referral to donor countries; and/or or direct provision of advice
on the problem posed.
The process could include provision of advice on issues such as:

identification and prioritization of chemical safety issues requiring immediate attention;

accessing available chemical safety programmes and activities of international organisations
and conventions;

accessing available funding opportunities;

accessing information on best practices;

synergies between national work and ongoing regional or subregional activities;

tools and entry points for linking chemicals management to major development issues, and
goals, such as the Millennium Development Goals;

guidance and tools for enhancing sustainability of already achieved capacity for chemicals
management at the national level;

organisational management and development;

undertaking a gap analysis with national authorities;
The Expert Group considered it essential that the Help Desk be accessible, with few conditions
for requesting advice. For example, to submit a Help Desk enquiry may require only a written
request. A second component in the process, to respond to more complex requests, may require
more formal procedures, such as a standardized request format, and threshold criteria, for
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Intergovernmental Forum on Chemical Safety
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example, endorsement by the national focal point and/or the establishment of a SAICM interministerial/multi-stakeholder committee/body.
Further elaboration of the process should also involve the establishment of operating procedures
for matters such as:
 responding to requests and prioritizing requests for response;
 providing guidance on how to link chemicals management with the Millennium
Development Goals;
 providing guidance on how to identify underlying causes of gaps;
 identifying opportunities for regional and sub-regional cooperation;
 identifying opportunities for synergies with other conventions and international
initiatives;
 identifying opportunities for leveraging funds, in addition to chemical funds;
 determining the need for country visits/meetings;
 use of experts and relevant criteria.11
4. MONITORING and EVALUATION
Monitoring and evaluation should be carried out under the SAICM oversight functions and linked
to the Millennium Development Goals, and other related goals. Monitoring parameters could
include analysis of the type of requests received, feedback from countries that have received
assistance, the level of success in integrating chemical management issues in development
strategies, and lessons learnt. Countries receiving assistance through this initiative would be
encouraged to report on progress.
5. WAY FORWARD
The Expert Group invites PrepCom 3 to consider the proposal with a view to incorporating it in
the SAICM document, as appropriate.
Should PrepCom 3 agree that the process outlined could be useful in SAICM implementation, it
is recommended that accommodation for the process be made in the SAICM institutional
arrangements and further work to elaborate the proposal including the development of an initial
pilot project for its implementation be undertaken between PrepCom3 and the International
Conference on Chemicals Management (ICCM). This would include the development of the
criteria, procedures and required expertise and resources for this process.
An additional area needing special attention is the integration of chemicals management in the
broader development agenda, including efforts to achieve the Millennium Development Goals
and contribute to Poverty Reduction Strategies. The Expert Group considered that a pilot project
could be included in the SAICM implementation plans to delineate where chemical management
issues are an inherent part of development and how work to improve chemicals management
capacities can be incorporated into development assistance strategies, sustainable development
strategies, and poverty reduction strategies.
_____________________
11
6
The inclusion of this item was not supported by two observers.
Intergovernmental Forum on Chemical Safety
Fifth Session - Forum V
25 - 29 September 2006
IFCS/Forum-V/4 INF
Annex 3
Strategic Approach to International Chemicals Management 12
Global Plan of Action
Table B List of possible work areas and their associated activities, actors, targets/timeframes, indicators of progress and implementation aspects
Work areas addressing capacity-building and technical cooperation (objective 4)
Work areas
Activities
Actors
Targets/Timeframes
Indicators of progress
Implementation aspects
Capacity-building to
208. Establish a systematic approach in IOMC
Number of countries requesting
support national actions order to facilitate the provision of
assistance
Chemical convention Establishment:
Development and implementation
advice concerning capacity-building
secretariats
Number of requests received and
of process as proposed in
20062010
for the sound management of
responded
to
document
Trade unions
Ongoing operation:
chemicals at the country level, to
SAICM/PrepCom3/Inf/9
Types of request received
2011–2020
countries that request it. For example:

Consider establishing a help desk
which would provide basic advice
to countries and/or refer requests
to relevant sources (policy
institutions, experts, data banks,
information, etc) of expertise,
policy guidance, funding and
guidelines;

Ensure that the process above
builds on existing information and
tools for capacity building and
acts in a complementary way to
existing initiatives;

Consider establishing monitoring
mechanisms as part of the SAICM
stocktaking processes to evaluate
the usefulness of the process;

Implement a pilot project to test
and refine the concept prior to
global implementation.
The columns dealing with suggested actors, targets and time frames, indicators of progress and implementation aspects were not fully discussed and sufficient time was not
available to achieve agreement during the process to develop the Strategic Approach.
12
http://www.chem.unep.ch/saicm/
7