Forum IV Room Document – Thought Starter on Possible Plenary
Recommendations on the GHS
1. The GHS
The UN Globally Harmonized System of Classification and Labelling of Chemicals (GHS) is
an important new tool that countries can draw upon to develop national chemical hazard
communication systems by providing a basis for the establishment of comprehensive
chemical safety programs. It represents an important step in harmonizing national chemical
hazard communication systems worldwide and has a great potential to improve chemical
safety across all relevant sectors.
The GHS is a consistent and coherent approach to identifying the hazards of chemicals, and
providing information on these hazards and associated protective measures to users or those
who may be exposed. The system is structured so that appropriate elements for classification
and communication, which consider the target population, can be selected. Those who then
use chemicals can take the proper steps to protect themselves and the environment.
Target populations include employers, workers, including those involved in transport,
consumers, and emergency responders. Others who provide services to these people will also
find the information useful (e.g. doctors, nurses, safety engineers and occupational
hygienists). The GHS includes harmonized criteria for the definition of physical hazards
(such as flammability), health hazards (such as carcinogenicity) and environmental hazards.
These internationally developed criteria are used to evaluate the hazards of both substances
and mixtures.
The GHS covers all hazardous chemical substances, dilute solutions and mixtures and
addresses how labels and safety data sheets should be used to convey information about their
hazards, and how to protect people from these effects. It also provides a basis for safety
training and health promotion.
The System is expected to:
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enhance the protection of people and the environment by providing an internationally
comprehensive system for chemical hazard communication;
provide a recognised framework for those countries without an existing system;
reduce the need for duplicative testing and evaluation of chemicals; and
facilitate international trade in chemicals whose hazards have been properly assessed
and identified on an international basis.
2. International Policy Background
After more than a decade of work, the UN Economic and Social Council approved the GHS
for worldwide implementation in July 2003. Related international policy recommendations
have also been established.
At Forum III, it was recommended that “all countries, subject to their capacities and
capabilities, should take account of the development of the GHS in any proposed changes to
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existing systems for classification and labelling, and in the implementation and enforcement
of their chemicals legislation”. IFCS also recommended that guidance and other tools
necessary for the implementation of the GHS be made available by 2003 and that all
countries should implement the GHS as soon as possible with a view to have the system fully
operational by 2008.1
In Section 23.c of the WSSD Plan of Implementation, as adopted by Heads of State at the
World Summit for Sustainable Development (WSSD) held in Johannesburg, South Africa in
September 2002, countries were encouraged to “implement the new globally harmonized
system for the classification and labelling of chemicals as soon as possible with a view to
having the system fully operational by 2008”. Furthermore, states and other actors were
called upon to “support developing countries in strengthening their capacity for the sound
management of chemicals and hazardous wastes by providing technical and financial
assistance”.
Draft actions for Forum IV are found in Annex 1.
3. Implementation Issues
Responsibilities in the supply and use chain
Producers, exporters, importers distributors employers and users may all have different
responsibilities with respect to the implementation and application of the GHS.
Depending on a particular country’s requirements, the obligation to classify, label and
provide safety data sheets for substances and mixtures (chemicals) could primarily rest with
the producer. The exporter of a chemical could then be responsible for ensuring that labels
and safety data sheets are shipped with the chemical and that the recipient, normally an
importer in another country, gets the appropriate information.
The importer’s responsibilities could include that all requirements concerning classification,
labelling and safety data sheets in the importing country are respected when the chemical is
supplied further. It may be particularly important that the national language is used on the
label and in safety data sheets. Countries may also have specific or supplementary hazard
communication requirements, which would need to be respected.
Similarly, the distributor may need to take care that all information follows the chemicals to
the final user.
If the chemical is used at a workplace, the employer could have the responsibility to
appropriately classify, label and submit t safety data sheets for chemicals used at the work
place. This may provide the opportunity for the employer to select less dangerous chemicals
for use. The employer may be required to provide appropriate training to workers on hazards
of chemicals and on safe working methods. Safety data sheets could also be made available to
workers at the workplace. Workers could then follow the instructions provided for safe use of
chemicals. If the employer himself is responsible for production of chemicals, or if chemicals
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2
The Forum III recommendations are attached as Annex 2.
are formed during processes, he could be required to classify the hazards, and provide
information on hazards as necessary.
If the final user of the chemical is a consumer, information provided on the label and
instructions for use should be considered. Special awareness and training campaigns
organised by authorities, institutes and industry to train consumers to understand the message
of labels would be useful.
Data for classification purposes
A prerequisite of the application of the GHS is the availability of the necessary information to
classify chemical substances and mixtures appropriately. Data on physico-chemical,
toxicicological and ecotoxicological effects have mostly been generated for chemical
substances but seldom for mixtures. Data are available on substances on the basis of tests and
studies carried out by scientific research and published in scientific literature. Information
and data on effects of chemical substances are available in multiple sources. Some available
data have been gathered in books, internet databases and CD-Roms by national and
international institutions and industry. A list of internet databases, CD-Roms, textbooks and
other data sources which could be used when a substance or a mixture need to be classified in
accordance with the GHS would be useful.
As noted in the annex to IFCS/FORUM-IV/09w, there still are many gaps in the data needed
to classify chemicals.
Classification and labelling
Classification and labelling of chemicals will be based on the information available from
different information sources. Data generated or collected will then be compared with the
classification criteria in the GHS and based on the classification, appropriate label
information for the chemical can be selected. Mixtures will generally be classified on the
basis of classification or data on substances and their concentrations as data on mixtures
themselves is often lacking. This implies application of the detailed criteria in the GHS.
Application of criteria sometimes needs expert judgement when existing hazard data are
compared with the criteria. In some cases, the GHS allows competent authorities to choose
between options for the way the GHS will be applied within a country or a region. Due to the
different conclusions on the basis of expert judgement for certain end points, differences in
hazard data that are available and the different options for competent authorities, the
classification and label for a substance or mixture may differ between different producers.
The UN Sub-Committee of Experts on the Transport of Dangerous Goods has developed a
list of hazardous substances with harmonized classification and labelling requirements. GHS
has no list of harmonized classification and labelling of hazardous substances, but this fact
does not preclude the possibility that countries, regions or the industry could establish lists of
hazardous substances with harmonized classification and labelling requirements.
The GHS is a tool that countries can draw upon to develop national chemical hazard
communication systems. This requires raising awareness of consumers, professional users,
and professionals involved in transport and emergencies or chemical accidents and regulatory
authorities. The concepts of hazards and risks of chemicals should be explained and how
information is communicated via the elements of the GHS label and safety data sheet.
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Safe use of chemicals
The first step in safe management and handling of chemicals is to understand the hazards that
are involved in the use of the chemical and how the risks may materialise during the use and
the life cycle of the chemical. Precautionary statements on the GHS label provide useful
instructions for safe use of chemicals. Safety data sheets for professional uses describe more
in detail precautionary measures that are needed e.g. in the transport, use and disposal of
chemicals.
The employer has to take into account the advice provided by the safety data sheet when
working conditions are considered and arranged so that the risk cause by chemicals can be
reduced to an acceptable level. Normally advice is given in the safety data sheet for technical
risk reduction measures (e.g. closed systems, different ventilation solutions, personal
protective equipment). Exposure levels at the work place should be assessed by the employer
by measurements or otherwise. The safety data sheet provides basic information when
declaring hazardous ingredients that should be considered, and providing information on
occupational exposure limits (national or existing elsewhere) for these ingredients. Safety
data sheets will also contain information on possible restrictions that are applied to the use of
the chemical.
International instruments for risk management
In addition to the GHS, several additional tools exist to manage the risks of chemicals safely
during the whole life cycle of a chemical. GHS provides information in the identity of the
chemical, its intrinsic hazards. With this information, advice can be given for risk
management measures.
The risk management tools available on the international level depend on the magnitude and
type of risk, and non-acceptance of the risk in certain cases. Normally risk is managed by
applying careful use instructions, technical measures or personal protective equipment.
Sometimes these measures are not sufficient for adequate control of risk (risk is not
acceptable) and more severe measures like bans and restriction may be needed. The
international instruments may be implemented in different ways varying from voluntary
agreements between producing and using industry to national legislative acts and
international law involving different administrative actions (authorization, notification,
ordinary enforcement, etc.). The following are examples of risk management tools available
to be implemented:
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provisions for safe use of chemicals:
o ILO Convention No. 170 concerning Safety in the use of Chemicals at Work
o ILO Recommendation No 177 concerning Safety in the use of Chemicals at
Work
o ILO Code of Practice on Safety in the Use of Chemicals at Work
o ILO Convention No. 174 concerning Prevention of Major Industrial Accidents
o UNECE Convention on Transboundry Effects on Industrial Accidents
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Mechanisms to address banned or restricted chemicals:
o Stockholm Convention on Persistent Organic Pollutants
o Rotterdam Convention on the Prior Informed Consent Procedure for Certain
Hazardous Chemicals and Pesticides in International Trade
o Montreal Protocol on Substances that Deplete the Ozone Layer
 transport:
o UN Recommendations on the Transport of Dangerous Goods
o International Maritime Dangerous Goods Code (IMDG)
o European Agreement on International Carriage of Dangerous Goods by
Road (ADR)
o European Agreement on International Carriage of Dangerous Goods by
Inland Waterways (ADN)
o Regulations concerning the International Carriage of Dangerous
Goods by rail (RID)
o Technical Instructions for the safe Transport of dangerous goods by
Air (ISAO)
 waste management
o Basel Convention on the Transboundary Movement of Hazardous Wastes and
their Disposal
Chemicals management often needs organisational measures at the government or
institutional levels. It is important that countries establish poison information centres and
clinics for diagnoses of occupational diseases so that poisonings and diseases caused by
chemicals are recognised and recorded, and that the patients get appropriate medical
treatment.
Implementation of the GHS may require strengthening, updating or establishing appropriate
national legislation compatible with other international instruments such as the ILO
Chemicals Convention 170, Rotterdam Convention and Stockholm Convention. Developing
countries and countries with economies in transition, while benefiting from these
developments, are likely to face particular challenges in implementing this new global
standard. Global implementation of the non-binding GHS will be undertaken through a
strategic yet flexible approach in countries, through collaboration between government and
other interested and affected parties. A list with the status of GHS implementation in
countries and regions would allow monitoring of progress and may facilitate contact between
responsible officials to share experiences and lessons learned in the work. At the request of
ECOSOC (Resolution 2003/64 of July 2003) the secretariat of the UN Sub-Committee of
Experts for the Globally Harmonized System of Classification and Labelling of Chemicals
(UN SCE GHS) will prepare a report on the status of implementation of the GHS in countries
and regions which will monitor progress.
4. Existing Capacity Building Initiatives
In response to growing requests from countries for GHS capacity building, UNITAR and ILO
initiated in 2001 the UNITAR/ILO GHS Training and Capacity Building Programme. The
Programme aims at assisting countries to build capacities for the implementation of the GHS
through national, sub-regional and regional activities, in accordance with their own capacities
and capabilities and through collaboration between various government bodies as well as
parties outside of government.
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In April 2002, UNITAR and ILO, in collaboration with OECD, initiated the WSSD Global
Partnership for Capacity Building to Implement the GHS. The main goal of the WSSD GHS
Partnership is to mobilize resources and implement a number of specific support activities to
strengthen capacities at all levels and sectors – in particular in developing and transition
countries – towards implementing the GHS for industrial chemicals, agricultural chemicals,
chemicals in transport and consumer chemicals.2
2
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Further information about both of these initiatives can be obtained from UNITAR (<www.unitar.org/cwm>).
Annex 1: Draft Wording of a Possible GHS Action Plan for Forum IV
Emphasizing the important contribution of the GHS to promote sustainable economic
development and protect human health and the environment from dangerous chemicals in all
countries;
Appreciating the work of the IOMC and the UN SCEGHS in developing and adopting
the GHS as an international instrument;
Reaffirming the WSSD recommendation that all countries are encouraged to
implement the GHS as soon as possible with a view to have the system fully operational by
2008;
Noting Resolution 2003/64 of July 2003 of the UN Economic and Social Council
(Annex 3);
Aware of and supporting the WSSD Global Partnership for Capacity Building to
Implement the GHS launched in 2002;
Appreciating the activities of the UNITAR/ILO GHS Training and Capacity Building
Programme, such as implementation of collaborative pilot projects in Zambia, South Africa,
Senegal and Sri Lanka;
Emphazing that GHS implementation has become one of the top priorities for capacity
building in developing countries and countries in transition; and
Noting with concern that current financial and technical resources to support GHS
capacity building are not adequate;
Forum IV:
Endorses the framework work-plan of the UNITAR/ILO/OECD initiated WSSD GHS
Capacity Building Partnership (see Annex 4), adopted at the first meeting of Partners on 10
July 2003, and agrees on the following specific targets for the following activities:

two pilot projects for National GHS Action Plan Development per IFCS
region completed and evaluated by the end of 2006.

GHS capacity building guidance and training package prepared and pilot
tested, and these outcomes endorsed by the UN SCEGHS, by the end of 2004
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two regional GHS workshops held and implementation strategies prepared by
the end of 2005, taking into consideration regional economic integration
arrangements.
Invites UNITAR/ILO, as the focal point for capacity building in the UN SCEGHS, in
collaboration with the Sub-committee to develop a roster of GHS experts who could provide
support on training and capacity building activities on the application of GHS classification,
labelling, and safety data sheets by the end of 2004.
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Requests the ILO to complete the “chemical control tool kit” using GHS classification
criteria to support legislation and implementation in the area of occupational safety and
health for hazardous chemicals by the end of 2006.
Encourages international organizations, national governments and other stakeholders
to identify, as appropriate, within the SAICM process, synergies between the GHS process
and relevant international conventions and programmes and report the findings to the UN
SCEGHS;
Invites countries and regional economic organizations to make available via the
internet or other appropriate media non-confidential information on quality-controlled data
relevant for classification and labelling by the end of 2005 and requests the GHS Partnership
to establish a web node link to these relevant websites.
Calls upon countries, donor organizations, and stakeholder groups, in particular
industry, to make available adequate financial and technical resources to support national and
regional GHS capacity building projects in developing countries and countries with
economies in transition.
Invites the Forum Standing Committee of the IFCS to bring the FORUM IV GHS
Action Plan to the attention of the SCE GHS for monitoring purposes, and to submit a
progress report to IFCS FORUM V.
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Annex 2: Recommendations on the GHS from Forum III
In its Priorities for Action beyond 2000, Forum III made four GHS-related recommendations:
The Globally Harmonized System (GHS) for the Classification and
Labelling of Chemicals should be agreed to by the Inter-Organization
Programme for the Sound Management of Chemicals coordinating
group for the harmonization of chemical classification systems and
fully adopted by the Economic and Social Council of the United
Nations prior to Forum IV.
Guidance and other tools necessary for the implementation of the GHS
should be made available to interested parties prior to Forum IV.
All countries are encouraged to implement the GHS as soon as
possible with a view to have the system fully operational by 2008.
All countries, subject to their capacities and capabilities, should take
account of the development of the GHS in any proposed changes to
existing systems for classification and labelling, and in the
implementation and enforcement of their chemicals legislation.
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Annex 3: Excerpt from the Draft ECOSOC Resolution Related to the Globally
Harmonized System of Classification and Labelling of Chemicals
2003/64
Work of the Committee of Experts on the Transport of Dangerous
Goods and on the Globally Harmonized System of Classification and
Labelling of Chemicals
The Economic and Social Council,
Recalling its resolutions 1999/65 of 26 October 1999, 2001/34 of 26 July 2001
and 2001/44 of 20 December 2001,
Having considered the report of the Secretary-General on the work of the
Committee of Experts on the Transport of Dangerous Goods and on the Globally Harmonized
System of Classification and Labelling of Chemicals3 during the biennium 2001-2002,
A
Work of the Committee regarding the transport of dangerous goods
Recognizing the importance of the work of the Committee for the harmonization
of codes and regulations relating to the transport of dangerous goods,
Bearing in mind the need to maintain safety standards at all times and to
facilitate trade, as well as the importance of this to the various organizations responsible for
modal regulations, while meeting the growing concern for the protection of life, property and
the environment through the safe transport of dangerous goods, including their security in
transport,
Noting the increasing volume of dangerous goods being introduced into
worldwide commerce and the rapid expansion of technology and innovation,
1. Expresses its appreciation for the work of the Committee of Experts on the
Transport of Dangerous Goods and on the Globally Harmonized System of Classification and
Labelling of Chemicals with respect to matters relating to the transport of dangerous goods,
including their security in transport;
2.
Requests the Secretary-General:
(a) To circulate the new and amended recommendations4 on the transport of
dangerous goods to the Governments of Member States, the specialized agencies, the
International Atomic Energy Agency and other international organizations concerned;
(b) To publish the thirteenth revised edition of the Recommendations on the
Transport of Dangerous Goods: Model Regulations5 and the fourth revised edition of the
Recommendations on the Transport of Dangerous Goods: Manual of Tests and Criteria6 in all
the official languages of the United Nations, in the most cost-effective manner, not later than
the end of 2003;
3
E/2003/46.
ST/SG/AC.10/29/Add.1 and 2.
5
ST/SG/AC.10/Rev.13.
6
ST/SG/AC.10/Rev. 4.
4
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(c) To make these publications available on the web site of the Economic
Commission for Europe, which also provides secretariat services to the Committee, and to
make them available also on CD-ROM;
3. Invites all Governments, the specialized agencies, the International Atomic
Energy Agency and the other international organizations concerned to transmit to the
secretariat of the Committee their views on the Committee’s work, together with any
comments that they may wish to make on the amended recommendations;
4. Invites all interested Governments, the regional commissions, the
specialized agencies and the international organizations concerned, when developing or
updating appropriate codes and regulations, to consider taking into account the
recommendations of the Committee;
5. Requests the Secretary-General to submit a report on the status of the
effective implementation of the Model Regulations on the Transport of Dangerous Goods by
Member States and international organizations on a worldwide level;
B
Work of the Committee regarding the Globally Harmonized System of
Classification and Labelling of Chemicals
Bearing in mind that, pursuant to paragraph 19.27 of Agenda 21,7 the InterOrganization Programme for the Sound Management of Chemicals has cooperated for a
decade with the International Labour Organization, the Organisation for Economic
Cooperation and Development and the Subcommittee of Experts on the Transport of
Dangerous Goods to develop a globally harmonized hazard classification and compatible
labelling system for chemicals,
Bearing in mind also that the Subcommittee of Experts on the Globally
Harmonized System of Classification and Labelling of Chemicals was created pursuant to
resolution 1999/65 to make the Globally Harmonized System available worldwide, to keep it
up-to-date and to promote and monitor its implementation,
Noting with satisfaction that the Committee could reach consensus on the
Globally Harmonized System after consideration of a draft consolidated by the InterOrganization Programme for the Sound Management of Chemicals on the basis of input from
the Subcommittee of Experts on the Transport of Dangerous Goods, the International Labour
Organization and the Organisation for Economic Cooperation and Development,
Aware that the World Summit on Sustainable Development at its 2002 session in
Johannesburg, in paragraph 23 (c) of its Plan of Implementation,8 encouraged countries to
implement the Globally Harmonized System as soon as possible with a view to having the
system fully operational by 2008,
Also aware that the General Assembly, by its resolution 57/253 of 20 December
2002, endorsed the Johannesburg Plan of Implementation and requested the Economic and
7
Report of the United Nations Conference on Environment and Development, Rio de Janeiro, 3-14 June 1992
(United Nations publication, Sales No. E.93.I.8 and corrigenda), vol. I: Resolutions adopted by the Conference,
resolution 1, annex II.
8
Report of the World Summit on Sustainable Development, Johannesburg, South Africa, 26 August – 4
September 2002 (United Nations publication, Sales No. E.03.II.A.1 and corrigendum), chap. I, resolution 2,
annex.
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Social Council to implement the provisions of the Plan relevant to its mandate and, in
particular, to promote the implementation of Agenda 21 by strengthening system-wide
coordination,
Further aware of and recognizing the significance of the United Nations
Institute for Training and Research/International Labour Organization/Organisation for
Economic Cooperation and Development Global Partnership for Capacity-Building to
Implement the Globally Harmonized System for building capacities at all levels to achieve
the 2008 target,
1. Expresses its deep appreciation to the Committee and other organizations
concerned for their fruitful cooperation;
2.
Requests the Secretary-General:
(a) To publish the Globally Harmonized System of Classification and Labelling
of Chemicals in all the official languages of the United Nations, in the most cost-effective
manner and to circulate it to the Governments of Member States, the specialized agencies and
other international organizations concerned as soon as possible and no later than 2004;
(b) To consider disseminating the Globally Harmonized System as a CD-ROM;
(c) To make the Globally Harmonized System available on the web site of the
secretariat of the Economic Commission for Europe, which also provides secretariat services
to the Committee;
3. Invites all Governments to take the necessary steps, through appropriate
national procedures and/or legislation, to implement the Globally Harmonized System as
soon as possible and no later than 2008;
4. Reiterates the call for support to developing countries in strengthening their
capacity for sound management of chemicals by providing technical and financial assistance;
5. Invites the regional commissions, United Nations programmes, the
specialized agencies and other organizations concerned to promote the implementation of the
Globally Harmonized System and, where relevant, to amend their respective legal
international instruments addressing transport safety, work safety, consumer protection or the
protection of the environment so as to give effect to the Globally Harmonized System
through such instruments;
6. Invites Governments, the regional commissions, United Nations
programmes, the specialized agencies and other organizations concerned to provide feedback
to the Subcommittee of Experts on the Globally Harmonized System of Classification and
Labelling of Chemicals;
7. Requests the Secretary-General to submit a report on the status of
implementation of the Globally Harmonized System;
8. Encourages Governments, regional commissions, United Nations
programmes, specialized agencies and other relevant international organizations and nongovernmental organizations, in particular industry, to support implementation of the Globally
Harmonized System and capacity-building activities in developing countries and countries in
transition by providing financial contributions and/or technical assistance;
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C
Programme of work of the Committee
Taking note of the programme of work of the Committee for the biennium 20032004 as contained in paragraphs 29 to 31 of the report of the Secretary-General,1
Noting the relatively poor representation of experts from developing countries
with economies in transition in the work of the Committee and the need to ensure their wider
participation in its work,
1.
Decides to approve the programme of work of the Committee;
2. Stresses the importance of the participation of experts from developing
countries as well as countries with economies in transition in the work of the Committee,
calls, in this regard, for voluntary contributions to facilitate their participation, including
through support for travel and daily subsistence allowance, and invites Member States and
international organizations in a position to do so to contribute;
3. Notes the recommendations of the Committee regarding staff resources,9 and
invites the General Assembly to consider this issue in the context of its review of the
proposed programme budget for the biennium 2004-2005:
4. Requests the Secretary-General to submit a report to the Economic and
Social Council in 2005 on the implementation of the present resolution.
49th plenary meeting
25 July 2003
9
As contained in E/2003/46, para. 33: see also A/54/443/Add.1, para.7.
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Annex 4:
Framework Workplan of the WSSD Global Partnership for Capacity
Building to Implement the GHS
To be made available at Forum IV.
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