UNITED
NATIONS
UNEP(DTIE)/GPWM/BC.1/INF/2
Global Partnership
on Waste Management
Distr.: General
12 October 2012
English only
Biennium Conference of the Global
Partnership on Waste Management
Osaka, Japan, 5 and 6 November 2012
Background paper on marine litter
I.
Introduction
1.
Solid material anywhere in the environment, can be delivered to marine environments
(washed, blown or via nearby waterways) and become marine litter if no mechanisms are in place to
intercept these materials. Marine litter is therefore part of a broader problem of solid waste management,
which affects all coastal and upland communities including inland waterways and is closely linked to the
protection and conservation of the marine and coastal environment and sustainable development (UNHABITAT, 2010). A lack of capacity and funding to effectively manage solid wastes is common,
particularly in developing countries, and contributes to the problem of marine litter.
2.
Marine litter can lead to loss of biodiversity, loss of ecosystem functions and services, loss of
revenue (e.g., reduced fisheries catch and tourism revenue), and increased costs due to beach cleanups
and damage to nautical equipment. Modest estimations indicate that the cost of marine litter is up to 1.3
billion USD per year for the 21 Asia Pacific Economic Cooperation (APEC) countries alone, while in
Australia, close to $6.5 million is spent annually on clean-up activities1.
II.
Background – the polluter does not pay
3.
The marine litter problem is global in scale and intergenerational in impact. Marine debris, or
marine litter, includes any anthropogenic, manufactured, or processed solid material (regardless of size)
discarded, disposed of, or abandoned that ends up in the marine environment. Marine litter may result
from activities on land or at sea. It is a complex cultural and multi-sectoral problem that causes
tremendous ecological, economic, and social costs around the globe.
4.
Despite decades of efforts to prevent and reduce marine litter in many countries, there is
evidence that the problem is persistent and continues to grow – especially as populations continue to
increase. Most current solid waste management practices are inadequate and require changes to the
regulatory and enforcement regimes as well as non-regulatory incentives. Better leadership, coordination
of mandates and resources are required at both the national, regional and international levels to better
address this global problem.
5.
The costs associated with marine litter are largely borne by parties different from those
causing the problem, with the result that there is insufficient liability to the entities responsible for the
source of the problem. Incentives and technical or financial support, such as programmes for fishermen to
retrieve litter or report on problems (including fishing gear) while at sea, can be very helpful. For
example, the campaign “Fishing for Litter”, initiated by the Dutch Government, has now been expanded
to Belgium and Scotland. Market-based instruments (MBIs) can also be used to encourage a behavioural
1
McIlgorm, A., Campbell H. F. and Rule M. J. (2008). Understanding the economic benefits and costs of controlling marine debris
in the APEC region (MRC 02/2007). A report to the Asia-Pacific Economic Cooperation Marine Resource Conservation Working
Group by the National Marine Science Centre (University of New England and Southern Cross University), Coffs Harbour, NSW,
Australia, December. APEC Project MRC 02/2007
For reasons of economy, this document is printed in a limited number. Participants are kindly requested to bring their copies to
meetings and not to request additional copies.
UNEP(DTIE)/GPWM/BC.1/INF/2
change or to generate revenue to address marine litter issues - these include fines, penalty charges and
non-compliance fees based on the costs of the damage.
III.
International commitment to address marine litter
6.
The Fifth International Marine Debris Conference took place from 20 to 25 March, 2011, in
Honolulu, Hawaii, bringing together 440 participants representing some 38 countries. Conference
participants - researchers, natural resource managers, policymakers, industry representatives, and the nongovernmental community - refined and endorsed by acclamation the Honolulu Commitment, which
outlines 12 actions to reduce marine debris. Participants and a group of rapporteurs also worked to revise
the Honolulu Strategy, a global framework strategy for the prevention and management of marine debris.
7.
The idea behind the Honolulu Strategy is to create a broad framework for actions that can be
taken at the local, regional, national and global level by individuals, civil society, governments and
international organizations. The final version is available from www.5imdc.org/honolulustrategy and
www.gpa.unep.org.
8.
UNEP introduced the Honolulu Strategy to the Third Intergovernmental Review Meeting
(IGR-3) on the Implementation of the Global Programme of Action for the Protection of the Marine
Environment from Land-based Activities (GPA), 25-26 January 2012, as the framework that can be
adopted and used by member countries and organizations. Representatives of 64 Governments and the
European Commission emphasized the relevance of the Honolulu Commitment, endorsed at the 5th
International Marine Debris Conference, and the Honolulu Strategy. They decided to work with all
stakeholders concerned to find innovative solutions and initiatives to address the marine litter problem,
including by sharing best practices, technical information about capacity building, and legal, policy,
community-based, economic and market-based means of preventing, reducing and managing marine
litter.
9.
Marine litter has been an area of focus of UNEP through the UNEP Global Initiative on
Marine Litter, involving the Regional Seas Conventions and Action Plans and the GPA. Under the GPA,
marine litter has been highlighted as a priority source category for 2012-2016, giving UNEP a strong
mandate to continue its work on this issue over the next 5 years. UNEP’s marine debris related activities
feed into the workplan of the Global Partnership on Waste Management (in the focal area of ‘Marine
Litter’). This will ensure that marine litter issues, goals, and strategies are tied to global efforts to reduce
and manage waste.
10.
The ‘Manila Declaration’, coming out of the IGR-3 of the GPA, also recommended the
establishment of a Global Partnership on Marine Litter, which was launched at a Side-Event in Rio on 18
June 2012. At this launch, key stakeholders working in the field of marine litter/debris discussed how to
coordinate their activities and pool resources to develop and implement a concrete international
partnership, which advances, inter alia, the Honolulu Strategy. This launch complemented paragraph 163
of the Rio Outcome document which, inter alia, noted with concern that the health of oceans and marine
biodiversity are negatively affected by marine pollution, including marine debris, especially plastic and
committed to take action to reduce the incidence and impacts of such pollution on marine ecosystems.
Paragraph 163 further committed to take action to, by 2025, based on collected scientific data, achieve
significant reductions in marine debris to prevent harm to the coastal and marine environment.
11.
The Global Partnership on Marine Litter (GPML), which forms the core of the GPA’s Work
Programme on marine litter, will aim to achieve the following proposed objectives (to be revised and
agreed upon together with partners over the next few months):
a)
To address the ecological, human health, and economic impacts of marine litter worldwide.
b) To enhance international cooperation and coordination through the promotion and
implementation of the Honolulu Strategy - a global framework for the prevention and management
of marine debris, as well as the Honolulu Commitment – a multi-stakeholder pledge.
c)
To promote knowledge management, information sharing and monitoring of progress on the
implementation of the Honolulu Strategy.
d) To promote resource efficiency and economic development through waste prevention (e.g.
4Rs) and by recovering valuable material and/or energy from waste.
e)
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To increase awareness on marine litter sources, fate and impacts.
UNEP(DTIE)/GPWM/BC.1/INF/2
f)
To assess emerging issues related to the fate and potential influence of marine litter, such as
(micro) plastics and associated transfer of pollutants.
12.
UNEP has committed to support the Global Partnership on Marine Litter under the GPA
Workplan for 2012-2013 with USD 500,000. It is hoped that additional co-financing can be raised to
implement joint activities in support of the further development and strengthening of the GPML which
will directly feed into and support the implementation of the GPWM, within the following four main
areas: Further development of the partnership; online marine litter forum to enable the global marine
debris community to monitor progress on implementing the Honolulu Strategy and share information,
lessons learned, and tools; support to regional activities/nodes; and demonstration projects for reducing
the inflow of solid waste into the marine environment.
13.
The online platform would aim to facilitate access to other online resources and initiatives
without trying to substitute them. It will coordinate with the online platform of the GPWM to increase
synergies.
14.
UNEP will also work to engage interested countries and non-governmental stakeholders to
develop and carry out additional, complementary projects addressing land-based and sea-based sources of
marine litter.
IV.
Legal and regulatory instruments on marine litter
15.
Addressing global challenges requires coordination and a collective and concerted effort,
involving actors at all levels. Marine litter is partially addressed by these Conventions and agreements:
-
IMO- MARPOL 73/78 Annex V (garbage from ships)
London Convention and Protocol on Dumping
Basel Convention
Agenda 21 and the Johannesburg Plan of Implementation
Convention on Biological Diversity (CBD), with the Jakarta Mandate
CMS - Convention on Migratory Species
GPA - Global Programme of Action for the Protection of the Marine Environment from Landbased Activities
Some of the Regional Seas Conventions and Action Plans (and Land-based Activities/Sources
of pollution; LBA/S Protocols)
FAO Code of Conduct for Responsible Fisheries (abandoned/lost fishing gear)
16.
In addition, there are hundreds of legal, regulatory and management initiatives at regional,
national, sub-national and community levels. Examples include the development of marine debris
indicators for the European Commission Marine Strategy Framework Directive. Other notable examples
include marine debris work done by the NOAA and its partners in the United States; the Waste and
Resources Action Programme of the UK and others. Through partnerships and alliances, and by pooling
comparative advantages, chances for success are increased.
V.
Possible discussion points
17.
Increased coordination with relevant initiatives at global, regional and national levels – what
are key steps to take?
18.
What are the key obstacles to better data accessibility on marine litter – a basis for effective
public policies? How can they be addressed?
19.
How can compliance with existing legal instruments be enforced and monitored?
20.
How can the marine litter waste stream be integrated into national waste management
strategies?
VI.
Conclusion
21.
Clearly, marine litter is a global problem and mitigation actions should be developed around a
global framework, coordinated at the regional level and implemented at the national level through
development and implementation of national action plans or strategies. Adequate quantitative and
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UNEP(DTIE)/GPWM/BC.1/INF/2
qualitative knowledge of the sources of marine litter is extremely important to serve as the basis for
management decisions on actions to prevent, reduce and control problems caused by marine litter.
22.
Prevention is generally more effective and efficient than remedial action. National action
plans or strategies should be based on development, implementation and enforcement of national
legislation for waste management that includes marine litter; enhancement of institutional mechanisms;
strengthening of public, governmental and private sector partnerships; expanded outreach and education
campaigns aimed at raising public awareness; and development of frameworks for engaging key
stakeholders and partners.
23.
Education and public awareness campaigns in particular are essential tools for environmental
protection, as raising public awareness and encouraging people to change their attitudes and behaviours
related to solid waste management are essential components in efforts to mitigate marine litter. The
International Coastal Clean-up campaign is a good example. Similarly, Clean up Australia and Clean Up
the World campaigns raise awareness and engage community groups.
24.
The information provided by the UNEP Global Initiative on Marine Litter provides a starting
point for the management of this problem at a global scale. Reducing and controlling marine litter in the
world’s oceans is a significant but achievable challenge. Existing solutions must be tailored and
replicated for specific regions, comprising innovative economic incentives to prevent litter and encourage
the cleanup, prevention and management of abandoned, lost or otherwise discarded fishing gear,
harmonization of monitoring and assessment systems, and establishment of adequate reception facilities
for maritime garbage and wastes.
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