Just transition and Global Plastic Treaty — An inclusive journey towards circularity?

Globally, human beings produce over 353 million tonnes of plastic waste each year, according to The Global Plastics Outlook. Yet, only 9 per cent of this waste is recycled, according to the United Nations Environment Programme (UNEP) report from December 2023. Of that 9 per cent, 85 per cent of recycling is conducted by informal recycling workers, who rely heavily on the recovery and recycling of plastics for their livelihoods. 

Investments and policy responses designed to address plastic pollution frequently overlook these workers, compromising their ability to sustain their livelihoods. This oversight can impede a just transition towards a sustainable environment and circular economy.

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Informal recycling activities are predominantly found in urban areas and significantly reduce the amount of waste sent to landfills and dumpsites, thereby minimising plastic leakage into the environment. This also yields economic benefits for informal waste pickers and others in the plastic waste value chain, as well as for municipalities, which in turn incur lower costs for waste collection and transportation. 

Even the recycling industries, in many countries especially in the Global South, depend heavily upon this informal pyramid of waste pickers and aggregators.

Despite the significance of their work, informal waste pickers and others in the plastic value chain remain largely unrecognised at international, national and local levels. Their work is often characterised by unsafe and unhealthy conditions, low and inconsistent incomes, long working hours and a lack of access to social security, information, markets, finance, training and technology.

A just transition, in the context of ending plastic pollution, refers to a process of designing, promoting and implementing actions to transition to sustainable plastic production and consumption in a way that is fair and inclusive, creating decent work opportunities and ensuring no one is left behind. 

Both waste pickers and the concept of just transition have gained attention during the process of developing the Global Plastics Treaty, mandated by the United Nations Environment Assembly 5/14 resolution. This resolution acknowledges the significant contributions of workers in informal settings in many countries, recognising their critical role in collecting, sorting and recycling plastics.

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However, in order for the Global Plastics Treaty to adequately safeguard the livelihoods of the impacted workers, the concept of just transition, identification and recognition of them must be understood by all parties and adequately described in the treaty. The transformation of the plastic economy towards a circular model must be fair, just and inclusive ensuring that no one is left behind.

Just Transition is a framework that focuses on fair distribution of economic and social benefits during transitions to sustainability. It aims to maximise opportunities for all, including vulnerable populations, and is recognised as a crucial legal and policy tool. In international negotiations, there’s a push to include informal workers like waste pickers to ensure their rights are protected.

In the context of Global Plastics Treaty negotiations, it is critical to acknowledge the critical role of workers, particularly those from marginalised communities, in effectively implementing environmental and human health measures. A just transition to address plastic pollution involves workers throughout the entire plastics lifecycle, from production to waste management. 

Therefore, the Global Plastics Treaty should include legally binding provisions mandating just transition as a requirement in treaty obligations, national action plans, reporting practices and compliance monitoring.

Traditionally, waste pickers are in the re-use and repurpose business all over the world, and we must recognise that recycling alone cannot provide a comprehensive solution, despite the fact that it is critical in combating plastic pollution.

But with the advancement of linear economy, their importance was diminished, therefore, as per the International Alliance of Waste Pickers (IAWP), it is critical to incorporate them and secure their involvement in material recovery and re-use systems as an integral part of the just transition to sustainable options.

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In their position paper on Just Transition, the IAWP has outlined the critical component of its framework, beyond the responsibility of the government to identify viable and decent livelihood opportunities for the workers at risk of displacement: 

• Recognition of Waste Pickers in norms, policies and laws
• Universal registration of waste pickers
• Transparency, oversight and adaptation
• Direct involvement and advancement in policy
• Social Protections and safeguards
• Fair remuneration, living wages and sustainable livelihoods
• Formalisation and strengthened organising
• Capacity Building and appropriate technology transfer
• Improved materials management

Revised zero draft on Just Transition

The revised draft text of Global Plastics Treaty, dated December 28, 2023, was compiled by UNEP Intergovernmental Negotiating Committee (INC) Secretariat on the basis of session submissions and the interventions that were made by the member states on the basis of the negotiation of the zero draft at the INC-3 held between November 13 and 19, 2023 at Nairobi, Kenya. 

The revised zero draft outlines approaches to promote a fair, equitable and inclusive transition in managing plastic waste with a focus on affected population and sustainable development. 

It emphasises national efforts to ensure a Just Transition, considering vulnerable groups and workers in the plastic waste value chain. It suggests designing coordinating bodies for stakeholder engagement, enabling policies for income improvement and job opportunities, promoting skill development, ensuring a safe working environment and utilising extended producers’ responsibility (EPR) schemes to enhance infrastructure and livelihoods. 

The revised zero draft emphasises ‘Just Transition’, urging cooperation between nations, particularly developed countries supporting developing ones financially and technically. It prioritises fair transitions for vulnerable groups, particularly women, children and youth, through policy improvements and institutional enhancements. 

Additionally, it focuses on inclusive and sustainable plastic waste management, aiming for social and economic equity. Various implementation mechanisms and support frameworks are proposed to achieve these goals.

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The IAWP has recommended further for the member states participating in INC-4. Their key recommendations are  

• Ensure that Just Transition is included in the preamble, scope and section on waste management as well as in the places where it already exists (like the EPR Section)
• To retain the mention of waste pickers throughout the text and 
• Include definitions for waste pickers, Just Transition and workers in informal and cooperative settings. 

Member state submissions on Just Transition in INC-3

Throughout the three concluded rounds of discussions, a limited number of member states and regional groups have been actively engaged in contributing to and influencing the negotiations around Just Transition. Following is a snapshot of the progress made thus far to shape the Just Transition text in the draft treaty. 

Despite their significant contributions to environmental protection and the overall well-being of life on our planet, waste pickers continue to face enduring cycles of poverty and marginalisation. While negotiations for the Global Plastics Treaty advance in the INC-4 and beyond, 20 million individuals engaged in waste picking confront life-threatening challenges as they work in streets and dumpsites recovering materials. 

Read more: Global plastic profiles: Where do countries stand on a ‘just transition’ for the plastic industry?

Discrimination, stemming from their occupation, identities and economic limitations, remains prevalent. As they advocate for a fair transition, there is a demand for transformative action that not only acknowledges but also addresses these inequalities, ensuring fair and dignified conditions for waste pickers and other essential workers throughout the entire plastics value chains. 

While their historical and present-day role in mitigating plastics pollution is undisputed, they strongly advocate for legal recognition of this contribution in local and national policies, including within the Plastics Treaty itself. Only through such measures can they progress towards a more just and sustainable future for all.