ILO, OECD and UNEP/FAO Chemical Safety Activities: A Comparative AnalysisChapter IIOverview of Target Organizations |
The ILO was established in 1919 with a constitutional principle that promotes social justice and a strong mandate for the protection of working men and women from occupational injuries and diseases. As a specialized agency of the United Nations, the ILO enjoys a unique tripartite (governments, employers, workers) structure. It engages in the formulation of international socio-labour policies, the creation of international labour standards (Conventions), international technical cooperation and in training, education, research and information dissemination.
The development of international standards in the form of Conventions and accompanying Recommendations, which are adopted by the International Labour Conference, is thus one of the main functions of ILO.
As a general matter, there is a hierarchy of four types of documents which are issued by the ILO, in increasing order of importance: manuals; codes of practice; recommendations; and conventions.
Conventions are comparable to multilateral international treaties; they are open to ratification by member States and, once ratified, become binding obligations. A government that has ratified a Convention is expected to apply its provisions through legislation or other appropriate means and to report regularly on the application of the Convention. Conventions that have not been ratified have the same status as Recommendations.
Recommendations offer guidelines for action by member States. Member States have certain procedural obligations with respect to Recommendations, i.e. to submit the texts to their legislative bodies, to report on action resulting therein and to report occasionally at the request of the Governing Body on measures taken or planned.
With respect to activities concerning chemical safety, the improvement of working conditions and environment and the well-being of workers is the general objective of the ILO's Major Programme on Working Conditions and Environment. The Major Programme covers three main areas: occupational safety and health; conditions of work and welfare facilities and the elimination of child labour. The Programme is also responsible for activities related to the environment.
The objective of the ILO "Safety and Health Programme" is to promote and support efforts to reduce occupational accidents and diseases and to improve the working environment.
As part of the Safety and Health Programme, the ILO has undertaken work related to chemical safety in order to strengthen capabilities within countries in this field. The work consists of the elaboration of guidelines and international agreements, and the provision of technical assistance and training programmes through workshops.
The ILO subprogramme of work in chemical safety is the responsibility of the Occupational Safety and Health Branch. Chemical safety has been identified by member States as one of the major issues of this decade and has been given a high priority in the ILO Programme on Working Conditions and Environment.
The Occupational Safety and Health Branch of the ILO aims to increase the capacity in member States to prevent occupational accidents and work-related diseases and to improve working conditions. In pursuing this aim, the Occupational Safety and Health Branch develops international labour standards and guidance, provides technical advisory services and disseminates information through the International Occupational Safety and Health Information Centre (CIS). The Centre provides information on workplace hazards and their control including legislation, training materials and safety data sheets. Chemical safety sheets available from the ILO contain full information, in several languages, about more than 100,000 chemicals including chemical hazards and precautionary measures. The ILO has also established the International Occupational Safety and Health Hazard Alert System which rapidly disseminates scientific and technical information on newly discovered or suspected occupational hazards.
Activities to promote chemical safety, based on the provisions of the ILO instruments, focus on practical guidance to programmes at the enterprise level and the reduction of workers' exposure to chemicals including the protection of the general public and the environment. The subprogramme will be implemented through the: preparation of reviews and technical guidance notes for application at the enterprise level; provision of technical advisory services to government agencies and employers' and workers' organizations; organization of training activities in chemical safety at the national and regional levels; preparation of technical publications; and development of technical cooperation activities with a view to strengthening institutions and upgrading national and regional capabilities.
Between 1948 and 1995, a tripartite ILO chemical industry committee, composed of representatives from governments as well as from employers' and workers' organizations from major chemical producing countries, met regularly to review, in a systematic way, a range of labour issues affecting those who work in the chemical sector. The recommendations from these meetings are not binding.
The OECD is an intergovernmental organization in which 28 industrialized countries from North America, Europe and the Pacific meet to compare, coordinate and, where appropriate, harmonize national policies, discuss issues of mutual concern, collect and analyse comparative data, and work together to respond to problems with international dimensions. The European Commission participates in the work of the organization.
The Council, which has decision-making authority, is the highest authority of the OECD. It is composed of one representative from each member country (as well as a representative of the European Commission). The Council meets regularly at the level of ambassadors to the OECD to give general guidance to the organization. Using a consensus approach, the Council can reach various types of agreements including decisions which are legally binding on member countries and Council Recommendations, which are expressions of political will.
Most of the organization's work is carried out by the more than 200 specialized committees and subsidiary groups composed of representatives designated by the governments of member countries, with observers from other international organizations and countries with special status. The OECD works with industry groups and trade unions. The Business and Industry Advisory Committee (BIAC) and the Trade Union Advisory Committee (TUAC) frequently participate in workshops and other activities, and provide information and their views on activities undertaken by policy bodies. The committees and subsidiary bodies are supported by the OECD Secretariat headed by a Secretary-General.
In 1971, concern over widespread contamination and adverse effects, coupled with the need for international cooperation, prompted the OECD to establish a Chemicals Group to undertake work on the safety of chemicals. The work was expanded in 1978 with the creation of a Special Programme on the Control of Chemicals and a Management Committee to oversee this Programme. Since 1983, the policy direction and priorities for OECD activities on chemicals have been determined by the Joint Meeting of the Chemicals Group and Management Committee. Much of the technical work and policy guidance is carried out by subsidiary bodies to the Joint Meeting. For example, the OECD Accidents Programme is managed by the Expert Group on Chemical Accidents.
Within the OECD Secretariat, work related to chemical safety is organized by the Environmental Health and Safety Division of the Environment Directorate. As appropriate, work is undertaken in cooperation with other divisions and directorates. The principle objectives of the Chemicals Programme have been to:
Work is undertaken on a range of issues related to testing, assessment and management of chemicals. Initially focusing on safety issues involving specific chemicals, the Chemicals Programme began to take an active role in catalysing the development of harmonized policies and practical tools for protecting human health and the environment. This is reflected in the more than twenty Council Acts that have been issued, as described in the next section.
The OECD has had, since 1988, a comprehensive programme relating to chemical accident prevention, preparedness and response as part of its Environment Programme. Based on the conclusions of a ministerial level conference, its focus is on providing a forum for the exchange of information and experience, for analysis of issues of common concern and for the development of guidance materials.
In the field of chemical safety, including chemical accidents, OECD works closely with other international organizations including UNEP (both IRPTC and UNEP Industry and Environment Office - UNEP IE - which has primary responsibility for work on chemical accidents), IPCS, WHO, ILO and others. It has involved delegates of the BIAC and the TUAC, as well as other representatives of industry, labour and other non-governmental organizations in its activities including workshops and the development of guidance materials. Increasingly, the Joint Meeting and subsidiary bodies make an effort at outreaching to non-OECD countries, directly and through cooperation with other international organizations, share information and experience beyond the OECD region.
The UN General Assembly endorsed the conclusions of the 1972 Stockholm Conference and established the UN Environment Programme. It is technically not an institution but a programme which comprises all the activities undertaken within the UN system that relate to the environment. Its purpose is to catalyse, coordinate and stimulate action. In doing so, it established the Government Council composed of 58 nations, elected by the General Assembly for three year terms. Its purposes are to promote international cooperation, provide general policy guidance for programmes within the UN system and keep both the world situation and the implementation of UN programmes under review. The General Assembly also established a UNEP secretariat with its headquarters in Nairobi and headed by an Executive Director.
UNEP established the International Registry for Potentially Toxic Chemicals (IRPTC) in 1976 to collect and disseminate information on chemicals. Following the 1992 UN Conference on Environment and Development (UNCED), IRPTC underwent a review of its policy, strategy and activities in the context of the implementation of Agenda 21. Under the new mission statement, the IRPTC is "to provide guidance, information, and tools for the environmentally sound management of chemicals for sustainable development, and thereby help to increase the capacities of countries to assess and manage risks posed by chemicals and to adopt risk reduction activities, as appropriate".
Among the programme areas of the IRPTC, which is located in Geneva, is chemical information management. In this regard, the IRPTC collects, maintains and disseminates information concerning chemicals and legislation for the assessment and control of chemical hazards. Computerized central files have been compiled on approximately 1000 priority chemicals. The database contains files on the hazardous properties of chemicals and on spills, treatment of poisoning and treatment and disposal of waste chemicals. IRPTC also operates a Query Response Service on chemicals: queries from national authorities, institutions, industry and NGOs are answered using IRPTC databank and other sources available to them.
The IRPTC has built a global information exchange network of national and international organizations including IRPTC National Correspondents from 125 countries. Other network partners include other UN agencies, inter-governmental organizations, chemical industry associations and non-governmental organizations. The IRPTC also promotes the development and application of methodologies and tools for the implementation of effective national chemical management systems. It has published scientific and technical documents on chemical management and publishes a regular Bulletin devoted to information on hazardous chemicals. It also published, jointly with UNEP INFOTERRA, the "Directory on Chemical Safety: Information Sources", which is a definitive reference working tool for contacting internationally recognized experts in the field of chemical safety.
The IRPTC undertakes a number of activities to assist developing countries to improve national programmes and policies related to the management of chemicals. In 1987, UNEP adopted the London Guidelines for the Exchange of Information on Chemicals in International Trade. In 1989 UNEP's Governing Council adopted the amended London Guidelines to include a procedure for "Prior Informed Consent" (PIC). In the same year, FAO incorporated PIC in its Code of Conduct, and a joint programme was established to implement PIC. The IRPTC is responsible for the implementation of the London Guidelines and, in particular, to implement the procedure jointly with the FAO.
The overall mandate of the FAO is to promote the common welfare by actions to raise levels of nutrition and standards of living, to secure improvements in the efficiency of the production and distribution of all food and agricultural products, to improve the conditions of rural populations and to ensure humanity's freedom from hunger. The organization collects, analyses, interprets and disseminate information, promotes and, where appropriate, recommends action with respect to appropriate scientific, technological, social and economic research as well as the improvement of education and administration.
The main organs of the FAO are the Conference, the Council and a Secretariat which is located in Rome and headed by a Director-General. Commissions and Committees may be established and conferences and working parties may be convened. The Conference is composed of representatives of all member nations, each having one vote. Regular sessions are held every second year and determine policy and approve budgets. The Council includes 49 member nations with powers delegated by the Conference. A number of standing committees assist the Council.
In the area of chemical safety, work began at an early stage concerning the quality of food additives and levels of residues of pesticides. The Code of Conduct was approved by the Conference in November 1985, later amended in 1989 to incorporate the PIC procedures.
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