Background Notes on the Stockholm Convention on Persistent
Organic Pollutants (POPs)
What does the Stockholm Convention aim to achieve? The overall
objective of the convention is to protect human health and the
environment from POPs.
What are persistent organic pollutants? Persistent Organic Pollutants
(POPs) are chemical substances that persist in the environment,
bioaccumulate through the food web, and pose a risk of causing adverse
effects to human health and the environment. There is clear evidence of
long-range transport of these substances to regions where they have
never been used or produced, posing threats to the environment of the
whole globe.
What chemicals does the Stockholm Convention cover? The
organochlorine (chlorine-containing) chemicals listed as POPs under the
convention are: 9 pesticides: aldrin, chlordane, DDT, dieldrin, endrin,
heptachlor, mirex, hexachlorobenzene, and toxaphene. PCBs
(polychlorinated biphenyls); dioxins and furans (polychlorinated
dibenzo-p-dioxins or PCDDs, and polychlorinated dibenzofurans or PCDFs).
Why are these chemicals considered dangerous? Organochlorines are
stored in body fat and accumulate through the food chain. Even a low
concentration of emissions to the environment can build up over time
into a significant risk to the health of people and animals, including
birds and marine mammals. POP chemicals include some of the most toxic
chemicals known to human kind. [See UNEP press release dated 14 May
2004].
What was New Zealand’s use of these POP chemicals?
Organochlorine pesticides From the mid 1940s until the 1970s some
persistent organochlorine pesticides (including DDT, dieldrin) were used
widely in New Zealand. The main areas of use were agriculture,
horticulture, timber treatment and public health (Table 1). Smaller
amounts were also used for amenity purposes and in households.
The use of pesticides in New Zealand was not subject to compulsory
regulatory control until the Agricultural Chemicals Act 1959 established
the Agricultural Chemicals Board. The use of persistent organochlorine
pesticides was then progressively restricted by a succession of
legislative measures, so that, by the mid 1970s their use had
effectively ceased in agriculture and horticulture. All persistent
organochlorine pesticides except PCP were formally deregistered by the
Pesticides Board in 1989, and PCP was deregistered in 1991.
Table 1 Summary of the historical usage of persistent
organochlorine pesticides in New Zealand
Pesticide Application
DDT
Used as a pasture insecticide to control grass grub (Costelytra
zealandia) and porina (Wiseana sp.) caterpillars. Frequently mixed with
fertiliser or lime and applied particularly to agriculture pastures, as
well as lawns, market gardens and parks.
Aldrin and dieldrin
Introduced in 1954 for use as stock remedies in sheep sprays or dips for
controlling sheep ectoparasites. Aldrin was used to control
horticultural pests such as wireworm, soldier fly and blackvine weevil,
and in limited quantities to control household spiders. Dieldrin was
used for controlling carrot rust fly, crickets and armyworm and was also
used for timber preservation (mostly in plywood glues) and to mothproof
carpets.
Chlordane Broad spectrum agricultural insecticide, also used
in the timber industry as a treatment against termites and borer, and as
an insecticide in glues used for the manufacture of plywood, finger
jointed and laminated timber.
Hexachlorobenzene (HCB) Used
experimentally between 1970 and 1972 as a seed-dressing fungicide for
cereal grain.
Heptachlor, endrin and toxaphene
Other organochlorines Lindane (-HCH) Only small amounts of these
pesticides were ever used in New Zealand. (Endrin and toxaphene were not
included in the New Zealand survey).
Used as an insecticide in agriculture for the control of lice on
cattle, ectoparasites (lice, keds and blowflies) in sheep and grass grub
in pasture. Also used for insect control on vegetables and in orchards.
Household use: flyspray, flea control, and carpet moth.
PCP In the
order of 5,500 tonnes of PCP is estimated to have been used in the New
Zealand timber industry over a 35 to 40-year period as an antisapstain
(fungicidal) treatment for freshly cut timber (mainly Pinus radiata).
Its use in the timber industry ceased in 1988. PCP was also used to a
relatively minor extent by the pulp and paper industry and the tanning
industry, in mushroom culture in home gardens and on roofs to control
moss and algae.
Polychlorinated biphenyls PCBs were used widely in industry as
electrical transformer fluids, heat transfer fluids, hydraulic fluids,
solvent extenders, flame retardants, plasticisers, dielectric fluids,
some paints and printing inks, immersion oils and sealants. The unusual
industrial versatility of PCBs is directly related to their chemical and
physical properties, which include resistance to acids and bases,
compatibility with organic materials, resistance to oxidation and
reduction, excellent electrical insulating properties, thermal
stability, and non-flammability.
The widespread use of PCBs, coupled with industrial accidents and
improper disposal has resulted in significant environmental
contamination by these chemicals in many countries, particularly within
the more industrialised northern hemisphere. Most NZ stocks of PCBs have
already shipped overseas and destroyed in a nationwide recall of PCBs
used in the electrical supply industry. New Zealand is committed to
complete the PCB replacement programme by 2014.
‘Dioxin’ is a generic term to describe a family of
chlorine-containing chemicals called dioxins and furans. These unwanted
and highly toxic ‘by-product’ chemicals are formed in very small amounts
when chlorine is present in some industrial processes, and during the
burning (combustion, incineration) of organic materials.
Historically what were New Zealand’s main industrial sources of
dioxin? Past releases of dioxin into the environment resulted mainly
from three industrial activities. The chlorinated chemicals,
pentachlorophenol (PCP) and 2,4,5-T, contained dioxin impurities. PCP,
widely used as a fungicidal and preservative treatment of timber, was
voluntarily phased out by the timber industry in 1988 and is no longer
used. The herbicide 2,4,5-T is no longer manufactured or imported. Also,
advances in pulp processing mean that elemental chlorine is no longer
used in the manufacture of bleached paper – previously a source of
dioxin formation.
Have other countries signed the Stockholm Convention? There are 151
signatories to the convention, as of September 2004; New Zealand is
likely to be the 78th ratified party.
What will be New Zealand’s first convention obligation? The Ministry
for the Environment is to prepare a National Implementation Plan by
September 2006 that will set out how NZ plans to implement convention
obligations. NZ will utilise and update the information gained under the
Ministry’s organochlorine research programme that began in 1995,
consolidate existing work (e.g. stockpiles and wastes, clean up of
contaminated sites, dioxin emissions reduction) and assess the need for
new work.
What is New Zealand already doing towards meeting Stockholm
Convention obligations?
Stockpiles and wastes The Ministry for the Environment, working with
local government, is undertaking a national collection of agricultural
chemicals in rural New Zealand. The program has two stages, firstly to
remove as much as possible the historical legacy of agrichemicals stored
in rural sheds across the country. A key focus is the removal of POP
pesticides. The second stage is to put in place a longer-term industry
led extended producer responsibility (EPR) solution to manage and
dispose of future unwanted chemicals to ensure that we do not recreate
the same problem again in the future.
Clean up of contaminated sites The Government has established a
Contaminated Sites Remediation Fund to assist local government to assess
and clean up contaminated sites, including sites contaminated by POPs
chemicals. The first major expenditure from the fund is being used to
clean up one of New Zealand’s worst contaminated site at Mapua
(contaminated by DDT and dieldrin). The Ministry for the Environment has
published a series of guidelines for managing contaminated land,
available at www.mfe.govt.nz/issues/hazardous/contaminated/
Dioxin emissions reduction: New Zealand is obligated under the
convention to take measures to reduce, and where feasible ultimately
eliminate, releases of dioxin. As a first measure, the Ministry for the
Environment has developed National Environmental Standards (NES) as
regulations under the Resource Management Act 1991. The NES for Certain
Air Pollutants, Dioxins and Other Toxics, bans certain activities that
produce dioxins and other air toxins. The activities, banned from 8
October 2004 comprise: burning insulated copper wire, oil or tyres in
the open burning road seal high-temperature incineration of hazardous
waste (except for three facilities that have existing resource consents)
low-temperature waste incineration in schools and hospitals (unless the
facility has a resource consent) The Ministry undertook an evaluation of
dioxin releases (NZ Inventory of dioxin emissions to air, land and
water, and reservoir sources, Ministry for the Environment, 2000). This
work was followed up by an assessment of the NZ metallurgical industry
(Dioxin and Furan Emissions to Air from Secondary Metallurgical
Processes in New Zealand, Ministry for the Environment, 2004).
How much do we know about dioxin in New Zealand? The Ministry for the
Environment has researched and reported on the amount of dioxin in our
air, water, soil, and food. In addition, the Ministry assessed the
levels of dioxins in the bodies of New Zealanders and appraised health
risks. See
www.mfe.govt.nz/publications/hazardous/index.html#organochlorines.
How do our dioxin levels compare internationally? Background levels
of dioxins in the New Zealand environment are generally low compared
with the levels recorded in many other countries. The levels of dioxins
in New Zealand foods, including our meats, dairy products and fish, are
also low. According to the Ministry for the Environment’s 2001 serum
study, the average concentration of dioxins in New Zealanders, aged 15
years and older, was 12.8 ng TEQ per kilogram of body fat. When looking
at comparable results from other developed countries, the concentrations
of dioxins in the serum of adult New Zealanders tend to be towards the
lower end of the range, particularly for the younger age groups.
For use of the media only; not an official document.
PRESS RELEASE
Stockholm Convention on POPs to become
international law,
launching a global campaign
to eliminate 12 hazardous chemicals
Stockholm, 14 May 2004 – The 2001 Stockholm Convention on Persistent
Organic Pollutants (POPs) enters into force on Monday, May 17, marking
the start of an ambitious international effort to rid the world of PCBs,
dioxins and furans, and nine highly dangerous pesticides.
“The Stockholm Convention will save lives and protect the natural
environment – particularly in the poorest communities and countries – by
banning the production and use of some of the most toxic chemicals known
to humankind,” said Executive Klaus Toepfer of the United Nations
Environment Programme (UNEP), under whose auspices the Convention was
adopted.
“Over the next several years national investments plus donor pledges
of hundreds of millions will channel more than five hundred million
dollars into an overdue and urgently needed initiative to ensure that
future generations do not have to live as we do with measurable
quantities of these toxic chemicals stored in their bodies,” he said.
Much of this funding will be managed by the Global Environment
Facility, which serves as the financial mechanism for the Convention on
an interim basis. Of all the pollutants released into the environment
every year by human activity, POPs are amongst the most dangerous. For
decades these highly toxic chemicals have killed and sickened people and
animals by causing cancer and damaging the nervous, reproductive and
immune systems. They have also caused uncounted birth defects.
Governments will seek a rapid start to action against POPs when they
meet for the first meeting of the Conference of the Parties to the
Convention (COP 1) in Punta del Este, Uruguay in the first week of May,
2005. They will fast-track efforts to:
reduce or eliminate the carcinogenic chemicals known as dioxins and
furans, which are produced unintentionally as by-products of combustion.
Many of the required improvements in technologies and processes may
prove expensive and technically challenging, particularly for developing
countries.
assist countries in malarial regions to replace DDT with
the increasingly safe and effective alternatives. Until such
alternatives are in place, the Convention allows governments to continue
using DDT to protect their citizens from malaria – a major killer in
many tropical regions.
support efforts by each national government to
develop an implementation plan. Already, over 120 developing countries
have started to elaborate such plans with funds from the Global
Environment Facility. The COP will also focus on channelling new funds
into POPs projects.
measure and evaluate changes in the levels of
POPs in the natural environment and in humans and animals in order to
confirm whether the Convention is indeed reducing releases of POPs to
the environment.
establish a POPs review committee for evaluating
additional chemicals and pesticides to be added to the initial list of
12 POPs.
finalize guidelines for promoting “best environmental
practices” and “best available techniques” that can reduce and eliminate
releases of dioxins and furans.
In addition to banning the use of POPs, the treaty focuses on
cleaning up the growing accumulation of unwanted and obsolete stockpiles
of pesticides and toxic chemicals that contain POPs. Dump sites and
toxic drums from the 1950s, ‘60s, and ‘70s are now decaying and leaching
chemicals into the soil and poisoning water resources, wildlife and
people. The Convention also requires the disposal of PCBs and
PCB-containing wastes.
Every human in the world carries traces of POPs in his or her body.
POPs are highly stable compounds that can last for years or decades
before breaking down. They circulate globally through a process known as
the "grasshopper effect". POPs released in one part of the world can,
through a repeated process of evaporation and deposit, be transported
through the atmosphere to regions far away from the original source.
Fortunately, there are alternatives to most POPs. The problem has
been that high costs, a lack of public awareness, and the absence of
appropriate infrastructure and technology have often prevented their
adoption. Solutions must be tailored to the specific properties and uses
of each chemical, as well as to each country's climatic and
socio-economic conditions.
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