Our oceans are of utmost importance to life and our own survival and wellbeing, they regulate our climate, provide food and recreation, and mental and physical wellbeing (Vierros, et al., 2015). Notwithstanding their importance, our oceans are under severe threat. An assessment conducted for UNESCO showed clearly that most, if not all, marine nature sites globally have been affected at least to some extent by plastic waste (Mannaart, et al., 2019). In response to the problem, there are global efforts to remove existing plastic litter from the marine environment, for example through schemes such as the collection of passively fished waste, which forms part of the EU Port Reception Facilities Directive, and the Fishing for Litter scheme (Mannaart & Bentley, 2022 and 2017). A considerable part of clean-up operations is carried out by both volunteers and professionals, and financed by either/or private business, foundations and authorities (local, regional, and national level). However, collecting and removing plastic waste from the marine environment, and especially addressing plastics that are small or have been degraded into micro- and nanoparticles is challenging. While clean-up activities are extremely valuable, the prevention of further inputs of plastics into our seas (‘turning off the tap’) is vastly preferable if we are to try to mitigate the effects of plastic pollution to a point where it does not harm the marine environment. There are many good intentions that have been turned into policies and even measures to address this huge challenge. Despite these, pollution by plastics of our environment including the seas and oceans still occurs both unintentionally and intentionally. Pollution caused by mass emission of small plastic items and especially plastic pellets is a particular challenge, and the basis upon which this report was commissioned.
1.1 Background
On 23 February 2020, the Motor Vessel Trans Carrier, a cargo ship, sailing from the Netherlands to Norway, lost 13.2 tons of plastic pellets. As a result, part of the coastlines of both Norway and Sweden were polluted by plastic pellets. Shortly after the incident, local governments and volunteers started extensive clean-up operations and tracing of the source began. The clean-up operations proved to be very difficult and time consuming, while pellets kept on spreading over the coastline and at sea (Nyberget, 2021). The environmental risk to the marine and coastal ecosystems from this incident was high, and remains so to this day – plastic pellets cause harm to fish, marine mammals and seabirds through ingestion, and eventual breakdown into microplastics, with the associated risks to human health when these enter our own food chain. This case of “Acute Plastic Pollution” triggered a discussion in Norway and within the Nordic countries on the importance of Nordic cooperation on acute plastic pollution. The Nordic countries acknowledge this problem. The Nordic Council of Ministers have as part of their action plan for 2021-2024 included a high ambition “to act as an international driver of global agreements against marine plastic waste and microplastics”. In addition, the Nordic Region is seeking to put in place “an ambitious framework for biodiversity and a new agreement on chemicals and waste” (Nordic Council of Ministers, 2020). As a result, an assignment was formulated and issued to assess the current state of play of acute plastic pollution globally and in the Nordic region and what policies, legislation and measures exist. It is expected that this research will assist the Nordic Council of Ministers to define an effective approach to address acute plastic pollution for the Nordic countries as a whole.
1.2 Purpose and structure of this document
Prevention and mitigation of acute discharges of plastics, both through appropriate and effective response and through preventive measures, will make a significant contribution towards limiting further input of plastics into our seas. This report aims to lead the way by describing the policies and legal frameworks that apply, important spills that occurred and by defining measures that can be applied to address the issue effectively. After this introduction (chapter 1), the problem is described: the nature, composition, amounts and impacts of marine litter and acute plastic discharges are covered in chapter 2. The emphasis of the pollutants described in this chapter is on plastic pellets. The regulations, measures, stakeholders and their roles and responsibilities and gaps in regulations are described in chapter 3. Chapter 4 describes the discussion and conclusions, and chapter 5 presents recommendations on the way forward. Chapter 6 is on the references and concluded is by the annexes.
1.3 Methodology
1.3.1 The approach applied
To assess the nature of the problem, its magnitude and the way it is addressed both internationally and nationally, and to be able to define solutions, the following approach was applied:
After contact with the client on the needs of the assignment, a set of research questions was defined that form the core of this assessment.
Next, a conversation with the client was organised for specific requests and further agreements on the process and updates on the progress of the study.
Relevant stakeholders in Nordic countries and beyond were contacted to announce that the project has started and that they will be contacted for information.
A literature review was conducted.
In line with the research questions, interview questions were designed and interviews with stakeholders were held (see the next section and annexes I and II for more details).
A first draft report was submitted on 30 December 2022, and discussed with the client.
Comments on the 1st draft report were elaborated in the report.
An internal stakeholder workshop for reflection and acquiring additional input was elaborated.
Comments of the steering committee’s members on this 2nd draft were received and elaborated into a 3rd draft.
On 30 May 2023, a launch event was organized, to present the outcomes of the research and the report as next step for addressing the issue of plastic pollution in the Nordic region and beyond.
Comments on the 3rd draft were provided and elaborated into the final report during the first half of June 2023.
1.3.2 Research questions
The research questions that were defined and are answered in the next sections of this report are:
What is the nature and magnitude of plastic pollution, emphasizing the marine environment?
What is acute plastic pollution and what is its nature and magnitude, emphasizing the marine environment?
What acute plastic pollution incidents of a relevant magnitude occurred at the Nordic countries and globally?
What approach was applied during clean-up operations after acute plastic pollution incidents?
What relevant (global) agreements and regulations are present that address acute plastic pollution?
What organisational structure(s) are present at regional and national level and what cooperation exists between countries to address acute plastic pollution?
What guidelines and measures could be considered to be used for addressing acute plastic pollution?
What gaps are present regarding prevention, emergency response and clean-up of acute plastic pollution, after analysis of the legislation and policies at UN, EU, Nordic regional and national level?