Marine and Coastal Ecosystems Branch (MCEB) UNEP - United Nations Environment Programme P.O. Box 30552 Nairobi, Kenya Tel: [+254] 20 762 4033 Fax: [+254] 20 762 4618 www.unep.org/regionalseas ISBN 978-92-807-3029-6 Job Number DEP/1176/NA UNITED NATIONS ENVIRONMENT PROGRAMME Marine Litter: A Global Challenge Marine Litter: A Global Challenge Marine Litter: A Global Challenge Prepared by Ljubomir Jeftic, Seba Sheavly, and Ellik Adler Edited by Nikki Meith April 2009 Acknowledgements The authors would like to thank those who prepared the original documents upon which this overview was based, including the secretariats of 12 Regional Seas (Baltic Sea, Black Sea, Caspian, East Asian Seas, Eastern Africa, Mediterranean, Northeast Atlantic, Northwest Pacific, Red Sea and Gulf of Aden, South Asian Seas, Southeast Pacific, and Wider Caribbean) who produced regional assessments and action plans for the management of marine litter. © 2009, United Nations Environment Programme ISBN 978-92-807-3029-6 Job Number DEP/1176/NA ISBN xxx The designations employed and the presentation of the material in this publication do not imply the expression of any opinion whatsoever on the part of the United Nations Environment Programme or Ocean Conservancy concerning the legal status of any country, territory, city or area or of its authorities, or concerning delimitation of its frontiers or boundaries. Moreover, the views expressed do not necessarily represent the decision or the stated policy of the United Nations Environment Programme and Ocean Conservancy, nor does citing of trade names or commercial processes constitute endorsement. The preparation of this report was financed by the United Nations Environment Programme. For bibliographic purposes this document may be cited as: UNEP, 2009. Marine Litter: A Global Challenge. Nairobi: UNEP. 232 pp. This publication may be reproduced in whole or in part and in any form for educational or non-profit purposes without special permission from the copyright holder, provided acknowledgement of the source is made. The United Nations Environment Programme and Ocean Conservancy would appreciate receiving a copy of any publication that uses this publication as a source. No use of this publication may be made for resale or for any other commercial purpose whatsoever without prior permission in writing from UNEP. Cover image: 2006 International Coastal Cleanup, Panama. © Ocean Conservancy Layout and design: Nikki Meith Printed in Nairobi by the United Nations Environment Programme Contents Summary Preface 5 Executive summary 7 Chapter 1. Facing the global challenge of marine litter 13 Introduction 13 Sources and impacts 13 Possible solutions 14 The UNEP response to the global challenge 15 Activities at the regional level 15 Activities at the global level 18 Global initiatives and policies 20 International conventions 21 Initiatives at the regional level 23 Chapter 2. Review of regional assessments and action plans on marine litter 25 Introduction 25 Baltic Sea 27 Black Sea 39 Caspian 53 East Asian Seas 67 Eastern Africa 82 Mediterranean 93 Northeast Atlantic 107 Northwest Pacific 121 Red Sea and Gulf of Aden 135 South Asian Seas 147 Southeast Pacific 161 Wider Caribbean 175 International Coastal Cleanup 189 Chapter 3. Analysis of regional review documents and action plans on marine litter 203 Introduction 203 Status of marine litter at the regional level 203 Analysis of legislative-institutional components of assessment documents 209 Analysis of regional action plans 210 Chapter 4. The way forward 215 Introduction 215 Conclusions 215 Recommendations 215 Acronyms 221 Glossary 225 Index 231 PREFACE 5 Preface Marine litter is a global concern affecting all the oceans of the world. It poses environmental, economic, health and aesthetic problems that are rooted in poor solid waste management practices, lack of infrastructure, indiscriminate human activities and behaviours and an inadequate understanding on the part of the public of the potential consequences of their actions. The UNEP Global Initiative on Marine Litter has provided an effective framework for conducting regional activities addressing marine litter around the world, including those of the 12 participating Regional Seas programmes. The objective of this document is (1) to present and analyse available information on marine litter discussed in documents produced by the 12 regional programmes with the help of regional consultants and technical experts and (2) to propose recommendations for addressing the problems associated with marine litter worldwide. This document is not a comprehensive overview of global marine litter, but it does provide current information on the marine litter issue in participating regions (Baltic Sea, Black Sea, Caspian, East African Seas, Eastern Africa, Mediterranean, Northeast Atlantic, Northwest Pacific, Red Sea and Gulf of Aden, South Asian Seas, South Pacific, and Wider Caribbean). Chapter 1, Facing the global challenge of marine litter, introduces the topic and the challenges marine litter poses to the international community. It describes the main sources and impacts of marine litter and how UNEP has begun to address these through its Regional Seas Programme and the Global Programme of Action for the Protection of the Marine Environment from Land-Based Activities (GPA), and the UNEP Global Initiative on Marine Litter. Finally it outlines the existing international and regional initiatives that address marine litter problems. Chapter 2, Review of regional assessments and regional action plans on marine litter, presents summaries of the documents produced as part of the UNEP Global Initiative on Marine Litter, including 12 regional overviews and seven regional action plans. In addition, a summary of the International Coastal Cleanup (ICC) programme is presented, covering ICC events carried out in 132 countries of the world and in 73 countries of the 12 Regional Seas that are part of the UNEP Global Marine Litter Initiative. Chapter 3, Analysis of regional review documents and action plans on marine litter, presents an analysis of the information and data presented in 12 regional assessment documents and seven Regional Action Plans summarized in Chapter 2 of this document. Chapter 4, The way forward, provides a discussion of the general conclusions and proposed recommendations presented in this overview, and also offers conclusions and recommendations related to nine specific issues that are important for the understanding, control and reduction of the global problem of marine litter. PREFACE 6 EXECUTIVE SUMMARY 7 Executive summary Introduction About marine litter Marine litter is an environmental, economic, human health and aesthetic problem. It poses a complex and multi-dimensional challenge with significant implications for the marine and coastal environment and human activities all over the world. These impacts are both cultural and multi-sectoral, rooted primarily in poor practices of solid waste management, a lack of infrastructure, various human activities, an inadequate understanding on the part of the public of the potential consequences of their actions, the lack of adequate legal and enforcement systems and a lack of financial resources. Marine litter is found in all the oceans of the world, not only in densely populated regions, but also in remote areas far from obvious sources and human contact. Every year marine litter takes an enormous social and economic toll on people and communities around the world. The persistence of marine litter is the result of a lack of coordinated global and regional strategies and of deficiencies in the implementation and enforcement of existing programmes, regulations and standards at all levels – international, regional and national. The UNEP Global Initiative on Marine Litter The UNEP Global Initiative on Marine Litter provides a platform for the management of this problem through the establishment of partnerships, cooperative arrangements and coordination of joint activities. The main partners in the initiative include individual Regional Seas Conventions and Action Plans, government representatives, United Nations bodies, donor agencies and organizations, the private sector and NGOs. This partnership represents a unified effort within the wider context of the Global Programme of Action, the Regional Seas Conventions and Action Plans and the respective mandates of other regional stakeholders. Existing solutions may 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. Participation of Regional Seas in the Global Initiative on Marine Litter The UNEP Global Initiative on Marine Litter has been successful in organizing, implementing and promoting regional activities on marine litter around the world. Work in each participating region has proceeded according to agreements on the development of marine litter management activities concluded between the Regional Seas Coordinating Office and the Regional Coordinating Units (secretariats) of 12 Regional Seas programmes (Conventions and Action Plans): Baltic Sea, Black Sea, Caspian, East Asian Seas, Eastern Africa/WIO, Mediterranean, Northeast Atlantic, Northwest Pacific, Red Sea and Gulf of Aden, South Asian Seas, Southeast Pacific, and the Wider Caribbean. These activities and the collection of relevant information were carried out by regional and national consultants. The four main activities prescribed by the signed agreements included the (1) preparation of a review of the status of marine litter in the region; (2) preparation of the Regional Action Plan (RAP) or regional strategy on the sustainable management of marine litter; (3) organization of a regional meeting of national authorities and experts on marine litter; and (4) participation in a Regional Cleanup Day, within the framework of Ocean Conservancy’s International Coastal Cleanup campaign. The review documents on marine litter in the regions were to be prepared by a regional marine litter consultant, and were to include, among other tasks, the collection and review of existing institutional arrangements; capacities and funding resources; data and information on marine litter in the marine and coastal environment; legal and administrative instruments; programmes and initiatives; identification of gaps and needs related to marine litter management; and recommendations. This review document is based on national reports compiled by national experts/consultants and where possible based on standard questionnaires and other available documents and information such as relevant scientific literature. EXECUTIVE SUMMARY 8 A Regional Action Plan on the Sustainable Management of Marine Litter for each region was to include among other elements and when feasible: a programme of enhancement of national/regional legal and administrative instruments; development of regional and national strategies for integrated management of marine litter; recommended programmes of cooperation with civil society (private sector, NGOs the scientific community); information and outreach activities; sectoral activities , and fundraising activities. All twelve participating regions prepared review documents by October 2008 and seven regions prepared Regional Action Plan documents, with the other five proposing actions necessary for the management of marine litter. Nine regions organized regional meetings of national authorities and experts on marine litter. All twelve regions participated in the International Coastal Cleanup campaign as part of this initiative. International Coastal Cleanup The information that is being collected and compiled through the International Coastal Cleanup (ICC) provides a valuable information base that can be used to help catalogue and analyse the main sources and activities responsible for marine litter pollution. The partnership between Ocean Conservancy and UNEP RSP provides a good base for working collectively to address marine litter issues worldwide – sharing information and strategies that can be adopted by regional groups and in facilitating cooperative arrangements between national government agencies and local NGOs. From the UNEP-assisted Regional Seas participating in the marine litter project, a total of 73 countries have participated in the ICC since 2006. Documents on specific topics In addition to activities in 12 Regional Seas programmes, UNEP commissioned preparation of the following documents on specific topics to be published by March 2009: (1) jointly with IOC: Guidelines on Survey and Monitoring of Marine Litter; (2) jointly with FAO: Abandoned, Lost or otherwise Discarded Fishing Gear, and (3) Marine litter and market-based instruments. Main findings Regional Action Plans on the management of marine litter Seven of the 12 participating regions (Black Sea, East Asian Seas, Northwest Pacific, Red Sea and Gulf of Aden, South Asian Seas, Southeast Pacific and the Wider Caribbean) prepared Regional Action Plans (RAPs) on the management of marine litter as part of their regional efforts. The remaining five Regional Seas did not prepare formal plans, but have reported on actions relevant to the management of marine litter within their regions. The primary goal of the RAPs was to consolidate, harmonize and implement necessary environmental policies, strategies and measures to bring about sustainable integrated actions and activities to help mitigate marine litter in the respective regions. RAPs contain information on strategy; legislation, policy and enforcement; monitoring programmes; education and outreach; mitigation activities; and funding and sustainability. Amounts No systematic regional measurements of the amounts of marine litter were conducted in the 12 participating regions, and only the Baltic Sea, Black Sea, Mediterranean, Northeast Atlantic, Northwest Pacific and the Wider Caribbean provided some data on the amounts of marine litter in their respective regions. The great majority of these reported marine litter on beaches, some reported litter in open waters, and a few addressed marine litter on the sea floor. The use of differing methodologies to collect and measure marine litter did not allow valid comparisons among the participating Regional Seas or even systematic analysis of status and trends. However, an important and ongoing source of information on marine litter on coastlines and beaches of the world are the Ocean Conservancy’s International Coastal Cleanup (ICC) events carried out since 1989 in many countries around the world, including 73 countries from the UNEP-assisted Regional Seas. The ICC results provide a base for the comparative analysis of the marine litter problem among the participating Regional Seas. EXECUTIVE SUMMARY 9 Impacts Limited information on the effects and impacts of marine litter was provided by seven of the 12 Regional Seas participating in the marine litter initiative. This information revealed that there was no common denominator for marine litter impacts among the regions. Among the reported impacts were: (1) economic effects; impacts on aesthetics and tourism, human health and safety; habitat destruction, and effects on wildlife (Wider Caribbean); (2) effects on human health and tourism (Eastern Africa); (3) impacts on marine environment from illegal, unreported and unregulated fishing (Black Sea); (4) coastal tourism impacts (Red Sea); (5) impacts on wildlife, especially marine turtles, seabirds and similar species (South Asian Seas); and (6) impacts on marine environment of abandoned, lost or otherwise discarded fishing gear (East Asian Seas). Every year, marine litter results in tremendous economic costs and losses to individuals and communities around the world. It can spoil, foul and destroy the beauty of the ocean and the coastal zone. Further research and documentation on the impacts of marine litter is needed to assess this issue effectively. Sources The major land-based sources of marine litter include wastes from dumpsites located on the coast or banks of rivers; rivers and floodwaters; industrial outfalls; discharge from storm water drains; untreated municipal sewerage; littering of beaches and coastal picnic and recreation areas; tourism and recreational use of the coasts; fishing industry activities; ship-breaking yards; and natural storm- related events. The major sea-based sources of marine litter include shipping (merchant, public transport, pleasure, naval and research vessels) and fishing (vessels, angling and fish farming) activities; offshore mining and extraction (vessels, and oil and gas platforms); legal and illegal dumping at sea; abandoned, lost or otherwise discarded fishing gear; and natural disasters. Adequate quantitative and qualitative knowledge of the sources of marine litter is extremely important because it serves as the main basis for managerial decisions on actions to prevent, reduce and control problems caused by marine litter. Institutional framework With the growing recognition that marine litter poses global and regional problems for the environment and coastal communities, numerous institutional arrangements have emerged. An extensive global network exists among the many entities which deal with the creation, handling, abatement and prevention of marine litter. Through these programmes and initiatives, these organizations form a powerful base for effective interaction and collaboration in dealing with the many problems associated with marine litter. As marine litter is a significant component of the solid waste management issue, it is critical that there be an integration of marine litter management strategies with solid waste management strategies. Legislation, policies and enforcement At the global level, there are several conventions and agreements applicable to marine litter issues. At the regional level, there are no specific legal instruments dealing with marine litter, although litter is addressed in several regional conventions and protocols on controlling marine pollution. At the national level, only the Wider Caribbean and Northwest Pacific regions have countries with specific national legislation addressing marine litter. Marine litter is not usually dealt with in policies or laws as a separate category of waste, it is considered to be part of the general solid waste stream. A majority of the regions acknowledge the inadequacy of implementation and enforcement of existing laws and regulations related to solid waste management. Monitoring programmes The need for establishment of national marine litter monitoring programmes was identified by most of the regions so that information could be collected on a regular basis and used for programme development and assessment of interventions and reduction strategies. Data and research on marine litter can be used to help formulate management solutions, which must in turn be implemented by management agencies with support from the private sector. Policies could be developed through monitoring efforts to produce legislation or funding for source-reduction programmes and help enforce regulations. The challenges in addressing marine litter monitoring are only partly the result of insufficient data and public awareness of the problem; they mostly arise from the lack of standardization and compatibility between assessment methods used and results obtained in these projects. [...]... (secretariats) of 12 Regional Seas: Baltic Sea, Black Sea, Caspian, East Asian Seas, Eastern Africa, Mediterranean, Northeast Atlantic, Northwest Pacific, Red Sea and Gulf of Aden, South Asian Seas, Southeast Pacific, and Wider Caribbean (See http://www.unep.org/regionalseas/) The Global Initiative consists of the following main activities and outputs: (a) preparation of a review and assessment of the status... UNEP-assisted marine litter-related activities in the Regional Seas The Regional Seas Programme of UNEP took an active lead on the marine litter issue and in 2005 began organizing and implementing regional activities on marine litter in 12 Regional Seas (Baltic Sea, Black Sea, Caspian, East Asian Seas, Eastern Africa, Mediterranean Sea, Northwest Pacific, Northeast Atlantic, Red Sea and Gulf of Aden,... its impact on marine animals At present CCAMLR members continually monitor marine debris at several locations on the Antarctic Peninsula and other Antarctic and Sub-Antarctic islands The Secretariat houses the CCAMLR Marine Debris Database which contains data from 12 sites Information on the CCAMLR marine debris initiative is available at www.ccamlr.org References Cheshire, A. C., Adler, E., Barbiere,... lost and abandoned fishing gear, harmonization of monitoring and assessment systems and establishment of reception facilities marine garbage and waste 18 FACING THE GLOBAL CHALLENGE OF MARINE LITTER An analytical overview In 2005 UNEP’s GPA and Regional Seas Programme published the study Marine Litter: An Analytical Overview This document assessed the threat posed by marine litter worldwide and examined... status of marine litter in each region; (b) organization of a regional meeting of national authorities and experts on marine litter; (c) preparation of a regional action plan (or a regional strategy) on the sustainable management of marine litter in each region; and (d) participation in a regional cleanup day within the framework of the International Coastal Cleanup Campaign All 12 regions prepared review... Sustainable Management of Marine Litter; (c) organization of a regional meeting of national authorities and experts on marine litter; and (d) participation in a Regional Cleanup Day, within the framework of the International Coastal Cleanup campaign All 12 participating Regional Seas prepared documents on Review of the Status of Marine Litter in the Region and seven of the participating Regional Seas... coastal habitats, sustain the health and productivity of seas and coastal areas, pursue integrated coastal zone management and sustainable development of seas and coastal zones and raise environmental awareness, the issue of marine litter is included It is critical that these regional and international instruments are made effective through improved legislation, regulations, enforcement and compliance... cooperation and coordination is encouraged, as appropriate, between States, relevant intergovernmental organizations, UN programmes and other bodies, such as the FAO, IMO, UNEP, GPA, and Regional Seas arrangements, regional and sub-regional fisheries management organizations and arrangements and relevant stakeholders, including NGOs, to address the issue of Abandoned and Lost Fishing Gear (ALFG) and related... urbanization and coastal development causing destruction of ecosystems and habitats; (d) conservation and management of marine and coastal ecosystems; (e) Integrated Coastal Area Management (ICAM) and Integrated Coastal Area and River Basin Management (ICARM); (f) over-exploitation and depletion of living marine resources, including fisheries; and (g) monitoring, reporting and assessment of the marine environment... based on national reports (compiled by national experts/consultants and preferably based on standard questionnaires) and other available documents and information, such as relevant scientific papers and other literature A Regional Action Plan on the Sustainable Management of Marine Litter for each region was to include, amongst other elements and when feasible, the following: (a) a programme of enhancement . ecosystems and habitats; (d) conservation and management of marine and coastal ecosystems; (e) Integrated Coastal Area Management (ICAM) and Integrated Coastal Area and River Basin Management (ICARM);. Plans): Baltic Sea, Black Sea, Caspian, East Asian Seas, Eastern Africa/WIO, Mediterranean, Northeast Atlantic, Northwest Pacific, Red Sea and Gulf of Aden, South Asian Seas, Southeast Pacific, and. regional activities on marine litter in 12 Regional Seas (Baltic Sea, Black Sea, Caspian, East Asian Seas, Eastern Africa, Mediterranean Sea, Northwest Pacific, Northeast Atlantic, Red Sea and