Exploring the Option of a New Global Agreement on Marine Plastic Pollution – A Guide to the Issues

What is a global agreement?

States. The term “global” is sometimes used to specify that an agreement is open to all States, as opposed to, for example, regional agreements. For most observers, the term “global agreement” would likely be associated with a legally binding instrument. In principle, however, a global agreement could be non-binding, or politically binding, depending on what the intent of the parties was when it was negotiated and adopted. Since none of the regional declarations or decisions mentioned above specify that a new global agreement on marine plastic pollution should be legally binding, we apply, in the following, a broad understanding of the term. There is considerable variation in the terms used to describe agreements between States. 43 Designations such as “treaty” and “convention” generally suggest that the agreement is legally binding, and the term “protocol” is normally used to refer to legally binding agreements concluded between parties to an existing convention (including, but not always, framework conventions). Other designations, such as “decision”, “declaration”, or “plan of action”, indicate that the agreement in question is not legally binding. Note, however, that the term used in the title of a particular document does not have any direct bearing on its legal status. A plan of action can, in some cases, be legally binding. The 2013 regional plan on marine litter management in the Mediterranean, for example, is legally binding. 44 Designations

essentially a question of intent; it is legally binding if the parties meant for it to be legally binding. In practice, however, the legal or non-legal character of a global agreement can usually be determined by the process through which it is adopted, brought into force, applied, and, if needed, amended or terminated. Today, most multilateral legally binding agreements are concluded in accordance with the procedures stipulated in the 1969 Vienna Convention on the Law of Treaties (VCLT). Some of the key requirements for the conclusion of a legally binding instrument under the VCLT include: • The agreement must be signed, either in person or through a representative with “full powers”, by a Head of State, Head of Government, or Minister for Foreign Affairs. 45 • The State must formally declare its consent to be bound by the terms of the agreement through a process of ratification, acceptance, approval, or accession. 46 In most countries, this step requires approval by the national parliament. • Unless and until a State goes through the required steps to formally withdraw from the agreement, and unless otherwise explicitly stated in the agreement, the State remains bound by its provisions indefinitely. Non-legally binding agreements are typically concluded under a different – and normally lighter – set of rules than those codified in VCLT. As an example, the Aichi Targets, which were agreed and adopted in 2010 by the parties to the Convention on Biological Diversity (CBD), 47 did not require signature by Heads of State (or a representative with “full powers”), were not subject to approval by

Binding force

As noted above, whether or not a document is considered a legally binding agreement is

43 Terms include “treaty”, “convention”, “charter”, “accord”, “protocol, “declaration”, “guidelines”, “code of conduct”, “plan of action”, “agenda”, “resolution”, “document”, “compact”, and “agreement”. 44 For more information about the Barcelona Convention and Protocols, see https://www.unenvironment.org/unepmap/who-we-are/ barcelona-convention-and-protocols. 45 VCLT, Article 7(2)(a) 46 VCLT, Article 14. 47 Conference of the Parties (COP) 10 Decision X/2.

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