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Opening plenary session, INC 5.2 of the global plastics negotiations, Palais des Nations, Geneva, 5 August 2025. Credit: Craig Boljkovac

By Craig Boljkovac
GENEVA, May 14 2026 (IPS)

Norway’s reported decision to review and place on hold aspects of its funding to the United Nations Environment Programme (UNEP) should be understood as more than a budgetary matter. It is a political signal. It is also a warning that the global plastics treaty negotiations may now be approaching the point at which governments must decide whether the present UNEP process can still deliver the treaty they promised, or whether a different pathway is required.

There should be no misunderstanding. Norway has been one of the strongest supporters of an ambitious global plastics treaty. It co-leads, with Rwanda, the High Ambition Coalition. It has also been the largest listed contributor to the INC process, with UNEP’s donor table showing more than USD 7.2 million in contributions received from Norway as of 25 March 2026.

Its apparent decision to pause or review funding therefore cannot be dismissed as marginal. It comes from a country that has invested politically and financially in the process and that has consistently positioned itself on the side of ambition.

That is precisely why the signal matters.

If Norway is now forcing a moment of reflection, it may be doing the negotiations a service. A process that cannot conclude, cannot decide, and cannot distinguish between genuine compromise and procedural obstruction needs more than another round of careful facilitation. It needs political clarity.

The original mandate was not ambiguous. In March 2022, the United Nations Environment Assembly agreed to develop an international legally binding instrument on plastic pollution, including in the marine environment, addressing the full lifecycle of plastics, with the aim of completing the work by the end of 2024. That deadline has passed.

The fifth session in Busan did not produce a treaty. The resumed fifth session in Geneva did not produce a treaty. INC-5.3 in February 2026 was essentially an organizational session, including the election of a new Chair. We are now looking toward INC-5.4, possibly at the end of 2026 or in early 2027.

At some point, the numbering itself approaches the point of absurdity. INC-5.4 is not a normal negotiating milestone. It is the fourth attempt to complete the fifth session of a process that was supposed to conclude in 2024. This is not multilateral patience. It is clearly a form of procedural dysfunction.

None of this is intended as disrespect toward Ambassador Julio Cordano of Chile, the newly elected Chair of the INC. On the contrary, he has taken on one of the most difficult environmental negotiations in recent memory.

He inherited a fractured process, an absurdly complicated text, deeply polarized delegations, and an increasingly visible divide between countries seeking a full-lifecycle treaty and those seeking a narrower waste-management instrument. This is despite his stated and admirable determination to get the treaty “over the line.”

The difficulty, however, is that all indications suggest that the Chair is pursuing a highly neutral, process-oriented path. That is understandable. A Chair in this setting is expected to maintain confidence across the room, including among delegations whose positions are far apart. But neutrality is not the same as progress.

At a certain point, a too-neutral process can become a shield for those who prefer no outcome, or only the weakest possible outcome. And his treatment of observers, despite recent indications that he will take their views more fully into consideration, still leaves much to be desired in a UN system that contends to be as broadly inclusive as possible.

The gap between the Like-Minded countries and the High Ambition Coalition is not a drafting problem. It is a political problem. One group of countries wants an agreement that addresses the full lifecycle of plastics, including production, design, hazardous chemicals, products, trade, waste, finance and implementation.

Another group seeks to confine the treaty largely to downstream waste management, recycling and national discretion. These are not merely different textual preferences. They are different theories of the treaty. The mandate for the negotiations clearly states that the former, not the latter, is what should be pursued.

If the process continues to treat these positions as equally bridgeable, it will continue to reward delay. Consensus can be a tool for legitimacy. But in this process, it is increasingly at risk of becoming a veto mechanism for the least ambitious actors.

The result is predictable: more informal consultations, more revised texts, more late-night sessions, more statements of disappointment, and still no treaty.

This is why Norway’s move deserves, at minimum, a measure of credit. It has introduced a hard political question into a process that has become too comfortable with postponement. If countries are serious about concluding a meaningful treaty within UNEP, they should do so now. Not after another “informal” round. Not after another partial session. Not after INC-5.5 or INC-5.6. Now.

But if they are not prepared to do so, then high-ambition countries should begin preparing an alternative. The obvious precedent is the Ottawa Process on anti-personnel landmines. When the established disarmament machinery could not deliver a comprehensive ban, a coalition of like-minded governments, supported by civil society and international organizations, moved outside the blocked forum and negotiated a treaty among those prepared to act.

The Mine Ban Treaty was opened for signature in Ottawa in December 1997 and was later (after agreement was reached) brought back into the broader UN treaty system.

That example is important because it shows that moving outside a blocked UN process is not necessarily anti-UN. It can be pro-multilateralism. The Ottawa Process did not reject international law; it created it. It did not wait for the least ambitious actors to become ready. It allowed the most ambitious actors to move first and then invited others to join.

A plastics “Ottawa Process” would not need to start from zero. The UNEP negotiations have already generated years of technical work, draft text, legal options, coalition positions, scientific input and stakeholder engagement. A like-minded process could take the strongest elements from that work and use them as the basis for an agreed treaty text.

Participation could be open to all states, but on the basis of a minimum level of ambition: full lifecycle coverage; legally binding obligations; controls on problematic products and chemicals of concern; a necessary focus on supply chains; credible implementation financing; and reporting and review mechanisms.

The next stage should therefore be framed as a final test. INC-5.4 should be treated as the last credible opportunity for the UNEP process to produce a treaty that reflects the mandate adopted in 2022.

If that session produces only another procedural continuation, or a weak agreement stripped of lifecycle measures, production-related provisions, and meaningful controls on chemicals and products, then high-ambition countries should move immediately toward an Ottawa-style diplomatic track.

The plastics crisis is not waiting for the INC process to resolve its internal contradictions. Plastic production continues to grow, in accordance with targets set by like-minded countries. Waste continues to leak into rivers, oceans, soils and food systems. Communities continue to bear the health and environmental costs. The purpose of the negotiations was to respond to that reality, not to create an indefinite process for describing it.

Norway’s funding decision may therefore prove useful if it forces governments to confront the obvious. Either the UNEP negotiations now become serious, political and outcome-oriented, or the countries that are serious about ending plastic pollution should create a pathway of their own.

That would not be a failure of multilateralism. It may be the only way left to save it.

Craig Boljkovac is a Geneva-based Senior Advisor with a Regional Centre for the Basel and Stockholm Conventions, and an independent international environmental consultant with over 35 years of experience in relevant fields. His opinions are his own. He has participated in several INCs and related meetings for the global plastics agreement.

IPS UN Bureau

 

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The actor was recognised for his contributions to entertainment as well as his humanitarian efforts.

Rebel fighters and Rwandan troops are accused of committing atrocities after capturing the DR Congo city of Uvira in December.

Parliamentarians from Africa, Asia, and the Arab world gathered to assess pledges made at last year’s TICAD9 summit in Yokohama. Credit: APDA

By Hisham Allam
CAIRO, May 14 2026 (IPS)

The word heard most often at a two-day parliamentary forum in Cairo last week was not “commitment”; it was “follow-up.” And the difference mattered.

Parliamentarians from Africa, Asia, and the Arab world gathered 28–29 April not to renew pledges made at last year’s TICAD9 summit in Yokohama, but to ask what had actually been done. The answer was uneven, and delegates said so plainly.

The meeting, organised by the Asian Population and Development Association (APDA) and the Forum of Arab Parliamentarians on Population and Development (FAPPD) with support from UNFPA, the Japan Trust Fund, and IPPF, focused on sexual and reproductive health, universal health coverage, youth investment, and gender equality. It convened against a difficult backdrop: shrinking donor budgets, deepening demographic pressure across Africa, and a persistent gap between legislation and delivery.

Japan’s Makishima Karen, a member of the House of Representatives, Vice Chair of the Japan Parliamentarians Federation for Population, and former Minister for Digital Affairs, set the tone early. “Once a conference is finished, it’s no longer the finish – we should follow up the outcomes and the concrete actions,” she told IPS on the sidelines.

Makishima was direct about where progress begins. “Wherever you live or wherever you are born, the right to live healthily is a human right,” she said. “That is why I focus on the necessity of universal health coverage (UHC) for all.” She argued that UHC cannot be achieved without bringing finance ministries into the conversation: “The understanding of the Minister of Finance is necessary. We are encouraging ministries of finance to join the process.”

On what actually drives change at the community level, she was equally clear: “When mothers cannot read, it must be difficult for their communities to live healthily and safely. Education of women and girls is essential to protect the next generation.”

She also raised a dimension of the agenda that often goes unstated: the role of digital tools. Drawing on her background in digital governance, she argued that technology is not a separate track but integral to delivery: “With one smartphone, every person can access information, check their own data, and have the ability to control it. That is part of democracy.”

Meeting chairs set the tone, demanding asking for action, not new pledges, at a recent two-day forum in Cairo. Credit: APDA

On the wave of aid cuts hitting development programmes globally, she did not deflect. “I believe in the necessity of multilateral organisational frameworks; otherwise, it is very difficult to continue the necessary programmes in each region.” The longer-term answer, she said, is not to wait for donors to return. “Within five or ten years, each government should take on the responsibility to continue these programmes. We must have a very long-term perspective.”

Tanzania’s Jackson Kiswaga, MP, offered the clearest example of what domestic ownership can look like. His country, with 71.5 million people, 60 percent under 24, growing at nearly three percent a year, has been moving fast. In 2023, Tanzania passed the Universal Health Insurance Act, integrating reproductive health services into mandatory coverage spanning formal and informal sectors. A dedicated Youth Ministry was established under the President’s Office. A national scholarship programme has since supported over 400 girls in science education, with measurable reductions in early marriage and pregnancy.

“Institutional innovations are models for other countries,” Kiswaga said. “Strong partnerships in the health sector are key to ensuring sustainability.”

Morocco’s Soukaina Lahmouch, MP, offered a sharper warning. Her country enacted landmark legislation against gender-based violence in 2018, but seven years on, implementation has stalled. Procedural complexity, weak enforcement, and cultural resistance, particularly in domestic violence cases, have blunted the law’s impact.

“Women in Morocco still suffer discrimination and exclusion,” she said, “despite the progress made.” She called on TICAD to support not just the drafting of laws but their enforcement through court reform, rural health infrastructure, and access to financing for women.

Parliamentarians were reminded that the outcomes from Cairo would be reported to the Global Conference of Parliamentarians on Population and Development in Tokyo 2027. Credit: APDA

Two other delegates raised pressures that seldom receive equal billing. Tunisia’s Ezzeddine Tayeb, MP warned that his country’s rapidly ageing population is straining its pension system and called for a comprehensive law guaranteeing the rights of elderly citizens, including enforceable standards for long-term care. Algeria’s MP Khaled Bourenane placed the forum’s agenda inside Africa’s continental trajectory: a population heading toward 2.5 billion by 2050, with over 20 million people displaced by climate events annually. Demographic challenges at this scale, he argued, cannot be addressed in silos.

JICA representative Yo Ebisawa pointed to Egypt as a live test case. In 2017, Egypt ranked the third globally in out-of-pocket health spending as a share of household budgets.

Since passing its Universal Health Insurance Law, the country has been rolling out coverage across all 27 governorates, targeting completion by 2030. So far, six million people across six governorates have been enrolled. In Port Said, the share of households facing catastrophic health expenditure has fallen by 40 percent. Japan has backed the rollout with a $400 million development policy loan and an $8 million joint JICA-WHO project providing equipment and training, including for facilities serving Sudanese refugees and medical evacuees from Gaza.

APDA Vice Chair Prof. Kiyoko Ikegami closed the first day with a pointed reminder: the outcomes from Cairo will be reported to the Global Conference of Parliamentarians on Population and Development in Tokyo 2027. The chain of accountability, she said, must hold.

Whether the commitments made in Cairo translate into budget lines, legislation, and services – that is the only measure that counts.

Note: The meeting was organised by the Asian Population and Development Association (APDA) and the Forum of Arab Parliamentarians on Population and Development (FAPPD). It was supported by the Japan Trust Fund (JTF), the United Nations Population Fund (UNFPA) Arab States Regional Office (ASRO),  and the International Planned Parenthood Federation (IPPF), in collaboration with the African Parliamentary Forum on Population and Development (FPA).

IPS UN Bureau Report

 

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