Estimating problem shifting from the Minamata Convention on Mercury

Abstract

The challenge of global environmental governance lies largely in implementing effective solutions to environmental problems as articulated in multilateral environmental agreements (MEAs). Whilst these agreements aim to resolve their own problems, their implementation can generate new problems which may impact other people, places, and time, a phenomenon referred to as problem shifting. The assessment of problem shifting originating from multilateral environmental agreements has not been examined in a systematic manner. In this study, a first step is taken by assessing the Minamata Convention, an MEA tasked with the management of anthropogenic mercury emissions. To allow for a comprehensive assessment of the occurrence of problem shifting from the measures taken by countries to implement the Convention, national reports were used to extract over 1100 implementation measures, which were categorized into over 100 distinct types, based on the source of mercury, and type of measure implemented. These measures are then thoroughly examined against environmental literature to determine the nature of new problems that they have created. For instance, the identified measure regarding the prohibition of dental amalgam displaces the problem due to the increased occurrence and cost of restorative actions needed, resulting in financial and health complications for consumers. This analysis has identified eight measures that cause problem-shifting, generating problems in issue streams related to temporal and locational shifts in mercury and product management. Ultimately, the implementation of the Convention is hindered through costly systemic transformations and an overly simplified view of mercury management, resulting in the continuous degradation of environmental and human health, particularly for those of lower income. This assessment of problem shifts largely outlines the various types of shifts, the mechanisms through which they occur, and the impacts of the shifts. These results undermine the need for preventative and responsive measures to be established within MEAs, to avoid and mitigate the occurrence of such shifts. The methodology provided in this research may also be applied to the assessment of other agreements.