The missing consensus: An analysis of problem definitions and key motivations in the first zero draft for a global plastics treaty

Abstract With the ongoing negotiations for an international legally binding instrument on plastic pollution, including in the marine environment, and the frustration at the end of Intergovernmental Negotiating Committee (INC-3), analyzing the zero draft text, which formed the basis for this negotiation round, is crucial. This analysis examines to what extent the zero draft conveys a clear problem definition as the foundation for an internationally legally binding instrument on plastic pollution. We find that the draft lacks a clear problem definition. Additionally, we investigate how the zero draft balances the focus between marine environments and other affected areas and discusses the implications for governance strategies. We find that the draft focuses particularly on fishing gear and hence has a downstream perspective, while upstream measures are equally important. Furthermore, this study delves into the key motivations driving the treaty negotiations, revealing that health and environmental concerns predominate. In comparing our results with previous research, we align with recent publications analyzing INC submissions and onsite statements. In addition, we identify significant differences in key motivations to tackle the plastic pollution issues between the EU and the international level. These disparities, evident in how health and economic arguments are prioritized, reflect varied approaches to combating plastic pollution across political spheres.