Draft Environmental Protection (Microbeads) (England) Regulations 2017
(Limited Text - Ministerial Extracts only)
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The Parliamentary Under-Secretary of State for Environment, Food and Rural Affairs (Dr Thérèse Coffey)
I beg to move,
That the Committee has considered the draft Environmental Protection (Microbeads) (England) Regulations 2017.
It is a pleasure to serve under your chairmanship, Mr Austin. We will be debating legislation to tackle microbeads in the use of rinse-off personal care products. “Blue Planet II” has shone a spotlight on our seas, and it is clear that they are in danger from many issues, including plastic waste. Plastic has become integral to our modern-day lifestyles, but millions of tonnes of plastic enter the global ocean every year, which is why we must take greater care and action to reduce if not eliminate pollution of our marine environment.
The draft regulations will ban the manufacture and sale of rinse-off personal care products containing plastic microbeads. Significantly, the ban is twofold. First, it will ensure that products containing microbeads may no longer be produced in England. Secondly, it will ensure that such products may not be sold or exported from the country. That will reduce the unnecessary release of plastic into the marine environment and lessen the harm to marine organisms caused by that form of microplastic. The ban has been worked on in conjunction with the devolved Administrations, and they too will introduce similar bans on manufacture and sale, likely in July.
Microbeads are small plastic particles. For the purposes of the draft regulations, “microbead” means
“any water-insoluble solid plastic particle of less than or equal to 5 mm in any dimension”.
Microbeads are added to many personal care products for their exfoliating effect. It has been suggested that one shower alone can send 100,000 microbeads into the water system and, subsequently, into our seas and the marine animals that live there. Personal care products containing microbeads are calculated to add 35,000 tonnes of plastic a year to the marine environment. Once released, those microbeads are impossible to recover.
Vernon Coaker (Gedling) (Lab)
The impact assessment talks about “other products”, which will not be covered by the regulations. Will the Minister tell us, now or later in her remarks, what the other products containing microbeads that will not be covered by the regulations are?
Dr Coffey
I shall certainly endeavour to do so. I have at least one example, and I am sure the hon. Gentleman will prompt me again if I do not cover the extent of the regulations.
It is extraordinarily difficult to directly measure the effect of microbeads per se on the marine environment. However, as microbeads are a form of microplastic, evidence concerning microplastics can be used to inform our view of the environmental impacts of microbeads. It is thought that ingestion of microplastics by some marine organisms can reduce digestion of food, affect reproduction adversely and be passed along marine food chains. Evidence indicates that chemical pollutants can leach from and attach to microplastics, risking increased exposure to toxins when ingested by marine organisms.
I want to recognise the efforts that the industry has made to address the problem of microbeads. A number of manufacturers and retailers have already stopped using microbeads in their products or have committed to do so. We want to ensure, however, that all companies follow that approach. The draft regulations will also create a level playing field for industry and certainty for consumers. Natural alternatives to microbeads do exist. They are readily available and, indeed, were used successfully in personal care products before plastic microbeads were introduced.
We considered whether the ban should extend to other products, including leave-on toiletries and cleaning products. Our initial assessment is that leave-on toiletries tend to be wiped off and the material discarded via normal waste streams, but we have asked the Hazardous Substances Advisory Committee to review the evidence on that. As for cleaning products, the trade bodies have shown that no such products for sale in this country include microbeads. Some countries have opted to ban only those plastic particles added for exfoliating and cleansing purposes, but our objective is to minimise marine microplastic pollution. Therefore, our ban covers all microplastic particles in those rinse-off cosmetics and personal care products. That is what makes it one of the toughest bans in the world.
The approach we have taken is based on clear evidence and, as a result, has support from a wide range of stakeholders. Only by working together can we be the first generation ever to leave the environment in a better state than we inherited it. I would like to think that that approach is another strong example of the proud and continuing leadership role that the United Kingdom has played in protecting the marine environment, not just around our coastline but throughout the world, including our overseas territories. With this legislation we will deliver one of the strongest bans—if not the strongest—on microbeads in the world. I commend the draft regulations to the Committee.
Dr Coffey
I will try to restrict my reply to the regulations. I could wax lyrical about marine litter and microplastics for a long time, but I assure the hon. Member for Halifax that if the particles in wax are less than 5 mm, they are included in the scope of the ban.
With regard to the definition of plastic, REACH does not define what plastics are but defines individual products. We felt that was not an effective way to achieve our aim, so the broader, well-known definition of plastic is used to ensure that we cover every single product. With regard to what products microbeads are used in and looking at other countries, as I articulated earlier, the very fact that we are banning any plastic particle less than or equal to 5 mm—we are not saying that it is only those microbeads that have a particular effect that are banned—is going further than the other countries mentioned. For the sake of doubt, nor have we limited the scope of what a rinse-off product is; it includes, but is not limited to, shower gels, body washes, intimate washes, liquid soaps, solid soaps and beaded hand cleaners. That will include things such as the Neutrogena product but also industrial products. Our farmers use Swarfega and similar, and the same will happen there. I could go on with a variety of things, including toothpaste, mouthwash, depilatory creams and gels, and similar elements.
We have asked the Hazardous Substances Advisory Committee to review the issue—the hon. Lady referred to this—of leave-on toiletries that can be absorbed or shed and are not designed to be washed off. I do not have a specific timeline for that at the moment, because the other thing we asked for in the consultation was a wider view on other products. The challenge with microplastics is that they extend to many sources. For example, the recycling of a lot of our plastic bottles goes to create things such as synthetic fleeces, which are popular with vegans because they are a way of keeping warm without using wool. Of course, they are also used extensively by people who are not vegans.
Dr Coffey
No. That is another example of products that have become part of everyday life. However, when they go through a washing machine, microfibres and microplastics are released. The regulations also extend to things such as tyres, because in tyre wear we see microplastics generated, washed on to the road, then into our water courses and so on. It is a challenge across a wide range of products. In particular, we focused on this because we know the evidence is already there. We know that our existing sewage treatments cover particles from about 6 mm upwards, so this is a specific way to try to address the problem by stopping at source the very generation of microbeads in products that are widely used. We wanted to tackle that.
If the hon. Member for Halifax has evidence that cleaning products with microbeads are available, she should please let me know and we can look at that. So far, the evidence we have seen is that no such cleaning products are available for sale. We need to ensure that, dare I say it, we regulate to address the problem in hand and not just create regulations for their own sake.
With regard to the devolved nations, yes, the consultation was UK-wide between the four Governments. We cannot dictate the processes by which they bring the ban into effect, but we are working with them to try to ensure that we coincide the ban that will come in due course.
As the hon. Member for Gedling knows, the 21 days will kick in from when the regulations are voted through the House—I think they have gone through the House of Lords today. Then, in essence, manufacture will become an offence, and then sale will become an offence. I suggest to the Committee that it will become more difficult for people to buy such products for resale in their shops. Of course, today the products are legal, so people can choose to sell them but, as we have seen, many companies have already taken action.
I point out that the regulations also cover the import of products, so if they are imported they still cannot be sold—that deals with that challenge. In terms of international actions, it might surprise the Committee to know that we had to get permission from the European Union and the World Trade Organisation. We initiated that on 28 July. We had to have a three-month process for objections, and there were none. We also have to go through other regulatory processes where we make the case, which is one of the reasons it takes so long. I think it was my hon. Friend the Member for Camborne and Redruth (George Eustice) who brought the issue to the attention of the Environmental Audit Committee when giving evidence some time ago. Members are right to pay tribute to that Committee, but that is an explanation of why it takes quite so long to reach the point we have got to today.
I do not think the regulations are necessarily the end of the process. I am sure that the Committee will want to be assured that we are taking appropriate action. We are addressing wider issues of microplastics getting into the environment. We need to continue to work with industry to ensure that it has time to develop alternatives.
The 680 tonnes is the amount used in cosmetics, and we recognise that not all of it ends up in the marine environment. I would not want to throw out a figure just to satisfy the hon. Member for Gedling. The point is that we are removing these microbeads at source so that there is at least a reduction from what we have today.
Dr Coffey
I think I have covered all the questions that I have been asked so far, and I recognise that the hon. Gentleman did not want to be churlish. We are going to press on and try to pass the regulations today, and I hope that they will then go through the House.
We have considered the regulations at considerable length. They are a good step and they are the toughest ban announced in the world so far, to the best of my knowledge. Enforcement will be down to local councils, but we believe clearly and strongly that manufacturers will know that it is an offence to create microbeads. Individual large stores and our wholesalers, from which smaller stores often buy their products, will also know that it is an offence to sell these products. I am confident that the supply chain for these products will collapse. I commend the regulations to the Committee.
Question put and agreed to.
Resolved,
That the Committee has considered the draft Environmental Protection (Microbeads) (England) Regulations 2017.