International Harmonization
The Globally Harmonized System for the Classification and Labelling of Chemicals (GHS) - Overview:
WHMIS is Canada's national hazard communication standard. Comprehensive health and safety information is communicated through cautionary labelling of containers of WHMIS "controlled products", material safety data sheets (MSDSs) and worker education and training programs. Supplier labelling and MSDS requirements are set out under the Hazardous Products Act (HPA) and associated Controlled Products Regulations (CPR). The CPR establish a national standard for the classification of hazardous workplace materials. In addition to setting out criteria for biohazards, chemical and acute hazards, the regulations specify criteria for chronic health hazards including mutagenicity, carcinogenicity, embryo and reproductive toxicity, respiratory tract and skin sensitization.
To maintain the consensus spirit in which WHMIS was developed, WHMIS continues to evolve using a multi-stakeholder consensus process. Through this process, an administrative policy was developed whereby MSDSs for WHMIS controlled products which use the ILO, ISO or EC 16 heading format are accepted as meeting compliance requirements of CPR.
A number of countries have implemented systems for the classification of and hazard communication for chemicals. While sharing a common objective, the systems adopted by these countries and often the systems for various sectors within these countries (i.e., workplace, consumer (or home) use and the transportation cycle), differ to varying degrees.
To promote a more consistent communication of information and thereby facilitate the safe use of chemicals and lessen the barriers to trade, the United Nations Conference on Environment and Development (UNCED) agreed at the Earth Summit in Rio de Janeiro in 1992, to develop "a globally harmonized hazard classification and compatible labelling system, including material safety data sheets and easily understandable symbols." This initiative has come be to known as the Globally Harmonized System (GHS).
The UN Sub-Committee of experts for the Globally Harmonized System for the Classification and Labelling of Chemicals has been established to address implementation and maintenance of the GHS.
Representatives from governments, industry, organized labour and international bodies including the Organization for Economic Cooperation and Development (OECD), the International Labour Organization (ILO) and the United Nations Committee of Experts on the Transport of Dangerous Goods (UNCETDG) reached consensus on technical components of the System, i.e., harmonized classification criteria and hazard communication for the physical, health and environmental properties of chemicals.
With the exception of pharmaceutical and cosmetic products intended for consumer use, the scope of the harmonization is anticipated to encompass all chemicals and to include all sectors; i.e., workplace, consumer, and transport.
Canada has been an active participant in the development of the GHS. The GHS will be a non-binding instrument. The implementation of the GHS will allow for a "phase-in period" [for adoption and implementation by countries] and will likely result in some changes to all existing hazard classification and communication systems including WHMIS.
Consultative Framework:
international - In 1992, the United Nations Conference on Environment and Development (UNCED) identified the harmonization of classification and labelling of chemicals as one of six action programs in  Chapter 19 of UNCED Agenda 21. Its objective was:
"a globally harmonized hazard classification and compatible labelling system (GHS) including material safety data sheets and easily understandable symbols, should be available, if feasible, by the year 2000."
The United Nations Committee of Experts on the Transport of Dangerous Goods and on the Globally Harmonized System of Classification and Labelling of Chemicals (UNCETDG & GHS) has international responsibility for the GHS. Reporting to this new parent committee are the existing Sub-Committee of Experts on the Transport of Dangerous Goods and the new Sub-Committee of Experts for the Globally Harmonized System for the Classification and Labelling of Chemicals (UNSEGHS).
The UNCETDG & GHS is responsible for strategic issues rather than technical issues. The main functions of the Committee include: to approve the work programmes for the Sub-Committees in light of resources; to co-ordinate strategy and policy directions in areas of shared interests and overlap; to give formal endorsement to the recommendations of the Sub-Committees; and to facilitate and co-ordinate the smooth running of the Sub-Committees.
The UNSEGHS has the following functions: to act as custodian of the GHS, managing and giving directions to the harmonized process; to keep the GHS up-to-date as necessary; to promote understanding and use of the GHS and to encourage feedback; to make the GHS available for worldwide use and application; to make guidance available on the application of the GHS and to prepare work programmes and submit recommendations to the UNCETDG & GHS.
During the development of the GHS, a Co-ordinating Group for the Harmonization of Chemical Classification Systems (CG/HCCS) was established to promote and oversee the work to develop a GHS. The first priority of the CG/HCCS was the development of a harmonized classification system. The following three organizations have been identified as the focal point for the activity indicated:
- The OECD, which includes most industrialized nations as members, is coordinating the development of health and environmental hazard classification criteria for pure substances as well as the classification criteria for mixtures.
- The UNCETDG and the ILO are coordinating the development of criteria for physical hazards.
- The ILO serves as the Secretariat for overall coordination of the harmonization effort and hosts the hazard communication (labels, MSDS, training, trade secret) working group.
The general process followed by each Working Group to reach an agreement was the following. First, a thorough analysis was undertaken of existing systems, including the scientific basis, where applicable, for each system and its criteria, its rationale and explanation of the mode of use. This "Step 1 Document" was reviewed and amended as required after discussion by participating countries. A proposal for a harmonized system was then developed. This "Step 2 Document" was reviewed and amended as required after discussion by participating countries. The Working Groups reached consensus on the revised Step 2 Document and the final proposal was submitted to the CG/HCCS for approval for global implementation.
national - In Canada, Health Canada coordinates the Canadian position for the GHS.
During the development of the GHS, Health Canada coordinated the Canadian position for the classification criteria for the health endpoints; Environment Canada, the environmental endpoints; and Transport Canada, the endpoints for physical hazards.
Health Canada also coordinated the Canadian position for the hazard communication work and for issues before the IOMC Coordinating Group for the GHS, which had overall responsibility for the development of the GHS.
An Interdepartmental Committee on GHS develops the Canadian position for all GHS activities. It includes WHMIS, the program area responsible for consumer chemicals, Pest Management Regulatory Agency, Therapeutic Products, Veterinary Drugs, and Food from Health Canada as well as Transport Canada, Environment Canada, Natural Resources, Industry Canada, Human Resources Development Canada, Foreign Affairs and International Trade.
program - A multi stakeholder WHMIS Harmonization Task Force was established to communicate and discuss the GHS proposals. The following policy was adopted by all members at their meeting of November 1st , 1991:
- Canada should be in favour of and support international harmonization of chemical hazards requirements.
- Canada should expect to have to modify WHMIS to achieve international harmonization.
- There should be no diminution of worker protection. It may be expected that there will be an overall improvement in worker protection as a result of international harmonization.
- Before Canada commits to any changes to WHMIS for international harmonization there should be tripartite consultation (federal and provincial governments, industry and labour) to maintain the consensus approach of WHMIS.
Status of GHS Initiatives (as of August 2005):
The GHS was adopted by the UN Committee of Experts for the Transport of Dangerous Goods and the Globally Harmonized System for the Classification and Labelling of Chemicals in December 2002 and is now available for countries to implement.
The "official text" for the GHS is available on the United Nations Economic Commission for Europe (UNECE) site.
Classification criteria of substances and mixtures for human health and environmental effects - The work on hazard classification for substances and mixtures has now been completed, and criteria have been developed for the following health and environmental endpoints: acute toxicity; skin irritation and corrosion; eye irritation and corrosion; mutagenicity; carcinogenicity; skin and respiratory sensitization; reproductive toxicity (including teratogenicity and embryotoxicity); target organ systemic toxicity (single and repeated dose) and aquatic toxicity.
Classification criteria for physical hazards - Criteria have been established for explosives, flammable gases, flammable aerosols, oxidizing gases, gases under pressure, flammable liquids, flammable solids, self-reactive substances, pyrophoric liquids, pyrophoric solids, self-heating substances, substances which, in contact with water, emit flammable gases, oxidizing liquids, oxidizing solids, organic peroxides and substances which are corrosive to metals.
Frequently Asked Questions on GHS:
Q. How is Canada's input into the GHS being coordinated?
A. Canada's position on GHS issues related to health endpoints is coordinated by Health Canada. Each program area, (i.e., WHMIS, the program area responsible for consumer chemicals, Pest Management Regulatory Agency, Therapeutic Products, Veterinary Drugs, Food, Transport Canada, Environment Canada, Natural Resources, Industry Canada, Human Resources Development Canada, Foreign Affairs and International Trade) is responsible for coordinating input from their respective stakeholders.
Q. What will be the advantages of the GHS?
A. The GHS will:
- enhance the protection of humans and the environment by providing an internationally comprehensive system for hazard communication;
- reduce the need for duplicative testing and evaluation of hazardous chemicals;
- eliminate the barriers to international trade in chemicals whose hazards have been properly assessed and identified on an international basis;
- provide a recognized framework for those countries not having an existing system; and
- promote regulatory efficiency, facilitate compliance, provide better and more consistent information.
Q. What is the scope of the GHS and what sectors will be encompassed?
A. Hazard classification will encompass the intrinsic properties of chemical substances and mixtures. The GHS focuses on a harmonized classification and communication (i.e., labelling and safety data sheets) system. The application of the GHS components may vary by type of product or stage of the life cycle. For example, pharmaceuticals, food additives and pesticide residues in food will not be subject to the GHS in terms of labelling where the product is intended for consumption as sold. However, these types of chemicals would be covered in transport and the manufacturing process where workers may be exposed.
Q. When will the GHS be in place?
A. Canada is a signatory to the World Summit on the Sustainable Development’s Plan of Implementation and the Intergovernmental Forum for Chemical Safety (IFCS) Plan of Action. Both encourage all countries to implement the GHS as soon as possible with a view to having the system fully operational by 2008. Canada is working towards this objective.
In August 2003, Canada released a "situational analysis" which compares exisitng systems in Canada to the GHS:
http://www.hc-sc.gc.ca/ahc-asc/pubs/ghs-sgh/analys/index_e.html
In October 2003, Canada held a workshop to launch GHS implementation. The purpose was to build a common understanding of the GHS and to identify issues and options associated with its implementation in Canada:
http://www.hc-sc.gc.ca/ahc-asc/intactiv/ghs-sgh/implement/tor/index_e.html
Since 2004, Canada has been conducting technical consultations on implementation of the GHS. The consultation process revolves around multi-stakeholder "sectoral" working groups based on delineation of regulatory authority for workplace chemicals (Health Canada's National Office of the Workplace Hazardous Materials Information System), consumer products (Health Canada's Consumer Product Safety Bureau), pest control products (Health Canada's Pest Management Regulatory Agency), and products subject to transportation of dangerous goods (Transport Canada's Transportation of Dangerous Goods Program). The Sectoral Working Groups will make interim recommendations which represent their assessment of how best to implement the GHS in Canada considering the requirements of the existing systems, the GHS criteria and the recommendations of other sectors and countries.
A multi-stakeholder cross sectoral committee (GIC) serves to identify and address issues common to the sectors and which may arise as a result of potential changes to the current systems:
http://www.hc-sc.gc.ca/ahc-asc/intactiv/ghs-sgh/com/gencom/index_e.html
In addition, expert working groups are addressing specific issues of environmental and chronic hazard labelling.
Canadian GHS implementation objectives include harmonization to the greatest extent possible among the sectors and harmonization with Canada's trading partners. As information on implementation of the GHS in other countries becomes available, the Canadian recommendations may need to be revisited.
The drafting of amendments to the current regulations is expected to begin in 2007. Implementation is expected to begin in 2008 but recognizing the need for a period of sufficient length to complete the regulatory amendment process and allow for the necessary transitions, implementation in 2008 may be somewhat optimistic.
Q. What is the anticipated impact of the GHS on WHMIS?
A. It is expected that the WHMIS requirements established under the Hazardous Products Act and associated Controlled Products Regulations will need to be amended to incorporate the new harmonized criteria for hazard classification and requirements for hazard communication; i.e., for MSDSs and labels.
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