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》OECD
TheRoleofTraceabilityinCriticalMineral
SupplyChains
>
ThisreportwaspreparedbytheInternationalEnergyAgency(IEA)andtheOrganisationforEconomicCo-operationandDevelopment(OECD).
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TheRoleofTraceabilityinCriticalMineralSupplyChainsAbstract
OECD/IEA.CCBY4.0.
PAGE|3
Abstract
Asglobaldemandforcriticalmineralsgrows,itwillbeimportanttoanticipateandaddressthepotentialharmstheminingandmetalssectorcanhaveonsocieties,communitiesandtheenvironment.Overlookingtheseriskscanultimatelydisruptsupplyforcleanenergytechnologies.Traceabilitysystemscan,whenusedaspartofawiderrisk-basedduediligenceprocess,helpmeetemergingpolicygoalsbyprovidingwaystointegratedataonorigin,evolution,andownershipofminerals.Sometraceabilityapproachescanalsoprovideaplatformforembeddingdataonenvironmental,socialandgovernanceissues.Toworkeffectively,however,traceabilitysystemsmustbecarefullydesignedbalancingstandardisationandcontext,maintainingdataquality,andadaptingtovaryingsupplychaincomplexities.Theyalsorequirestrongcollaborationamongcompanies,governmentsandcivilsociety,backedbycost-sharing,reliableverificationandsecuredata-sharingprotocols.Aboveall,traceabilityshouldserveclearobjectivesratherthanbecomeanendinitself:policymakersandpractitionersshouldadoptameasuredapproach,progressivelydeployingmechanismswherenecessarywhileallowingforinclusiveparticipationandaccesstomarketsandinvestment.Thisreportincludesapracticaleight-steproadmap,fromsettingpolicyobjectivestobuildingtrustmechanisms,whichcanhelpensuretraceabilitysystemsarefitforpurposeandalignedwiththerealitiesofglobalsupplychains.
TheRoleofTraceabilityinCriticalMineralSupplyChainsAcknowledgements,contributorsandcredits
OECD/IEA.CC
PAGE|4
Acknowledgements,contributorsandcredits
ThisreportwasjointlypreparedbytheInternationalEnergyAgency(IEA)OfficeofLegalCounselandtheOrganisationforEconomicCo-operationandDevelopment(OECD)CentreforResponsibleBusinessConduct.Thereportsprincipalauthorsare,fromtheIEA,K.C.Michaels,FélixGagnon,AlexandraHegartyandJoyceRaboca,and,fromtheOECD,BenjaminKatz,C?cilieLeGallicandLucaMaiotti.Othercolleagueswhocontributedtothisworkinclude,fromtheIEA,éricBuisson,AmritaDasgupta,ShobhanDhir,YunYoungKim,GyubinHwangandTristynPage,and,fromtheOECD,GiuliaGalliandKatarinaSvatikova.TimGould,Tae-YoonKim(IEA),LouisMaréchal,HannahKoep-AndrieuandAllanJorgensen(OECD)providedinvaluablecommentsandfeedback.
Thisreportwaspreparedinconsultationwith,andwiththesupportof,theIEAsCriticalMineralsWorkingPartyandtheOECDsWorkingPartyonResponsibleBusinessConduct.
Valuablecommentsandfeedbackwerereceivedfromthefollowingexternalexperts:
CarolineAvanSteveCapell
EllenCarey
Anne-MarieDesaulty
PaulaDinis
LeslieEsparza
KatieFedosenko
Anne-MarieFleuryJessicaGreen
LaurieHailey
NicoleHanson
LukeHarper
AbigailHunter
AndrewJacob
KateJohnston
ErleLamothe
JoanneLebert
GrahamLee
SusannahMcLarenNinaMelkonyan
Business&HumanRightsResourceCentreUnitedNationsEconomicCommissionforEurope
Circulor
BureaudesRecherchesGéologiquesetMinières
GovernmentofPortugalMicrosoft
TeckResourcesGlencore
Circulor
GovernmentofCanada
LondonMetalExchange
GovernmentoftheUnitedKingdomSecuringAmericasFutureEnergyBHP
GovernmentofAustraliaGovernmentofCanadaIMPACT
BY4.0.
GlobalBatteryAllianceCobaltInstitute
GlobalWindEnergyCouncil
TheRoleofTraceabilityinCriticalMineralSupplyChainsAcknowledgements,contributorsandcredits
OECD/IEA.CCBY4.0.
PAGE|5
TomMoerenhout
CenteronGlobalEnergyPolicy
DanielMonfortCliment
BureaudesRecherchesGéologiquesetMinières
KanishkNegi
SchneiderElectric
JamesNicholson
Trafigura
CapucineNouvelZurcher
BureaudesRecherchesGéologiquesetMinières
Zubeyde(Zoe)Oysul
SecuringAmerica'sFutureEnergy
IngaPetersen
GlobalBatteryAlliance
PierrePetit-DePasquale
InitiativeforResponsibleMiningAssurance
YblinRománEscobar
SecuringIndigenousPeoplesRightsintheGreenEconomy
SebastianSahla
ExtractiveIndustriesTransparencyInitiative
IlseSchoeters
Glencore
KadySeguin
IMPACT
KatherineShapiro
GovernmentofCanada
SimonThibault
GeneralMotors
KaisaToroskainen
GlobalBatteryAlliance
Finally,thanksarealsoduetotheIEACommunicationsandDigitalOfficefortheirhelpinproducingthereport,particularlyJethroMullen,CurtisBrainard,AstridDumond,LivGaunt,JuliaHorowitz,OliverJoy,PoeliBojorquez,WonjikYang,IsabelleNonain-Semelin,ClaraValloisandGraceGordon.ThereportwascopyeditedbyAdamMajoe.
TheRoleofTraceabilityinCriticalMineralSupplyChainsTableofcontents
OECD/IEA.CCBY4.0.
PAGE|6
Tableofcontents
Executivesummary 7
Chapter1.Introduction 9
Thea needforresponsibleandsustainablesupplyofcriticalminerals9
Thepotentialfortraceabilitysystemstosupportkey policyobjectives10
Keyconditionsfortraceabilitysystems 12
About 14thisreport
Chapter2.Whatis 15traceability?
Defining traceability15
The 17relationshipbetweentraceabilityandotherconcepts
Chapter3.Policies,andmarketon 26regulationsrequirementstraceability
Measureson encouragingtraceabilitytherise26
Recycled contentregulationsandtraceability33
Regulatory andenforcementlimitations34
Chapter4.ComponentsofaneffectiveAtoolkit 36mineraltraceabilitysystem:
Technical infrastructure37
Standardised datacollection43
Supply 47chaincollaboration
Governance andverification50
Chapter5.Considerationsforenergytransitionminerals 52
Copper 53
Lithium 55
Nickel 57
Graphite 59
Cobalt 61
Rare earthelements62
Lessons learnedfromtraceabilityinitiatives63
Chapter6. 70Roadmapforincreasingmineraltraceability
Step1:Determine thepolicyobjectivesandunderstandthesupplychaincontext70
Step2:Chooseon 71whichproductstofocus
StepDetermine 713:whichinformationshouldbecollectedandshared
Step4:Chooseon 72whichoperatorstofocus
StepPromote 725:thedevelopmentanduseofinteroperabilityprotocols
StepEstablish 6:trustmechanisms73
Step7:Create 74incentivesforincreasingtraceability
StepEngage 8:withstakeholdersinforeignjurisdictions75
TheRoleofTraceabilityinCriticalMineralSupplyChainsExecutivesummary
OECD/IEA.CC
PAGE|7
Executivesummary
Criticalmineralsupplychainscannotbetrulysecure,reliableandresilientunlesstheyarealsosustainableandresponsible.Growingdemandforcriticalmineralswillmeannewmines,processingfacilitiesandrefineries,whichcanbringattendantrisksofharmtotheenvironment,workers,communitiesandsocieties.Theseharms,ifnotadequatelyprevented,mitigatedorremedied,candisruptsupplyandhindertherapidscale-upofcleanenergytechnologies.Toaddressthesechallenges,processes,toolsandmechanismsareneededtoensureanddemonstrateresponsiblepracticesacrossthevaluechain.
Traceabilitycanplayanimportantroleinsupportingdifferenttypesofpolicygoals,includingonenergysecurity,andensuringsustainableandresponsiblesupplychainsaresupportedbystrongduediligenceprocesses.Manyjurisdictionsarealreadyintroducingregulationswithspecificoriginandenvironmental,socialandgovernancerequirementsthatindirectlyordirectlyrequiresupplychaintransparencyaspartofbroadersupplychainduediligencerequirements.Ifimplementedcarefully,traceabilitysystemscanenablethecollectionofdataonproductorigin,geographicpath,thesequenceofentitiesthatheldownershiporcontrolovertheproductanditsphysicalevolution.Totheextentthatinformationofthisnaturecanbeintegratedintotraceabilitysystemsalongsideaccurateandreliabledataonenvironmental,socialandgovernanceperformance,thiscanenablecompaniestodemonstratecompliancewithregulatoryrequirementswhileprovidinggovernmentswithtoolstomonitorregulatoryadherenceandprogresstowardsustainabilityorsecurity-relatedtargets.
BY4.0.
Atthesametime,carefuldesignandimplementation,alongwithaddressingkeytechnologicalandeconomicchallenges,areessentialfortraceabilitysystemstoeffectivelysupportresponsiblesupplychains.Arobusttraceabilitysystemmustincludeanassessmentoftheappropriatetechnicalinfrastructure,includingchoosingappropriatetoolsandastrategysuitableforthenatureofthesupplychain,weighingthecostsandbenefitsofdifferenttechnologiesandensuringinteroperabilityacrossthesupplychain.Standardisingthetypesofdatacollectedandmethodsusedisalsoimportantsincecomparabilitycanhelptracktheresultsofeffortstoaddressadverseimpactsinthesupplychain.Policymakersandpractitioners,however,shouldstillbecarefultoavoidstandardisationcomingattheexpenseofnuancedinformation,orscoringofsustainabilityperformancebeinginterpretedtoodefinitivelyduetotheoftenqualitativeorsubjectiveunderpinningsofsuchdata.Supportingeffectiveriskidentificationandmanagementaspartoftheduediligenceprocessshouldremainthecentraltenet.Collaborationbetweensupplychainparticipants,includingappropriatecost-sharinganddata-sharingpractices,isessential,supportedby
OECD/IEA.CCBY
PAGE|8
robustdataprivacyandsecurityprotocolsthatprotectbusinessconfidentialitywhileenablingeffectiveinformationsharing.Lastly,thegovernanceoftraceabilitysystemsandthestrengthofverificationmechanismsmatter,asthesesystemscanonlybeasreliableasthedatatheyreceive.
Traceabilitysystemsmustalsobetailoredtomineralsupplychainsandrisks.Characteristicssuchasthegeographicallocationofoperations,technicalcomplexityofprocessing,andthenumberofcompaniesoperatinginthesupplychaincanallcreateuniquesourcingchallengesthatimpactthelevelofvisibilitythatismosteffective.Forexample,theblendingofsyntheticandnaturalgraphiteduringtheprocessingstagemayobscurefullend-to-endtraceability.Highlevelsofartisanalandsmall-scalemininginthecobaltsupplychainmayrequiretraceabilitysystemstoadapttoremaininclusive,forexample,byusingsolutionsbettersuitedtolowconnectivityenvironmentsandcognisantofbarrierstoaccessintermsofincentives,costsandlevelsofformality.
Aboveall,traceabilityshouldnotbeseenasthegoalinandofitself–traceabilitysystemsshouldaimtosupportclearobjectives.Anyapproachthatdirectlyrequirestraceabilityshouldbemeasured,allowingforanincreaseinpaceandstringencytomaintainsmoothmarketfunctioning.Aligningimplementationtimelinesandrequirementswithindustryreadinesswouldfosterinclusiveengagementwithsourcecountries,preventingblanketdisengagement.Avoidingbeingprescriptiveonend-to-endtraceabilityandconsideringtechnicalalternativesforfosteringsupplychaintransparencyasnecessarycanhelpensureeffortstopromotetraceabilityarefitforpolicyobjectives.GovernmentsplayanimportantroleinincreasingmineraltraceabilitybypromotingitasatoolwhereitisappropriateandeffectivebyutilisingtheeightstepswehaveidentifiedinourRoadmap:
?Step1:Determinethepolicyobjectivesthattraceabilityshouldhelpachieveandunderstandthesupplychaincontext.
?Step2:Takingaccountofpolicyobjectives,choosewhichproductstofocuson.
?Step3:Determinewhatinformationoperatorsshouldcollectandshare.
?Step4:Consideringthesupplychaincontext,choosewhichoperatorstofocuson.
?Step5:Promotethedevelopmentanduseofinteroperabilityprotocols.
?Step6:Establishtrustmechanisms.
?Step7:Createincentivesforincreasingtraceability,includingeconomicincentives(suchasfundingarrangementsandtaxcredits)aswellasregulatoryrequirements.
4.0.
?Step8:Engagewithstakeholdersinforeignjurisdictionstoensurethereissupplychaincollaborationandtopromotedata-sharing.
Chapter1.Introduction
TheRoleofTraceabilityinCriticalMineralSupplyChains
OECD/IEA.CCBY4.0.
PAGE|9
Chapter1.Introduction
Theneedforaresponsibleandsustainablesupplyofcriticalminerals
Theenergytransitionwillrequiretherapidscale-upofcleanenergytechnologies,whichisexpectedtoboostdemandformanymineralsandmetals,includinglithium,nickel,cobalt,graphite,copper,aluminiumandrareearthelements.IntheIEAsStatedPoliciesScenario,
mineraldemandforcleanenergytechnologies
doubles
between2025and2030.Inmoreambitiousclimatescenarios,suchastheIEAsNetZeroEmissionsby2050Scenario,whichseestheworldlimititstemperatureincreaseto1.5°C,aswiftertransitionimpliesanearlytriplingofmineraldemandby2030.Thiswouldmeanthedevelopmentofabout
150average-sizednewmines,processingfacilitiesandrefineries.
Whilethereisamixedpictureforfuturesupply-demandbalanceswithsomemineralsfacingsignificantsupplygapsandothersnotallmineralsupplychainsfacesignificantenvironmental,socialandgovernance(ESG)risks.TheseriskscutacrossareascoveredbytheOECDGuidelinesonMultinationalEnterprisesforResponsibleBusinessConduct(RBC),spanningcorruption,environment,humanrights,labourandtaxation,sometimesinthecontextofarmedconflictoraprecarioussecuritysituation,inadditiontootherinternationalinstrumentsliketheUnitedNationsGuidingPrinciplesonBusinessandHumanRightsandtheILOTripartiteDeclarationofPrinciplesconcerningMultinationalEnterprisesandSocialPolicy.
Failuretoprevent,mitigateandaddresstheserisksortheadversesustainabilityimpactstheycanresultin,canhinderthesupplyofmineralsneededforthecleanenergytransition.Asidefromcompromisingsustainabledevelopment,fallingshortinthisregardcanlimitmarketaccess,createlegalbarriers,
spurlitigation,
discourageinvestment,causereputationalharm,increasethelikelihoodofoppositionfromlocalcommunities,IndigenousPeoplesorotherstakeholders,ordisruptoperationsandincreasecostsduetointerferencebyvestedinterests.Takentogether,ifnotaddressed,theseriskscanphysicallypreventminesandprocessingfacilitiesfromoperating.Thisisespeciallythecaseformineralsinconflict-affectedandhigh-riskareas,wheresomeofthemostabundantreservesofcriticalmineralslie.Ultimately,criticalmineralsupplychainscannotbetrulysecure,reliableandresilientunlesstheyarealso
sustainableandresponsible.
Toachievethis,companiesneedtocarryoutduediligencetoidentifyadverseimpacts,preventandmitigatethem,trackresultsandcommunicateonhow
OECD/IEA.CCBY4.0.
PAGE|10
adverseimpactshavebeenaddressed.Inthiscontext,traceabilitycanbeanimportanttooltogainvisibilityovertheirownoperations,supplychainsandotherbusinessrelationships.
Thepotentialfortraceabilitysystemstosupportkeypolicyobjectives
Traceabilityreferstotheabilitytodetermineaproductsorigin,geographicalpath,chainofcustodyandphysicalevolutionovertime.Thiscanallowforinformationaboutmineralinputstobeattachedtoend-products,includingthelocationofthemineoforiginforeachmineralinputanddetailedinformationabouteachtransformationthatoccurredasthemineralmovedthroughthesupplychainfromrefiningtotheend-product,withalloriginandprocessinginformationpreserved,evenincasesofblendingandtrading.DataonESGmetricssuchasGHGemissions,environmentalfootprints,beneficialownership,compliancewithnationallawsandinternationalconventions,informationonsystemstoprotecthumanrightsandcorruptionriskscanalsobeattachedtotraceabilitysystems.
AccuratedataonESGfactorsplaysacrucialroleinencouraging
responsibleand
sustainablesupplychains.
Thorough,accurateandtransparentdatacanenablecompaniesandenduserstomakeinformeddecisionsandcansupportpolicymakersinidentifyingtrendsandtailoringpolicydecisions,aswellashelpthemimplementpolicyincentivestodrivecompaniestowardsimprovedsustainabilityperformance.Totheextentthattraceabilitycanenhancetheavailabilityofsuchdatafordifferentstakeholders,itcancontributetocreatinganenablingenvironmentformoreresponsibleandsustainablepractices.
Traceabilitysystemscanalsohelpgatherthenecessaryinformationtosupportarisk-basedapproachtoidentifyingandaddressingadverseimpactsinlinewithOECDGuidelinesforMultinationalEnterprisesonResponsibleBusinessConductandotherinternationallyagreedstandards,inadditiontomeetingproductspecificationsandotherrequirements.Companiesarealreadyusingtraceabilitysystemstocollectinformationontheoriginandchainofcustodyofminerals,whichisoftenastartingpointforduediligenceontheconditionsofextraction,tradeandprocessingofmineralresources.
Atraceabilitysystemthatofferssustainabilityinformationtoenduserscouldoffertransparencytothemarket,enablingproductdifferentiation.Thiscouldallowactorssuchasgovernmentsorconsumerstomoreeasilyandaccuratelymakepurchasingdecisionsbasedontheperformanceofcompetingproductsagainstdifferentmetrics.Itcouldalsofacilitatemarketaccessinjurisdictionswithregulatoryrestrictionsonmaterialperformanceandorigin.Finally,itcould
OECD/IEA.CCBY
PAGE|11
potentiallysupporthigherpricesforproductswithgoodperformancethroughoutthesupplychainiftherightmarketmechanismsexistedtosupportsuchapricedifferentiation.
Ifusedcorrectlyandundertherightconditions,traceabilitycan,therefore,serveasatooltosupportkeypolicyobjectivesofcountrieswithrespecttocriticalmineralsupplychains.Thesecanincludethedevelopmentofsustainableandresponsiblesupplychainsandthepromotionofdiversification,servingtoensurethereliabilityandsecurityofsupply.Aneffectivetraceabilitysystemcanalsohelpreduceoverallcostandcomplexity,addressinginefficienciesandfragmentationinthecurrentmarketlandscape.Inadditiontothese,traceabilityisrelevanttoproductsafety,supplychaindependencies,nationalsecurityandtradesanctions.
Regulatorsandoperatorshavealreadysoughttoimplementtraceabilitysystemsthatcanallowforthetrackingofmaterialsthroughoutthecriticalmineralvaluechain.Thesesystemsrangefromdirectrequirements,liketheEuropeanUnionsbatterypassport,toindirectincentivesthroughduediligencelegislation.Thespecificapproachtakenvariesbasedonthepolicyobjectivesfromconsumerdisclosureandsustainabilitycompliancetosupplychainsecurityandriskmanagement.Whiletheseeffortshaveproliferated,widespreadimplementationcontinuestofacechallengesduetoconflictingcompliancerequirements,practicallimitationsandvaryingtechnicalcapabilitiesacrossthesupplychain.
Policymakersusing,orconsideringusing,traceabilityasatooltoenhancetheresilienceofmineralsupplychainsshouldensurethattheefficienciesandflexibilitiesofexistingmarketsaremaintained.Forinstance,ratherthanuniversallymandatingfullandimmediateend-to-endtraceabilityacrossallmineralsupplychains,amoremeasuredapproachcouldallowforanincreaseinpaceandstringencytomaintainsmoothmarketfunctioning.Aligningimplementationtimelineswithindustryneedsandreadinesswouldfosterinclusiveengagementwithsourcecountries,preventingblanketdisengagementandensuringthatmarketaccessisnotbeingdeniedtoemergingmarketeconomies.Thisapproachwouldalsoallowtimeforassessingtracingneeds,capacitybuildingandthesmoothadoptionofnewsystems.Inpursuitofmoreresponsiblemineralsupplychains,traceabilityisforemostatooltohelpidentifywherecompaniesshouldprioritiseduediligenceefforts.Itshouldenablecompaniestobeginmitigatingrisksandremedyingadverseimpacts,startingaprocesstoimprovesupplychainsratherthanmarkingtheendofacomplianceexercise.
4.0.
Inthisregard,policymakersmustalsoensurethattheemphasisontraceabilitydoesnotcrowdoutresourcesandattentionawayfromcarryingoutthefullduediligenceprocess;companiesshouldidentify,prevent,mitigateandaccountforhowtheyaddressactualandpotentialadverseimpactsassociatedwithmineralsupplychains.Consideringfiniteresources,feasibilityconstraintsandthe
OECD/IEA.CCBY4.0.
PAGE|12
importanceofavoidingneedlessmarketdisruptions,theremustbeacarefulconsiderationofhowandunderwhatconditionstraceabilitysystemscanandshouldbeused.
Keyconditionsfortraceabilitysystems
Wehaveidentifiedfourkeycomponentsofaneffectivemineraltraceabilitysystem:
?Appropriatetechnicalinfrastructuremustcarefullyweightheadvantagesanddisadvantagesofdifferentrecord-keepingsystemsandworktoensurestandardisationandinteroperabilityacrossdifferentcompanies’traceabilitysystems.Theinfrastructureshouldalsoconsiderthebalancebetweenthehighcostsofsettingup,maintainingandscalingcertaintechnicalinfrastructureandtheabilityforittohelpmeetpolicyobjectives.
?Thecollectionandtransmissionofrelevant,accurateandverifiabledataareessential.Ataminimum,traceabilitysystemsneedtocollectandtransmitdataontheproductoriginandgeographicalpath,thechainofcustody,andthephysicalevolutionovertime.DataonESGperformanceandriskcanbeattachedtotraceabilitysystems,withsometypesofinformationmoreeasilyquantifiableandtransmittableacrosssupplychainsthanothers.
?Thereshouldbesupplychaincollaboration,withcontributions,financialorotherwise,fromacrossthesupplychainandclearlydefinedrolesandbuy-inforeachactor.Collaboratingwithcompetitorsorsuppliers,includingaspartofsustainabilityinitiatives,shouldremainsubjecttocompetitionandanti-trustlaw.Thegovernanceoftraceabilitysystemsandthereliabilityofdata,includingtheuseofverificationandassurance,shouldbecarefullyconsidered.Datastandardisationspecificationscanhelpensuredatareliabilitybyestablishingconsistentrequirementsforwhatinformationshouldbecollectedanddocumented.Additionalformsofverificationmayalsobeneededtoensuretraceabilityinformationisreliable.Thegovernanceframeworksoftraceabilitysystemsshouldbecredibletomaintainstakeholdertrustintheinformationsystemsandthewayinformationispassedon
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