IEA：可追溯性在关键矿产供应链中的作用

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TheRoleofTraceabilityinCriticalMineral

SupplyChains

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ThisreportwaspreparedbytheInternationalEnergyAgency(IEA)andtheOrganisationforEconomicCo-operationandDevelopment(OECD).

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TheRoleofTraceabilityinCriticalMineralSupplyChainsAbstract

OECD/IEA.CCBY4.0.

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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

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Acknowledgements,contributorsandcredits

ThisreportwasjointlypreparedbytheInternationalEnergyAgency(IEA)OfficeofLegalCounselandtheOrganisationforEconomicCo-operationandDevelopment(OECD)CentreforResponsibleBusinessConduct.Thereportsprincipalauthorsare,fromtheIEA,K.C.Michaels,FélixGagnon,AlexandraHegartyandJoyceRaboca,and,fromtheOECD,BenjaminKatz,CäcilieLeGallicandLucaMaiotti.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.

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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.

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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

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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

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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

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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

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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

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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

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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