1. Introduction
Corporate risk-based value-chainFootnote 1 due diligence (VCDD)Footnote 2 is a normativeFootnote 3 framework that requires enterprises to identify actual or potential adverse impacts in their value chains and take appropriate action to address them. During the past decade, several initiatives have developed VCDD norms to regulate the behaviour of corporationsFootnote 4 regarding the impacts their activities may have across different fields, rendering it an essential and widely recognized tool for companies to identify and address risks in their value chains.Footnote 5 Particularly within the European Union (EU), there has been an intensification of ‘the political appetite to “harden” VCDD standards’ in the environmental field,Footnote 6 evidenced by the approval of multiple laws on VCDD covering environmental issues in France,Footnote 7 Germany,Footnote 8 and, more recently, at the EU level.Footnote 9 These legal developments highlight the importance of studying VCDD norms to understand how they apply to concrete transnational environmental disputes involving the activities of enterprises. To explore this topic, this article argues that a suitable source for analysis is in the final instance decisions of National Contact Points (NCPs) of the Organisation for Economic Co-operation and Development (OECD),Footnote 10 which have applied to concrete environmental disputes the VCDD expectations contained in the 2011 version of the OECD Guidelines for Multinational Enterprises (Guidelines).Footnote 11 While many types of environmental grievance could possibly fit the context of this study, this article focuses on VCDD environmental claims that concern the need for corporations to identify and assess adverse environmental impacts (I&A AEI). This narrow focus is justified because the expectation to identify and assess adverse environmental impacts (I&A of AEI) enshrines one of the main substantive expectations set by VCDD norms, which is arguably distinguishable from other normative commands present in those norms.Footnote 12 Moreover, from an environmental perspective, there is a need to clarify the distinctiveness of this expectation in relation to similar legal obligations that routinely bind corporations to perform environmental impact assessments (EIAs)Footnote 13 – an analysis still lacking in the literature – highlighting increasingly urgent interpretive challenges about how these two regulatory layers may interact in the context of the transition of VCDD from soft to hard law.
With that objective in mind, this article starts by providing the context and background for this research by introducing two key topics central to the analysis (Section 2). Firstly, it highlights the role of NCPs as interpreters of VCDD norms (engaging with literature on OECD ‘soft’ case law analysis), justifying why their statements constitute suitable sources in this context. In doing so, the article highlights a gap in the literature regarding the systematic analysis of NCP final instance decisions that specifically address environmental grievances (Section 2.1). Secondly, it introduces the VCDD expectation relating to the I&A of AEI, summarizing its design in the context of the Guidelines and distinguishing it from similar normative commands that bind corporations to perform EIAs (Section 2.2). This contextual background informs the case selection and methodology adopted (Section 3), and grounds the analysis of OECD ‘soft’ case law performed (Section 4). The results of the analysis are then considered, highlighting avenues for further research (Section 5). The article concludes by summarizing the findings and providing recommendations on how I&A expectations should be interpreted in practice (Section 6). A summary table of the cases analyzed is provided as Supplementary Material for this article.
The article concludes that EIAs and VCDD represent two distinct but increasingly interconnected legal frameworks governing corporate environmental responsibility. However, NCPs display divergent interpretations concerning the interplay between the VCDD expectations to I&A AEI and other normative expectations that may bind corporations to conduct EIAs. This results in an inconsistent handling of I&A claims by NCPs, which mediate and analyze these grievances in some cases, while rejecting them from the outset in others. The clarifications provided by this article about the distinctiveness of VCDD I&A expectations and their relation to EIA obligations support the assertion that these two types of obligation set out independent normative commands for the assessment of environmental impacts that should have their own associated compliance assessments (that is, compliance with one does not necessarily imply compliance with the other). The article recommends that supervisory authorities, which interpret and apply VCDD norms, provide clear explanations regarding the ways in which the conduct of EIAs by companies is considered to also substantiate compliance with I&A expectations. Doing so is likely to promote a more rigorous compliance assessment under VCDD norms.
2. Context and Background
2.1. The Context of NCPs as Sources of Interpretative Power on VCDD
Despite the current hardening of soft-law standards on VCDD, case law and litigation on this subject are still developing in different jurisdictions. However, judicial decisions are not the only available data sources developing and applying VCDD expectations to concrete environmental disputes. As argued in the literature, studying NCP statements offers a method to gain insight into VCDD by analyzing the ongoing elaboration, explanation, and construction of what the concept entails.Footnote 14 Nonetheless, readers should be aware that NCP decisions cannot be considered jurisprudence or legal decisions.Footnote 15 NCPs are state-based non-judicial mechanisms providing an alternative dispute resolution framework through dialogue, mediation, and conciliation services.Footnote 16 Moreover, owing to most of their implementation arrangements being determined at the national level, NCPs possess varying procedural practices,Footnote 17 levels of resources,Footnote 18 and institutional designs,Footnote 19 resulting in an amalgam of bodies that arguably are not functionally equivalentFootnote 20 and in which a coherence gap persists,Footnote 21 rendering the system generally fragmented, unpredictable, and opaque.Footnote 22 This variability is also reflected in the quality of the decisions obtained as sources for this study, as not all specific instances are concluded with recommendations or an analysis relevant to the implementation of the Guidelines.
Notwithstanding the status quo, the interpretative power of NCPs to develop the content of the Guidelines has been recognized in the practice of some NCPs by several authors,Footnote 23 and has been argued to be a necessary and desirable component of the system by others.Footnote 24 The findings of NCPs in specific instances have also been described as potentially providing ‘persuasive precedential value’,Footnote 25 as being ‘important sources of information on corporates’ behaviour’,Footnote 26 and their power to make recommendations and determinations has been characterized as a sign of the growing judicialization of the mechanism.Footnote 27 For these reasons, this article argues that in the context of the hardening of soft VCDD norms, NCP decisions can and should be analyzed systematically to understand how these norms are applied in practice by dispute resolution bodies that have demonstrated themselves to be at least capable, and at best competent, in interpreting such norms.
Despite a growing number of publications analyzing OECD NCP decisions, few works seek to analyze such decisions in a comprehensive and systematic manner, and those that do have focused mostly on the human rights aspects of VCDD.Footnote 28 Recent literature has also analyzed OECD ‘soft’ case law by focusing on specific operational contexts that may imply heightened VCDD,Footnote 29 or by centring the analysis on the remedy outcomes obtained by complainants in this non-judicial mechanism.Footnote 30 Various publications also adopt a limited approach, focusing on the work and decisions of specific NCPs, rather than encompassing an analysis of the entire OECD grievance mechanism system.Footnote 31 To the best of the author’s knowledge, no other academic work has tried to conduct a comprehensive and systematic analysis of OECD NCP decisions covering environmental protection disputes. Some research has covered environmental aspects incidentally by adopting an approach that centres on specific industry sectors that are commonly associated with adverse environmental impacts,Footnote 32 or by focusing on specific types of environmental impact.Footnote 33 Furthermore, while some of the cases analyzed in this research may have been examined sporadically in other publications,Footnote 34 such case-study approaches lack the systematic pedigree and broader insights offered in this article.
After providing contextual information on the role of NCPs as VCDD norm interpreters and exposing the current gaps in the literature concerning a systematic analysis of environmental VCDD disputes, the subsequent section synthesizes what the I&A of AEI entails in the context of VCDD norms, and outlines why it is important to distinguish it from similar legal obligations that routinely bind corporations to conduct EIAs.
2.2. The I&A of AEI under the OECD Guidelines and its Relation with EIA
The I&A of AEI is one of the primary substantive aspects of VCDD norms, and a crucial initial step in the VCDD process – essential for determining the adverse impacts that companies need to address and how they should be addressed.Footnote 35 It is set out in the Guidelines’ placement on corporations of an expectation to carry out risk-based due diligence in relation to impacts that may arise from the enterprises’ own activities, or be directly linked to their operations, products or services through their value chains.Footnote 36 In the environmental field, this implies both an adequate and timely collection and evaluation of information regarding current environmental impacts,Footnote 37 as well as an assessment of foreseeable environmental impacts associated with corporate activities.Footnote 38 In certain circumstances, corporations are also expected to prepare an appropriate EIA to assess the environmental impact of their activities.Footnote 39 The Guidelines also emphasize that the public should be provided with information concerning the potential environmental impact of activities,Footnote 40 and that the disclosure policies of the corporation should include material information on foreseeable (environmental) risk factors.Footnote 41
Beyond what is contained in the text of the Guidelines, the official OECD Guidance on Due Diligence (Guidance)Footnote 42 further clarifies the I&A process. It highlights that, at the first stage, enterprises are expected to carry out a broad scoping exercise, enabling them to map their operations and carry out an initial evaluation to identify the most significant risk areas in their value chains for further in-depth assessments.Footnote 43 These areas of significant risk should be identified by considering sectoral, product, geographic, and enterprise-level risk factors.Footnote 44 Corporations should then, at the second stage, perform in-depth assessments focusing on those high-risk areas.Footnote 45 The outcome of these assessments should lead to a determination of both the level of involvement of the enterprise in actual or potential adverse impacts,Footnote 46 as well as the significance (severity and likelihood) of these adverse impacts.Footnote 47 Corporations should also meaningfully consult with stakeholders in their assessment of adverse impacts.Footnote 48
The Guidance further clarifies that in order to conduct the I&A of AEI, corporations should draw information from other common environmental assessmentsFootnote 49 that they may already be carrying out at a local level, such as EIAs, environmental inspections required for licensing certain economic activities,Footnote 50 as well as environmental audits.Footnote 51 Information resulting from such environmental assessments should be used by the enterprise to assess the nature and extent of actual and potential impacts covered under the Guidelines,Footnote 52 although it should not be relied upon where doubts arise about its quality or independence.Footnote 53 Thus, to perform the I&A of AEI, enterprises should use a mix of information derived from both their own (self)assessments and other environmental risk assessment procedures, which are sometimes regulated at a local level.Footnote 54
Having made clear that the expectation for corporations to I&A AEI is connected to local EIA procedures (which represent sources of information for the I&A process), it is important to clarify how the I&A of AEI should be distinguished from such local processes. This need is particularly pressing, as the literature on VCDD and impact assessment has analyzed this step of the VCDD process mostly from a human rights perspective.Footnote 55 However, while with regard to human rights due diligence the UNGP are largely responsible for mainstreaming the application of human rights impact assessments in the context of business activities, the same relationship cannot be established between the OECD Guidelines and EIAs. The application of EIAs to business activity contexts largely pre-dates the development of VCDD norms and was already part of the legal obligations with which corporations had to comply at the host-state levelFootnote 56 in the context of obtaining permits and licences for conducting their activities. In fact, these same EIA requirements, in large measure, have inspired the design of the VCDD process imagined by Ruggie.Footnote 57 There is thus a need in the environmental VCDD field to clarify the interplay between these two layers of regulation (home and host state), as they both contain normative commands for the assessment of environmental impacts connected with corporate activities, and to clarify what the expansion of VCDD obligations to the environmental field adds to the obligations of EIA that corporations already face. By highlighting the main differences between the two types of regulatory command, this article brings added clarity to this relationship.
Firstly, the expectations the Guidelines place on corporations to I&A AEI have been characterized as reflecting an international legal standard of corporate accountability according to which corporations should integrate environmental concerns into their operations (through conducting EIAs and establishing environmental management systems),Footnote 58 which, contrary to host-state laws on EIA, is not triggered by a particular threshold of risk (meaning that companies are expected as a matter of practice to assess environmental impacts in all their activities on an ongoing basis).Footnote 59 This standard contained in VCDD norms can thus both refer to additional impact assessments beyond those required by national law, as well as emphasize higher expectations regarding how business entities carry out assessments required by national legislation.Footnote 60 Secondly, while EIA standards at the local level are usually focused on project-level impact assessments, the OECD Guidelines extend this expectation to conducting life-cycle assessments as a tool for the systematic evaluation of the environmental aspects at product or service levels through all stages of their life-cycle.Footnote 61 Thirdly, local host-state EIAs are used mostly in planning and licensing procedures at local/regional levels,Footnote 62 whereas the I&A of AEI is used continuously by companies throughout their VCDD process.Footnote 63 Fourthly, while host-state EIA norms generally involve an evaluation of the positive (environmental/socio-economic) impacts associated with corporate activities,Footnote 64 the expectation to I&A AEI requires only an analysis concerning adverse or negative environmental impacts.Footnote 65 Finally, while EIAs are generally perceived as avenues for public participation, not all EIA frameworks require meaningful stakeholder engagement to assess environmental impacts,Footnote 66 which is a clear expectation of the I&A process.
Despite the expansive nature of the expectations placed on corporations, the design of this normative command in the Guidelines is not free from criticism. The Guidelines do not provide a clear definition of what an environmental risk or impact is;Footnote 67 nor do they reflect a specific requirement for enterprises to consider cumulative environmental impacts.Footnote 68 It is also unclear whether the (self-)assessment of environmental impacts requires a specific substantive approach, and whether a profound rethinking of proposed corporate activities should also be considered.Footnote 69 Finally, even if the OECD Guidance brings added clarity concerning the outcomes and procedural aspects to be taken into account by corporations when I&A AEI under VCDD norms, the concrete methodology to be adopted by corporations to conduct the I&A is still developing in practice.Footnote 70
However, if one accepts that the introduction of VCDD obligations adds a regulatory layer to the obligations that corporations may have with regard to the I&A of AEI, then it becomes necessary to understand where the boundaries between these two areas of regulation lie, and what is the interplay between them. What could expectations on I&A of AEI entail beyond compliance with local EIA requirements? What kind of I&A is expected from corporations when impacts at stake are not captured by EIAs at the host-state level? This article argues that analyzing NCP statements can provide guidance on how soft legal expectations to I&A AEI have been interpreted and applied, possibly informing future interpretations of nascent legal obligations on the subject. Such analysis can aid in exploring how the application of I&A expectations takes place in practice, clarifying the blurred boundaries of the interplay between two distinct layers of regulatory intervention. This is what the next section of the article sets out to achieve, starting by explaining the case selection criteria adopted and methodology followed.
3. Case Selection and Methodology
The selection of cases for this research is based on an exhaustive analysis of all specific instances concluded under the OECD Database of Specific InstancesFootnote 71 that were filed between May 2011 and June 2023 – the effective period of applicability of the 2011 version of the Guidelines.Footnote 72 This choice is justified because the 2011 version was the first VCDD normative framework to extend its material scope of application to environmental protection matters. This resulted in an initial selection of 417 cases for further summary analysis of the content of the decisions to understand whether the disputes described raised any environmental issues. This analysis was important because the need to exercise due diligence over AEI can be argued by claimants or analyzed by NCPs under different chapters of the Guidelines. Most commonly, the chapter used is ‘Environment’; however, relevant analysis by NCPs on the need to exercise due diligence over AEI is often also conducted under the ‘General Policies’ or ‘Human Rights’ chapters of the Guidelines. This step in the selection resulted in the refinement of the total number of cases deemed suitable for in-depth analysis, leading to a pre-selection of 147 specific instances that raised environmental grievances to be analyzed by NCPs. All these final decisions of specific instances were then analyzed in-depth and qualitatively coded to identify whether they handled any I&A claims. For the purposes of this article, and to reflect the normative core associated with I&A expectations (identified in Section 2.2), I&A claims were deemed to concern any grievances alleging the lack of (or improper) conduct of environmental assessments by an enterprise, or the associated lack of (or improper) disclosure of information to stakeholders of the outcome of these processes. The final selection thus included not only cases that make explicit references to the norms of the Guidelines that are related to the I&A of AEI, but also cases that, despite not referring to specific norms, clearly decided on such issues (by issuing declarations relating to the implementation of the Guidelines concerning the types of corporate conduct an enterprise would be expected (or not expected) to adopt at the I&A stage). This in-depth analysis led to a further refinement of the selection, showcasing 23 specific instances where NCPs have explicitly addressed I&A claims. These selected statements were then further analyzed by identifying the underlying legal relationships that tied corporations to adverse impacts in specific cases, and by categorizing the outcomes obtained concerning the interpretation and application of the norms.
The research reveals that the outcomes concerning the interpretation and application of the norms can be generally divided into two types. Firstly, NCPs may refuse to analyze or mediate such claims, explaining the reasons for the decision when these reasons relate to the substantive issue under analysis. Secondly, they may proceed to analyze or mediate such claims, determining the applicability of the normative content of the Guidelines to the disputes at hand, and possibly developing the expectations of corporate behaviour contained therein. Still, in this second case, the way in which NCPs may develop and apply the content of the Guidelines differs considerably. While some NCPs issue clear determinations of compliance/non-compliance with the norms, describing how the company aligns (or fails to align) with the expectations contained therein, others limit themselves to issuing specific recommendations for future conduct regarding how corporations should assess environmental impacts. Furthermore, NCPs may also develop the content of the Guidelines when they successfully mediate and implicitly endorse agreements that reflect the expectations for conducting impact assessments contained in the Guidelines.
All these types of statement are considered in this research as sources of possible interpretations for I&A expectations. By performing such an analysis, the article contributes to a greater understanding of how NCPs apply them in concrete scenarios. However, given the heterogeneity of modes in which NCPs address these claims, reader caution is advised in relation to the formulation of conclusions of general application as if the sample of decisions analyzed represented a coherent body of jurisprudential analysis.
4. NCP (Soft) Case Law Analysis
This section presents the main results of the case analysis conducted, highlighting that NCPs display divergent interpretations regarding the interplay between I&A expectations set by the Guidelines and local host-state EIA requirements, resulting in inconsistent handling of these types of claim.
The research is presented in two subsections. The first highlights disputes where NCPs have refused to analyze I&A claims, providing justifications directly connected to the substantive I&A expectation contained in the Guidelines. The second section presents disputes where NCPs have accepted mediation of I&A claims, highlighting the relevant aspects of these decisions and how I&A claims were treated and analyzed by NCPs. A summary table of the NCP decisions analyzed is provided in the Supplementary Materials.
4.1. The Rejection of Analysis of I&A Claims
If the activities of corporations at the local host-state level are often already regulated by the imposition of EIA requirements, then it is necessary to understand what the imposition of VCDD obligations may add to the obligations that corporations already face at that level. However, some NCP statements leave readers questioning whether compliance with local EIA requirements may suffice to attain compliance with VCDD norms. This is the case when NCPs reject analyzing claims concerning the I&A of AEI in consideration of the (pending) outcome of local EIA processes – for example, in POSCO,Footnote 73 Daewoo,Footnote 74 Ascent,Footnote 75 Seabridge,Footnote 76 and Imperial.Footnote 77 If one assumes that the introduction of VCDD norms adds an independent normative command for corporations to I&A AEI, then the decisions in these instances cast doubt on the independence of such normative command from those established at the local host-state level for corporations to conduct EIAs. In these cases, the rejection by NCPs is motivated specifically by aspects related to compliance with local EIA norms; however, reducing the interpretation and application of I&A expectations in VCDD norms to a mere check of compliance with local host-state laws on EIAs would undermine the utility of such normative command.
Several types of justification are advanced by NCPs in their rejections of these claims. Firstly, NCPs highlight their inability to analyze the disputes, given the fact that the administrative permitting procedure (or its judicial contestation) for the activities giving rise to adverse impacts is being undertaken at the same time as the NCPs’ assessment.Footnote 78 Secondly, they emphasize that claims concerning these processes would not relate to business activities, but rather to administrative and judicial acts of public authorities.Footnote 79 Thirdly, they underscore that NCPs are not empowered to review such acts.Footnote 80 Fourthly, they refer to the possibility of conflict between their decisions and those of local public authorities.Footnote 81 Finally, NCPs refuse to analyze these claims when they consider that respondents do not have sufficient leverage to influence an EIA process that would fall under the responsibility of the project owner who contracted the respondent company to perform services.Footnote 82 Considering the cases presented subsequently, it will be evident that none of these reasons has prevented other NCPs from accepting and analyzing similar claims. As will be seen, NCPs have accepted complaints alleging I&A deficiencies despite the existence of parallel and ongoing administrative/judicial procedures concerning the local EIA process, and despite the formal legal responsibility of conducting EIAs falling on a local entity that established a business relationship with a VCDD-bound corporation (for example, Atradius,Footnote 83 Van Oord Footnote 84 ). Moreover, it is clear from multiple cases that some NCPs are willing to issue determinations of non-compliance with the I&A expectations of the Guidelines even when these would imply determining that local EIA processes have been inadequate or insufficient to comply with I&A expectations set by the Guidelines. This dynamic is analyzed in the following subsection.
4.2. Mediation and Analysis of I&A Claims
Where the activities giving rise to adverse impacts are subject to local EIA requirements, the assessment of I&A claims by NCPs highlights an approach focused on evaluating whether assessments conducted under local EIA processes have sufficiently complied with I&A expectations set by the Guidelines. This approach is particularly visible whenever NCPs declare non-compliance with I&A expectations of the Guidelines, despite considering that corporations had complied with local EIA requirements at host-state level. This was the case in Perenco,Footnote 85 COPAGEF,Footnote 86 Michelin,Footnote 87 Rockwool,Footnote 88 Glencore,Footnote 89 and VOG. Footnote 90 Even in cases where NCPs declared compliance with I&A expectations (such as in Statkraft Footnote 91 ), they would still take into account the adoption of higher standards for EIA than those required by Swedish law for the project at hand, indicating their willingness to evaluate whether the conduct adopted by the company in such local EIA processes substantively corresponded to the expectations set by the Guidelines.Footnote 92 The willingness of NCPs to engage in such assessments is also evidenced by their consultation of external experts to analyze the scientific and technical aspects of the EIAs conducted and assess their appropriateness in the context of the Guidelines.Footnote 93
The interplay between I&A expectations set by the Guidelines and local host-state EIA requirements is also visible in instances where NCPs declared non-compliance with the Guidelines because they deemed that stakeholders were not made aware, in a timely and accessible manner, of the outcomes of local EIA processes. These deficiencies were at the centre of justifications advanced by NCPs in declaring non-compliance with VCDD norms in GCM,Footnote 94 VOG,Footnote 95 and Shell Footnote 96 (despite apparent compliance with local EIA requirements).Footnote 97 Moreover, the transparency of EIA outcomes was highlighted in specific recommendations to corporations in COPAGEF,Footnote 98 Perenco,Footnote 99 and Heidelberg.Footnote 100 This suggests that, independently of whether local EIA standards require the disclosure and communication of their outcomes to stakeholders, such transparency would be expected under the normative commands established by the Guidelines.
Furthermore, even where the responsibility for conducting the local EIA does not fall directly on the respondent bound by VCDD norms (or other entity deemed to be part of its ‘own activities’) but rather on a local project owner/developer or public authority, this would not discharge the responsibilities of corporations to conduct due diligence (and thus I&A the AEI arising from the activities of business relations). The willingness of NCPs to mediate I&A claims in ANZ (Sugar),Footnote 101 NBIM,Footnote 102 Nordex,Footnote 103 Atradius,Footnote 104 Van Oord,Footnote 105 and EKF Footnote 106 provides support for this assertion. In all these cases, the responsibility to conduct an EIA at the host-state level fell either with local entities or public authorities (deemed not to be a part of the corporation’s ‘own activities’), but the responsibility of corporations to conduct due diligence in relation to AEI arising from activities giving rise to the dispute was firmly established by NCPs. This is because NCPs determined that in these cases the impacts referred to in the complaint were directly linked to the respondent enterprise’s products, services or operations through its value chains.Footnote 107
It is essential to note that the OECD Guidelines establish distinct expectations for corporations to manage impacts to which they are directly linked, specifically regarding remediation and the use of leverage.Footnote 108 Thus, while the obligations for companies to I&A AEI under VCDD apply to all companies bound by the norms, the level of involvement that may connect them with adverse impacts may change the means through which they are expected to ensure an appropriate I&A of AEI. The analysis of NCPs in these cases is consequently often focused on how enterprises may exercise leverage to ensure that an adequate I&A of AEI is performed through their business relationships. Depending on the contextual situation analyzed in the dispute, NCPs have recognized that different types of measure may constitute an adequate exercise of leverage. For example, for I&A claims concerning impacts caused by prospective business relationships, NCPs emphasized the need for corporations to adopt and implement screening and review procedures to ensure they I&A the AEI that may be directly linked to their operations, products or services. An apparent absence of screening and review procedures (NBIM Footnote 109 ) or their inadequate implementation (ANZ (Sugar) Footnote 110 ) has motivated NCPs to issue declarations of non-compliance with the Guidelines’ I&A expectations. The importance of such review and screening mechanisms has been further highlighted in recommendations issued to companies, including Van Oord Footnote 111 and Atradius,Footnote 112 and was endorsed by the NCP in the detailed agreement obtained in Nordex.Footnote 113 The aim of such screening and review procedures is precisely to detect any deficiencies in the ways in which AEI are assessed or managed by these business relationships, in which corporations would be expected to exercise their leverage through the placement of preconditions concerning the ways in which these external actors assess and manage those impacts. The NCP in NBIM recommends expressly the placement of preconditions following an initial screening and review,Footnote 114 and its deployment via contractual means motivated a declaration of compliance with I&A expectations in EKF.Footnote 115 In addition to these measures that could be taken at a pre-contractual level, the NCP recommended in NBIM that in equity-based business relationships the company could exercise its leverage through shareholder proposals requesting investees to disclose an environmental and social impact assessment (ESIA) to obtain information necessary for I&A AEI.Footnote 116
Beyond leverage, NCPs in several decisions also emphasized the importance of maintaining a risk-based approach to I&A grounded in a robust prioritization mechanism.Footnote 117 The prioritization policy of the enterprise will be essential in these cases to justify why certain AEI may not have been assessed in-depth. For example, in NBIM the NCP declared the company non-compliant with the Guidelines because the prioritization policy it presented encompassed only children’s rights concerns, and the company had not been able to justify why assessments concerning other (environmental and human rights) impacts would not be performed in relation to the activities of entities in its investment portfolio.Footnote 118 The prioritization policy adopted by the corporation to assess environmental impacts of clients in its lending portfolio was also analyzed in-depth by the NCP in ANZ (GHG Emissions), and the company was declared to be compliant with the Guidelines despite only (assessing and) disclosing scope 3 emissions ‘in its power generation and commercial building portfolios’.Footnote 119 An agreement reflecting similar policies was also endorsed by the NCP in ING, where the company adopted a methodology that prioritized assessing the emissions of the eight most carbon-intensive sectors it financed.Footnote 120
What these decisions highlight is that the expectation contained in the Guidelines with regard to I&A AEI does not necessarily imply conducting an in-depth assessment of any and all AEI that may be associated with a corporation’s activities. Thus, particularly in cases where adverse impacts giving rise to the complaints have not been assessed by any local process, I&A expectations may kick in and require that corporations bound by VCDD norms still conduct assessments that would deliver an analysis on both the level of involvement tying them to AEI, as well as their relative significance in the context of the enterprise’s activities. However, corporations may justify scoping out some environmental issues from these in-depth assessments during the process of identification of AEI.Footnote 121
Having presented the results of the analysis, the subsequent section reflects on them, highlighting also avenues for future research.
5. Reflection and Avenues for Further Research
This analysis has revealed specific instances where NCPs have addressed I&A claims related to environmental impacts, highlighting the different approaches adopted. While some rejections of NCPs cast doubts on the independence of the normative I&A command contained in the Guidelines, collectively, the instances where NCPs have taken up the analysis of these claims suggest that ensuring compliance with local EIA requirements may contribute to – but not necessarily encompass – identifying and assessing AEI in compliance with VCDD norms. This conclusion is supported by instances where NCPs declare non-compliance with the Guidelines’ I&A expectations, despite recognizing compliance with local EIA requirements. Local EIAs are used both by companies to I&A AEI, as well as by NCPs to evaluate whether corporate behaviour is aligned with I&A expectations contained in the Guidelines. This suggests a complementary relationship between the two obligations, where compliance with local EIA requirements may contribute to compliance with I&A of AEI. Nonetheless, the instances analyzed emphasize that to comply with VCDD I&A norms, businesses may need to adopt higher or more stringent standards concerning the ways in which EIAs are carried out at the host-state level. Despite this, not all AEI connected with corporate activities will necessarily be encompassed or covered by local EIAs at the host-state level. In such cases, the emphasis of the analysis advanced by NCPs highlights the need for corporations to conduct additional (self-)EIAs beyond those that their activities – or those of their business relationships – may already be bound to conduct at local level, guided by the enterprise’s VCDD prioritization process (see discussion in Section 2.2) and not mediated in any way by local host-state EIA requirements.
What remains unclear in both cases is what the appropriate benchmark would be to guide corporations in adopting higher standards or conducting additional (self-)impact assessments. While the answer to this question is likely to remain context-dependent, some decisions suggest that the adoption by enterprises of international standards aimed specifically at promoting the identification, assessment, and management of adverse environmental impacts is viewed positively by NCPs.Footnote 122 Cases analyzed refer to the International Finance Corporation (IFC) Performance Standards on Environmental and Social SustainabilityFootnote 123 (GCM, EKF, Atradius, Glencore),Footnote 124 International Organization for Standardization (ISO) Standards (VOG, ANZ (GHG Emissions)),Footnote 125 and other international frameworks designed specifically for the assessment of carbon emission impacts (ANZ (GHG Emissions), ING).Footnote 126 This suggests that, while it remains unclear how far beyond compliance with local EIA requirements corporations need to go to ensure alignment with VCDD norms – or how they should assess AEI not captured under local EIAs – the use of recognized international frameworks enhances alignment with the Guidelines’ expectations. The concrete identification of appropriate benchmarks depending on the context of corporate activities remains an avenue for further research.
Another question that requires further development relates to the ways in which corporations bound by VCDD norms can access or produce information relevant to their I&A of AEI. In cases where the enterprise directly causes adverse impacts, or through an entity deemed part of its own activities, in principle, information on environmental impacts can be more easily accessed and gathered by the corporation itself.Footnote 127 However, when adverse impacts arise from the activities of business relationships, corporations may face significant barriers in accessing local EIA documents or influencing the local EIA process carried out by other actors. Moreover, it may be impossible for these corporations to collect data on environmental indicators when they do not have physical access to the territory where environmental impacts caused by business relationships are felt. Still, the NCP instances analyzed support the view that corporations bound by VCDD are expected, via the exercise of leverage, to ensure that those impacts are assessed and adequately managed. The ways in which corporations may leverage their position to do so are, again, probably highly context-dependent. However, the specific instances analyzed showcase that by implementing screening and review procedures for prospective business relationships, corporations may be able to detect environmental performance issues and impose conditions on how these are assessed and managed. Moreover, corporations may use shareholder proposals to request that business relationships established through equity perform or disclose EIAs relevant to the I&A of AEI. Still, many questions remain unanswered concerning the ways in which corporations may obtain information deemed necessary to assess environmental impacts, particularly when impacts do not arise from their own activities, and requests for information addressed to (indirect) business relationships on environmental impact assessments are denied. A possible response lies in the processes of meaningful stakeholder engagement (MSE) that should inform the I&A of AEI, enabling corporations to obtain relevant information directly from affected and non-affected stakeholders. However, this topic is highlighted here as an avenue for further research that deserves a specific focus, especially considering MSE is also one of the fundamental substantive aspects of VCDD norms.
Finally, an issue that warrants further attention is the transnational judicialization of environmental governance.Footnote 128 As made clear by this article, the application of VCDD norms to a corporation may provide a pathway for claims concerning the inadequacy of I&A to be heard and evaluated. By establishing such a pathway, VCDD norms may become a crucial means of holding enterprises accountable, and advancing the development and enforcement of polycentric governance regimes.Footnote 129 However, the issuance of unilateral decisions concerning the environmental affairs of other countries raises concerns over the international and institutional legitimacy of the emerging corporate accountability apparatus.Footnote 130 Moreover, the practical effects of environmental due diligence will depend heavily on how courts, civil society organizations, companies, researchers, and other actors engage with it.Footnote 131 Nonetheless, it is undeniable that environmental due diligence opens a new transnational space for strategic litigation and mobilization.Footnote 132 Further research is required to understand the conditions under which a home-state decision might overstep the authority of host-state administrative or judicial bodies. This article has argued that the reasons advanced by NCPs for refusing to analyze I&A claims do not appear sufficiently strong to justify home-state bodies applying VCDD norms abstaining from analyzing such claims. Admittedly, there may be cases where deciding I&A claims in home states could result in conflict, particularly when compliance with home-state transnational VCDD laws would inadvertently lead to non-compliance with local host-state laws. However, if one assumes these two regulatory layers have distinct normative commands that require independent compliance assessments, this situation will arise only if one of the frameworks prescribes conduct that is strictly prohibited under the other, or if jurisdiction is exercised in a way that violates the principle of non-intervention under international law.Footnote 133 In this research, one such situation appeared to materialize where the NCP in Perenco expressly recommended that EIA outcomes be shared with complainants, but the company had argued that doing so would place it in violation of local Tunisian law.Footnote 134 Aside from these situations, the ability of home-state bodies to consider the national interests and policy space of host states rests uncompromised, as appeared to be the case in Statkraft.Footnote 135 While the ways in which these potential diverging interests between home and host states should be articulated and harmonized may not be clear, it does seem an important aspect to consider and is worthy of further exploration.
6. Conclusion
EIAs and VCDD represent two distinct but increasingly interconnected legal frameworks governing corporate environmental responsibility. While EIAs focus on project-specific environmental evaluations during planning phases, VCDD mandates ongoing I&A of AEI across global value chains. EIAs provide localized, technical assessments with relatively clear compliance benchmarks, while VCDD introduces continuous transnational responsibilities requiring adaptive risk management systems.
This article argues that these two sources of obligations establish independent normative commands for assessing environmental impacts, which should have their own associated compliance assessments. However, the practice of NCPs in handling I&A claims raises questions concerning the uniformity of this view within the NCP system. To avoid this issue, rejection of I&A claims by reference to an EIA process should be avoided unless home-state bodies applying VCDD norms provide sufficient detail explaining why the EIA process in question ensures alignment with the I&A expectations contained in the Guidelines. If this is not the case, the boundaries between these two areas of regulation may become blurred, and the application of VCDD norms to I&A claims is left subject to the interpretative leeway afforded to home-state bodies. Similarly, if corporations want to frame arguments on compliance with I&A expectations based on compliance with local EIA standards, they should explain in detail why compliant behaviour with host-state law also aligns with the I&A expectations. Failure to consider these factors risks jeopardizing policy coherenceFootnote 136 and posing problems about the lack of a level playing field among different NCPs.Footnote 137 Moreover, one can also anticipate that such issues have the potential of being repeated concerning the functioning of national authorities that will be charged with supervising the recently adopted EU Directive 2024/1760 on Corporate Sustainability Due Diligence (CSDDD).Footnote 138
The OECD does not appear to be downplaying such issues, and recent changes adopted in the 2023 version of the Guidelines may help to promote clarity and consistency in the application of the norms.Footnote 139 Ensuring that VCDD obligations are interpreted and applied with rigour – and that they are clearly distinguished from host-state obligations – will strengthen the independent, impartial, and meritorious operation of supervisory authorities. This is key to the effective supervision of corporate VCDD obligations and the promotion of coherent and responsible transnational environmental governance.Footnote 140
Supplementary material
To view supplementary material for this article, please visit https://doi.org/10.1017/S2047102526100302.
Acknowledgements
The author would like to thank and acknowledge the contribution of Colin Mackie (University of Nottingham (United Kingdom)), who kindly accepted an invitation to discuss and comment on an earlier version of this article during a research colloquium organized by the Brussels School of Governance (BSoG) of the Vrije Universiteit Brussel (Belgium) in May 2024.
Funding statement
This article has received funding from the European Research Council (ERC) under the EU’s Horizon 2020 research and innovation programme (Grant Agreement No. 949690).
Competing interests
The author disclosed none.