The government has failed to subsidize recycling efforts. The government subsidizes support of the virgin material industries such as logging and mining. Recycling requires more energy than does producing goods from virgin material. Not enough people have accepted the recycling ethic. Stiff fines are levied against any country that breaks the agreement.
All nations benefit only if all nations cooperate voluntarily.
All of the countries involved are allies with close natural ties. Countries that violate the agreement are not eligible for foreign aid. More than one of the above is true.