The plastic continent
— and how to tackle it — may be hogging the headlines, but the shipping
industry – frowned upon as a notorious polluter on a massive scale – is also
being effectively reined in and compelled by law to go green. EU legislation
and the International Maritime Organisation (IMO) are wielding their
increasingly environmental sustainability vision and doing so in a holistic
manner that is impacting shipping worldwide.
Indeed the targeted
spheres are:
- Sea transport of toxic waste
- Dismantling of ships
- Sulphur emissions
In
all fairness, a more environmentally conscious shipping industry has long been
taking shape.
Sea transport of
toxic waste
Spearheaded by the
United Nations Environment Programme (UNEP), the Basel Convention on the
Control of Transboundary Movements of Hazardous Wastes and their Disposal
(Basel Convention), set the ball rolling to mitigate the risks of transporting
toxic waste across the oceans in 1989. Despite expected resistance and taking
three years to be enforced, the ratification of 186 countries provided a step
in the right direction.
The Basel Convention
was aimed at reducing the transfer of hazardous waste from developed to less
developed countries, but not prohibiting them. Thus the Basel Convention relies
on the ‘prior informed consent’ of the authorities of the respective importing
countries to ensure that any hazardous waste is treated in an environmentally
sound manner by the importing countries in question. While environmental issues
began to gain traction, the Basel Convention could not guarantee a foolproof
outcome, more so when 1-off cases were occasionally allowed to bypass the
rules.
An attempt at more
stringent control was adopted in 1995, when the Basel Convention introduced its
‘Ban Amendment’ to prohibit the export of all toxic waste from OECD to non-OECD
countries. Yet, once again, insufficient ratification proved a stumbling block.
Indeed, the Ban amendment will enter into force on December 5, 2019, since
Croatia ratified it on September 6, 2019, being the last ratification required
to meet the three-fourths (of the State Parties to the Basel Convention)
ratification threshold.
The Basel
Convention’s effectiveness in regulating ship recycling began to lose favour,
since its code of practice was not comprehensive enough, particularly as the
adverse impact of climate change started to dominate political agendas.
This goaded the EU to
enforce the Basel Convention, the ‘Amendment Ban’ and the OECD Decision C
(2001)107/FINAL, unilaterally in 2006 through its Regulation (EC) No 1013/2006
on shipments of waste, known as the European Waste Shipment Regulation (WSR). The
WSR includes a ban on the export of hazardous wastes to non-OECD countries, as
well as a ban on the export of waste for disposal. This stipulated that, since
the dismantling of ships was now deemed as ‘hazardous waste’ and as long as the
conditions adopted by the WSR are satisfied, no end-of-life ship leaving any EU
port could be exported to a non-OED country to be scrapped. In fact, the
concept of flag state was once again waived off. The outcome of this regulation
did not prove successful so in order to strengthen Member States’ inspection
systems, WSR was amended in 2014 through Regulation (EU) No 660/2014 of 15 May
2014.
Dismantling
of Ships
The arduous and
hazardous dismantling of old and decommissioned vessels is a nightmare on all
fronts – health & safety, logistical and environmental. More so when
carried out on beaches – a horrifying reality – especially in the Far East. The
complexities involved also need to factor in the skewed size-age distribution
of the world’s fleet, since smaller ships operating in domestic waters weather
much better than large ocean-going vessels that tend to be scrapped at around
25 years of age.
Moving
towards a circular economy, however, has been piling on the pressure for
greener solutions that obviously recognize ship recycling as the best solution
for ships ceasing operations.
In May 2009, the Hong
Kong International Convention (Hong Kong Convention) for the Safe and
Environmentally Sound Recycling of Ships brought 63 countries together to
formulate guidelines that would mitigate the operational and environmental
risks involved in the reprocessing and scrapping of ships in the world’s
recycling locations. As a result, the Hong Kong Convention addressed human
health issues vis-a-vis working conditions, particularly workers’ occupational
and safety conditions at the ship recycling facilities (defined areas used for
ship recycling). Basics such as providing workers with adequate protective
equipment and training became mandatory, while a nearby hospital became another
prerequisite.
The complexities in
compiling these guidelines and subsequent compliance were further shackled (and
continue to be shackled) by the entry into force criteria which were bound to:
- a minimum
number of ratifications;
- ratified
states should represent 40% of world merchant shipping by gross tonnage;
- a combined
maximum annual ship recycling volume of the said states should amount to at
least 3% of their combined merchant shipping tonnage during the preceding 10
years.
Four years on, the
European Union entered the fray in the role of champion and reinforcement of
the said Hong Kong Convention. Given its clout of 35% ownership of the global
merchant fleet[1]
and its mission to raise the standards bar, the EU adopted its Regulation on
Ship Recycling at the end of 2013 allowing a 5-year grace period until full
implementation; the regulation is effective from January 2019. From the very
beginning of 2019, a new chapter regarding the recycling of vessels began to be
written.
Touted as
“the only legally binding and comprehensive instrument on ship recycling in
force in the world today,” EU Regulation No. 1257/2013 stipulates that all EU-flagged
vessels have to be dismantled according to strict guidelines in one of the
approved European List shipyards. Although most of these yards are located
within the EU, a few are situated in Turkey and the U.S.A. Significantly, the
invitation is open for other shipyards to join the list as long as they meet
the stringent requirements. As for the European List of Authorised Ship
Recycling Facilities, this has been last updated on 17 June 2019 by the Commission’s
Implementing Decision 2019/995 of that date. At the same time, the EU has come
under fire for stalling a number of applications.
Nevertheless, even the most cynical of skeptics cannot
dispute that the EU Regulations are a step in the right direction of
sustainability, especially since no specific global rules on ship recycling
exist. Putting lives and the planet at risk is no longer acceptable. Minimizing
waste and repurposing valuable materials – primarily steel – point to another
two linked priorities. These in turn both reduce the need for mining while
creating a lucrative market buoyed by perpetual recycling.
Any
detractors of the EU’s Ship Recycling Regulation were recently put in place by
the criminal prosecution in Rotterdam of Seatrade in March 2018, after its
directors were found to have breached existing EU regulations by indirectly
selling ships to scrap yards in non-OECD countries. The implications of this
case amply manifest that no ship owner (of any flag) can ‘mis-declare’ its
intended destination when leaving European waters for recycling and hope to get
away with violation of the rules. Even more significantly, resorting to reflag
outside Europe to avoid pertinent regulation will fall under scrutiny to
ascertain that bypassing the rules is not intended.
Sulphur Emissions
No
maritime environmental write-up would be complete without a reference to the
0.5% Sulphur Cap imposed by the IMO for ships operating outside Emission
Control Areas, effective as from January 1, 2020.
The
current Sulphur Cap stands at 3.5%, meaning that the new limit will result in a
drastic reduction in the maritime industry carbon footprint. Regarding
applicability, the 2020 cap will apply to all ships flying the flag of a state
that has ratified MARPOL Annex VI and/or calling at a port or passing through
the waters of a state that has ratified the MARPOL Convention. This will
eventually include a great number of the world’s fleet. The new regulations are already boosting the
production of liquefied natural gas (LNG) and other compliant alternative
bunkers. The option is, however, dependent on the availability of a worldwide
network of LNG bunkering infrastructure.
Shipowners
who will not opt for LNG and would still like to make use of Heavy Fuel Oil
(HFO) should install scrubbers or exhaust gas cleaning systems onboard their
vessels, which is a time-consuming exercise involving a hefty capital outlay
and more structural modifications.
While
environmentalists cheered the news of the revised sulphur cap, several stakeholders
have expressed their doubts, primarily where the use of scrubbers is concerned.
Detractors argue that shifting pollution from the sea to the air is a perfectly
futile exercise. They argue that the onus lies on oil refineries and other
alternative fuel providers to produce eco-gasses in the first place. Meanwhile,
they advocate slow steaming.
Should slow-steaming become
obligatory across the board, the maritime industry is in for a massive
re-think.
What are the immediate implications?
Environmentally speaking, slower speed should reduce carbon
dioxide emissions. The biggest hurdle is
to maintain market driven delivery dates. On the other hand, it is argued that
the proposal would be counterproductive, since it would necessitate an increased
number of vessels at sea to ensure current and future demand expectations. It would even trigger an increased demand for
more vessels to be built, therefore escalating the strain on the environment.
Furthermore, charter markets will cease to operate smoothly, charter and spot
rates will spike resulting in a starker imbalance between the gainers and
losers in the maritime industry.
Conclusion
Today’s realities are
having the shipping industry increasingly embrace environmental sustainability
and, like any other major or minor industry, its future economic viability
depends on adopting eco-friendly policies.
Regarding the
ever-controversial scrapping of ships, the EU Regulation No. 1257/2013
manifests a concerted effort to improve social and environmental conditions
under which ships are dismantled. Yet, even as the EU showcases the busiest of
its ‘green’ recycling yard in Ghent, Belgium, it should be kept in mind that
none of the EU member states could handle the dismantling of large
ocean-crossing vessels. As a result, the success of enforcing the EURegulation No. 1257/2013 depends on
winning over non-EU geographically spread scrap yards that factors in the
issues of which countries are willing to buy ships and which ones are not
reaching full capacity any time soon. Failing to do so would only lead to
reflagging and evasion though, once again, the Seatrade case shows that the EU
means eco-business.
*The
above article had been published on Marine Money Magazine – Legal Issue 2019.
[1] https://ec.europa.eu/environment/waste/ships/