Pollution of the marine environment from ships may originate from a variety of sources, including accidental and operational pollution. Accidental pollution may result from the loss of cargo or fuel after a grounding or collision and from minor accidents on board such as a hose breaking or a tank overflowing. Operational pollution results from the discharge of ship board generated wastes such as garbage, sewage, dirty bilge water and tank washings as well as from engine exhaust and tank venting emissions.
Measures to prevent marine pollution and to improve maritime safety are addressed by the International Maritime Organization (IMO), a United Nations specialized agency dealing with maritime affairs.
The IMO, through its member status and agencies, develops international conventions and standards which are implemented by governments through incorporation into their domestic legislation. IMO Conventions addressing issues such
as ship construction, training and qualification of crew and safety of navigation, reduce the risk of major accidents. The control of pollution of the seas by ships is addressed in the International Convention for the Prevention of Pollution from Ships (MARPOL) which deals with pollution from oil, chemicals, packaged goods, garbage, sewage and air emissions. The International Convention on the Control of Harmful Anti-fouling Systems on Ships, 2001 was finalized in October 2001 but has not yet come into force. Regulations to reduce the risk of introductions of harmful aquatic organisms and pathogens from ships’ ballast water are presently being developed and environmental issues involving the scrapping of ships are being examined.
MARPOL includes requirements for construction (i.e., double hulls on oil and chemical tankers), inspection (including enhanced surveys on existing tankers), equipment (i.e., oily/water separators), record keeping
(i.e., Oil Record Books, Cargo Record Books) and in-port procedures
(i.e., receipts for the discharge of wastes to shore reception facilities, tank cleaning in port). Although controlled minimal releases of certain pollutants
are allowed, this approach is considered to be more effective than simply banning all discharges or relying on operational methods that may be difficult for mariners to comply with and impossible for governments to police. These factors were taken into consideration by the Working Group of the Interdepartmental Committee on the Prevention of Pollution from Shipping in its report to Cabinet titled, “Control of Pollution from Shipping in Waters Under Canadian Jurisdiction” that recommended adoption of MARPOL standards in Canadian coastal waters.
Canada is a strong supporter of the IMO and the current Secretary General of the IMO, Mr. William O’Neil, is Canadian. Transport Canada is the lead department with respect to IMO matters. A Transport Canada representative is the head of the Canadian delegation to the Marine Environment Protection Committee (MEPC), the IMO committee that deals with environmental matters relating to shipping. The Canadian delegation to MEPC meetings normally consists of representatives from Transport Canada, Environment Canada, Fisheries and Oceans
Canada (Canadian Coast Guard) and the Canadian maritime industry.
Canada acceded to MARPOL in 1993, but has only implemented three annexes dealing with pollution from oil, noxious liquid substances and packaged goods. The authority to implement MARPOL requirements is contained in section 658 of
Part XV of the Canada Shipping
Act.
The impact of IMO’s measures is difficult to assess, since it is impossible to measure marine pollution on a global scale with any accuracy. Studies by the U.S. National Academy of Science indicate that oil pollution from ships has been reduced by as much as 60% during the past 25 years, primarily as a result of IMO efforts.
Compliance with MARPOL operational provisions has been identified as a problem on the Continental Shelf off Eastern Canada. Oil identified as ship bunkers and bunkers mixed with lubrication oils has caused the deaths of tens of thousands of seabirds each year. In papers submitted to the IMO in 1998 and 1999 (MEPC 41/INF.13 and MEPC 43/INF.18), Canada notified the international shipping community of its increased surveillance and enforcement efforts in this area. Further data on the incidence of oiling of seabirds is being compiled and consideration is being given as to whether additional action may be necessary in the future.
Implementation of MARPOL relies on governments assuming responsibility for inspecting and certifying ships that fly their flag to ensure compliance with MARPOL requirements. Certain flag states have, however, experienced problems in meeting their obligations. This led to the formation of the Flag State Implementation (FSI) Sub-Committee at IMO in 1993 to assist governments in implementing international conventions and other instruments they had ratified. Canada is currently working with several other nations at FSI to require that additional information be submitted by flag states on steps they have taken to give full and complete effect to international conventions they have signed. Transport Canada also participates in Port State Control programs for the Atlantic and Pacific regions, through which Transport Canada inspectors inspect foreign ships visiting Canadian ports to ensure that they meet international standards. In March 1998, the Minister of Transport chaired the first Joint Ministerial Conference of the Paris and Tokyo Memorandum of Understanding on Port State Control. This Canadian initiative was considered to be a major step forward in international cooperation for marine safety and environmental protection.
TRANSPORT CANADA’S POSITION
Transport Canada recognizes that, because of the international nature of shipping, action to improve safety and pollution prevention in maritime operations is most effectively carried out at an international level through the IMO, however, in certain cases stricter environmental controls may be appropriate for shipping on internal and inland waters. Transport Canada continues to strictly enforce pollution prevention regulations through the inspection of ships for compliance with pollution prevention provisions and through the investigation of pollution incidents. Consultations with the industry, the public and other government departments are conducted through the Canadian Marine Advisory Council’s Standing Committee of the Environment. Interested parties are invited to participate in the Committee meetings. Comments or suggestions regarding Canada’s domestic environmental policies and international positions with respect to ship source pollution are welcomed by Marine Safety at any time.
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