ATC230302: Report of the Portfolio Committee on Transport on the Public Hearings held on the Marine Pollution (Prevention of Pollution from Ships) Amendment Bill, Dated 28 February 2023
Transport
REPORT OF THE PORTFOLIO COMMITTEE ON TRANSPORT ON THE PUBLIC HEARINGS HELD ON THE MARINE POLLUTION (PREVENTION OF POLLUTION FROM SHIPS) AMENDMENT BILL, DATED 28 FEBRUARY 2023
The Portfolio Committee on Transport having conducted public hearings on the Marine Pollution (Prevention of Pollution from Ships) Amendment Bill on 8 and 15 November 2022, reports as follows.
- Introduction
The Marine Pollution (Prevention of Pollution from Ships) Amendment Bill [B 5-2022] (the Bill) was referred to the Portfolio Committee on Transport (the Committee) on 31 January 2022. The Committee was briefed on the proposed amendments by the Department of Transport on 6 September 2022. The Committee resolved to publish the Bill for comment from 15 September 2022 to 21 October 2022 and to conduct public hearings to hear public opinion on the proposed amendments. The Bill was published for comment in national and regional newspapers, on the Parliament website, Twitter and Facebook. Submissions were received from the following stakeholders: The Southern African Foundation for the Conservation of Coastal Birds (SANCCOB); The Wildlife and Environment Society of South Africa (WESSA); Natural Justice: Lawyers for Communities and the Environment; The Western Cape Department of Environmental Affairs and Development Planning; Ms C van Dyk and Dr Pia Rebelo (supported by Dr Alanna Rebelo).
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The Public Hearings were held on 8 November 2022. The Department responded to the written submissions on 15 November 2022.
- Department of Transport responses to the written and oral submissions
STAKEHOLDER’S COMMENTS |
DEPARTMENT OF TRANSPORT RESPONSE |
WESSA COMMENTS
1. WESSA supports this Bill, aimed at significantly improving the safe and appropriate management of sewage, waste and air emissions from marine vessels.
2. Noted the crucial improvement to Section 3 (b) with the additions of sub-clauses (e)-(m) which provides for the creation of regulations pertaining to preventing pollution from ships.
Comments on Annex IV: Regulations for the Prevention of Pollution by Sewage from Ships 3. Regulation 2.1: provisions of Annex IV will apply to ships engaged only in international voyages. Concern 1: Does not cover ships moving within SA territorial waters, nor between these waters and high seas.
PROPOSED REMEDY: Extend Reg.2.1 to include ships engaged in voyages within and between SA territorial waters and the high seas. |
NB. Section 1 of the present Act defines the ‘ship’ to include ‘floating platform’ and therefore by this definition, ALL MARPOL Annexes apply on all ships.
Section 2. “Application and interpretation includes all South African ships and all other ships while in territorial waters or EEZ.
Take note also of Regulation 4 on Surveys and certification and as well as Chapter 3 Reg 9, 10, 11, & 12 this will apply on all passenger ships. |
CONCERN 2: The threshold of these regulations only applies to ships above 400 gross tonnage. PROPOSED REMEDY: that they should extend to all ships above 100 gross tonnage.
CONCERN 3: That inorganics and solids in sewage will continue to be discharged overboard. PROPOSED REMEDY: Add regulation to require ships to separate out inorganics and solids from sewage, for disposal on land; additionally that sewage be macerated before being disposed of into the sea. Comments on Annex VI: Regulations for the Prevention of Air Pollution from Ships
CONCERN 4: The threshold of these regulations only applies to ships above 400 gross tonnage. PROPOSED REMEDY: Set threshold to all ships above 100 gross tonnage. (Regulation 5.2 provides the space setting regulations for ships below 400 gross tonnage.) |
NB. Section 1 of the present Act defines the ‘ship’ to include ‘floating platform’ and therefore by this definition, ALL MARPOL Annexes apply on all ships.
Section 2. “Application and interpretation includes all South African ships and all other ships while in territorial waters or EEZ.
Regulation 2.2 refers to how this particular concern of inorganics and solids are to be discharged. Reference to 1.3 and 1.4 in Regulation 2.2 will now be amended to 1 (c) (the corresponding numbering used in the Bill) |
4.Call for Inclusion of Shipping Noise Pollution Aim of this Bill is to give effect to Annex IV of the International Convention for the Prevention of Pollution from Ships, and to provide for matters connected therewith. SA Constitution provides that everyone has the right to (a) to an environment that is not harmful to their health or well-being; (b) to have the environment protected, for the benefit of present and future generations, through reasonable legislative and other measures. National Environmental Management Act (NEMA) 107 of 1998, Section 2(4)(e)): everyone has a duty of care towards the environment. Anthropogenic undersea noise is a growing threat to marine life. Ocean noise regulation is currently non-existent in both environmental legislation and in maritime legislation in South Africa. |
Noted, this amendment is to legislate MARPOL Annexes to which South Africa is party. Noise pollution is not dealt with in MARPOL but is provided for under the Safety of Life at Sea Convention, Code on noise levels onboard ships.
In addition, the Marine Environment Protection Committee adopted on 7 April 2014 (MEPC) Circular.833 which provides non mandatory Guidelines for the Reduction of Underwater noise from commercial shipping to address adverse impacts on Marine life. We could as a solution include the power of Minister to make regulations (m) relating to underwater noise from ships operating within territorial waters. We however will be challenged on this. |
Suggested New Noise Regulations
The problem of noise pollution from shipping, sonar by the military and through offshore oil and gas development is a significant threat to biodiversity and its damaging effects to marine species and ecosystems. WESSA, in partnership with Oceans Not Oil NGO, calls for this Bill to recognise and address noise pollution in our marine environment; by: 1. applying the Precautionary Approach to ensure that ocean noise levels are not harmful for marine life and humans, by developing effective guidelines and regulations to mitigate or eliminate intense noise producing activities, including sonar; 2. that the use of military sonar (outside of imminent or active conflict) be subject to these mitigation measures for protecting marine wildlife; 3. requiring that seismic surveys are also subject to the noise regulations as contemplated above; and 4. designation as low-noise areas critical marine habitats, including biosphere reserves, UNESCO Marine World Heritage Sites and Marine Protected Areas; in consultation with appropriate marine biology/ecology experts.
The IMO has been researching and promoting solutions for shipping noise reduction, and their current guidelines appear to be on a trajectory to become international requirements. It would be parsimonious to then use this intended Bill to align our shipping requirements to incrementally address noise pollution. The IMO promotes achieving this through 1) ship design: – Design solutions at propulsion level – Reduction of machinery noise - Reduction of propeller noise – Structural solutions to reduce underwater radiated noise – Other solutions to reduce underwater radiated noise |
As above. |
And 2) mitigation measures related to traffic control: – Mitigation solutions applied to a particular ship (e.g. speed reduction) – Mitigation solutions applied at ship traffic control level, such as low-noise areas.
This Bill requires that defined ships report periodically on their compliance with the regulations of this Bill. WESSA requests that a further clause be added, that requires that this compliance status information (by ship) is be made publicly accessible, through a portal on either the website of the National Department of Transport or SAMSA. WESSA believes that this will contribute to good governance, transparency and accountability., |
Noted, this is beyond the scope of this bill. As such, a tool interesting as it can be, is not provided for in any of the regulations.
Matters of ‘naming and shaming’ is addressed from time to time by Port State Control regimes e.g. Paris MOU on Port State Control. |
SANCCOB COMMENTS
1.Clause 4 Amendment of Section 3A of Act 2 of 1986 SANCCOB welcomes the amendment of section 3A with increase in fine and imprisonment threshold. These changes highlight government’s commitment to ensure that polluters are severely punished for their crimes. It should also serve as a deterrent to potential polluters as the economic, political and social costs could be severe. 2. Clause 5 Insertion section 3B in Act 2 of 1986 SANCCOB welcomes this inclusion but recommends that any such committee has clear terms of reference to follow, has balanced representation and that individuals are appointed based on their expertise on the matter in question. 3. Annex IV Chapter 1, Regulation 1, Sub-regulation 3: Definition of “Sewage” SANCCOB submits that there is no reference to waste generated from cleaning of engines, equipment or ship. If that is covered in another act than that should be noted somewhere in this act. |
This comment is noted.
This comment is welcomed and could be considered for inclusion in regulations.
The wastes mentioned are operational wastes in terms of MARPOL and are dealt in MARPOL Annex V- Regulations for the Prevention of Pollution by Garbage from Ships. South Africa is already party and enforces these Regulations. |
4.Annex IV Regulation 2 sub-regulation 1 SANCCOB requires clarity on whether there is a rationale for Annex IV to apply only to ships mentioned therein or if there are any other sections of the overall Act that cover other vessels not covered in the amendment. 5. Chapter 2, Regulation 4, point 4: “Surveys of ships as regards the enforcement of the provisions of this Annex shall be carried out by officers of the Administration. The Administration may, however, entrust the surveys either to surveyors nominated for the purpose or to organizations recognized by it.” Chapter 2, Regulation 5, Point 3: “The Administration may, however, entrust the surveys either to surveyors nominated for the purpose or to organizations recognized by it. Such organizations shall comply with the guidelines adopted by the Organization;”
What sort of criteria will be used to select surveyors? How will the administration ensure that the surveyors are independent and not biased in anyway? |
This bill is to make provisions of MARPOL Annex IV enacted into domestic legislation. MARPOL Annexes apply to vessels of various sizes and voyages. Ships under convention size are to be dealt with in regulations.
RO's short for Recognised Organizations are audited by the Authority before entering into an agreement to provide services on behalf of the Administration.
IMO has an approved list of Recognised Organisations operating in all jurisdictions including South Africa. SAMSA selects an RO from that approved IMO list and enters into agreements for the provision of specific services. RO's are audited by the Authority before entering into an agreement. |
6. Chapter 2. Regulation 4, Point 6: “…shall in due course notify the Administration” Chapter 2, Regulation 5, Point 3a: “…shall in due course notify the Administration” It is recommended that some kind of time frame for notifying authority be included. In its current form it is very vague with little room for accountability.
7. Annex IV Regulation 11 Sub-regulation 2 The provisions of paragraph 1 shall not apply to ships operating in the waters under the jurisdiction of a State and visiting ships from other States while they are in these waters and are discharging sewage in accordance with such less stringent requirements as may be imposed by such State.
According to SANCCOB, the meaning of this point is not clear. Does it mean that visiting ships must adhere to the regulations of the State if their own State regulations are less stringent? |
This is for the RO's to inform the Administration when such corrective action is not taken and the certificate is withdrawn. These timelines are dealt with in the agreements with RO's.
This is exactly as is in MARPOL ANNEX IV. If a vessel is in a state where the discharge conditions for sewage is less stringent, then these requirements shall not apply. |
8. Annex IV Regulation 12 sub-regulations 1&2 Reception facilities “undertakes to ensure the provision of facilities at ports and terminals for the reception of sewage, without causing delay to ships, adequate to meet the needs of the ships using them.” How will South Africa ensure this is done properly when the country does not have capacity or resources to manage its own sewage?
9. Annex VI Regulation 3 Sub-regulation 3.1 Emissions directly arising from the exploration, exploitation and associated offshore processing of sea-bed mineral resources are, consistent with article 2(3)(b)(ii) of the present Convention, exempt from the provisions of this Annex. Are these emissions regulated elsewhere in the Act or by another Act? This is a form of marine pollution and will need to be regulated especially if South Africa continues with the development of oil and gas operations. |
The onus is on the Member State to provide adequate port reception facilities, Transnet National Ports Authority (TNPA) issues licences to service providers who are authorised to collect Sewage in compliance with local legislation.
This again is exactly as is in MARPOL ANNEX V.
Offshore Marine Pollution Risk Assessment and Contingency Planning for preparedness and response will not be regulated by the Oil Pollution Preparedness, Response and Cooperation Bill that is currently under consideration of this Committee. |
10. Annex VI Regulation 5 Sub-regulation 2
11. Annex VI Regulation 5 Sub-regulation 6
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Noted.
This again is exactly as is in MARPOL ANNEX VI. IMO has considered such matters as time frames, the Masters immediate focus would be the safety of the crew, vessel and the protection of the Marine Environment and thus it is left to the Master to make the report at the earliest opportunity, this is the same wording in all Annexes and even in the SOLAS Convention. |
12. Annex VI Regulation 17 Sub-regulation 1a
13. Annex VI Regulation 22A Sub-regulation 1
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Noted, also error noted as below: 1. Each Party undertakes to ensure the provision of facilities adequate to meet the: “…using its repair ports for the reception of ozone-depleting…”
This data needs to be collected and reported annually to IMO. Vessels that need to report are already compliant by reporting the data. |
NATURAL JUSTICE COMMENTS
Clause 4 (Amendment of section 3A of Act 2 of 1986)
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This should be the fine for the contravention and in addition all clean up costs but within the limits of liability as provided in the Conventions and as well in the OPRC Bill that is before the Committee. Each offence constitutes a fine. Each offence constitutes a fine, however, in some instances it may not apply, e.g. if a vessel has suffered damage and keeps polluting daily due to the initial incident.
Noted. |
2. Clause 5 (Insertion of section 3B in Act 2 of 1986)
3.Annex IV Chapter II Regulation 4 Section 6
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This Bill may be a little complex to provide for such cooperative mechanism as opposed to the Cooperation mechanism proposed in the Preparedness, Response and Cooperation Bill before the Committee.
The surveyor referred to could be a surveyor of an RO, who does not have the powers to detain a vessel. Removing the vessel from the water may not be a simple solution, could be possible if we consider small boats. Moving the vessel out of jurisdiction may not prevent pollution too and may just exacerbate the problem. A surveyor is not a member of the ship’s crew. The crew know the vessel and are in a better position to deal with minimising pollution, the surveyor has the powers to oversee operations when incidents occur and together with the ship’s crew will minimise pollution. |
4. Annexture IV Chapter II Regulation 4 Section 10
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The police and local authorities do not have the expertise to deal with pollution incidents and not sure what could be achieved by nominating them as surveyors. The police and local government as it stands today could always contact the Authority for any incidents relating to pollution for the Authority to investigate and take appropriate action. |
5. Annexture IV Chapter II Regulation 7 Section 1
6. Annex VI Chapter I Regulation 3 Section 2
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The certificates are based on the contents of the MARPOL Convention. These vessels trade internationally.
There is no intention to designate local government as regulatory authorities for the purpose of the MARPOL Convention.
Yes, as it states this for the development of ship emission reduction and control 'technologies and engine design programmes. Noted and do not concur because the matter being regulated is governed by the agreements made at the IMO. States may not act unilaterally. |
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Noted. |
7. Annex VI Chapter I Regulation 3 Section 3.1
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Noted, it is what is provided for in MARPOL. 3.2 deals with Trials for ship emission reduction and control technology research, whereas 3.3 deals with Emissions from sea-bed mineral activities.
Noted. |
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Noted. Offshore activities are regulated by other instruments. The OPRC Bill before the Committee will introduce new requirements for Contingency Planning that will be preceded by Risk Assessment including risk assessment on Offshore facilities that could be a threat to marine pollution. |
8. Annex VI Chapter II Regulation 11 Section 1
9. Annex VI Chapter V Regulation 14 Section 1
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South Africa has a relatively strong maritime criminal justice tradition that is reliable and effective.
SAMSA has a foot print in all major ports of the country. The ship's crew are better placed to know the ships equipment and shipboard operations. |
10. Memorandum on the Objects of the Bill (Section 4 and 6.2)
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This amendment bill is to enact provisions of MAPOL Annexes, which South Africa is party to. |
WESTERN CAPE DEPARTMENT OF ENVIRONMENTAL AFFAIRS AND DEVELOPMENT PLANNING COMMENTS
1.General matters
2. General Matters
3. General Matters
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Noted, agree the bill needs to be checked for numbering as is in the Annexes of MARPOL.
The term Party refers to South Africa and the certificate would refer to the certificate as it relates to that particular Annex of MARPOL. |
4. General Matters
5. Clause 5 of the Bill
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Noted, incineration is prohibited in port limits.
This should be dealt with in the regulations. |
6. Annex IV Regulation 3
7. Annex IV Regulation 6
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The discharge referred to is only for the sole purpose of securing the safety of a ship and those on board or saving life at sea; and resulting from damage to a ship or its equipment.
Noted.
The cost of such surveys are paid for by the Ship owner. |
8. Annex IV Regulation 8
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The cost of such surveys are paid for by the Ship owner.
Vessels that do not comply with the requirements of MARPOL may be detained.
Provisions are made for a certificate to be extended upon expiry for a period of no longer than 3 months (see 8.7) when surveys cannot be effected e.g. COVID19. |
9. Annex IV Regulation 11
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Noted. |
10. Annex VI Regulation 16
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To be dealt with in the regulations. |
11. Annex VI Regulation 18
12. Annex VI Appendix IV
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To be dealt with in the regulations.
Noted, the quality of fuel is a larger concern for ships than any other entity, poor quality fuel poses numerous problems for ships staff. Even though the supplier provides the fuel quality, practically every ship owner gets the fuel tested at their own approved labs prior to the fuel being used. If testing is required by local authorities then the cost for such will have to be on the authority, unless it is proved that pollution occurred as a result of fuel quality and then a fine is issued. |
13. Annex VI Appendix V & Appendix VI
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To be provided for in regulations.
Noted and to be provided in regulations. |
14. Annex VI Appendix VII This Appendix provides for Emission Control Areas. It should be noted that there are currently no Emission Control Areas along the South African coastline. Is there any intention to declare such areas at least within the vicinity of the major South African ports? |
Yes, once this Annex part of the domestic law. |
DR PIA REBELO It is imperative that South Africa adopts legislation to implement global decarbonisation and pollution standards set out by the IMO. Industry stakeholders evince a consistent preference for uniform and global standards to decrease uncertainty and regulatory risk. As such, this Bill should seek to incorporate the most recent amendments to MARPOL Annex VI adopted by the IMO Marine Environment Protection Committee (MEPC) at its 76th session in June 2021. Most notably, these include regulations relating to the Energy Efficiency Existing Ship Index (EEXI) and the Carbon Intensity Indicator (CII) set out in Resolution MEPC.328(76) which is applicable from 1 November 2022 and in force from 1 January 2023. |
Noted and agreed. Latest amendments to MARPOL Annex VI will be incorporated in the bill, to ensure that the bill is updated. |
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Noted and agreed. Latest amendments to MARPOL Annex VI will be incorporated in the bill, in order that we have an updated bill. |
MRS C VAN DYK
www.mpi.govt.nz
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Noted, the provisions of bottles etc are garbage and dealt with in that Annex on Garbage. MAPROL only deals with vessels on international voyages of 400GT and above. |
- Committee deliberations on the Bill
The written submissions with the Department’s responses on the submissions, were considered when deliberating on the proposed amendments to the Marine Pollution (Prevention of Pollution from Ships) Act.