Background

Air pollution is high on the global as well as the European Agenda. More stringent measures have been adopted by the International Maritime Organization (IMO) in relation to sulphur oxides (SOx) and nitrogen oxides (NOx), measures that are currently discussed in relation to a review of directive 1999/32/EC as regards the sulphur content of marine fuels (amended by Directive 2005/33/EC).

International Maritime Organization (IMO)

Globally air pollution is regulated by IMO trough its International Convention for the Prevention of Pollution from Ships (MARPOL) and its Annex VI. MARPOL Annex VI, first adopted in 1997, limits the main air pollutants contained in ships exhaust gas, SOx and NOx, and prohibits deliberate emissions of ozone depleting substances. MARPOL Annex VI also regulates shipboard incineration, and the emissions of volatile organic compounds from tankers. Annex VI entered into force on 19 May 2005.

IMO’s Marine Environment Protection Committee (MEPC) agreed in 2005 to revise MARPOL Annex VI with the aim of significantly strengthening the emission limits in light of technological improvements and implementation experience. In October 2008 IMO adopted the amendments to Annex VI which, among other things, strengthened the requirements on the permitted sulphur levels in ships’ fuels. The main changes to MARPOL Annex VI are a progressive reduction globally in emissions of SOx, NOx and particulate matter. The amendments entered into force on 1 July 2010.

Under the revised MARPOL Annex VI, the global sulphur cap is reduced initially to 3.50% (from the current 4.50%), effective from 1 January 2012; then progressively to 0.50 %, effective from 1 January 2020, subject to a feasibility review to be completed no later than 2018. The limits applicable in Emission Control Zone (ECA’s) for SOx and particulate matter were reduced to 1.00%, beginning on 1 July 2010 (from the original 1.50%); being further reduced to 0.10 %, effective from 1 January 2015.

Progressive reductions in NOx emissions from marine diesel engines installed on ships are also included, with a “Tier II” emission limit for engines installed on or after 1 January 2011; then with a more stringent "Tier III" emission limit for engines installed on or after 1 January 2016 operating in ECAs. Marine diesel engines installed on or after 1 January 1990 but prior to 1 January 2000 are required to comply with “Tier I” emission limits, if an approved method for that engine has been certified by an Administration.

The revised measures are expected to have a significant beneficial impact on the atmospheric environment and on human health, particularly for those people living in port cities and coastal communities.

EU action

The Commission's Communication on a "Strategy to reduce atmospheric emissions from seagoing ships" and the Thematic Strategy on Air Pollution underline the importance of reduction of emissions of sulphur dioxide (SO2), nitrogen oxide (NOx) and particulate matter (PM) from ships for the improvement of health and environment. The Strategy aims at significantly reducing premature deaths caused by air pollution by 2020 whilst simultaneously resolving environmental impacts such as acidification and eutrophication and associated losses in biodiversity.

Directive 1999/32/EC (amended by Directive 2005/33/EC)

The Directive establishes limits on the maximum sulphur content of gas oils, heavy fuel oil in land-based applications as well as marine fuels for which it serves as the EU legal instrument to incorporate the sulphur provisions of the MARPOL Annex VI. The Directive also contains some additional fuel-specific requirements for ships calling at EU ports, obligations related to the use of fuels covered by the Directive, and the placing on the market of certain fuels (e.g. marine gas oils). The Directive does not contain provisions to regulate ship emissions of NOx or PM.

On December 21, 2009, the European Commission adopted a Recommendation on the safe implementation of the use of low sulphur fuel by ships at berth in EU ports.

In December 2010, the Commission decided under what criteria LNG carries could be seen as an alternative to using low sulphur marine fuels - Commission Decision of 13 December 2010 on the establishment of criteria for the use by liquefied natural gas carriers of technological methods as an alternative to using low sulphur marine fuels meeting the requirements of Article 4b of Council Directive 1999/32/EC relating to a reduction in the sulphur content of certain liquid fuels as amended by Directive 2005/33/EC of the European Parliament and of the Council on the sulphur content of marine fuels

By the amendment 2005/33/EC parallel requirements in the EU to those in MARPOL Annex VI in respect of the sulphur content of marine fuels was introduced. In addition, it also introduced a 0.1% maximum sulphur requirement for fuels used by ships at berth in EU ports from 1January 2010. This directive is currently under review and the review is expected to align the Directive with the 2008 MARPOL Amendment. A public consultation process on the coming review was finalized early in 2011.

Role of EMSA

The Agency is closely involved in the work air pollution work within the Community. This work such as the cooperation with Member States in the form of workshops, participation in the inter-service work within the Commission as well as providing regular technical opinions to the Commission when requested.  EMSA provided an overview regarding the enforcement of Directive 1999/32/EC on marine including reports on the fuel sampling of marine fuel bunker that Member States shall undertake under the Directive and in relation to the current revision of this Directive and studies related to the quality of fuel bunkered by ships.

In order to foster the development of alternatives fuels, and to contribute positively to the discussion on the impact of the 0.1 % sulphur content in marine fuels to be used in SECA from 2015, EMSA co-organised two workshops with the main industry stakeholders to identify best practises and bottlenecks in the development of the LNG propelled ships.

EMSA was closed involved in preparing the Commission decision on an equivalency methodology  to allow LNG tankers to burn boil off gas when at berth instead of using 0.1 % sulphur fuel.  The Commission decision was taken in December 2010.

EMSA has also provided a technical report analysing the studies made on the implication by new sulphur requirements, 0.1 % in SECA by 1 January 1015, that will have implication for the traffic within the SECA-areas and in addition listing the alternatives to reach the limits introduced by the 2008 MARPOL amendments was issued in 2010. The report was presented in early January 2011 at the EU Maritime Directors Meeting.