ANY OTHER BUSINESS. Advancing international collaboration for quiet ship design and technologies to protect the marine environment

Transcription

1 E MARINE ENVIRONMENT PROTECTION COMMITTEE 74th session Agenda item 17 8 March 2019 Original: ENGLISH ANY OTHER BUSINESS Advancing international collaboration for quiet ship design and technologies to protect the marine environment Submitted by Canada and France SUMMARY Executive summary: Strategic direction, if applicable: Output: This document highlights various international efforts undertaken to address and further understand adverse underwater noise from commercial shipping. The need for further research on new technical solutions and continued international collaboration is necessary to ensure that the balance between a healthy ocean and its uses is sustainably met. 4 Not applicable Action to be taken: Paragraph 18 Related documents: MEPC.1/Circ.833; MEPC 71/16/5 and MEPC 72/16/5 Introduction 1 Previously, the Committee considered documents MEPC 71/16/5, MEPC 72/16/5, MEPC 73/18/4 and MEPC 73/INF.23, which sought to enhance the collective international understanding of underwater noise from shipping and the measures available to mitigate it. These documents built upon a foundation set by the previous work of the Committee and Member States. Global nature of underwater noise 2 There is growing international attention on the issue of anthropogenic underwater noise within scientific, political and public fora. An increasing number of studies have demonstrated that underwater noise emitted from commercial ships is a stressor for marine

2 Page 2 species and ecosystems, including various marine mammals, fish and invertebrates. 1 The noise emitted by these ships have higher energy, generally below 1,000 Hz, which are the same low-frequencies that have been identified as critically important for many whale and fish species. Furthermore, ship noise has been recorded to reach echolocation frequencies used by various whales, including dolphins and killer whales. 2 This acoustic overlap can cause the masking, or cancelling, of acoustic communication between individuals; permanent or temporary hearing loss; increased stress levels; and behavioural changes, as described in document MEPC 73/INF.23. These impacts can all lead to a reduced survivability of the animal, as well as its population. 3 Canada recognizes the impacts shipping noise has on marine species, especially the cumulative impacts on critically endangered populations. For this reason, Canada has been furthering its understanding on the impacts of underwater noise on marine mammals identified as endangered or threatened under Canada's Species at Risk Act (SARA), which includes the Southern Resident Killer Whale (SRKW), the St. Lawrence Estuary Beluga (SLEB), and the North Atlantic Right Whale (NARW), and implementing mitigation measures. Current efforts to further understanding on underwater noise 4 As mentioned in document MEPC 73/18/4, the impacts of anthropogenic underwater noise continue to be featured through international actions, including:.1 At the United Nations Open-ended Informal Consultative Process (UN ICP) held in June 2018, which included many international organizations, scientists, Member States and industry associations calling on the international community to evaluate the impacts and identify ways to mitigate adverse effects, where possible, of underwater noise on marine ecosystems. Other international bodies looking at the issue of underwater noise include the Convention on Biological Diversity and the International Whaling Commission..2 Amongst European Union (EU) members, as they pursue action in accordance with the EU's 2008/56/EC Marine Strategic Framework Directive, which requires that EU Member States develop a Marine Strategy in order to achieve Good Environmental Status (GES) by One such descriptor of the GES is to ensure that the introduction of energy into the marine environment, which includes underwater noise, does not adversely affect the ecosystem. Some of this action, which includes monitoring programmes, has been coordinated through the OSPAR Convention and the Baltic Marine Environment Protection Committee (HELCOM)..3 The Achieve Quieter Oceans (AQUO) project as part of the European Union directive on the marine environment, and a follow-up initiative focusing on the Practical Implementation of the AQUO recommendations..4 The Arctic Council's Working Group on the Protection of the Marine Environment (PAME) considered the issue throughout 2018 and into 2019, culminating with the submission of a State of Knowledge Report to Arctic 1 UNEP/CBD/SBSTTA/16/INF/12, Scientific Synthesis on the Impacts of Underwater Noise on Marine and Coastal Biodiversity and Habitats; and Weilgart,L.S., The Impact of Ocean Noise Pollution on Fish and Invertebrates, available at: 2 Veirs, S., Veirs, V., and Wood, J. D. (2016). Ship noise extends to frequencies used for echolocation by endangered killer whales. PeerJ, 4:e1657. Available at:

3 Page 3 Council Ministers on the current scientific knowledge on underwater noise in the Arctic. Canada has also submitted a proposal under the PAME work plan that, inter alia, would estimate current underwater noise emissions from ships; identify where these underwater noise emissions overlap with areas of heightened ecological or cultural significance; and investigate possible mitigation strategies to reduce the impact of underwater noise in the Arctic..5 The international survey being conducted by the European Institute for Marine Studies, which aims to identify effective management frameworks that ports can use to mitigate underwater noise from shipping. This survey is expected to be completed in mid Advancing the understanding of technical means to reduce noise 5 The Government of Canada is committed to protecting and supporting the recovery of Canada's endangered, iconic whale populations. The endangered SRKW is a vital component of the local marine ecosystem and has cultural significance for Indigenous Peoples and economic significance for coastal communities in British Columbia. This population of whale was recently determined to be facing an imminent threat to both survival and recovery under the federal SARA. This determination was made after an assessment that considered the biological condition of the SRKW population, ongoing threats and mitigation measures. Canada is increasing its research, monitoring and analyses of underwater noise and vessel movement throughout its jurisdiction. Measures include deployment of underwater hydrophones in the areas of critical habitat for the SRKWs, which will collect individual vessel and mammal noise profiles. Additionally, Canada is working with multiple partners through the Vancouver Fraser Port Authority's Enhancing Cetacean Habitat and Observation (ECHO) programme. Through this programme, vessel slowdowns at various speeds have been conducted over the past two years in seasons correlating to the presence of the SRKW to determine potential management options that can be implemented to reduce underwater noise impacts, while simultaneously striving for minimum economic effect. In addition, in 2018, a lateral displacement trial was conducted through this programme to identify if there are any noise benefits in moving vessel traffic further away from the critical foraging areas of the SRKW. 6 In parallel to the testing and implementation of operational measures, such as slowdowns and lateral displacement trials, Canada has been leading efforts to understand and assess the technical solutions available to further reduce noise from shipping. Since MEPC 73, Canada has held two workshops focusing on technological applications to reduce noise from ships: the Canadian Network for Innovative Shipbuilding, Marine Research and Training (CISMaRT) workshop in November 2018 (Nova Scotia, Canada), and an international technical workshop focusing on gathering and sharing the most recent research conclusions and assess current and future quiet ship designs (London, United Kingdom). 7 The CISMaRT workshop that was held in Canada in November 2018 was a precursor to the international workshop with a purpose to gather technical information to build upon with the broader audience in London. The workshop had approximately 100 technical experts in attendance and identified areas of research collaboration for the future. Materials associated with the proceedings of the symposium are available at: 8 The international workshop, held from 30 January to 1 February 2019 at IMO Headquarters, was attended by over 140 delegates from 24 countries, and included naval architects, marine engineers, ship operators, shipyards, national policymakers, industry associations, academics and non-governmental organizations. The result was a breadth of expertise with diverse viewpoints that led to a more complete and accurate assessment of the current state of, and opportunities for, innovative ship designs and technologies.

4 Page 4 9 The workshop provided an opportunity for international collaboration and allowed participants to share the newest research and technical solutions for quiet ship design and retrofits. The specific objectives of the workshop were to:.1 validate current technologies and identify important gaps and challenges to further progress;.2 assess areas for innovation potential to determine where more focused research may be needed;.3 understand and quantify whether improvements made to ship design for fuel efficiency overlap with improvements made to reduce noise; and.4 document the conclusions of the workshop to guide future discussions on reducing underwater ship noise or as groundwork for a review of the existing Guidelines. 10 It was widely acknowledged throughout the workshop that the issue of quieting ships to protect the marine environment is complex, but necessary. Some of the key policy and research recommendations that came out of the event include:.1 recognition that developing a biological limit for underwater noise levels applicable to all species, in all regions of the world, is challenging at this time; however, a ship-based limit is recommended;.2 ensuring that the feasibility of noise mitigation measures also considers the contribution to efforts to improve energy efficiency and reduce GHGs emissions in line with the Initial IMO Strategy on reduction of GHG emissions from ships (resolution MEPC.304(72)) and the Paris Agreements. This includes efforts to improve our understanding of the impacts various technological solutions addressing one policy objective may have on the objectives of another policy, including potential co-benefits or trade-offs;.3 continue to gather data and in situ measurements of vessels and the noise they emit in order to further the understanding of this issue and its consequences. This also relates to validating modelling measurements, establishing biological limits and the alternative of feasibility-based limits;.4 the potential value of explicitly identifying underwater vessel noise as a form of pollution in the relevant maritime and environmental conventions;.5 advancing research on some of the specific technological solutions identified over the course of the workshop, and develop a guide for shipbuilders on available technologies;.6 development of a comprehensive framework of international standards for precision measurement (deep water, 3 shallow water 4 and ship of opportunity), as an enabler to establish policy objectives for quieter ships; and 3 4 ISO :2016 on Underwater acoustics - Quantities and procedures for description and measurement of underwater sound from ships - Part 1: Requirements for precision measurements in deep water used for comparison purposes. ISO/NP (under development) on Underwater acoustics - Quantities and procedures for description and measurement of underwater noise from ships - Part 3: Requirements for measurements in shallow water.

5 Page 5.7 increasing education and outreach efforts with shipowners, ship designers, shipbuilders and machinery and equipment manufacturers to better inform them of the issue of underwater noise and feasible mitigation measures. In addition, encourage companies to begin measuring the underwater noise emitted from their vessels in order to establish baselines. 11 Canada has submitted an executive summary of the report and key recommendations from the proceedings of the Quieting ships to protect the marine environment: Technical Workshop (MEPC 74/INF.36). 12 To help inform the discussions at these two technical workshops, Canada commissioned a study to review and summarize available quiet ship design and retrofit technologies. The study includes a technology matrix that summarizes what technology is currently available or emerging, which classes of vessels it could apply to, what noise reduction benefits could be obtained, known or possible co-benefits (i.e. increase fuel efficiency), and approximate costs to implementation. This matrix was refined through feedback from both of the technical workshops, particularly with new research information identified by participants. This paper has been submitted as an information paper (MEPC 74/INF.28). 13 Through the various workshops conducted and reports released within the past year, there has been a noticeable increase in the availability of updated technical evidence related to underwater vessel noise. Furthermore, there has been increasing international interest and support for the noise-reducing potential of retrofits, particularly those retrofits designed to improve the energy efficiency of vessels and comfort for passengers, advanced modelling software, and quieter ship design. Next steps 14 In the coming months, Canada will be participating in, and leading, various meetings and research initiatives related to underwater vessel noise and quiet ship design. 15 An international benchmarking study regarding the IMO Guidelines for the reduction of underwater noise from commercial shipping to address adverse impacts on marine life (MEPC.1/Circ.833) (the Guidelines), is currently underway, led by a steering committee that includes World Wildlife Fund Canada, the Chamber of Shipping of America, Environics Research, the World Maritime University and Transport Canada. The study seeks to understand the uptake and awareness of the Guidelines amongst shipyards and shipowners, and inform future international collaboration on the issue of underwater noise policies. A report of the benchmarking study is expected to be available by spring Additionally, Canada plans to hold policy discussions with all interested Member States in autumn 2019 and winter 2020 on the contents of a new work output proposal for MEPC 75, which will aim to address the identified policy needs related to underwater vessel noise. 17 IMO Member States, intergovernmental, and non-governmental organizations interested in participating in preparing or supporting a new work output submission are invited to contact Transport Canada's Director, Clean Water Policy Division, Ms. Michelle Sanders (Michelle.Sanders@tc.gc.ca). Action requested of the Committee 18 The Committee is invited to note the information in this document and take action as appropriate.