Review of the regulations to prevent air pollution from ships

Regulations for the Prevention of Air Pollution from Ships included in Annex VI of the International Convention for the Prevention of Pollution from Ships, 1973, as modified by the Protocol of 1978 relating thereto (MARPOL 73/78), entered into force in May 2005 - a key date in terms of implementation of IMO rules to protect the environment.

Nonetheless, given that the Annex was adopted in 1997, the Marine Environment Protection Committee (MEPC) has instructed the Sub-Committee on Bulk Liquids and Gases (BLG) to undertake a comprehensive review of the Annex, taking into account experience gained thus far in its implementation.


Marine Environment Protection Committee (MEPC) - 57th session: 31 March - 4 April 2008

The Marine Environment Protection Committee (MEPC) of the International Maritime Organization (IMO) has approved proposed amendments to the MARPOL Annex VI regulations to reduce harmful emissions from ships.

The main changes would see a progressive reduction in sulphur oxide (SOx) emissions from ships, with the global sulphur cap 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 Sulphur Emission Control Areas (SECAs) would be reduced to 1.00%, beginning on 1 March 2010 (from the current 1.50 %); being further reduced to 0.10 % , effective from 1 January 2015.

Progressive reductions in nitrogen oxide (NOx) emissions from marine engines were also agreed, with the most stringent controls on so-called "Tier III" engines, i.e. those installed on ships constructed on or after 1 January 2016, operating in Emission control Areas.

The revised Annex VI will allow for an Emission Control Area to be designated for SOx and particulate matter, or NOx, or all three types of emissions from ships, subject to a proposal from a Party or Parties to the Annex which would be considered for adoption by the Organization, if supported by a demonstrated need to prevent, reduce and control one or all three of those emissions from ships.

In the current Annex VI, there are two SECAs designated, namely, the Baltic Sea and the North Sea area, which also includes the English Channel.

Speaking at the close of MEPC, IMO Secretary-General Mr. Efthimios E. Mitropoulos praised the excellent progress made during the week-long MEPC session in IMO's long-standing efforts to limit and reduce pollution of the atmospheric environment and thanked and congratulated all the parties concerned (Member States and observer organizations) for their hard work and contribution to the results achieved.

"The fact that representatives of some 100 Governments were able to reach decisions by consensus on complicated issues of great importance to the environment not only bears testimony to the responsible manner with which the Members address environmental matters nowadays but also to the great results that can be achieved when States, with the same concerns and determination to produce meaningful solutions to global problems, work together under the auspices of IMO. The co-operation of the shipping industry and environmentalist groups has been of great value and I thank them for that. I am confident that, once adopted as amendments to MARPOL Annex VI, in the coming October, the new measures will prove extremely beneficial to the environment and I commend the Committee wholeheartedly for its achievement in developing them," he said. "It will certainly be one of IMO's finest hours when this happens six months from now", he added.

Mr. Mitropoulos also commended the progress in work on greenhouse gas emissions (GHG) from shipping operations, including the search for practical means to devise any mechanisms deemed appropriate to address this important issue. He welcomed the MEPC's endorsement of his proposal to expedite the Organization's related work, in particular, as regards the CO₂ Emission Indexing Scheme and the CO₂ Emission baseline(s).

"I wish also to express our gratitude to Norway for offering to host an intersessional meeting of the GHG Working Group at the end of June, which will give us all the opportunity to further progress the work in hand and, with that goal in mind, I commend the efforts of the Working Group to seek agreement on global solutions to further develop the action plan approved by the Committee, identifying practical next steps that will facilitate the completion of the plan's three elements within the newly-agreed timelines. Of course, these are issues which, although complex and intricate in nature, are by no means impossible to resolve, especially with the constructive engagement we have witnessed here this week. In this regard, I am confident that, as we look beyond Kyoto, we should be able to put in place a robust regime that will apply fairly to shipping while, at the same time, achieving our main objective of protecting the marine and atmospheric environment," he said.

MARPOL Annex VI Regulations for the Prevention of Air Pollution from Ships entered into force in May 2005 and has, so far, been ratified by 49 countries, representing approximately 74.77% of the gross tonnage of the world's merchant shipping fleet.

The proposed draft amendments to Annex VI and the NOx Technical Code will now be submitted to MEPC 58 (which meets from 6 to 10 October 2008) for adoption, in accordance with an agreed timetable. This would see the revised Annex VI enter into force in 2010.

The work on greenhouse gases is scheduled for completion in 2009, in time for IMO to submit a position paper to the Copenhagen Conference (December 2009) called for by last year's Conference in Bali on climate change.

SOx and Particulate Matter (PM) emissions from ships
Following intense efforts to find a workable solution on a matter that had been highly controversial and the subject of extensive debate in its air pollution working group, the Committee agreed with a series of progressive standards in the amended regulation 14 Sulphur Oxides (SOx) and Particulate Matter (PM) that would result in significant reduction of SOx and PM emissions from ships.

The principal elements are as follows:

Meanwhile, the MEPC approved an MEPC.1 Circular containing Unified Interpretations related to the verification of sulphur content in fuel oil. The Unified Interpretations should be applied until the 2008 amendments to MARPOL Annex VI enter into force. The circular also gives, in an appendix, Fuel Oil Verification Procedure for MARPOL Annex VI Fuel Samples.

NOx regulations for new engines
The MEPC agreed amendments confirming the proposed three-tier structure for new engines, which would set progressively tighter nitrogen oxide emission standards for new engines depending on the date of their installation. Tier I applies to a diesel engine which is installed on a ship constructed on or after 1 January 2000 and prior to 1 January 2011 and represents the 17 g/kW standard stipulated in the existing Annex VI.

For Tier II, NOx emission levels for a diesel engine which is installed on a ship constructed on or after 1 January 2011 would be reduced to 14.4 g/kWh.

For Tier III, NOx emission levels for a diesel engine which is installed on a ship constructed on or after 1 January 2016 would be reduced to 3.4 g/kWh, when the ship is operating in a designated Emission Control Area. Outside a designated Emission Control Area, Tier II limits apply.

NOx standards for existing engines
The MEPC agreed a NOx emission limit of 17.0 g/kW for a diesel engine with a power output of more than 5,000 kW and a displacement per cylinder at, or above, 90 litres installed on a ship constructed on or after 1 January 1990 but prior to 1 January 2000.

NOx Technical Code
The MEPC approved draft amendments to the NOx Technical Code, to give a revised NOx Technical Code 2008. The draft amended NOx Technical Code, includes a new Chapter 7 based on the agreed approach for NOx regulation of existing (pre-2000) engines established in the draft amended MARPOL Annex VI.

The draft amended NOx Code includes provisions for direct measurement and monitoring methods, a certification procedure for existing engines, and test cycles to be applied to Tier II and Tier III engines.

Other matters

Exhaust Gas Cleaning Systems
The MEPC also agreed, with a view to adoption by an MEPC resolution, the draft revised Guidelines for Exhaust Gas Cleaning Systems. It was agreed to forward the interim washwater discharge criteria, to be included in the Guidelines, to the Joint Group of Experts on Scientific Aspects of Marine Environmental Protection (GESAMP) for its review and comment. The interim washwater discharge criteria will be revised in the future as more data becomes available on the contents of the discharged washwater and its potential effects on the marine environment, taking into account any advice given by GESAMP.

Halons
The MEPC approved a draft MSC-MEPC Circular on the decreasing availability of halons and forwarded it to the Maritime Safety Committee (MSC) for consideration and concurrent decision. The circular notes the decreasing availability of halons for marine uses and requests shipowners, ship operators, shipping companies and all other interested entities to take appropriate action to reduce their reliance on halons.

Volatile Organic Compounds (VOCs)
Draft guidelines for the development of a VOC management plan were approved, with a view to adoption at MEPC 58. The purpose of the VOC Management Plan is to ensure that the operation of a tanker, to which regulation 15 of Annex VI applies, prevents or minimizes VOC emissions to the extent possible. Regulation 15 requires a Party regulating tankers for VOC emissions to submit a notification to the Organization, which should include information on the size of tankers to be controlled, the cargoes requiring vapour emission control systems, and the effective date of such control.

Liaison with ISO
The MEPC instructed the IMO Secretariat to invite the International Standardization Organization (ISO) to consider the development of a fuel oil specification addressing air quality, ship safety, engine performance and crew health, with recommendations for future consideration by IMO and, if feasible, to report back to the Committee at its 58th session in October.

Greenhouse gas emissions from ships
Reflecting the Committee's continuous determination to reduce green house gas (GHG) emissions emanating from shipping operations, the MEPC endorsed a proposal form the Secretary-General to expedite the Organization's work on GHG emissions, in particular as regards developing the CO₂ (carbon dioxide) Emission Indexing Scheme and the CO₂ Emission baseline(s).

The report of the intersessional Correspondence Group on GHG-related issues, which was tasked with discussing and compiling possible approaches on technical, operational and market based measures to address GHG emissions from ships, was considered, along with other relevant submissions from Member Governments and non-governmental organizations in consultative status with IMO.

The MEPC agreed that a coherent and comprehensive future IMO regulatory framework on GHG Emissions from ships should be:

The Working Group on GHG Emissions from Ships developed practical next steps covering the development of short-term and long-term measures to address CO₂ emissions from ships. The next steps were approved by the MEPC.

Short-term measures include a proposal to establish a global levy scheme on marine bunker fuel to achieve GHG emission reductions. Under this scheme, all ships engaged in international voyages would be subjected to a bunker levy established at a given cost level per ton of fuel bunkered. With such a scheme in place, a baseline of fuel used and CO₂ emissions would be obtained. The prospect of a global levy/credits scheme contributing to a GHG emissions reduction from ships was found promising, although it was noted that several aspects would need to be clarified and worked on, including:

Other short-term measures listed for further consideration include:

Some of the measures could lead to immediate reduction of CO₂ emissions and should be implemented as soon as possible. The MEPC endorsed the view of the Working Group that a resolution (to be adopted by the MEPC and/or Assembly), urging the shipping industry and other related entities to do so, should be developed at an intersessional meeting of the GHG Working Group to be held in Oslo, Norway, from 23 to 27 June 2008.

The longer-term measures identified by the Working Group and approved by the Committee for further development include:

The Oslo intersessional meeting was instructed to further address market-based, operational and technical measures identified by the MEPC 57 Working Group on GHG-related issues, including:

The intersessional group will submit a written report to MEPC 58.

Other measures to reduce GHG emissions from ships will be considered by the Intersessional Correspondence Group on Greenhouse Gas Emissions from Ships, which was re-established to report to MEPC 58.

A Cross Government/Industry Scientific Group of Experts, established by IMO Secretary-General Efthimios Mitropoulos in July 2007, with the endorsement of the MEPC, is reviewing the impacts on the environment, on human health and on the shipping and petroleum industries of applying any of the proposed fuel options to reduce SOx and particulate matter generated by shipping and the consequential impact on other emissions, including CO2 emissions from ships and refineries. The final report of the Group will be completed by mid-December 2007, for submission to the MEPC and the BLG Sub-Committee.

The BLG Sub-Committee met for its 12th session from 4-8 February 2008.

MEPC 57 meets 31 March to 4 April 2008.

MEPC 58 will meet 6 to 10 October 2008.

The BLG Air Pollution Working Group met in Berlin, Germany, from 29 October to 2 November 2007 to consider other matters relating to the review of Annex VI, in particular NOx limits for new engines, possible regulation of existing engines and introduction of control of particulate matter.

BLG Working Group on Air Pollution - Opening address by Efthimios E. Mitropoulos, Secretary-General of the International Maritime Organization, 13 November 2006, Oslo

Background on air pollution and development of the MARPOL regulations

The Protocol of 1997 (MARPOL Annex VI)

Regulations for the Prevention of Air Pollution from Ships were adopted in the 1997 Protocol to MARPOL 73/78 and are included in Annex VI of the Convention. The Protocol entered into force on 19 May 2005.

MARPOL Annex VI sets limits on sulphur oxide and nitrogen oxide emissions from ship exhausts and prohibits deliberate emissions of ozone depleting substances.

The annex includes a global cap of 4.5% m/m on the sulphur content of fuel oil and calls on IMO to monitor the worldwide average sulphur content of fuel.

Annex VI contains provisions allowing for special SOx Emission Control Areas (SECAS) to be established with more stringent controls on sulphur emissions. In these areas, the sulphur content of fuel oil used onboard ships must not exceed 1.5% m/m. Alternatively, ships must fit an exhaust gas cleaning system or use any other technological method to limit SOx emissions. The Baltic Sea Area is designated as a SOx Emission Control area in the Protocol.

The North Sea was adopted as SOx Emission Control Area in July 2005. Annex VI prohibits deliberate emissions of ozone depleting substances, which include halons and chlorofluorocarbons (CFCs). New installations containing ozone-depleting substances are prohibited on all ships. But new installations containing hydro-chlorofluorocarbons (HCFCs) are permitted until 1 January 2020.

Annex VI also sets limits on emissions of nitrogen oxides (NOx) from diesel engines. A mandatory NOx Technical Code, which defines how this shall be done, was adopted by the Conference under the cover of Resolution 2. The Annex also prohibits the incineration onboard ship of certain products, such as contaminated packaging materials and polychlorinated biphenyls (PCBs).

Review of Annex VI

At its 53rd session in July 2005, the MEPC agreed on the need to undertake a review of Annex VI and the NOx Technical Code with a view to revising the regulations to take account of current technology and the need to further reduce emissions from ships. MEPC instructed the Sub-Committee on Bulk Liquids and Gases (BLG) to carry out the review by 2007, and specifically to:

MEPC 56 outcome

The MEPC at its 56th session July 2007 endorsed a proposal by Secretary-General Mitropoulos to commission a comprehensive study, by an informal cross government/industry scientific group of experts, to review the impact on the environment, on human health and on the shipping and petroleum industries, of applying any of the proposed fuel options to reduce SOx and particulate matter generated by shipping and the consequential impact such fuel options could have on other emissions, including CO₂ emissions from ships and refineries, taking into account the availability of CO₂ abatement technologies.

The study will be funded by donations from Member States and non-governmental organizations. An initial contribution from IMO, of 20,000 US dollars, will come from the balance of funds from the Onassis Foundation Prize for the Environment, which was awarded to the Organization in 1997.

The group has already begun its work with a view to reporting to the twelfth session of the Sub-Committee on Bulk Liquids and Gases (BLG) in February 2008 and the MEPC 57 in March-April 2008.

The MEPC working group on air pollution continued work on reviewing MARPOL Annex VI and the NOx Technical Code, following the April 2007 session of the BLG Sub-Committee, which developed a number of options for revising the regulations in relation to the emissions of NOx, SOx, volatile organic compounds and particulate matter.

BLG 12 is expected to finalize the preparation of draft amendments to MARPOL Annex VI, taking into account the report of the aforementioned scientific study. The aim is to have the draft amendments approved at MEPC 57, in the Spring of 2008, and to adopt them at MEPC 58, in the Autumn of 2008. The amendments to MARPOL Annex VI could then enter into force 16 months after adoption, in accordance with the tacit acceptance procedure stipulated in Article 16 of the MARPOL Convention.

Ships' fuel sulphur content continues downward trend
The Committee noted the results of the ships' fuel sulphur monitoring programme for 2006. It revealed the average sulphur content for the year was 2.59%, a reduction from the 2005 average of 2.70%. The three year (2004-2006) rolling average was 2.66%, a slight reduction from the previous year's rolling average of 2.70%.

Update of the 2000 IMO Greenhouse Gas (GHG) Study
The MEPC confirmed the need to update the 2000 IMO GHG Study, and agreed a timeframe, scope and terms of reference for that purpose. The study, it agreed, should cover current global inventories of GHGs and relevant substances emitted from ships engaged in international transport; any methodological aspects and future emission scenarios; identify progress made to date in reducing GHG emissions and other substances; identify possible future measures to reduce emissions of GHGs and undertake a cost benefit analysis, including environmental and public health impacts, of options for current and future reductions in GHG emissions and other relevant substances from international shipping. Finally, it should identify the impact of emissions from shipping on climate change. The aim is to submit the updated study to the 59th session of the MEPC.

Meanwhile, the MEPC established an Intersessional Correspondence Group on GHG Related Issues to discuss and compile possible approaches on technical, operational and market based measures to address GHG emissions from ships and present a written report to MEPC 57 in March-Arpil 2008.

MEPC 55 outcome

The Marine Environment Protection Committee (MEPC) at its 55th session in October 2006 agreed a work plan, with a timetable, to identify and develop the mechanisms needed to achieve the limitation or reduction of carbon dioxide (CO₂) emissions from ships, noting that climate change caused by greenhouse gas emissions from the burning of fossil fuel is a steadily growing concern for most countries. The MEPC noted that shipping, although an environmentally friendly and fuel-efficient mode of transport, nevertheless, needs to take action on greenhouse gases (GHG).

The work plan provides for the further development of the CO₂ Emission Indexing Scheme, with Member States and the industry asked to continue to carry out trials in accordance with the Interim Guidelines for Voluntary Ship CO₂ Emission Indexing for Use in Trials (MEPC/Circ.471, issued in 2005); the consideration and evaluation of methodology for CO₂ emission baseline(s); and the consideration of technical, operational and market-based methods for dealing with GHG emissions. The aim is to complete the work by 2008/2009.

Following discussions in the Working Group on Air Pollution, the MEPC moved forward with other issues relating to air pollution as follows:

The Sub-Committee on Bulk Liquids and Gases (BLG) is currently undertaking a comprehensive review of MARPOL Annex VI and the NOx Technical Code and an intersessional meeting of the BLG Air Pollution Working Group will be held from 13 to 17 November 2006 in Oslo, Norway, to progress the work further.

Sulphur monitoring
The MEPC noted the results of monitoring of the worldwide average of sulphur content of residual fuel oils, which indicated that in 2005, almost 90% of the samples had sulphur contents between 1.5 and 4% m/m. Almost 50% was between 2 and 3% m/m. 219 out of 79,592 (0.3%) of the samples were over 4.5% m/m sulphur, and 5 samples contained more than 5% sulphur (compared to 7 samples in 2004). The sulphur content of residual fuel measured for 2003, 2004 and 2005 gave a three year rolling average for the period of 2.7%. The rolling average for 2002-2004 was 2.67%.

MEPC 54 outcome

At its 54th session in March 2006, a working group was established to consider issues relating to the prevention of air pollution from ships, including follow-up action to the IMO Policies and practices related to the reduction of greenhouse gas emissions from ships (resolution A.963(23)).

Following the work by the group, the MEPC approved two circulars aimed at assisting implementation of MARPOL Annex VI:

1.     The MEPC Circular on Bunker Delivery Note and Fuel Oil Sampling, to clarify how to comply with regulation 18, which places requirements on ship owners and fuel oil suppliers in respect of bunker delivery notes and representative samples of the fuel oil received and on Parties to the 1997 Protocol to regulate the bunker suppliers in their ports. The circular urges all Member States, both Parties and non-Parties to the 1997 Protocol, to require fuel oil suppliers in their ports to comply with the requirements and to raise awareness of the necessity to enhance implementation and enforcement of regulation 18 of Annex VI.

2.     The MEPC circular on Notification to the Organization on ports or terminals where volatile organic compounds (VOCs) emissions are to be regulated, which notes that regulation 15 of Annex VI requires Parties to inform the Organization of their intention to introduce requirements for the use of vapour emission control systems and to notify the Organization of ports and terminals under their jurisdiction where such requirements are already in force. However, many terminals are implementing or operating such practices without notification to the Organization. The Committee shared the concern that, since there is no circulation of such information, it is difficult for owners and operators to prepare for these changes at ports and terminals. The circular reiterates that Parties to the 1997 Protocol are required to notify the Organization without delay with information on ports and terminals under their jurisdiction at which VOCs emissions are or will be regulated, and on requirements imposed on ships calling at these ports and terminals. Any information received by the Organization on the availability of vapour emission control systems will be circulated through MEPC circulars so that owners and operators will have up to-date information on current and future requirements for the utilization of such systems.

As instructed by MEPC 53, the Sub-Committee on Bulk Liquids and Gases (BLG) will undertake a review of MARPOL Annex VI and the NOx Technical Code with a view to revising the regulations to take account of current technology and the need to further reduce air pollution from ships. The progress of this work will be reported to the next session of the MEPC.

The Committee and its Working Group on Air Pollution had long and extensive debates on how to follow up resolution A.963(23) on IMO Policies and Practices related to the Reduction of Greenhouse Gas Emissions from Ships. By the resolution, the Assembly urged MEPC to identify and develop the necessary mechanisms needed to achieve the limitation or reduction of GHG emissions from international shipping. Among the items considered was whether only emission of CO₂ or of all six greenhouse gases identified by the Kyoto Protocol should be included. The MEPC agreed to consider the follow-up actions to resolution A.963(23) in a technical and methodological perspective and to concentrate the work on CO₂ emissions. The Committee also agreed to continue the work at the next session and, in particular, to consider further a draft work plan to identify and develop the mechanisms needed to achieve the goal set by the Assembly.

Greenhouse gases

In November 2003, IMO adopted resolution A.963(23) IMO Policies and practices related to the reduction of greenhouse gas emissions from ships.

At its 52nd session in October 2004, the Marine Environment Protection Committee (MEPC) made progress on developing draft Guidelines on the CO₂ Indexing Scheme and urged Members to carry out trials using the scheme and to report to the next session. One purpose of developing guidelines on CO₂emission indexing is to develop a simple system that could be used voluntarily by ship operators during a trial period.

The Committee agreed that a CO₂ indexing scheme should be simple and easy to apply and take into consideration matters related to construction and operation of the ship, and market based incentives. At its 53rd session in July 2005, the MEPC approved Interim Guidelines for Voluntary Ship CO₂ Emission Indexing for Use in Trials.

Meanwhile, the Committee recognized that IMO guidelines on greenhouse gas emissions have to address all six greenhouse gases covered by the Kyoto Protocol (Carbon dioxide (CO₂); Methane (CH₄); Nitrous oxide (N₂O); Hydrofluorocarbons (HFCs); Perfluorocarbons (PFCs); and Sulphur hexafluoride (SF₆).

Background on air pollution

The issue of controlling air pollution form ships - in particular, noxious gases from ships' exhausts - was discussed in the lead up to the adoption of the 1973 MARPOL Convention. However, it was decided not to include regulations concerning air pollution at the time.

Meanwhile, air pollution was being discussed in other arenas. The 1972 United Nations Conference on the Human Environment in Stockholm marked the start of active international cooperation in combating acidification, or acid rain. Between 1972 and 1977, several studies confirmed the hypothesis that air pollutants could travel several thousand kilometres before deposition and damage occurred. This damage includes effects on crops and forests.

Most acid rain is caused by airborne deposits of sulphur dioxides and nitrogen oxides. Coal and oil-burning power plants are the biggest source of sulphur dioxides while nitrogen oxides come from car, truck - and ship - exhausts.

In 1979, a ministerial meeting on the protection of the environment, in Geneva, resulted in the signing of the Convention on Long‑range Transboundary Air Pollution by 34 governments and the European Community. This was the first international legally binding instrument to deal with problems of air pollution on a broad regional basis.

Protocols to this Convention were later signed on reducing sulphur emissions (1985); controlling emissions of nitrogen oxides (1988); controlling emissions of volatile organic compounds (1991) and further reducing sulphur emissions (1994).

During the 1980s, concern over air pollution, such as global warming and the depleting of the ozone layer, continued to grow, and in 1987 the Montreal Protocol on substances that Deplete the Ozone Layer was signed.

The Montreal Protocol is an international environmental treaty, drawn up under the auspices of the United Nations, under which nations agreed to cut consumption and production of ozone-depleting substances including chlorofluorocarbons (CFCs) and halons in order to protect the ozone layer.

A Protocol was adopted in London in 1990 - amending the original protocol and setting the year 2000 as the target completion date for phasing out of halons and ozone-depleting CFCs. A second Protocol was adopted in Copenhagen in 1992, introducing accelerated phase-out dates for controlled substances, cutting short the use of transitional substances and the introduction of phase-out dates for HCFCs and methyl bromide(a pesticidal gas which depletes the ozone layer).

CFCs have been in widespread use since the 1950s as refrigerants, aerosol propellants, solvents, foam blowing agents and insulants. In shipping, CFCs are used to refrigerate ship and container cargo, insulate cargo holds and containers, air condition crew quarters and occupied areas and refrigerate domestic food storage compartments.

Halons, manufactured from CFCs, are effective fire extinguishers used in portable fire extinguishers and fixed fire prevention systems.

IMO begins work on air pollution

At IMO, the Marine Environment Protection Committee (MEPC) in the mid-1980s had been reviewing the quality of fuel oils in relation to discharge requirements in Annex I and the issue of air pollution had been discussed.

In 1988, the MEPC agreed to include the issue of air pollution in its work programme following a submission from Norway on the scale of the problem. In addition, the Second International Conference on the Protection of the North Sea, held in November 1987, had issued a declaration in which the ministers of North Sea states agreed to initiate actions within appropriate bodies, such as IMO, "leading to improved quality standards of heavy fuels and to actively support this work aimed at reducing marine and atmospheric pollution."

At the next MEPC session, in March 1989, various countries submitted papers referring to fuel oil quality and atmospheric pollution, and it was agreed to look at the prevention of air pollution from ships - as well as fuel oil quality - as part of the committee's long-term work programme, starting in March 1990.

In 1990, Norway submitted a number of papers to the MEPC giving an overview on air pollution from ships. The papers noted:

Sulphur emissions from ships' exhausts were estimated at 4.5 to 6.5 million tons per year - about 4 percent of total global sulphur emissions. Emissions over open seas are spread out and effects moderate, but on certain routes the emissions create environmental problems, including English Channel, South China Sea, Strait of Malacca.

Nitrogen oxide emissions from ships were put at around 5 million tons per year - about 7 percent of total global emissions. Nitrogen oxide emissions cause or add to regional problems including acid rain and health problems in local areas such as harbours.

Emissions of CFCs from the world shipping fleet was estimated at 3,000-6,000 tons - approximately 1 to 3 percent of yearly global emissions. Halon emissions from shipping were put at 300 to 400 tons, or around 10 percent of world total.

Adoption of resolution

Discussions in the MEPC and drafting work by a working group, led to the adoption in 1991, of an IMO Assembly Resolution A.719(17) on Prevention of Air Pollution from Ships.

The Resolution called on the MEPC to prepare a new draft Annex to MARPOL 73/78 on prevention of air pollution.

The new draft Annex was developed over the next six years - and was finally adopted at a Conference in September 1997. It was agreed to adopt the new Annex through adding a Protocol to the MARPOL 73/78 Convention, which included the new Annex. This enabled specific entry into force conditions to be set out in the protocol.