- 2 -
RESOLUTION
MEPC.304(72)
Adopted
on 13 April 2018
INITIAL
IMO STRATEGY ON REDUCTION OF GHG EMISSIONS FROM SHIPS
THE
MARINE ENVIRONMENT PROTECTION COMMITTEE
RECALLING
Article 38(e) of the Convention on the International Maritime Organization (the
Organization) concerning the functions of the Marine Environment Protection
Committee (the Committee) conferred upon it by international conventions for
the prevention and control of marine pollution from ships,
ACKNOWLEDGING
that work to address greenhouse gas (GHG) emissions from ships has been
undertaken by the Organization continuously since 1997, in particular, through
adopting global mandatory technical and operational energy efficiency measures
for ships under MARPOL Annex VI,
ACKNOWLEDGING
ALSO the decision of the thirtieth session of the Assembly in December 2017
that adopted for the Organization a strategic direction entitled “Respond to
Climate Change”,
RECALLING
the United Nations 2030 Agenda for Sustainable Development,
1
ADOPTS the Initial IMO Strategy on reduction of GHG emissions from ships (hereinafter
the Initial Strategy) as set out in the annex to the present resolution;
2
INVITES the Secretary-General of the Organization to make adequate provisions
in the Integrated Technical Cooperation Programme (ITCP) to support relevant
follow up actions of the Initial Strategy that may be further decided by the
Committee and undertaken by developing countries, particularly Least Developed
Countries (LDCs) and Small Island Developing States (SIDS);
3
AGREES to keep the Initial Strategy under review, with a view to adoption of a
Revised IMO Strategy on reduction of GHG emissions from ships in 2023.
*** -
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Annex
INITIAL
IMO STRATEGY ON REDUCTION OF GHG EMISSIONS FROM SHIPS
Contents
1
INTRODUCTION
2
VISION
3
LEVELS OF AMBITION AND GUIDING PRINCIPLES
4 LIST
OF CANDIDATE SHORT-, MID- AND LONG-TERM FURTHER MEASURES WITH POSSIBLE
TIMELINES AND THEIR IMPACTS ON STATES
5
BARRIERS AND SUPPORTIVE MEASURES; CAPACITY BUILDING AND TECHNICAL COOPERATION;
R&D
6
FOLLOW-UP ACTIONS TOWARDS THE DEVELOPMENT OF THE REVISED STRATEGY
7
PERIODIC REVIEW OF THE STRATEGY - 4 -
1 INTRODUCTION
1.1
The International Maritime Organization (IMO) is the United Nations specialized
agency responsible for safe, secure and efficient shipping and the prevention
of pollution from ships.
1.2
The Strategy represents the continuation of work of IMO as the appropriate
international body to address greenhouse gas (GHG) emissions from international
shipping. This work includes Assembly resolution A.963(23) on IMO policies
and practices related to the reduction of greenhouse gas emissions from ships,
adopted on 5 December 2003, urging the Marine Environment Protection Committee
(MEPC) to identify and develop the mechanisms needed to achieve the limitation
or reduction of GHG emissions from international shipping.
1.3 In
response to the Assembly’s request, work to address GHG emissions from ships
has been undertaken, including inter alia:
.1
MEPC 62 (July 2011) adopted resolution MEPC.203(62) on Inclusion of
regulations on energy efficiency for ships in MARPOL Annex VI introducing
mandatory technical (EEDI) and operational (SEEMP) measures for the energy
efficiency of ships. To date more than 2,700 new ships have been certified to
the energy efficiency design requirement;
.2
MEPC 65 (May 2013) adopted resolution MEPC.229(65) on Promotion of technical
co-operation and transfer of technology relating to the improvement of energy
efficiency of ships, which, among other things, requests the IMO, through
its various programmes (ITCP1, GloMEEP project2, MTCC network3, etc.), to provide technical
assistance to Member States to enable cooperation in the transfer of energy
efficient technologies, in particular to developing countries; and
1 Integrated Technical
Cooperation Programme http://www.imo.org
2 Global Maritime Energy
Efficiency Partnerships http://glomeep.imo.org/
3 Global Maritime
Technology Cooperation Centres Network http://gmn.imo.org/
.3
MEPC 70 (October 2016) adopted, by resolution MEPC.278(70), amendments to
MARPOL Annex VI to introduce the data collection system for fuel oil consumption
of ships, containing mandatory requirements for ships to record and report
their fuel oil consumption. Ships of 5,000 gross tonnage and above
(representing approximately 85% of the total CO2 emissions
from international shipping) are required to collect consumption data for each
type of fuel oil they use, as well as other, additional, specified data
including proxies for “transport work”.
1.4
This Initial Strategy is the first milestone set out in the Roadmap for
developing a comprehensive IMO Strategy on reduction of GHG emissions from
ships (the Roadmap) approved at MEPC 70. The Roadmap identifies that a
revised Strategy is to be adopted in 2023.
Context
1.5
The Initial Strategy falls within a broader context including:
.1
other existing instruments related to the law of the sea, including UNCLOS, and
to climate change, including the UNFCCC and its related legal instruments,
including the Paris Agreement; - 5 -
.2 the leading role of the
Organization for the development, adoption and assistance in implementation of
environmental regulations applicable to international shipping;
.3 the
decision of the thirtieth session of the Assembly in December 2017 that adopted
for the Organization a Strategic Direction entitled “Respond to climate
change”; and
.4 the
United Nations 2030 Agenda for Sustainable Development.
Emissions
and emission scenarios
1.6
The Third IMO GHG Study 2014 has estimated that GHG emissions from
international shipping in 2012 accounted for some 2.2% of anthropogenic CO2 emissions and that such emissions could grow by between 50%
and 250% by 2050. Future IMO GHG studies would help reduce the uncertainties
associated with these emission estimates and scenarios.
Objectives
of the Initial Strategy
1.7
The Initial Strategy is aimed at:
.1
enhancing IMO’s contribution to global efforts by addressing GHG emissions from
international shipping. International efforts in addressing GHG emissions
include the Paris Agreement and its goals and the United Nations 2030 Agenda
for Sustainable Development and its SDG 13: "Take urgent action to
combat climate change and its impacts";
.2
identifying actions to be implemented by the international shipping sector, as
appropriate, while addressing impacts on States and recognizing the critical
role of international shipping in supporting the continued development of
global trade and maritime transport services; and
.3
identifying actions and measures, as appropriate, to help achieve the above
objectives, including incentives for research and development and monitoring of
GHG emissions from international shipping.
2
VISION
IMO
remains committed to reducing GHG emissions from international shipping and, as
a matter of urgency, aims to phase them out as soon as possible in this
century.
3
LEVELS OF AMBITION AND GUIDING PRINCIPLES
Levels
of ambition
3.1Subject
to amendment depending on reviews to be conducted by the Organization, the
Initial Strategy identifies levels of ambition for the international shipping
sector noting that technological innovation and the global introduction of
alternative fuels and/or energy sources for international shipping will be
integral to achieve the overall ambition. The reviews should take into account
updated emission estimates, emissions reduction options for international
shipping, and the reports of the Intergovernmental Panel on Climate Change
(IPCC), as relevant. Levels of ambition directing the Initial Strategy are as
follows: - 6 -
.1carbon intensity of the ship to decline
through implementation of further phases of the energy efficiency design index
(EEDI) for new ships
to
review with the aim to strengthen the energy efficiency design requirements for
ships with the percentage improvement for each phase to be determined for each
ship type, as appropriate;
.2carbon
intensity of international shipping to decline
to
reduce CO2emissions per transport work, as an
average across international shipping, by at least 40% by 2030, pursuing
efforts towards 70%by 2050, compared to 2008; and
.3GHG
emissions from international shipping to peak and decline
to
peak GHG emissions from international shipping as soon as possible and to
reduce the total annual GHG emissions by at least 50% by 2050 compared to 2008
whilst pursuing efforts towards phasing them out as called for in the Vision as
a point on a pathway of CO2emissions reduction consistent with
the Paris Agreement temperature goals.
Guiding
principles
3.2
The principles guiding the Initial Strategy include:
.1 the
need to be cognizant of the principles enshrined in instruments already
developed, such as:
.1 the
principle of non-discrimination and the principle of no more favourable
treatment, enshrined in MARPOL and other IMO conventions; and
.2 the
principle of common but differentiated responsibilities and respective
capabilities, in the light of different national circumstances, enshrined in
the UNFCCC, its Kyoto Protocol and the Paris Agreement;
.2 the
requirement for all ships to give full and complete effect, regardless of flag,
to implementing mandatory measures to ensure the effective implementation of
this strategy;
.3 the
need to consider the impacts of measures on States, including developing
countries, in particular, on LDCs and SIDS as noted by MEPC 68 (MEPC 68/21,
paragraphs 4.18 to 4.19) and their specific emerging needs, as recognized in
the Organization’s Strategic Plan (resolution A.1110(30)); and
.4 the
need for evidence-based decision-making balanced with the precautionary
approach as set out in resolution MEPC.67(37). - 7 -
4 LIST OF CANDIDATE SHORT-, MID- AND
LONG-TERM FURTHER MEASURES WITH POSSIBLE TIMELINES AND THEIR IMPACTS ON STATES
Timelines
4.1
Candidate measures set out in this Initial Strategy should be consistent with
the following timelines:
.1
possible short-term measures could be measures finalized and agreed by the
Committee between 2018 and 2023. Dates of entry into force and when the measure
can effectively start to reduce GHG emissions would be defined for each measure
individually;
.2
possible mid-term measures could be measures finalized and agreed by the
Committee between 2023 and 2030. Dates of entry into force and when the measure
can effectively start to reduce GHG emissions would be defined for each measure
individually; and
.3
possible long-term measures could be measures finalized and agreed by the
Committee beyond 2030. Dates of entry into force and when the measure can
effectively start to reduce GHG emissions would be defined for each measure
individually.
4.2 In
aiming for early action, the timeline for short-term measures should prioritize
potential early measures that the Organization could develop, while recognizing
those already adopted, including MARPOL Annex VI requirements relevant for
climate change, with a view to achieve further reduction of GHG emissions from
international shipping before 2023.
4.3
Certain mid- and long-term measures will require work to commence prior to
2023.
4.4
These timelines should be revised as appropriate as additional information becomes
available.
4.5
Short-, mid- and long-term further measures to be included in the Revised IMO
GHG Strategy should be accompanied by implementation schedules.
4.6
The list of candidate measures is non-exhaustive and is without prejudice to
measures the Organization may further consider and adopt.
Candidate
short-term measures
4.7
Measures can be categorized as those the effect of which is to directly reduce
GHG emissions from ships and those which support action to reduce GHG emissions
from ships. All the following candidate measures4 represent
possible short-term further action of the Organization on matters related to
the reduction of GHG emissions from ships:
4 The Initial Strategy is subject to revision based on
fuel oil consumption data collected during 2019-2021 and does not prejudge any
specific further measures that may be implemented in Phase 3 of the three-step
approach.
.1
further improvement of the existing energy efficiency framework with a focus on
EEDI and SEEMP, taking into account the outcome of the review of EEDI
regulations; - 8 -
.2 develop technical and operational
energy efficiency measures for both new and existing ships, including
consideration of indicators in line with the three-step approach that can be
utilized to indicate and enhance the energy efficiency performance of shipping,
e.g. Annual Efficiency Ratio (AER), Energy Efficiency per Service Hour (EESH),
Individual Ship Performance Indicator (ISPI), Fuel Oil Reduction Strategy
(FORS);
.3
establishment of an Existing Fleet Improvement Programme;
.4
consider and analyse the use of speed optimization and speed reduction as a
measure, taking into account safety issues, distance travelled, distortion of
the market or to trade and that such measure does not impact on shipping's
capability to serve remote geographic areas;
.5
consider and analyse measures to address emissions of methane and further
enhance measures to address emissions of Volatile Organic Compounds;
.6
encourage the development and update of national action plans to develop
policies and strategies to address GHG emissions from international shipping in
accordance with guidelines to be developed by the Organization, taking into
account the need to avoid regional or unilateral measures;
.7
continue and enhance technical cooperation and capacity-building activities
under the ITCP;
.8
consider and analyse measures to encourage port developments and activities
globally to facilitate reduction of GHG emissions from shipping, including
provision of ship and shore-side/on-shore power supply from renewable sources,
infrastructure to support supply of alternative low-carbon and zero-carbon
fuels, and to further optimize the logistic chain and its planning, including
ports;
.9
initiate research and development activities addressing marine propulsion,
alternative low-carbon and zero-carbon fuels, and innovative technologies to
further enhance the energy efficiency of ships and establish an International
Maritime Research Board to coordinate and oversee these R&D efforts;
.10
incentives for first movers to develop and take up new technologies;
.11
develop robust lifecycle GHG/carbon intensity guidelines for all types of
fuels, in order to prepare for an implementation programme for effective uptake
of alternative low-carbon and zero-carbon fuels;
.12
actively promote the work of the Organization to the international community,
in particular, to highlight that the Organization, since the 1990's, has
developed and adopted technical and operational measures that have consistently
provided a reduction of air emissions from ships, and that measures could
support the Sustainable Development Goals, including SDG 13 on Climate Change;
and
.13
undertake additional GHG emission studies and consider other studies to inform
policy decisions, including the updating of Marginal Abatement Cost Curves and
alternative low-carbon and zero-carbon fuels. - 9 -
Candidate mid-term measures
4.8
Measures can be categorized as those the effect of which is to directly reduce
GHG emissions from ships and those which support action to reduce GHG emissions
from ships. All the following candidate measures represent possible mid-term
further action of the Organization on matters related to the reduction of GHG
emissions from ships:
.1
implementation programme for the effective uptake of alternative low-carbon and
zero-carbon fuels, including update of national actions plans to specifically
consider such fuels;
.2
operational energy efficiency measures for both new and existing ships
including indicators in line with three-step approach that can be utilized to
indicate and enhance the energy efficiency performance of ships;
.3
new/innovative emission reduction mechanism(s), possibly including Market-based
Measures (MBMs), to incentivize GHG emission reduction;
.4
further continue and enhance technical cooperation and capacity-building
activities such as under the ITCP; and
.5
development of a feedback mechanism to enable lessons learned on implementation
of measures to be collated and shared through a possible information exchange
on best practice.
Candidate
long-term measures
4.9
All the following candidate measures represent possible long-term further
action of the Organization on matters related to the reduction of GHG emissions
from ships:
.1
pursue the development and provision of zero-carbon or fossil-free fuels to
enable the shipping sector to assess and consider decarbonization in the second
half of the century; and
.2
encourage and facilitate the general adoption of other possible new/innovative
emission reduction mechanism(s).
Impacts
on States
4.10The
impacts on States of a measure should be assessed and taken into account as
appropriate before adoption of the measure. Particular attention should be paid
to the needs of developing countries, especially small island developing States
(SIDS) and least developed countries (LDCs).
4.11When
assessing impacts on States the impact of a measure should be considered, as
appropriate, inter alia, in the following terms:
.1geographic
remoteness of and connectivity to main markets;
.2cargo
value and type;
.3transport
dependency;
.4transport
costs;- 10 -
.5food security;
.6disaster
response;
.7cost-effectiveness;
and
.8socio-economic
progress and development.
4.12The
specification for and agreement on the procedure for assessing and taking into
account the impacts of measures related to international shipping on States
should be undertaken as a matter of urgency as part of the follow-up actions.
4.13Disproportionately
negative impacts should be assessed and addressed, as appropriate.
5
BARRIERS AND SUPPORTIVE MEASURES; CAPACITY-BUILDING AND TECHNICAL COOPERATION;
R&D
5.1
The Committee recognizes that developing countries, in particular the LDCs and
SIDS, have special needs with regard to capacity building and technical
cooperation.
5.2
The Committee acknowledges that development and making globally available new
energy sources that are safe for ships could be a specific barrier to the
implementation of possible measures.
5.3
The Committee could assist the efforts to promote low-carbon technologies by
facilitating public-private partnerships and information exchange.
5.4
The Committee should continue to provide mechanisms for facilitating
information sharing, technology transfer, capacity-building and technical
cooperation, taking into account resolution MEPC.229(65) on Promotion of
technical co-operation and transfer of technology relating to the improvement
of energy efficiency of ships.
5.5The
Organization is requested to assess periodically the provision of financial and
technological resources and capacity-building to implement the Strategy through
the ITCP and other initiatives including the GloMEEP project and the
MTCCnetwork.
6
FOLLOW-UP ACTIONS TOWARDS THE DEVELOPMENT OF THE REVISED STRATEGY
6.1 A
programme of follow-up actions of the Initial Strategy should be developed. -
11 -
|
6.2
The key stages for the adoption of a Revised IMO GHG Strategy in 2023 as set
out in the Roadmap, are as follows: Spring
2018
(MEPC 72)
|
Adoption of the
Initial Strategy5, including, inter alia, a list of candidate short-,
mid- and long-term further measures with possible timelines, to be revised as
appropriate as additional information becomes available
|
|
January 2019
|
Start of Phase 1:
Data collection (Ships to collect data)
|
|
Spring 2019
(MEPC 74)
|
Initiation of Fourth
IMO GHG Study using data from 2012-2018
|
|
Summer 2020
|
Data from 2019 to be
reported to IMO
|
|
Autumn 2020
(MEPC 76)
|
Start of Phase 2:
data analysis (no later than autumn 2020)
Publication of Fourth
IMO GHG Study for consideration by MEPC 76
|
|
Spring 2021
(MEPC 77)
|
Secretariat report
summarizing the 2019 data pursuant to regulation 22A.10
Initiation of work on
adjustments on Initial IMO Strategy, based on Data Collection System (DCS)
data
|
|
Summer 2021
|
Data for 2020 to be
reported to IMO
|
|
Spring 2022
(MEPC 78)
|
Phase 3: Decision
step
Secretariat report
summarizing the 2020 data pursuant to regulation 22A.10
|
|
Summer 2022
|
Data for 2021 to be
reported to IMO
|
|
Spring 2023
(MEPC 80)
|
Secretariat report
summarizing the 2021 data pursuant to regulation 22A.10
Adoption of Revised
IMO Strategy, including short-, mid- and long-term further measure(s), as
required, with implementation schedules
|
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