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.
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
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 IMO, through its various programmes (ITCP,1 GloMEEP
project,2 MTCC network,3 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;
.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
3.1 Subject 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:
.1 carbon 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;
.2 carbon intensity of international shipping to decline
to
reduce CO2 emissions 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
.3 GHG 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 CO2 emissions 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 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).
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;
.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) and 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 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
shoreside/onshore 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 1990s, 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.
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
4.10 The 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).
4.11 When assessing
impacts on States the impact of a measure should be considered, as appropriate,
inter alia, in the following terms:
.1 geographic remoteness of and connectivity
to main markets;
.2 cargo value and type;
.3 transport dependency;
.4 transport costs;
.5 food security;
.6 disaster response;
.7 cost-effectiveness; and
.8 socio-economic
progress and development.
4.12 The 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.
4.13 Disproportionately
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 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.
5.5 The 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 MTCC network.
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.
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 |