第34卷 增刊22008年12月
文章编号:1006-7736(2008)S2-0115-03
大连海事大学学报JournalofDalianMaritimeUniversity
Vol.34 S2Dec., 2008
对海洋环境保护的前瞻与对策
姚 恺
(广东海事局,广州 510230)
摘要:通过分析框架内和框架外两个方面,对现有的海洋环境保护的国际法律框架进行评论与总结,提出改进国际海洋环境保护法律框架的建议和解决方案。关键词:海洋;环境保护;国际法律
中图分类号:D993.5 文献标志码:A
outsideoftheconventionistheimplementationoftheconvention.
1 Insideoftheconvention
Agoodconventioncanbeunderstoodeasilyandclearly,andalsocanbeimplementedeffectivelyandefficiently.Hereby,themainprogresstomakeisfromtheconventionitselfstructurallyandliterally.Thatincludestheintegrationoftheconvention,theamendmentoftheexistingprovisionandtheestablish-mentofnewstandards.
1.1 MaketheMARPOLbecominga“superconven-tion”
Aconvention,whichinordertobeimplementedeffectivelyandefficiently,shouldbeuniformityandconsolidated.ThefullnameofMARPOLconventionis“InternationalConventionforthePreventionofPollutionfromShips”,itindicatesthattheMARPOLconventionanditsannexshouldregulatealltheissuesofship-basedpollutionprevention.Butitisnotthefact.BesidestheMARPOLconvention,thereareotherrelatedconventionswhichalsoregulatetheship-basedpollutionpreventionissues.Forinstance,(1)BWMConventionisregulatetheshipballastwaterdischarge,(2)AFSConventionisforpreventingharmfulsubstancefromanti-foulingsystem,and(3)LondonConventionistocontrollingthedumpingfromship.
Consideringtheabovesituation,anewconsoli-datedMARPOLConventionoughttobeestablished.AndthenewMARPOLConventionwillbecomea
Maritimeenvironmentalprotectionand
forward-lookingresponse
YAOKai
(GuangdongMaritimeSafetyAdministration,
Guangzhou510230,China)
Abstract:Inthisarticle,theauthorreviewedtheexistingframe-workofmaritimeenvironmentalprotectionfrominsideandout-sideoftheinternationalconvention.Aftertheanalysis,itgivessomesuggestionsandsolutionsonimprovingtheachievementofmaritimeenvironmentalprotection.
Keywords:sea;environmentalprotection;internationallaw
0 Introduction
SincetheInternationalConventionforthePre-ventionofPollutionfromShips(MARPOL)camein-toforce,themaritimeenvironmentalprotectionhasbeenimprovedtoaconsiderabledegree.Today,glo-balmaritimesocietyhasnoticedthattheexistingstan-dardisgoodbutnotenough.Theinternationalcom-munityshouldpersisttomakeseffortsontheconven-tion.Whatmorecanbedonebyusisaseriousandsystematicissue.Thisarticlewillgivesomesugges-tionstoperfecttheconventionalregimeforpollutionpreventionfromshipsandexplainthereasons.
Inauthor'sopinion,themeasuresshouldcoverinsideandoutsideoftheconvention.Theinsideofthe
conventionistheamendmentoftheconvention.The
收稿日期:2008-08-23.
,,,-
116大连海事大学学报 第34卷 “superconvention”onmaritimeenvironmentalissues.ThreementionedconventionscouldberewrittenasthreenewannexesofMARPOL.Theadvantageofauniqueconventionisobvious.Itcanavoidconfusionofimplementationandapplytoallofthemaritimepollution.
1.2 Raisethecurrentpollutionprotectionlevel
Itisacorrectdirectionformaritimecommunitytosettheemissionstandardsforships.Butthestan-dardstodayarenotsosatisfactory.Inthe57thsessionoftheMarineEnvironmentProtectionCommittee(MEPC)whichwasheldinLondonfrom31Marchto4April2008,delegationsofdifferentStatesandorganizationsdiscussedextensivelyabouttheemissionstandardofSOXandNOXTechnicalCode.Afterthesession,MEPCdraftedanamendmenttoMARPOLAnnexVI(MEPC57 21 Add.1).Inthisdraft,theemissionstandardofSOXwasleveleddownandtheNOXTechnicalCodewasrenewed.
Thisisanexcitingsignal.Itshowsthatthein-ternationalmaritimecommunityhasrecognizedtheimportanceandnecessitytorestrictthepollutionlev-el.Inthevisiblefuture,thecontrollevelshouldcon-tinuouslyraiseinordertodiminishtheSOXandNOXemission.
1.3 Addnewpollutionprotectionstandards
ExcludingthestandardofSOXandNOX,theemissionstandardofsomeothersubstanceshouldalsobeestablishedtorespondtotheenvironmentdegrada-tion.1.3.1 CO2
AftertheUnitedNationsClimateChangeCon-ferenceinBali,peopleknowthattheGreenHouseGas(GHG)emissioncontrolwe'vedoneisfarfromenough.However,therehasnotanyprovisionforCO2emissioninMARPOLuntilnow.
IMOhasalreadyrealizedthisproblem.Inthe57thsessionoftheMEPC,theSecretary-Generalem-phasizedtheneedtoactinconcertwith,andcontrib-uteto,thewiderinternationaleffortsaimedatswiftandsubstantiveactiontocombatclimatechange.ButitisapitythatnosuggestionofemissionstandardbeAccordingtotheBaliRoadmap,maritimecom-munityandeachStateshouldpromptlyreviewtheCO2emissionlevelandworktogethertotableaprop-osalonCO2emissionstandardinthenearfuture.1.3.2 PM
ThePMprovisionisexistsintheMARPOLforalongtime.ButthePMemissionisstillnotquantiza-tion.However,manymedicalresearcheshaveprovedthatParticulateMatterislethal.InU.S.Environ-mentalProtectionAgency'sstatement,“Particlepol-lution-especiallyfineparticles-containsmicroscopicsolidsorliquiddropletsthataresosmallthattheycangetdeepintothelungsandcauseserioushealthprob-lems.”(EnvironmentalProtectionAgency[EPA],2008)
Therefore,thePMemissionstandardoughttobesetupclearlyandquantitativelyintheMARPOLcon-vention.Inthisarea,IMOcanusetheexperienceoftheU.S.forreference.TheUnitedStatesestablishedNationalAmbientAirQualityStandards(EPA,2008)andthecriteriaofPMwere:
Table1 Nationalambientairqualitystandards
Pollutant
PrimaryStds.
AveragingTimes
μg m3
24-hourAnnual
(Arith.Mean)24-hour
ParticulateMatter(PM10)150ParticulateMatter(PM2.5)
15.035
Becausealargenumberofshipsuseheavyfossil
oil(HFO)asfuel,thePMpollutionfromshipswillbemoreseriousthancars.ThePMemissioncontrolstandard,therefore,isurgentneeded.1.3.3 CH4
TheCH4isthemaincomponentofnaturalgas.Itiseasytobeburned,andifitmixeswithairwithinanappropriatesituation,explosionwillbeledto.Be-sidessafetyproblem,fireorexplosionwillalsodoharmtotheenvironment.AndintheKyotoProtocol,CH4isdefinedasonekindoftheGHGs.
Meanwhile,theproportionofnaturalgasinworldenergydemandisincreasing.Aresearchshowsthattheworldsupplyofgasinequivalentwillexceedoilsupplyin2020s(AdrianJohn,2008,p.22)andthenumberofLNGcarriersinservicewillexceed400,p
增刊2 姚 恺:对海洋环境保护的前瞻与对策 117leakheavilyfromthecargotank,itwillleadtoaen-vironmentalproblem.SotheemissionstandardofCH4shouldbeestablished.
1.3.4 Nuclearradiation
Inauthor'sview,nuclearpowerwillsomedaybecomeoneofthemainenergysupplyresourcesforthereasonthatnuclearpowerneedforsmallquantityofmaterialbutgivelargequantityofenergyoutput.Insodoing,makinganuclearradiationstandardisnecessary.
Inenvironmentalfield,nuclearradiationstan-dardshouldbemadebecausereceivingexceedingnu-clearradiationbyhumanandspecieswillleadtosomelongtermdiseaseandunnaturalspeciesvariation.So,theradiantintensityfromtheengineroomshouldberestricted.Moreover,regulatingappointedsearoutesandappointedloadingareaseemtobeanadoptablemethod.
Inaddition,itisaconsiderablequestionthatwhethershalloneemissionstandardbeappliedtoallStates'shipsornot.Itseemstobeagoodsuggestiontousemoreflexibleregimetoimplementtheemissionstandardinsteadofusingthemandatoryregulation.Forexample,agovernmentcanoffersubsidizetopro-moteshipsusinglowemissionengineandhighqualityfuelorcanimposeanenvironmenttaxinhighpollu-tionvessels.
Forinstance,whenweraisetheairpollutioncontrolstandards,thecostofmaritimetransportationwillincrease,buttheefficiencyoftransportationisnotincrease.Possibly,someofthecargoownerwilluseothertransportationmethods,suchasrailwaytransportation.Thequestionthencomes:thede-creaseofmaritimepollutionismorethantheincreaseofrailwaypollutionornot?Iftheansweris“yes”,thenthenewpolicyshouldbemade,otherwise,itshouldnot.2.2 StrengthentheFSCandPSCregime
Themaritimepollutionisaglobalissuenomattertheairpollutionfromshipsortheballastwaterman-agement.Nocountryhasimmunityinpollutionpre-vention.Butdifferentcountryhasdifferentdevelop-mentandmanagementlevel.Thedevelopedcountrieshaveobligationinhelpingthedevelopingcountriestostrengthentheircontrollevelofpollutionpreventionintechnology.Becausedevelopedcountriesthemselveswillalsobenefitfromit.
EstablishingaglobalcoordinationregimeonFSCandPSCisnecessary.Itwillhelpthedevelopingcou-ntriestoimprovetheirperformanceasquickaspossi-bleandachievetherequirementofconventionsinanacceptabletime.IMOappliesitselftoestablishthisregimeforalongtime.Now,theembryoofthisre-gimecanbeseenalready.
2 Outsideoftheconvention
Adoptingconventionsisagoodbutnotonlywaytoresolvetheenvironmentalproblems.Outsidetheconventions,themaritimecommunityneedstodo
more.
2.1 Lookthroughthe“bigpicture”andestablishareviewregime
Areviewregimefortheadvantageanddisadvan-tageofmaritimepolicyshouldbeestablishedinahigherlevel.Thepolicymakersshouldlookthrougha“bigpicture”oftheworld.Theyalsoshouldforeseethenewpolicy'sconcomitantcircumstances.
3 Conclusion
TheMARPOLconventionisabasisofaninter-nationalmaritimeenvironmentallegalframework.Butforthesakeoffunctioningasa“superconvention”in
shipspollutionprevention,theimplementationoftheconventionisthemostimportantelement.So,thegoalofmaritimecommunityistomakethePartiesim-plementtheconventioneffectiveandefficientwithoutdifficultyandconfusion.Whenreviewingthemea-surestoachievethegoal,itisveryeasytoknowwhatmorecanbedone.
第34卷 增刊22008年12月
文章编号:1006-7736(2008)S2-0115-03
大连海事大学学报JournalofDalianMaritimeUniversity
Vol.34 S2Dec., 2008
对海洋环境保护的前瞻与对策
姚 恺
(广东海事局,广州 510230)
摘要:通过分析框架内和框架外两个方面,对现有的海洋环境保护的国际法律框架进行评论与总结,提出改进国际海洋环境保护法律框架的建议和解决方案。关键词:海洋;环境保护;国际法律
中图分类号:D993.5 文献标志码:A
outsideoftheconventionistheimplementationoftheconvention.
1 Insideoftheconvention
Agoodconventioncanbeunderstoodeasilyandclearly,andalsocanbeimplementedeffectivelyandefficiently.Hereby,themainprogresstomakeisfromtheconventionitselfstructurallyandliterally.Thatincludestheintegrationoftheconvention,theamendmentoftheexistingprovisionandtheestablish-mentofnewstandards.
1.1 MaketheMARPOLbecominga“superconven-tion”
Aconvention,whichinordertobeimplementedeffectivelyandefficiently,shouldbeuniformityandconsolidated.ThefullnameofMARPOLconventionis“InternationalConventionforthePreventionofPollutionfromShips”,itindicatesthattheMARPOLconventionanditsannexshouldregulatealltheissuesofship-basedpollutionprevention.Butitisnotthefact.BesidestheMARPOLconvention,thereareotherrelatedconventionswhichalsoregulatetheship-basedpollutionpreventionissues.Forinstance,(1)BWMConventionisregulatetheshipballastwaterdischarge,(2)AFSConventionisforpreventingharmfulsubstancefromanti-foulingsystem,and(3)LondonConventionistocontrollingthedumpingfromship.
Consideringtheabovesituation,anewconsoli-datedMARPOLConventionoughttobeestablished.AndthenewMARPOLConventionwillbecomea
Maritimeenvironmentalprotectionand
forward-lookingresponse
YAOKai
(GuangdongMaritimeSafetyAdministration,
Guangzhou510230,China)
Abstract:Inthisarticle,theauthorreviewedtheexistingframe-workofmaritimeenvironmentalprotectionfrominsideandout-sideoftheinternationalconvention.Aftertheanalysis,itgivessomesuggestionsandsolutionsonimprovingtheachievementofmaritimeenvironmentalprotection.
Keywords:sea;environmentalprotection;internationallaw
0 Introduction
SincetheInternationalConventionforthePre-ventionofPollutionfromShips(MARPOL)camein-toforce,themaritimeenvironmentalprotectionhasbeenimprovedtoaconsiderabledegree.Today,glo-balmaritimesocietyhasnoticedthattheexistingstan-dardisgoodbutnotenough.Theinternationalcom-munityshouldpersisttomakeseffortsontheconven-tion.Whatmorecanbedonebyusisaseriousandsystematicissue.Thisarticlewillgivesomesugges-tionstoperfecttheconventionalregimeforpollutionpreventionfromshipsandexplainthereasons.
Inauthor'sopinion,themeasuresshouldcoverinsideandoutsideoftheconvention.Theinsideofthe
conventionistheamendmentoftheconvention.The
收稿日期:2008-08-23.
,,,-
116大连海事大学学报 第34卷 “superconvention”onmaritimeenvironmentalissues.ThreementionedconventionscouldberewrittenasthreenewannexesofMARPOL.Theadvantageofauniqueconventionisobvious.Itcanavoidconfusionofimplementationandapplytoallofthemaritimepollution.
1.2 Raisethecurrentpollutionprotectionlevel
Itisacorrectdirectionformaritimecommunitytosettheemissionstandardsforships.Butthestan-dardstodayarenotsosatisfactory.Inthe57thsessionoftheMarineEnvironmentProtectionCommittee(MEPC)whichwasheldinLondonfrom31Marchto4April2008,delegationsofdifferentStatesandorganizationsdiscussedextensivelyabouttheemissionstandardofSOXandNOXTechnicalCode.Afterthesession,MEPCdraftedanamendmenttoMARPOLAnnexVI(MEPC57 21 Add.1).Inthisdraft,theemissionstandardofSOXwasleveleddownandtheNOXTechnicalCodewasrenewed.
Thisisanexcitingsignal.Itshowsthatthein-ternationalmaritimecommunityhasrecognizedtheimportanceandnecessitytorestrictthepollutionlev-el.Inthevisiblefuture,thecontrollevelshouldcon-tinuouslyraiseinordertodiminishtheSOXandNOXemission.
1.3 Addnewpollutionprotectionstandards
ExcludingthestandardofSOXandNOX,theemissionstandardofsomeothersubstanceshouldalsobeestablishedtorespondtotheenvironmentdegrada-tion.1.3.1 CO2
AftertheUnitedNationsClimateChangeCon-ferenceinBali,peopleknowthattheGreenHouseGas(GHG)emissioncontrolwe'vedoneisfarfromenough.However,therehasnotanyprovisionforCO2emissioninMARPOLuntilnow.
IMOhasalreadyrealizedthisproblem.Inthe57thsessionoftheMEPC,theSecretary-Generalem-phasizedtheneedtoactinconcertwith,andcontrib-uteto,thewiderinternationaleffortsaimedatswiftandsubstantiveactiontocombatclimatechange.ButitisapitythatnosuggestionofemissionstandardbeAccordingtotheBaliRoadmap,maritimecom-munityandeachStateshouldpromptlyreviewtheCO2emissionlevelandworktogethertotableaprop-osalonCO2emissionstandardinthenearfuture.1.3.2 PM
ThePMprovisionisexistsintheMARPOLforalongtime.ButthePMemissionisstillnotquantiza-tion.However,manymedicalresearcheshaveprovedthatParticulateMatterislethal.InU.S.Environ-mentalProtectionAgency'sstatement,“Particlepol-lution-especiallyfineparticles-containsmicroscopicsolidsorliquiddropletsthataresosmallthattheycangetdeepintothelungsandcauseserioushealthprob-lems.”(EnvironmentalProtectionAgency[EPA],2008)
Therefore,thePMemissionstandardoughttobesetupclearlyandquantitativelyintheMARPOLcon-vention.Inthisarea,IMOcanusetheexperienceoftheU.S.forreference.TheUnitedStatesestablishedNationalAmbientAirQualityStandards(EPA,2008)andthecriteriaofPMwere:
Table1 Nationalambientairqualitystandards
Pollutant
PrimaryStds.
AveragingTimes
μg m3
24-hourAnnual
(Arith.Mean)24-hour
ParticulateMatter(PM10)150ParticulateMatter(PM2.5)
15.035
Becausealargenumberofshipsuseheavyfossil
oil(HFO)asfuel,thePMpollutionfromshipswillbemoreseriousthancars.ThePMemissioncontrolstandard,therefore,isurgentneeded.1.3.3 CH4
TheCH4isthemaincomponentofnaturalgas.Itiseasytobeburned,andifitmixeswithairwithinanappropriatesituation,explosionwillbeledto.Be-sidessafetyproblem,fireorexplosionwillalsodoharmtotheenvironment.AndintheKyotoProtocol,CH4isdefinedasonekindoftheGHGs.
Meanwhile,theproportionofnaturalgasinworldenergydemandisincreasing.Aresearchshowsthattheworldsupplyofgasinequivalentwillexceedoilsupplyin2020s(AdrianJohn,2008,p.22)andthenumberofLNGcarriersinservicewillexceed400,p
增刊2 姚 恺:对海洋环境保护的前瞻与对策 117leakheavilyfromthecargotank,itwillleadtoaen-vironmentalproblem.SotheemissionstandardofCH4shouldbeestablished.
1.3.4 Nuclearradiation
Inauthor'sview,nuclearpowerwillsomedaybecomeoneofthemainenergysupplyresourcesforthereasonthatnuclearpowerneedforsmallquantityofmaterialbutgivelargequantityofenergyoutput.Insodoing,makinganuclearradiationstandardisnecessary.
Inenvironmentalfield,nuclearradiationstan-dardshouldbemadebecausereceivingexceedingnu-clearradiationbyhumanandspecieswillleadtosomelongtermdiseaseandunnaturalspeciesvariation.So,theradiantintensityfromtheengineroomshouldberestricted.Moreover,regulatingappointedsearoutesandappointedloadingareaseemtobeanadoptablemethod.
Inaddition,itisaconsiderablequestionthatwhethershalloneemissionstandardbeappliedtoallStates'shipsornot.Itseemstobeagoodsuggestiontousemoreflexibleregimetoimplementtheemissionstandardinsteadofusingthemandatoryregulation.Forexample,agovernmentcanoffersubsidizetopro-moteshipsusinglowemissionengineandhighqualityfuelorcanimposeanenvironmenttaxinhighpollu-tionvessels.
Forinstance,whenweraisetheairpollutioncontrolstandards,thecostofmaritimetransportationwillincrease,buttheefficiencyoftransportationisnotincrease.Possibly,someofthecargoownerwilluseothertransportationmethods,suchasrailwaytransportation.Thequestionthencomes:thede-creaseofmaritimepollutionismorethantheincreaseofrailwaypollutionornot?Iftheansweris“yes”,thenthenewpolicyshouldbemade,otherwise,itshouldnot.2.2 StrengthentheFSCandPSCregime
Themaritimepollutionisaglobalissuenomattertheairpollutionfromshipsortheballastwaterman-agement.Nocountryhasimmunityinpollutionpre-vention.Butdifferentcountryhasdifferentdevelop-mentandmanagementlevel.Thedevelopedcountrieshaveobligationinhelpingthedevelopingcountriestostrengthentheircontrollevelofpollutionpreventionintechnology.Becausedevelopedcountriesthemselveswillalsobenefitfromit.
EstablishingaglobalcoordinationregimeonFSCandPSCisnecessary.Itwillhelpthedevelopingcou-ntriestoimprovetheirperformanceasquickaspossi-bleandachievetherequirementofconventionsinanacceptabletime.IMOappliesitselftoestablishthisregimeforalongtime.Now,theembryoofthisre-gimecanbeseenalready.
2 Outsideoftheconvention
Adoptingconventionsisagoodbutnotonlywaytoresolvetheenvironmentalproblems.Outsidetheconventions,themaritimecommunityneedstodo
more.
2.1 Lookthroughthe“bigpicture”andestablishareviewregime
Areviewregimefortheadvantageanddisadvan-tageofmaritimepolicyshouldbeestablishedinahigherlevel.Thepolicymakersshouldlookthrougha“bigpicture”oftheworld.Theyalsoshouldforeseethenewpolicy'sconcomitantcircumstances.
3 Conclusion
TheMARPOLconventionisabasisofaninter-nationalmaritimeenvironmentallegalframework.Butforthesakeoffunctioningasa“superconvention”in
shipspollutionprevention,theimplementationoftheconventionisthemostimportantelement.So,thegoalofmaritimecommunityistomakethePartiesim-plementtheconventioneffectiveandefficientwithoutdifficultyandconfusion.Whenreviewingthemea-surestoachievethegoal,itisveryeasytoknowwhatmorecanbedone.