air pollution?

Over the past 20 years, rapid growth in the number and size of cruise ships arriving at Ogden Point has brought noxious emissions to the James Bay neighbourhood. Emissions do not stay in James Bay but are dispersed across the region – albeit at lower levels.

Do cruise ships have a history of polluting the local air?

Air quality has been monitored in James Bay since 2006 and indicated increased sulphur dioxide (SO2) levels during the cruise season. In 2011, a single SO2 monitor was placed in James Bay by the Ministry of Environment. As soon as the monitor was in place, SO2 levels almost halved as the cruise lines moved the most polluting ships off the Alaska route. In 2012, the North American Emissions Control Area Agreement required ships to reduce sulphur dioxide emissions.

What Air Emission Standards do Cruise Ships have to meet in 2023?

Cruise ships now have to meet International Marine Organization (IMO) global sulphur dioxide emission levels of 0.5% and North American Emission Control Area (ECA) levels of 0.1%. Ships in Victoria have to fulfill the 0.1% ECA requirement.

Cruise ships generally use heavy fuel oil with scrubbers or low sulphur fuel to meet these requirements. They still emit SO2.

According to an EPA-reviewed study, a cruise ship idling at berth for 10 hours, using 0.1% sulphur level fuel, emits 28,904 grams of SO2 which is the equivalent of 34,409 trucks idling for the same time period.

In the 2022 cruise season, ships were berthed in Victoria for 2223.5 hours, equivalent to 7,650,952 tractor-trailers idling and 6.42 metric tonnes of SO2.

Do lower sulphur emission standards eliminate pollution?

Unfortunately, well-intentioned regulations may have had the effect of turning air pollution into ocean pollution. The intent of the IMO and North American ECA regulations was to have ships switch to using lower-sulphur marine oil fuels (although the use of scrubbers is allowed).

Many ships continue to use heavy oil fuel which is about half the price of low-sulphur fuel. The ships are able to do so by installing exhaust gas cleaning systems (commonly known as scrubbers). Scrubbing is a process that uses seawater to remove sulphur and other contaminants from the exhaust when heavy oil fuel is used - thus reducing emissions released into the air to comply with IMO and ECA regulations. The problem is, the wash water from scrubber use can be toxic to marine life, and is often released straight into the marine environment, both on the open ocean and in ports. Scrubber wash water discharges contain pollutants.

Scrubbers do not eliminate air pollution. A 2020 study by the Swedish Environmental Research Institute showed ship particle emissions were higher by 41 to 64% with heavy fuel oil and scrubbers versus low sulphur marine fuel oil.

Locally, there continues to be concern about fine and ultrafine particulate matter. Scrubbers reduce large particulates, but the higher levels of fine particulates are a health concern as ultrafine particulates more easily enter the lungs.

While there have been improvements, there will always be emissions from engines running. The impacts of scrubber technology on air quality and human health requires further research. A 2018 study by the University of California for the California Air Resources Board indicated that scrubbers do not provide the same air quality reductions for particulate matter as compared to vessels using low sulphur oil.

What about Shore Power?

Shore power is a clean technology that enables ships fitted with the appropriate technical equipment to shut down auxiliary engines and connect to hydroelectric power while at berth virtually eliminating air emissions and engine noise (although transmitters may generate noise).

There are three conditions for shore power to be a local solution: ship capability, port mandates to use and/or pay for the infrastructure, and scheduling to maximize access/hook up.

In Victoria, the majority of cruise ships arrive after 7 pm and leave around midnight. It could take a minimum of 60 minutes for a ship to hook up to shore power and at least another 60 minutes to disconnect so there will be little time to use shore power,

Do cruise ships in Victoria plug into shore power?

No. Although in discussion for over a decade, there is no shore power at Victoria Cruise Port Terminal.

In April 2023, it was announced that the Provincial government will allocate $9 Million toward shore power at Ogden Point. The timetable for installation is ‘years away’ and the port operator, the Greater Victoria Harbour Authority (GVHA), has stated the intent to seek significant funding from the Government of Canada. Two shore power hookups are proposed, although there are often 3 and 4 cruise ships docking simultaneously. A mandated use/payment for the infrastructure was not mentioned.

It is unclear how much the cruise industry will contribute to shore power in Victoria. At the July 2022 CRD Board meeting, the former CEO of the GVHA announced that a significant member of the cruise line industry had committed support for the payment structure on how cruise lines will pay for the installation of shore power. No details have been released.

Fair Sailing advocates for cruise industry-funded installation (no use of taxpayer money) and maintenance of shore power in Victoria with mandatory use or infrastructure contribution fees by all ships, as data from other ports show that many ships do not connect to shore power, even when it is available.

Do ships in Victoria keep engines running all the time?

As all cruise ships offer hotel amenities 24/7, power may be reduced while in port, but must be sufficient to run restaurants and kitchens, entertainment, laundry, lights and all aspects of hotel services. In fact, when cruise ships dock in a port, it is called “hoteling.” Typically, the ships use auxiliary engines and generators in port, either with low sulphur marine gas fuel or heavy fuel in combination with scrubbers. Scrubber wash water discharges can be harmful to the aquatic environment.

While the use of scrubbers is permitted, Environment and Climate Change Canada funded an analysis by the International Council on Clean Transportation in 2020. The report recommended an immediate prohibition on using scrubbers and warned of negative effects of scrubber discharges on marine life.

What about Greenhouse Gas Emissions?

According to a study commissioned by the Greater Victoria Harbour Authority society, GHG emissions from terminal activities accounted for 3.3% of the City’s annual GHG emissions in 2018. Cruise emissions accounted for 96.3% of all emissions at the Victoria Cruise Ship Terminal.

From 2010 to 2018, Victoria Cruise Ship Terminal GHG emissions increased 19.1%. Over the last eight years, the total hoteling time at the terminal, when ships are docked but running generators, has doubled.

When three cruise ships are in port, their hourly GHG emission rate is equivalent to 45% of the City of Victoria’s hourly emission rate, based on Synergy’s hourly GHG emission rate.

In addition, cruise tourism generates GHG emissions from taxis, highway style buses (which idle for long periods at the site), large industrial waste trucks and landfilling.

What can the City of Victoria do to address cruise ship emissions in Victoria?

The City of Victoria zoning for Odgen Point is M-2, Light Industrial: ‘The following uses are permitted, provided they are not noxious or offensive to the immediate neighbourhood or the general public by reason of emitting odours, dust, smoke, gas, noise, effluent or hazard; (g) docks, wharves and piers.’      

The City of Victoria has not enforced the zoning to ensure that no noxious or offensive odours, smoke, gas or noise be emitted into the neighbourhood from cruise ships.