Clean Ships, Clean Ports, Clean Oceans: Controlling Garbage and Plastic Wastes at Sea (1995)
Chapter: Analysis of Interventions
Another option would be to revisit the decision to abandon use of on-board incinerators. The Navy's rejection of incineration has been attributed to concerns about crew safety with respect to use of older incinerators, shipboard space and weight constraints that may preclude installation of newer models, and possible air pollution. However, to the committee' s knowledge the decision was not based on rigorous scientific and engineering evaluations. Such studies might be useful in view of the Navy's need for additional compliance strategies, the successful use of incinerators on large passenger cruise ships (described later in this chapter and in Chapter 5), and the availability of international standards for on-board incinerators (provided at the end of Appendix B).
Although the mission of protecting national security may appear to constrain the Navy's capability to attain full compliance with the MPPRCA, the same concerns are also an argument for accelerating compliance efforts. The Navy continues to discharge untreated garbage, including plastics, overboard, due to shortfalls in on-board storage space and treatment equipment. Such discharges create waste "signatures" of vessel activity, with undesirable consequences15 To the extent that ships can reduce generation of garbage and treat waste on board, overboard disposal and reliance on shore facilities can be minimized16, with corresponding benefits to security.
Analysis of Interventions
Table 4-7 suggests possible interventions to improve Annex V implementation in the Navy fleet. Different interventions may be called for depending on the size and characteristics of a particular ship.
The Navy already is pursuing a number of technological and organizational strategies, such as modification of its supply system. One option not being pursued is on-board incineration, which could be reconsidered and evaluated through rigorous scientific and engineering tests. The Navy also could consider installing its pulpers and shredders for use where permitted, to make garbage discharges more benign. Compactors may be another option. Organizational interventions include reporting inadequate reception facilities encountered at commercial or foreign ports.
Education may provide means of leveraging the success achieved to date. For instance, Navy personnel could be encouraged to exchange information on
TABLE 4-7 Applying the Hazard Evolution and Intervention Model to U.S. Navy Combatant Surface Vessels and Their Home Ports
|
Hazard Evolution Model |
Human Behavior that Encourages Generating Garbage |
On-board Generation of Garbage |
|
Intervention Model |
Modify Behavior that Encourages Generating Garbage |
Reduce Garbage Generation During Voyage |
|
Technological |
Use substitutes (where available) for plastic materials |
Continue converting supply system to limit plastics brought on board. |
|
Organizational and Operational |
Demonstrate management commitment to Annex V compliance Establish shipboard regime for sorting garbage at point of generation. |
Review shipboard activities to identify opportunities to reduce waste. Sort garbage at point regime for sorting of generation. Use garbage at point of only vendors generation. committed to packaging and storage techniques that minimize waste. |
|
Educational (Target Population/ Content) |
Continue to educate shore personnel in how to modify the supply chain. The Navy has educated the Congress through fleet analyses; Congress has responded by showing serious commitment and establishing benchmarks. |
Compliance by officers and crews is mandated; training is now needed in compliance strategies (both interim and permanent). Help shore support personnel develop implementation capabilities; monitor costs. |
|
Hazard Evolution Model |
Breakdown in Compliance |
Discharge of Garbage into Sea |
Exposure to Discharged Garbage |
|
Intervention Model |
Prevent Breakdown in Compliance |
Block Discharge of Garbage into Sea |
Block Exposure to Discharged Garbage |
|
Technological |
Keep shipboard systems well maintained. |
Develop and install appropriate on-board garbage treatment equipment. |
Install pulpers and shredders to block exposure to intact garbage. |
|
Organizational and Operational |
Remind crew of Annex V regulations with posters and placards in ships. Report inadequate reception facilities. |
Follow interim plastic discharge restrictions, based on limits of prominent places on habitability (three days for food). |
Use pulpers and shredders outside special areas, even shipboard hygiene and where not required. |
|
Educational (Target Population/ Content) |
|
Establish system for exchange of information on problems that encourage continued improper discharges. Establish recycling programs for items (cans) otherwise discharged overboard. |
|
|
Hazard Evolution Model |
Human Behavior that Encourages Generating Garbage |
On-board Generation of Garbage |
|
Intervention Model |
Modify Behavior that Encourages Generating Garbage |
Reduce Garbage Generation During Voyage |
|
Regulatory |
|
Restrict materials allowed on board (this may affect ship habitability). |
|
Economic (Market Forces) |
Solicit proposals for development of alternative packaging materials, such as edible packagings (now under study). |
Off-load materials before departing home port (it may cost more to discard items later into a reception facility at another port). Require waste minimization in contracts and purchase orders and give preference to those with least waste. |
implementation problems and solutions. In addition, vessel crews could be educated about the benefits of recycling even those items, such as cans, now legally discharged overboard.
Enforcement alternatives include the assessment of significant internal penalties against personnel who violate Annex V. Economic options, in addition to the present practice of giving crews any proceeds from recycling, include marketing the metal and glass wastes now collected and separated on board.
