Transport Publication - TP 15039 E (2010)
1. Line of Control
Proposal: Tankers entering Placentia Bay are presently permitted to travel no further north than 47°N unless arrangements have been made for pilotage. It is now proposed to move the line of control further south, to approximately 46.5°N, essentially a line across the mouth of Placentia Bay.
The purpose of the “line of control” is to ensure incoming tankers remain in waters that are relatively unrestricted, uncongested, and free of navigational hazards until such time as a pilot is available and the weather and sea conditions are such that the incoming journey can be safely completed. If a pilot is unavailable, or the weather is severe, incoming tankers essentially remain in a holding pattern south of the line of control until arrangements for pilotage are established. Note that there are no rigorous criteria for allowing tanker passage, rather, it is at the discretion of the duty pilot based on wind speed and swell direction and height. The generally agreed limit is 3-metre sea, and 35 knots wind.
The original line of control was to a position near Red Island (approximately 47.5°N), which is where the pilots board incoming vessels. In 2004 the line was moved south to 47°N. The thinking was that this would allow vessels more room for maneuvering and a greater factor for safety in inclement weather or should a vessel become disabled.
The current proposal would extend this line of control even further south, essentially to the mouth of Placentia Bay. This change could likely be implemented without much difficulty as it does not add an unreasonable burden on industry and would seem to offer some potential benefits. There are no known downsides to the proposal, but this should be confirmed through discussions with the Placentia Bay Traffic Committee. Note that this will not change the location for the pilot actually boarding the vessel; this will remain at Red Island.
Finally, it should be noted that the “line of control” and system of traffic lanes are not mandatory, however, there is near full compliance among tankers transiting the Bay. One container ship operator in particular does not comply, and this issue is addressed later in Item #6, Enforcement of Controls.
Action required:
TC agrees with this recommendation and will move line of control to the mouth of Placentia Bay.
2. Vessel Traffic Station in Argentia
Proposal: A vessel traffic station should be established in Argentia for monitoring and emergency response.
Monitoring: There is currently a VTS station in Argentia.
Emergency Response: The proposal to have an emergency response centre in Argentia is discussed in detail in Item 11, Location of Response Equipment.
Action required:
The Argentia waterway defined under the Placentia Bay VTS Zone. MCTS Centre Placentia regulates vessel traffic within or intending to enter Placentia Bay VTS Zone. Vessel movements are monitored through direct VHS radio communications, shore-based radar equipment and the Automated Identification System ( AIS ) which will be operational in March 2010. Currently, action is taken when appropriate to ensure a safe and orderly flow of marine traffic.
3. Vessel Location Instrumentation
Proposal: All vessels should be equipped with at least minimal technical instruments for location and communication.
All tankers transiting Placentia Bay presently use Automatic Identification Systems ( AIS ), according to information from Atlantic Pilotage Authority pilots. This has in fact been an international requirement under International Maritime Organization ( IMO ) regulations: for tankers since 2003, and for all vessels greater than 300 tonnes engaged in international voyages since 2002.
Public awareness should include an understanding of the traffic lane system in the Bay, and that radio equipment should be basic equipment for all fishing vessels working in and around the lanes. This will allow notification of tanker movements to fishing vessels that are in the area.
Action required:
CCG to continue to provide traffic and waterway information via VHF radio frequencies to announce tanker transits within the Bay.
TC and CCG to include in a public information document: description of traffic lane system, importance of fishing vessels being equipped with radio equipment, and specification of radio channels that are used for announcements and warnings.
4. Use of Double Hulls
Proposal: All tank-vessels transiting Placentia Bay should be double-hull rather than single-hull.
The issue of single-hull versus double-hulls for tank vessels is governed by international agreement, of which Canada is a party, under the International Maritime Organization ( IMO ). In 1992, regulations were established to phase out the use of single-hull tankers; essentially, all tankers would have to be converted or taken out of service when they reached a certain age (up to 30 years old). The measure was phased in over a number of years because shipyard capacity is limited and it was felt that it would be impossible to convert all single-hulled tankers to double hulls without causing immense disruption to world trade and industry.
Following the Erika incident off France in 1999, an accelerated phase-out program was adopted. The new stricter timetable has different schedules for different classes of vessels: for the large crude-oil tankers transiting Placentia Bay the phase-out date was brought forward from 2015 to 2010. For smaller tankers, the phase-in period ranges up to the end of 2014 depending on the size and age of the vessel. During the phase-in period, all single-hull tankers are subject to an enhanced inspection program according to guidelines developed by the IMO .
As to the traffic in Placentia Bay, tankers using the IMTT facility have always been double-hulled as a matter of IMTT policy. The Come-By-Chance refinery has, since 2003, had approximately 25 single-hull vessels visit out of a total of 2892 vessels.
Action required:
TC will continue to perform regular inspections to ensure compliance with the regulated phase-in of double-hull tankers.
5. Aerial Surveillance Program
Proposal: Transport Canada’s aerial surveillance of vessels and oil handling facilities is commended, and should be continued and increased.
The National Aerial Surveillance Program ( NASP ) is a viable and highly regarded program, initiated in large part by the series of bird kills from mystery spills off the south coast of Newfoundland in the 1990’s.
As the lead department responsible for preventing pollution from ships, TC has enhanced the NASP by increasing the amount of surveillance hours over all waters under Canadian jurisdiction, including the Arctic, and by improving the surveillance capability on each patrol aircraft. By increasing the productivity of the NASP , TC is sending a strong message to the international marine community that our marine environment is a precious and valuable resource. TC will continue to make significant efforts to reduce the adverse effects of shipping on our oceans.
Fiscal Year ( FY ) 2007/08 was a record year in terms of hours flown for the NASP , as 2,578 hours were conducted. In Newfoundland alone, 794 hours of patrol were recorded, a 70% increase over 2006/07 and a more than doubling compared with 2005/06. The number of vessels overflown had a similar increase: in 2007/08 a total of 2082 vessels were sighted, also more than doubling the figures of those captured 2005/06.
During 2007/08, approximately 13,038 vessels were inspected (visually or by remote sensors), and 153 marine pollution incidents were detected. Of the 153 marine pollution incidents detected, 138 were classified as mystery spills, where no known source could be identified. The 15 remaining spills were reported as having originated from a ship. It was estimated that the NASP crews detected approximately 3130 litres of oil on the ocean surface during the 2,578 hours of patrol. The increase in the number of spills detected last year was likely attributed to the increase in flying hours and better capabilities of detecting smaller quantities of spills. For example, the flying hours in 2007/08 were almost double those flown in previous years. The total volume of oil spills detected showed no increase over previous years; however, statistics indicate that the increased number of sightings was related to increased detection of small spills.
Overall, TC believes the program is acting as a deterrent as the number of offshore spills and the numbers of oiled bird sightings are declining.
The NASP continues to be a viable program, and has a budgetary commitment that has increased from $1.8 M to approximately $6 M for FY 2011/12.
Action required:
TC continues to support the NASP and refine it where needed in a continued effort to reduce illegal discharges to the greatest extent possible.
6. Enforcement of Controls
Proposal: Established controls within Placentia Bay should be stringently enforced.
As noted in Item #1, Line of Control, the traffic scheme in the Bay is not mandatory, however, there is near full compliance among tankers. One particular container vessel company does not respect the voluntary traffic scheme in Placentia Bay. As a result, there is a perceived increased risk to the vessel itself, as well as an increased navigational risk to fishing vessels in the area.
Aside from this one company, compliance with the traffic controls within the Bay has been exceptional.
It is recommended that this issue be raised with the offending company directly to encourage compliance.
Action required:
TC Regional staff has addressed this concern directly with the company in question and they have agreed to respect the traffic scheme.
TC continues to monitor the situation.
7. Additional Radar Monitoring
Proposal: Radar monitoring capabilities should be established from Burin west.
Presently, radar coverage extends to all portions of Placentia Bay through which tanker traffic passes. Three stations along the eastern shore of Placentia Bay provide radar coverage: at Cuslet (near Cape St. Mary’s), Pearce Peak (near Argentia), and Arnold’s Cove. Radar coverage extends across the entire width of the Bay from Come By Chance to Red Island (approximately the northern half of Placentia Bay) and to mid-way across the Bay south of Red Island. Coverage includes the entirety of the traffic lanes from Cape St. Mary’s at the entrance to Placentia Bay, northwards to Come By Chance.
This proposal suggests that the radar coverage should be extended westward to cover the western shore in the southern half of Placentia Bay, i.e., in the vicinity of St. Lawrence, Burin, and Marystown.
However, it should be noted that this area will be covered by the new Automatic Identification System ( AIS ). This new vessel movement monitoring tool should provide an enhanced common operating picture for the area. This proposal will be revisited if traffic were to increase as a result of industrial developments in Marystown or elsewhere in the vicinity and the AIS surveillance tool proves to be inadequate.
Action required:
CCG will monitor developments in the area and will revisit the issue if warranted by an increase in traffic.
8. Pilotage for Long Harbour
Proposal: Introduce pilotage for the part of the bay extending to Long Harbour.
Presently, compulsory piloting exists only for vessels transiting the waters north of Red Island, approximately 47.5°N (see Item #1, Line of Control). With the potential for increased traffic in and around Long Harbour related to the Vale Inco ( VINL ) nickel-processing development, a plan for compulsory pilotage area has been formulated in conjunction with the Atlantic Pilotage Authority ( APA ).
Action required:
Currently, commercial vessels calling at Long Harbour request pilots, although it is not compulsory for them to do so.
The Atlantic Pilotage Authority Regulations have been amended and will come into force the end of April. The amendment to the Placentia Bay Compulsory Pilotage Area will ensure that the vessels calling at the proposed nickel-receiving terminal at Long Harbour, Placentia Bay, Newfoundland and Labrador, will have pilots on board.
9. Escort and Rescue Tugs
Proposal: An ocean-going escort and rescue tug (with at least 10,000 horse power) should be available year round to respond in the event of a tanker incident inside Placentia Bay or within 30 to 40 miles of the approach to the Bay.
The present situation is that a tug escort is provided for all laden tankers bound for the Come-By-Chance Refinery or the Whiffen Head Transshipment Terminal ( IMTT ). (For the Terminal, a tug escort is also provided for the outbound transit, the tug remaining with the vessel until it clears Red Island Shoals, 47°06’N.) It should be noted that the tug does not simply follow in the vicinity of the tanker; the tug is actively secured to the tanker while it is underway.
To provide this capability, there are presently four tugs stationed at the head of Placentia Bay. They each have a rating of 5000 HP , and are on continuous stand-by 24 hours a day, seven days a week. When not actively escorting a tanker they would be available for emergency operations within the Bay.
As noted previously, tankers do not pass the line of control until arrangements have been made for a pilot, which means that the weather and sea conditions are within the limits for safe operation of the tanker and of the tug escort.
The use of escort tugs within Placentia Bay is a good example of good industry practice not requiring additional regulation. The close proximity of tugs at the head of Placentia Bay and their horsepower capabilities are currently sufficient to deal with emergencies within the Bay.
Action required:
No further action required.