Parliamentary Commissioner for the Environment - Te Kaitiaki Taiao a Te Whare Pāremata

Commissioner's preface

Cruising on luxurious ships, being indulged and indulgent, is a rapidly growing pursuit worldwide. It is a sector of the tourism industry that is likely to continue to expand; a product of affluence, an ageing population in many nations, and the relative security and safety of holidaying on a cruise ship.

In the New Zealand context, cruise ships allow access to some of the world's grandest scenery and wild places: Fiordland and the sub-Antarctic Islands. Such jewels are also environmentally fragile with little scope for absorbing major pollution events or cumulative impacts. Thus a precautionary approach could well be New Zealand's best response to managing potential environmental effects of cruise ships.

The large increase in cruises and the number of ships involved in recent years led to my decision to investigate New Zealand's management of actual and potential environmental impacts. It was a decision based on the very simple principle that, given the economic value of the cruising business and the intrinsic values of the places visited, it is better to be safe than sorry. My team and I trust that this contribution to the understanding of international and local cruise ship management systems will contribute to ensuring that environmental risks are further reduced and visitor experiences protected.

Introduction

In July 2001, the Minister of Tourism released a press statement about the economic benefits of the increasing number of cruise ships visiting New Zealand. The Minister stated that the Government intended to work closely with the private sector to ensure the sustainable growth of the cruise ship industry. On the basis of experience gained during the PCE's 1997 study of the environmental impacts of tourism, the press statement raised concerns with the PCE about the potential environmental effects associated with cruise ships, existing controls to avoid, remedy or mitigate these effects, and the adequacy of these controls. These concerns, along with the large increase in cruises visiting New Zealand in recent years, led to our decision to investigate and provide information on these matters.

The report discusses sources of environmental risk from cruise ships, including waste discharges to air and water, biosecurity risks, and risks from maritime accidents. The report then reviews the legislative, regulatory and non-regulatory mechanisms relating to cruise ships, including international conventions and industry codes of practice. It also discusses overseas and local examples of mechanisms for identifying and resolving adverse environmental effects associated with cruise ships.

Findings & recommendations

• There currently appear to be no significant environmental effects due to cruise ships in New Zealand waters. This is probably because there is currently a low frequency of visits by cruise ships, but might also be because monitoring is difficult to carry out. However, numbers are increasing, so there is a need to be aware of the environmental risks and how these can be addressed.
• There is potential for impacts on sensitive environments. These have been well managed by Environment Southland for Fiordland, through their deed of agreement with Cruise New Zealand. However, it could be argued that marine biosecurity is compromised. While this risk is not specific to cruise ships, they do visit areas not normally visited by other ships. There is also a risk from maritime accidents.
• There is room for improvement. More national guidance for managing the environmental effects of cruise ships could be provided by the Ministry for the Environment and the Maritime Safety Authority. Regional coastal plans could be modified to include additional measures, perhaps some from the Environment Southland deed of agreement if appropriate. More monitoring of cruise ship discharges to air and water may be needed to ensure they are meeting the required standards. The need to improve controls for cruise ship air emissions should be considered. Also, current regulation allows ships to discharge untreated sewage 500 metres offshore. Although cruise ships have sewage treatment facilities on-board, their effectiveness relies on their proper operation. Is the 500-metre distance adequate for large ships?

Recommendation to the Minister for the Environment

Review and consider revising Regulation 11 of the Resource Management (Marine Pollution) Regulations 1998, to assess the adequacy of permitted sewage discharge distances for ships that are 400 gross tonnage and over, or under 400 gross tonnage and certified to carry more than 15 persons (as set out in Regulation 2 of MARPOL Annex IV).

Note: The Commissioner acknowledges that the Resource Management (Marine Pollution) Regulations 1998 provide regional councils with a management tool to control the cumulative effect of untreated sewage discharge from small recreational boats close to New Zealand's coastline. However, as the Regulations apply to all vessels, they allow large ships to discharge untreated sewage 500 metres from MHWS.

Recommendation to Regional Councils

If they have not already done so, to assess the environmental risks from cruise ships in their region, and initiate or strengthen any systems required to address these risks.

Note: The approach taken by Environment Southland is a good example of how regional councils can address the potential environmental impacts of cruise ship visits, as well as recover some of the cost of maintaining the special qualities of the region that make it attractive to visitors.