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Anderson, Caryn --- "Maintaining the Balance between Environmental Protection & Economic Development - The Port of Townsville" [2000] MarStudies 23; (2000) 114 Maritime Studies 1

• Maintaining the Balance between Environmental Protection & Economic Development - The Port of Townsville
• Introduction
• The Port Environment and its Management
• The Port of Townsville
• Maritime Studies September-October 2000
• Where to From Here?

Maintaining the Balance between Environmental Protection & Economic Development - The Port of Townsville^[1]

Caryn Anderson B.App.Sc(Hons) MEIA^[2]

Introduction

Environmental issues have become a prominent concern for all aspects of our business operations. The port environment is no exception. In some cases however the port environment may be under higher demands than most other industrial activities.

Environmental quality is declining at a global scale and as such decline rapidly occurs, governments and individuals alike are forced to respond to the overwhelming public demand for economic development which does not compromise the total quality of life. Additionally, as our understanding of the environmental pressures of modern life is further improved, we must acknowledge the consequences of our actions and, manage such actions to minimise the potential effects.

In Australia, like many parts of the world, the movement of cargoes by water-based transport is a key component of the national and regional economies. Ports play a central role in the transport logistics chain, providing a vital link between the land and sea transport modes, focusing the world’s shipping trade and acting to promote regional and national economies. Ports must also play a vital role in maintaining the balance between environmental protection and economic development.

This paper will highlight the range of environmental issues relevant to ports and identify some potential management solutions that have been applied in Townsville. Additionally, in keeping with the theme of this year’s Workshop on the Prevention of Marine Pollution in the Asia Pacific Region, the need to further promote real and practical solutions and outcomes which may result from cooperative participation of industry, government and the wider community will be discussed.

The Port Environment and its Management

Before addressing the application of management systems to ports, it is important to understand the complexities associated with port operations and the port environment generally. The port environment is a complex one, ports represent a unique industry at the interface of the land and sea and as such, there are a range of complex management principles that must be applied to their operations and development.

Port authorities alone do not constitute a port. The port environment is the culmination of all shipping, transport and storage activities and the provision of port services. Activities undertaken within a port range from the storage of bulk commodities such as fuel and mineral concentrates through to the movement of cargo across the wharf and the provision of port services such as waste management, water, etc. In light of the complexities of port operations, port authorities, as the managing and coordinating agency, must remain sensitive to the changing and sometimes conflicting needs of port clients and operators.

The environmental issues requiring address within a port are a direct result of the nature and type of activities undertaken, the sensitivity of the surrounding environment and the size of the operations.

The types of environmental issues that must be addressed within a port environment include, for example:

• Air Quality

• Pollution Control

• Coastal Protection

• Land Management

• Sediment Quality

• Environmental Awareness

• Landscaping & Aesthetics

• Marine Pollution Response

• Stormwater Management

• Dredging & Dredged Material Disposal

• Water Quality

• Noise Pollution

• Waste Management

• Port Planning & Development Issues

• Exotic Species Management

Ports have historically been centrally located in developing coastal towns to service the transport needs of the region. Whilst this central location proved efficient during a port’s establishment years, the very location of a port today is a source of potential concern. As ports have developed, so too have the coastal towns that they support and, in association with this development there has been a change in the land use demands placed on our coastal environments. As such, the competition for space between urban expansion and port development continues.

In light of their very location and the role they play as a catalyst for growth, ports must adopt a proactive role in environmental protection and must work towards achieving that fragile balance between economic development and environmental quality.

The role of ports to the regional and national economy is not well understood within the community and government. Typically, governmental response to these increased environmental pressures, in the lack of understanding for operational issues associated with ports, is to impose further restrictions on operations without fully understanding the current safeguards which are being adopted to minimise the potential environmental effects.

The physical location of ports means that ports are often located at the base of a wider catchment and act as a sink for contamination that may result from catchment activities (i.e. through stormwater runoff etc). These contaminants often settle out of suspension and despite a port’s best endeavours to reduce port sourced contamination, there will always remain a problem with regard to potential contaminated sediments derived from wider catchment activities.

Port management must also take into account the sensitivity of adjacent urban land uses, whilst also considering the sensitivity of the adjacent natural environments. Ports tend to focus shipping activity through sensitive marine environments to the port, adding to the pressures already placed on our natural marine environments.

Increasingly as the world’s population demands action in response to environmental degradation, governments are placed under pressure to respond through the introduction of legislative restrictions on activities and operations. These requirements have often been developed in an ad hoc fashion and often represent overlapping requirements which may not always reflect complimentary requirements.

Ports represent a potentially significant environmental risk due to their location and also as a result of the activities undertaken. The management of such a diverse range of issues is further complicated when you consider the variety of people operating within the port environment. The port community is comprised of both permanent and temporary operators, international representatives, ships agents, stevedores, port clients, tugs, construction contractors, maintenance crews, government agencies and others. With such a broad spectrum of representatives, it is important to ensure that the environmental management objectives of the port are clearly defined and well communicated to the wider port community.

The focus over the past decade has been on the development of administrative systems through which to manage environmental practices. Such an approach certainly provides benefits to the overall management of a port environment, for example environmental management systems may:–

• Allow port management to coordinate the complex management practices occurring within the port environment.

• Allow an organisation to demonstrate its commitment to sound environmental management practices;

• Minimise negative impacts of port operations on the receiving environment;

• Improve public relations;

• Provide potential competitive advantages through sound management principles and by ensuring that potential clients are fully aware of their environmental responsibilities;

• Provide a means through which to ensure legislative compliance;

• Provide benefits through improved safety and streamlining of port operations.

These management principles are further discussed below with specific reference to their application to the Port of Townsville.

The Port of Townsville

The Port of Townsville is located within Cleveland Bay, Townsville. The location of the port poses unique operating requirements on port facilities due to the sensitivity of both the social and natural receiving environments. Cleveland Bay is located within the Great Barrier Reef World Heritage Area and has recently been designated as a dugong protected area. These issues of environmental sensitivity, combined with the rapid expansion and development of the Port of Townsville over the past decade has meant that port operations and development need to be undertaken with due regard for the environment.

Townsville Port Authority in recognising both the environmental and management complexities associated with port operations has adopted a pro-active approach to environmental management at the Port of Townsville. The Authority’s goal in this area is to ensure that all Port operations and development activities are undertaken in an environmentally sustainable manner.

In light of these potentially restrictive circumstances, the Townsville Port Authority has developed a cooperative system of environmental management. It needs to be recognised that a port authority alone does not constitute a port and that there are a variety of participants in port operations and, that all decisions made throughout the port have the potential to impact in some way on the receiving environment. As such, the Authority, in cooperation with port users has developed an integrated cooperative system of environmental management.

In essence, the Port of Townsville may be considered a small concentrated catchment of industrial activities and as such, must be managed in a cooperative manner to ensure potential impacts on the receiving environment are mitigated.

Environmental responsibility of a port authority does not rest solely with discharges from ships. A port authority is also responsible (whether real or perceived) for the quality of the entire port environment, the quality of life of neighbouring residents and, to a certain extent, the environmental performance of port users. In addition, port authorities are also required to undertake their business with due regard to all environmental legislation, regulations and agreements stemming from local through to international arrangements. This level of environmental protection is best achieved through integrated and cooperative means.

To achieve a fully integrated and cooperative approach to environmental protection, the Townsville Port Authority first identified the desired outcomes for various aspects of the port environment. These outcomes were further defined by the wider port community and developed into the Port of Townsville Environmental Management Strategy (EMS).

It has now been three years since the implementation of the Strategy and a review has recently been undertaken. This paper will summarise the results of this review, highlighting the areas of measured improvements as a result of the initiatives developed whilst also outlining areas for improvement.

The Environmental Management Strategy has been successful in focusing the attentions of the wider port community towards the overall port environmental management objectives. This has been achieved through a focus on raising the level of environmental awareness throughout the wider port community through initiatives such as environmental seminars, the development of the Port of Townsville Environmental Working Group and the production of Ship to Shore, an environmental awareness newsletter.

The benefits of this method of management have resulted in measured improvements in environmental performance throughout the port (refer Table 1), for example:

• A measured reduction in the level of fugitive dust emissions;

• Measurable improvements in the quality of marine sediments;

• A reduction in the number of environmental incidents reported throughout the port.

Whilst there have been a number of positive outcomes from the implementation of the Port Environmental Management Strategy there remain a number of areas where further management effort is required. For example, the EMS identified a number of outcomes that have not yet been achieved or are unable to be measured. The recent review of environmental performance has enabled the Authority to identify these areas of concern and to develop management initiatives that address these issues. Such recommendations include for example:–

• The development of a long-term receiving water quality monitoring program.

• The development of a long-term stormwater discharge monitoring program to assess changes in stormwater quality over time.

• Review the non-compliance incident reporting system and amend as necessary.

• Investigate potential strategies that would enable the Authority to reduce current maintenance dredging requirements.

• Further investigate potential opportunities to retrofit existing facilities to incorporate the principles of ‘world’s best practice’.

• The development of a waste disposal monitoring program in an effort to assess the volumes of wastes being generated by port operations and allow opportunities for reducing such wastes.

• Incorporation of environmental awareness into the port-wide induction program.

In considering the effort and resources required in the development of an effective environmental management system, it is important at the outset to focus on what management objectives are trying to be achieved. For example, it was unrealistic in light of the current location of the Port of Townsville to expect that complaints from neighbouring residents would be completely eliminated. It is important rather, to focus on those areas where realistic objectives can be set and then, to build on those objectives over time. These objectives need to be supported by appropriate monitoring programs or other forms of measurement and evaluation to allow the effectiveness of the management initiatives to be assessed. There has been a range of management initiatives adopted under the Port of Townsville EMS, which have not been appropriately reflected in the environmental performance of the port as a result of the qualitative nature of the objective set or the lack of measurement/monitoring programs to assess the performance.

It is important also to limit the use of broad motherhood statements that mean very little in terms of practical implementation. When dealing with such a complex physical, social and commercial environment as that of a port, it is important to remain focused towards the development of real management solutions that will compliment current operations. Particularly with respect to improved efficiencies but, also with respect to the environmental performance objectives set by the wider port community.

The Port of Townsville EMS has demonstrated to the wider port community that real results in environmental performance can be achieved by working together and implementing sound

Maritime Studies September-October 2000

Table 1: Port of Townsville Environmental Management Strategy & Environmental Performance

environmental management practices as a part of day-to-day operations. This change in the environmental ethic of the port community is a direct result of increases in the level of environmental awareness throughout the Port. Additionally, many of the performance outcomes achieved at the Port of Townsville are a direct result of simplifying the management objectives to be achieved and by implementing management strategies into day-to-day port operations. It needs to be recognised that effective environmental management is really a matter of good housekeeping.

Despite one’s best endeavours however, there remain restrictions to effective management of the port environment. These may be found both internal and external to the port itself. Within the port, there are a range of restrictions that, whilst potentially limiting the efficiency of long term management objectives, they should not be viewed as insurmountable obstacles. For example, historic infrastructure constraints, conflicting land use demands and the complexities of the port environment may influence the effectiveness of the environmental management regime applied. There are however a range of external factors which may also restrict effective port management to protect the environment. Such factors include for example:–

• Complex jurisdictional requirements and potentially conflicting demands in multi-jurisdictional areas.

• Ineffective transport links to the port precinct.

• Planning which does not consider the long term planning objectives of the port (for example; high density residential development adjacent to port operations).

Despite improvements in the management strategies that may be applied to port planning, development and operations, government initiatives may also be modified in an effort to assist port management to protect the environment.

Where to From Here?

So, how can workshops such as this assist in port management? Port and general industry management is focused towards the achievement of real outcomes which improve efficiencies in operations but which also ensure that those operations have minimal impact on the receiving environment. After all, it is in industry’s best interest to work towards development that is sustainable, not only with respect to the environment, but also socially and economically.

Many of the lessons learnt from the implementation of the Port of Townsville Environmental Management Strategy can also be applied to the development of international and national initiatives which aim to address the problems of marine pollution in complex working environments where there are often conflicting demands.

There are a lot of areas where governments are talking big but taking little action. This situation should be addressed in an effort to ensure that real management solutions result from the time and effort being devoted to the discussions. For example, whilst generic policy statements are a suitable starting point, the issues need to be developed even further so that the generic policy statements appropriately reflect potential management solutions which may be implemented to achieve the identified objectives.

Ports are a key contributor to the economic use of our marine and coastal environments, they contribute significantly to the regional and national economies and they focus the movements of the shipping industry. As our coastal towns and cities continue to develop so too will ports, along with the industries and services they support. The development of ports in cooperation with regional development should not be viewed as an environmental threat. Rather, it should be recognised that ports and the industries they support are responsible managers. The operating requirements applied through legislation and other means should therefore encourage and build on current management techniques rather than complicate an already complex environment. Inappropriate or unnecessary regulatory restrictions have the potential to constrain port operations and development, these constraints will ultimately be passed on to the local and regional economies in terms of stifled growth, lost employment opportunities etc.

Areas where further action is required for example would include land-sourced marine pollution. The Port and City of Townsville were established over 100 years ago and they have continued to develop in unison, each building on the growth and development of the other. However, over recent years, as a community we have become particularly aware of potential point sources of pollution to the environment. As such, the response has been to regulate and control activities that may potentially result in marine pollution. In response to these controls, a range of management initiatives has been implemented in Townsville in an effort to improve the quality of marine sediments within the harbour. These initiatives have included retrofitting existing facilities, designing purpose-built facilities, stormwater management initiatives and modifying work practices and procedures. To date, these initiatives have been rewarded through a measurable reduction in the concentration of contaminants within the port sediments. However, without associated improvements in wider catchment management, particularly in relation to stormwater runoff, the efforts of the wider port community will be compromised from the input of contaminants to the port environment by wider, unregulated catchment activities. In the long-term, if left unmanaged, these inputs may potentially restrict dredging and dredge material disposal methodologies.

Additionally, as we seek to raise the general level of environmental awareness amongst industry and the wider community, we need also to highlight the restrictions under which industry operates. Operational controls imposed on industry need to reflect real management requirements and opportunities rather than a duplication of management principles at the various levels of government. Often, as you move further away from the source of development of these management controls, they become less relevant to the operational requirements of industry and may sometimes include conflicting requirements. It also needs to be emphasised that operating requirements will vary depending on the relevant sensitivities of the social and natural environments in which a port operates. As such, legislative and operational controls, permitting systems and guidelines need to remain reflective of the variances in operational activities. They need to remain flexible to enable their application to various situations, whilst also ensuring that environmental and development objectives may be achieved.

A port’s growth, development and efficient operations is potentially limited by its infrastructure support, this includes road, rail, land and sea. These access issues are particularly relevant when you consider the port access channels and the heavily regulated activity of dredging. Governments need to take an active role in maintaining efficient access links with port operations particularly with respect to strategic planning and support mechanisms. Dredging works to maintain port access by sea are often complex and costly and, these maintenance operations often account for a significant component of a port’s ongoing operational cost. The management regimes applied to dredging and dredge material disposal therefore need to remain flexible to accommodate changing port needs. These management regimes need to be developed in cooperation with ports and, better communicated to the general public. For example, maintenance dredge material derived from port operations results from catchment activities that involve the wider community not only the port. Additionally, further consideration should be given to the concept that material dredged from port access channels is not necessarily a waste product but rather involves the relocation of material within a natural system.

Generic policy statements generate uncertainty in industry, particularly in their application at various levels. The application of the Waste Assessment Framework is one example where, as the application of the framework becomes further removed from its source of development, it becomes less flexible and less considerate of the issues faced by industry. These guidance documents need to emphasise the importance of flexibility in their application in the early stages of development and need to be accompanied by appropriate implementation strategies.

Without practical and efficient implementation strategies, industry and ports in particular, are reliant on the government agencies at the time to interpret the regulatory controls. Such interpretations will vary depending on the level of understanding and the social and political environment. This type of situation leads to uncertainty and unnecessary delays in development approvals and operational management initiatives.

Introduced marine pest management for example, needs to remain focused to the various issues of the problem and the operating restrictions of all possible vectors. There needs to be clear government leadership and communication with ports in regard to introduced marine pests. Management initiatives need to be implemented in a timely fashion, limiting the uncertainties associated with port operations, and they need to be integrated into current management arrangements rather than as an additional operating requirement.

It’s all well and good to have meetings and workshops to discuss the range of issues relevant to marine pollution but, there is little value in such meetings for port management until there are real actions and management solutions to result. Building on the experiences learnt from the implementation of the Port of Townsville Environmental Management Strategy, it is recommended that consideration be given to the following:–

• When developing legislation, it is important to consider the enforcement and implementation strategies to be adopted at the outset because, these strategies will dictate to a certain extent how the legislation is structured and ultimately how effective that legislation will be.

• Industry needs real management solutions to effectively maintain the balance between environmental protection and economic development – not more generic policy statements.

• Government research and management initiatives need to be better focused towards management outcomes.

• Legislative requirements and operating restrictions need to remain flexible, recognising that all ports are different, as are their operating restrictions and the sensitivity of the receiving environments.

• Governments need to be pro-active in cooperating with industry to develop management solutions to current problems and, in improving the level of understanding between all relevant parties.

Ports, in focusing the activities of both the land and sea aspects of the transport chain, must attempt to maintain the fragile balance between environmental protection and economic development. The individual initiatives of ports in achieving this balance must be complemented by government action seeking to promote real and practical solutions and outcomes which can only result from the cooperative participation of industry, government and the wider community.

^[1] Paper presented at the Townsville 2000 workshop of ‘The Prevention of Marine Pollution in the Asia Pacific Region’ held in April 2000.

^[2] Environmental Services Manager, Townsville Port Authority.