Since 2002, 248 general cargoships have foundered worldwide, killing more than 800 seafarers.
Vessel not inspected prior to provisional registration, Cook Islands admits
MARITIME Cook Islands was in breach of its own procedures when it registered a 34-year-old general cargoship that sank, killing six people, having failed to conduct a survey prior to provisional registration, its chief executive has confirmed to Lloyd’s List.
Glenn Armstrong, who runs the flag administration for the Pacific island chain, also admitted that Swanland effectively functioned as a small bulk carrier but, because it was classed as a general cargoship, it avoided an enhanced survey that could have prevented the fatal casualty.
The incident, recently the subject of a Marine Accident Branch Investigation, has reopened controversy over the safety of general cargoships, which have one of the worst casualty records of any vessel type.
It also turns a spotlight on the role of open registers and of the recognised organisations they appoint to carry out inspections on their behalf.
In a series of email communications with Lloyd’s List, Mr Armstrong revealed that MCI had suspended registration of any vessel classified by the International Naval Surveys Bureau, the non-International Association of Classification Societies technical body that classed Swanland.
Furthermore, MCI is carrying out an audit of INSB for imminent publication.
In summary, MAIB found that Swanland — which went down off the Llyn Peninsula, just outside UK territorial waters, in 2011 — had not been properly maintained and its longitudinal strength was severely weakened by corrosion and wastage.
Its cargo of limestone had been loaded as a single pile within the central section of the hold, placing significant stress in the midships section, exacerbated by rough seas of similar wavelength to the vessel, causing it to suffer structural failure and to sink within 17 minutes.
Second officer Roman Savin, 27, and able seaman Vitaly Karpenko, 48, were airlifted to safety. The body of Leonid Safonov, 50, was recovered from the sea shortly afterwards.
The bodies of master Yury Shmelev, 44, chief engineer Genadiy Meshkov, 52, second engineer Mikhail Starchevoy, 60, able seaman Sergey Kharchenko, 51, and cook Oleg Andriets, 49, were never recovered.
As the MAIB document points out, this case was hardly a one-off.
Swanland is one of 248 general cargoships known to have foundered worldwide since 2002, killing more than 800 seafarers. Of these ships, 226 were 15 years old or more and 139 were 27 years or older.
“Concerns surrounding the safety and high loss rates of similar general cargoships have been repeatedly raised at the International Maritime Organization. However, progress to address the problems appears to have been slow,” the MAIB notes.
“It is hoped that the loss of Swanland and her six crew will be a catalyst for the work already being undertaken by the International Maritime Organization to tackle the global issue of general cargoship safety.”
But although the primary causes of the casualty lie elsewhere, the MAIB was also critical of MCI and INSB.
Thus it talks in terms of the “poor quality of survey and audit [and] lack of oversight of the classification society by the flag state”.
Asked whether he accepted the criticism as fair, Mr Armstrong did not answer directly, answering: “We have strengthened and continue to strengthen our oversight programme for all ROs that we authorise as part of our quality-improvement programme and our voluntary IMO member state audit scheme preparation.”
MCI had formal agreements with nearly all IACS member classification societies, as well as INSB.
However, it did not conduct any audits of these societies and based its approval of INSB as an RO on an audit conducted by the Panama Maritime Authority in March 2008.
Although this audit recommended the continued recognition of INSB as an RO for the Panamanian flag, it did raise four major and four minor non-conformities.
“At the time of the accident, MCI was unable to provide any record of these nonconformities having been closed out,” the MAIB report claimed.
“MCI was not aware of any other flag state audits of INSB conducted between 2008 and 2011.”
The owner of Swanland transferred the vessel from Lloyd’s Register to INSB when it was reflagged from Barbados to MCI in 2009, mainly because the latter is about 30% cheaper, MAIB alleged.
But although INSB is less expensive than some of its rivals, MAIB describes intermediate and annual surveys after the transfer as lacking rigour in comparison to IACS members.
Addressing these issues, Mr Armstrong said: “We entered into agreements with a number of ROs in 2007. INSB was one of them.
“They presented their credentials to us, which we reviewed in detail and accepted. They have a long history and a reasonable track record, being the 16th-best performing RO on the Paris MoU RO list.
“The registry’s decision to authorise INSB was not driven by budgetary considerations.”
MCI, pejoratively described by the International Transport Workers’ Federation as a flag of convenience, has recorded uneven performance metrics.
Its standing in the 2012 edition of International Chamber of Shipping and International Shipping Federation league table can be described as mixed.
It is, for instance, on the Tokyo Memorandum white list. On the other hand, it is towards the bottom of the Paris MoU grey list and its vessels are specifically targeted by the US Coast Guard.
There were 160 port state control inspections of Cook Islands vessels in the Paris memorandum area between 2009- 2011, leading to 14 detentions. MCI deleted five ships that had been subject to repeated detentions.
“We are on the Paris MoU grey list and working hard to improve our position,” said Mr Armstrong.
“When the new USCG target list is published, Cook Islands will no longer be on that list and this signifies a major step forward and progress by the registry.”
The Cook Islands consists of 15 small islands scattered over some 2m sq km of the Pacific Ocean, with a population of approximately 18,000.
MCI is a commercial organisation with a franchise from the Cook Islands Ministry of Transport, using the internet to issue certificates.
It is, according to its website, “building a world class open register” and its “goal is to become the flag of choice for quality classed tonnage and superyachts”.
As at July 2012, MCI had 56 Solas vessels on its books, most of which were general cargoships.
The total tonnage of the Solas vessels was 595,138 gt and their average age was close to 30 years.
MCI has, of course, promised to raise its game. Among the commitments it has made after the Swanland report, it has said it will review vetting procedures and requirements for flag state inspections for older ships, particularly those not in IACS class prior to registration.
As mentioned above, it is conducting an audit of INSB.
However, contrary to information given in the MAIB report, it will not now be establishing a technical office in Europe and plans instead to “significantly enhance” its technical capabilities at its office in Rarotonga.
“We have appointed a new technical manager who is tasked with strengthening our regulatory and technical control and implementing new systems through all regional offices,” said Mr Armstrong.
Asked when maritime stakeholders should have any confidence in the integrity of MCI after the loss of Swanland, he said: “Cook Islands takes its flag state responsibilities very seriously.
“The tragic casualty has reinforced our commitment to continuously improve our systems and to work through the IMO in order to ensure that all measures are taken to ensure that lessons learned from this tragedy are implemented.”