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### Viewing cable 06HELSINKI1231, FINNS PREPARE FOR THE WORST: A RUSSIAN OIL SPILL

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
06HELSINKI1231 | 2006-12-12 14:02 | 2011-04-24 00:12 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Helsinki

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    VZCZCXRO2963
    RR RUEHAG RUEHAST RUEHDA RUEHDBU RUEHDF RUEHFL RUEHIK RUEHKW RUEHLA
    RUEHLN RUEHLZ RUEHROV RUEHSR RUEHVK RUEHYG
    DE RUEHHE #1231/01 3461457
    ZNR UUUUU ZZH
    R 121457Z DEC 06
    FM AMEMBASSY HELSINKI
    TO RUEHC/SECSTATE WASHDC 2820
    INFO RUEHZL/EUROPEAN POLITICAL COLLECTIVE
    RULSJGA/COMDT COGARD WASHDC
    RUCPDOC/USDOC WASHDC

` `

    UNCLAS SECTION 01 OF 02 HELSINKI 001231

    SIPDIS

    SIPDIS
    SENSITIVE

    E.O. 12958:  NA
    TAGS: SENV EWWT EPET EUN FI
    SUBJECT: FINNS PREPARE FOR THE WORST: A RUSSIAN OIL SPILL
    IN THE GULF OF FINLAND

    ¶1.  (SBU) Summary: Fearing that Russia will react slowly to
    an oil spill and utilize controversial environmentally
    harsh clean up methods, Finland has taken a leadership role
    in the region by developing new oil spill clean up
    technology and by providing bilateral aid to Russia.
    During the past decade, oil transportation in the Gulf of
    Finland has increased by a factor of six, and experts
    predict shipping from Russian ports will increase by an
    additional 50 percent over the next ten years.  Given that
    the Baltic Sea is also shallow, heavily polluted and dotted
    with hundreds of islands; it is environmentally fragile
    enough that a serious spill would have devastating economic
    and social consequences both in Finland and the region.
    Finland therefore hopes that its aid and outreach efforts
    with Russia now will payoff later should an oil spill in
    Russian waters occur.  End summary.

    Will Russia Call?  Likely Scenario during an Oil Spill
    --------------------------------------------- ----

    ¶3. (SBU) In the event of an oil spill, GOF Environment
    Ministry officials want the Russians to request Finnish
    assistance immediately.  However they fear that RussiaQs
    complicated legal framework and confusion over jurisdiction
    may ultimately delay such a request.  Finnish NGOs
    recognize the excellent training of their under-equipped
    St. Petersburg colleagues, but are concerned about a
    disconnect between local authorities and Moscow over oil
    spill clean up authority.  Since the clean up window in the
    narrow Gulf of Finland is limited to one to three days
    before the oil reaches land and since Russia has only one
    oil spill cleanup vessel in the entire Baltic Sea (compared
    to FinlandQs 15 ship-size vessels, and over 100 smaller
    vessels), Russia will need to make its formal request
    quickly for any assistance to be effective.  Regardless,
    should an oil spill occur, Finland plans to deploy an oil
    combating vessel within four hours even though such a
    vessel would be unable to enter Russian waters until Russia
    formally requests assistance.  Citing communication
    challenges and bureaucratic inertia in Moscow, GOF
    officials fear that by the time the request arrives, it
    will be too late.

    Regional Cooperation and Controversy
    ------------------------------------

    ¶4. (SBU) The nine members of the Baltic Marine Environment
    Protection Commission (HELCOM) (which include Russia) are
    legally committed to assist each other during an oil spill;
    however, success depends on member states fulfilling their
    commitment to each other.  Annually HELCOM organizes an oil
    spill response exercise to improve interoperability and
    training.  HELCOM officials said the organization has
    defined procedures for requesting assistance from other
    countries; however, even during scheduled exercises
    response times vary greatly -- with Russian response being
    near the bottom.  HELCOM officials carefully sidestepped
    questions about RussiaQs overall oil spill preparation by
    saying that actual preparation is a Qmember state issue
    and that Russia is an effective and contributing member of
    HELCOM.

    ¶5. (SBU) While HELCOM strongly recommends environmentally-
    friendly mechanical clean up methods that absorb or
    physically remove oil from water, these methods are also
    the most expensive and difficult to use.  Many believe
    Russia would resort to less expensive dispersal agents such
    as surfactants, solvents, or other compounds -- a highly
    controversial method in the region since dispersants simply
    cause the spilled oil to dilute and sink to the bottom.
    Experts question the effectiveness of dispersants in icy
    conditions and in water as shallow as the Baltic Sea.
    Under the right conditions, burning spilled oil may also be
    considered as a method; however, this method requires
    extensive preparation and optimum sea conditions to be
    effective.

    Challenges Posed By the Baltic Sea Environment
    --------------------------------------------- -

    ¶6. (SBU) Finland has developed a wide range of techniques
    and equipment for oil spills in winter; however, Finnish
    officials privately express that there are many Qunsolved
    questionsQ in dealing with a major oil spill in either icy
    or stormy conditions.  At the same time, Finland is
    concerned that the Baltic Sea is increasingly at risk of a
    catastrophic spill.  It is extremely shallow and already
    heavily polluted.  This fact, coupled with the significant
    number of islands in the Baltic Sea, makes the coastline

    HELSINKI 00001231  002 OF 002

    especially vulnerable to long-term consequences from such a
    spill.  Congested and intersecting traffic lanes, combined
    with severe storms and icy conditions make it increasingly
    difficult to operate in the Baltic Sea.  Of the 151
    shipping accidents in the Baltic Sea in 2005, 13 required
    some sort of environmental clean up.  During a recent
    Baltic Sea Conference, GOF officials said the nine members
    of HELCOM likely have insufficient equipment to deal with a
    major oil spill.

    WARE

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