FINNS PREPARE FOR THE WORST: A RUSSIAN OIL SPILL

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
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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
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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
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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