Organizing emergency response in the European Arctic: A comparative study of Norway, Russia, Iceland and Greenland MARPART Project Report 5 Editors: Natalia Andreassen Odd Jarl Borch Emmi Ikonen Nord University R&D-Report no. 46 Bodø 2019 Organizing emergency response in the European Arctic: A comparative study of Norway, Russia, Iceland and Greenland MARPART Project Report 5 Editors: Natalia Andreassen Odd Jarl Borch Emmi Ikonen Nord University R&D-Report no. 46 ISBN 978-82-7456-812-9 ISSN 2535-2733 Bodø 2019 46 978-82-7456-812-9 2535-2733 The report is developed under the project: “MARPART” (MARITIME PREPAREDNESS AND INTERNATIONAL PARTNERSHIP IN THE HIGH NORTH), Work Package 3 “Organizations and Operational Management Structures” Project period: 2015-2018 The project is financed by: - The Ministry of Foreign Affairs of Norway - Nordland County Administration - Nord University - Project partners’ own contribution Project partners: - High North Center at Nord University Business School (Norway) - Norwegian Defense University College (Norway) - Norwegian Police University College (Norway) - UIT-the Arctic University of Norway (Norway) - University Center in Svalbard (Norway) - University of Greenland (Greenland) - University of Iceland (Iceland) - Northern (Arctic) Federal University (Russia) - Murmansk State Technical University (Russia) THE MARPART RESEARCH CONSORTIUM MARPART – a project on the management, organization and governance of cross- border collaboration on emergency operations in the High North. The key purpose of the Marpart research is to increase the understanding of the emergency management challenges in the Arctic sea areas. Our work includes an assessment of the risk related to different types of maritime activity in the High North and an overview of the responsibilities of the preparedness institutions of Norway and its neighboring countries. We focus on cross-institutional and cross- country partnerships between government emergency response agencies as well as private companies in the Arctic region. The starting point of this research has been the responsibility of the governments as to safety, security and environmental protection in the High North. Maritime preparedness is defined as the system for emergency prevention, preparedness and response. We look into the need for enhanced measures to respond to composite challenges including search and rescue (SAR), oil spill recovery, firefighting and salvage, and actions against terror or other forms of violent and destructive action. MARPART project goals: • To reveal the needs for preparedness related to joint emergency response operations within the preparedness system of the included countries; • To provide analytical concepts for studying coordination challenges in cross- border, combined operations; • To contribute with organizational concepts for inter-organizational partnership and management within emergency response. The cross-disciplinary, international research network established for the Marpart project consists of 16 universities and research institutes. The consortium is coordinated by Nord University in Bodø, Norway. Universities, police and naval academies and research institutes from Norway, Russia, Iceland, Greenland, Denmark and Sweden are now part of the Marpart network. In addition, universities from Canada, USA, and Finland are part of an extended academic network called the UArctic thematic network on Arctic Safety and Security. The project partners have established Advisory Boards in each country including government preparedness authorities and industry representatives. The Marpart projects include two interlinked projects: Marpart 1 “Maritime Preparedness and International Partnership in the High North” and Marpart (2)-MAN “Joint-task Force Management in High North Emergency Response”. These projects have also been closely linked to the Norwegian SARINOR project focusing on gaps in the Norwegian Arctic SAR system. 1 LIST OF AUTHORS Odd Jarl Borch Project Leader, Nord University Business School, Nord University Natalia Andreassen Nord University Business School, Nord University Emmi Ikonen Nord University Business School, Nord University Johannes Schmied Nord University Business School, Nord University Linda Hoel Norwegian Police University College Svetlana Kuznetsova Northern Arctic Federal University named after M. Lomonosov Alexander Suslov Murmansk State Technical University Ivan Saveliev Northern Arctic Federal University named after M. Lomonosov Dmitry Kochegarov Northern Arctic Federal University named after M. Lomonosov Maxim Zadorin Northern Arctic Federal University named after M. Lomonosov Sóley Kaldal Icelandic Coast Guard Uffe Jakobsen University of Greenland 2 ACKNOWLEDGEMENTS This report is the 5th MARPART report. The MARPART project team would like to express their gratitude to the Norwegian Ministry of Foreign Affairs and the Nordland County Administration for funding this project. We are also thankful to Nord University and the partner universities for financial and administrative support. In addition, we appreciate the expertise provided by different professional actors, operating in the field of emergency preparedness, search and rescue in Norway and other countries. We are particularly thankful for input and support from: High North Center at Nord University Business School; The Norwegian Coastal Administration; Nordland Police District; Maritime Forum North; the Joint Rescue Coordination Center North Norway; the Preparedness Department of the Nordland County Governor; Nordland County Administration; Norwegian Directorate for Civil Protection; The Petroleum Safety Authority of Norway; the Norwegian Coast Guard; Icelandic Coast Guard; the Environment Agency of Iceland; and the Department of Civil Protection and Emergency Management at the National Commissioner of the Icelandic Police; the Maritime Rescue Coordination Center of Murmansk (Russia); Arkhangelsk Regional Rescue Service (Russia); and the Arkhangelsk Regional Agency for State Fire Service and Civil Protection (Russia). 3 Contents THE MARPART RESEARCH CONSORTIUM ....................................................................................................... 1 LIST OF AUTHORS ........................................................................................................................................... 2 ACKNOWLEDGEMENTS .................................................................................................................................. 3 CONTENTS 4 TABLE OF FIGURES ......................................................................................................................................... 6 ABBREVIATIONS ............................................................................................................................................ 8 EXECUTIVE SUMMARY ................................................................................................................................. 10 INTRODUCTION 13 NORWAY 15 1.1 SEARCH AND RESCUE ................................................................................................................................. 15 Main institutions in the preparedness value chain ..................................................................... 15 Organization and management at strategic level ...................................................................... 21 Organization and management at operational level .................................................................. 22 Organization and management at tactical level on-scene ......................................................... 24 The main providers of SAR resources and their coordination ..................................................... 24 Operational hierarchy and management responsibilities in mass rescue operations (MRO) ..... 30 Plans and standard operating procedures presenting the main action patterns ....................... 41 Reflections on the operational patterns of the Norwegian maritime SAR system ...................... 47 1.2 OIL SPILL RESPONSE .................................................................................................................................. 54 Main institutions in the preparedness value chain ..................................................................... 54 Organizational model, command systems and external relations .............................................. 58 Operational hierarchy and management responsibilities ........................................................... 65 Plans and standard operating procedures presenting the main action patterns ....................... 74 Reflections on the operational patterns within oil spill response ............................................... 76 1.3 FIREFIGHTING .......................................................................................................................................... 77 Main institutions in the preparedness value chain ..................................................................... 78 Organizational model, command systems and external relations .............................................. 80 Operational hierarchy and management responsibilities ........................................................... 85 Plans and standard procedures presenting the main action patterns ........................................ 90 Reflections on the operational patterns of firefighting at sea .................................................... 92 1.4 VIOLENT ACTION