Strategic Plan Of Action For The Arctic Emergency Prevention, Preparedness And Response Working Group (Eppr)
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Preface
The programme for the Emergency Prevention, Preparedness and Response (EPPR) was established under the Arctic Environmental Protection Strategy (AEPS). The eight Arctic Ministers in 1991 approved the programme as a framework for taking early co-operative action on emergency prevention, preparedness and response in the Arctic (AEPS, 1991). The activities of the EPPR working group have since been governed by Ministerial Declarations in Nuuk, Greenland (1993), Inuvik, Canada (1996), and Alta, Norway (1997). The EPPR working group is now under the auspices of the Arctic Council, which was established in 1996. Other Arctic Council working groups are the Arctic Monitoring and Assessment Program (AMAP), the programme for the Conservation of Arctic Flora and Fauna (CAFF), and the working group on the Protection of the Arctic Marine Environment (PAME). Excerpts from the above documents are included in Annex 2.
The goal of the EPPR working group is to protect the Arctic environment from the threat or impact of activities in the Arctic that may result in an accidental release of pollutants, and to promote sustainable development in the Arctic area.
1. Strategic plan
1.1 Introduction
This Strategic Plan of Action has been prepared in accordance with the request made by the Arctic Council at the ministerial meeting in Alta in 1997. A draft plan was approved by the EPPR working group in July 1998 and it was endorsed by the Senior Arctic Officials in August 1998. The Arctic Council adopted this Strategic Plan of Action for the EPPR working group in September 1998 at the ministerial meeting in Iqaluit.
This document consists of two parts, Part I is the Strategic Plan and Part 2 is the Work Plan. This is a living document which will be updated as needed.
Emergency activities in the Arctic present special challenges because of its remoteness, climate (ice, snow, cold), darkness, response co-ordination, diversity and nomadic habits of residents and the uniqueness and vulnerability of flora and fauna. The Arctic countries and permanent participants meet within the working group to co-ordinate, co-operate and exchange information, and undertake projects with the aim of improving the capability to prevent, prepare for, and respond to pollution incidents in Arctic areas. The EPPR working group is an expert's forum focusing on enhancing best practices, and although the EPPR working group does not provide direct response to emergencies it can be a mechanism to provide advice or assistance as appropriate during a major emergency. The EPPR working group deals with accidental releases and events and not with chronic discharges. Pure natural disasters are not at this moment a part of the working group's work plan and although nuclear questions are part of the work plan, currently no initiative focuses specifically on nuclear issues.
The mandate of the EPPR working group is to deal with the prevention, preparedness and response to environmental emergencies in the Arctic that are a result of human activities.
1.2 Guiding Principles
The work of the EPPR working group is based on the following guiding principles:
a) The involvement of indigenous and local people.
The EPPR working group recognizes the importance of involving indigenous and local people, and seeks their involvement in its work.
Involvement of indigenous and local people in emergency prevention, preparedness and response is of critical importance. Indigenous and local people, because of their proximity to the activities that pose risks of emergencies in the Arctic, are likely to be affected by an accident. In addition, indigenous and local people may participate in response actions and contribute their traditional knowledge to the process.
b) Building on the initiatives of others.
The EPPR working group will utilize the work of and co-operate with other groups including those of the Arctic Council to present the Arctic perspective, to increase effectiveness and to minimize duplication.
c) The sharing and exchange of information.
Information exchanges on practices, experiences and technology developments within the EPPR working group are an important avenue that can lead to improvements in national and multinational systems designed to protect the Arctic's environment and its inhabitants. The sharing of approaches, potential and existing problem areas and lessons learned strengthen our prevention, preparedness and response capabilities.
d) Communication with interested groups.
The EPPR working group recognizes the importance of providing information to and communicating with Arctic residents, government and the emergency management community on Arctic emergency prevention, preparedness and response.
1.3 Objectives
The main objectives of the EFPR working group are to:
a) Improve prevention measures aimed at reducing accidents in the Arctic, including source control management programmes;
b) Improve emergency preparedness programmes at local, national, regional and international levels to ensure they are commensurate with the level of risk that exists, including arrangements for mutual assistance; and
c) Improve response capabilities so that they are commensurate with existing threats.
2. Workplan
2.1 Approach
The work of the EPPR working group is directed at assessments to identify and analyze risks of accidental pollution in the Arctic which could require emergency response measures. The assessments include identifying and analyzing gaps in prevention, preparedness and response programmes.
Based on assessments performed by the EPPR working group, other Arctic Council working groups and international fora, the EPPR working group develops and co-ordinates preventive policies, strategies and measures to enhance Arctic emergency prevention, preparedness and response and makes recommendations to the Senior Arctic Officials and Ministers on appropriate actions to be taken at the local, national, regional and international level.
The EPPR working group normally meets once a year; however, inter-sessional preparatory work is conducted by smaller and ad hoc working groups and project groups. Additionally, official meetings with a limited number of participants from each country are held in connection with other international meetings to minimize costs and traveling time.
Criteria for evaluating proposed activities
The EPPR working group considers the following criteria when evaluating and prioritizing proposed activities and projects:
a) the potential for threat or severity of impact on the Arctic environment and its inhabitants;
b) international problems where there are risks of trans-boundary releases or effects;
c) local or national problems in the emergency area which are common to Arctic countries; and
d) areas where gaps have been identified.
2.2 Activity areas
The EPPR working group has developed the following activity areas as a framework for all its work in emergency prevention, preparedness and response. Every subsection below has the same basic structure. First, the activity area and its relevance to the Arctic is briefly described. Then the past or ongoing work is listed and finally the possibilities for future work for the EPPR working group are discussed.
2.2.2 Research & development and technology sharing
The Arctic countries have knowledge of different types of technology and have the ability to function in a cold climate with snow and ice. The Industries and the activities in the Arctic area are adjusted to the harsh conditions of the Arctic with its very low temperatures, snow and permafrost. The harsh conditions and the lack of existing infrastructure in much of the Arctic make emergencies more problematic than in more temperate climates. Actions for prevention and preparedness must be adapted to the harsh conditions and remoteness of the Arctic. International cooperation in this area is of major importance. Research is being done at universities and at industrial and governmental research centres to further develop this know how.
There is a long history of work and co-operation among Arctic countries in the area of R&D and technology sharing. In 1980, a multidisciplinary team from many of the Arctic countries conducted an experimental release of oil at Baffin Island, Canada. The Baffin Island Oil Spill (BIOS) project advanced the knowledge of the effects of and countermeasures for oil spills in Arctic waters. Additionally, Canada has led and continues to work in the development of a programme dealing with Arctic and marine oil spills (AMOP) which addresses research needs. In the last 10 years, with limited funding for research and development, there has been a trend towards international joint funding of research and development projects. As an example, Norway is at the moment implementing two research programmes, ITOSS (In Situ Treatment of Oiled Shoreline Sediments) and MORICE (Mechanical Oil Recovery in Ice). Both programmes are receiving financial support from, among others, Canada and the US. The Nordic countries also have a common working group in the field of oil emergencies. One of the activities of the working group is the arranging of seminars for combating oil spills in ice and cold conditions.
The EPPR working group should actively support this work and other international work and should also take initiatives for further research. The knowledge obtained should be developed and improved. The equipment used in prevention, preparedness and response actions should be adapted to the conditions of the Arctic environment. The EPPR working group should also promote the exchange of technology concerning preventive measures in environmental emergencies in the Arctic.
A new field that the EPPR working group is engaged in is environmental impact assessment of preventive and response actions. The Arctic environment has a low tolerance for disturbance. Therefore, the impacts of actions in the Arctic need to be very carefully assessed and the actions adjusted to the prevailing conditions. Traditional knowledge should be applied to understanding the possible consequences of predicted impacts and in reducing uncertainties.
2.2.2 Capacity building
To maximize the application of research and development there should be an active exchange of knowledge among the countries in the form of education, material, technology, training programmes, exercises and programmes. There should also be opportunities for exchanging and co-operating on training material and training programmes on response actions. Exercises are a very important part of capacity building and can be designed and conducted in various ways to achieve different goals. The EPPR working group has conducted a number of notification exercises which have resulted in improvements to national systems.
The EPPR working group has developed the Field Guide for Oil Spill Response in Arctic Waters, which is a spill training and response tool for use by circumpolar countries. This guide takes into account the unique climatic and physical features of the Arctic environment and provides a common approach to the clean-up in the prevention, preparedness and response in Arctic areas. As needs are identified, the EPPR working group should be ready to fulfill the requests. The participation of indigenous peoples in the exchange of knowledge and information is very important in achieving successful results.
2.2.3 Risk analysis
For the development of emergency prevention, preparedness and response actions in the Arctic, an important first step has been the Environmental Risk Analysis of Arctic Activities.
The EPPR working group produced this report on potential risks in the Arctic, identifying the highest risk activities. This report, which will be kept up to date by the EPPR working group, provides the basis for future activities including mitigation of the highest risks.
The EPPR working group will initiate a programme of source control management and prevention assessments for the high-risk activities identified in the Environmental Risk Analysis of Arctic Activities. These source control assessments will draw upon the assembled technical expertise of the member nations of the EPPR working group in reducing and mitigating accidental pollution release hazards at high-risk facilities in the Arctic. Based on these analyses, the EPPR working group will develop recommendations and programmes for prevention, preparedness and response for risk sites.
In the future, the EPPR working group will utilize the work carried out by other Arctic Council working groups such as the AMAP's report on the Slate of the Arctic Environment and PAME's Regional Programme of Action.
2.2.4 Inventories
For preparedness and response measures, it is of great importance to know what resources are required and the extent of their availability and also the resources at risk. Therefore, different inventories of the Arctic area are important. The inventories should be developed further with the inclusion of traditional knowledge and involvement of indigenous people.
The EPPR working group is developing a Circumpolar map of resources at risk from oil spills in the Arctic which will synthesize existing information on sources of spills and internationally important biological resources that could be at risk in the event of an oil spill. Traditional knowledge should be included in this project. Working areas for the EPPR working group are, among others inventories of response resources (personnel, equipment, special equipment for cold conditions), risk sites and their surroundings, and prevention activities on risk sites. One important field for inventories is the response resources that can be provided to neighboring Arctic countries or other Arctic countries.
2.2.5 International agreements and arrangements
Concerning international agreements, the initial work is to analyze the existing agreements and arrangements with the Arctic perspective in mind. Possible gaps and problems will be identified and based on these, recommendations to the Senior Arctic Officials and Ministers for improvements to the existing agreements and arrangements will be proposed.
There are several international agreements which Arctic countries are committed to and which involve the activities of the EPPR working group. These are, inter alia, the OPRC Convention, UNECE Convention on Industrial Accidents, the IAEA Convention (on early notification and mutual assistance in case of a nuclear emergency) and many bilateral agreements and arrangements between the Arctic countries.
The EPPR working group is at the moment finalizing a report on the Analysis of the Adequacy and Effectiveness of Existing Agreements and Arrangements. This report will show the present situation and the need for future working amending and/or developing new arrangements to fit the demands of the Arctic environment.
One task the EPPR working group will examine is the development of a Memorandum of Understanding among Arctic countries on co-operation and assistance on response actions; this should not be a legally binding document.
2.2.6 Notification and communication during events
Notification and communication among the Arctic countries during events are very important and there are existing international systems dealing with these requirements. International systems for notifications exist for marine, industrial, and nuclear emergencies.
The EPPR working group does not have the intention of developing a new system for notification and communication in the Arctic but will build on the existing ones. The EPPR working group is evaluating the existing notification and communication systems for emergencies in the Arctic area.
The EPPR working group has conducted communication exercises in the last few years and countries have followed-up on the findings and taken measures to correct and improve deficiencies. These exercises will also be ongoing.
2.2.7 Lessons learned
An important way to develop emergency prevention, preparedness and response measures is to look at actual situations and at what actually happens in an emergency.
Why did the emergency happen? How did it happen? Could it have been prevented? And how? How was the preparedness for the emergency? How did the exchange of information work? What should be done to prevent the emergency from happening again in the future? Many of these lessons can also be learned through emergency exercises.
Most of the EPPR working group's prevention work is done by developing measures from lessons learned from exercises, accidents and response actions, in order to prevent accidents from reoccurring. These measures are also reflected in the preparedness and response actions for accidents.
To benefit from other countries' expertise, the EPPR working group should, at their annual meeting, place on their agenda an item called "National accident reports". Countries could then exchange information and lessons learned from accidents which have happened in the respective countries. Real accident cases can also be used as scenarios for exercises.
2.2.8 Guides
Jointly prepared guides and guidelines are useful tools in emergency prevention, preparedness and response work. The EPPR working group has already developed the Arctic Guide and the Field Guide for Oil Spill Response.
The EPPR working group has contributed to the Arctic Offshore Oil & Gas Guidelines developed by PAME by writing the Chapter "Emergencies".
A very good guide for these purposes is Guidelines for Environmental Impact Assessment (EIA) in the Arctic which has been developed under the Arctic Environmental Protection Strategy. Mitigation is an independent part of this work an is aimed at avoid or lessening impacts (prevention).
The EPPR working group should have as a goal for its projects that the information obtained should be put into a format (guide) that is easily available for the people working within the areas in question.
2.2.9 Public awareness
In all work done in the Arctic area, it is very important that the people living there are taken into account. In inventories, risk assessments and response actions, the involvement of local and indigenous people should be increased.
The APELL (Awareness and Preparedness for Emergencies at Local Level) process, which was developed by UNEP is a good tool in this field. The EPPR working group has used and will continue to support this work and should also try to raise the priority of the Arctic dimension. It will also be useful to hold the UNEP-APELL seminars in the vicinity of the risk sites defined in the risk analysis made by the EPPR working group. The increase of public awareness and of public participation is invaluable for emergency prevention, preparedness and response actions.
The EPPR working group should also develop a communication strategy possibly in co-operation with the other working groups and the permanent participants of the Arctic Council.
2.3 Activities and projects
2.3.1 Project support elements
The resources of the EPPR working group are limited and the projects are normally conducted by a lead country. When funding is needed, the costs are usually divided among the member countries. Therefore, only a certain number of projects can be carried out simultaneously It is also up to the EPPR chair country to finance secretarial support functions.
A list of finalized projects are in Annex I.
2.3.2 Existing projects
Approved projects have lead countries, project work plans with objectives, responsibilities, milestones and a description of tasks needed to achieve the objectives. Interim status reports will be produced as required, but, at a minimum, a status report will be provided for each working group meeting and for each SAO meeting.
a) Analysis of agreements and arrangements
Activity area: . . . . . . . International agreements and arrangements
Purpose: . . . . . . . . . . . To evaluate the adequacy of existing arrangements and to recommend a necessary system of co-operation. The analysis will identify gaps and areas requiring improvements and/or new arrangements.
Goals: . . . . . . . . . . . . . Identify potential Arctic risks and improve emergency preparedness programmes.
Lead Country: . . . . . . . Canada
Schedule: . . . . . . . . . . .The final analysis will be presented at the 1999 EPPR meeting.
b) Development of a Circumpolar map of natural resources at risk from oil spills
Activity area: . . . . . . . .Inventories
Purpose: . . . . . . . . . . . .To assemble and synthesize existing, available information on sources of spills and internationally important biological resources that could be at risk in the event of an oil spill. The purpose of the map is to provide an educational overview and to facilitate prioritizing prompt responses both nationally and internationally when biological resources are jeopardized by an oil spill.
Goals: . . . . . . . . . . . . . .Identify risks of accidental pollution, improve emergency preparedness programmes and improve response capabilities.
Lead country: . . . . . . . . Norway
Schedule: . . . . . . . . . . . The final report will be presented at the EPPR working group meeting in the year 2000.
c) Source control management and prevention
Activity area: . . . . . . . . Risk analysis
Purpose: . . . . . . . . . . . . To develop a Plan to reduce the risks identified in the Arctic Risk Analysis. The project includes identifying what causes an activity to be a high risk, what capability exists to reduce the risk, and recommendations as to what should be done to reduce the threat.
Goals: . . . . . . . . . . . . . . Prevent accidents, improve emergency preparedness programmes and improve response capabilities.
Lead country: . . . . . . . . .Each country where a high risk activity is located.
Schedule: . . . . . . . . . . . .The plan should be in place by the year 2005.
d) The development of an EPPR web site
Activity area: . . . . . . . . .Public awareness
Purpose: . . . . . . . . . . . . .Make the work of the EFPR working group available to the public and make the public aware of the work of the EFPR working group.
Goals: . . . . . . . . . . . . . . .To improve emergency preparedness and response by providing more information to the public.
Schedule: . . . . . . . . . . . . .Develop proposal for approval at the 1999 EPPR meeting.
e) Revision of the Rules of Procedure of the EPPR working group
Activity area: . . . . . . . . . International agreements and arrangements
Purpose: . . . . . . . . . . . . . To develop the existing rules of procedure of the EPPR working group into operating guidelines to fit the demands of the Arctic Council.
Goals: . . . . . . . . . . . . . . . To fulfill the demands stated in the Arctic Council's Rules of Procedure.
Lead country: . . . . . . . . . .Finland
Schedule: . . . . . . . . . . . . .Develop proposal for approval at the EPFR meeting in 1999.
2.3.3 Ongoing activities
In the EPPR working group, there are ongoing activities that support both the projects and the identification of possible new projects.
The EPPR working group conducts, on a regular basis, different kinds of ~i~es5: Some are notification and communication exercises and some are tabletop
The following topics are discussed in the EPPR working group meetings:
-lessons learned
-information on new activities in Arctic areas (drilling, mining)
-information on major organizational changes in the Arctic countries
-information on research and development in the Arctic countries
-follow-up on the Strategic Plan of Action and updating when necessary
2.3.4 Possible future activities
At the moment, the first priority of the EFPR working group is to finalize the ongoing projects and activities. The activities listed below will be considered in the future by the EPPR working group as projects or activities. No decisions have been made concerning any of these possible future activities.
* Development of an information brochure on the EPPR working group(activity area: public awareness, possible lead country: Canada).
* To develop the EPPR web site further, describing the working group, providing points of contact and national information (activity area: public awareness, possible lead country: the United States of America).
* Development of a standardized approach to shoreline cleanup assessment technology (SCAT) beginning with a short review of current practices and terminology in each country. In this work, the knowledge of indigenous people should be taken into account and applied. This approach could be used as the basis for future development of standardized techniques, methods and plans for monitoring and assessing the fate and effects of spills (activity are: R&D and technology, capacity building, possible lead country: Canada).
* Public awareness activities such as seminars, UNEP-APELL (activity areas: capacity building, public awareness).
* Memorandum of Understanding (activity area: international agreements and arrangements, possible lead country: Finland).
* Environmental impact assessment of response actions (activity area: R&D and technology sharing, capacity building, guides).
* Communication strategy, possibly in co-operation with the other working groups and permanent participants of the Arctic Council (activity area: public awareness, capacity building).
* Phase II of the Analysis of the effectiveness of existing accident reporting systems (International notification and communication systems), will be conducted if it is needed after completion of the Evaluation of the Adequacy of Existing International Agreements and Arrangements (activity area: notification and communication during events)
