Terrorism and Finland

Report to the Finnish Government 10 October 2001

Report: Terrorism and Finland (avautuu uuteen ikkunaan) (last dated 31 December 2004)


Finland strongly condemned the terrorist attacks against the United States and participated in the Extraordinary European Council meeting on 21 September 2001, in which clear support was given to the United States in the fight against terrorism. It was agreed in the Conclusions of the European Council that the European Union will cooperate with the United States in bringing to justice and punishing the perpetrators, sponsors and accomplices of terrorist acts. On the basis of Security Council Resolution 1368, a riposte by the US is legitimate. The European Council also approved a plan of action to combat terrorism, calling for the broadest possible global coalition against terrorism, under United Nations aegis.

The Government of Finland has undertaken wide action after the terrorist attacks on September 11. At the same time, action against terrorism that had already been on the agenda within international cooperation for a considerable time, has been given renewed attention.

The following is a summary of
- the Finnish position with regard to combating terrorism
- the measures taken by the different Ministries and sectors of administration since September 11
- the forms of Finnish participation in the persistent international fight against terrorism

1. The Finnish position

Finland condemns terrorism in all its forms. Terrorism is a threat to the implementation of human rights, democracy and the rule of law as well as to international peace and security. Finland underlines the importance of international cooperation, collective action and respect for human rights in the fight against terrorism, including the following measures:

· bringing those responsible for terrorist acts to justice for the purpose of prosecution
· strengthening the role of the United Nations conventions against terrorism
· strengthening transatlantic cooperation to combat terrorism (exchange of information, effective cooperation between the competent authorities, cooperation in the suppression of the financing of terrorism)
· concentration of efforts to resolve regional conflicts (in particular the conflict in the Middle East)
· strengthening the system of international law
· strengthening the international instruments concerning arms control and weapons of mass destruction
· ensuring a central role for the UN Security Council in actions against terrorism


2. Measures taken in the different sectors of administration since September 11, 2001

The Government has taken measures to increase national preparedness in order to meet the requirements of the present situation, although Finland is not considered a priority target for terrorists. The European Union has introduced several projects relating to the combat against terrorism.

Police and rescue operations

In the sector of the Ministry of the Interior, the police, together with the National Board of Aviation, have strengthened air transport security. The security control of the embassies of foreign states and other possible targets (such as places of worship) has been strengthened. The Security Police and the National Bureau of Investigation have intensified international cooperation and exchange of information e.g. with Interpol and Europol. Efforts are being made to prevent any harassment of the Muslim population to the extent possible. The 24 hour alert preparedness of police commanders ensures that the highest police commanders and political decision-makers are quickly informed of any incidents.

Border control

The normal level of preparedness was reassumed by the Frontier Guard on 20 September 2001, after a period of intensified border control. Since the first air strikes by the United States against Afghanistan on 7 October 2001, border control has again been intensified. The Frontier Guard is prepared to support the police in the control of the movement of foreign nationals within the limits of their resources.

Defence

The Ministry of Defence has undertaken to review the applicable legislation, paying attention to problems relating to terrorism. The review has not given reason to take urgent measures for the amendment of legislation. Under the existing legislation, authorisations for flights through Finnish airspace will be issued by the Ministry of Defence. The Government has adopted a position according to which humanitarian flights may be allowed through Finnish airspace.

Legislation

The EU Ministers of Home and Justice Affairs have agreed on an extensive package of measures, including intensified border checks and control of external borders of the Union, the application of stricter criteria for issuing ID cards and visas, increased police and consular cooperation and the setting up of a specialist anti-terrorist team within Europol. In accordance with the guidelines provided by the European Council, the Member States intend to decide on a pan-European arrest warrant and a common definition of terrorism.

The national legislation required for the implementation of the package of cooperation agreed within the European Union, concerning e.g. border checks and control of external borders as well as intensified police and consular cooperation, is under preparation.

National economy

The EU Ministers of Economy and Finance have undertaken to consider the economic effects of the terrorist attacks. According to the assessment of the Finnish Ministry of Finance, the world economy was already weakening before the terrorist attacks of September 11, as economic growth had slowed down at the same time in all most important economic areas of the world (USA, EU, Japan). Irrespective of the future developments in the crisis, the prospects for the world economy are even weaker than before. The most significant industrialised states have taken measures to boost their economies e.g. by reducing interestrates and increasing the currency supply for the purpose of maintaining liquidity. Consumers have a key role in the recovery of the economy, as private consumption is hoped to have a stimulating effect.

The economic prospects in Finland had also weakened before the attacks. So far, however, the negative impact of the attacks on the Finnish economy has been caused by their impact on the world economy. The question is how demand in the home market will develop in the near future. For the time being, the purchasing power and confidence of citizens in their own economy have remained strong and there is no particular reason to believe that private consumption would directly decrease as a result of increased world-wide instability.

The EU Ministers have also agreed on the investigation by the competent authorities of currency flows and suspicious insider dealings before September 11 that might have terrorist links. Finland finds it important that the necessary measures to combat any form of financing for terrorist activities, referred to in the Conclusions of the Extraordinary European Council meeting and the communiqué of the informal ECOFIN meeting held in Liège on the same day, be implemented without delay.

Energy supply

The emergency planning carried out by the Ministry of Trade and Industry consists, insofar as energy supply is concerned, of the following elements: variety of forms of energy, reducing the dependency on oil; adequate stocks of crude oil and/ or petroleum products; adequate capacity of production of electricity even in serious crises; and systems of regulation on the use of fuel, electricity and central heating.

The IEA drafted a plan after the attacks, according to which its member States shall prepare themselves for contributing to the oil market with a total of two million barrels per day, by saving energy, increasing the production of oil or using their oil stocks. The contribution of Finland is 0.5 %, and can be made, where necessary, by using oil stocks, subject to the provisions of national legislation.

Health care

According to the Finnish Ministry of Social Affairs and Health, the preparedness of Finnish radiation-control authorities for emergencies is excellent. The coordinating authority is the Radiation and Nuclear Safety Authority to which emergencies are reported to and which is responsible for contacting central government authorities.

Emergencies involving chemical substances are the responsibility of both environmental and health care authorities. The geographical coverage of any emergency measures taken by these authorities is satisfactory. In order to maintain and improve their preparedness, however, training in medical rescue operations relating to emergencies must be increased and training methods must be developed.

Preparedness for and response to emergencies involving chemical substances require intensive cooperation between the health care, rescue, police and environmental authorities.

At present, Finland is not considered to be under an immediate threat of the use of biological weapons for terrorist purposes. Nevertheless, the competent authorities have undertaken measures to prepare themselves for the increased threat of terrorist attacks involving biological weapons. The detection system for contagious diseases has been adjusted, which improves the possibilities of detecting exceptional epidemics at an early stage. The awareness of and training of doctors with regard to the threat of biological weapons have been increased. The division of work between microbiological laboratories responsible for making diagnoses has been reviewed insofar as dangerous microbes are concerned, and suggestions for the improvement of this work have been made. International cooperation between the health care and other authorities at the national and international levels has been improved and intensified.

Despite the measures taken so far, it is necessary to further increase the preparedness of Finland against the threat of biological weapons. There are flaws in the health care system e.g. with regard to the preparedness to make diagnoses and provide appropriate treatment. However, significant improvements have been made in the detection of epidemics.

Transport and communications

The immediate measures taken by the Ministry of Transport and Communications mainly concerned authorities responsible for air transport and to some extent those responsible for electronic communications. Other authorities in this sector of administration were mainly recommended to intensively follow the future development of the situation and review their emergency plans and reporting systems. The Ministry’s own emergency team has continued to follow the development of the situation and has reported on the development to the directors of the Ministry.

Finnair has undertaken to continuously follow the changes in the situation, in particular those affecting the safety of Finnair and other airlines, the counter-measures taken as a result of the terrorist attacks against the United States and economic effects.

On September 27, 2001, the Government decided on State guarantees for Finnish airlines, amounting to a maximum of USD 1,000,000,000/ incident. The guarantees will become effective retroactively as of September 25, 2001.

In general, the attacks of September 11 did not have effects on Finnish communications. The backup systems of information technology and stocks of components of computer systems should nevertheless be reviewed. In emergency plans, attention will from now on be paid to Internet-based communication, problems relating to the concentration of cables, and backup systems of international communications.

In the sector of administration of the Ministry of Transport and Communications, the EU and UN decisions relating to the fight against terrorism had immediate effects only in relation to air transport. The EU Ministers of Transport have agreed that all Member States shall comply with the recommendations given by the ECAC concerning air transport security.

Increasing attention must be paid to the threat of terrorist attacks carried out with the help of means of transport. Transport, which is to a large extent dependent on information technology, is relatively vulnerable to terrorist attacks.

Refugees

Finland will be prepared for an increased flow of refugees. However, refugees should, as far as possible, be placed in the neighbouring areas of Afghanistan, so as to facilitate their later return to their home country.

According to the Finnish Ministry of Labour, the Finnish reception centres for refugees have a limited capacity to receive more refugees but, due to the flexibility of the system, their capacities may be increased within a short time. According to the emergency plans made for the existing reception centres, it would be possible to increase the capacity for receiving a larger number of refugees.

Finland decides on the reception of refugees case by case, on the basis of requests made by the UNHCR.

Foreign relations

On October 3, 2001, the United States presented material to the Minister for Foreign Affairs of Finland concerning evidence on the fact that the terrorist attacks were led from abroad and that the Al-Qaida organization led by Usama bin Laden were responsible for the attacks.

The Ministry for Foreign Affairs has earlier this year given humanitarian aid to Afghanistan through international organizations, amounting to FIM 13.5 million. The Ministry further decided on October 2, 2001 to grant additional aid amounting to FIM 10 million, due to the increasing flow of refugees, through the UNHCR and the ICRC.

The Ministry has increased the preparedness of the Finnish embassies abroad for exceptional situations and, where necessary, for crisis situations referred to in the Finnish Consular Services Act. The Ministry issues travel advice and updates the advice if necessary.


3. Finnish participation in the long-term international fight against terrorism

United Nations

Twelve conventions to combat terrorism have been negotiated within the framework of the United Nations. These conventions place States Parties under an obligation to establish as criminal offences under their domestic laws the offences set forth in the conventions, and to take measures for the prosecution of persons responsible for their acts. The conventions suppressing terrorism lay down a foundation for concomitant national provisions of law and for established practices for the fight against terrorism.

Finland has signed all twelve UN conventions suppressing terrorism, and has ratified nine of them. The ratification of the three latest conventions – the Convention on the Marking of Plastic Explosives for the Purpose of Detection, the International Convention for the Suppression of Terrorist Bombings, and the International Convention for the Suppression of the Financing of Terrorism – is under preparation. The Convention on the Marking of Plastic Explosives is currently being discussed by Parliament. Efforts are being taken to ratify in the near future the latest convention, the Convention for the Suppression of the Financing of Terrorism. All the Member States of the European Union aim at signing and ratifying the Convention as soon as possible.

The ratification of the last-mentioned Convention requires amendments to Finnish legislation. It has also been considered necessary to ratify all the international conventions referred to in the Annex to the Convention for the Suppression of the Financing of Terrorism before its ratification, because the criminalisation of the acts set out in the Convention is partly based on earlier conventions. Without such a procedure Finland would have to declare, upon ratifying the Convention for the Suppression of the Financing of Terrorism, that it is not able to fully apply the Convention.

Negotiations on the Indian proposal for a general convention against international terrorism are pending in an ad hoc committee of the UN General Assembly. The European Union supports this proposal.

Furthermore, the UN Security Council has made decisions based directly on the present situation. The Security Council Resolution 1373 contains a significant part of the obligations set out in the Convention for the Suppression of the Financing of Terrorism. The Resolution was adopted under Chapter VII of the Charter of the United Nations, which means it has an immediate binding effect in the UN member states. The implementation of the Resolution in Finland will at least partly take place through EU institutions.

The UN Security Council sanctions committee added new names to the list of individuals and entities associated with the Al-Qaida organization, whose funds and other financial assets must be frozen without delay under the earlier resolutions on Afghanistan. The freezing of assets in the European Union will take place on the basis of a Commission decision.

European Union

In the European Union, Finland participates in the cooperation for the suppression of terrorism and in the exchange of information within the framework of the Common Foreign and Security Policy. Actions against terrorism are also developed within the framework of other common policies, in particular within Home and Justice Affairs.

The following actions have been agreed on within the framework of the Common Foreign and Security Policy:

· taking the question of terrorism up in discussions with third countries, and deepening the political dialogue with those countries and regions in which terrorism exists
· systematic analysis of the EU’s external relations with third countries, with a view to assessing whether any of these countries support terrorist activities
· a more active political role in Central Asia
· intensifying transatlantic cooperation
· support for Arab States that have joined the global coalition against terrorism
· efforts to achieve comprehensive EU actions by harmonising common policies
· implementation of the Common Foreign and Security Policy at an operational level as soon as possible

Other EU actions against terrorism are referred to in section 2 above.


































































































































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