6 Civil protection, rescue and emergency preparedness

6.1 Introduction

In the period since the last report to the Storting on Svalbard was presented, considerable attention has been focused on strengthening the work on civil protection, rescue and emergency preparedness in and around Svalbard. The sector principle is applicable in Svalbard as it is elsewhere in the country, meaning that each sector is responsible for assessing risks, vulnerabilities, and potential mitigation measures.

Local emergency preparedness capacity is good. There is both a significant ability and willingness to handle incidents on the part of the established resources, the local population, the commercial sector and other actors in Svalbard. This has been illustrated repeatedly when locally available capacities and resources have assisted in managing various incidents. However, local emergency preparedness is not scaled to handle major incidents or incidents occurring simultaneously over an extended period of time. In such circumstances, resources will need to be provided from the mainland.

The chapter provides a description of developments and challenges, the actors involved and their roles, responsibilities and resources, as well as measures.

6.2 Developments and challenges

6.2.1 Climate change and increased activity

In 2019, the Norwegian Centre for Climate Services presented a climate profile for Longyearbyen.1 In the future, Longyearbyen will experience more precipitation in the form of rain, as well as increased snow- and glacier melting. These changes will result in an increase in the number and severity of floods, as well as more frequent avalanches and mudslides. Warmer weather and increased precipitation lead to increased wear and tear on buildings and infrastructure, which must be better protected against erosion and landslides.

Source:Norwegian Coastal Administration/Norwegian Directorate of Fisheries

Sea ice loss extends the sailing season and increases the navigable area around Svalbard, while the operational area for search and rescue is correspondingly enlarged. The risk of maritime accidents in remote and vulnerable areas increases as a result of increased activity, in addition to a greater risk and need for medical evacuation from vessels located far from Longyearbyen. Growth in activity in and around Svalbard entails that at times the population greatly exceeds the capacity of available emergency preparedness resources. In the Governor of Svalbard’s risk and vulnerability analysis for 2022–2026, the overall risk of accidents at sea is considered to be high.

6.3 Actors and their policy instruments

6.3.1 The Governor of Svalbard

The Governor of Svalbard is the central authority for the planning and implementation of civil protection and emergency preparedness measures on the archipelago and is responsible for rescue services in and around Svalbard.

The Governor of Svalbard chairs the Svalbard Emergency Preparedness Council in the capacity of having the same authority as a state administrator. The Emergency Preparedness Council is made up of the Governor of Svalbard, Longyearbyen Community Council, Kings Bay AS, CHC Helikopter Service AS, COOP Svalbard, Avinor Svalbard, the Norwegian Water Resources and Energy Directorate, Svalbard church, the Norwegian Meteorological Institute, Longyearbyen Fire and Rescue Service, Store Norske Spitsbergen Kulkompani AS, Telenor Svalbard, the Longyearbyen Norwegian Red Cross Search and Rescue Corps, the University Centre in Svalbard, Leonard Nilsen & Sønner AS, the University Hospital of Northern Norway Longyearbyen and the University Hospital of Northern Norway Tromsø.

As Chief of Police, the Governor of Svalbard is the head of rescue management with the Local Emergency Response Centre in Svalbard. The members of the rescue management team overlap to an extent with the members of the Emergency Preparedness Council. In the event of an incident, management is dependent on the efforts of volunteers and the provision of resources from the mainland when needed.

Emergency medical communication service in Svalbard

The Ministry of Justice and Public Security is examining how the emergency medical communication service (the 112 emergency telephone number) in Svalbard can be organised and operated most appropriately. The examination will be finalised in 2024.

Svalbard-ROS

The Governor of Svalbard prepares a risk-and-vulnerability-analysis (RVA) for the Governor of Svalbard’s area of responsibility. The current Svalbard RVA is valid for the period 2022–2026. The assessment includes a consideration of acute pollution, nuclear incidents, accidents at sea, avalanches, floods and cyberattacks. The Governor of Svalbard has drawn up a comprehensive plan for following up the assessment, with an overview of mitigation measures, clarification of responsibilities and status descriptions. Furthermore, the Governor of Svalbard has procedures regarding security of supply and other matters.

The Governor of Svalbard’s resources

The combined transport resources of the Governor of Svalbard are necessary for carrying out supervision and exercising authority, for an effective police and rescue service, and for ambulance and medical transport in and outside the territorial waters of Svalbard. From 2016 to 2024, the budget allocation for the Governor of Svalbard’s transport service (Ch. 0006 of the Svalbard Budget) increased by approximately 33 per cent. During the same period, the allocation for the Governor of Svalbard’s operating budget (Ch. 0005 of the Svalbard Budged) increased by nearly 72 per cent. The increase in allocations strengthens the ability of the Governor to exercise control in Svalbard. Furthermore, the increase in allocations reflects the increased activity in and around Svalbard in general, and thus additional for the Governor of Svalbard.

Helicopters

The Governor of Svalbard commands two Super Puma Helicopters for All-Weather Search and Rescue in Svalbard and the surrounding areas. Response time is two hours. Each helicopter can transport up to 18 passengers within a radius of 120 nautical miles.

In 2021, the Ministry of Justice and Public Security entered into a new contract with a private operator for the operation of a new civilian rescue helicopter base in Tromsø and joint operations with the Governor of Svalbard’s helicopter service. CHC Helikopter Service assumed responsibility for the operation of the Svalbard base in 2022.

Foto: Stein Olav Bredli, Governor of Svalbard

Service vessel

Since 2014, the Governor of Svalbard has commanded the chartered service vessel M/S Polarsyssel. The service vessel is built to an ice class and has a helicopter deck. Since 2020, the sailing season of the vessel has been extended to cover the whole year. The Governor of Svalbard also commands the smaller vessel Fjordsyssel.

6.3.2 The Norwegian Coast Guard

The Norwegian Coast Guard and the Governor of Svalbard have cooperation agreements concerning the Coast Guard’s support to the Governor of Svalbard in the exercise of authority, search and rescue, oil spill response operations, the supervision of protected areas and in connection with towing capacity. The Norwegian Coast Guard, the Governor of Svalbard, Norwegian Customs and the Norwegian Maritime Directorate cooperate on inspection duties related to vessels calling in Svalbard. The Norwegian Coast Guard and the Governor of Svalbard regularly carry out joint training exercises, and the Norwegian Coast Guard has ice-class vessels as well as helicopter decks that can be used by the Governor of Svalbard’s helicopters. The Norwegian Coast Guard normally has a continuous presence in the fisheries protection zone around Svalbard.

6.3.3 The Norwegian Meteorological Institute

The Norwegian Meteorological Institute issues weather and sea forecasts covering the sea areas north of the 65° N latitude. Additionally, the Institute maps ice conditions for use in navigation around Svalbard, and publishes updated ice maps on weekdays. Weather forecasts are updated twice daily. The Institute issues ordinary weather forecasts for the land areas on the island of Spitsbergen.

The Institute’s staff in Bjørnøya and Hopen represent a significant part of the infrastructure for emergency preparedness and search and rescue in the Arctic Ocean. Activities on Hopen and Bjørnøya include emergency preparedness and fuel storage for helicopter traffic.

6.3.4 Longyearbyen Community Council

Longyearbyen Community Council revised its overall emergency preparedness plan for Longyearbyen in 2023. The plan provides the framework for the work of the Community Council on emergency preparedness and crisis management.

Longyearbyen Community Council provides fire and emergency services, fire prevention tasks, alert services and ambulance services on behalf of Longyearbyen Hospital. In 2023, Longyearbyen Community Council prepared a risk and vulnerability analysis concerning adverse events.

6.3.5 Svalbard Airport

Svalbard Airport serves as an evacuation route for emergencies and medical evacuations, ensuring a continuous supply chain of critical personnel and equipment. Avinor has plans in place for dealing with accidents, acute pollution, threats, terrorism, sabotage and epidemics. The airport constitutes critical infrastructure for activities taking place on the archipelago. Health emergency preparedness, the business sector and the local community in general rely on access to efficient passenger transport to and from the mainland as well as easy access to goods and services from the mainland. Disruptions in air traffic can rapidly generate serious consequences for Svalbard’s inhabitants. The Government considers it important to prioritise air traffic supporting the needs of the local population as well as the needs of local businesses.

6.3.6 Norwegian Customs

Svalbard was established as a separate customs territory in May 2022. Norwegian Customs has established a physical presence in Svalbard with six customs officers, carrying out physical inspections of shipments being imported or exported. Over time, the aim is for the controls to align as closely as possible with those applied to the movement of goods to and from the mainland, with necessary adjustments for the local conditions in Svalbard, and with the obligations this entails for those involved in the transport of goods. See section 6.4.2 for a more detailed discussion of the control of movement of goods.

6.3.7 Health emergency preparedness

Health emergency preparedness for acute illness and injury in Svalbard and the surrounding waters is based on the staffing and competence at Longyearbyen Hospital, communication with the University Hospital of North Norway in Tromsø, and rapid evacuation to the mainland. Emergency medical services in Svalbard consist of an emergency medical communication service, emergency care, ambulance service, an anaesthetist from the emergency medical clinic in the ordinary air ambulance service with the Governor of Svalbard’s rescue helicopters, and air ambulances to the mainland if needed.

In 2022, the Northern Norway Regional Health Authority transferred all medical emergency calls from Longyearbyen Hospital to the Emergency Medical Communication Centre in Tromsø to increase the capacity of the service.

A process will be initiated for a review of the status of psychosocial emergency preparedness and follow-up in Svalbard.

Air ambulances

The Air Ambulance Services of Norway, the four regional health authorities’ national air ambulance service, is essential to efficient treatment, transport and emergency response in cases of acute illness and injury in Svalbard. The Air Ambulance Service has pre-positioned some equipment in Svalbard, enabling both short-range and jet air ambulances to be used for emergency response in Svalbard.

The Norwegian Directorate of Health has agreements with the relevant actors concerning reinforcement resources from the Norwegian Armed Forces, from civil aviation and from other countries. These agreements may be triggered in the event of major incidents, and are used to transport medical equipment and personnel from the mainland to Svalbard, or to evacuate injured patients from Longyearbyen.

Infection control and COVID-19

Neither resources, local emergency preparedness nor capacity in Svalbard were or are scaled to handle a prolonged epidemic. Therefore, Svalbard was prioritised when allocating vaccines during the COVID-19 pandemic. Quantitative restrictions for the tourism industry and testing requirements were introduced, and routines were established for the evacuation of infected persons to the mainland. In 2020, one of the Governor of Svalbard’s helicopters was equipped with an EpiShuttle, a medical isolation unit for the transportation of highly infectious patients.

The Longyearbyen Norwegian Red Cross Search and Rescue Corps

The rescue service in Svalbard is organised in the same manner as on the mainland, with a significant component of voluntary contributions. The Longyearbyen Norwegian Red Cross Search and Rescue Corps is a key actor, with 80 active volunteers and two specialised groups, an avalanche group and a glacier group. The Search and Rescue Corps has extensive material resources.

6.3.8 Other actors

A number of actors in Svalbard that are not primarily tasked with civil protection, rescue or emergency preparedness nevertheless have considerable emergency preparedness competence and are important for the overall emergency preparedness in Svalbard. This is reflected in the fact that the Svalbard Emergency Preparedness Council is made up of a wide range of public, voluntary and private actors, each of which possesses specialist knowledge of emergency preparedness work, as well as resources and equipment that are essential in the event of an incident. Local public, voluntary and private actors also have extensive knowledge of local conditions, which is crucial to the overall emergency response on the archipelago.

6.4 Specific topics

6.4.1 Emergency communication and coastal radio

Coastal radio service

A good coastal radio service is important for maritime activity around Svalbard. Telenor Kystradio provides a coastal radio service on behalf of the central government and continuously listens for emergency alerts over VHF (very high frequency) and MF (medium frequency/medium wave) from two manned coastal radio stations on the mainland, co-located with the Joint Rescue Coordination Centre. During rescue missions, the coastal radio stations ensure contact between the rescue service and the distressed party, as well as contact between ships providing assistance.

In 2021, improved HF (high-frequency/shortwave) coverage was established in the High North to strengthen emergency preparedness and ensure that Norway’s rescue responsibilities in the northern maritime areas are upheld. Emergency alerts are continuously monitored over HF (high-frequency) radio.

New emergency and preparedness communication system

On the mainland, emergency services and other preparedness actors use the Norwegian critical communication network Nødnett as their communication system when performing their tasks, while on Svalbard, Sysselnett is used as the main channel for such communication.

The existing Nødnett is based on outdated technology and will have to be replaced within a few years. In 2024, the Norwegian Directorate for Civil Protection (DSB) received an additional allocation of NOK 40 million to conduct a feasibility study for a new emergency and preparedness communication system. The feasibility study includes assessments of the possibility and need for additionally establishing a new critical communication network in Svalbard. The feasibility study is scheduled for completion in 2024.

Establishing a new, modern communication system in Svalbard would improve incident management and enhance the ability to swiftly mobilise resources from the mainland when needed. Similarly, this can provide emergency services and other preparedness actors with enhanced and more effective opportunities to support ongoing incidents and crises in Svalbard.

Emergency alert system

The central government’s new emergency alert system for mobile phones, Nødvarsel, was launched in February 2023. The population of Svalbard will receive national alerts in the same manner as the rest of the country, and local alerts can be sent exclusively to Svalbard if necessary.

Upgraded reserve satellite link

An enhanced reserve satellite link between Svalbard and the mainland has been operational since August 2022 and will initially last for three years. The reserve satellite link can be used in the event of a disruption to the fibre-optic cable connection, ensuring the continuity of basic telephone and mobile data services for all mobile phone users in Longyearbyen.

Communication, weather and Earth observation satellites

New communication and Earth observation satellites have been launched and additional satellites are planned with coverage in the Svalbard area. The Arctic Broadband Mission, owned by Space Norway, will provide broadband north of the 65° N latitude.

Several national small satellites can monitor ships or provide two-way communication between ships, satellites and land, and more satellites are planned through a collaboration between national authorities and commercial actors. This includes Arctic Ocean Surveillance a constellation of small satellites for maritime surveillance with good coverage in the Arctic. Satellites are currently used to map and warn of avalanches on the mainland, and the service will be extended to some areas in Svalbard in the coming years.

The Norwegian Meteorological Institute uses available satellite data for weather and climate mapping of Svalbard and the surrounding waters. Measurements from weather balloons in the atmosphere launched from Ny-Ålesund and Bjørnøya are important for good weather forecasting.

6.4.2 Identity control and control of movement of goods to and from Svalbard

Identity control in Svalbard

Identity controls in Svalbard were introduced in May 2022, cf. section 2.3.6. The Governor of Svalbard carries out identity controls in order to enforce the Regulations relating to refusal of entry or stay and expulsion of persons from Svalbard. Norway has a duty to refuse entry throughout its territory to persons covered by travel bans adopted by the United Nations and must also be able to loyally follow up other internationally adopted travel bans that Norway has endorsed. The introduction of identity controls in Svalbard means that the Governor of Svalbard’s authority and ability to inspect travellers’ identities has been enhanced and corresponds to the authority of the police on the mainland to carry out such controls.

Identity controls are mainly carried out at Svalbard Airport in temporary premises, in the field and on board vessels. Since its implementation in May 2022, identity controls in Svalbard have been sporadic, meaning that the Governor of Svalbard makes a selection based on various criteria, including checking passenger lists, and verifies the identities of passengers.

Control of movement of goods to and from Svalbard

Control of the movement of goods to and from Svalbard was introduced in May 2022, cf. section 2.3.6. Control of the movement of goods in Svalbard is important for the same reasons as those applicable for the mainland, including contributing to protecting society against the illegal import and export of goods by ensuring that restrictions imposed for reasons including public safety are observed, and to ensure that Norway complies with its international obligations. This includes preventing Svalbard from being used to circumvent sanctions and export control legislation.

In May 2022, Norwegian Customs established a separate unit for the implementation of control of movement of goods in Svalbard. Norwegian Customs carries out physical inspections of shipments imported to or exported from the archipelago. At Svalbard Airport, the extent of physical control of movement of goods is currently limited. Norwegian Customs also carries out control of movement of goods on ships arriving in Svalbard. The current level of control is based on a minimum solution without, among other things, the notification, reporting and disclosure obligations that apply on the mainland. Expanding the scope of identity checks and the control of movement of goods at Svalbard Airport will require an expansion of the airport premises.

It is the Government’s intention that, over time, the control of movement of goods should, as far as possible, correspond to the control carried out on the mainland, with any adaptations to local conditions. This will entail the introduction of obligations for actors involved in the movement of goods compared to the current situation. Any proposals for legislative amendments will be presented for public consultation.

6.4.3 Floods, avalanches and safety measures

Longyearbyen is vulnerable to avalanches, a risk that is exacerbated by climate change. Longyearbyen has been affected by two major avalanches in recent years. Two lives were lost in the avalanche in 2015. The avalanche in 2017 led to major material damage. In the aftermath of the avalanches, considerable resources have been used to prevent new avalanche accidents in central Longyearbyen.

The Norwegian Water Resources and Energy Directorate (NVE) has the overall responsibility for state administrative tasks in the prevention of flood and avalanche damage.

Since 2013, Svalbard has been covered by the assistance NVE provides to prevent flood and avalanche damage on par with municipalities on the mainland.

Foto: Martin Indreiten, Arctic Safety Centre

Alterting and evacuation

Longyearbyen Community Council is responsible for the safety of the inhabitants of Longyearbyen pursuant to the Regulations relating to the application of the Act relating to municipal emergency preparedness, civil protection measures and the civil defence and the emergency preparedness duty of Longyearbyen Community Council. Monitoring and alerting of floods and avalanches contribute to reducing the consequences of incidents and increasing the safety of persons residing and travelling in at-risk areas. The Norwegian Meteorological Institute issues warnings about precipitation that can lead to localised flooding and various forms of avalanches. The Governor of Svalbard, NVE and Longyearbyen Community Council are cooperating to prevent flood and avalanche damage in Svalbard. In addition to physical avalanche protection measures, the most important measures are alerting and possible evacuation in the event of avalanche danger. The Governor of Svalbard makes the decision to evacuate or restrict traffic, based on expert avalanche advice. NVE conducts regional avalanche forecasts for the Nordenskiöld Land region. There is also a local avalanche warning for Longyearbyen in collaboration between Longyearbyen Community Council, the University Centre in Svalbard and NVE.

Mapping of floods and avalanches

Hazard and risk mapping provides knowledge about which areas are at risk and the consequences of floods and avalanches. This is a prerequisite for systematic and effective flood and avalanche risk management.

The avalanche assessment carried out in 2023 shows that the risk of avalanches is significantly greater than previous mapping has shown. Several dwellings under the Sukkertoppen peak cannot be secured by physical installations. The report shows that Longyearbyen will continue to be vulnerable to various types of avalanches after the commenced physical safety measures have been established. Once the centre of Longyearbyen has been secured, the risk will be greatest for buildings in Nybyen and parts of the port area. For a number of reasons, it is not desirable to accommodate residency in Nybyen, including dwellings, and the area will not be prioritised for avalanche protection measures.

Flood and avalanche protection

In this context, protection measures involve physical installations and other measures to reduce harmful effects of floods and avalanches on people, buildings and infrastructure. Safety measures in Svalbard are funded in the Svalbard Budget and through the allocation to NVE from the Ministry of Energy.

The consequences of avalanches in Longyearbyen are particularly great for the town centre below the Lia and Sukkertoppen peak area, as well as the area along Vannledningsdalen. These areas were particularly vulnerable to both snow and slush avalanches. On this basis, these areas have been prioritised for avalanche protection.

The avalanche protection measures in the Lia area were initiated in 2019 and completed in 2023 at a cost of NOK 170 million. The safety measures consist of support structures on the mountainside and a retaining wall below the mountainside.

The protection measures against mudslides from Vannledningsdalen were initiated in 2022 and are expected to be completed in 2024 at a cost of NOK 105 million. The protection measures consist of an avalanche net and an erosion-control berm along the river. NVE has been responsible for implementing the safety measures below Sukkertoppen and in Vannledningsdalen.

NVE completed the flood and erosion protection of the Longyearelva river in 2019. Following subsequent floods, the protection measures have undergone upgrades and maintenance. A total of around NOK 50 million has been spent on the protection system along the Longyearelva river.

Photo: Eva Therese Jenssen, Governor of Svalbard

6.4.4 The Total Preparedness Commission

In June 2023, the Total Preparedness Commission submitted Norwegian Official Report (NOU) 2023:17 The time is now – Prepared for an uncertain future to the Minister of Justice and Public Security. The Commission’s report addresses, among other topics, emergency preparedness in Svalbard. In the report, the Commission emphasises various strengths of the emergency preparedness in Svalbard.

The report highlights security of supply as a challenge, and that there is a need to clarify what businesses and suppliers are expected to deliver to Svalbard in a crisis situation. The Commission recommends measures to ensure increased resilience and redundancy in Svalbard in various areas such as electronic communications, water supply and energy sources. In addition, the Commission highlights the limitations of health emergency preparedness in Svalbard in the event of major incidents. The Commission points out the need for guidelines in cases of accidents involving cruise ships.

6.4.5 Security of supply

Longyearbyen is not connected to a larger, external system for water or energy. This underscores the importance of having adequate local emergency preparedness for critical infrastructure.

Longyearbyen relies on the importation of virtually everything that is used on the archipelago, including food and other consumer goods, medicines, fuel and spare parts. Longyearbyen is thereby vulnerable to supply line disruptions. The Governor of Svalbard has established plans regarding security of supply.

By virtue of authority as county governor, the Governor of Svalbard has the coordinating responsibility for public safety and emergency preparedness in Svalbard. This includes security of supply for energy. In March 2024, the Governor of Svalbard requested assistance from the Norwegian Armed Forces via the Norwegian Directorate for Civil Protection in implementing measures that would improve the redundancy of energy supply in Longyearbyen in the short-term. The Governor of Svalbard requested assistance following a comprehensive assessment, whereby it was determined that there was a need to quickly improve security of energy supply. Throughout the process, Longyearbyen maintained sufficient energy capacity. However, it was determined that there was a need to enhance the reserve capacity.

The Norwegian Armed Forces was the authority that could most rapidly deliver compatible generators to Svalbard. It is established customary practice that the Norwegian Armed Forces can assist in incidents in Svalbard, and the Norwegian Armed Forces carried out a civilian mission using a C-17 Globemaster aircraft. The Norwegian Armed Forces provided generators to the local community in Longyearbyen and provided the necessary personnel for connection and training. To increase the redundancy of energy supply in the longer term, two former mining generators belonging to Store Norske Spitsbergen Kulkompani, which Svalbard Energi has been authorised to use, were integrated into the Longyearbyen energy system. The incident illustrates the overall impact of total preparedness in Norway, where resources from the mainland were rapidly transported to, and installed in, Svalbard, and where locally-available resources were gradually phased in.

Photo: Stein Olav Bredli, The Governor’s office

6.5 Shipping, maritime safety and emergency response against acute pollution

6.5.1 General information about maritime activity and navigation in the Arctic

Maritime activity and navigation in the waters around Svalbard has increased in recent years. This type of maritime activity entails specific operational challenges, while the geographical area where the activity takes place encompasses significant natural values vulnerable to impact. The location of the archipelago and its climatic conditions pose challenges to maritime safety and emergency preparedness around the archipelago. In order to ensure sustainable development in the High North and to prevent accidents and harmful discharges, it is important that maritime activity operates with high safety and environmental standards, and that the legislation is adapted to the prevailing conditions. Measures to prevent accidents include requirements for ships and crews, maritime infrastructure, traffic monitoring and services such as the pilot service. In addition, it is important to be prepared in the event of an accident.

Compulsory pilotage

Compulsory pilotage in Svalbard applies within the baseline and generally to vessels of 70 metres in length or more, but with a lower limit of 50 metres for passenger vessels and vessels carrying hazardous and polluting cargo. The Norwegian Coastal Administration has its own pilot station in Longyearbyen, which is staffed by pilots from the Troms and Finnmark pilot crews. The pilot boat is operated by the Port of Longyearbyen.

Lighthouses and beacons

Lighthouses and beacons are visual or radar-based devices used for position tracking and safe navigation along coastlines. The Norwegian Coastal Administration and the Norwegian Polar Institute cooperate on the operation and maintenance of navigational aids in Svalbard. The extent of the marking is concentrated around the areas with most maritime activity. The establishment of virtual navigational aids is being assessed and is viewed in the context of the development of other maritime safety measures in Svalbard.

6.5.2 Legislation

The 1982 United Nations Convention on the Law of the Sea forms the legal framework for the use of the sea. As with maritime activity in other waters, shipping in polar waters is covered by international conventions laid down by the International Maritime Organization (IMO), a specialised agency of the United Nations. The Polar Code was adopted by the IMO in 2014 and entered into force on 1 January 2017. It contains globally binding rules for ships operating in polar waters. The Polar Code consists of two parts: a safety part and a pollution prevention part.

The code sets specific requirements for ship design and construction, equipment, operation, protection of the marine environment, navigation and crew certification. The most important environmental requirements concern discharges of oil, chemicals, sewage and litter.

One significant contribution to regulating and facilitating safe maritime traffic around Svalbard has been the adoption of the same legal framework for maritime safety that applies to the mainland. For Norwegian ships, the Act of 16 February 2007 No.9 relating to ship safety (the Ship Safety Act) applies regardless of where they are located. The Ship Safety Act applies to all ships, including foreign ships, within the territorial waters of Svalbard, with certain adaptations. According to the legislation, the Norwegian Maritime Directorate has the authority to carry out port state control of foreign-registered ships. The Act of 21 June 2013 No. 102 relating to employment protection, etc. for ship workers (the Ship Labour Act) applies to employees who work on board Norwegian ships, regardless of sailing location, including Svalbard.

On the 7^th of June 2019, the Norwegian Maritime Directorate adopted new regulations on the construction, equipping and operation of passenger ships in the territorial waters of Svalbard. The purpose of the rules was to raise the safety level for all passenger ships operating in the territorial waters of Svalbard.

The new Port Act entered into force on 1 January 2020. The Act replaces the 2009 Port Act and the 2014 Pilotage Act, and consists of a section on navigable waters and a section on ports. The Act was made applicable to Svalbard by the Regulation of 12 March 2021 No. 721 relating to ports and navigable waters in Svalbard, with certain adaptations.The Ministry of Trade, Industry and Fisheries, represented by the Norwegian Coastal Administration, is responsible for the management of navigable waters and has the authority to stipulate specific navigation measures such as traffic restrictions.

The International Ship and Port Facility Security (ISPS) Code has been made applicable to Svalbard. There are five port facilities approved for international shipping – four in Longyearbyen and one in Ny-Ålesund.

6.5.3 Satellite communication and digital information systems

Well-functioning communication systems are a necessary prerequisite for safe navigation and for efficient and safe rescue services and emergency communication. However, existing satellite communication systems have little or no coverage north of the 75° N latitude. It is important to establish good communication solutions for the seas of the High North.

The Automatic Identification System (AIS) is an automatic identification system that contributes to enhancing the safety of ships and the environment and improving traffic monitoring and maritime traffic services. There are 21 AIS base stations in Svalbard, providing an overview of maritime traffic in most of the fjords, along the coast and extending out to a distance of about 100 kilometres. Further from the coast, maritime traffic is monitored using satellites with AIS receivers. The Norwegian Coastal Administration publishes traffic information from Svalbard. The information is available to all maritime authorities, fisheries authorities and border control authorities.

ArcticInfo is a service specifically aimed at fishing boats, cruise traffic and research and expedition vessels, which dominate traffic in Arctic areas. The service contributes to providing seafarers with information about sailing conditions in Arctic waters and offers a range of services that are important for safety, accessibility and the environment in the Arctic. ArcticInfo is developed by BarentsWatch.

The Iridium SafetyCast satellite service has been operational since 2021. The service ensures that vessels travelling in polar regions receive emergency and safety alerts.

6.5.4 Reference routes and maritime security in Svalbard

A reference route is a quality-assured and recommended route from the Norwegian Coastal Administration, containing information relevant to the voyage, providing support for the vessels’ route planning. The Norwegian Coastal Administration has prepared 22 reference routes for maritime traffic in Svalbard, which have now been made available to shipping.

6.5.5 Emergency preparedness against acute pollution

The Svalbard Environmental Protection Act stipulates that anyone engaged in activity in Svalbard has a duty to prevent acute pollution and to ensure that measures are taken if pollution occurs. The Norwegian Environment Agency sets requirements for the emergency preparedness of businesses in Svalbard. The Norwegian Coastal Administration is the supervisory authority and may delegate this authority to the Governor of Svalbard. Acute pollution is included in the Governor of Svalbard’s risk and vulnerability analysis for 2022–2026. A ban on heavy fuel oil has been introduced for ships calling at the territorial waters around Svalbard, see section 3.4.

In 2022, the Norwegian Coastal Administration conducted an environmental risk and preparedness analysis for all of Norway. The analysis indicates that the response time to incidents in Svalbard can be long and that access to resources is limited. Therefore, the Norwegian Coastal Administration has expanded its emergency response capacity by entering into agreements with four new vessels for coastal preparedness located in Longyearbyen.

6.6 NOU 2022: Cruise traffic in Norwegian waters and adjacent sea areas

In February 2022, the Cruise Committee submitted the report NOU 2022: Cruise traffic in Norwegian waters and adjacent sea areas to the Minister of Justice and Public Security. The Committee concluded that it is not possible to scale the emergency preparedness and response system for an incident involving a cruise ship with several thousand passengers on board. The report focused primarily on probability-reducing measures to reduce the risks of cruise activity, as well as measures to strengthen existing emergency preparedness. The consequence-reducing recommendations regarding reducing the consequences of potential incidents are aimed at improving the quality of the existing emergency preparedness and management where appropriate. Some of the recommendations of the Committee relate specifically to maritime safety in Svalbard. The report states that there are limited rescue resources available locally, and that an incident involving a cruise ship in the waters around Svalbard could have major consequences.

Photo: Tommy Dahl Markussen

Limiting the number of cruise ships and the number of people on board cruise ships

A majority of the Committee members recommended introducing a limit of 500–750 people on board cruise ships in the territorial waters of Svalbard. The majority of the Committee members noted that regulating the number of people on board is necessary from an emergency preparedness perspective, due to the aforementioned capacity limitations in emergency preparedness.

A considerable regulatory effort for Svalbard was initiated in 2020, in part in order to ensure that the relevant legislation contributes to limiting the adverse environmental impact of traffic and improving the safety of persons travelling in the field. The proposed amendments are not intended to limit the number of tourists that may visit Svalbard, but rather regulate where and how access and passage can take place.

Cruise activity on aggregate is increasing, putting pressure on the environment, emergency preparedness and infrastructure. It is therefore necessary to assess the extent of this activity. The Government will introduce a limit on the number of persons on board cruise ships in the territorial waters around Svalbard. The Government will additionally consider limiting the number of cruise ships in the territorial waters around Svalbard. It will be further investigated how such regulations can be designed. and the tourism industry will be consulted.

Risk assessment guide and sailing in close proximity

The Cruise Committee recommends developing a risk assessment guide for the cruise industry, and that the authorities should encourage the cruise industry to cooperate with other vessels to sail in close enough proximity to one another in order to provide aid when sailing in areas with a long response time for rescue resources.

As a coastal and port state, it is important for Norway that risk assessments are carried out based on the most up-to-date information possible on risk conditions specific to Norwegian waters. Furthermore, an encouragement from the authorities to the cruise industry to sail in close proximity to each other could be a risk-reducing measure to alleviate limitations in expected assistance from emergency resources. This is particularly true for shipping companies aiming to offer tours in very remote areas or in shoulder seasons with little other traffic.

The Ministry of Trade, Industry and Fisheries has commissioned the Norwegian Maritime Authority to prepare a risk assessment guide for the cruise industry. The guide shall encourage the cruise industry to partner with other vessels on sailing in close enough proximity in areas with a long response time for rescue resources.

Moreover, the guide shall emphasise that cruise ships have limitations as rescue vessels, and that in certain situations they risk endangering their own ship and those on board by providing assistance to a casualty. The guide will be prepared as a collaboration between the Norwegian Coastal Administration, the Joint Rescue Coordination Centres, the Governor of Svalbard and relevant industry actors.

The Norwegian Civil Defence

The Cruise Committee recommends that the Norwegian Civil Defence be given the opportunity and resources to provide assistance in Svalbard in the event of serious incidents. The Norwegian Directorate for Civil Protection has been commissioned to commence work on establishing the Norwegian Civil Defence as a reinforcement resource in Svalbard.This includes pre-stocking equipment for the Norwegian Civil Defence in Svalbard, as well as entering into an agreement with a civil defence unit on the mainland to assist as a reinforcement resource in Svalbard in the event of serious incidents.

Competence building

The Cruise Committee recommends that the Norwegian authorities should require all deck and engineer officers on passenger ships operating in Svalbard to have basic qualifications and adapted courses based on the Polar Code.

Operating ships in polar waters poses special operational challenges for both ship and crew. The competence of seafarers is a key element in ensuring good maritime safety and reducing the likelihood of adverse events at sea. Therefore, it is important to work on general competence building for all actors operating in polar waters.

Ships with a certificate for international voyages are required to have a Polar Ship Certificate, and deck officers certified in accordance with the Polar Code are already required to take basic courses based on the Code. Currently, ships over 24 meters in length but with a gross tonnage of less than 500 that transport up to 12 passengers in Svalbard are not subject to certification. The Ministry of Trade, Industry and Fisheries has commissioned the Norwegian Maritime Authority to make the necessary regulatory amendments so that such ships are also subject to the requirements for basic courses based on the Polar Code.

The Ministry of Trade, Industry and Fisheries considers the existing basic training programme for engineer officers to provide sufficient training and competence in handling technical equipment exposed to low temperatures.

The Cruise Committee further recommends that Norwegian authorities, in cooperation with the cruise industry, establish requirements for employees on board who play a key role in connection with evacuation from passenger ships operating in Svalbard to have completed a supplementary course in passenger and crisis management with a focus on the challenges in polar waters.

The current international regulatory framework does not adequately cover training in handling additional risks that may arise in connection with crisis management in polar waters. The Government aims to strengthen the competence of seafarers in crisis management on passenger vessels operating within the entire scope of the Polar Code, and will therefore work to establish global, binding requirements through the IMO’s ongoing revision of the International Convention on Standards of Training, Certification and Watchkeeping for Seafarers (STCW).

Hydrographic surveying and nautical charts

The Cruise Committee recommends strengthening the Norwegian Mapping Authority’s capacity for work on nautical mapping and nautical chart production. In the period since the last report to the Storting on Svalbard was presented, there has been an increase in hydrographic surveying around Svalbard. No hydrographic surveys were carried out in 2020 or 2023 due to COVID-19 and maintenance of the Norwegian Mapping Authority’s ships respectively. Surveys from 2017 to 2023 have totalled 8,286 square kilometres. The Norwegian Mapping Authority is working on the Nautilus IT project, which will improve the capacity for producing nautical charts and distributing collected data. This will benefit the waters around Svalbard by shortening the time it takes from surveys are conducted until the data can be utilised.

Aviation safety level

The Arctic climate increases the aviation safety risk in Svalbard compared to similar operations on the mainland. At present, Svalbard Airport has a local aerodrome flight information service (AFIS officers) but no air traffic control service (air traffic controllers). The Regulation on additional requirements for air transport operations in Svalbard and other polar regions imposes a number of additional requirements for flight operations internally in Svalbard, both in the form of additional training requirements for the crew and special equipment requirements pertaining to the aircraft. Meteorological specialists are also stationed at Svalbard Airport.

Svalbard Airport is a Class C Airport, which allows the Norwegian Civil Aviation Authority to set special requirements for routes, areas or airports based on specific conditions. The Norwegian Civil Aviation Authority notes a slight increase in reported aviation safety incidents in Svalbard in recent years. However, the overall figures are few, and it cannot readily be concluded that the increase reflects a trend.

6.7 Measures

• Follow up various risk and vulnerability analyses for Svalbard together with the Governor of Svalbard, Longyearbyen Community Council and other relevant actors.

• Finalise the commenced avalanche protection measures in Longyearbyen.

• Transfer local avalanche warnings in Longyearbyen to Longyearbyen Community Council in the long term.

• Facilitate the gradual development of control of movement of goods in Svalbard, and present any proposals for regulatory amendments for consultation.

• Assess how the current system for emergency and preparedness communication in Svalbard can be replaced by a new critical communication network.

• Introduce a limit on the number of persons on board cruise ships in the territorial waters around Svalbard.

• Consider limiting the number of cruise ships in the territorial waters around Svalbard.

• Prepare a risk assessment guide for the cruise industry.

• Introduce a requirement for deck officers on ships over 24 meters in length but with a gross tonnage of less than 500 which transport up to 12 passengers in Svalbard to have completed a basic course based on the Polar Code.

• Work within the framework of the IMO to establish global, binding requirements for refresher courses in passenger and crisis management with a focus on the challenges in polar waters.

• Ensure that priority is given to air traffic at Svalbard Airport that supports the needs of the local population and local business.