Security Policy 2008–2015 by Siseministeerium

SECURITY POLICY 2008–2015

Compiled by: Karin Kase, Kati Päike, Viola Mäemurd Editor: Maris Sander Layout and printing: Auratrükk / Britta Roman Published by: Ministry of the Interior Pikk 61, 15065 Tallinn www.siseministeerium.ee “Security Policy 2008-2015” on the web: http://issuu.com/siseministeerium/docs/security_policy ISSN 2228-0626

Security Policy 2008–2015 Summary of the implementation of the “Main guidelines of Estonia’s security policy to 2015” in 2015

Dear reader, The implementation of the main guidelines of Estonia’s security policy, outlined in 2008, has reached a point where we look back at the process and proceed with the new Internal Security Development Plan 2015–2020. This publication summarises, through eight major fields, the efforts that the Ministry of the Interior and its agencies made both in 2015 and throughout the preceding period in order to make Estonia an even safer place for us all. I am pleased to note that 92% of the Estonian population considered Estonia a safe country last year. This is more than the European average. Moreover, according to an analysis by the market research company Turu-uuringute AS, the three most reliable institutions in Estonia are the Rescue Board (94%), the Emergency Response Centre (88%) and the Police and Border Guard Board (86%). One of the focal points for last year was certainly the border and the issues surrounding it. Cleaning up the border was almost completed, construction began on the Piusa guard station, Narva border crossing point was completed and the border guard special unit became operational. We also began drafting the construction design of the border and installed the first new border posts. As we are aiming to construct the most modern border in Europe, and possibly in the whole world, by the 100th anniversary of the Republic of Estonia, we are still going to be busy with the project for several years to come. A matter very close to my heart is that staff cuts in my area of administration slowed down, compared to previous years. It is impossible to ensure internal security without people. The clear messages that the work

Hanno Pevkur Minister of the Interior

of police and border guard officers should not be disrupted meant that the Police and Border Guard Board was spared from staff cuts last year. An increase in the internal security budget also allowed us to raise the salaries of operational staff, which has hopefully increased motivation among our employees. I am also pleased by the fact that Estonia now has more active volunteers than ever before and that the people’s individual contributions to safer communities are bearing fruit. The total number of offences has decreased and the number of fatalities by accidents is also the lowest ever. Nevertheless, there are still far too many fatalities. Each life lost is one too many for our small country and we must step up our joint efforts to prevent people from getting killed. In addition to ensuring everyday security, we need to pay ever‑increasing attention to the fight against terrorism. Partners are a definite necessity in this, and we have enjoyed excellent cooperation with them: a perfect example is ATHOS, an international special units exercise held in south-eastern Estonia, which will be followed up already this year. I could carry on touching upon the topics of all the chapters, but instead I urge you to read this whole document to gain a clear understanding of all the issues. I close this introduction by thanking all the people who helped the Security Police officer Eston Kohver return home to his family. Enjoy your reading.

Table of contents “Main guidelines of Estonia’s security policy to 2015” 1. Community security 6 2. Internal security 20 3. Crisis management 36 4. Rescue work 44 5. Border surveillance 60 6. Citizenship and migration 68 7. Human resources and agencies 82 8. Resources 96

How did the “Main guidelines of Estonia’s security policy 2008–2015” come to be? Karin Kase Editor of the “Main guidelines of Estonia’s security policy 2008–2015”

In late 2006, the Ministry of the Interior was working on two major ideas: joining the police and border guard into one institution and the need for a comprehensive internal security development plan. In early 2007, the task of coordinating the preparation of the internal security development plan was assigned to Lauri Lugna, who was then head of the Crisis Management Department and is now Secretary General of the Ministry of the Interior. “Back in early 2007, we tried to approach the topic of internal security as broadly as possible. What are the factors that actually impact our security environment? Oil prices, wars, famine…,” Lugna recalls. Ten task forces were assembled, with a total of 81 institutions participating. “Instead of drafting a dry text, we set about to begin branding internal security topics. This led to titles such as “An improved sense of security”, “Safer traffic”, “Better property protection”, etc. The debates we had...,” Lugna reminisces. After the parliamentary elections of 2007, the government wanted to pare down development plans, and we then fashioned the material collected for a development plan into the main security policy guidelines, which the parliament of Estonia adopted on 8 June 2008.

“In that sense the document was fitting, as it established the main trends and elaborated just enough, neither too much nor too little,” Lugna says, looking back. The primary value of the main security policy guidelines is that we had one document forming the basis for the strategic management of internal security. The main guidelines also clarified the Estonian terminology, shifting the meaning more towards the notion of safety.

Still relevant after seven years A lot has happened both in the world and in Estonia in seven years. The security situation has changed, and the issues of terrorism and migration have become more relevant. The criminals have also learned new tricks, with cyber‑crime as one of the rising “sectors”. Considering all this, are the guidelines that were penned seven years ago still relevant? “Most of them are,” Lugna replies. “Generally, these main guidelines served their purpose really well, giving us a chance to take our issues to the parliament once a year. We also had to open the document every once in a while and concede that there were still things to be done. All this gave the efforts a more concrete direction and aim.”

A conference dedicated to the main security policy guidelines in 2007. Photograph provided by Lauri Lugna

Internal security authorities have undergone several structural reforms since 2008: the police and border guard were merged in 2010, the Rescue Board has experienced structural changes, and the Emergency Response Centre and the Ministry of the Interior’s IT and Development Centre were launched as independent agencies. At the same time, there have been significant staff cuts: there are a little more than 8,000 people in the area of administration now, instead of the almost 10,000 people back in 2008. During the same period, the internal security budget has increased from 282 million euros to 338 million euros, or by 20%. However, we must also factor in an increase of almost 15% in prices, which reduces this volume in real terms. Most indicators have improved over the past seven years. For example, back in 2007, 21% of households

were concerned about crime in their communities, whereas close to 12% of the respondents were of this opinion in 2015. Drug‑, fire‑ and drowning‑related deaths are also on the decline. This summary touches on all these topics and on many other important issues that have characterised internal security over the past seven years. This year is the last time that the Minister of the Interior will be reporting to the parliament on the main security policy guidelines. In 2014, the Ministry of the Interior reconvened the partners and began preparing an internal security development plan to 2020. Work on the principles and measures set forth in the main security policy guidelines will continue in the framework of the new Internal Security Development Plan, adopted in 2015.

Community security

Security is based on strong communities Eimar Veldre Adviser, Law Enforcement and Criminal Policy Department

Community has become the word du jour – initially, in terms of civil society and more recently, also in terms of security. Although communities were not discussed directly when the main security policy guidelines to 2015 were approved in 2008, the objective had been set: a secure living environment must be created with the participation of the people, local governments, and the private and non‑profit sectors, allowing them to be involved in making decisions that affect them.

Security – a task for the authorities or for everyone involved? The question of who is responsible for ensuring security has become more relevant only in the past two years. Before that, a development like the rescue units reform created a surge of volunteer units but also led to the realisation that people are divided in their attitudes: is security mainly in my own hands and in the hands of every individual or is it rather a task for the authorities dealing with security on a daily basis? The results of a national poll conducted in 2013 by Turu‑uuringute AS revealed that about two-thirds of the respondents considered the police and rescue authorities responsible for security. The same poll yielded slightly different results in 2015: a little over half of the respondents considered security the responsibility of the police and rescuers and already 37% were of the opinion that people themselves should actively participate in ensuring security and rescue capabilities in their communities.

Studies show that the people who value individual contributions in maintaining security have usually volunteered themselves or have witnessed volunteer efforts in their communities. In addition, people are willing to contribute to creating security in their communities and to designing their living environment in more general terms if there are local activists in the communities. As a result, the presence of activists has often been the decisive factor in creating neighbourhood watch areas and volunteer rescue and volunteer maritime rescue associations and in recruiting assistant police officers. Never before have state authorities and local governments contributed to security volunteering as much as they did in 2015. The budgets of the Ministry of the Interior, Police and Border Guard Board and Rescue Board included a total of 1.8 million euros for training, supplying and reimbursing assistant police officers, volunteer rescuers and maritime rescue volunteers and neighbourhood watch participants and for supporting the corresponding volunteer associations. For example, the police contributed 240,276 euros to training and supplying assistant police officers, and maritime rescue volunteers received 91,666 euros in support. Various volunteer umbrella organisations received a total of 134,585 euros in activity support and project grants. To foster community security, the Ministry of the Interior also organised a national call for proposals in the amount of 200,000 euros and allocated the same amount to county‑level calls, organised with county governments. At the same time, money is not always the only issue.

1. Community security

A major challenge in the coming years for the authorities and associations working towards a safe living environment lies in their capability to prevent accidents and offences, and to cooperate to that end. A community‑based approach to security is not common everywhere and we still need to work on bringing the representatives of different domains and regions behind the same negotiating table. It is important to allow every individual greater say in the issues of security. Hence the tasks for the state: to promote people’s awareness and skills (educational system), to draft conducive legislation and to ensure the capabilities of the relevant authorities, and more generally, to support and recognise the non‑government organisations contributing to security.

We are creating county security councils for promoting local cooperation It is inevitable that the reforms and centralisation have also affected the capability of the police and other security authorities in relating with communities and contributing to decisions at the local level. In early 2009, we launched the process of creating a central police administration, concentrating the decision‑making level in Tallinn. The changes introduced in 2014, in their turn, expanded the authority of police department heads in solving local problems, as they became responsible not only for patrolling, regional work and prevention, but also for offence procedures. This makes the police more consolidated in the eyes of the people. At the same time, the capabilities of local governments vary greatly in Estonia, and considering that governing is becoming more centralised and that each authority communicates with people and local

governments directly through their agencies, the messages conveyed are sometimes scattered and contradictory. As a result, the level of security in Estonia varies considerably from region to region. To alleviate this tendency, the Ministry of the Interior has launched a process where counties are working with the police, Rescue Board and local government associations in setting up security councils in each county. The councils will be tasked with identifying security problems in the counties and agreeing on common solutions as well as promoting a spirit of cooperation and spreading a community‑based approach.

We must recognise security volunteers and activists Although internal security staff cuts will be inevitable, this is by no means a reason or justification for why we need more community initiative. Despite the fact that there were significantly more law enforcement officers, rescuers and other internal security staff in the past, the accident and crime numbers of that period in no way indicate that the more police and rescue staff we have, the safer it is. For example, neighbourhood watch areas are safer if only because they have incrementally less thefts than other areas. The greatest challenge lies in the contribution of every Estonian resident. The willingness to notice, the readiness and capability to contribute and the cooperation of local people, security authorities and local governments in neighbourhoods, communities and villages and in all of society are what makes Estonia a free and safe country. The role of state authorities, rural municipalities and towns in meeting this challenge is to support today’s volunteers and their associations and to recognise the pioneers.

Eimar Veldre

Marit Mätik

Adviser, Law Enforcement and Criminal Policy Department

Compared to seven years ago, Estonia has multiplied its numbers of volunteer rescue associations and members: in 2011, we had 295 certified rescue volunteers, whereas the number increased to 1,768 by 2015. Rescue volunteers are also involved in more rescue events. In 2015, volunteers participated in a total of 3,451 rescue events, and in 819 cases rescue volunteers were the first on the scene.

Volunteer support for rescue professionals Harju, Lääne, Tartu and Viru counties have established reserve rescue units, which allows them to quickly mobilise the human resources needed for extensive or long‑term rescue efforts, including searching for people. In 2013, the Nõmme rescue unit was the first to offer volunteers an opportunity to be on call and respond to accidents together with rescue professionals. That way, the professionals can concentrate on life‑saving efforts, while the volunteers support them. As volunteers are very willing to contribute to security, the rescue volunteers of Rõngu and Võsu have been included as first responders to water accidents since 2013 and 2014, respectively. This new form of cooperation helps include more rescue volunteers and provides people quicker assistance with water accidents. The Ministry of the Interior and the Rescue Board continue to develop cooperation with volunteers, particularly in terms of responding to water and traffic accidents.

1. Community security

The numbers of volunteers are on the rise

Adviser, Border Guard Policy Department

The beginnings of modern volunteer maritime rescue capabilities date from 2007, when the first volunteer associations were formed. A major leap forward occurred in 2008, when the border guard and maritime rescue volunteers held their first joint exercise at Käsmu and international projects were launched. In April 2010, the Estonian‑Finnish joint project VOMARE (Voluntary Maritime Rescue) culminated in forming the Estonian Maritime Rescue Organization, an umbrella organisation for volunteer maritime rescue associations. It now has 19 members, of whom four concentrate on inland waters and 14 have concluded maritime rescue contracts with the Police and Border Guard Board.

Figure 1. Rescue events where volunteer rescue units were involved Source: Rescue Board 3500

3063

3000 2500

1941

2000 1500 1000 500 0

585 2009

789

996

1049

2010

2011

2012

1258

2013

2014 2015

1. Community security

10 Another umbrella organisation for Estonian maritime rescue volunteers is the Estonian Volunteer Rescue Association, which has 103 members that manage 105 land and 31 maritime rescue units. Nineteen association members have concluded maritime rescue contracts with the Police and Border Guard Board.

Table 1. Security volunteers 2008

2013

2015

Assistant police officers

3000

805

1000

Rescue volunteers

603*

1281

1768**

No official status

Act entered into force

237

Neighbourhood watch areas

355

514

570

Households involved

9270

10780

11551

Maritime rescue volunteers

* Members of rescue associations ** Trained rescue volunteers Volunteer maritime rescue has had official status in Estonia since 1 September 2012, and maritime rescue associations have concluded civil law maritime rescue contracts with the Police and Border Guard Board for fulfilling state duties. They primarily participate in various projects, using maritime rescue equipment and technology acquired with state support. Concluding maritime rescue contracts with the Police and Border Guard Board provided the same social guarantees enjoyed by police officers to the maritime rescue volunteers who had passed maritime rescue association level I and II training and been certified thereafter. The status of a certified maritime rescue volunteer is also required of the associations for the reimbursement of their maritime rescue related expenses, such as communications and fuel. In addition, the Police and Border Guard Board supports the associations with routine repairs and acquiring maritime rescue equipment as well as with counselling.

The willingness of the state and volunteer rescue associations to cooperate is evidenced by long‑term cooperation agreements signed on 14 January last year at the Ministry of the Interior. According to Hanno Pevkur, Minister of the Interior, the aim was to provide assurance for the future of volunteer umbrella organisations and to reinforce inter-institutional cooperation in creating security and developing volunteering. The willingness to cooperate with maritime rescue volunteers is also demonstrated by the joint seminars held at the opening and closing of the navigation season, organised annually by the Police and Border Guard Board. As another important milestone, we are working this year on drafting the national guidelines for the development of volunteer maritime rescue, which will be approved as a state document at the end of the year.

Table 2. Number of volunteer maritime rescue asso‑ ciations holding maritime rescue contracts Source: Police and Border Guard Board Estonian Maritime Rescue Organization

Estonian Volunteer Rescue Association

TOTAL

Since 2008, the number of assistant police officers has decreased by 2,000: in 2008, we had close to 3,000 assistant police officers; in 2013 the number was down to 805, and by late 2015, it was about 1,000. The number of assistant police officers soared after the April riots of 2007, which proved that people are willing to step up as volunteers if security is threatened. After those events, however, the number of active assistant police officers began to decline, when it turned out that most of them wanted to assist on a case‑by‑case basis at major occasions, while others preferred a more permanent role in police patrolling and prevention. Over the past seven years, close to 1,000 households have joined a neighbourhood watch, although the initiative was affected by the recession, which diminished people’s interest in creating neighbourhood watch areas.

Quick responders: Tallinn volunteer maritime rescue The Tallinn volunteer maritime rescue (Tallinn SAR), established in 2014, has taken volunteer maritime rescue to a new level. It is the first volunteer maritime rescue association to be on call 24/7 with 15 and 30â&#x20AC;&#x2018;minute response times. This is possible because the association has a very large membership: in late last year, it counted 54 trained and 32 certified maritime rescue volunteers.

The advanced level of skills and knowledge of the Tallinn SAR maritime rescue volunteers is evidenced by the fact that they won first place in the Estonian professional maritime rescue competition, held on 9 October last year. They won in the categories of both best team and best team leader; the latter prize was awarded to Andrus Poksi, member of the associationâ&#x20AC;&#x2122;s management board.

The Tallinn SAR team, winner of the professional maritime rescue competition. From left: Andrus Poksi, Andres Juul and Olari Malt. Photograph: Andri Meius

1. Community security

Estonia is a safe place to live Ain Peil

Jenny Jakobson

Adviser, Law Enforcement and Criminal Policy Department

Security means a stable living environment where people feel protected and where it is safe to live. As a sense of safety is a basic human need, one of the major tasks of the state is to ensure this sense of safety for its people. The word security often inspires a fear of crime. But as is also reflected in the newly completed Internal Security Development Plan 2015â&#x20AC;&#x201C;2020, crime is not the sole factor affecting the security and sense of safety among Estonian people. It is also true that this was not always so.

Fear of crime has decreased According to Eurobarometer surveys, crime was for a long time one of the main concerns of Estonian people since the restoration of independence. It took almost two decades before it was no longer considered one of the three main problems facing the country, and since 2009, people have identified other social problems as major national challenges. Compared to other European Union countries, Estonian residents worry about crime less than people in Europe on average.

Figure 1. Percentages of Estonian and European Union residents who consider crime the main issue in their country Source: Eurobarometer spring (S) and autumn (A) standard surveys 50 45 44 40 33 35 30 26 25 24 24 22 20 19 20 16 15 14 16 17 12 12 15 11 11 11 11 13 9 9 10 10 12 9 8 3 9 5 7 7 7 7 6 6 5 0

K07 s07 k08 s08 k09 s09 k10 s10 k11 s11 k12 s12 k13 s13 k14 s14 k15 s15

Adviser, Law Enforcement and Criminal Policy Department

The past decade has also seen a significant reduction in the percentage of people who consider neighbourhood crime a problem. According to the Estonian Social Survey of 2007 conducted by the Statistics Estonia, 21% of households were concerned about crime, while close to 12% of the respondents had that concern in 2015.

Figure 2. Percentage of households that consider neighbourhood crime a problem Source: Statistics Estonia 23

21,4

19,3

19 17

18 15,7

17,2

15 13 11

14,5 12,5 12,3

11,8

2007 2008 2009 2010 2011 2012 2013 2014 2015

People are also feeling increasingly safe in their neighbourhoods at night time and they are not staying in for fear of crime. According to victim surveys conducted by the Ministry of Justice, almost every other person felt unsafe while outside at night-time in 1993, almost one in three in 2008, and one in five in 2015. However, according to public opinion polls conducted by the Police and Border Guard Board, people still feel the least safe in traffic. On average, over half of the population have felt that they or their loved ones are not safe on the road. This indicator has largely remained the same over the past ten years.

1. Community security

The Ministry of the Interior is carrying out numerous programmes developing the social skills of children and young people.

Almost a third of the population feel threatened by street crime, theft and drug crime, and over one tenth by physical violence in public spaces. We must keep in mind, though, that peopleâ&#x20AC;&#x2122;s perceptions of threat may be heightened or lowered by current discussions and personal experiences, which may not correlate with the actual risk of falling victim. For example, people had reason to feel safer than usual during the Estonian visit of Barack Obama, President of the United States, in September 2014, but there were certainly also those who felt uneasy seeing the combatâ&#x20AC;&#x2018;ready police officers in the streets.

Focus on pupils for prevention Surveillance and restrictions alone are not enough to prevent the offences that worry people the most, such as traffic violations, theft and drug crime. The threats and risks leading to offences must be reduced in society; implementing the security policy has also

improved our understanding of how to efficiently increase public safety â&#x20AC;&#x201C; it requires spreading information and doing prevention work. The reasons for various violations of law are often similar. The offenders usually lack trusting relationships with their parents, they have insufficient social and emotional skills and they do not engage enough in positive activities. These reasons that lead to offences usually originate from a time before reaching puberty and adulthood. Consequently, we included the principles of social and circumstantial crime prevention in the main security policy guidelines when preparing them in 2008, and since 2013 the Ministry of the Interior has annually allocated 400,000 euros to preventing risk behaviour in children, young people and their families. The aim is to achieve a safer living environment by changing the values, attitudes and behavioural patterns of young people.

1. Community security

The public sector, together with the private and third sectors has made numerous efforts to substitute separate prevention projects with systematic nationwide prevention programmes. We have launched several programmes developing the social skills of children and young people, providing them opportunities for leisure time activities and self‑actualisation. For example, since 2013, the Ministry of the Interior has channelled over 100,000 euros towards the KiVa antibullying programme, which has now reached 39 schools. KiVa helps to develop antibullying attitudes at an early age in order to prevent and resolve future conflicts effectively and to thereby reduce violent behaviour. Since 2015, several Estonian schools have been using the PAX Good Behaviour Game, one of the most researched and evidence‑based behavioural skills games in the world. Among its other benefits, the game helps prevent the deterioration of academic performance, dropping out of school, the use of addictive substances and criminal behaviours. With support from the National Institute for Health Development and the European Social Fund, we will be funding the game with almost 1 million euros in the next six years, taking it to 4,000 students in 200 classes. We have launched a sport‑based programme, SPIN, for young people who are already at risk. The project

A youngster and coach participating in the sports‑based programme SPIN. Photograph: Ain Peil

“Clean future”, aimed at reducing the use of addictive stimulants among young people and the programme STEP for helping young people enter the labour market also contribute to keeping young people away from a life of crime. All these efforts have already reached more than 4,000 young people and we are planning to reach another 5,000 by 2020, with the help of 2.8 million euros contributed by the European Social Fund.

A safe society begins at home and with smart parents The Ministry of the Interior also puts great emphasis on children having supportive but firm parents with whom they have trusting relationships based on agreements. The safety of the childhood home and the attitude of the parents may affect a person’s entire life. For this reason, we have funded the Smart Parent awareness raising programme with over 300,000 euros since 2013, as the programme offers parents information that helps them investigate their views and possible misconceptions regarding the consumption of alcohol, tobacco and drugs, and the use of social media and smart devices. The central point of information for the parents is the website tarkvanem.ee, which had over 80,000 visitors in 2015. With implementing security policy, we have reached a point where society is increasingly valuing security and preventing behaviours that harm self and others. The sense of safety increases when we have stronger communities, more vigilant neighbours, smarter parents and children with a healthier sense of self. Most of us are not overly frightened of falling victim to an offence or engaging in risk behaviour, but neither can we feel safe knowing that there are 1,000–4,000 intoxicated drivers driving on our roads every day. The efforts of the Ministry of the Interior contribute to developing conscious and responsible attitudes, but ultimately, it is up to each person to take or not to take action and to assume responsibility. The challenge that everyone faces in the relationship between the individual and the state is to recognise our individual role, to assess threats and risks adequately and to ensure safety for ourselves and others.

1. Community security

Awareness of marital violence increasing in Estonia Kadri Ann Salla Adviser, Law Enforcement and Criminal Policy Department

Over the past eight years, Estonia has made significant progress in preventing and solving cases of marital violence. The main change has been that it is no longer believed that violence is a private family matter where other people or the state have no right or need to interfere. More and more people are looking for help in response to violence and coming forward, and the state is also dealing with solving cases of violence at various levels.

The police are receiving twice as many reports of violence Compared to five years ago, the police are notified of cases of marital violence twice as often and register a third more cases as crimes. The police used to be notified of less than 20 cases a day, whereas in 2014 the average number was up to 35, and in 2015, to as many as 43. This increasing trend in police statistics is a good sign: we cannot reduce violence if it is hidden in people’s homes and kept as a family secret. According to the final report of the Development Plan for Reducing Violence for 2010–2014, marital violence victims are turning to victim support workers almost three times as often: from 1,300 times in 2008 to 3,013 times in 2014.

According to a survey on violence against women by the European Union Agency for Fundamental Rights, Estonian residents experience marital violence at similar levels to those of other European countries, such as Sweden, Germany, France and the United Kingdom, and it has not increased over time.

Figure 1. Reports of marital violence and crimes regis‑ tered by the police, 2011–2015 Source: Police and Border Guard Board 13000 12000 11000 10000 9000 8000 7000 6000 5000 4000 3000 2000 1000 0

12098 9248 8124 6675 5146

1939

2011

2231

2012

Reports Registered crimes

2752

2013

2721

2014

2997

2015

1. Community security

”

In 2011, 17 people were killed as a result of marital violence; in 2014, nine people, and in 2015, five people.

Statistics on cases with severe consequences confirm that we have managed to save the lives and health of numerous people. Marital violence resulted in the death of 17 people in 2011, whereas the number was down to nine in 2014 and five in 2015.

Table 1. Number of marital violence related cases re‑ sulting in serious physical harm and death Source: Police and Border Guard Board

2011 2012 2013 2014 2015

Manslaughter and murder as a result of marital violence

Victims of serious physical harm as a result of marital violence

Total number of cases of marital violence resulting in severe consequences

Over the past eight years, we have organised numerous campaigns, spread information and conducted seminars and training with the aim of raising awareness and shaping behaviour. If we asked people today where a victim of violence could find the best help, the most common answer, according to a poll conducted by the MediaBroker campaign Open Your Eyes, would be: from the police; this was the answer to 48% of the questions regarding marital violence and 69% of questions regarding sexual violence. When advising a loved one who has suffered violence, the majority of the respondents would recommend them to go to the police for help.

The police have also made significant efforts to help people. In 2011, cases of marital violence, with special emphasis on children, were a priority for the police. Major modifications were made in terms of basic principles, responding to reports and keeping records of the cases: the police now record and investigate each case of marital violence, and in the more serious cases, initiate criminal proceedings, make home visits and notify social services or victim support. All this is made easier by the reporting interface on at‑risk persons and families, launched in 2014, which keeps the police informed of local households and people with several problems and prior contacts with the police, for example, due to abuse, school violence, family disturbances or drugs. The police are currently keeping an eye on over 18,000 at‑risk persons, including 2,300 minors and 6,640 problematic households. In‑depth data collection, investigation procedures, follow‑up inspections and networking help to investigate cases and clarify circumstances more thoroughly and find more specific solutions.

One fifth of the population have experienced marital violence Sadly, it is not possible to reduce violence quickly or immediately, despite the fact that we are dedicating significantly more hours, mental energy and assistance to that issue. It is extremely difficult to leave a violent relationship or behavioural pattern behind. One fifth of the Estonian population have experienced or witnessed some sort of marital violence or have had a loved one fall victim to it.

1. Community security

Many cases of violence still remain hidden and attitudes condoning violence are still common. The gender equality monitoring in 2014 revealed that one person in ten considered it permissible to discipline a partner physically. One fifth of adults consider domestic violence a private family issue and over half of the population consider the victims partly to blame for the violence (surveys conducted by TNS Emor on the attitudes of Estonian inhabitants in relation to gender-based violence and human trafficking, 2014). In order to permanently reduce violence in intimate relationships, we must focus on young people, whose awareness, attitudes and skills can be moulded before they start forming couples and families. For example, the Ministry of the Interior has been funding the KiVa antibullying programme since 2013 and we are investing, over the next six years, almost a million euros in distributing the PAX Good Behaviour Game in Estonian schools.

Figure 2. Criminal cases and procedures of marital violence, 2011â&#x20AC;&#x201C;2015 Source: Police and Border Guard Board 3600 3500 3000

1789

2500 2000 1500 1000

16%

15%

2519 1708

2011

12%

14%

2817 13%

12%

10%

2012

12% 10% 8%

2013

2014

Procedures initiated Percentage of dismissed cases

2015

1. Community security

”

The police are becoming increasingly aware of the impact of crimes on victims, of their need for protection and of the risks of falling victim repeatedly.

Twenty schools have launched the Expect Respect Teen Abuse Toolkit active learning youth programme aimed at preventing dating and marital violence. The programme’s lesson plans and study aids are incorporated into classes, helping young people to develop healthy attitudes towards gender stereotypes and the skills to solve conflicts, notice violence and find help. The police are also offering regular lectures, workshops and seminars at schools to prevent bullying, abuse and dating violence. Our main focus for the future must also be on systematic prevention efforts in the school system, helping young people develop the attitudes and skills needed to mature without violence and to become non‑violent adults.

We are creating a data exchange system for specialists to better help risk groups It is imperative that prevention efforts aimed at children be accompanied by sparing them from witnessing and experiencing violence. We must therefore work together with child protection and social workers in offering faster and more effective assistance to families that have violence issues or where children experience violence. To that end, we are preparing, with funding from the European Social Fund, an IT solution for exchanging police and social services data aimed at child protection, social work and police specialists; the IT solution will cost 207,169 euros and the accompanying case management model will receive 400,473 euros in funding. By 2018, the existing information systems will have been incorporated into an information exchange system that will allow specialists immediate access to aggregated information on at‑risk adults, children and young people, families, community issues and prior

interventions. Using the system, child protection and social workers and the police can help people with their problems much quicker and more efficiently. In the years 2016–2021, the specialists of at least 10 counties or larger towns will start using a case management model based on the MARAC (Multi-Agency Risk Assessment Conferences) model, used in the United Kingdom. This model includes risk assessment methodology for solving cases of marital violence and for helping families, and assists in preparing intervention plans, assessing the results and drawing up clear action frameworks. We have by now reached the goal of people becoming more intolerant towards marital violence. To consolidate this attitude, the police need to encourage the victims or their loved ones to reach out for help. In the coming years, we will be training officials to equip them with the skills to consider the needs of the victims. Our goal for 2020 is that police officers will be much more aware of the impact of crimes on the victims and that they will be able to assess the victims’ protection needs and risks of suffering violence repeatedly, and to explain to them their rights and options for receiving assistance in a respectful and non‑discriminatory manner. Over the past years, we have made more efforts to prevent and reduce violence than ever before. In terms of police work, this means increasing numbers of reported cases and criminal procedures, home visits, follow‑up inspections, networking efforts and meetings. But this is only the beginning in solving this complex and multifaceted violence problem, as it takes a long time to change skewed attitudes, beliefs and behavioural patterns.

1. Community security

Open Your Eyes campaign poster

Internal security

2. INTERNAL SECURITY

Combating hidden crime Ursula Kimmel Adviser, Law Enforcement and Criminal Policy Department

The sentence “No one should benefit from a crime” eloquently sums up the philosophy of the people whose everyday work consists in uncovering criminal income. No one should become rich through crime and if that has happened, the state must do everything possible to respond to the situation. The criminal world keeps up with life and is constantly developing and experimenting with new avenues. As the methods, group structure and social impact of organised crime is growing increasingly complex, the Central Criminal Police, who is in charge of major procedures, must keep up with the criminal world or be one step ahead.

managed to seize 1.6 million euros worth of criminal income in 99 criminal cases, while the value of seized assets increased to 2.57 million euros (136 criminal cases) by 2014. The year 2012 was particularly successful, as we seized over 27 million euros of criminal income, 20.1 million of which was seized in one criminal procedure.

Table 1. Uncovering criminal income, 2011–2015 (mEUR) 2011

2012

2013

2014

2015

2,78

27,5

7,2

2,57

3,1

We are reducing criminal income According to the Guidelines for the Development of Criminal Policy to 2018, the joint priority of the police and prosecutor’s office is combating organised and serious hidden crime. The main focus is on combating corruption, drug‑related and serious economic crimes and human trafficking. The fight against serious hidden crime is increasingly aimed at reducing criminal income. In 2011, the Central Criminal Police established the bureau for uncovering criminal income, which has stepped up information collection and analysis and improved pre‑trial criminal procedures. In 2009, we

The Central Criminal Police unit for uncovering criminal income detects criminal income also for other authorities conducting criminal investigations. For example, in 2012, it uncovered criminal income for the Estonian Internal Security Service and for the Tax and Customs Board in the amount of 600,000 euros, and in 2014, already in the amount of 1.7 million euros. The amount of uncovered criminal income has thus increased over the years and establishing a separate unit was certainly justified.

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The fight against drugs is focused on reducing the market for the drugs that cause the most overdoses and damage, and on breaking up criminal organisations.

A major percentage of criminal income is uncovered while investigating serious economic crimes. As this issue is also a criminal policy priority, the Central Criminal Police established in May 2014 the corresponding bureau for economic crime. One of the aims of the unit for uncovering criminal income has been to develop a system for handling seized assets. As a result, asset and sales management will be centralised and transferred since mid‑2016 to the Police and Border Guard Board and the Tax Board in order to save on handling time and costs. From then on, anyone interested in transferable seized assets can obtain all the necessary information from these two institutions and not from the 15 different county governments, as was the case before. With these changes we will be reaching more buyers and able to increase sales prices and thereby also the

funds added to the State budget. At the same time, administering the seized assets will become more flexible in order to put them to the best use for society.

Reducing the supply of drugs The Penal Code classifies drug‑related offences as offences against public health. Drug trafficking is a serious hidden crime that harms society by spreading addictions and causing an increase in drug‑related deaths. In Estonia, 962 people died from 2008 to 2015 as a result of consuming fentanyl and 3‑methylfentanyl – over 80% of drug deaths are related to people overdosing on these substances. Therefore, the fight against drugs is focused on reducing the market for the drugs that cause the most overdoses and damage, and on breaking up criminal organisations.

In Estonia, 962 people died from 2008 to 2015 as a result of consuming fentanyl and 3‑methylfentanyl.

Internet crime continues to rise

Figure 1. Drug‑related deaths, 2008–2015

Source: Data for 2008–2014: register for the causes of death; data for 2015 provided by the Police and Border Guard Board 180 170 160 150 140 130 120 110 100 90 80

170 161

123 116

111 98

101

2008 2009 2010 2011 2012 2013 2014 2015

As protecting under‑age and young people is one of the priorities in the fight against drug crime, we have placed greater emphasis on detecting and prosecuting crimes where minors have been induced to consume narcotic and psychotropic substances.

Figure 2. Drug crimes involving minors, 2011–2015 110 100 90 80 70 60 50 40 30

103

73 50 35

2012

2013

2014

2015

The Central Criminal Police established the money laundering data bureau in 1999, when using cover persons and companies was in fashion. The criminals used to look for “managers” for their companies at markets and in bus stations. Today, the unit’s main task is to collect and analyse data on transactions with suspicion of money laundering and terrorism. As many criminal activities, including searching for cover persons, have relocated to the Internet, money laundering is often preceded not only by economic crimes but also by cyber fraud, such as the widely reported so‑called Nigerian letters or transactions with stolen credit or debit cards. In 2013, there were 74 cyber crimes registered in Estonia, whereas in 2015, the number was up to 142 offences. It is no wonder that according to a 2014 Eurobarometer survey, people perceive data abuse and card fraud as the main threats on the internet. Consequently, the European Union has also identified combating cyber-crime, particularly internet and card fraud, sexual child abuse on the internet and cyber-attacks, as a priority in its fight against crime. In 2015, we added eight new positions to the cyber unit to be able to analyse cyber-crime better and more efficiently. Our excellent development in this field was confirmed when the EU Council working party on general matters including evaluation (GENVAL) visited Estonia in the spring of 2015 and rated Estonia’s capability to fight cyber-crime as good.

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Cyber security Erkki Koort Deputy Secretary General for Internal Security Policy

In terms of ensuring cyber security, Estonia follows a broad approach that values the social aspect in addition to technical security and where inter‑agency cooperation is the only way to achieve the established goals. Under the remit of the Ministry of the Interior, ensuring cyber security and fighting cyber-crime are the responsibility of the Police and Border Guard Board and the Estonian Internal Security Service, who are working in constant cooperation with the Information Board, an agency of the Ministry of Defence, and with the Information System Authority (RIA), an agency of the Ministry of Economic Affairs and Communications. .

A clearer cyber defence structure Since 2008, there have been several significant changes in the way cyber security is ensured in Estonia, accompanied by a broader realisation that cyber security is not the responsibility of law enforcement

authorities alone. In order to ensure cyber security and step up the fight against cyber-crime, the Ministry of the Interior has over the years restructured the work of both the police and the Security Police, increased the number of cyber-crime specialists and invested in developing technological capabilities. In 2008, the government approved the Cyber Security Strategy to 2013, which placed the responsibility for the secure handling of information systems and complying with information security requirements with the owner of each system. However, the strategy did not address the measures for combating cyber‑crime or the role of the Ministry of the Interior in ensuring cyber security. In 2009, the Cyber Security Council was established with the government Security Committee and tasked with supporting inter agency cooperation, supervising the implementation of the Cyber Security Strategy and advising the government on cyber security matters.

Table 1. Tasks of the authorities providing cyber security Police and Border Guard Board

Estonian Internal Security Service

Information System Authority (RIA)

The main law enforcement authority dealing with cyber‑crime; processes crimes and does prevention work.

Countering cyber intelligence and combating hostile sway tactics, extremism and terrorism in cyberspace

Handling security incidents in Estonian computer networks and ensuring the security of critical infrastructure information systems

Information Board Managing electronic data security for the protection of state secrets

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The Information System Authority, established in 2011, was granted complementary rights to organise the protection of the national information and communications technology infrastructure. The scope of the RIAâ&#x20AC;&#x2122;s competence in information systems security was also expanded and a supervisory function was added.

In 2011, Estonia got its first web constable, Andero Sepp; his routine functions are raising awareness and answering questions on the internet and where necessary, sharing information with other Police and Border Guard Board units. He has been joined by two more web constables: Jana Frolova and Maarja Punak.

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In 2012, the Police and Border Guard Board concentrated cyber‑crime investigation under one unit, and in 2013 established cyber‑crime and digital evidence units in the four prefectures, staffing them with officials who used to process cyber‑crime and administer digital evidence in various other units. In 2014, the government approved the new Cyber Security Strategy to 2017. It focuses on ensuring vital services, developing national defence capabilities in cyberspace and, unlike the previous strategy, stepping up the fight against cyber‑crime. In 2015, the police drafted a corresponding action plan, which resulted in establishing a separate cyber‑crime bureau with the Central Criminal Police. The new bureau began work in early 2016 and it primarily investigates crimes targeted at information technology.

Over the past seven years, we have also reinforced the investigation capabilities of the Security Police in countering cyber-attacks and cyber intelligence threatening our security in order to stop extremism and terrorism from spreading in cyberspace. We are also increasingly focusing on cooperation with the private sector in obstructing economic intelligence targeting the sector in cyberspace. Estonia has launched several ambitious e‑state development projects, with e‑residency probably being the most well‑known, but the media have also covered the state cloud and virtual data embassy initiatives. With projects like these, it is absolutely essential to analyse and neutralise any possible risks and threat scenarios already in the development phase. This is the only way to prevent major threats from the very beginning. Although Estonia has made great progress in ensuring cyber security since 2008, it is important to keep developing this domain. In addition to ensuring the electronic security and continuity of data and systems, we must also raise public awareness of the threats associated with electronic communication and the cyberspace. We must also keep developing the capabilities of law enforcement and security authorities so that they could keep up with rapidly developing technology and successfully defend people from criminals who have taken up residence in cyberspace.

Estonia must also contribute to the fight against terrorism The threat of terrorism remains low in Estonia. Nevertheless, it is naïve to hope that our security will not be affected by the armed conflicts, spreading extremism and explosive increase in migration taking place nearby in Europe and elsewhere. We are receiving almost daily reports of various terrorist attacks in Syria, Iraq and Africa, but also in important destinations for Estonian people, such as Ukraine, Turkey, Egypt, Israel or Thailand. Europe will remember 2015 as the year of the terrorist attacks in Paris – the attack at the headquarters of Charlie Hebdo in early 2015 and the attacks in November, claiming over a hundred lives; a shooting in Denmark in a Copenhagen art café in February, and a bloody attack in Lyon, France in June. Though frightening, it is important to understand that no country is completely safe from the threat of terrorism, and it is essential to be able to respond at any moment and to step up prevention.

All extremism poses a potential threat to the security of people and the state All extremism, including intolerance and xenophobia, is a potential security threat. All of us can practice discernment regarding the various messages and sources and show zero tolerance towards those inciting xenophobia and hatred both in the physical world and on the internet. Politicians, the media and every single individual have an important role to play in this. Estonia has not suffered any terrorist attacks and no terrorism‑related crimes were registered in the period from 2008 to 2013. Since 2013, four terrorism‑related crimes have been registered in Estonia. Three had to do with funding and supporting terrorism and one with contributing to a person’s membership in a terrorist group.

The Penal Code addresses terrorist crimes under offences against the state (§ 237–237³). The crimes committed may be punished with imprisonment for up to 20 years or even the remainder of the convicted criminal’s natural life. Considering the proliferation of extremism and the large number of foreign fighters in terrorist groups, we are planning to add further sections to the Estonian Penal Code in the near future, clarifying punishments for travelling for terrorist purposes and for receiving terrorist training, among other activities.

The aim is to keep the threat of terrorism low The Ministry of the Interior is our national coordinator in the fight against terrorism. The Deputy Secretary General for Internal Security Policy is the head of the council for counter‑terrorism that includes senior officials from various ministries and authorities: the Police and Border Guard Board, Ministry of Foreign Affairs, Ministry of Justice, Estonian Internal Security Service, Tax and Customs Board and Defence Forces. The government Security Committee has approved the council’s reports and proposals. The Fundamentals of Counter‑Terrorism, adopted by the government in 2013, have been incorporated into the National Internal Security Development Plan. The general aim of counter‑terrorism in Estonia is still to protect the security of Estonian people and the state, and to prevent and combat terrorism and its financial support and other forms of support. The development plan is innovative in that it views internal security as an important part of national defence, and counter‑terrorism measures are to be implemented not only by security and law enforcement authorities, but also by a range of other authorities and organisations that form a network at both the domestic and international level.

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The development plan measures are not focused solely on terrorism. For example, some radicalisation prevention measures are associated with education and the psychological protection of the people, and new measures are envisaged for aviation and border control, as we continue to support the free movement of citizens in the Schengen border system. Common values and a sense of community are important pillars of the European Union, and the union has stepped up its efforts to coordinate and supervise a more uniform implementation of counter‑terrorist measures in the Member States. Last year, Estonia signed the Additional Protocol to the Council of Europe Convention on the Prevention of Terrorism and we continue to prioritise the measures for preventing terrorism‑related security threats established under UN Security Council Resolution 2,178 (2014). The Ministers of the Interior of the European Union have agreed on the following priorities of counter‑terrorism: cross‑border cooperation and exchange of information, border security, preventing and combating radicalisation and combating supporting terrorism financially and otherwise. A failed terrorist attack attempt in an international THALYS train made Europeans pay more attention to the security of international rail traffic. This is also relevant for Estonia in relation to the Rail Baltic project, and we are already discussing security issues with our cooperation partners.

Estonia has assumed initiative in regulating reactivated firearms The regulation of firearms has also become an important topic. Both illegal and deactivated firearms are reaching Europe from conflict areas and the criminals often render them capable of firing again. The Charlie Hebdo terrorist attack was perpetrated using such reactivated firearms. Estonia is leading the initiative in Europe to establish common European standards for deactivated firearms, so that it would not be as easy to reactivate firearms incapable of firing. Our own corresponding legislation

is already a good example, but there is much to do in terms of regulating other terrorism‑related issues. An example of this is hate crime, where hate speech is often confused with freedom of speech and where a clearer definition and sanctions would help defend human dignity and security.

An international special forces counter‑terrorism exercise The outcomes of terrorist incidents are often determined by covert actors – the special forces. When it comes to resolving hostage situations and apprehending dangerous criminals in particular, numerous lives often depend on the work, training and capabilities of special forces. In the autumn, the Public Broadcasting television programme Pealtnägija aired a story on the international special forces counter‑terrorism exercise ATHOS 2015, held in Estonia and coordinated by the Estonian Ministry of the Interior. The participants were special forces units from Estonia, Latvia, Lithuania, Poland and Finland and observers from France and the USA. The exercise involved resolving a major terrorist incident and releasing hostages. The joint exercise demonstrated that if necessary, the special forces of our partner countries are prepared to help and support each other in solving major incidents. It is also clear that organising and managing such joint operations is complicated and requires specific experience and skills that must be practiced and tested further. Therefore, Estonia has decided to hold a major exercise this year under the ATLAS cooperation format for EU special forces; the exercise will have more countries and units participating and the task is to simulate the resolution of a terrorist incident in urban environment. The Estonian K‑Komando special unit has been participating in the EU ATLAS special forces cooperation network since 2005, but this will be the first time for Estonia to host an ATLAS exercise.

We made organisational changes to combat corruption The successful efforts of law enforcement authorities have uncovered several major corruption cases in the past years. For example, the Security Police official Indrek Põder was found guilty of taking a bribe of over 170,000 euros; the head of the traffic unit of the Tallinn Transport Department Mati Songisepp was punished for taking a bribe of over 140,000 euros, and the politician Villu Reiljan for seeking a bribe of over 95,000 euros.

The scope of the Estonian Internal Security Service is expanding Since 2008, Estonia has been making several changes to the organisational structure for combating corruption. The anti‑corruption strategy to 2012 focused on preventing corruption in the private sector, healthcare and party funding. In 2013, the government approved a new strategy, focusing on prevention efforts by raising awareness and increasing transparency in the public sector. We are also continuing efforts to step up corruption crime procedures in both the Police and Border Guard Board and the Estonian Internal Security Service. In 2007, the Security Police was tasked with processing corruption crimes related to the heads of six major local governments: Tallinn, Tartu, Pärnu, Narva, Kohtla‑Järve and Jõhvi. In 2011, the competences of the Security Police were further expanded when it was tasked with processing corruption crimes related to the activities of management or supervisory board members of public, state‑owned or state‑founded legal entities which may threaten Estonian national security. In 2012, the central bureau for corruption crime at the Central Criminal Police of the Police and Border Guard Board began work, with over 3,000 public sector units both at central government and local government level under its investigative jurisdiction.

Figure 1. Estonia’s place in Transparency International’s Corruption Perceptions Index among 175 countries 35 30 25 20

27 26

2008 2009 2010 2011 2012 2013 2014 2015

The new Anti‑Corruption Act entered into force in 2013, replacing the previous act of the same name that had been in force for already 13 years. The new act specified the restrictions on the activities of officials, granted more rights to the Anti-Corruption Select Committee and modified the classification of entities that must declare their economic interests.

The level of corruption in Estonia as seen from the outside The Corruption Perceptions Index of Transparency International assesses public sector corruption in 175 countries based on expert assessments. Estonia’s position has changed little over the past seven years. This shows that corruption remains a problem in Estonian society and that it takes long‑term and consistent efforts to root it out. We must also keep in mind that the work of law enforcement authorities is only one part of the fight against corruption – prevention and increasing public condemnation of corrupt behaviour are equally important. The current situation in Ukraine is a daily reminder of the importance to combat corruption that is threatening national security and of what can happen if corruption paralyses all functioning of the state and society. The current armed conflict in Eastern Ukraine was preceded by nationwide mass demonstrations against total corruption.

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Over a hundred people were killed in the unrest in Ukraine. The ensuing protests on the Maidan lasted several months. Photograph: Council of Europe

As the corrupt powers attempted to suppress riots, over 120 people were killed. The Russian Federation used the interruption of political power that ensued to occupy the Crimean Peninsula and orchestrate an armed uprising in Eastern Ukraine. A UN report from 2014, concluded that corruption is a major problem in Ukraine and it had diminished people’s rights and freedoms, increased social inequality, undermined the functioning of the rule of law and people’s trust in judicial, law enforcement and state authorities. According to Transparency International,

Ukraine has been even more corrupt than Russia in the past five years.

Figure 2. Number of corruption crimes, 2008–2015 500 400 350 300 250 200 150 100

274 167

322

355

450

183 164

161

2008 2009 2010 2011 2012 2013 2014 2015

Countering anti‑Estonian intelligence

Recent years have not been easy for Estonia in terms of counterintelligence. The court has convicted four people of treason, two of whom were officials of the Estonian Internal Security Service, responsible for counter‑intelligence. Herman Simm, Aleksei Dressen and Vladimir Veitman significantly damaged Estonian national security with their actions. In 2014, a third Internal Security Service official, Uno Puusepp, admitted to gathering intelligence for Russian special services after having left Estonia for Russia. In the autumn of 2014, an unprecedented event took place at the border between Estonia and Russia, where the Russian Federation’s special services officials abducted an official of the Estonian Internal Security Service, Eston Kohver, who was imprisoned in Russia for over a year. The incident, which was widely covered in Estonian and international media, culminated in exchanging Eston Kohver for Aleksei Dressen, who had been arrested for treason three years prior.

Stepping up the protection of state secrets Foreign special services attempt to collect information on Estonia from Estonian residents working abroad and by visiting foreign countries. Naturally, foreign special services are particularly interested in people who have access to state secrets. In order to prevent the disclosure of state secrets, since 2015, people with access to state secrets are to declare their travels to countries where they might be induced to disclose state secrets. The Ministry of the Interior currently considers the Russian Federation, Belarus and North Korea as such countries.

As in many other domains, the most efficient way to protect state secrets is to focus on prevention. First and foremost, this means carrying out thorough security checks on the people applying for access to state secrets. However, systematic follow‑up checks, after having granted access to state secrets, are equally important. Foreign intelligence interests are not the only threats to be managed in protecting state secrets – both human error and ignorance may routinely threaten state secrets. We are therefore regularly training the people who have access to state secrets.

Penal Code § 232 Treason A citizen of the Republic of Estonia who assists a foreign state, an organisation of a foreign state, an alien or a person acting at the request of a foreign state in non-violent activities directed against the independence and sovereignty or territorial integrity of the Republic of Estonia, or collects state secrets or classified information of a foreign state communicated to Estonia on the basis of an international agreement with the intention of the communication thereof, or communicates such information to a foreign state, organisation of a foreign state, alien or a person acting at the request of a foreign state shall be punished by 6 to 20 years imprisonment or the remainder of the convicted criminal’s natural life.

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Russia exchanges Eston Kohver for Aleksei Dressen On 5 September 2014 at 9 am, officials of the Russian Federal Security Service FSB abducted the Security Police official Eston Kohver on Estonian territory and took him to Lefortovo prison in Moscow, where he was charged with espionage. This afternoon, Eston Kohver, Minister of the Interior Hanno Pevkur and the National Security Police Commissioner Arnold Sinisalu gave a press conference in Tartu in the Southern Department of the Estonian Internal Security Service. To celebrate Kohver’s return, the Minister of the Interior took off the yellow ribbon that had for a long time symbolised solidarity with the abducted Security Police official. “The Estonian people have been wearing this yellow ribbon for a long time. Today, we can pass this support on to Eston,” the Minister said, taking the ribbon off and handing it to Kohver. The next person to speak was Eston Kohver, who expressed his joy

at being home. “I wish to thank everyone who cared about my fate; everyone who supported me. I would especially like to thank the people who helped my family cope while I was away,” Kohver said. The Security Police official also thanked all the authorities that had helped him cope in prison in Russia and finally return to Estonia. Prime Minister Taavi Rõivas expressed great joy at Eston Kohver’s return. “Who would have thought that the best birthday present could take the form of a phone call from the Minister of the Interior,” the Prime Minister tweeted.

Sven Randlaid Merili Nael Public Broadcasting news, 26 September 2015

Exchange of Kohver and Dressen at a border crossing point on Piusa River Source: YouTube

What does comprehensive national defence mean? The mass riots of 2007, accompanied by a major cyber-attack on Estonia, and the 2008 military conflict between Georgia and Russia highlighted the instability of the security environment and improved our understanding of modern security threats. The international economic situation also remains unstable, thus affecting national defence and security. All these developments made it necessary to change Estonia’s national defence concept.

In national defence, every individual contribution matters Estonia must work within the limitations imposed by our small population, geographical location and dependence on e‑services. In order to protect Estonia successfully, everyone must know what to do if a potential conflict erupts. It is not enough for one party to fulfil its national defence functions very well and insightfully; all parties must work together. Estonia’s security remains strong only if its bases are strong throughout. It is a well‑known fact that national defence is only as strong as its weakest link. Society as a whole, including all state authorities, must be prepared to defend the country. This means that if the country is threatened, military preparedness (armaments, equipment, troops and conscripts) must be supported by the continuity of all other state authorities needed for national defence. It is natural that when an emergency happens, business as usual gives way to concentrating on the essential: for example, maintaining existing roads takes precedence over building new roads and ensuring power supply over expanding the power network. By participating in comprehensive national defence, the various institutions know their exact roles during emergencies and are able to promptly reorient their actions as needed. In case of a conflict, the Ministry of Defence organises immediate military defence, whereas other ministries participate in comprehensive national defence in a variety of different ways. The Ministry of Economic Af-

fairs and Communications is responsible for communications, economic and energy security and for securing national fuel supplies. The Ministry of Rural Affairs secures sufficient food reserves for Estonia. The Ministry of Foreign Affairs communicates with foreign partners, informing them of the events and making sure that collective defence is swiftly activated where needed. The functioning of hospitals and medical assistance is essential during emergencies and potential conflicts; it is up to the Ministry of Social Affairs to ensure this functionality. Financial crises have demonstrated that people’s welfare is very much dependent on functional payments and the circulation of cash – a responsibility of the Ministry of Finance. The Government Office is the central coordinator of comprehensive national defence and as such, its tasks include informing the public. Organising comprehensive national defence is a long‑term and constant process that helps to manage potential risks early on, to improve the planning of national resources and to maintain a safe living environment in Estonia. If comprehensive national defence is organised well, there is less probability of being caught off guard by emergencies, crises and conflicts. While this does not rule out all problems, it does help us to keep them from escalating and to prevent the worst consequences. Comprehensive national defence increases resilience and the preparedness to cope with any event throughout Estonian society. To potential aggressors, it sends the message that Estonia is a strong country and society.

We must be prepared for emergencies Comprehensive national defence considers internal security and its functioning as the first line of protection for the Estonian state. Any arising conflict that threatens national security must be detected as soon as possible, followed by a response and all measures taken to prevent it from developing and escalating. This is a major requirement for preserving the Estonian state in a crisis situation.

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”

The Ministry of the Interior has invested 4.3 million euros in its area of government for developing comprehensive national defence.

Internal security authorities, such as rescuers, the police and border guard, are tasked with responding to daily operational incidents. At the same time, as they have been included in planning comprehensive national defence, they are also able to respond adequately to security threats. How does this work? The police continue ensuring public order, rescuers continue rescuing, the border is protected and databases are operational. The Ministry of the Interior has invested 4.3 million euros in its area of government for developing comprehensive national defence. Our priority has been to improve the capabilities of strike teams, border control and communications. Strike teams, such as K-Komando and the new border guard special units, are tasked with apprehending dangerous criminals or illegal border crossers. Special forces have received significantly upgraded weapons and personal protective equipment, and in the future, we need to increase their numbers and acquire weapons with better fire power.

Special forces are training crisis management Training people and organising joint exercises is as important as adequate equipment. In 2015, we organised joint exercises with the Defence League and Defence Forces, and the ATHOS international special forces exercise. This year, we are preparing an even more extensive exercise for special forces. Last year we also had a cyber security exercise for testing and checking the reliability of various critical information systems in case of a massive cyber-attack. Critical information systems include, for example, the population register and the electronic payment systems of banks. The exercises also tested the reliability of public power supply. The exercises convinced us that if we oppose the threats together, we can manage them effectively. This kind of training plays an important role in developing comprehensive national defence and is essential for managing potential threats. Comprehensive national defence provides

a common platform for different experts who work separately in performing their daily functions. Comprehensive national defence also relies heavily on involving volunteers and on their contribution in emergencies. The problem here is that an assistant police officer is often also a rescue volunteer and a member of the Defence League. It is impossible to fulfil all these functions during a crisis. The Ministry of the Interior is working towards defining the roles of the different institutions and assigning specific crisis situation roles to each person involved.

A new development plan for national defence In terms of legislation, comprehensive national defence was introduced in 2010, when the Parliament approved the National Security Concept of Estonia, which also formed the basis for updating the National Defence Strategy. This was followed by the National Defence Development Plan 2013–2022, approved by the government in two parts. On 24 January 2013, it approved the Military Defence Action Plan, which is the basic planning document for the area of government of the Ministry of Defence, and in 2014 it approved the non‑military sections of the National Defence Development Plan. The development plan is one of the main foundations for ensuring Estonia’s security in case of emergencies. On 1 January 2016, the National Defence Act entered into force, providing the basis for clarifying national defence legislation. The events in Georgia and Ukraine underlined the need for the state to respond to external threats, and the conflict between Ukraine and Russia demonstrates that this must be done faster and more efficiently. The codification of the National Defence Act will address the need to amend the various legislative acts. In terms of protecting society in wartime, it is essential that the relevant decisions regarding resources and capabilities planning be in place well in advance in order to prevent duplication and ensure rational use.

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International special forces exercise ATHOS. Photograph: Police and Border Guard Board

Crisis management

Who is in charge in a crisis situation – the legal framework of crisis management Priit Laaniste Head of the Rescue and Crisis Management Policy Department

Protecting people’s lives, health and property is one of the most important tasks of the state. Compared to accidents, emergencies are always larger‑scale with more severe consequences, thus potentially having a very significant security impact. One of the objectives of the Main Guidelines of Estonia’s Security Policy to 2015, approved by the Parliament in 2008, was to establish a crisis management framework act. As a result, the Emergency Act was passed in 2009, replacing the previous Emergency Preparedness Act and Emergency Situation Act.

Four principles of the Emergency Act A major change introduced by the Emergency Act was to put in place a cross‑agency crisis prevention system. Before that, all parties prepared separately for the same crises; for example, the Rescue Board, environmental authorities, the border guard and local governments all made separate plans for marine pollution. The plans of the different authorities were too often incompatible; this could be seen during the oil pollution incident of 2006, when there was no central coordination and the responsibilities of the various authorities were unclear. The Emergency Act introduced the concept of a uniform risk analysis and emergency management plan. The Emergency Act regulates the tasks and responsibilities of the various authorities in coping with crisis situations. According to the Act, each ministry is responsible for implementing crisis management

measures in its area of government and there is no central crisis management authority. All authorities and officials continue with their routine tasks in crisis situations and crisis management measures are carried out at the lowest possible levels. The main challenges are coordination and cooperation. The Emergency Act has been in force for over six years now, revealing its practical shortcomings. We need to revise emergency and emergency situation management principles and the regulation of vital services (see the next article for more on this).

We need to communicate risks better The major field of crisis management involves developing the communication of risks. The residents of Estonia need to know our major emergency risks, how the state and local level prepare for them and what is expected of every individual in terms of preparing for an unexpected major accident. Previous efforts to communicate risks have been modest. Routine traffic and fire safety risks have been communicated well enough, whereas larger‑scale risks, such as floods, environmental pollution and forest fires have received insufficient coverage. In order to improve the communication of risks, the risk analysers must step up efforts to inform the public of major risks. The results of a 2015 Eurobarometer survey clearly demonstrate the low public awareness of emergency risks in Estonia: as many as 40% of Estonian residents are unable to assess the sufficiency of prevention. Estonia compares negatively with other countries in terms of the largest number of people who are unable to assess the measures taken to prevent emergencies. This is probably caused by a lack of information.

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Another major area of development is improving civil defence. The crisis management system prepares for civilian crises such as natural disasters and anthropogenic or industrial accidents, whereas defending the population from an armed conflict and military threat has received less attention. During the Cold War, it was very relevant that people be aware and prepared enough to cope in case of war or a nuclear attack. But as military threats have been considered insignificant in Europe over the past 20 years, the former civil defence has essentially disappeared to be replaced by the field of crisis management, which focuses on protecting people from non‑military threats.

In order to develop civil defence, the Government Office launched in late 2015 a task force for civil defence that is to prepare a cross‑agency civil defence concept, primarily in case of military threat and armed conflicts. The civil defence task force involves, in addition to ministries and state authorities, also the third sector and research institutions. The task force is working on finding a suitable solution for Estonia on how the Estonian people should be made more aware of military threats and to what extent. The task force must also agree on the authorities that are to assume responsibility for civil defence issues.

Figure 1. Awareness of emergency risks among the population of Estonia and other European Union countries Source: Eurobarometer survey “Special Eurobarometer 433. Civil Protection” Are you of the opinion that your community makes sufficient efforts to prevent and prepare for disasters? 7% 18% 20% 20% 11% 20% 22% 15% 26% 16% 14% 17% 9% 15%

35% 19% 20% 22%

27% 25%

41% 44% 43%

36%

8% 18% 21% 23% 40% 14% 20% 9% 12% 5% 17% 11% 22% 10% 23% 15%

52% 54%

57%

45% 44% 46%

29%

65% 62%

70% 58%

53%

70%

65% 55%

69% 58%

78% 29% 63%

60% 58%

Yes

54% 53% 53%

49%

HU UK DE CZ

45% 43% 42% 40% 39% 38% 37% 35%

Don’t know

BE EU28 SI

31% 31% 29% 27% 26% 26% 25% 25% 24% 23%

PL EE

HR RO

CY MT

20% 19%

16%

Developing vital services Galina Danilišina Adviser, Rescue and Crisis Management Policy Department

In the context of crisis management, a vital service is a service that is important for meeting the people’s primary needs in a crisis situation and whose absence threatens people’s lives and health. A compromised vital service may lead to the disruption of other essential services and a society that is paralysed. Over the past 15 years, Estonia has developed vital services with varying focus. At the beginning of the century, the main emphasis was on the functioning of the power and gas system, staple goods supply and the management of postal services, transport, the financial system, healthcare and social security and welfare. Each field was the responsibility of a corresponding ministry that had to prepare risk analyses and crisis management plans in its respective field. However, that approach was very broad and it was difficult to separate the essential from the secondary, which also obstructed the provision of vital services.

The Emergency Act regulates 46 services The objective of the Emergency Act, passed in 2009, was to clarify the crisis management system, to focus on major emergencies and also to switch to a primarily business‑based vital services regulation. The Emergency Act lists 46 vital services, provided by 125 undertakings. The work of service providers is coordinated by managing authorities – ministries, local governments and the Bank of Estonia. For example, Elektrilevi OÜ supplies power to consumers and the domain is coordinated by the Ministry of Economic Affairs and Com-

munications. Tallinna Vesi AS renders water and sewerage services, which are coordinated by Tallinn City Government. The coordinating authorities prepare requirements for these services and service providers and exercise supervision over them. The regulation of vital services became more specific and expanded from the analysis of general risks in the corresponding fields to analysing and managing the risks of vital service providers and to reinforcing services to make them available also during crises.

The shortcomings of the Act revealed after six years The Emergency Act having been implemented for six years, we have come to see that the objectives have been achieved only partially. On the one hand, service providers have become more aware of risks and have employed preventive measures to some extent. For example, many institutions have addressed the issue of dependence on electricity and have installed autonomous electricity supplies. In order to improve the continuity of electric power services, work continues on replacing overhead cables with underground cable lines and more weather‑proof cables, with the aim of completing this work across most of Estonia by 2030. The Kiisa emergency reserve power plant, costing 135 million euros, and with a capacity of 250 MW and allowing to make up for power shortages in the case of accidents and external connection disruptions was completed in 2014. EstLink 2 was also completed the same year, making it possible to buy more electricity from the Nordic countries and thus offering an alternative solution to acquire electric power. Negative experiences have also played a role in developing some services. The Road Administration reorganised road maintenance after the Monika snowstorm of 2010, when about 600 people were trapped in snow in Padaoru on the 119th kilometre of Tallinn‑Narva highway. It concluded additional contracts

3. CRISIS MANAGEMENT

40 with service providers, mapped potential national risks and switched to county‑based planning in providing vital services. These efforts minimised the probability of a similar situation recurring and improved the ability to maintain the service even in harsher conditions. Nevertheless, the current regulation does not do enough to ensure the continuity of vital services. Firstly, the Emergency Act fails to define a vital service. For example, it addresses electricity and postal services on equal grounds, disregarding the fact that one has a more significant social impact than the other. As a result, the individual service providers have failed to understand why they should even follow the requirements established by the Act – they have not understood what makes their particular service a vital service.

Draft act submitted to the parliament Secondly, the Emergency Act states that the authorities organising the operation of vital services must coordinate the services and establish the corresponding requirements. In practice, this has given rise to questions regarding the exact content of the requirements. Is coordination limited to forwarding letters

14 vital services • • • • • • • • • • •

electricity supply gas supply liquid fuel supply district heating supply water supply sewerage service maintenance of state and local roads telephone service mobile phone service data communication service

electronic identification and digital signatures • emergency medical care • payment service • cash circulation

from various agencies and archiving the risk analyses and plans of undertakings or does it also mean having a say in the operations and decisions and investment activities of undertakings? In order to remedy the situation, the Ministry of the Interior along with other authorities developed a methodology in 2014 and 2015 for assessing the vital importance of various services. This helped us determine the 14 most vital services whose continuous operation is essential for the state. We also clarified the definition of a vital service and prepared a draft act to amend the Emergency Act. According to the draft act, a vital service is a service that has an overwhelming impact on the functioning of society and whose disruption poses an immediate threat to people’s lives and health or to the functioning of other vital or general‑interest services. The draft act submitted to the parliament early this year clarifies the exact requirements that each organising authority must establish regarding their vital services. They will also have, by means of approving documents, a say in how undertakings prepare their risk analyses and plans and envisage their preventive measures and investments. Organising authorities will also be given more instructions and responsibility in resolving disruptions to vital services that are long‑standing and have serious consequences; this will be done in the form of emergency resolution plans. All these amendments may seem only cosmetic to a bystander, but they actually help to understand the legislative acts and their objectives better, and to eventually improve the provision of vital services and to step up the response to potential emergencies. Many countries are still searching for an adequate solution to the issue of vital services. For example, Denmark began mapping potentially vital domains, infrastructures and services in 2014, as it was also dissatisfied with the existing system. Latvia and Lithuania are on similar missions. It is to Estonia’s advantage that we have been working with crisis management longer than several other European Union countries and have already experimented with different solutions. We are now very close to the most suitable solution for us.

Crisis management exercise CONEX 2015 Andres Parve Adviser, Rescue and Crisis Management Policy Department

Last year, from 15 April to 5 May, Estonia organised the national emergency exercise CONEX 2015 and a major exercise of the Defence Forces, titled Siil 2015. The events were comprehensive national defence exercises that contained the subâ&#x20AC;&#x2018;exercises of ministries.

The aim of crisis management exercises is to allow authorities to train for emergencies and to respond to disruptions to vital services. During CONEX 2015, we tested our national emergency coordination system and the adequacy of relevant legislation, and identified priority development needs. The aim of the exercise was to improve awareness of comprehensive national defence and crisis management and the stateâ&#x20AC;&#x2122;s resistance to threats.

Rescue authorities also keep performing their regular functions during crises.

3. CRISIS MANAGEMENT

”

The topics of the emergency exercise CONEX 2015 were a major cyber incident, mass poisoning, disruption of vital electricity supply, object defence and mass disturbance.

When to declare an emergency situation? The topics of the emergency exercise CONEX 2015 were a major cyber incident, mass poisoning, disruption of vital electricity supply, object defence and mass disturbance. The previous exercises have usually focussed on resolving an event in a specific region. However, there has been minimal training in terms of emergency management and the strategic management, cooperation and regulation of different agencies and ministries, for example, in terms of the requirement to resume work during an emergency situation and its relevance. CONEX 2015 was organised as a command post exercise, where the emergencies and the responding authorities were simulated. Each of the five sub‑exercises had 15–20 senior public sector managers and specialists participating. CONEX 2015 was prepared by the Information System Authority, Competition Authority, Health Board and Police and Border Guard Board under the coordination of the Ministry of the Interior. According to the main script, the participants had to consider resolving a situation by declaring an emergency situation or state of emergency. Each sub‑exercise had a host who presented the principles and the script. The senior experts cooperated actively in preparing, implementing and evaluating the exercise, which considerably improved their awareness of threat scenarios and of national capabilities to respond to national crisis situations.

Each authority is responsible for its specific field in a crisis One of the principles of the Estonian security policy is the permanence of tasks and competences. This means that while authorities may be given additional rights and responsibilities in crises, they usually also

maintain all of their existing tasks. The exercise participants sometimes mistakenly believed that a third party – either another ministry, a government crisis or security committee or someone else – would assume leadership and responsibilities in a crisis situation. The exercise also revealed that the various ministries and authorities often have unrealistic expectations of each other, without knowing the actual capabilities of the partners. Successful cooperation also requires better knowledge of procedural rules. We must also keep in mind that actual crisis situations probably do not allow for duplication or delegation of tasks and that ministries and authorities are expected to focus on actually resolving the issues.

Use of international assistance to be revised As a result of the exercise, the action programme of the government was updated with specific development tasks for ministries that should significantly improve Estonia’s security and emergency resolution capabilities in the near future. For example, the Ministry of Social Affairs was tasked with analysing the existing agreements on using international assistance in emergencies and with concluding the missing agreements. The Ministry of Economic Affairs and Communications will analyse which objects of vital service should have autonomous electricity supply and will propose relevant requirements. The exercise considerably improved the government sector’s awareness of security risks and the know‑how on organising exercises. In order to respond to crisis situations better in the future, we will remedy the identified shortcomings based on a post‑exercise action plan. The knowledge and recommendations gained from the exercise will be included in the internal security and national defence planning documents of the government.

3. CRISIS MANAGEMENT

A crisis situation calls for deciding on whether to declare an emergency situation or a state of emergency.

Rescue work

Adopting the single emergency number 112 Janek Laev Director General of the Emergency Response Centre

Since 11 February 2015, the number 112 can be used for calling ambulance, rescuers and the police. The process of switching to the 112 single emergency number from the two distinct numbers 112 and 110 began in 2010. This constitutes one of the most fundamental recent reorganisations and projects in the domain of internal security, reducing duplication and speeding up the exchange of information between persons in need of assistance and the state.

Rescue leaders study at the Estonian Academy of Security Sciences The work of the people responding to emergency calls, or rescue leaders, in the Emergency Response Centre is very demanding, as people’s lives and health depend on their decisions. Therefore, people are not recruited off the street, but receive vocational training in the Estonian Academy of Security Sciences. In order to switch to the single emergency number, a police module was added to the curriculum of rescue leaders. Since 2012, the rescue leaders who have completed vocational training are able to process both rescue and medical help emergency calls and police emergency calls equally well. As part of the reorganisation, the existing staff had to learn new competences and were enrolled in an in‑service training programme, with 156 academic hours in the police module and 380 academic hours in the rescue and emergency medical help module. A total of 158 officials from all over Estonia completed the programme from 2012 to 2015. This required rigorous working time planning during those three years, as many of the staff in training also had to respond to emergency calls at the same time.

Switching to the single emergency number also increased the Emergency Response Centre staff, with 102 posts transferred from the police to the Emergency Response Centre in order to process police emergency calls. The Emergency Response Centre took over responding to calls made to 110 from the Police and Border Guard Board step by step over three years.

Four call centres instead of the previous eight Importantly, adopting the single emergency number also required constructing new buildings and creating modern common working environments. Before the reorganisation, the 112 and 110 emergency numbers were serviced at eight different locations across Estonia, whereas now we are down to four call centres. The emergency call staff of all three domains now work in common call centres of the northern, southern, eastern and western regions. The first common call centre, the eastern regional centre of the Emergency Response Centre, was completed in the spring of 2012 in Jõhvi. The common call centre of the western region was renovated as a temporary solution in the autumn of 2012 in Pärnu. The staff moved to the common call centre in Tartu in December 2014 and to the call centre in Tallinn in January 2015. In order to be able to process emergency calls made to one single number, we had to take a critical look at the existing communications and information systems. To improve the continuous operation of our vital service, we built a new emergency call communications system for responding to 112 calls. We also updated the computer stations in all call centres.

4. Rescue work

The northern regional call centre of the Emergency Response Centre. Photograph: Emergency Response Centre

The updated emergency call information system was interfaced with the new geographic information system GISâ&#x20AC;&#x2018;112, adopted in the summer of 2014. This common emergency services IT solution speeds up and focuses determining the location of individuals in distress and speeds up dispatching help and its arrival, encompassing the entire chain of actions involved in helping a person in a critical situation. The GIS-112 digital map displays the location of a person placing a 112 call and the location of the incident, the realâ&#x20AC;&#x2018;time trajectories of ambulances and rescue vehicles, and the fastest route to get to the person in distress. The GIS-112 was developed in Estonia with funding from Switzerland and cost 1.5 million euros. As part of the project, 132 rescue vehicles were equipped with hardware and software, while ambulances were serviced by the Health Board. We are planning to interface police patrol vehicles with the geographical information system at the end of March 2016.

The police can be reached twice as fast Adopting the 112 single emergency number has cut the waiting time for people needing police assistance by half with the launch of the police calls overflow system. This

means that if all rescue leaders are occupied on calls in one call centre, the system locates an idle rescue leader in another call centre and passes the call to them. A poll conducted in late 2015 revealed that people are highly satisfied with the 112 service: as many as 90% of the polled callers are satisfied with the work of the Emergency Response Centre. As the level of satisfaction was 83% in 2014, we can deduce that the reorganisation has had a positive impact. Since early 2014, the Emergency Response Centre has been included in the institutional reliability survey of Turu-uuringute AS, which rated the reliability of the Emergency Response Centre at 90% in 2015. The developments led by the Emergency Response Centre have been noticed and recognised both in Estonia and elsewhere in Europe. The Emergency Response Centre adopting the GIS-112 geographical information system was named Logistical Achievement of the Year in 2014. The expert committee of the European Emergency Number Association (EENA) nominated the Estonian 112 project for the European 112 Award in the category of outstanding change management initiative (two organisations nominated). The winner will be announced in the spring at the annual EENA conference.

At the same time, the project was not entirely finalised with the adoption of the single emergency number on 11 February last year. Although the service has generally improved, 1.2% of emergency calls are still kept waiting too long. Last year, 11,191 callers had to wait 20 seconds to two minutes before they were connected to the Emergency Response Centre. We need to remedy this. It is in no way acceptable that it takes so long for a caller in a life‑threatening situation to get through. There has been a delay in delivering the joint emergency call information system of the Emergency Response Centre and the Police and Border Guard Board, which is important for reducing duplication – we are currently using two information systems with similar functions. With the new system in place, a rescue leader enters emergency call data in one system, instead of the current two, which will shorten the time it takes to process an emergency call. The long‑awaited software is still in development; the initial December deadline set in the action programme of the government has been pushed to March. It is also important that we complete the fourth and final new call centre building in Pärnu. The rescue leaders of the western regional centre are currently working in temporary call centre facilities, renovated three years ago. The current facilities do not allow for adding work stations in case of major incidents, whereas the new building will have that functionality. Moreover, the western centre must also support other centres in case of overload or a disruption in services for some reason. When these three problems have been solved, we will finally be able to say that the project of adopting the single emergency number that began in 2010 has been finalised.

112 communication and new projects We cannot stop developing the 112 service, or, quoting Prime Minister Taavi Rõivas: “This must not be the end of the success story: what next?” We must keep educating people that 112 is the emergency number for calling ambulance, rescuers as well as the police. At the end of last year, only 82% of the population knew that the police can also be reached at 112. While the former police emergency number 110 automatically forwards calls to 112, it will be deactivated once the transitional period is over and usage has reached a minimum.

As of the autumn of 2017, the Emergency Response Centre will be obligated to accept eCall messages. The eCall system consists of hardware and software installed in new vehicles that establish automatic or manual contact with the 112 emergency number in case of an accident. The Emergency Response Centre is in charge of the contents of the project, the Ministry of the Interior’s IT and Development Centre is tasked with the technical implementation and the Ministry of the Interior is responsible for the legislative aspect. We must also still fine-tune the system of positioning callers. The public expects us to find persons in distress faster. Unfortunately, the current system fails to deliver quite often, mainly in sparsely populated areas. If private consumers can determine the exact locations of people using communications services, the state must be able to do the same. The Emergency Response Centre is also preparing a national crisis hotline service that is activated in case of major accidents or crises. It is in such situations that people suddenly need much more information on the impact of the crisis, on medical assistance and on their loved ones. We cannot provide this information on the 112 emergency line, as the Emergency Response Centre will be busy processing emergency calls and dispatching rescue units, police patrols and emergency medical teams.

4. Rescue work

Prevention challenges: less accidents and fatalities Helen Ojamaa-Muru Adviser, Rescue and Crisis Management Policy Department

Mari Tikan Adviser, Rescue and Crisis Management Policy Department

According to the Statistical Office, 936 people died in Estonia in 2015 as a result of various injuries, 48 of them in fire accidents and 68 in water accidents. Such deaths are particularly tragic, as they could usually have been prevented by adequate behaviour or noticing the person in distress in time. Unfortunately, it is still not self‑evident in our society that you do not go swimming when drunk or that you intervene promptly when noticing risk behaviour in a person close to you. Negligence also plays a role in fatalities caused by injuries. Despite this, both fire and drowning deaths have been declining during the period following the adoption of the main security policy guidelines in 2008. Compared to the early 1990s, the decline has been especially noticeable. Consistent prevention has played an important role here.

The Internal Security Development Plan 2015– 2020 and the Rescue Board Strategy have great ambitions for the future – to catch up with the Nordic countries in the next five years in terms of the numbers of fatalities and building and dwelling fires. Specifically, the Nordic countries have an average of one building fire and 0.6 dwelling fires per 1,000 people a year, while in Estonia the figures are 1.39 building fires and 0.70 dwelling fires (Rescue Board data from 2014). The figure comparing fire deaths and dwelling fires draws our attention to the fact that the decline in the overall number of dwelling fires has affected the decline of fire deaths. This is revealed especially well by the trend lines, which run almost parallel.

Figure 1. Rescue events and fires, 2008–2015. Source: Rescue Board

Figure 2. Correlation between dwelling fires and fire deaths. Source: Rescue Board 3000

30000 25000

26473 22026

20773

23164 22124 19237

20000 15000

10052

10000

20265

23371

2000 1500

8421

6439 6321

4973 5745

6862

5516

5000 0

2008

2500

2009 2010 2011 2012 2013 2014 2015

Number of rescue events Number of fires

1000 500 0

2226

2013 1853

164

1716

132

1168 1156 1155 89 63

892

922 790

2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

Dwelling fires Fire deaths

The fact that smoke detectors were made compulsory in 2008 has contributed greatly to the decline in fire deaths. The change was accompanied by extensive awareness‑raising to inform Estonian people about the requirement and the need for it. This work has continued over the years, as once a smoke detector is installed, its working condition must be checked regularly by pushing the test button. A smoke detector with an empty battery is of no use, as it will not go off in response to a fire. The detector should be installed in the ceiling, and the exact location is also important. We have also begun counselling households on improving fire safety, whereby we evaluate a dwelling’s fire safety and risks and offer advice for improving fire safety. These kinds of home visits are made by prevention workers and volunteers, and in the past two years, rescue professionals have also stepped in. In 2014, the on‑call units of all 72 professional teams were already making home visits. That year, they visited over 7,800 homes, and doubled the number to almost 15,000 visits in 2015.

Falling asleep while smoking is the greatest killer Analyses of fire accident causes reveal that the greatest number of dwelling fires are still caused by careless smoking, including falling asleep while smoking. Throughout the years, almost half of all fatal fires have been caused by careless smoking – claiming the lives of 20 people a year on average over the past years. The problem has been somewhat alleviated by the requirement of self‑extinguishing cigarettes, which entered into force in November 2011. Although the public was initially suspicious of yet another regulation, it has had an effect: in 2010, the number of fire deaths caused by careless smoking was 34, whereas in 2014, it was already down to 18.

4. Rescue work

Table 1. Fire deaths caused by smoking Year

Fire deaths caused by smoking

Total fire deaths

2005

133

2008

2011

2012

2013

2014

2015

From 2010 to 2014, the Estonian‑Swiss cooperation project “Prevention and management of natural disasters – increasing fire safety in Estonian 24-hour social welfare and health care institutions” was carried out. This is the most expensive fire safety project in Estonia to date, with a total cost of 1,635,801 Swiss francs (approx. 1.5 million euros), 85% of which was foreign aid and 15% state financing. The objective of the project was to improve fire safety in Estonian hospitals and nursing homes, to reduce threats on the lives and health of their employees, clients and visitors and to reduce the likelihood of material damage. To this end, the project prepared a risk assessment methodology for hospitals and nursing homes, analysed construction legislation and prepared a training system for staff and clients, along with the necessary study aids for training and practicing. The project also compiled fire safety equipment instructions, carried out a risk assessment of fire safety priorities, and proposed amendments and additions to legislation. It also trained fire safety consultants and staff and created an e‑learning environment, at www.tuleohutuskoolitus.ee.

4. Rescue work

During home visits, we evaluate fire safety in people’s homes and offer recommendations for improving fire safety.

The project also equipped participating hospitals and nursing homes with evacuation rescue mats and fireproof mattresses. We are also implementing the fire safety development strategy prepared by the project for hospitals and nursing homes, which envisages measures for improving fire safety in hospitals and nursing homes until the year 2020. These mainly consist in training staff, joint training and exercises for hospitals and nursing homes together with the Rescue Board and improving fire safety in risk‑group buildings. In 2015, basic fire safety training was added to the nursing curriculum at Tallinn Health Care College. Since 2010, Estonia has also been working on water safety prevention efforts. In this respect, we differ from other Baltic countries, the Nordic countries and the United Kingdom, where preventing drowning deaths is not a task for state authorities, but a voluntary function of lifeguard associations. In Estonia, this

work is the responsibility of the Rescue Board, Police and Border Guard Board and Maritime Administration.

Say NO to drunk swimming! People going swimming or entering a water body while drunk has been a major problem over the years – according to statistics, close to half of all people who drown are drunk. In recent years, we have seen a significant increase in the number of people in distress in and rescued from water bodies and in search and rescue (SAR) events at sea and in transboundary water bodies. This has been caused by large numbers of people in distress at the same time and for the same reason: disregarding cracks in winter and spring ice and ice openings, they have ventured to transboundary water bodies or Pärnu Bay to fish, dismissing the warnings and prohibitions by the Police and Border Guard Board.

4. Rescue work

Table 2. Search and rescue (SAR) events at sea and in transboundary water bodies. Source: Maritime Res‑ cue Co-ordination Centre

IndiviYear duals in distress

Individuals Indiwho have Individuals gotten Fatalities viduals rescued themselves missing to safety

2010

309

210

2011

469

289

167

2012

401

295

2013

498

320

164

2014

570

431

121

2015

577

479

In order to prevent drowning deaths, the Rescue Board organises annual summer media campaigns with the main message of making people realise the dangers of swimming while drunk and suggesting they prevent their drunk companions from going into the water. The 2013 campaign “Say NO to drunk swimming!” spawned controversy with its sociocritical joke on a fictional Association of Drunk Swimmers. According to a 2014 survey by TNS Emor, that campaign was very visible: 97% of people noticed it. It also succeeded in launching a social discussion that made people think more about the potentially tragic consequences of going swimming while drunk. Another point of concern is that people underestimate the importance of safety gear. Wearing a life vest in a water accident is what helps a person stay afloat until help arrives. The authorities working to im-

prove water safety have established the premise that wearing a life vest should become as self‑evident as wearing a seat belt in a car. This attitude can primarily be fostered in society via preventative actions, instead of coercion.

We must teach our children to swim If an accident happens, prompt assistance is critical. By 2015, the authorities, together with local governments, installed 177 water safety posts with water safety information and a lifebuoy near unsupervised water bodies in Estonia. If people notice someone in distress in the water, they can provide assistance. Water safety is also discussed at various training courses aimed at children of various ages and at young people, conscripts and primary school teachers. Between 2008 and 2015, the Rescue Board’s prevention workers, rescuers and volunteers trained over 48,000 people on water safety and close to 273,000 people on fire safety.

The campaign “Say NO to drunk swimming!” was very visible: 97% of the people are aware of it.”

4. Rescue work

In order to reduce drowning deaths, we must teach Estonian children to swim well. The Rescue Board, together with the Estonian Swimming Association and the Estonian Lifeguard Society, analysed how swimming is taught in our schools and were not convinced of the efficacy of the current basic swimming training. This must be remedied by increasing state funding for

training and by updating the teaching methodology. Dealing with the consequences of accidents is always costlier in terms of lost lives and property than prevention. Prevention efforts have achieved a lot in eight years, but we have also set ambitious goals for the coming years in order to reduce deaths and material damage even more.

www.kodutuleohutuks.ee

Test fire safety in your home! The Rescue Board website, with its guiding questions, encourages us to consider fire safety in our homes and offers solutions for improving the situation.

Rescue capabilities have improved over the years Martin Lambing Adviser, Rescue and Crisis Management Policy Department

Each accident causes some kind of damage to people, property or the environment. The consequences may have limited scope or may reach tragic proportions. Prevention is the most important requirement for avoiding accidents. However, if an accident has already happened, the extent of the damage depends on how quickly help arrives and how prepared the responders are to take action. Therefore, we need rescue professionals and volunteers with good know‑how and modern equipment who are able to act quickly and professionally in the case of a threat or an accident. In recent years, we have improved the preparedness of rescue professionals and volunteers by making several changes that have helped improve the public’s sense of safety.

More rescue units have life‑saving capabilities Reorganising the rescue network always sparks discussion in society. Although many changes may seem counterintuitive and damaging to safety at first sight, they are actually conducive to the organisation and the field. In 2011, Estonia had 81 rescue units, but only 41 were capable of saving lives. In other words, no matter how nice it was to look at the map of the units, a large part of the Estonian population was actually deprived of life‑saving rescue services.

We have also experienced a major relocation of population over the past decade. This complex problem was solved by closing nine rescue units in 2012 and transferring the rescuers to understaffed units in order to ensure life‑saving capabilities there. As of 2013, Estonia has over 66 rescue units with at least three rescuers on permanent call who are actually able to save people from fires, and traffic and water accidents. The positive effect of the restructuring is evidenced by the fact that in 2011, a rescue team with life‑saving capabilities on average reached an accident scene in about 11 minutes and only 84% of the population could count on fully staffed rescue teams arriving in 15 minutes, whereas these figures had changed by 2013 as follows: it took an average of nine minutes to reach an accident scene and 93% of the population could count on rescue teams arriving in 15 minutes. We have managed to maintain this level over the past years. Another important aspect is that while Estonia had 65 volunteer rescue units in 2008, we had built a strong network of 115 volunteer rescue units by 2015. If people in distress are located more than 15 minutes away from professional rescue units, volunteer units are faster first responders to accidents. We want to maintain this strong network.

4. Rescue work

”

As a result of the GIS-112 Estonian‑Swiss joint project costing over 1.5 million euros, we are able to quickly position individuals in distress and dispatch the closest rescue units.

Since 2015, anyone can find out at any time on the Rescue Board’s website how long it takes for a rescue unit to reach their home and where the nearest volunteer rescue unit is located. The Rescue Service Act, passed in 2008, clearly established the social guarantees of rescue officials. The new Rescue Act, which entered into force in 2010, clarifies the functions of rescue service agencies and as a true breakthrough, clearly specifies the requirements and social guarantees applicable to rescue volunteers, where they are included in rescue work. This constitutes a major step forward in the field.

The Rescue Board to help in offshore areas Another important development came in the form of amendments to the Rescue Act and the Police and Border Guard Act introduced in 2014, making it possible to include the Rescue Board in Police and Border Guard Board search and rescue operations in the offshore area of the sea if there is an immediate threat to people’s lives or health. The Rescue Board is included in maritime rescue functions on the basis of the fastest aid, whereby the first responder is the closest unit with corresponding equipment. This principle can also be applied in future inter‑agency cooperation in other fields. The approval of the fundamentals for rescue‑assisting volunteer activities occurred in 2009. The Ministry of the Interior coordinated and the Rescue Board and the Estonian Volunteer Rescue Association participated in preparing the national principles for developing

volunteer rescue activities for 2013–2016, which were completed in 2013. The principles outlined the options for better inclusion of volunteers in achieving a safer living environment. We will continue to need these types of guidelines for volunteer work. Rescuers may have all the professional know‑how in the world, but in order to perform their rescue functions effectively, they also need modern technology and equipment. In 2008, the Estonian rescue system had the main vehicles and life‑saving equipment that were considered modern for that time. But there was still room for improvement for the sake of saving lives. In 2014, we completed the long‑running GIS‑112 Estonian‑Swiss joint project that cost over 1.5 million euros. As a result of the project, we are able to quickly position individuals in distress and dispatch the closest rescue units.

Thermographic cameras and hydraulic equipment Since 2012, the core equipment of rescue teams has included thermographic cameras, which help the rescuers responding to a fire find injured people or pockets of fire a lot faster. New hydraulic rescue equipment helps rescuers remove traffic accident victims from damaged vehicles faster. Modernised water rescue equipment assists rescuing people from water bodies both on the coast and offshore. In addition, the Rescue Board received eight new rescue boats in 2015, for rescuing people in maritime distress.

4. Rescue work

A map application on the Rescue Board website paasteamet.ee displays the time zones and response speeds of rescue units. The map features both state (R) and volunteer (V) units.

The Rescue Board has improved its readiness to respond to environmental accidents with the help of European Union Structural Funds. In the period from 2008 to 2015, we used EU funding to acquire new principal and tank vehicles, various equipment used in chemical rescue, putting out forest fires and removing oil spills as well as other specialist technology. This would not have been possible without the European Union Structural Funds. The State budget provided 3.2 million euros to purchase six new ladder trucks that were taken into use in 2015.

In the coming years, the Rescue Board will receive, with European Union funding, 83 new rescue vehicles, costing over 26 million euros. The procurement of 43 principal vehicles amounted to 15.26 million euros, and the total cost of tank, tank‑container and container vehicles was 11.2 million euros. The Rescue Board has made significant strides in technical capabilities since 2008, and the challenge for the coming years is reaching individuals in distress even faster, using the know‑how of rescuers and modern technology and equipment.

4. Rescue work

Mine clearance experts granted international professional qualification In 2014, the first mine clearance professional qualifications based on international standards were issued in Estonia. This attests to the world ‑level qualification of the Rescue Board’s mine clearance experts. Estonian mine clearance experts also have extensive experience in destroying

World War II ammunition and they have participated in international missions. The aftermath of World War II is still keeping mine clearance experts busy in Estonia: they had 1,520 calls and found 4,675 explosives in 2015.

Mine clearance in action. Photograph: Ants Liigus, Pärnu Postimees

Marine pollution in the Baltic Sea is a serious threat Marit Mätik Maritime and aviation adviser, Border Guard Policy Department

According to the 2011 emergency risk analysis of the Ministry of the Interior, the likelihood of extensive marine pollution in the Baltic Sea is significant, and would have very serious consequences. The most likely and the greatest potential marine pollution risk would take the form of a 150,000‑tonne tanker leaking from two of its lateral tanks due to an accident, which could result in approximately 30,000 tonnes of oil products spilling into the sea. Of the Estonian marine area, about 10,000 km2 is used for maritime traffic, with a total of about 11,000 vessels passing through per year. About 4,500 of them are small and pleasure craft and approximately 1,000 are tankers. The general capacity of tankers amounts to 30,000–50,000 tonnes, but there are also tankers with a maximum capacity of 150,000 tonnes.

New Russian oil transportation ports to increase oil transportation up to 40% by 2017 In 2013, over 160 million tonnes of oil products were transported in the Gulf of Finland, and the volumes are projected to reach 200 million tonnes by 2020. Oil tanker traffic has increased due to the new Russian ports of Primorsk and Ust‑Luga, and the Maritime Working Group of the Baltic Marine Environment Protection Commission (HELCOM) predicts an increase of up to 40% in oil product transportation by 2017. It is projected that by that time, the carriage of goods in the Baltic region will double and that regular goods and container carriage will triple.

Maritime traffic is busiest in the area between Tallinn and Helsinki, where the active north‑south passenger ship routes intersect with east‑west tanker and cargo vessel routes. In the area in question, weather conditions or human error may easily cause ship collisions, which may result in extensive marine pollution or a naval accident with many casualties and fatalities. According to HELCOM’s statistics on accidents, there have been an average of 130 naval accidents in the Baltic Sea annually since 2000, and in 10% of cases oil products have leaked into marine environment. Half of the cases have involved ships running aground and almost half of the ships are cargo vessels. In half of the cases, the accidents have been caused by human error. In terms of the ecosystem (marine habitats, vegetation, birds), almost the entire Estonian sea and coastal area is sensitive to oil pollution. The Baltic Sea has low salinity and easily becomes eutrophicated (i.e. saturated with nutrients), as the circulation with the ocean is very slow: it takes 25–35 years for the water to be replaced. Pollution spreads fastest during the first hours after a leak and with strong winds. An oil spill in the Baltic Sea reaches the coast in an average of three days. The region is also characterised by threats concentrating into clusters in the vicinity of the ports that handle oil products, where the tankers entering and leaving a port are much more likely to collide and run aground than in other marine areas. Indeed, extensive marine pollution is most likely near the rocky coasts of Hiiumaa and Saaremaa islands and north Estonia, in the bays of Tallinn, Kopli, Muuga and Pärnu and in the Väinameri Sea, which feature naval route intersections, shallows and port entrances.

4. Rescue work

Oil pollution is most likely to happen near port entrances, naval route intersections and shallows. Photograph: Ivar Treffner

Marine pollution can easily occur in icy conditions where navigation is complicated. If the sea is frozen, containing oil pollution with booms is out of the question and separating the oil from the ice mass gives minimum results. It is also practically impossible to detect marine pollution through the ice cover and it is very complicated to observe its course. The pollution spreads in the water with currents and will be discovered only in the spring, when the ice begins to thaw.

Table 1. Pollution reports and confirmed cases, 2013â&#x20AC;&#x201C;2015. Source: Readiness and Response Bureau of the Police and Border Guard Board Year

Pollution reports

Confirmed cases

2013

2014

2015

Each year, an average of 300 cases of oil pollution are detected in the Baltic Sea, and usually up to 30 of them are located in the Estonian marine area. Last year, we received a total of 25 pollution reports and confirmed 14, where the main cause of the pollution was bilge water dumped into the sea illegally. We are always discovering smaller pockets of pollution leaked from ships intentionally: roughly 90% of all pollution is intentional. Bilge water and fuel tank cleaning water is usually dumped into the sea in the naval route stretches that are not monitored constantly, and therefore, make it difficult to identify the culprits: these areas are mainly the western and north-western regions of Estonian marine areas and the mouth of the Gulf of Finland. The rest of the pollution usually originates from bunker oil leaked into port basins, which the ports can generally remove by themselves. The cooperation between the Baltic Sea countries and the European Union in the field of marine pollution control is organised by the Baltic Marine Environment Protection Commission, or the Helsinki Commission (HELCOM). Estonia holds the HELCOM presidency from 1 July 2014 to 30Â June 2016, and the issues in

focus are pollution management, planning and management of marine areas and assessing and collecting information on the environmental status of protected marine areas. According to the HELCOM convention, a spill response vessel must reach an accident scene in six hours and initiate a full‑scale spill response operation within 12 hours from receiving a call. Marine pollution removal is considered successful if it is completed in the first 36 hours and if pollution does not reach the shore, where clean-up requires more effort and time. Estonia cooperates in marine pollution control with our neighbours Finland, Latvia, Sweden and Russia, and in cases of extensive marine pollution, we can also request help from the European Maritime Safety Agency (EMSA), who has two spill response vessels (tankers with spill response equipment) patrolling in the Baltic Sea. The documents regulating the removal of extensive marine pollution in Estonia are the national marine pollution control plan and the emergency plan for extensive marine or coastal pollution.

We carry out regular pollution monitoring The Police and Border Guard Board is responsible for pollution removal in Estonian marine areas and the Rescue Board is in charge of managing coastal pollution. The vessels used for these purposes are PVL202 Kati and PVL-101 Kindral Kurvits of the Police and Border Guard Board, and EVA 316 and SEKTORI of the Estonian Maritime Administration, the latter on lease from Finland until the end of 2018. Pollution monitoring is conducted three times a week (once at night), using L‑410 UVP surveillance planes belonging to the Police and Border Guard Board Flight Squadron. In addition, we have been using EMSA satellite images for pollution monitoring and detection purposes since 2011, which has facilitated the detection of marine pollution. In 2015, six of the reported 25 cases of pollution were received through the European Union satellite information system, and it delivered a total of approximately 265 satellite images of the Estonian jurisdiction.

The main measure for preventing extensive marine pollution is improving maritime safety. We organise domestic and international cooperation, training and joint exercises; the most well‑known and large‑scale are the annual Police and Border Guard Board exercise Puhas Meri and HELCOM’s annual exercise Balex Delta. The expected pollution control result of the improved rescue capabilities programme of the Internal Security Development Plan 2015–2020 is to eliminate marine pollution in Estonia. Other important goals are updating the national marine pollution control plan and involving more volunteers in removing coastal pollution. In addition, HELCOM has put special emphasis on the in‑depth exploration of the environmental threats and potential pollution caused by wrecks, sunken ammunition and chemical weapons in the Baltic Sea. We are also investing in technology. In 2015, the Police and Border Guard Board purchased, with funding from the Environmental Investment Centre, offshore booms, containers with spill response equipment, a truck and a warehouse lift, costing approximately 800,000 euros. Last year, we launched a public procurement in the amount of approximately 28.7 million euros for a multifunctional vessel and surveillance plane, to be funded by the EU Cohesion Fund, with 15% national co‑funding. The new technology will be launched by the end of 2018 at the latest.

Estonian sea boundary: 768 km Coastline: 3794 km Marine areas: 36 260 km2 Transboundary water bodies Peipsi, Lämmijärv and Pihkva: 3555 km2 Islands and islets in Estonian coastal waters: approx. 2222 29 border crossing points in ports open for international traffic

4. Rescue work

Border surveillance

Ülle Väina Adviser, Border Guard Policy Department

At a time when the whole of Europe is facing the greatest challenges ever in managing mass immigration, the security of the Schengen Area and the ability of countries to manage their external borders have become particularly relevant. In a very short time, the Schengen Area has had and most probably will still have to accommodate hundreds of thousands illegal immigrants, making it especially obvious that the way one member country guards its external border determines the security of the entire area of free movement and of the member countries.

The external border has been reinforced using external funds The Schengen external border is 53,000 km long, of which 9,000 km make up the land border and 44,000 km the sea border. Estonia is responsible for guarding 1,105.6 km of the border, where 338.6 km make up the land border and 122 km the sea border with the Russian Federation. Of the 767 km of sea border guarded by Estonia, 112 km make up the external border with Russia. Estonia has made active use of European Union external funds to equip the external Schengen border with technical surveillance and improving border guard response capabilities. In the period 2007–2013, Estonia used approximately 41 million euros received from the EU External Borders Fund to purchase various border control equipment, but also a helicopter, costing approximately 15.5 million euros, a hovercraft worth 2.2 million euros and night surveillance devices and mobile sensors worth 2 million euros.

In addition, approximately 7.5 million euros of these funds were used to install a surveillance system at Kulje Bay and a surveillance centre in Mehikoorma, and to renovate Mehikoorma guard station and surveillance systems at Kulgu, Lake Peipsi and the dried‑up riverbed of Narva River. Estonian marine areas are guarded using a sea surveillance system. Our current status is that we have equipped about half of the 338 km of land border with technical surveillance. Completing the construction of the other half and equipping it with technical surveillance is the main aim of the border guard policy in the years from 2015 to 2019. The project of building the eastern land border, equipping it with technical surveillance and marking it costs an estimated 70 million euros, 20 million of which were allocated from the State budget in 2016. Our main aim for 2016 is to begin building the border strip, which includes creating a sand strip and patrol paths and installing fences, animal barriers and border posts. The state must use State budget funds for building the eastern border, whereas it can turn to external funding to acquire most of the vehicles, floating craft, monitoring devices and other technical equipment necessary for guarding the external border. For example, in 2014–2020, we will use support from the European Union Internal Security Fund to replace the antiquated vehicle fleet of the eastern border stations and some of the floating craft, and to acquire night surveillance equipment and unmanned aircraft. The Fund will support acquiring multifunctional watercraft worth close to 9 million euros, which will speed up responses to border regime violations at sea and in transboundary water bodies. In addition, we will acquire approximately half a million euros worth of drones for the border and approximately 3.6 million euros worth of various border patrol vehicles: all‑terrain trucks, motor sledges, ATVs and bicycles.

5. Border surveillance

Estonia to have the most modern border in Europe

5. Border surveillance

”

Border violations on and near the border strip will be recorded by sensors and cameras, and the recorded information will be processed in real time at the guard station.

Modern working conditions for border guards In 2015, construction also began on one of the largest guard stations on the south-eastern border – that of Piusa, which will be completed in the spring of 2016, providing modern facilities and working conditions for border guards. In conclusion, we are actively working on equipping border guards with modern technology and patrol vehicles, comfortable working conditions and a border strip where they can move about easily. “Border violations on and near the border strip will be recorded by sensors and cameras, and the recorded information will be processed in real time at the guard station.” In order to step up external border surveillance, the work will be automated as much as possible in border control and in the areas between border crossing points. By 2019, we will have completed the “smart green” border, which means equipping the entire land portion of the eastern border with information technology that not only records events on and near the border, but also allows for immediate analysis of the information. Border violations on and near the border strip will be recorded using sensors and cameras, and the recorded information will be processed in real time at the guard station. From there, patrols will promptly receive a photograph of the border violator, along with the coordinates of the border crossing location and information on the potential direction the violator will take. Modern technology thus does not replace human work, but only complements it. We still need people to analyse and respond to the findings detected by top‑of‑the‑line technology; we will, therefore, certainly

be meeting border patrols accompanied by dogs even on “smart borders”.

“Smart border” requirements: legislation and a cleaned‑up border strip The surveillance and control of the external border of the Schengen Area are based on the Schengen acquis, which sets out the measures carried out at external borders in all Schengen member countries. Compliance with these rules is analysed by Schengen evaluations that take place every five years and look at how the external borders of member countries comply with the established requirements. Estonia has undergone Schengen evaluations in 2006/2007 and 2012/2013. Estonia has been deemed completely compliant and even held up to the other countries in many respects but one: Estonia has been reproached because it lacks a proper, sufficiently marked border strip in the land portion of its external Schengen border. Building the border strip of the land portion of the external border began in the fateful year of 2014, when the government, mobilised by the abduction of the Security Police official Eston Kohver, ordered the State Forest Management Centre to clean up 136 km (i.e. approximately 300 ha of land) of the border strip. The Minister of the Interior issued a directive for forming a cross‑ministerial working group tasked with coordinating the clean-up of the temporary border line between the Republic of Estonia and the Russian Federation. Parallel to cleaning up the border strip, the Ministry of the Interior began drafting the legislation required for building the border strip and marking the border line.

5. Border surveillance

Coordinates and the first border post for the eastern border One of the main milestones of 2015 was the government approving the coordinates of the temporary border line between the Republic of Estonia and the Russian Federation by a regulation bearing the symbolic number 1. Establishing the coordinates at government level made it possible to begin building the border strip, as we now had a clear and uniform legal understanding of the border line’s trajectory. Having the relevant legislation in place allows us to negotiate the transfer of approximately 100 privately owned land units located on the land portion of the external border to the state. By the end of 2015, all the owners of private land under the border strip had been asked to sell their land to the state, and most of them also agreed. Another landmark event of 2015 was that we began marking the border by installing border posts, which was preceded by long and substantial efforts to establish the legal basis for installing border posts and floating border markers. Marking the current border line and the future national border began on 17 November in the jurisdiction of Luhamaa service centre by the Pededze River. The fact that border post No 2 was the first to be installed does not take away from the significance of the event. Border post No 1 marks the intersection of the state borders of the Republic of Estonia, Republic of Latvia and the Russian Federation in the middle of the Pededze River. By the end of 2016, a total of 705 border posts will have been installed on the 338.6 km of the external land border, including by the Narva River. This will improve the visibility of the border line and people’s perception of its trajectory, which will reduce unintentional illegal border crossings.

The first border post installed in Võru County. Photograph: Police and Border Guard Board

We must be prepared for the fact that at any moment, migration pressure may shift from the south‑north axis to the east‑west axis. Estonia is aware of its responsibility in ensuring the security of the Schengen area of free movement. Our portion of the external border is and will be guarded by border guards who love their work and use the best technology. We are also making efforts to build the IT border, which is an ambitious project that requires more time and money, but will be the best solution in the long term. We are doing everything in our power to make our people and visitors feel safe in Estonia and to prevent unintentional border crossings as early as possible. Intentional illegal border crossings, however, must be made as uncomfortable as possible; they must always be recorded and all people arriving in the Schengen area illegally must be apprehended and identified.

5. Border surveillance

A sea surveillance system for monitoring the sea border Marit Mätik Maritime and aviation adviser, Border Guard Policy Department

The Estonian sea border is monitored using a sea surveillance system consisting of 20 surveillance radars and cameras, the aircraft and fleet of the Police and Border Guard Board Flight Squadron and the watercraft of prefectures. The sea surveillance system is also used for observing the movement of foreign military and other state‑dispatched vessels in the Estonian exclusive economic zone* and in the territorial sea. The Police and Border Guard Board has close to 100 different watercraft in its use, including four ships, launches, motor boats and hovercraft. The Police and Border Guard Board Flight Squadron has four helicopters and three planes permanently stationed at Tallinn Airport. There is also a base in Kuressaare to ensure better preparedness and faster response times. According to the State Borders Act, guarding the state border includes border checks and border surveillance by the police on land, at sea and on trans-

boundary water bodies. The border guard prevents, detects and hinders border crossings taking place at a place and time not prescribed and cross-border crime, including illegal conveyance of individuals and goods from a non‑Community country to Estonia and from Estonia to a non-Community country at the territorial sea and in inland maritime waters and on transboundary water bodies. Guarding the state border at sea includes ensuring the legal regime of the exclusive economic zone and checking on the passage of vessels through the territorial sea, and entry in and departure from inland maritime waters and ports. These tasks are coordinated by the sea surveillance centre, internationally called JRCC Tallinn. * An exclusive economic zone is a coastal state’s sea area adjacent to the territorial sea measuring up to 200 nautical miles in width where all states enjoy the freedoms of navigation and overflight and of the lay‑ ing of submarine cables and pipeline. A coastal state has in its exclusive economic zone priority over the living resources of the sea and sovereign rights over the natural resources of the seabed.

The Estonian sea border is guarded with the help of close to 100 watercraft.

Smart borders: a trend towards automated border control Viljar Kärk Deputy Head of the Border Guard Policy Department

Over time, the Schengen visa area has grown from the initial five countries to the current 26. This means that free movement applies to almost all of the European Union. However, the current migration crisis has shown how important it is that the Schengen area functions well, if we wish to continue to be able to cross Member State borders as we cross county borders. In order to ensure the functioning of the Schengen system, control efforts should be efficient not only on external borders, but also within the area of free movement and in the source and transit countries of illegal migration. While there are common standards in place for managing migration flows, we cannot only rely on mutual trust in implementing them. The evaluations of the implementation of the Schengen acquis serve the necessary supervisory purpose. Nevertheless, our current situation demonstrates that the efforts to manage the migration crisis have not been sufficient.

biometric data, primarily fingerprints, inevitably increases waiting periods at border crossing points, a registered traveller programme should also be introduced, simplifying border crossings for pre‑vetted frequent third‑country national travellers. The second draft regulation of the “Smart Borders” package is dedicated to this issue. The third regulation in the “Smart Borders” package addresses the modifications to the Schengen border rules with respect to launching the entry/exit system and the registered traveller programme. The problem issues identified while processing these draft regulations are related to personal data protection, collection of biometric data and the access of law enforcement authorities to the data. According to the current draft legislation for registering entries and exits, the system is limited to only third‑country nationals staying in the Schengen Area for a short term (90 days during a period of 180 days), whereas it has now been suggested, considering the current security situation, to expand the registering system to the external border crossings of European Union citizens. The proposal has not met with general acceptance yet.

Updating the principles of border control Already back in 2008, the European Commission proposed to step up the management of migration flows and the detection of individuals staying in Member States illegally by creating a European information system registering the Schengen Area entrances and exits of third‑country nationals. The need to put this idea into action is emphasised at every step, but we are yet to deliver an operational solution. In 2013, the European Commission proposed the “Smart Borders” package, consisting of three regulations. The first regulation provides the legal basis for establishing an entry/exit information system to register entry and exit data of third‑country nationals crossing the external borders of the European Union. As checking

Schengen Area Countries with open borders

Countries about to join Map: Wikipedi

5. Border surveillance

”

Estonia launched a new border control system in March 2015, costing over 1.3 million euros.

Estonia has followed the example of the European Union in developing its border control. The number of individuals crossing the European Union external borders annually is approximately 700 million; whereas in 2015, Estonia registered 6.5 million external border crossings, which makes an average of 18,000 border crossings daily. Although the Estonian data for 2015 are comparable to those of five years ago, we have also had years with over 8 million people checked on our external borders: 8,142,176 in 2013. According to the World Tourism Organization (UNWTO), tourism increased an average of 3.6% a year in the world and 2.5% in Europe in 2005–2012, and the numbers are expected to double in the next 20 years. According to the predictions published in the migration policy overview of the National Audit Office, the number of working‑age people aged 20–64 will have reduced by 50,000 by the year 2020, and already by 165,000 by the year 2040. A shrinking population and increasing migration flows force us to look for new solutions in ensuring security.

The new border control information system is connected to European Union databases Estonia adopted a new border control information system in March 2015, but work on the software and database platform had begun already in 2010. The project was funded from the External Borders Fund and it cost 1,364,702 euros, 75% of which was European Union funding. The new information system included the capability to interface our system with the European Union entry/exit information system. The previous IT solution used in border control was completed in 2000. When preparing the new information system, we took into account the need for it to be compatible with the technical solutions of other internal security services, including fully automated border control. The new border control information system allows for real‑time queries to other European Union information systems, such as SIS (the Schengen Information

System) and VIS (Visa Information System), as well as to Interpol’s database and various national databases. We have considerably stepped up the exchange of information with other agencies. The database data can also be used to identify individuals associated with cross‑border crime, such as smuggling, tax fraud and unconstitutional activities, etc. To illustrate the usefulness of information systems – in 2014 we captured 113 wanted persons while they were crossing the border, while the number rose to 147 in 2015. The individuals who fail to meet the requirements for entering the Schengen Area are stopped from entering the country and sent back at the state border. In 2014, such prohibitions on entry were issued to third‑country nationals on 679 occasions. In 13 cases, the individuals in question were considered a threat to internal security. In 2015, prohibitions on entry were issued in 974 cases, and 30 persons were considered a threat to internal security. In 2013, Estonia launched a fully automated border control by installing at Tallinn Airport six self‑service kiosks for checking border crossers against their travel documents, and two automatic gates facilitating border crossing for the checked persons. As the solution in question is only aimed at European Union citizens to facilitate quicker border crossings, the automatic border control gates at Tallinn Airport have not been used very actively. Nevertheless, annual usage statistics indicate an increase. In 2013, an average of 600 border crossers passed through the automatic border control gates, whereas the number had already increased to 2,200 in 2015. Using automated border control is one way to save on labour and speed up border crossings. In order to expand the usage of automatic gates and to introduce the registered traveller programme, the European Agency for the Operational Management of Large-Scale IT Systems (eu-LISA) tested in 2015 the potential for offering automated border control to third‑country nationals. Twelve countries, including Estonia, took part in the pilot project.

5. Border surveillance

Last year, Narva road border crossing point participated in a pilot project that had 1,500 Estonian alien passport holders pass through two automatic border control gates over a period of nine weeks. Photograph: Police and Border Guard Board

Narva conducted a pilot project in using automatic gates for border control, with 1,500 travellers participating One location used in the pilot project was the road border crossing point at Narva, and two automatic border control gates were installed there. The main target group of the project were the holders of the Estonian alien passport, approximately 1,500 of whom used the option of automatic border control over a period of nine weeks. That target group was selected because it is not necessary to stamp the Estonian alien’s travel document or to interview the individuals. A similar target group will be included in the registered traveller programme. According to the report by the eu-LISA, it took an average of 21 seconds to go through the automatic border control, which is comparable to manual control in people with similar profiles. Thus, time would be gained primarily in travellers who need to be checked

more thoroughly. While the system was simple and effective to use, people were not entirely satisfied with the reliability of the gates, as there were technical problems that did not allow for a smooth organisation of the border control. Therefore, the experiences were both positive and negative. We have certainly gained a new experience and know what kind of solution to strive for in the future. We have made progress in moving towards automated border control in past years, but we must keep on working. While we have introduced travel documents that contain biometric data, we have not made use of all the possibilities offered by such e‑passports. It is therefore important to set up in the near future a certificate distribution system that will allow for comparing information on a document’s electronic data medium with the user’s biometric data. This is the requirement for complete identification in both standard and automated border control.

Citizenship and Migration

6. Citizenship and Migration

A key aspect of the citizenship policy is consistency Koidu Mesilane Adviser, Citizenship Division, Citizenship and Migration Policy Department

Citizenship policy is yet another important factor ensuring the preservation of the nation state established by the Constitution, as well as guaranteeing public order and safeguarding national security, because citizenship gives rise to a special relationship of trust via the mutual rights and obligations of the State and an individual. Every child with at least one parent that is an Estonian citizen acquires Estonian citizenship by birth. This ensures the continuity of the Estonian citizenry through descent. In the remaining cases, granting Estonian citizenship is based on the individualâ&#x20AC;&#x2122;s explicit declaration of intent and the decision of the State. The Constitution grants extensive rights to both Estonian citizens, as well as citizens of other countries and individuals with unspecified citizenship. However, as in any other democratic country, Estonia also grants certain rights only to her citizens. One of the most important of those rights is the opportunity to participate in the right to exercise the supreme power of state through electing the Riigikogu and voting at referenda. The Republic of Estonia has had three Citizenship Acts, the first of which was passed in 1922, the second in 1938 (re-entered into force in 1992), and the third passed on 12 January 1995 (entered into effect on 1 April of the same year). The underlying values and principles of these Acts have been consistent.

The current effective Act contains no fundamental amendments vis-Ă -vis the Act of 1938. Rather it is an updated version and modernisation of the range of topics in the earlier Act, which takes into consideration the developments over the last 60 years.

Amendments to the Citizenship Act foster naturalisation Subsequent amendments to the Citizenship Act have been connected with fostering naturalisation. For instance, the Act specifies the requirement of proficiency in the Estonian language, but the person applying for citizenship does not have to take a separate Estonian language examination to acquire Estonian citizenship, as taking an Estonian language proficiency examination would suffice. Table 1. Share of different types of citizenship in Estonia Source: Police and Border Guard Board Year

Estonian citizens

Individuals with unspecified citizenship

Citizens of other states

1992

68%

32%

2008

84%

2015

84%

10%

* No data available

6. Citizenship and Migration

Furthermore, children born here to parents with unspecified citizenship are offered more favourable conditions for acquiring Estonian citizenship. Therefore, the share of Estonian citizens has increased from 68 per cent in 1992 to 84 per cent in 2015. While the population of Estonia in 1992 included around 1 million Estonian citizens and 500,000 individuals who were citizens of another country or individuals with unspecified citizenship, by the end of 2015 the number of citizens of other countries and individuals with unspecified citizenship had dropped to 200,000. During the period of regained independence more than 100,000 individuals with unspecified citizenship have acquired Estonian citizenship. From 1992 to 2008 over 90,000 individuals with unspecified citizenship decided in favour of Estonian citizenship, and since 2008 the number of such individuals has exceeded 10,000.

Encouraging children with unspecified citizenship to become Estonian citizens Since 2008, the State has given special consideration to children born in Estonia to facilitate them becoming Estonian citizens. Therefore, increasingly more information is being offered to parents of unspecified citizenship with children under 15 years of age. Since 2008, parents have been notified about the simplified procedure for applying for citizenship for their child as early as upon the registration of their birth. At the end of 2008, the scope of the provision of such information was extended to include schools with instruction in the Russian language, and since 2009, the information was targeted at youth 15 to 20 years of age of unspecified citizenship. Today, we can say that these efforts have produced results, and the number of children under 15 of unspecified citizenship has dropped significantly â&#x20AC;&#x201C; in 2008, according to Police and Border Guard Board data there were altogether 2,806 such children in Estonia, and by 1 January of last year the respective number was 714.

With the amendment to the Citizenship Act that came into force on 1 January this year, a situation was created to ensure that there will be no new children of unspecified citizenship. Children under 15 years of age of unspecified citizenship permanently living in Estonia, whose parents or single parent is not a citizen of any other state, were also deemed automatically Estonian citizens. As a result of this amendment, a minor under 15 years of age who was born in Estonia or who immediately after birth takes up permanent residence in Estonia with his or her parent(s) is granted Estonian citizenship by naturalisation since the moment of his or her birth. However, this only applies provided that the parents or single parent of such a minor whom no states recognise as their citizen have or has lawfully resided in Estonia for at least five years at the moment of the childâ&#x20AC;&#x2122;s birth. In Estonia, a citizen may not be a citizen of another state at the same time. Since the beginning of this year, a person, who has become a citizen of Estonia as well as another state by naturalisation, must renounce either his or her Estonian citizenship or his or her citizenship of the other state within three years after attaining the age of 18 years. Therefore, children who have acquired Estonian citizenship by naturalisation are equated with Estonian citizens by birth. While the Police and Border Guard Board has so far initiated proceedings on the loss of Estonian citizenship in respect of a number of minors who acquired Estonian citizenship by naturalisation, since the beginning of 2016 this is no longer carried out. This means that within three years of attaining the age of 18 years they will have to make a choice in favour of the citizenship of one state. However, as people are more frequently living and doing business in several countries, the cases where Estonian citizens by birth acquire citizenship of another state for practical considerations, are becoming ever more frequent. Therefore, the issue of multiple citizenships will continue to be an important topic of citizenship policy.

The key word in migration policy is balance – even in complicated situations Birgit Lüüs Deputy Head of the Citizenship and Migration Policy Department

Estonia’s immigration policy over the years has always contributed to immigration and the adjustment and accommodation of such foreigners who provide added value for society. At the same time, we try to prevent such immigrants who could pose a threat to public order or national security. Today, the range of issues linked to migration is much wider than merely preventing illegal migration. This was the focus of Clause 21 of the Main Guidelines of Estonia’s Security Policy addressing migration policy, according to which “opportunities for illegal entry and over-stay in Estonia have been reduced“. Estonia shares European values, respects human rights and, since accession to the European Union, is also implementing the common immigration policy of the European Union. In addition to the above, since 2007, Estonia is a member state of the Schengen Treaty, and there are no border checks on the borders between Estonia and other Member States.

Inclusive migration policy considers opinions of interest groups In recent years, Estonia has been moving towards a more inclusive national migration policy. On the one hand, the number of individuals of working age continues to decrease, the population is ageing and people are moving out of the country, on the other hand, however, we need to respond better to the needs of the labour market in the ever more demanding sectors of industry, education and innovation.

A more inclusive migration policy entails comprehensive discussion with employer’s representatives, experts and universities, as well as other government ministries within the process of drafting legislative amendments. Therefore, in recent years altogether 40 different partner organisations have participated in developing amendments to the Aliens Act, and the Identity Documents Act in connection with e-residency matters, as well as planning activities to support foreign nationals settling in Estonia.

Immigration in Estonia is growing steadily Nevertheless, taking into consideration the transnational scope of migration topics, we are being increasingly affected by events and crises taking place in distant regions, and the migration flows stemming from them. Estonia’s objective is to participate in their management and, if necessary, cope with them in a balanced manner. Immigration from third countries into Estonia has been steady since 2008. While the Police and Border Guard Board issued a temporary residence permit to 3,769 third country nationals in 2009, the figure was 4,060 in 2014. At the same time, it is necessary to bear in mind that since 2007, citizens of the European Union are entitled to free movement, and therefore, an increasing number of individuals, who do not need a temporary residence permit to live here, are moving to Estonia.

6. Citizenship and Migration

Table 1. Temporary residence permits issued based on types of migration for 2009–2015 Source: Police and Border Guard Board

2009

2010 2011

2012

2013

2014

2015

Total

Family migration

1136

1063 1371

1253

1283

1387

1458

8951

Employment

1063

941

1429

835

863

1237

1659

8027

Enterprise

142

460

Studies

392

459

463

516

679

893

1145

4547

Legal income*

168

International agreement**

1050

976

838

639

624

508

637

5272

For participation in criminal proceedings

Total

3769

3551 4305

3310

3503

4060

4929

27 427

* Basis invalid since 01.07.2012 ** These are mostly aliens who have settled in Estonia during the period of the ESSR and who cannot be included in the figure of newly arrived migrants Based on the amendment to the Aliens Acts that entered into effect in 2013, qualified employees and foreign students have more flexible options to settle in Estonia. Top specialists, scientists, teaching staff and foreign students can now submit the documents required to obtain a residence permit under a simplified procedure. One of the amendments provides students, who have acquired higher education in Estonia and hold a residence permit, the option of staying in the country for up to six months for the purposes of seeking employment. Estonian employers have indeed given positive feedback about these amendments. During the two years since the beginning of September of 2013, the Police and Border Guard Board has issued altogether 217 temporary residence permits to top specialists. Taking into consideration that ac-

cording to the Aliens Act the salary paid to them has to amount to at least double the annual average gross monthly salary in Estonia, it is possible to say that we have acquired high-level professionals to support Estonia’s economic development. The amendments that entered into effect at the start of this year make it possible for individuals who have come to Estonia in another way to stay in Estonia for 90 days after the expiry of their residence permit and to apply for a residence permit on new grounds. Moreover, a new basis for granting a residence permit – “temporary residence permit for settling permanently in Estonia” will be provided. From 2016 employers are also provided more flexible options for recruiting employees from other countries in certain sectors identified by the Government.

By the beginning of 2016 the Police and Border Guard Board had sent more than 3,700 newly arrived migrants to participate in the welcoming programme in total.

Supporting the settlement of newly arrived migrants The decision to migrate always has a reason, whether to work, study or to settle with a family member. In the worst case the reason for migration is the need to flee from persecution, mortal danger or the horrors of war. Regardless of the reason, newly arrived migrants generally face challenges with settling into a new society. What is the country’s tax system like, how can they participate in civil society, how does a parliamentary democracy work, where can they find a family physician or how should they communicate with their employer – these are just some of the questions to which people need answers. Introductory instruction for newly arrived migrants under the welcoming programme started in Estonia in 2015 with assistance provided by the European Social

Fund and the European Refugee Fund. The objective of the programme is to support the migration process and subsequent integration, to inform them in areas such as the functioning of the state and society, everyday life, employment, studies and family matters, and to teach them the Estonian language. The instruction is intended for all aliens who have lived in Estonia legally for less than five years. The welcoming programme consists of a total of seven short modules: the modules include basic information, employment and business, studies and family matters, modules for children and young people and modules intended for the beneficiaries of international protection. The participants in the welcoming programme can also take elementary level (A1) Estonian language courses.

Figure 2 Immigration of citizens of the European Union by citizenship 2009–2015 Source: Population Register 1000 900

Finland Germany Latvia Italy France Lithuania Sweden Poland Spain United Kingdom Other

800 700 600 500 400 300 200 100 0 2009

2010

2011

2012

2013

2014

2015

6. Citizenship and Migration

”

6. Citizenship and Migration

The welcoming programme is a commendable initiative According to Mart Ambur, member of the management board at Kühne + Nagel AS, the welcoming programme offered to newly arrived migrants is a commendable initiative. “We have recruited dozens of employees from other countries, and thus far we ourselves have had to create and offer them welcoming programmes,” says Ambur, who sees this as necessary to address even the minutest of details, which is a relatively time-consuming process.

Ambur is sure that the new programme will help companies save money and help immigrants settle in faster. “I also hope that the welcoming programme will encourage talented people to stay in Estonia,” says Ambur.

Allan Rajavee ERR News 5 August 2015

Participants in the instruction sessions of the welcoming programme Photo: Terje Lepp

From 1 January of 2016, the Police and Border Guard Board had sent more than 3,700 new immigrants to participate in the welcoming programme. The most popular modules are the employment and business modules and the basic information module, as well as the elementary level Estonian language studies. This shows that the new migrants want to settle in Estonia and now they are offered the necessary services that support this desire.

An increasing number of individuals need international protection Since 2008, the number of individuals who apply for and are granted international protection in Estonia has been growing steadily. While 14 people applied for international protection in Estonia in 2008, the figure reached 228 in 2015. During this period most of the applicants for international protection came from Ukraine, Sudan and Russia. According to information from the Office of the United Nations High Commissioner for Refugees (UNHCR) it is estimated that there are currently 60 million displaced persons worldwide, while the number of refugees has reached approx. 19 million. Although in the last two years applications for international protection were filed in Estonia predominantly by individuals from Ukraine (155 in 2014–2015), it is expected that the number of applicants from more distant regions will also increase. At the same time, Estonia is still the country within the European Union with the smallest number of international protection applications. The largest number of people fleeing from Syria and other crisis flashpoints have been received by the neighbouring countries Turkey, Pakistan, Lebanon, Iran and Jordan. However, the European Union – where according to data from the European Refugee Agency, by October 2015 more than a million international pro-

tection applications have been submitted – has also had to increase their efforts to mitigate the situation. For comparison it should be added that in 2014, over 600,000 applications for international protection were submitted across the European Union. The underlying principles of the migration policy of the European Union is mutual solidarity and responsibility. Based on these principles in May 2015 the European Commission published the Communication on the European Agenda on Migration, in order to resolve the Mediterranean crisis where thousands of people had already tragically perished in boat accidents. Among other measures, the European Commission proposed as a solution certain relocation and resettlement mechanisms, based on which it is intended to relocate and resettle 180,000 individuals requiring international protection within a period of two years.

Table 2. Number of applicants for and beneficiaries of international protection in 2008–2015 Source: Police and Border Guard Board 350 300 78

250 200 20

150

228

100 11

50 0

4 14

13 77

7 147 97

2008 2009 2010 2011 2012 2013 2014 2015 Number of applicants for international protection Number of beneficiaries of international protection

6. Citizenship and Migration

Refugees on the Greek island of Lesbos. Photograph: International Organisation for Migration (IOM)

Refugees need the support of Estonians to settle here Estonia is participating in relocation and resettlement schemes for the first time, and therefore, the proceedings as well as the support services provided to beneficiaries of international protection need to be reviewed. Although there is a crisis, the refugees are not all coming to Estonia in one group, and therefore, there is time to prepare suitable dwellings for them, and to arrange the provision of language training, support personnel and other services without undue haste. At the same time, this is a challenge to areas of government and different government ministries as well as to the Estonian society as a whole. On the one hand, it is necessary to make sure that people arriving in Estonia genuinely need international protection and do not

themselves pose a threat to public order and national security. However, an even more important aspect is the understanding of people living in Estonia, which helps individuals who have been granted international protection to start their new life here. Communication plays an important role in this regard, and along with the state, civil society organisations have been contributing a lot to these activities by organising discussions and events, distributing materials, and so on. One positive development that has been identified is that according to the survey conducted by EMOR, support for people in distress requiring international protection has increased â&#x20AC;&#x201C; in June 43% of residents believed that people in trouble need to be helped, in December of 2015 this opinion was shared by every second resident of Estonia (54%).

Fight against illegal migration relies on cooperation Ele Russak Adviser, Illegal Migration Division, Citizenship and Migration Policy Department

In 2014, a record number of aliens – over 280,000 – entered the European Union without legal basis. The migratory pressure increased even more in 2015, when by the end of November the number of registered illegal border crossings had reached 1 553 614. The migration of refugees, mainly along the Mediterranean and Western Balkan routes, has thus far not had any immediate effect on Estonia’s external border. However, in recent years there has been an increase in cases of illegal migration into Estonia as well. Predominantly, these illegal immigrants originate from Russia, CIS countries (Ukraine, Armenia) and Asia (Vietnam). The tasks established for the Ministry of the Interior by the Main Guidelines of Estonia’s Security Policy until 2015 included more efficient forecasting, prevention and detection of illegal immigration. The mass immigration of refugees indeed represents a serious test for both European solidarity as well as for the common border control, asylum and immigration policy of the European Union. The free movement of people can only work if there is trust between the Member States that the requirements established by the legislation of the European Union are observed by all. On the other hand, amending and implementing national laws is not enough to resolve the migration problems. In order to address the pull and push factors of illegal migration, it is necessary to establish functioning cooperation

relations with the migrants’ countries of origin as well as with transit countries. Therefore, it is necessary to ensure that such areas as foreign policy, security, development cooperation, employment and social policy are more closely involved in achieving the migration policy objectives.

The European Union’s readmission policy needs improving Since 2008, the European Union has been actively working on harmonising the regulatory regimes of Member States governing migration. Directive No. 2008/115/ EC of the European Parliament and of the Council established the common rules to be applied in Member States for returning illegal third-country nationals. The Directive obliges all Member States to ensure that an alien, who does not have the right to stay in the European Union, leaves their territory within the fixed time limit. However, in practice the Member States are only able to deport 40% of aliens who are under the obligation to leave from the European Union. Although the percentage of successful deportations is extremely high in Estonia, exceeding 90% in 2014, this indicates that thus far we have not had to deport aliens to countries with whom the European Union has not managed to ensure well-functioning collaboration in the field of readmission. In particular, the success of deportation is dependant, above all, on the wish of the state of the nationality of the deportee to take back its citizen.

6. Citizenship and Migration

”

A key pull factor for illegal immigration into the European Union is the possibility of obtaining work here as an illegal immigrant.

The migration crisis has demonstrated that in order to thwart illegal immigration it is necessary to ensure stability and development in their countries of origin – this is the only way to prevent people from leaving their homes – and cooperate with countries in order that the aliens staying here illegally could return to their home countries without having to fear for their lives. For this purpose, the European Commission has launched an Emergency Trust Fund, allocating 1.8 bil-

lion euros from the financial means of the European Union and the European Development Fund into which Estonia will contribute an additional 150,000 euros. Moreover, at the Valletta Summit of 2015, the participants approved an action plan to improve the capability of African nations in tackling migration, and to foster cooperation in areas such as blocking and prevention of illegal immigration, returns and the readmission of people.

Figure 1. Dynamics of registered illegal migration cases for 2008–2015

600 552

450

300

293

149

150

134

109

2008

2009

2010

Third-country nationals

132

313 267

285

164 128

2011

2012

2013

2014

Detected cases of individual and groups of illegal migrants

2015

Another reason that the deportation of an alien is often unsuccessful is the inability of countries to stop illegal immigrants from moving further within the EU to other Member States. Finding suitable places to detain and accommodate the ever-increasing number of refugees and provide them with the necessary conditions poses a major challenge for the Member States. The Ministry of the Interior started preparations for building a new detention centre in 2009. According to the Government Action Plan 2015–2019 the centre should be completed in 2018 when in the course of the Schengen evaluation process is intended to verify, inter alia, the conformity of the detention conditions with the requirements of the law of the European Union and international law. The centre will be built in the Rae rural municipality, Soodevahe village, and will house 120 people. However, the Schengen evaluation process is not the only monitoring mechanism to verify the protection of the human rights of aliens placed in detention centres. The detention centre in Harku, which is currently housing approximately 70 people, either to be expelled or current asylum applicants placed there with the authorisation of the administrative court, is paid repeated verification visits by representatives of the Chancellor of Justice, the European Committee for the Prevention of Torture and Inhuman or Degrading Treatment and Punishment, as well as representatives of international organisations such as the Estonian Red Cross and the UNHCR.

Ensuring decent living conditions for individuals staying in the centres Taking into consideration the recommendations given during these verification visits, an increase in the volume of doctors’ and nursing services and an increase in leisure opportunities is expected using 495 110 euros from the Asylum, Migration and Integration Fund of the European Union. Moreover, from the autumn of this year, all aliens staying in the detention centre will be offered individual counselling in order to provide more comprehensive information about their rights

and obligations, and to find answers to the questions they might have.

Pull factors of illegal migration deserve more attention A key pull factor for illegal immigration into the European Union is the possibility of obtaining work here as an illegal immigrant. To combat this in 2011, Estonia transposed into her national law Directive No. 2009/52/EC of the European Parliament and of the Council – the Employer Sanctions Directive, criminalising the illegal employment of foreign nationals. The purpose of the Employer Sanctions Directive is not just the protection of the labour market against illegal employment, but also the prevention of human trafficking. According to the serious and organised crime threat assessment of 2013 by Europol, illegal immigrants could easily fall victim to labour exploitation. At the same time, they are afraid to report the criminal offence to the police for fear of being deported, for lack of qualifications to perform the work or an inadequate understanding of the law. While according to Europol, the number of victims of human trafficking registered in the European Union in 2013 was 3,315, in 2014 the figure had increased to 4,185 victims, of whom 29% were third-country nationals. In order to discover cases of slavery, a state must strengthen the supervision of the employment of aliens. The Police and Border Guard Board has already intensified cooperation with the Tax and Customs Board as well as the Labour Inspectorate, conducting joint verification visits and developing inter-agency analytical capabilities. The growing shortage of labour can increase the risk of illegal employment even more, and therefore, fostering cooperation both with other agencies as well as with employers is crucial. The migration crisis hitting the European Union clearly demonstrates that in the globalised world no country can escape migration problems. In order to ensure that the movement of people is well managed and safe, the main objective of the Member States for the coming years is to create policy coherence.

6. Citizenship and Migration

Identification methods have enjoyed substantial development due to information technology Siiri Leskov Identity Documents Policy Adviser

In 2008â&#x20AC;&#x201C;2015 the field of identity documents and identity management has undergone considerable development starting from introducing documents with biometric data to the creation of different digital documents, which has markedly expanded the potential for individuals to use electronic services. Estonia started issuing travel documents containing biometric data on 22 May 2007. The most important change in the travel document was the use of a contactless chip to electronically store biometric information.

Substantial IT development in personal identification However, travel documents with biometric data have been updated on an on-going basis. The first travel documents containing fingerprint images were issued on 29 June of 2009. On 30 November of the same year the customer service staff started to compare fingerprints of individuals who came to collect the document against the fingerprint images in the document itself. In order to take the identification process to a new lever and to ensure systemic identity management, a uniform identification procedure was introduced, one part of which is comparing the biometric data of the

facial image against all respective databases of the Police and Border Guard Board. This facilitates the detection of identity theft and cases of double identity. In order to be able to identify individuals and detect forged documents, improved equipment was taken into use in November 2008, which made it possible to verify the authenticity of travel and identity documents of citizens of the European Union and third countries. Starting from the beginning of 2011, Estonia started issuing aliens living permanently in the country residence permit cards that carry personal information and the residence permit data, a photograph and fingerprint images. Moreover, a public service has been set up for the mutual identification of individuals, which offers a facility for the digital verification of the validity of identity documents. Furthermore, authorities that have the right to identify individuals and verify the validity of their identity documents and compare this data against each other, were granted electronic access for sending enquiries to the databases of the Citizenship and Migration Board. Existing digital documents are being continuously updated, while new documents have been created as well. For instance, a digital identity certificate; that is, a digi-ID, was launched, and the Police and Border Guard Board has been issuing these since 1 October 2010. In addition to the above, mobile-ID certificates backed by the state guarantee have been issued since 1 February 2011. Mobile-ID is a digital identity document where the data carrier is the SIM card of a mobile telephone.

6. Citizenship and Migration

Prime Minister Taavi Rõivas presented Steve Jürvetson and Tim Draper the first e-resident digital IDs in the United States. Photo: Ave Tampere, Government Office

Nearly 6,000 individuals have been granted e-residency On 1 December 2014, Estonia started to issue digital identity documents for e-residents or digi-IDs. This measure was aimed at developing Estonia’s business environment and economy, and boosting its appeal. The digi-ID for an e-resident offers foreigners living in other countries the same opportunities for operating in Estonia’s electronic environment as Estonian residents currently have. E-residency attracted even more

interest than expected: in the first half-year of last year the target for the entire year – 2000 applications – was already exceeded. As at 11 January of the current year as many as 7,999 individuals from 122 different countries have applied for e-residency, while the number of digi-IDs issued was 5,722. Starting from 13 May 2015, it has been possible to apply for e-residency in the web environment e-residency.gov.ee, and it can also be done at Estonia’s foreign missions.

Human Resources and Agencies

The number of staff at the Ministry of the Interior decreases year by year Eneli Vensel Adviser, Personnel Policy Department

Altogether 8,084 individuals are employed at the Min-

The number of staff will continue to decrease

istry of the Interior; 61% work in the Police and Border Guard Board, 27% in the Rescue Board and the remaining 12% are employed by the Alarm Centre, the Information Technology and Development Centre, the Estonian Academy of Security Sciences and the Ministry. Since 2008, the number of people employed in our area of government equals roughly the population of the city of Türi – 5,221, while 7,110 employees have resigned. The staff at the Ministry of the Interior has decreased annually: by 16% vis-à-vis the year 2008 – from 9,671 employees to 8,084. The largest reduction of employees has occurred in the Police and Border Guard Board, where compared with 2008 the staff has been reduced by 25%.

The ageing of the population, the decline in the working age population, limited budget and wage competition also pose a challenge in the area of internal security. The Government is committed to keeping the share of government sector employees in the working age population (between 15–74 years) at least at the current 12% level. Population trends show that Estonia’s working age population will drop in the next five years on average by 0.7 per cent per year. Therefore, the number of government sector employees needs to be reduced accordingly – by about 700. This means that in the future we shall have to ensure Estonia’s security with less staff, and in the coming four years there will be 200 less people working with us. About two-thirds of our employees are officers, of which 3,735 are police officers and 2,284 are rescue officers. They are the people who make sure on a daily basis that we can live safely. As in the area of government as a whole, the number of officers has also decreased over the years – while in 2008 the number of officers was 6,821, today their number is 6,025; in other words, 12% less. About three-quarters of the police officers and rescue officers are men: 67% of police officers and 88% of rescue officers, and these ratios have not change significantly. However, the share of young men has decreased considerably: while in 2008, 24% of police officers and rescue officers were 29 or less years of age, in 2015 the figure was 18%. This is a major challenge, because a good police or rescue officer has to

Figure 1. Number of people joining and resigning from service for 2008–2015 1200 1000 800 600 400 200 0

2008 2009 2010 2011 2012 2013 2014 2015 Entered into service Resigned from service

7. Human resources and Agencies

”

We have to take into consideration that the number of men aged 24–30 years will drop in the next 15 years from 70,000 to 45,000.

be in good physical shape. We need to organise our work knowing that every year less young men enter the labour market: The share of men aged 24 to 30 will drop within the next 15 years by approximately by one-third, from 70,000 to 45,000. In order to reduce costs, a number of reforms have been deployed in the recent years. Due to this we have been able to organise our work more efficiently and have kept the population’s sense of security vis-à-vis the police and rescue services at a high level. This is demonstrated by the public opinion poll on national defence commissioned by the Ministry of the Interior and conducted by Turu-uuringute AS. In 2015, of the ten institutions the reliability of which the respondents were asked to assess, the Rescue Board enjoyed the highest level of trust – 94% (2008 – 93%). The Rescue Board was followed by the Police and Border Guard Board, which was trusted last year by 84% of the population (in 2008 the trust in police was 81% and in the border guard – 87%).

Rescue centres brought together under the Rescue Board, and the Alarm Centre became an independent agency The Police and Border Guard Board was established on 1 January 2010 by combining the Border Guard Board, the Citizenship and Migration Board, as well as the Police Board, the Personal Protection Service and the Central Criminal Police, the Border Guard Flight Squadron, four Police Prefectures and four Border Guard Districts. At the same time, support services underwent massive centralisation, and the number of support staff at the agency dropped from 1,091 to 839; in other words, by 23%.

In 2011, in order to underpin the fight against latent crime, the Central Criminal Police was re-established within the Police and Border Guard Board, with separate units to tackle corruption as well as detect the proceeds from crime. The Central Criminal Police employs a staff of 202 people. The county police reform was implemented in October of 2014, which resulted in saving a total of 4.8 million euros and the dismissal of 215 people. The funds saved were allocated, above all, towards increasing the wages of low-earning police officers, and the average basic salary in the Police and Border Guard Board increased by 12% – from 1,081 euros to 1,217 euros – and the average basic salary of low-earning patrol police officers increased by 16% – from 926 euros to 1,070 euros. Moreover, a new system was deployed, where the key services, starting from regional police work, prevention, response and monitoring all the way to procedural matters are now managed on a county basis. Such an approach allows the police to plan their activities and resources much more flexibly, and cooperate more efficiently. The largest projects in 2015 were the manning of the border guard rapid response units in Narva and Piusa with 30 officers, and constructing the Estonian-Russian border. The customer service unit of the Police and Border Guard Board was reorganised and procedural measures in cyber-crime cases were strengthened. Additional contributions were made to the e-residency project – starting from December of 2014, the Police and Border Guard Board accepts Estonian e-residency applications and issues digital identity certificates – digi-IDs.

7. Human resources and Agencies

The reform resulted in a 12% increase in the average basic salary of police officers.

Rescue Board reduced support staff The rescue services sector was reorganised in 2009; in the course of this reorganisation the pool of rescue equipment and machinery was trimmed down and transferred to volunteers, while the number of rescue crews decreased from 92 to 87. The ICT development operations and infrastructure were also transferred to the Information Technology and Development Centre of the Ministry of the Interior. Reorganisation of the rescue service agencies’ management structure started in 2010 based on the support services consolidation project of the Ministry of Finance and the service based management model. The Personnel and Administration Department and Finance Department of the Rescue Board commenced the centralised provision of services to rescue service agencies in 2011, and the payroll accountants of the rescue centres in western and southern Estonia was reorganised as a competence centre providing

services to all rescue service agencies. As a result of the centralisation of the support services (human resources, payroll accounting, finances, ICT, administrative services) carried out in 2010–2011, the number of staff in the agency decreased by nearly 100. Preparations were made in 2011 to merge the Rescue Centres into a united Rescue Board, which would govern the entire rescue services sector. The following year the Alarm Centre governed by the Rescue Board was transformed into an independent government agency in order to simplify and speed up responding to calls, irrespective of the type of emergency (rescue service, police, emergency medical care); in 2012– 2013 all service personnel had to take extensive in-service training courses to possess expertise and skills for handling emergency calls related to different areas. The rescue crew network was also reorganised, as a result of which nine national rescue crews were discontinued.

7. Human resources and Agencies

The Estonian Fire Fighting Museum, which had been operating under the name of Internal Security Museum, was included in the structure of the Rescue Board in 2013. In 2014 the process of managing rescue work in rescue centres was streamlined. Based on the new personnel strategy of the Rescue Board the work of the Personnel and Administration Department was reorganised in 2015, and two new divisions were created. All these changes have provided the Rescue Board the possibility of targeting more resources towards its core activities.

Less management in the Information Technology and Development Centre The cross-sectoral Information Technology and Development Centre of the Ministry of the Interior, which also provides vital services (uninterrupted emergency radio communication service ESTER, 112) was established in March 2008. Sixty-two ICT specialists from the Ministry of the Interior, the Citizenship and Migration Board, the Police and Border Guard Board, the Rescue Board and the Estonian Academy of Security Sciences were transferred to the Centre. The consolidation process was completed in early 2010 by transferring the IT support service, in the course of which 72 more people joined the organisation. The new Head of the Centre, Merle KĂźngas, assumed office in February 2013; in November of the same year she launched a major organisational change, which resulted in the discontinuation of five divisions and the formation of the services and support division, which were headed by Deputy Heads of the Centre. The purpose of this was to streamline and boost the organisation of work and to reduce the number of top management positions. Area-based teams were founded in June of 2015. As the number of management levels was reduced, the area managers were given more responsibilities, thus improving the quality of management decisions.

In January 2015, the accounting of the Information Technology and Development Centre was moved to the Department of Finance of the Ministry of the Interior, and the human resources and payroll accounting was moved to the accounting and human resources department of the Viljandi County Government.

Policy-making at the Ministry of the Interior overhauled In 2012â&#x20AC;&#x201C;2013, the internal security analysis and policy-making capacity within the Ministry of the Interior was boosted by considerably transforming the organisational structure of the Ministry. The duties of the previous office of the secretary general of internal security were divided between the deputy secretary generals for internal security policy, public order and migration policy and for rescue policy. The deputy secretary generals focus on developing targeted policies within their respective areas and the duties of the departments subordinated to them became rather more area based. Furthermore, the number of positions at the Ministry of the Interior handling policy-making duties was increased. In 2013, the EU and Foreign Relations Department was established, along with the Strategy Department which is responsible for strategic planning in the internal security area. The changes implemented in 2014 were aimed at better organisation of work and increasing employee motivation. The Migration and Border Guard Policy Department of the Ministry of the Interior was replaced by two separate departments: the Citizenship and Migration Policy and the Border Guard Policy Departments. The Document Management and Internal Services Department was abolished, and the duties of the department were divided between other departments. As a result of the structural changes that took place in the Ministry of the Interior from 2008 to 2015, the number of staff at the Ministry has increased by 18%, from 157 to 186.

Estonian Academy of Security Sciences teaches specialists responsible for internal security Reelika Ein Adviser, Personnel Policy Department

The Estonian Academy of Security Sciences is a state institution of professional higher education under the Ministry of the Interior conducting training in the fields of public order, criminal policing and other fields of internal security at the level of vocational education, higher education and Masterâ&#x20AC;&#x2122;s studies. The Academy also offers continuing education and carries out research and development in the field of internal security. The employers of graduates of the Academy of Security Sciences are mainly the Police and Border Guard Board, the Rescue Board, the Prison Service and

the Tax and Border Guard Board. This model, where the provision of education in the specialist fields of internal security has been brought together into one organisation, is unique in Europe. Elsewhere in Europe different specialist fields are taught in different educational institutions, for instance, in Finland the Police College, Training Centre for Correctional Officers, the Helsinki Rescue School, the Finnish Customs School, and so on, operate as separate institutions. To date the Academy of Security Services has provided education to security specialists for 23 years. Within the last eight years a total of 3,235 officers have been recruited from the Academy to serve in the area of internal security, including: 1,291 police and 870 rescue officers, 725 prison service officers and 349 tax and customs officers.

The building of the Academy of Security Sciences in Tallinn, Kase Street. Photograph: Academy of Security Sciences

7. Human resources and Agencies

”

7. Human resources and Agencies

Currently instruction takes place in four colleges, and the number of students, compared with eight years ago, has dropped by almost 500.

Many of the graduates of our school are managing large organisations and have been recognised for their exceptional work. For instance, the Director General of the Police and Border Guard Board Elmar Vaher, the Director General of the Rescue Department Kuno Tammearu, the Director General of the Tax and Customs Board Marek Helm, and several officers occupying top positions in these agencies, as well as directors of prisons are all alumni of the Academy.

Eight years ago the instruction of specialists in the field was provided in six colleges: the Police College, the Rescue College, the College of Justice, the Border Guard College, the Finance College and the College of Public Administration with a total of 1,400 cadets. In 2008, the admission to the fields offered by the College of Public Administration was discontinued and the Border Guard College and the Police College were merged into one. The reason for discontinuing the College of Public Administration was that the same content was being taught in other institutions of higher education, and it was unreasonable for the Ministry of the Interior

to continue financing this college. The Police and Border Guard Colleges were merged at the same time with the merger of the Police and Border Guard Board. The names of the colleges changed as well – the Police College became the Paikuse School of the Police and Border Guard College, and the Border Guard College is now the Muraste School of the Police and Border Guard College. Therefore, at present instruction takes place in four colleges, and the number of students, compared with eight years ago, has dropped by almost 500. The reason for this is, above all, the closing of the College of Public Administration, the shortening of the four-year curricula into three years, and ending the provision of paid distance learning courses as a result of the higher education reform. In addition, the Centre for Migration Studies was liquidated and the role of the European Migration Network Contact Point was moved to Tallinn University. Due to the economic downturn, the number of staff at the Academy was reduced in 2009 – 13 employees were made redundant and 20 of the faculty members were moved to part-time work in order to ensure continued stability of the activities with reduced staff and commensurate salaries paid to the staff of the Academy.

Figure1. The number of applications and student

Figure 2. Number of students and pupils in 2005–2015

Changes in the colleges of the Academy of Security Sciences

places, and the competition for places in professional higher education and Master’s studies for 2005–2015 1400

8 1164

1200 1000

4,2 800 729

600 400 200

5 4,1 618 2,7

232

2,6 374 374

432 2,2 234 216 235

146

975

5,4 732

4,1 765

102

1344

1200 1000

3 281

1489

1400 1242

6,3 965 4,6

1600

975

1047

1122

1407

155

135 185

834

800

200 0

2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

400

1103

1034

600 235 210

1270

267

297

367

373

436

753 350

1020 1005 704

316

746

259

983 786

197

1053 754

299

0 04/05 05/06 06/07 07/08 08/09 09/10 10/11 11/12 12/13 13/14

Applications Student places

Pupils in vocational studies Students in higher education

Competition

TOTAL

7. Human resources and Agencies

Cadets of the Academy of Security Sciences in a line-up Photograph: Academy of Security Sciences

A European Master’s degree programme in border guard studies was launched by the Police and Border Guard College The share of practical studies has increased in the curricula offered by the Academy of Security Sciences; mandatory English and Russian language courses and elective courses have been added to the curricula. The higher education curriculum of the police service was introduced in 2010, which offers students a choice of one of the three major fields of studies: border guard, criminal police and public order police studies. In addition to the higher education curriculum, two vocational curricula have been opened for the patrol police and border guard areas of specialisation. The Master’s degree programme in internal security was opened at the Academy of Security Sciences in 2009. This is a unique programme on the European higher education landscape, which provides high-level knowledge in such areas as safety and internal security analysis and management, and is intended for all employees of internal security agencies.

In September of 2015, the Police and Border Guard College launched the first European Master’s degree programme in border guard studies, providing instruction to 27 senior border guard officers from twenty Member States of the European Union, one of whom is an officer of the Estonian Police and Border Guard Board. The studies, which are conducted in six European institutions of higher education, help foster cooperation between the managements of the border guard services of different countries, and improve external border control. This is the first Diploma programme of its kind across Europe. The development of the Master’s programme in border guard studies started in 2012, and the cooperation agreement on the provision of the programme was signed in 2014 on the European Day of the Border Guard. During a period of three years, over 70 experts and border guard officers across Europe, including 11 employees of the Academy of Security Sciences and the Police and Border Guard Board made their contribution to the development of the curriculum.

7. Human resources and Agencies

”

The plan is to build a new faculty building in Tallinn at Kase Street, for which we intend to seek EU support of 17 million euros.

In 2010, all curricula offered by the Academy of Security Sciences were granted international accreditation by the Estonian Higher Education Quality Agency. This proves that the education provided by the Academy is of a high quality.

Development of the Rescue College, the College of Justice, and the Financial College is underpinned by the needs of employers The Rescue College prepares employees for the Rescue Board and the Alarm Centre. A mark of the quality of the education is the tight link between curricula and vocational standards. In 2008–2015, the Väike-Maarja Rescue School offered instruction in three vocational fields. In 2013, the Väike-Maarja Rescue School was one of the three nominees for the Quality Award in Estonian vocational education institutions. But in the autumn of 2015, the rescue leader studies were moved from Väike-Maarja to the study complex on Kase Street in Tallinn, which significantly boosted the attractiveness of the field of study and the competition for admission. The complex provides study facilities for 20 rescue leaders, up to 80 rescue officers and 15 heads of rescue crews, whose average age is 32. A significant development for the College of Justice occurred in 2010, when in-service training for the prison service was brought under the College. Before that in-service training was coordinated by the Prisons Department of the Ministry of Justice, or the prisons themselves. At present two employees of the college coordinate all in-service training activities for the prison service, which last year were provided on 170 individual occasions, involving over 2,000 correctional officers.

In the Financial College the customs and taxation curriculum is offered extensively in the form of e-learning. Full-time studies in the field of customs and taxation take place in the Financial College building of the Academy of Security Sciences on Kase Street, and there is also a plan to launch part-time studies there. A total of 671 graduates of the Financial College have been recruited to the Tax and Customs Board, as well as by various public and private sector institutions. At present the College has 134 students. Currently, the Academy of Security Sciences is working in four different locations: Tallinn, Pirita, Pärnu County at Paikuse, Harju County at Muraste and Lääne-Viru County at Väike-Maarja. Within the last eight years, the Government has discussed the development of a campus and moving the Academy on four occasions. In 2011, the Government started to consider the potential relocation of the Academy or a part of it to the Ida-Viru County. However, all the analyses conducted showed that the construction of a new building in a new location would be considerably more expensive than refurbishment of the existing buildings. On 18 September 2014, the Government approved the proposal made by the Minister of the Interior about establishing a practical training facility of the Academy of Security Sciences in Ida-Viru County, which would increase the presence of the State’s power structures in the region, every year over 100 new cadets will come to Ida-Viru County to maintain public order, guard the border or perform customs or rescue functions and attend practical training for prison guards. On 28 September of last year, the first 25 patrol police cadets of the Academy of Security Sciences started their practical vocational training course in the police stations of the East Prefecture.

7. Human resources and Agencies

Simulation management programme Photograph: Academy of Security Sciences

Consequently, in order to streamline its management, the Academy of Security Sciences will close down its Muraste training centre, which saves 23% in administrative costs. A new faculty building is planned for construction in Tallinn at Kase Street, for which the Academy intends to seek financing from EU funds in the amount of 17 million euros. With the aim of promoting practical studies, an outdoor shooting range will be set up at Paikuse as soon as this year, while the motor-racing circuit will be extended by adding a skid-pan track, and a new, ten times larger tactical training campus will be developed with financial support provided from the European Union. In 2015, the Academy of Security Sciences also invested in the renovation of dormitories, and this work will continue.

We are proud of having the most up-to-date training centre in the Nordic countries with a 3D model In 2008, the Academy of Security Sciences opened the most up-to-date 3D virtual simulation based training centre in the Nordic countries. This helps to improve inter-agency cooperation in managing major accidents and liquidating the consequences of terrorism. By applying the 3D model, the volume of practical training and instruction has increased manifold, both in the formal education system, as well as in-service training courses. At present nearly 2,000 individuals use the centre, and the methodology has served as an example for many countries.

7. Human resources and Agencies

The simulations can shape realistic sites of events along with necessary resource management and activities. The project was funded by the European Union via EFP6 (CIPS), and the initial investment amounted to 65 000 euros. In addition to crisis management simulation, there are also training environments developed for criminal proceedings, and procedures for processing border crossing by refugees and illegal immigrants. At present the simulation technologies cover nearly 57 different study outputs. We have also the capability to develop new educational products. In 2014, the Academy of Security Sciences participated with partner institutions of higher education and internal security services from 11 countries in the consortium developing the Training Augmented Reality Generalised Environment Toolkit TARGET, which by 2018 will deliver tactical training environments based on nonlinear and dynamic scenarios.

International cooperation of the Academy of Security Sciences • The Academy of Security Sciences cooperates with the educational institutions for internal security in many countries, and participates in international cooperation aimed at fostering the security of the living environment. The partners of the Academy of Security Sciences are specialist networks and agencies of the European Union, such as CEPOL, FRONTEX, eu-LISA, DCAF and OSCE, with whom the Academy exchanges expertise and best practises related to training and applied research. • The Academy of Security Sciences issues a peer-reviewed scientific journal “Proceedings, Estonian Academy of Security Sciences”, which publishes writings on topical matters and the results of recent internal security related research from Estonia and abroad. The journal’s 14th issue was published this year, and the articles are available in the EBSCO database and the library of the Academy of Security Sciences.

In 2012, the Academy of Security Sciences was awarded the Grand Prix of Nordic quality “Quality Innovation 2012” for the integration of modern simulation technology into teaching methods. In 2013, the Police and Border Guard College opened a training laboratory that offers cadets and officers an unprecedented opportunity to study asylum proceedings and related work processes in a virtual learning environment.

Preliminary training in internal security for secondary school students In 2011, the Academy launched preliminary internal security training courses for young people in five upper secondary schools. At these courses the participants can acquire skills to foresee potential emergencies and to help themselves and others. They are also taught competencies required to become an assistant police officer or a voluntary rescuer. In this academic year the preliminary internal security training courses will be attended by 280 students from 12 upper secondary schools across Estonia: Tabasalu, Orissaare, Pärnu, Valga, Põlva, Räpina, from two schools in Kohtla-Järve and four schools in Narva. In 2015, 82 pupils graduated from the threeyear preliminary internal security training curriculum, 32 also submitted an application for admission to the Academy of Security Sciences. During the first year of preliminary training, the young participants are provided the basic knowledge required for becoming a voluntary rescuer. In addition to theoretical training they attend a two-day specialist training course at the Väike-Maarja Rescue School. In the second academic year, the participants acquire the knowledge needed to become an assistant police officer, and attend a two-day practical training course at the Paikuse School. In the third year, they learn competencies and skills for border guarding.

Story of bringing the IT-Agency to Estonia Märt Hiietamm Head of the EU and Foreign Relations Department

The headquarters of the IT-Agency began their operations on 1 December 2012, and today employs a staff of 55. By the end of 2017, the headquarters will move to a new building in Kalamaja, next to the Seaplane Harbour, while the staff will grow to about one hundred. On 24 June 2009, the European Commission presented draft legislation proposing the establishment of an agency for the operational management of large-scale IT-based security systems in the area of freedom, security and justice. For more than two years before this, extensive preparations had been underway in Estonia to make a bid to become the host country for the agency. The Commission’s proposal for us marked the start of particularly active candidacy and lobbying efforts. The process ended on 2 December 2010 with the agreement in principle between Ministers of the Interior of the Member States of the European Union to bring the headquarters of the Agency to Tallinn, and the decision was laid down officially on 12 September 2011.

officials and representatives of the Ministry of Foreign Affairs and the Government Office, the following year a comprehensive concept for a bid was developed. According to this concept Estonia’s candidacy was underpinned by three main arguments – Estonia did not host any of the EU agencies, we have an increasingly positive reputation in the IT sector, and the heads of state and governments of EU Member States had decided in 2003 that potential new agencies or offices should be founded in new Member States that accessed the Union in 2004. Estonia was not interested in becoming the host country of just any European agency, instead the objective was to establish something here, which would be commensurate with our ever growing reputation as a digital pioneer. Our e-state was gaining momentum and strength as the level of the information technology infrastructure improved, and this had been attracting more and more attention across Europe and the world. We were certain that we would be able to offer the excellent working and development environment this particular EU agency needed in our fine e-state, and convince others of the achievability of this vision.

The first thoughts about bringing the IT-Agency to Tallinn were as early as 2007 The proposal to establish the Agency arose after years of delays with the expensive development of the new generation Schengen data system SIS II and the Visa Data system (VIS), which caused frustration in the Member States. This resulted in the understanding that large-scale IT-based systems should be managed by a strong competency centre. In 2007, the Ministry of the Interior analysed the potential for Estonia to bid to become the country to host the Agency and a conclusion was reached that this was indeed achievable. After the Government expressed their initial support and following a number of discussions between

TURING – the winner of the IT-Agency architectural concept competition. Photograph: Riigi Kinnisvara AS

7. Human resources and Agencies

”

Officials from the Ministry of the Interior, the Ministry of Foreign Affairs, the SMIT and the Government Office put considerable effort into bringing the IT-Agency to Estonia.

Competition between Estonia and France for the agency Even before submitting our proposal to the Commission we sought support for it among other Member States of the European Union. Finally, the bid was submitted by only two countries – Estonia and France, the latter having thus far managed the earlier Schengen data system (SIS) and the Eurodac server used for storing the fingerprint database in Strasbourg. The French found that establishing the headquarters of the agency in the same city would be the only logical solution, and they were unfazed by the different guidelines of the European Council. They held this position in spite of the fact that every month the European Parliament moves there for a week. Taking into consideration the extent to which the two countries involved were familiar with how the European Union worked, and their relative clout as Member States of the Union, it was clear that assuming a confrontational position vis-à-vis France meant Estonia’s chances of winning the bid were small. Furthermore, the investments already made in the servers located in Strasbourg also spoke clearly in favour of France. However, over the decades the European Union has become ever more prone to compromises. Decisions are taken, which would not necessarily suit anyone perfectly, but with which all could on the whole agree. A duel between a large, wealthy old Member State and a small, poor new one did not sound appropriate in this context, and therefore each of the two had something to gain from cooperation. Therefore, it was decided in Tallinn that the most reasonable solution would be to make France a proposal for combining the ambitions of the two in a manner that would satisfy each other as well as the European Union as a whole. The initial responses from the French side were not positive, but over time they too admitted that Estonia’s proposal was unquestionably the best, and an inherently European solution.

An in-principle agreement on the division of the competences of the agency between Tallinn and Strasbourg was reached on 29 September 2010, when a delegation from France visited the Ministry of the Interior. On that day it was decided that according to the joint bid, the head office of the agency being founded, along with the IT development activities, would be placed in Tallinn, and the data systems along with the technical developments will remain in Strasbourg. This indisputably historical moment is commemorated by a plaque on the wall of the conference room of the Ministry.

Support from the Government contributed to success The officials of the Ministry of the Interior and Ministry of Foreign Affairs, SMIT and the Government Office made huge efforts during the intense period leading up to the agreements reached in Tallinn and Brussels. New and better arguments were devised, meetings were held with partners from other Member States and EU institutions in order to persuade them to understand the viability of the joint bid. Certainly the full backing of the political management of the State also contributed to success, while the private sector offered their support as well. All this, strengthened by the excellent inter-agency cooperation resulted in the IT-Agency coming to Estonia. The entire process was then, and remains, a completely unique experience in Estonia’s history. The headquarters of the IT-Agency opened its doors in European Union House located in the centre of Tallinn on 1 December 2012. Today, the Agency employs 55 people. Most of the staff come from other Member States of the European Union – from Italy, Romania, Portugal, Greece and Germany, and therefore, the Agency is making an ever increasing contribution to the image of Tallinn as an international IT city.

The substantive cooperation of the Ministry of the Interior with the Agency is good. The Ministry of the Interior appoints Estonia’s representative to the administrative board of the agency, which discusses all significant matters concerning the Agency. In accordance with the host state agreement between Estonia and the European Commission we also support until the summer of 2018 the settlement of the staff of the Agency in Estonia. Generally, the employees of the Agency enjoy living and working in Tallinn very much, they are also rather content with the efficiency of how things are handled and with the good English spoken by residents of Tallinn. At the same time the weather here, as well as the extremely short days in winter seem to be something of an acquired taste.

New building in Kalamaja at a cost of 8.5 million euros By the end of 2017, the IT-Agency will move into the new building in Kalamaja next to the Seaplane Harbour. Estonia’s state budget has allocated 8.5 million euros for this purpose. Within the five years between the start of the operations of the Agency and the move to their own building we shall be compensating their rental expenses in the amount of approximately 2.7 million euros. Offering premises to a hosted EU agency is a widespread customary practice in the European Union. When the Agency moves to the new building, the staff will grow up to about one hundred. However, the future potential is even more significant. The current duties of the IT-Agency include the smooth management of the Schengen data system (SIS II), the Visa Data system (VIS) and the asylum seeker data system Eurodac. SIS II offers the law enforcement agencies of the Member States the real-time exchange of information necessary to combat terrorism and organised crime. The Visa Data system enables Member States to review visa applications submitted by third-country citizens within the European Union, and with the respective decisions, thus help fight against the misuse of visas. Eurodac is a Europe-wide database to gather fingerprint images of asylum seekers and third-country nationals who have illegally crossed the EU border. Furthermore, the Agency has been entrusted with the

task of implementing the European Union’s e-border pilot project, which over the next years should take external border control to a completely new level.

The IT-Agency helps boost the image of e-Estonia If the Agency is successful in their duties, and demonstrates convincingly their ability to create added value, the arguments for further extending the competences will strengthen. Estonia’s vision in the coming years is that the Agency will not just be handling the operational management of large-scale IT-based security systems in the area of freedom, security and justice, but will also carry out research and development, and will be able to host other Europe-wide IT systems of the European Union. In more indirect terms, the headquarters in Tallinn could have a discernible impact on the further development of Estonia’s ICT sector, and to improve Estonia’s ICT image as a whole. Hopefully, we will be able to state in coming years that the rapid development of the IT-Agency has contributed to making life better in Estonia and in the European Union as well.

The State budget has allocated 8.5 million euros to build the new IT-Agency. Photograph: Riigi Kinnisvara AS.

7. Human resources and Agencies

Resources

Analysis of the budgets for 2008–2015

Mairi Tonsiver Head of the Financial Department of the Ministry of the Interior

The funding allocated to the area of internal security for 2008–2015 amounted to 2.27 billion euros, of which 184 million euros or 8.1% was foreign aid along with national co-financing. A total of 144 million euros worth of investments were made over these years in the area of internal security, of which 90 million or 62.5% was funded on account of foreign aid and associated national co-financing. Over the period from 2008 to 2015, the budget of the Ministry of the Interior has increased from 282 million euros to 338 million euros; in other words, by 56 million euros (20%). However, considering price increases of approximately 15 per cent in these years, the picture is not really so positive. Real growth of the internal security budget in these years was merely 4.3%, while at the same time the real increase of the national budget was 28.7% and Estonia’s gross domestic product increased by 8.5%. Therefore, the “purchasing power” of the internal security budget falls significantly behind the development of the state as a whole, which is directly reflected in the ageing of the equipment used in the field because we have not had sufficient financial resources for their regular renewal.

Figure 1. Sources for covering the internal security budget (mEUR) 350 300 250 200 150 100 50 0

2008 2009 2010 2011 2012 2013 2014 2015 Other resources (own revenues, sale of assets, etc.) Foreign aid and national co-financing State revenues

8. Resources

98 8. Resources

”

In 2015, the budget of the Ministry of the Interior amounted to 38.6 million euros, of which foreign aid along with co-financing amounted to 23.7 million euros.

In 2008, the budget of the agencies equalled 4.89% of the State budget, amounting to 3.96% in 2015. The total volume of the State budget has grown faster than the internal security budget, which means that for 2008–2015 the State has been contributing significantly more to other areas than internal security. In 2008, the internal security budget equalled 1.71% of GDP, while in 2015 the share was 1.64%. Within the last seven years the share of the internal

Figure 2. Growth of internal security budget vis-à-vis the growth of the State budget and GDP (adjusted accor‑ ding to the consumer price index) 6% 5% 4% 3% 2% 1% 0%

2008 2009 2010 2011 2012 2013 2014 2015

Internal security budget vs. GDP Internal security budget vs. State budget

security budget in GDP has stayed at the comparable level, but the share in the State budget has dropped by one percentage point. Considering recent events in Ukraine and the ever more acute situation with refugees, it is important to understand that with the downward trend of the internal security budget, it is impossible to continue providing services at the current volume. The budget of the Police and Border Guard Board forms the largest part of the internal security budget within the area of government of the Ministry of the Interior, which in 2015 amounted to 177.8 million euros. This is followed by the budget of the Rescue Board, which last year reached 59.5 million euros. The Information Technology and Development Centre of the Ministry of the Interior was established in 2008, in order to bring the IT-related expertise and experience together into one agency, and to offer services in a more cost-effective manner. In 2008, being a newly founded agency, the budgetary resources of the Information Technology and Development Centre of the Ministry of the Interior were rather small, but by 2015 the volume of the budget of the Centre had grown to 23.5 million euros. In 2010, the Police and Border Guard Board and the Rescue Board resources were joined to establish the Alarm Centre, whose budget increased to 5.8 million euros by 2015.

8. Resources

Figure 3. The breakdown of the internal security budget in 2008 and 2015 2008, mEUR

2015, mEUR 11.4

1.2

23.6

26.4

10.8 5.8

15.9 57.6

39.2

21.6

1.1

59.7

23.5

177.8

170.0

Ministry of the Interior

Alarm Centre

Internal Security Service

Academy of Security Sciences

Police and Border Guard Board

Information Technology and Development Centre of the Ministry of the Interior

Rescue Board

In addition to the formulation of the internal security policy and drafting of legislation, the consolidation process of recent years has resulted in centralising a number of cross-sector functions and expenses, including conducting procurements, organising financial accounting and preparing development plans in the Ministry of the Interior. In 2015, the budget of the Ministry of the Interior amounted to 38.6 million euros, including â&#x20AC;&#x201C; inter alia â&#x20AC;&#x201C; a large share of the internal resources that, along with the co-financing share, amounted to 23.7 million euros.

Furthermore, the budget of the Ministry of the Interior also includes subsidies provided from the State budget to political parties in the amount of 5.4 million euros a year. This expense does not have any direct links with the attaining of the internal security objectives, and merely enlarges the budget of the Ministry artificially. However, historically these funds are allocated annually to the Ministry in order to be transferred to political parties on the grounds set out in the Political Parties Act.

8. Resources

100

The area of internal security was granted subsidies from programmes of the European Union Tairi Pallas Head of the Foreign Financing Department

The use of EU funds under the Financial Framework 2007–2013 ended in 2015. In these years the internal security sector in Estonia received subsidies of over 83 million euros from the European Union. The aggregate subsidy of the European Regional Development Fund granted to Estonia amounted to 1.86 billion euros, of which 47.6 million euros were allocated via 36 different projects to internal securi-

ty. Through the action addressing improved preparedness for environmental emergencies, 38.4 million euros of this were applied to purchase the multifunctional pollution combat vessel “Kindral Kurvits” and equipment for combating environmental pollution. Estonia received a total of 390 million euros in subsidies from the European Social Fund, of which 500,000 euros were applied via 15 different training projects towards internal security.

Table 1. Application of annual allocations from the European Union (mEUR) External Borders Fund

European Return Fund

European Refugee Fund

Year

Allocated

Used

Allocated

Used

Allocated

Used

2007

2,41

2,33

2008

2,70

2,55

0,51

0,17

0,50

0,25

2009

3,61

3,43

0,52

0,25

0,50

0,39

2010

3,42

3,25

0,53

0,24

0,50

0,36

2011

3,45

3,37

0,54

0,34

0,50

0,37

2012

4,86

4,84

0,54

0,36

0,51

0,33

2013

6,67

6,54**

0,61

0,34**

0,51

0,46**

TOTAL

27,12

26,31

3,25

1,70

3,02

2,16

* The programmes started in 2008, and no funds were allocated for 2007 ** Sums not finally confirmed

Funds were allocated for the management of migration and borders The general programme on solidarity and the management of migration flows was set up within the EU 2007–2013 Financial Period; the objective of the programme is to ensure that the financial burden associated with the management of the common external borders and the implementation of the common asylum and migration policy is shared out more fairly between the Member States. In addition to the European Refugee Fund, the framework programme was supplemented to include the External Borders Fund, the European Return Fund and the European Fund for the Integration of Third-Country Nationals. In March 2008, the Government appointed the Ministry of the Interior as the body in charge of the application of the funds for the External Borders Fund, the European Refugee Fund and the European Return Fund. The Funds were used within the multi-annual programme running throughout the entire financial period, as well as on the basis of annual programmes, which the Member States were able to implement for two and a half calendar years. The European Commission allocated to each Member State an annual appropriation and the Ministry of the Interior co-financed all the projects to the extent of 25%. In 2007–2013, Estonia was allocated a total of 27.1 million euros from the External Borders Fund of which 97% was applied towards strengthening of the external border of the European Union. This was the main, if not the only investment made in the external border during this period. The use of the European Return Fund can be provisionally broken down into two categories: resources, which were applied towards the voluntary return of individuals staying in the country illegally to their country of origin, and financing the forcible repatriation of the same group. The number of returnees has stayed

relatively low: in 2008 to 2013 Estonia supported the voluntary return of 109 individuals, while 256 individuals were forcibly expelled from the country. This also explains the relatively modest use of the funds. On average, 47.8% of the appropriations from the Return Funds were used up, although in the last three years it increased on average to 61.6%. During the entire financial period funding was provided to 34 projects, of which – in addition to agencies within the area of government of the Ministry of the Interior – projects of the Tallinn office of the International Organisation for Migration (IOM) and the Estonian Red Cross qualified for the aid. Resources from the European Refugee Fund were applied towards financing projects necessary for the implementation of the asylum policy of the European Union, including projects addressing the improvement of the reception conditions of asylum seekers, support person services and legal assistance for asylum seekers, refugees and beneficiaries of temporary protection. Furthermore, the funds were applied towards developing IT tools linked with the handling of asylum applications, to finance various training courses and surveys and to inform the general public. The use of the resources from the Refugee Fund once again reflects the relatively low number of asylum seekers – on average 69.8% of the available funds were used up. The unused resources were returned to the budget of the European Union. Altogether 39 projects were financed during the financial period and – in addition to those implemented by agencies of the Ministry of the Interior – projects carried out by the Johannes Mihkelson Centre, IOM, Estonian Red Cross, Estonian Human Rights Centre, Estonian Advice Centre, and the NGO ProDia were allocated support, and a number of surveys in the area were conducted. The projects provided various services to altogether 289 individuals seeking and receiving international protection.

8. Resources

101

102 8. Resources

During the period from 2007 to 2012, the Swiss Confederation supported Estonia’s economic and social development with approximately 24 million euros, of which nearly 2.4 million euros or about 10% of the entire volume of the entire programme were applied in the area of internal security. The project “Prevention and management of natural disasters – Increasing fire safety in social and health service institutions” served to provide an overview of the situation with respect to fire risks in our social welfare institutions, solutions were developed to reduce these, and fire safety equipment was purchased for hospitals and care homes. The project “Development of communication and data systems of public-safety answering points” resulted in the creation of the geo-data system GIS-112, which helps to find the location of accidents more precisely, identify the nearest response team and the fastest route to the site of the emergency. Evacuation mats purchased for hospitals applying external resources. Photograph: Rasmus Jurkatam

Foreign finances were invested in the Academy of Security Sciences and the rescue sector Programmes of the European Commission are also available for financing cross-border projects of EU Member States. Estonia, as the lead partner of the Member States, was allocated approximately 600,000 euros from the specific programme “Prevention, Preparedness and Consequence Management of Terrorism & Other Security Related Risks” within the general programme “Security and Safeguarding Liberties”. Within the framework of the project “Safe and Secure – Innovation in Law Enforcement Education“ a virtual simulation based training laboratory was set up at the Academy of Security Sciences, and training was provided to over 1,200 officers from the rescue, police and emergency medical services. At present the laboratory created with aid from the European Union has developed into the Centre for Innovative Applied Learning Technologies of the Academy of Security Sciences. Estonia, as the lead partner, received a total of approximately 1.6 million euros in subsidies from the EU Civil Protection Mechanism to establish the joint flood response unit BaltFloodCombat. Over 800,000 euros were received for holding the crisis management exercise EU Cremex 2011.

Foreign investments amounted to 62.2% In 2007–2013 the external resources and their co-financing accounted for 62.2% of investments made in the area of government of the Ministry of the Interior. The foreign resources budgeted for 2007 comprised mainly disbursements from the pre-EU accession aid programme Schengen Facility, which was coming to an end. The amounts budgeted for the subsequent years vividly illustrate the cyclic nature of the disbursements of the resources, while one should also consider the fact that disbursements will continue after the financial period has expired.

Figure 1. The share of the subsidies from the Eu‑

ropean Fund and other external subsidies in the in‑ vestments made in the area of government of the Ministry of the Interior for 2007–2013 (mEUR) 70 60 50 40 30 20 10 0

2007

2008

2009

2010

2011

2012

2013

Total investments Including external resources Including co-financing of external resources

Raino Sepp Head of the Asset Management Department

The greatest quantity of transport vehicles in active use can be found within the area of government of the Ministry of the Interior – at the end of 2015 their number amounted to 2,067, of which 1,880 are land vehicles, 156 are watercraft and seven, aircraft. During the period from 2008 to 2015, 68.1 million euros worth of large-scale transportation assets were purchased.

We acquired three more helicopters In 2008, the Ministry of the Environment transferred the Ministry of the Interior free of charge the used patrol helicopter Enstrom, and in 2009 a new AugustaWestland AW139 border patrol helicopter was purchased with funds allocated from the State budget for 14.4 million euros. The helicopters are used in police and the border guard duties, including search and rescue missions. A third new border patrol helicopter of the same type was purchased with the aid from the European External Borders Fund, which cost 15.5 million euros, and which is mainly used for controlling the external border of the European Union. In 2007, the Ministry purchased the multifunctional pollution combat vessel “Kindral Kurvits”, which cost 32.7 million euros, with the support from the European Regional Development Fund. With the support from the European External Borders Fund in 2014 the Ministry purchased the border control hovercraft Rannapuura, which cost 2.2 million euros and which is used at the Vasknarva border guard station of the Police and Border Guard Board. Moreover, last year the rescue equipment fleet grew by six new fire engines with a high-reach aerial ladder financed from the state budget, which were purchased

for a total of 3.3 million euros. These fire engines make it possible to rescue people from residential buildings of up to 32 metres. The new ladder fire engines were assigned to the Jõhvi, Narva, Pärnu, Tartu and Central Tallinn and Lilleküla rescue stations. In the following years altogether 56.5 million euros worth of public procurements have been arranged or announced for purchasing large transport vehicles. In 2015, tendering procedures were carried out to purchase 43 basic rescue trucks, 23 tanker trucks, eight container trucks and 14 tank-containers. The project implemented with the resources from the EU Cohesion Fund will cost 27.8 million euros and the vehicles will be taken into use through 2016–2018. In addition to the above, tenders were announced in 2015 for purchasing a patrol vessel with pollution response capability and a surveillance aircraft with support from the EU Cohesion Fund, the total cost of which is 28.7 million euros, and which will be commissioned over 2017–2018. The new vessel and aircraft will help improve the response to emergencies caused by climate change and extensive pollution along the sea and coastal areas of Estonia.

New high-reach fire engines. Photograph: Rescue Board

8. Resources

Transport and real estate have developed in leaps and bounds

103

8. Resources

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The renovated multifunctional pollution combat vessel “Kindral Kurvits”. Photograph: Künter Kivi

In order to keep a tally of the land vehicles and watercraft in the possession of the agencies operating within the area of government of the Ministry of the Interior, the Sõiduk data system was launched in 2014. To improve user convenience and financial data searches, the data system is interfaced with the financial accounting software SAP, as well as with the register of officials AMR and the traffic register of the Road Administration. The data recorded in the system constitute the basis for preparing overviews and analyses concerning land vehicles and watercraft, and for compiling the budget forecasts required for the renewal of the vehicle and craft fleet. The transportation assets renewal plan for 2015– 2030 was prepared in 2015. For the first time this plan maps the current situation with land vehicles, watercraft and aircraft, and sets out a long-term asset renewal forecast based on the life-span of the assets. The acquisition debt to ensure the capability of the existing transportation assets amounts to 54.8 million euros, which means that 25% of our land vehicles, 14% of the aircraft and 48% of the watercraft have exceeded their useful life and need to be replaced as soon as possible.

At the end of 2015, the Ministry of the Interior and the Ministry of Finance finally found a solution for reducing the acquisition debt by six million euros within the next four years. The efforts for finding additional financing solutions will continue in 2016.

15 new buildings built in seven years The total area of real estate used in the area of government of the Ministry of the Interior is 330,000 m², with the facilities situated across Estonia in 400 different locations. Between 2008 and 2015, altogether 15 new buildings with a total area of 46,594 m² were built for the Ministry of the Interior amounting to approximately 14% of all its premises. Ten of these new buildings are joint buildings housing two or more agencies operating under the Ministry, and in Jõgeva the Police and Border Guard Board shares the newly built building with the court. In 2015, the working conditions of the Alarm Centre were improved significantly along with the completion of joint buildings in Tartu and Lasnamäe in Tallinn. The working environment of the Alarm Centre is the most modern of all the agencies under the Ministry – three

In seven years, 15 new buildings with a total area of over 45,000 m2 have been built for the Ministry of the Interior.

of the four Centres are located in buildings completed in 2012 or later. The working environment of the Alarm Centre will be renovated with the completion of the Pärnu joint building, the development of which is currently at the designing phase. In addition, in cooperation with Riigi Kinnisvara AS, the real property conditions have also been improved through cooperation with the State Infocommunication Foundation, resulting in the completion of the data centre premises. At the same time, with the completion of new buildings we are consistently optimising the properties in use. Within five years the volume of property used under the Ministry has been reduced by 47,534 m2 or 14% – above all by increasing the efficiency of use or reorganisation of the core service. We shall continue

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to improve the working conditions in the agencies because many of the premises currently used by the Rescue Board and the Police and Border Guard Board do not satisfy the standards applied to working environments or safety requirements. The plan for optimising the property under the Ministry of the Interior for 2016–2030 for the first time maps the current situation in regard to property in the area of the Ministry, and sets out a long-term renewal forecast based on the life-span of the assets. Based on this plan the investment shortfall in the area of the Ministry exceeds 210 million euros. Considering the condition of the buildings that are not owned by Riigi Kinnisvara AS, the deficit can also reach as high as 250 million euros.

Table 1. Buildings completed 2008–2015 Year

Building

Users

2008

Iisaku joint building

PPA, PÄA

1 084

2009

Kolde pst 65, police building

PPA

4 067

2010

Rakvere joint building

PPA, PÄA

5 970

2012

Jõhvi joint building

PPA, PÄA, KAPO, HK, SMIT

8 412

2012

Kuressaare joint building

PPA, PÄA

3 158

2012

Valga detachment

PÄA (Est-Lat programme)

1 256

2013

Jõgeva joint building

JUM, PPA

1105

2013

Narva joint building

PPA, PÄA

4 792

2013

Kuressaare hanger/ guard station

PPA

1 999

2014

Keila police building

PPA

2015

Tartu joint building

PÄA, HK

4 291

2015

Lasnamäe joint building

PÄA, HK

3 512

2015

Häädemeeste joint building

PPA, PÄA

1 030

2015

Vormsi detachment

PÄA, PPA

2015

Võru joint building

PPA, PÄA, SMIT

PPA – Police and Border Guard Board, PÄA – Rescue Board, HK – Alarm Centre, SMIT – Information Technology and Development Centre of the Ministry of the Interior

Net area, m²

964

381 4 573 TOTAL

46 594

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Developments in Information Technology Rene Vihalem Head of the Information Management Department

In 2007–2015, a number of highly important information and communication technology (ICT) solutions were introduced under the Ministry of the Interior, one of the most important of which was the foundation of the Information Technology and Development Centre of the Ministry of the Interior. In fact, this was also one of the first national IT-institutions. A significant stimulus to the deployment of the ICT systems has resulted from obtaining access to the financing instruments of the European Union, such as the Schengen Facility and the structural funds supporting internal security. The need to comply with several requirements has also stemmed from access to the Schengen visa waiver system, the adoption of the euro and the identification of individuals applying biometry. While in recent years, large-scale ICT solutions were developed to a significant extent with the support of external resources, the issue of ensuring the availability of budgetary resources to cover expenses for their management is becoming ever more acute. Moreover, the obsolescence of ICT solutions – their legacy is starting to pose a problem, and it is necessary to find resources to renew these technologies.

Implementation of the emergency radio communication network ESTER The ESTonian Emergency Radio (ESTER) communication network is a data communication system to ensure Estonia’s security, safety, public order and protection of citizens. This is an electronic communications service provided by the Information Technology and Development Centre of the Ministry of the Interior (SMIT), which makes it possible to make group and

individual calls between users of the network’s terminal equipment and the exchange of messages on the territory of Estonia. The service is based on the standards developed by the European Telecommunication Standards Institute, and ensures the security of operational systems, their trouble-free and reliable functioning and independence of any other public communication system. The operability of the network is secured even in cases of emergency. The development of ESTER started as early as 2004, and in 2005 it was presented to the Government. The objective was to set up an emergency radio network with over 100 base stations, which would cover 99% of Estonia’s territory with mobile radio stations and 95% with portable stations. The Ministry of the Interior started implementing ESTER in 2007 and 2008, when over 6,000 portable stations worth 6.78 million euros were purchased with support from the Schengen Facility. In addition, in 2014 several hundred high-security portable terminals were purchased worth 352,000 euros. Currently there are approximately 7,000 different terminals in use throughout the area of government of the Ministry. To date the development of the ESTER network is 84% complete and has 9000 users – 87% of them are agencies under the Ministry of the Interior (police, rescue service) and the remaining users are the emergency medical service, the tax and customs authorities, correctional institutions, the Defence Forces, the Ministry of Foreign Affairs, the Ministry of the Environment and other institutions providing vital services. The useful life of ESTER is approximately 15 years, and as at 2014 the infrastructure of the system has reached the pinnacle of its lifespan. According to the manufacturer of the system, as well as operating experience, the functioning of the system at the required level can only be guaranteed until 2023–2025, and thereafter, it will be necessary to find another technical solution to satisfy customers.

In addition to extensive investments required to implement the system, it is also necessary to ensure coverage from the State budget of the system’s annual management costs, which in recent years have amounted to nearly 2.7 million euros. In 2005, the European Union started the development of the uniform Schengen Visa Data System (VIS), which was aimed at simplifying the handling of the visa applications and fostering the exchange of related information between Member States. It was also aimed at preventing visa-shopping, to detect visa application fraud, and to facilitate checks at border checkpoints along the external border of the Schengen area, and within the territory of the Member States. To achieve this, the visa applicants were required to provide biometric data; in other words, were fingerprinted, in order to make sure that the person who submitted the application and who crossed the Schengen area border was indeed one and the same person. From the European Union side, the responsibility for implementing the entire project rested on the European Commission, but today the technical operations have been delegated to eu-LISA. While originally it was intended that the Visa Data system would be completed in 2007 and implemented by the Member States in 2009, the European Commission clearly overestimated both their own capabilities as well as those of the Member States, and the completion of the central system took more time than initially planned.

Estonia played leading role in the implementation of SIS II On 11 October 2011 at nine in the morning, the Member States were ready to join the central Visa Data system, and Estonia was one of the first to connect to it without any problems. Estonia entered the first visa application from Cairo along with all the biometric data taken from the applicant on 12 October. Since joining the Visa Data system Estonia will take fingerprints from applicants in Estonia, representative offices in foreign countries, border crossing points and, upon applying for an extension of a period of stay, at the Police and Border Guard Board. In Estonia, users of the Visa Data system include the Ministry of Foreign Affairs, the Police and Border

Guard Board, the Internal Security Service and the Information Board. In the short term, the Tax and Customs Board will also be provided access to the system for verifying Schengen visas. The Schengen Data System (SIS) is a measure applied in the Schengen visa area with the purpose of compensating for security risks arising from abolishing border checks at internal borders. Its original function is to ensure the exchange of information between all Member States concerning wanted persons, vehicles and objects. Since 1995, the Member States with access to the Schengen treaty had been using SIS I+. Originally, the launch of SIS II was intended to manage enlarging the Schengen visa area in March of 2007, but in the summer of 2006 it was clear that the European Commission would not be able to meet the set schedule. Estonia joined the Schengen visa area on 21 December 2007, and initially the special upgrade of SIS I+ – SISone4All – was adopted. However, this solution did not result in any increase in the functionalities of the system. In February 2008, the Justice and Home Affairs Council of the European Union extended the deadline for the SIS II project to 1 September 2009. However, SIS II was finally deployed on 9 April 2013, and Estonia was one of the first among all the Schengen Member States to start exchanging data with the second-generation data system. Moreover, the changeover to SIS II was the largest IT related development under the Ministry of the Interior – Estonia became interfaced with 14 different data systems, and owing to its strong team, Estonia was the leader in many Europe-wide matters. In comparison with the earlier generation data system, the new SIS II offers much wider possibilities, for instance, it makes it possible to enter copies of European arrest warrants and new types of alerts – information about stolen boats, containers or industrial equipment. SIS II is one of the largest data systems in Europe, which consists of the central data system in Strasbourg, the systems of individual Schengen Member States and the communication infrastructure linking them, which is managed by eu-LISA. Today, SIS II contains over 50 million alerts, making it the largest data system of its kind in the world.

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The employees of the Viljandi unit of the State Shared Service Centre, who are in charge of human resources and payroll accounting under the Ministry of the Interior. Photograph: Urmas Muldmaa

Development of the asset and accounting data systems of the Ministry of the Interior The asset and accounting data systems of the Ministry of the Interior has been developed based on the idea of using, wherever possible, nationwide IT-solutions. In 2014, the Ministry joined the support services centralisation project (TUTSE), and all agencies under the Ministry of the Interior (except for the Internal Security Service) adopted the standardised SAP accounting software. In 2014, the holiday module of the State Employee Self-Service Portal (RTIP) was introduced. Other solutions introduced include the BO reporting environment of the SAP accounting software and the E-Invoice environment. Interfacing the data systems with SAP ensures that all systems

contain uniform data and rules out the duplicate entry of data. The introduction of the S천iduk data system, intended for accounting and managing vehicles and transportation assets, started in 2013, and the data system for managing and accounting minor assets, covering the entire area of government of the Ministry of the Interior was deployed in 2015. Such a centralised application of IT systems has made it possible to reduce duplicative developments and IT management. The quality of the data, centralised reporting and overview of resources have improved. This also makes the optimal long-term use of assets possible because it takes into consideration the duration of their life span.