Government decision on the targets of security of supply 21.8.2008/539 

1 General principles 

The general objective is the security of supply based on the international market, as well as on national measures and resources. The preparedness measures will safeguard the necessary infrastructure with respect to the functioning of society, as well as continued critical production in all situations. 

In addition to national preparedness, the preparedness measures implemented in the European Union, the agreement on International Energy Program (Finnish Treaty Series 115/1991), and the bilateral and multilateral agreements with various countries concerning financial co-operation in critical situations also contribute to the security of supply. More serious crises are prepared for with national measures. 

In preparedness, a critical situation where the ability to provide critical goods and services or to procure them from abroad is temporarily hindered is regarded as the most serious threat to the security of supply. Other key threats jeopardising the economic operations of society include a malfunction in electronic information and communication systems, interruption in the energy supply, a serious disturbance in the health and functioning capacity of the population, and natural and environmental disasters. 

The level of the security of supply is dimensioned so that the living conditions and functioning of the population and the functioning of society may be maintained in serious disturbances under normal conditions and in states of emergency, including a state of defence. 

2 Safeguarding the critical infrastructure of society
2.1 Energy transmission and distribution networks 
2.2 Electronic information and communication systems including data networks and systems, mass communication and financial systems
2.3 Transport-logistical systems
2.4 Water management and other urban technology
2.5 Building and maintenance of the infrastructure

3 Safeguarding critical production
3.1 Food supply 
3.2 Energy production
3.3 Health care
3.4 Production supporting national defence
3.5 Promotion of general operational conditions in the export industry

2 Safeguarding the critical infrastructure of society 

2.1 Energy transmission and distribution networks
Preparations are made to maintain the transmission and distribution networks of electricity, natural gas and district heat at the present level of security of supply, even during a prolonged crisis.
The level of expertise related to the building, operation and maintenance of the networks must be ensured. 

2.2 Electronic information and communication systems 

Data networks and systems
The most critical and important functions of society, which rely on information technology, must be identified and the related information system solutions and services must be ensured with arrangements that will withstand various serious disturbances and states of emergency. Information system solutions and services consist of applications, information resources, data networks, other IT infrastructures and their auxiliary systems, information security and related maintenance, system management, and technical support. Methods and operational forms for understanding, managing and ensuring the entity of information systems, organisation networks and delivery chains must be developed. Special attention should be paid to the information security threats aimed at the critical infrastructures of society.
In key national information and communication systems, a paralysis of or damage to an individual section must not paralyse the entire system. The key information systems and resources in society must be decentralised geographically in at least two different locations. When designing and building information systems that are critical to the functioning of society, it must be ensured that the expertise related to their control, maintenance, system management and technical support will remain in Finland or it will be possible to return their control and management capacity to Finland. The information resources for key applications must be located in Finland. The information systems and their entities must be documented.
The maintenance and assurance of the overground and cable transmission and distribution network in electronic mass communication must be developed further.
Security of supply in the information society must be increasingly developed with mutual contractual arrangements between critical actors and with international arrangements.
Efforts should be made to ensure the operational capacity of networks with control under normal and exceptional circumstances. The measures must be aimed at not only on the actors, but also on operations and services produced in networks. 

Mass communication
The national ability for self-sufficient electronic and printed mass communication must be safeguarded with adequate regional cover in all circumstances by maintaining standby systems and preparedness for decentralised operations.
The information, warning and alarm systems of the authorities must function in all conditions and at a high level of reliability. The extent of communication by the authorities must be ensured by maintaining and promoting preparedness by commercial radio stations and television channels. 

Financial systems
The key financial operations to be safeguarded include internal and inter-bank payment transaction systems of the banks, card payments and the cash dispenser system, international payment transactions, cash distribution centres and transport services in the maintenance of currency supplies, pension schemes, and the book-entry system.
Co-operation and exchange of information related to preparedness must be developed between actors in the financial market. Drawing up a common snapshot of various actors related to the management of crisis situations must be developed.
The functioning of main production and payment transaction systems and availability and preservation of up-to-date information must also be ensured in the case of cross-border systems. The management of inter-bank payment transactions must have sufficient backup arrangements especially after transferring to the single euro payments system.
Preparedness by the financial sector for serious disturbances under normal circumstances and for states of emergency must be efficiently connected to the supervision of the sector so that the risk management, solvency and internal control of actors will be promoted.
International co-operation in relation to preparedness by the financial sector must be increased at the EU level and between the authorities in various countries. 

2.3 Transport-logistical systems
The transport infrastructures to be safeguarded include logistical information systems, transport channels, key ports, airports and terminals, and key railway junctions. The availability of these targets and their ability to recover from serious disturbances will be safeguarded in all situations.
In the preparedness in the transport sector, the main focus is on safeguarding sea transportation and transports required by the basic food and energy supply. Safeguarding of other transports will be dimensioned according to the available resources and the importance of transports.
In order to safeguard export transportation, a sufficient fleet of ice-strengthened vessels and air transport equipment must be maintained. Moreover, in order to safeguard winter maritime navigation, Finland must have a sufficient fleet of icebreakers operating under the Finnish flag available for assistance operations in sea transports in ice conditions. The competitiveness of the maritime navigation sector will be improved with economic development measures. Domestic self-sufficiency of society’s transports will be safeguarded in all situations. The functioning of fuel transports and other transports requiring critical specialist equipment and expert personnel will be safeguarded.
The general services of the post office and the delivery network of newspapers will continue to cover the entire country with the current level of reliability.
Preparations are made to control and regulate the transport logistics system so that key transports will be safeguarded in serious disturbances and states of emergency.
When safeguarding the security of supply on the Åland Islands, as with other geographically challenging regions, particular attention will be paid to ensuring critical transportation. The security of supply on the Åland Islands is part of its autonomy, but according to the Consentaneous Decree 900/2000 the issues of security of supply in the Åland Islands will be managed as co-operation between the State and the authorities of Åland. 

2.4 Water management and other urban technology
A sufficient supply of clean water will be safeguarded for households, communities, hospitals and production necessary for providing for the population. Preparedness related to the operations of water supply and sewerage plants and other key urban technology will be developed as statutory operations by the responsible authorities and as part of the security of supply work. 

2.5 Building and maintenance of the infrastructure
Building and maintenance will provide for rapid availability of the building capacity required by traffic infrastructure, municipal infrastructure and transmission networks in serious disturbances under normal conditions and in special situations. The rapid availability of lifting, clearing and earth-moving equipment required by the rescue authorities in accident situations will be ensured.
Construction and the building product industry will prepare to support the defence forces in raised levels of preparedness and in states of emergency. Operations will be prepared for with letters of intent and preparedness agreements between the defence, rescue, road, rail and civil aviation authorities and construction companies. 

3 Safeguarding critical production 

3.1 Food supply
The supply of food with normal energy contents is safeguarded in case of serious disturbances in normal conditions and states of emergency.
The security of supply is based on continuity of domestic primary production and the operations of the food industry. Efforts will be made to influence the EU agricultural policy so that the domestic food industry will have a sufficient domestic raw-material base. Safeguarding the operational preconditions and internationalisation of the food industry will be promoted in order to preserve competitiveness in the sector.
The availability of agricultural products will be safeguarded in case of one poor domestic harvest. An amount of bread grain corresponding to normal annual consumption will be stockpiled in various parts of the country. A sufficient amount of plant-based protein will be stockpiled to safeguard the adaptation of feed management in stockfarming in case of difficulties in the availability of protein. A total of 80,000 tonnes of seed grain or grain suitable as seed due to its quality, as well as an amount of grass seed to cover the deficit of one unsuccessful seed production year, will be stockpiled. Of other material inputs required by the food supply chain, stockpiles supplementing the security of supply in the cultivation and distribution of agricultural production and foodstuffs will be maintained. The level of stockpiles in food management will be assessed, and revised if necessary, during the validity of this decision.
The logistical chains of primary production, food industry and retail trade will be secured.
Preparations will be made to direct the use of resources, food production and supply in serious disturbances and states of emergency with administrative measures in the most appropriate way in terms of security of supply. 

3.2 Energy production
In order to safeguard energy supply, energy production based on several fuels and procurement sources will be promoted. Domestic electricity generation and the use of domestic fuels, as well as utilisation of municipal waste, will be developed. Due to the special conditions in our country, our level of security in energy supply will exceed the EU obligations and the obligations included in the agreement on the International Energy Program.
The relative proportion of domestic electricity generation capacity in peak demand situations will be maintained at least at the current level.
In case of a disturbance in the availability of imported energy and in order to meet international contractual obligations, imported fuels will be stockpiled so that imported fuel stocks corresponding to an average of five months' worth of normal consumption will be available. The use of petroleum products as a reserve fuel for natural gas will be taken into account in the dimensioning of the stocks. A maximum of one-fifth of the obligatory stockpiles of imported fuels may be located outside Finland.
Preparations will be made to direct energy production and consumption with regulatory measures and in an appropriate way in terms of the security of supply and to meet international contractual obligations. 

3.3 Health care
Preparations are made to maintain the availability of health-care services crucial with respect to the health and the working and functioning capacity of the population at the level of normal conditions also in serious disturbances. The operating principles and the level of services in health care will be adapted to available resources and the prevailing security situation. The special needs arising from the defence situation, as well as biological, chemical and radiological threats, will be taken into account in the dimensioning of service production.
Due to the significant dependency on imports in medicines, vaccines and medical materials, the actions of the European Union and the development of the internal market in the promotion of security of supply in health care will be monitored and supported. Nordic and other inter-governmental co-operation to safeguard the security of supply in health care will be intensified.
Obligatory stockpiling of medicines will be safeguarded by legislation. Stockpiling will be kept extensive. Its product contents and dimensioning will be developed to meet the predicted needs in disturbances and states of emergency, including a state of defence. Particular attention will be paid to ensuring the functioning of logistical chains in medicines and medical material.
The availability and maintenance of key medical equipment with respect to diagnosis and treatment will be safeguarded in the way required by the targets of service production.
In health care, preparations will be made for meeting the increasing resource requirements in nursing care for the elderly and in other social services.
Co-operation between health care and the defence forces will be tightened in order to boost the use of resources in serious situations threatening the health of the population. 

3.4 Production supporting national defence
The performance of the defence forces requires sufficient availability of services and products from industry and commerce to an extent equal to the rest of society in all security situations. The most important issue will be to safeguard domestic integration and maintenance, as well as damage reparation ability during a crisis.
The management of the life cycle of critical defence material and systems will be implemented with domestic or international partnership and user community arrangements or with binding agreements with system suppliers. Industry operating in Finland will participate in overseas procurement in order to develop the maintenance and repair ability and to maintain compatibility and the technological level of industry. Technology and product development projects will promote domestic expertise.
The production capacity and emergency and security stockpiles of key consumption materials will be maintained. Activities in emergency and security stockpiling will also be implemented with respect to other than conventional consumption materials, if necessary.
In addition to maintenance, reinforcing and ensuring performances in terms of intelligence, supervision and leadership, controlled impact and mobility, logistics, special structures and protection will also play a key part. The capacity of gunpowder and ammunition production, and the related know-how, must also be maintained. At the same time, the development of division of labour in the ammunition industry in the Nordic countries will be continued.
Retaining the industry and service production crucial to national defence in Finland must be ensured.
Co-operation projects will be participated in, especially within the framework of the European Defence Agency, the Nordic Armaments Co-operation NORDAC, and the NATO Maintenance and Supply Agency NAMSA. Efforts will be made to develop the international mechanisms, regulatory frameworks and user communities in the security of supply. 

3.5 Promotion of general operational conditions in the export industry
The operational conditions of the export industry will be promoted by ensuring the continuity of basic functions of society and by supporting preparations by individual companies and sectors.
Bilateral or multilateral international agreements on the security of supply will be promoted in order to safeguard the availability of critical imported materials. 

4 Mutual dependencies and co-operation in the security of supply
Dependencies between various operations play an increasingly dominant role in the safeguarding of national security of supply. The significance of international markets and networking to national security of supply is also increasing. Therefore, nationally networked co-operation, as well as understanding of international dependencies and the development of the means of preparation based on them, must be invested in to a greater extent in security of supply work.
Each ministry will direct and monitor the implementation of tasks related to the strategy of safeguarding vital functions in society in their own sector, and the development of functioning capacity required by them. Each ministry will develop the security of supply in its own sector. 

5 Development of legislation
Various administrative sectors will further develop legislation, on the basis of which the authorities can create structures in support of the security of supply for situations where the special powers referred to in the Emergency Powers Act are not required, but where the markets will not provide sufficient security of supply. 

6 Sector-specific guidelines
More detailed instructions on the application of the decision will be given by each ministry in their administrative sectors. Preparations in the fields of payment transactions and currency supplies are directed by the Bank of Finland.


Security of supply has partly been implemented by means of the National Emergency Supply Agency's funds and partly by instituting legal obligations for business enterprises and power plants to maintain stockpiles of required minimum quantities. NESA's stockpiles contain oil, cereals, medical supplies, and a number of industrial production materials. Legal obligation stockpiles contain drugs, oil as reserve fuel for natural gas, and coal.

Act on Compulsory Stockpiles of Drugs (Statute Book of Finland 979/2008)
Act on Compulsory Stockpiles of Imported Fuels (Statute Book of Finland 1070/1994).

For the purpose of securing supplies of imported materials, private enterprises may conclude contracts with the National Emergency Supply Agency for stockpiling certain essential materials. The stockpiles are financed by loans and NESA subsidised interest costs.

Security Stockpiling Act (Statute Book of Finland nr. 970/1982).


2. Public authorities' special powers in emergency situations

In cases of serious disturbances and in emergency situations, public authorities need special powers to safeguard society's essential activities. The most important provisions are contained in the Readiness Act (Statute Book of Finland nr 1080/1991). In crisis situations, the Act empowers the Government to issue provisions concerning rationing, the national economy, the work force, the functioning of the financial sector, health care, and factors concerning other essential social activities. The Government's decisions shall be examined by Parliament, which has the power to repeal them.

The present Readiness Act has been enacted by the procedure required to amend the Constitution because the Act does not fit very well into the present constitutional framework. The Ministry of Justice is currently modernising the Readiness Act.

The State of War Act (Statute Book of Finland nr 1083/1991) has been enacted for the most serious crises situations. By virtue of that Act, the whole country, or part of it, can be declared to be in a state of war. In that situation the military authorities are empowered to issue provisions to safeguard national military defence.