FINLAND National Integrated Border Management Strategy 2018 2021
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FINLAND National Integrated Border Management Strategy 2018 - 2021
EXECUTIVE SUMMARY
The purpose of this National Integrated Border Management Strategy is to establish a clear understanding on the implementation and further development
of the Integrated Border Management in Finland. The IBM Strategy is developed to fulfil the national obligation defined in the Regulation on European
Border and Coast Guard, and it takes into account “the main elements for developing the European Integrated Border Management Strategy” defined
by the Commission (Communication 14.3.2018 COM(2018) 250 final) and the results of the strategy process established by the Commission.
The border situation is relatively calm at the external borders, but several non-foreseeable developments may occur. The national integrated border
management is well-defined; however, there is a constant need for development. Additionally, the strategy will be updated as the technical and
operational integrated border management strategy becomes available.
The most important challenge in Finland is to maintain the high performance of the border management system during austerity in public finance and
diminished international predictability of the flow of illegal immigration. The main development areas of Finland’s IBM are 1) ensuring credible border
surveillance at the eastern border, 2) facilitating secure and fluent border traffic at the major border crossing points, including Helsinki Airport while
preventing illegal immigration and effectively preventing cross-border crime, 3) boosting the return process, and 4) maintaining readiness to manage
large-scale multipurpose missions at the Baltic Sea.
VISION: MISSION:
Finland has the most secure external borders in Europe. Finland is a cooperative The Finnish IBM system is robust, and it will be developed further. Finnish
and internationally recognised actor in the field of border management, border control and return system supports internal security and effectively
contributing effectively to the security of the European Union. Reliable and prevents cross-border crime. Finland contributes to the common European
professional personnel, effective organisations and distribution of tasks, and border management and builds European best practices together with other
state-of-the-art technology ensure high performance. Member States. The implementation of IBM in Finland takes into consideration
state-of-the art technology, and the latest analytical tools and operational
concepts such as intelligence-led policing. The aim is to further develop a cost-
effective and high-performing harmonised national IBM system.
2 FINLAND
CONTENTS
1. CONTEXT..................................................................................................................................................... 4
2. INTRODUCTION........................................................................................................................................... 4
3. BORDER CONTROL..................................................................................................................................... 5
3.1. BORDER SURVEILLANCE.............................................................................................................................................................6
3.2. BORDER CHECKS...........................................................................................................................................................................7
3.3. CRIME PREVENTION ....................................................................................................................................................................8
3.4. INTERNATIONAL PROTECTION..................................................................................................................................................9
4. MARITIME SEARCH AND RESCUE ........................................................................................................... 9
5. RISK ANALYSIS......................................................................................................................................... 10
6. MEMBER STATES COOPERATION SUPPORTED AND COORDINATED BY
THE EUROPEAN BORDER AND COAST GUARD AGENCY..................................................................... 11
7. INTER-AGENCY COOPERATION.............................................................................................................. 12
8. COOPERATION WITH THIRD COUNTRIES............................................................................................... 13
9. MEASURES WITHIN THE SCHENGEN AREA.......................................................................................... 14
10. RETURN.....................................................................................................................................................15
11. QUALITY CONTROL.................................................................................................................................. 16
12. SOLIDARITY MECHANISMS ................................................................................................................... 17
13. TRAINING AND RESEARCH & INNOVATION......................................................................................... 17
14. FUNDAMENTAL RIGHTS.......................................................................................................................... 19
15. BUDGET AND HUMAN RESOURCES....................................................................................................... 19
ANNEX 1.................................................................................................................................................................................................. 19
ANNEX 2.................................................................................................................................................................................................. 20
ANNEX 3.................................................................................................................................................................................................. 22
National Integrated Border Management Strategy 2018 - 2021 3
1. CONTEXT The aim of the National IBM strategy is to establish a clear understanding on the implementation
and further development of the Integrated Border Management in Finland.
The Regulation on European Border and Coast Guard entered into force on 6 October 2016. In
the regulation, the concept of “Integrated Border Management” (IBM) is defined for the first The legal basis and guidelines for the strategy are provided by national legislation as well as
time at the level of binding European legislation. The EU institutions are responsible for the national and international agreements. This IBM strategy is in line with other national strategies,
development of the IBM strategy of the EU. “The main elements for developing the European such as internal security strategy. The involved authorities produce their strategies based on
Integrated Border Management Strategy” defined by the Commission (Communication 14.3.2018 this strategy to the extent that the strategies concern IBM. Strategies are being implemented
COM(2018) 250 final) is the current guideline for national strategies. The guidelines will be by annual and multi-annual plans and other documents. The legal basis, guidelines, agreements
updated as the next products of the strategy process are published. and implementing documents are listed in the annex.
The most central instrument in The strategy will be revised in the beginning of the EU funding programme, or when it is needed.
implementation of the EU IBM is the The strategy and its implementation phase are reviewed annually by the IBM-Forum.
European Border and Coast Guard,
which is composed of the European
Border and Coast Guard Agency
(Frontex) and relevant authorities of the
Member States. Frontex is in charge of delivering the technical and operational strategy for
the IBM. According to the regulation, it is mandatory for the Member States to draft National
IBM strategies. National strategies shall be aligned with those delivered by Frontex, taking into
account the eleven (11) strategic components mentioned in Article 4 of the regulation. Thus,
the comprehensive strategy of the European Border and Coast Guard will be composed of the
strategies of Frontex and the strategies of the Member States.
Integrated Border Management of the EU is based on and implemented by the four-tier access
control model (actions in third countries, cooperation with neighbouring countries, border
control, and control measures within the area of free movement – including return).
State of the art technology is a cross-cutting theme that is included in all chapters of the strategy.
For example, border control requires investments in modern technology, such as biometrics,
ABC-solutions, advanced scanning and inspection systems, mobile sensors, interconnected
databases, artificial intelligence and secure connections. This is why the technology is a part of
Helsinki-Vantaa Airport, the largest border crossing point in Finland.
all the chapters of this document and not a separate chapter.
The National IBM Strategy of Finland has been drafted in cooperation between the national 2. INTRODUCTION
stakeholders involved in the IBM. The stakeholders are the National Integrated Border
Management Forum (IBM Forum). The Border Guard is the responsible body for the drafting The blending of security interfaces, as well as the increasing diversity of security threats,
process and coordinates the work of the IBM Forum, which consists of representatives from challenge the traditional security outlook. Large-scale illegal immigration, terrorism, organised
the Border Guard Department, Police Department, Migration Departments and International crime, state actors, cyber threats, and the increasing vulnerability of modern society are
Affairs Unit of Ministry of the Interior, Ministry for Foreign Affairs, Finnish Immigration Service, challenges for the authorities. In this environment, Finland is emphasising its national features
Finnish Security Intelligence Service, National Police Board, National Bureau of Investigations, and developing the capabilities of border management authorities in order to prevent internal
Finnish Customs and Non-Discrimination Ombudsman. The drafters are responsible for the and external threats, both independently and as part of the European Union.
development and updates of the strategy. The strategy has been approved by the ministries and
agencies concerned and endorsed by the Ministerial Council on Migration. Regarding illegal immigration, the main threats in Finland are related to a weakening
predictability at the 1,340-kilometre-long eastern land border, large border crossing points at
4 FINLAND
the south-eastern border, and flights from the Far East. Concerning secondary movements, the
main threats are related to the land border with Sweden (Tornio area) and ferry connections
from Germany, Sweden and Estonia. Future challenges for the border management include
possible changes in the situation in Russia, the constantly increasing air traffic at Helsinki airport,
and a probable increase of passenger flow at land borders and changes in the legal basis (EU
regulations). The border situation - including threats, vulnerabilities and impacts - are defined
in the annual strategic risk analysis in detail.
Finland participates in an active and constructive manner in the deepening and intensifying
cooperation in European foreign and defence policy, internal security and migration policy.
The Border Guard is the main responsible authority for integrated border management. The
Border Guard’s main tasks related to border management are border surveillance at land and
sea borders and border checks at border crossing points at land, sea and air borders. The Border
Guard prevents cross-border crime and is the responsible authority for search and rescue at
sea. The Border Guard participates in national defence in case of a military crisis or conflict.
The police and the Customs participate in border management in addition to their main tasks.
The largest land border crossing point Vaalimaa, in eastern border of Finland.
The division of tasks between border management and immigration authorities is clear. The
Finnish Immigration Service (Migri) is the agency that processes and decides on matters related
Despite a clearly defined division of tasks, national legislation enables smooth cooperation
to immigration, residence, refugee issues and Finnish nationality. The police are responsible
between the authorities. Furthermore, according to the national law, cooperation is mandatory
for public order and general security. It is also the overall authority for crime prevention,
for the law enforcement agencies. In pre-defined cases, it is also possible to cross administrative
including investigations. The police are also responsible for migration control and return
boundaries and operate on other authorities’ areas of responsibilities.
operations. Customs is responsible for customs security, customs control, and customs-related
crime prevention. The Ministry for Foreign Affairs is in charge of issuing visas and supporting
The Border Guard, the police and the Finnish Immigration Service are subordinated for the
cooperation in border control and return operations with third countries.
Ministry of Interior, whereas Finnish Customs is subordinated to the Ministry of Finance. Finnish
Customs is nevertheless under the guidance of the Ministry of the Interior in IBM-related matters.
3. BORDER CONTROL
The goal of the border control is efficient and credible management of external borders as a part
of internal and external security of the State. Border management enhances internal security and
prevents cross-border crime. In border checks, the balance between fluent traffic and security is
maintained. Border Guard activities in remote land border areas and in the Archipelago contribute
positively to the security of inhabitants. The headquarters of the Finnish Border Guard coordinates
operational planning of the border control. The operational plans are risk-analysis-driven and
updated constantly. The plans are regularly tested, and they include contingency plans for
extraordinary and unforeseen situations.
Tornio, the internal border between Sweden and Finland.
National Integrated Border Management Strategy 2018 - 2021 5
Reaction capability is ensured by allocating
human resources from other functions,
appointing recently retired officers to
operational duties (based on commitments),
and if need be, calling up the reserves of
the Border Guard. There are also the Border
Guard’s Special Intervention Units available.
The teams are on standby readiness and are
capable of managing extraordinary cases at
border crossing points as well as at land and
sea borders. The response is based on mobile
patrols, which can be transported to the
scene by cars, snow mobiles, motorcycles or
all-terrain vehicles. Additionally, helicopters
and maritime vessels can transport the
Border surveillance in archipelago area. response patrols. Joint contingency plans
and agency-specific contingency plans
enable the receiving of European and
3.1. BORDER SURVEILLANCE
international support to manage unforeseen
large-scale border incidents. There are plans
The Border Guard is responsible for controlling the land and sea borders. There are four border
to establish hotspots facilitating Frontex,
guard and two coast guard districts for carrying out daily operations. The Air Patrol Squadron
Easo and Europol support, among others.
supports operational activities throughout the country.
The plans are under constant development,
aiming for high operational readiness
Situational awareness on border management is being established by a network of regional Border Guard´s Special Intervention units are trained to
for European joint actions in Finland, if
(border and coast guard districts/RCC) and national command centres (headquarters/NCC). The act fast and effective in all circumstances.
required.
National Situational Picture (NSP) is established in the NCC and shared with RCCs, as well as
with relevant police and Customs Command and Control centres. Other border management
In the near future, development will focus on the integration of new mobile surveillance
authorities have access to ESP, and their information is downloaded to the EUROSUR by the NCC.
technology with the existing surveillance systems. The aim for the longer term is to develop
automation, analytics, and management of sensor data.
Situational awareness in the maritime domain is established in close cooperation between the
Border Guard, the navy and the transport agency. The system detects, identifies and if necessary
intercepts all vessels coming into territorial waters.
Situational awareness on the land border is the key to the preventive actions and operational
response. In the most important areas, the situational picture is built mainly by stationary and
mobile technical surveillance equipment. In other areas, sniffer dogs are the main tool. The
sea area is covered with cameras and radars. The situational picture is collected, analysed and
utilised in centralised command centres (RCC), which are able to share and fuse the information.
Border surveillance at the external land and sea borders is based on risk analysis at all levels of
the Border Guard organisation. Surveillance is being carried out by patrols with high mobility.
Patrols are supported by stationary and mobile technical surveillance systems and aerial and
surface assets. In high-risk areas, the reaction capability to prevent and reveal all unauthorised Trained border guard sniffer dogs are very important tools in land border, regardless of high quality technical
border crossings is immediate. surveillance equipment.
6 FINLAND
A special area of development in border surveillance is detection and identification capabilities 3.2. BORDER CHECKS
in all weather conditions on a 24/7 basis. Furthermore, night vision capability and development
of unmanned aerial systems (UAS) are the main areas of development. The Border Guard is The facilitation of fluent border traffic is a high priority while ensuring border security. The
developing the use of fixed wing flying sensors for border surveillance. The possibilities for using challenge is to ensure fluent traffic flows especially in the long term, as Finno-Russian land
hovering sensors are being considered. border traffic will be increasing. Fluent traffic is an aspect that has an impact on the fluent
flow of goods and on other dimensions beyond the scope of the IBM. In the medium term, the
Finland also actively participates in the development of systems for improving situational challenge is the constantly increasing passenger flow at Helsinki airport.
awareness at the EU level. At the national level, the main focus is to develop IT systems jointly
with different authorities and ministries, thereby supporting an exchange of information and Regarding border checks, the division of tasks between authorities has been stipulated in a
cooperation between authorities. The development will take place in line with the development Governmental Decree (901/2006). The Border Guard is the main authority. Customs is in charge
of the Schengen Borders Code and EUROSUR regulation, aiming at enhanced interoperability. at most seaports, while the police take care of the checks at the airports inside the country. The
police and customs officers who conduct border checks have received proper training organised
STRATEGIC OBJECTIVES: by the Border Guard.
1. Developing the land surveillance system, including drones, mobile sensors, data fusion, data
processing analysis and shared situational awareness for inter-agency cooperation.
2. Developing the response capabilities of the patrols, including special intervention capability,
anti-terrorist and hybrid response, and ensuring mobility by renewing the helicopters.
3. Developing the national legislation, contingency plans, hotspot readiness, registration
capacity and inter-agency cooperation to manage unprecedented large-scale illegal
immigration crises at the eastern border. Further developing strategic reserves, by training
conscripts, reservists and developing readiness to hire retired border guards back to service.
Maintaining readiness to internally redeploy personnel for eastern land border surveillance
tasks.
Passenger flow in Port of Helsinki.
Border management and efficiency of border checks at the major border crossing points are
being ensured by a functional division of labour between the Border Guard and Customs. At
the largest land border crossing points, the Border Guard and Customs operate in each other’s
areas of responsibility in order to ensure good customer service and the efficient and effective
use of human resources. According to procedure, Customs carries out I-line border checks
on cargo traffic, whereas the Border Guard carries out I-line customs control on light traffic.
Finland promotes at the European and national level the balance between fluent border
crossings and security. National measures include full utilisation of the National Registered
Traveller Program and its compatibility with the development of the European Entry/Exit System.
Additionally, all the infrastructure development projects of the border crossing points will be
ensured to allow full utilisation of the automated border check devices and biometric solutions.
Situation awareness is effective with mobile technical systems and co-operation of trained staff. In addition to the technical solutions, legislative measures must support operational needs.
National Integrated Border Management Strategy 2018 - 2021 7
Development of different EU IT systems, such as the Entry/Exit System (EES), the European
Travel Information and Authorisation System (ETIAS), the Schengen Information System (SIS)
and other IT-related initiatives at the EU level, are taken into account in a proactive manner at
the national level. A national ETIAS unit will be established within the Border Guard, and it will
be integrated with other pre-checking activities (API, customs targeting functions, Passenger
Name Record (PNR) and other Police–Customs–Border Guard (PCB) functions for air-, sea- and
land-border crossing points).
STRATEGIC OBJECTIVES:
4. Ensuring a value-adding and operationally effective European and national legislative
framework (ETIAS, EES, amendments to the Schengen borders code, SIS, PNR).
5. Developing the border crossing points to ensure effective border checks, fluent passenger
flow and full utilisation of technology, including ABC solutions, biometrics and mobile border
checks. The main emphasis is at Helsinki airport, Helsinki harbour and at the major border
crossing points at the eastern land border.
6. Reviewing the opening hours of the border crossing points at the eastern land border
New border check technologies in use. to reflect the passenger traffic development and cost-effectiveness.
The focus is on the development of automation for border checks and on the development of 3.3. CRIME PREVENTION
mobile control technologies. The framework for the development of border crossing points is
developed with the close cooperation of all authorities. The Border Guard, the police, and Customs
work together to prevent cross-border crime.
The centralised use of databases between the different authorities and ministries is further According to uniform national legislation,
developed. This is how the efficiency of both border checks and internal security has been all three authorities are mandated to carry
improved. out pre-trial investigations on cross-border
crime. In order to reveal and prevent cross-
border crime, the three authorities have
established certain joint PCB intelligence
and analysis units. The units focus on
cross-border crime at land, sea, and air
borders. The units are being coordinated
by the national PCB crime intelligence and
analysis centre.
All three authorities are also involved in the
European Union Policy Cycle on organised
crime. Crime prevention priorities are
Investigation on proceeding.
implemented through EMPACT projects.
All the border crossing points have temporary facilities for apprehensions of less than 12 hours.
For longer detention or arrest times, detainees are transported to regional police prisons, which
are available in all the provinces of Finland.
Border checking in moving train.
8 FINLAND
3.4. INTERNATIONAL PROTECTION
The asylum process requires close cooperation among relevant migration and border
management authorities. The police or the Border Guard is responsible for registering asylum
applications. Additionally, the screening of persons in need of international protection and of
vulnerable groups is conducted in conjunction with the border checks.
After registration, cases are transferred to the Finnish Immigration Service for further evaluation
and investigation. The Immigration Service decides whether the asylum seeker is justified to
receive international protection according to Finnish and European legislation. Applicants who
receive negative decisions will then be returned in an effective, humane and fair manner.
STRATEGIC OBJECTIVES:
10. Upgrade the situational picture of the asylum seekers.
11. Develop contingency plans for reception capacity.
Asylum seekers in Raja-Jooseppi border crossing point in 2015.
The Security Intelligence Service is in charge of fighting terrorism, while the National Bureau 4. MARITIME SEARCH AND RESCUE
of Investigation (in cooperation with other security authorities) is responsible for the pre-trial
investigation of terrorism-related crime. In order to discover and prevent terrorism, all personnel The goal of maritime search and rescue (SAR) is to maintain a
conducting border checks have been trained in common risk indicators for foreign terrorist reliable national Maritime Search and Rescue system and to ensure
fighters. The crime prevention unit of the Finnish Border Guard coordinates the identification adequately trained personnel and sufficiently equipped aircraft and
measures of suspected terrorists at border crossing points in close cooperation with the other vessels for Frontex-coordinated operations.
agencies. Detected suspects will be directed to second-line checks or necessary surveillance
is organised. In this regard, the exchange of information between the agencies is flawless. The Border Guard is the leading maritime SAR authority. The Border Guard is responsible for
Additionally, national databases and information systems allow targeting and creating alerts planning, developing and supervising all SAR activities as well as coordinating cooperation with
to ensure the detection of known terrorist suspects. other public authorities and volunteers. In addition to the Border Guard, other maritime SAR
authorities are the Emergency Response Centre Administration, the Meteorological Institute,
The police and the Border Guard are the responsible authorities in investigations of trafficking relevant local emergency services, the Transport Safety Authority, Finnish Transport Agency, the
in human beings. Victims of trafficking have a legal right to receive assistance and aid from police, defence forces, social and healthcare services, Customs, and environmental authorities.
Immigration Service’s aid programme. Moreover, volunteers and other organisations contribute to maritime SAR activities, the Lifeboat
Institution being one of the key actors.
STRATEGIC OBJECTIVES:
Maritime SAR situational awareness is maintained in parallel with the border control related
7. Reviewing and ensuring the national harmonised, centralised and cost-effective approach
situational picture. Maintenance of the situational picture and coordination of the rescue
to crime intelligence and investigations, including the Border Guard, Customs and the
missions are led by a maritime rescue coordination centre (MRCC) and a maritime rescue sub-
police and Security Intelligence Service, taking into consideration EMPACT projects and
centre (MRSC), which are at the same time the coast guard districts’ regional coordination centres
avoiding overlaps regarding national intelligence and analysis personnel and ICT systems.
(RCC). The focus of preparedness is on the coordination of demanding large-scale accidents
8. Studying the expansion and full utilisation of European and bilateral cooperation
at sea and on the implementation and development of regional mass rescue operation plans
possibilities, including Interpol, Europol, Eurojust and other relevant EU agencies.
according to the National Mass Rescue Operation Plan (“MoMeVa”).
9. Reviewing competences and capabilities for crime investigations in the maritime domain.
The SAR requirements for units deployed to Frontex-coordinated operations (including other
international maritime operations) are defined on a case-by-case basis. Operational models are
National Integrated Border Management Strategy 2018 - 2021 9
5. RISK ANALYSIS
The goal of a risk analysis system for border management is to support decision-making at all
organisational levels and to ensure a flexible and cost-effective use of resources and allocation
of border guards and assets to areas where risks are highest.
The risk analysis system of the Border Guard produces analysed information and a situational
picture to support planning and decision-making at strategic, operational and tactical levels.
These analyses drafted by specially trained personnel at different organisational levels interact
together and thus provide a comprehensive national risk analysis that is at the same time
tailored for different needs. Changes in risk levels are identified with continuous monitoring
of risks and regular monitoring products. There is a risk analysis unit at the national level (at
Border Guard headquarters), risk analysis sectors at the regional level (at border/coast guard
districts’ headquarters), and trained risk analysis officers at the local level (at border/coast
guard stations and BCPs).
Maritime cooperation.
National level risk analysis on border management is methodologically based on the EU CIRAM
based on the maritime SAR training and safety system of the Finnish Border Guard. Detailed model, according to which risk is analysed through its three components at all four tiers of the
preparedness and capacity requirements are defined by orders of each operation. At a minimum, access control model. Border Guard cooperation in risk analysis with other national authorities,
units would have the same capacities to operate in international SAR activities as they have neighbouring countries, Frontex, and other international partners is an essential part of the
when they are operating in Finland. The deployed unit’s capacity and preparedness concerning national risk analysis system. The Border Guard participates in Frontex Risk Analysis Network
both the equipment and the crew is confirmed before the operation commences. (FRAN) activities and is responsible for collecting the FRAN data. Frontex risk analysis products
are disseminated in Finland to be utilised by relevant end-users. In addition to what has been
Maritime SAR capabilities are developed by improving personnel professionalism and by replacing stated above, for law enforcement purposes more advanced risk analysis methods and analytical
old aerial and surface assets. In 2018-2023, the Border Guard will acquire new fast boats for tools shall be used.
coast guard stations, and the technical systems of coastal patrol boats will be updated.
The emphasis in the development of maritime SAR is on command and control systems and
prevention of environmental accidents at sea. Moreover, the management of diverse and large-
scale mass rescue operations is developed (including chemical accidents and Hazardous and
Noxious Substances (HNS) incidents).
STRATEGIC OBJECTIVES:
12. Developing maritime response capabilities, including renewing the fast boats and
purchasing high performance patrol boats.
13. Further elaborating the mobile surveillance and response system at sea (closure of three
coast guard stations to ensure operational readiness and cost savings).
14. Implementing national and international measures to increase command and response
capabilities of multipurpose and mass rescue operations, including Baltic Sea MIRG,
ChemSAR, Vessel Triage, Baltic ACO-manual implementation, National MRO plan and SARC.1
1
MIRG (Maritime Response Incident Group), ChemSAR (Chemical Search and Rescue, Vessel Triage (referring to the
sorting of vessels in different distress conditions), ACO (Aircraft coordinator), MRO (Mass Rescue Operation), SARC
(Search and rescue in the Artic). Frontex operation situation centre.
PCB authorities have a common crime situational picture; and based on that, they draft common
10 FINLANDrisk analysis to support strategic, operational and tactical decision-making and operational
activities. Possibilities are developing for PCB authorities to pre-check passengers. The authorities
have access to advanced passenger information (API) and passenger name records (PNR) in
dedicated units. Utilisation of European-wide databases will be further intensified.
Operational risk analysis also supports defining targets in crime prevention. The border guards
on the ground are provided with constantly updated knowledge of risk indicators, risk profiles
and typical modi operandi of cross-border crime. The indicators and profiles are produced
by the Border Guard National and Regional HQs and PCB centres. The risk analysis products
are locally distributed and trained by dedicated crime-intelligence officers in the units. The
indicators are checked and updated daily at the border crossing points in conjunction with the
tactical risk analysis.
PCB authorities’ intelligence-led analysis and proactive automated analyst functions form
together with the CIRAM model’s responsive analysis development base for a genuinely
preventive and revealing instrument for combating cross-border criminality and illegal
immigration.
Offshore patrol vessel Merikarhu operating in Greece Frontex operation.
Customs’ own national risk analysis covers all Finnish borders, including cargo and passenger
traffic. Customs performs risk management and targeting in close cooperation within the PCB
structure. Moreover, the Border Guard and Customs have a joint regional risk analysis group
“Merilinna”, which focuses on tactical risk analysis of cargo vessels.
6. MEMBER STATES COOPERATION SUPPORTED AND
COORDINATED BY THE EUROPEAN BORDER AND
At the EU level, the Common Customs Risk Management Framework and its implementation
(Customs Risk Management System) constitute a central part in the implementation of the EU
COAST GUARD AGENCY
Internal Security Strategy, which again supports border management.
The goal of active participation in Frontex-coordinated cooperation and operational activities is to
develop the high quality and cost-effectiveness of the European integrated border management
Integration of the national risk analysis system into the European framework continues in
system, which supports Finland’s national border management.
several different domains (i.a. EUROSUR, new obligations from the EBCG regulation, further
implementation of CIRAM). The Border Guard develops new technical solutions and European
Finland participates in Frontex-coordinated cooperation in an active and extensive manner.
cooperation possibilities for improving the national pre-frontier intelligence picture.
Finland is represented in the Frontex Management Board by the Finnish Border Guard, which
is responsible for the practical cooperation with Frontex and accountable for the fulfilment of
STRATEGIC OBJECTIVES:
the national cooperation obligation with Frontex. The Headquarters (HQ) of the Border Guard
15. Fully implementing NCC 24/7 functions as a hub for the national command and control is the National Point of Contact with Frontex. The Finnish Border Guard is responsible for the
function of the national and international operations and information exchange. participation in the Frontex working groups, excluding the return-related working groups, which
16. Further improving tailored CIRAM-based risk analysis products and profiles for are represented by the police. The Non-Discrimination Ombudsman participates in all activities
operational- and tactical-level end-users and to ensure professional skills of the personnel and meetings related to return-monitoring. The Border Guard HQ hosts Frontex liaison officer
regarding CIRAM to the extent of the requirements of individual job descriptions to Finland.
17. Fully utilising PCB networks and API and PIU units, the PCB crime intelligence and analysis
centre and units, pre-checks, targeting and other joint operations. Finland aims to maintain 3–5 Seconded National Experts (SNE) in Frontex. Retired personnel
from law enforcement agencies are especially encouraged to apply for Frontex Temporary Agent
(TA/AD) posts. Finland’s priority is to have TA positions in the operational units. The goal is to
gain up to 10 essential operational or managerial TA positions in Frontex by 2020.
National Integrated Border Management Strategy 2018 - 2021 11Participation in Frontex operations is prioritised based on the European border situation. In 7. INTER-AGENCY COOPERATION
addition to that, regionally significant operations in northern Europe and at air borders are
supported by the Border Guard. The Border Guard’s contribution to joint operations is maintained The goal of the inter-agency cooperation between the police, Customs and Border Guard is
at a high level (over 20 FTE). Rapid border interventions are being participated in. Furthermore, to improve each authority capability of carrying out its tasks in an appropriate, efficient and
return operations will be participated in based on the overarching consideration. Participation in cost-efficient way.
Frontex-coordinated operations and training supports not only European border management;
it contributes to national capacity-building. Frontex will be encouraged to act compatibly with Inter-agency cooperation between the police, Customs and Border Guard (PCB cooperation) is
other EU agencies, particularly Europol, Easo, EFCA, eu-LISA and EMSA. based on law (687/2009) and governmental degree (1126/2009). These authorities can conduct
authoritative actions in a cost-efficient way on behalf of each other and also outside of their
The Border Guard maintains a pool of European Border and Coast Guard team members, which own area of responsibility. PCB cooperation enhances the efficiency of border checks, alien
ensure constant readiness for deploying 30 border guards for rapid interventions according to monitoring and custom controls, and it ensures the common use and acquisition of technical
the European Border and Coast Guard regulation. The human resources in the pool is updated equipment. Furthermore, the cooperation improves the prevention of cross-border crime, and
on an annual basis. A fixed wing aircraft, an offshore patrol vessel, a patrol boat and a fast it enables collaboration in crime intelligence as well as the extensive common use of databases.
boat have been nominated to the technical pool by the Border Guard. The police and the Non-
Discriminatory Ombudsman have nominated representatives for the return pools. At border crossing points, competent authorities cooperate in controlling the roadworthiness
of vehicles and the condition of drivers. PCB authorities have the readiness to establish the
Finland is constantly ready to host joint operations and rapid interventions at land, sea and air hot-spot concept at internal or external borders.
borders, including contingency plans and readiness to establish hotspots. The main emphasis of
the host country capabilities is at the border crossing points (Focal Points) of the eastern land The PCB international affairs working group plays a vital role in coordinating authorities’ common
border and at Helsinki airport. Moreover, Frontex participation in the EU cross-sectoral joint activities in international cooperation. The group discusses i.a. deployment of liaison officers
control operations is supported, taking into consideration Border Guard–Customs guidelines to third countries. Liaison officers nominated by the police, Customs and the Border Guard
and inter-agency cooperation on the operational level. to EUROPOL are in intense cooperation.
The National SIRENE bureau is under the
The most important bilateral partner Member States are Estonia, Sweden and Norway, with responsibility of the National Bureau of
which the operational cooperation is organised both bilaterally and multilaterally. The other Investigation. The Ministry for Foreign
bilateral cooperation countries are those around the Baltic Sea. Affairs cooperates with the Border Guard
and the police on the visa issuance process.
The Border Guard supports the development of coast guard cooperation. The Border Guard
contributes to this development via active participation within European, Arctic and North Finland’s participation in the EU Policy Cycle
Atlantic Coast Guard fora. is coordinated between PCB authorities.
The Border Guard participates in all of the
Bilateral cooperation at the Baltic Sea will be under further development in the near future. Policy Cycle’s activities where Frontex has a
The main emphasis of the development will be the exchange of information, border control leading role. Combating cross-border crime
cooperation and coast guard functions. is based on common threat assessment Inter-agency cooperation between police, border guard
in accordance with the European and customs.
STRATEGIC OBJECTIVES: multidisciplinary platform against criminal
threats (EMPACT), as well as on commonly decided and targeted criminalities and operational
18. Studying the possibilities for increased full-time equivalent contributions to Frontex field
actions. In Finland, the prevention measures are aimed especially at human smuggling, trafficking
operations and long-term deployments of maritime assets with renewed operational
in human beings (THB), drug offences and other cross-border crimes that are related to border
concepts, including multinational crews.
management, but in several cases they are detected in the area of free movement.
19. Improving national readiness to participate in rapid border interventions with the HR
and TE pool.
An essential factor of success in inter-agency cooperation is the common use of databases (for
20. Increasing hosting capacity with operational plans (especially at the eastern land border).
example the “Ulkonet” system) and the exchange of information between the authorities. It is also
possible to insert information partially. This enables the sharing of crucial border management
12 FINLANDinformation in real time while fully respecting data protection rules. The police, Customs and The main focus of third-country cooperation is on the cooperation with Russia. Cooperation
Border Guard cooperate closely to prevent and investigate crimes related to organising illegal between Finland and Russia on border management is based on international bilateral
immigration. The agencies have joint access to several databases, and the agencies’ data is agreements. The main aim of the border control cooperation between Finland and Russia is to
interlinked to ensure the information flow (i.a. “UMA”). maintain and further improve border management, fighting cross-border crime, and contributing
to the fluency of the cross-border traffic. Structured cooperation exists at strategic, operational
Common IT and surveillance systems will be developed. One of the main goals is to share the and tactical levels. Cooperation is regular, and the intensity of the cooperation can be adjusted
common situational picture. Inter-agency cooperation at border crossing points will be developed based on operational needs and the border situation.
in accordance with the EU Border Guard – Customs Guidelines.
Border control cooperation between Finland and Russia is managed from the executive level by
The aim of inter-agency cooperation between the Border Guard, defence forces, the Finnish the chief of the Finnish Border Guard and the chief of the Russian State Border Guard Service.
Transport Safety Agency and the Transport Agency (“METO” cooperation) is to organise maritime Cooperation between Finland and Russia is planned in the permanent Finnish-Russian border
surveillance in a cost-efficient manner. Moreover, it facilitates information exchange between guard working group and its subgroups. Border commissioners nominated from both sides of
maritime, authorities and it develops the cost-effectiveness of other maritime activities. “METO” the border are responsible for the practical implementation of the border control cooperation.
cooperation ensures the common use of surveillance sensors in the coast, archipelago and
maritime domain. Furthermore, “METO” cooperation enables maintaining awareness on other Regular cooperation with third countries other than Russia is based on international agreements,
counterparts’ activities and projects. The cooperation is based on the authorities’ written memorandum of understanding documents and established practices. In addition to that,
agreement. Finland participates in capacity-building projects in third countries based on operational needs
and case-by-case assessment.
Public-private partnerships have an essential role in ensuring fluent border traffic and security.
Especially the Border Guard and Customs are cooperating closely with state-owned and private Finland actively cooperates at the EU level with efforts to establish new readmission agreements
companies such as Finavia (an airport operator) and VR (a railway operator) related to the and procedures between the EU and third countries. Relatedly, Finland supports EU partnership
development of the border infrastructure and border crossing procedures. programmes with third countries. One important aim is to include the most important countries
from the Finnish perspective in return operations under the coverage of EU programmes for
STRATEGIC OBJECTIVES: return (Iraq, Afghanistan, Somalia).
21. Reviewing the national PCB cooperation networks and standing organisations to ensure
cost-effectiveness, avoidance of overlapping, and joint operational capabilities.
22. Building joint inter-agency processes through utilisation of API and PNR in the framework
of PCB cooperation, development of a joint targeting process, and combining these processes
into the national integrated crime process information system (VITJA).
8. COOPERATION WITH THIRD COUNTRIES
The goal of third country cooperation is to prevent illegal immigration and cross-border crime
outside of the Finnish and EU borders as well as to facilitate the return of illegally staying
third-country nationals.
Activities in third countries and cooperation with third countries are important in order to
improve the effectiveness of border control activities. The aim is to establish uniform and
clear working methods and procedures with third countries in order to facilitate an effective
implementation of the EU Integrated Border Management concept.
Cooperation with Russian border guards.
National Integrated Border Management Strategy 2018 - 2021 13An important area of development in the near future is to establish functional cooperation of liaison officers under PTN acting in 25 different countries can be used by all authorities
between the Finnish police and authorities of third countries involved in return activities. involved in the implementation of EU-integrated border management.
A special focus of that work is to improve and strengthen cooperation between officials of
relevant consulates. Return charter flights organised by Frontex are being used as effectively A specific aim is to further develop liaison officers’ activities towards more operationally flexible
as possible. use. So-called roving liaison officers are being rapidly deployed based on operational needs.
In addition to that, cooperation with Frontex’s liaison officers and European Migration Liaison
The Border Guard participates in the border management related EU civilian crisis management Officers (EMLO) is constantly being developed.
mission. The focus of participation is on the missions that are most relevant to EU internal
security. Finland actively supports including the border management dimension in all missions STRATEGIC OBJECTIVES:
and operations of the EU and international organisations such as OSCE, NATO and the UN.
23. Maintaining and further developing cooperation and information exchange, especially in
crime prevention, with the Russian Federation in order to maintain border security at the
Regional cooperation and coordination in the Baltic Sea area is pursued by the police, Border
external border.
Guard and Customs authorities participating in the work of the Baltic Sea Task Force on
24. Further developing liaison officers’ activities and network towards flexible and effective
Organised Crime (BSTF) and the Baltic Sea Region Border Control Cooperation (BSRBCC).
use.
Liaison Officers and Visa Issuance
The goal of the Border Guard, the police and the Customs liaison officer activities in third
countries is to prevent illegal immigration, THB and other cross-border criminality at the 9. MEASURES WITHIN THE SCHENGEN AREA
outermost tier of the four-tier access control model. Liaison officer activities prevent on an
annual basis the arrival of thousands of illegal immigrants to Finland and the Schengen area. The goal of measures within the Schengen area is to control migrants’ condition for entry and
The Ministry for Foreign Affairs is the responsible authority for issuing visas abroad. Liaison stay, to prevent and tackle illegal immigration, to detect illegal labour, and to identify victims of
officer activities contribute to the visa issuance process by detecting potential illegal immigrants, trafficking in human beings. Moreover, checks within the territory prevent vulnerable migrants
criminals and possible victims of THB. from being abused by criminals.
The visa issuance is an important layer controlling access to the whole Schengen area. The visa The police are the main responsible authority for measures within the Schengen area. Related
issuance process can prevent illegal immigration. Finland and the other member states are to its main duties, the Border Guard carries out migration control at border crossing points and
currently dealing with more than 15 million visa applications annually.
Deployment of the liaison officers is based on risk analysis. Therefore, they are placed in the
countries of origin and transit through which the illegal immigration comes to Finland, but in
specific cases, in the EU Member States as well. The main country of deployment is Russia; the
Border Guard has four liaison officers there, and this number will be maintained.
Liaison officers are regularly in contact with their home organisations and participate in the
visa issuance procedure, in crime prevention activities and in investigation of detected incidents
related to illegal immigration and THB. Furthermore, the liaison officers support return-related
functions. If there is an operational need, document experts (ALDO) can also be deployed to
the airports in third countries on short notice. Liaison officers also have an important role
cooperating with airline operators and third countries’ state officials. Training is one of the key
functions of the liaison officers.
The Nordic Police and Customs cooperation (PTN, Police och Tull i Norden) has an important
additional role in further intensifying border control activities. Liaison officers acting under PTN
also have jurisdiction to fight against organised cross-border crime. The contacts and knowledge
Rush hour in Helsinki airport.
14 FINLANDborder areas. The Border Guard participates in migration control operations inland, based on a 26. Upgrading readiness to reintroduce border controls at internal borders and other unified
request by the police. PCB measures at internal borders, including continuing to implement the Commission’s
recommendation on proportionate police checks and police cooperation in the Schengen area.
Actions and controls within the Schengen area are based on good situational awareness, and
particularly on efficient information and intelligence exchange as well as on full use of intelligence
databases. The Finnish agencies have common and interoperable databases, which are in some
cases operated in joint facilities, such as a national PCB centre or PCB intelligence units. In addition
10. RETURN
to this, essential data is automatically exchanged between information systems. For example,
The goal is to effectively return all individuals who have been refused entry at the border or who
UMA, PATJA and RVT allow automated information about crimes, refusals of entry, asylum
have an enforceable return decision. Persons who pose a higher security risk are considered a
applications and asylum decisions between the Finnish Border Guard, police and Immigration
priority in return operations. The police have the overall responsibility for the implementation
Service. The police have intensified its actions according to the Commission’s recommendation
of return operations, whereas the Finnish Immigration Service is responsible for issuing return
on proportionate police checks and police cooperation in the Schengen area, dated 12.5.2017.
decisions and implementing the national system of assisted voluntary return. The Border Guard
supports the police based on requests. The Non-Discriminatory Ombudsman is responsible for
Migration control inside the country is carried out in daily police duties and by thematic controls
monitoring return flights.
based on risk analysis. The police lead migration control operations, which are often carried
out with other authorities (i.a. the Border Guard, Customs, tax and labour authorities). The
measures are directed based on risk analysis. The police are in charge, and the other agencies
(such as border guards) support them. The main emphasis is near border crossing points, internal
borders, major cities and places of interest in terms of illegal work, such as restaurants and
large construction sites. The operations are planned in the regional police districts, supported
by inter-agency analysis and cooperation.
In case of sudden and large illegal immigration, there are contingency plans to reintroduce
internal border controls. Before reintroducing internal border control according to the Schengen
Borders Code, increasing illegal immigration across the internal border is primarily taken under
control by inter-agency cooperation and particularly by intensified migration control measures,
such as police controls.
The aim in reintroducing internal border controls is to ensure that passengers have the right to
enter and stay in Finland, to identify asylum seekers and take them through the asylum process,
and to detect possible terrorists and foreign terrorist fighters.
The contingency plans and the capability of reintroducing internal border controls are maintained
constantly. The main responsibility for that lies with the Border Guard. Reintroduction is executed
The police is implementing the forced return escorting in Finland.
in cooperation with the police and Customs. Resources for internal border control are reallocated
from other tasks and operational areas. Border checks at internal borders are carried out based
The Immigration Service (MIGRI) maintains the situational picture and the prognosis of the
on risk analysis and crime intelligence. Intensified migration controls are carried out inland on
return situation under the guidance of the Ministry of the Interior. The police produce plans of
a need basis.
the returns in line with the European Border and Coast Guard Regulation and other relevant
legislation. The plans contain national return flights, foreseeable support needs of Frontex
STRATEGIC OBJECTIVES:
and other Member States, and readiness to host return operations, including rapid return
25. Developing legislative and operational measures to reveal and prevent illegal residence interventions in Finland. The police are responsible for documenting and communicating the
in Finland, including reviewing penalties for illegal stays, confiscating travel documents, return situation and implemented return operations by the Frontex Application for Return (FAR)
preventing illegal employment, and exchanging information between social insurance and IRMA (Integrated Return Management Application).
institutions and other authorities and stakeholders.
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