Response to interpellation 2024/25:320 on Sweden's icebreaking capability
Translated from Swedish by AI; the translation may contain errors. The Swedish text is the original.
Summary AI, written in advance
KD argues that the government has prioritized icebreaker capacity and that Sjöfartsverket is now procuring a new icebreaker 1. KD emphasizes that the current national plan is underfunded by the previous government 2, but that the new infrastructure bill contains historically large investments where funds can be used for icebreakers 2. KD points out that the existing icebreakers are well-maintained 1 and have low operating hours 3. KD emphasizes the importance of maintaining existing vessels 3 and wants to inform about the deepened cooperation with Finland 3. KD considers the cooperation important for the industry and security policy 3 as well as that strengthened competitiveness is important for jobs 4. S wants a fast track for the financing of icebreakers 5 and argues that staff recruitment is a challenge that must be addressed 5.
Written by AI in advance and may contain errors. The numbers lead to the speech a statement builds on; check against the text below.
Statsrådet Andreas Carlson (KD)
Madam Speaker! Mattias Ottosson has asked me what measures I have taken to secure icebreaking during the current season.
An enhancement of the Swedish icebreaker capacity has been a priority issue for the government for several years. In the current national transport-wide plan for the development of the transport system for the period 2022-2033, which the previous government decided on, 3,440 million kronor are allocated to Sjöfartsverket to procure two new icebreakers. The allocated funds are, however, not sufficient to procure two new icebreakers. For that reason, Sjöfartsverket is now procuring one new icebreaker. In addition to this icebreaker, Sjöfartsverket during the previous winter acquired an additional icebreaker on the second-hand market, a resource that strengthens Sjöfartsverket's capacity here and now.
On 3 October 2024, the government submitted an infrastructure bill to the Riksdag with historically large investments in the transport infrastructure. After the Riksdag has now processed the bill, the government will task Trafikverket with preparing a proposal for a new national plan for the transport infrastructure for the period 2026-2037. In this process, the measures that should be prioritized in the plan are identified. Funds in the national plan for the development of the transport system can, among other things, be used for contributions to icebreakers.
The Swedish Maritime Administration maintains a regular close dialogue with ports as well as representatives for shipping companies and industries regarding icebreaking and the challenges in the operations both before and after the ice season. Through this, the different actors have the opportunity to share experiences and challenges that icebreaking entails so that the Swedish Maritime Administration can best be able to meet the needs that exist.
There is also extensive cooperation between Sweden and Finland within icebreaking activities. The cornerstone of the cooperation is that both countries' icebreakers are used as a common resource, which means that Swedish icebreakers can break ice within Finnish territorial waters and vice versa.
The icebreakers may be aged, but they are very well maintained and in good condition. During periods when the icebreakers are not in operation, the Swedish Maritime Administration works intensively to maintain the icebreakers, which enables an operation that, for the most part, functions well.
Mattias Ottosson (S)
Madam Speaker! I thank Minister Carlson for a good answer. It may be characterized by some beautiful words but little action - in any case, right now.
After we have listened to a debate that took place around the Mediterranean, we now move to northern Europe and the Gulf of Bothnia and the conditions we work with during the season we are currently in, when the ice sets in. There is approximately the same problem as we have on our roads. In the same way as they need to be cleared of snow, the shipping lanes need to be cleared of ice during the winter half-year.
When we speak about this, it is important to keep in mind that much of Sweden's basic industry and the natural resources that are important for Sweden are located in this area. It is there that the ore and a large part of our forest resources are found. It is also there that we process them. Then, of course, shipping and the fact that it is stable and functions year-round is extremely important.
We call this a basic industry because it is, in some way, the foundation of Swedish industry. It is where we create growth and jobs. If this does not work, jobs and development in Sweden are jeopardized, and unemployment then becomes a factor to take a stand on.
This is being noted. Investments are being made and discussions are taking place. This includes, among other things, how the Malmbanan can be strengthened. A considerable number of investments are being made in the ports located along the Baltic coast to the north. Sjöfartsverket is working on deepening and widening the fairway to, for example, Luleå. It is extremely good.
It is also good because it strengthens the total defense capability that is so important for Sweden. Historically, there was a reason why the icebreakers were manned by conscripts.
But is the icebreaking capacity we have sufficient? Last season was a special winter. It blew a bit from the wrong direction, if one may put it that way. All icebreakers were, however, in operation. We had help from Finland. And we had a chartered icebreaker. Still, Karlsborg in Kalix municipality had to close. One of Billerud's large mills is located there. For them, this was alarming. It is also alarming for those who live in Kalix, for the companies, and for Sweden. When it does not work, future establishments in Sweden are jeopardized.
I want to repeat my question, Madam Speaker. Does the Minister and the Government feel confident that we will manage this this year, given that it became so special last year, which was not even an extreme winter? This year it has started a bit milder, but we do not know if it will continue that way. I feel concerned and wonder if the Government in some way is prepared to take measures to secure the whole thing so that transport to and from the Norrland coast functions even during the winter half-year.
Statsrådet Andreas Carlson (KD)
Madam Speaker! Mattias Ottosson has an important point in what he presents in the chamber. This is very urgent, even for the government. But if one wanted to have more action in this situation, one still cannot escape the reality of how things stand. The plan that applies to the transport infrastructure now is the one that was decided by the previous government. I do not say this to point fingers but so that we can have the same starting point.
I was clear and precise in my answer that it was the previous government that made the decision to allocate approximately 3.4 billion to the Swedish Maritime Administration so that they could procure two new icebreakers, which was welcomed and long-awaited by many.
Since then, it has been shown that the allocated funds are not sufficient for two new icebreakers. It is unfortunately one of several examples that the current national plan is underfunded; it was underfunded by the previous government. The National Audit Office has audited the previous government's national plan and chose to give its report the subtitle Promises more than it can keep.
This was obviously important when we submitted an infrastructure bill that received the Riksdag's support before Christmas. It contains a historically large investment in precisely transport infrastructure. It is an increase of a full 27 percent compared to the current national plan, which means 1,171 billion kronor. As I said in my interpellation answer, the funds proposed in the national plan for the development of the transport system and now adopted by the Riksdag include, among other things, such as those that can go to icebreakers.
How we prioritize this will, of course, be important in our continued work. I believe there is a consensus that we need to strengthen the transport infrastructure in the Baltic Sea and the Gulf of Bothnia, but also in the east-west direction when it comes to the Malmbanan, as Ottosson is on, Madam Speaker. Regarding that, we have also been able to observe that in the current plan, the planning and the decisions made end at Luleå station. It therefore does not continue to Luleå harbor.
I do not want to express myself disrespectfully, but this will of course be important in our continued cleanup work to get better connections between railway and shipping. Shipping is a prioritized issue, but it is also very prioritized for us to link the different modes of transport. Here, I believe there is a very broad consensus between me and Mattias Ottosson. The reason we stand where we stand today is, however, actually a consequence of previous decisions. We want, of course, to rectify this as quickly as possible. We viewed it very positively that Sjöfartsverket could purchase a used icebreaker on the second-hand market.
The situation last year was due to the fact that the ice conditions were very difficult. It took 36 hours to tow ships out of the most compact ice mass, which, for a single assistance, meant a fuel consumption for the icebreaker of 150,000 liters of diesel. It is not about a lack of capacity in the icebreaker fleet, but it was assessed that the costs for both the Swedish Maritime Administration and, in the long run, merchant shipping, as well as the costs for the environment, would become unreasonably high under the very challenging ice conditions.
There are also safety aspects to take into account in extreme situations. Ships and icebreakers can get stuck and can as a result be damaged by a strong ice pressure in such situations. Therefore, the Swedish Maritime Administration made its decision, which of course was not desirable in any way but was necessary. I can return to that.
Mattias Ottosson (S)
Madam Speaker! Minister Carlson seems eager in the questions and very engaged in his infrastructure bill. I understand that, for it is perhaps one of the largest political documents the minister has presented. There are both good and less good things there, but I did not intend to dwell on that any further.
Most of our icebreakers are about 50 years old. Let us look at how the government has looked in Sweden during the last 50 years. I believe that Social Democratic-led governments have ruled for 60 percent of the time and that bourgeois-led governments have ruled for approximately 40 percent. Therefore, we can probably share the burden of guilt for the period when we have had these icebreakers.
The proposal in the previous government's infrastructure bill was to invest in two new icebreakers. There was also a mention of an option on a third one. I believe it is important, because the icebreaker fleet needs to be rejuvenated.
Then, naturally, resources need to be added. We know ourselves that the cost development in the world and Sweden has taken off. You notice it yourself when you go into the grocery store that something has happened. The global situation has also meant that certain gears will not be usable, and that has meant that certain adjustments need to be made.
It is true that last season was special, but I remember the icebreaker season of 2010, when the Finland ferry was stuck in the ice here in Stockholm. At that time, Oden was loaned out to an expedition, and I naturally hope that this will never happen again during the winter. But even in the winter of 2012/13, the ice extended down to Västervik, so it is clear that weather conditions can be tougher than they were last year. The capacity in our fleet is therefore clearly a problem and a challenge.
Just as the Minister says, the fleet is aging. Most of the icebreakers are over 50 years old. Oden is 40 years old, so she is not a youngster either. It should be noted that the newly purchased icebreaker Idun will be 20 years old before it enters service.
I also share the Minister's view that the Swedish Maritime Administration has managed the icebreakers excellently; they are well-maintained. But the problem when they reach this age is obtaining spare parts. Discussions are held with those who work in the engine rooms on the icebreakers, and this is the challenge. That is why we need to do something. Then, of course, there is new technology in new icebreakers.
I also want to say that Idun is not finished; she is not in operation. Possibly she can be in operation by the turn of the month March/April, and by then the icebreaker season will be heading towards its end. She also cannot replace the large icebreakers - I think that is important to keep in mind. New investments in new icebreakers are required.
It is clear that I become a bit worried when the Minister constantly talks about his infrastructure bill and what is to apply until 2037. That is very far away. The problem exists now, and Swedish industry needs this help now.
I return once again to my question to the Minister, namely whether we can do something right now. Right now, something would be needed so that we can get this started. I do not think we can wait one, two, or ten years, but we must do something now. I therefore repeat my question to the Minister.
Statsrådet Andreas Carlson (KD)
Madam Speaker! It is, I think, a completely correct picture that is given when it comes to the icebreaker Idun. It was acquired on the second-hand market, and it is being adapted to be able to join the Swedish Maritime Administration's fleet. It is very unusual that one can get hold of icebreakers at all - they are, so to speak, not on the shelf to be purchased - and therefore there are long lead times in these processes. Therefore, it is of course important that there are sufficient funds in an infrastructure bill to be able to plan for various investments in the infrastructure, of which the icebreakers are a part. Just because a plan extends to 2037 does not mean that everything will take place in 2037. I share the view that this is an urgent matter.
It is also important to take the measures that can be taken to continue maintaining the existing icebreakers as well as possible. Just as Mattias Ottosson says, it is difficult to obtain spare parts for the icebreakers. We saw this – Mattias Ottosson was also present – when I myself participated in the icebreaker Atles 50th anniversary and we were allowed to move in the engine room and see how well maintained it is, but also were told how vulnerable it is. This is, of course, something that is important to take into the debate here today. We are well aware of the problem, but we should not say that the condition of these icebreakers is worse than it is. They are still in service, and they are well maintained. Those who work with this make great efforts so that it can continue to be so.
Just as Mattias Ottosson says, they are 50 years old, but the operating time is low in relation to the age. An icebreaker that is 50 years old has a total operating time of 40,000-50,000 hours. This is an operating time that a ferry reaches already after five to ten years. This is also an important aspect to include here. I do not say this to say that we do not need to plan and act to get new icebreakers in place. But at the same time, we need to take good care of those we have, and there are different plans for this at Sjöfartsverket.
I want, Madam Speaker, to inform about the deepened cooperation between Sweden and Finland that has been announced regarding icebreakers. In the declaration that we signed when Sweden and Finland held a joint government meeting on September 16 last year, it is included that we shall continue the close cooperation regarding icebreaker activities, that it shall be deepened and that it concerns the ongoing renewal of both countries' icebreaker fleets. The closer cooperation shall be seen in light of the icebreaker fleets' increasingly strategic importance in the Baltic Sea. We agreed and established that we shall establish a joint working group to carry out a joint investigation. Much of the operational work is currently being done together with Finland, and therefore it is also important to approach the issues regarding the renewal of the icebreaker fleet together with our Finnish colleagues.
The Swedish Maritime Administration will, similar to the Finnish Transport Infrastructure Agency, receive a mandate that will aim at the renewal of the icebreaker fleets. It concerns the common challenges regarding operations in order to strengthen the collective icebreaking capacity in the waters north of the Åland Sea. This is important for the industry's needs and also from a security policy perspective. It is therefore about measures that we have taken and things that are happening here and now and in the working groups that exist, which are to be seen together with the large investments that now provide room for increased development in the infrastructure bill.
Mattias Ottosson (S)
Madam Speaker! I believe it is important that we can get this investment decision through as soon as possible and that we can start talking even about these three icebreakers.
The Minister repeatedly returns to the infrastructure bill. I am still a bit worried. I read it, and we have submitted motions regarding it. We will, of course, discuss it even more. I miss a lot regarding shipping; I miss clear statements. There are other parts of the transport area that are affected in a completely different way. In the plan that Trafikverket prepared before the government's work on submitting the infrastructure bill, I also miss large parts that concern shipping. Therefore, I do not know if the underlying materials exist, and that makes me a bit concerned. In some way, shipping is the base of our transport system, and it is important for our supply capacity. I am thus a bit worried that this is missing. I believe that one perhaps must have a fast track for the financing of this.
I also want to touch upon the personnel challenge. Even though we have icebreakers, we must have personnel who work on them. Personnel recruitment is not something unique to Sjöfartsverket, but it is something that almost everyone within the transport industry has problems with. But this is something that I believe one must address.
I am not some icebreaker geek who just thinks this is important. I am raising this issue because I believe it is important for Swedish industry, Swedish jobs, Swedish growth, and Swedish security. That is why I believe we must have a fast track and that we must handle the issue of icebreakers faster and not wait until 2037. By then, the icebreakers will be 60 or soon 70 years old – that is not acceptable.
Statsrådet Andreas Carlson (KD)
Madam Speaker! I agree with Mattias Ottosson on much – I believe we are in agreement. But there is one thing I do not agree with Mattias Ottosson on: I do not think that Mattias Ottosson needs to be ashamed for being an icebreaker nerd. It is something fine, and I believe we both are – precisely for the reasons that Ottosson points out. They are important benefits that the icebreakers contribute with. They are important for the industry's needs and for our security, and therefore this is a pressing issue.
This is also an important part of the work we are now undertaking to strengthen the competitiveness of shipping.
In the underlying material that Trafikverket prepared as a basis for the infrastructure bill, there was, precisely considering what the government has pointed out regarding cross-modal transport perspectives and the importance of including both shipping and aviation in a clearer way, a specific appendix concerning shipping. It was part of Trafikverket's underlying reporting that formed the basis for the infrastructure bill, and it will also be important in the next step.
We have the processes. One might think they are slow and that they should go faster, but this is what the planning process looks like. The decision that the previous government took to provide additional funds for icebreakers was good and welcome, but it was not enough. It was unfortunately underfunded and only suffices for one icebreaker right now. But we will return in the future with how the collective planning looks.
In this interpellation debate, I have also accounted for what we are doing here and now in an intensified cooperation with Finland. Strengthening the competitiveness of shipping broadly is an important issue in itself. It is about jobs, as Mattias Ottosson is touching upon, but it is also to a large extent about security policy, industrial policy, and strengthened competitiveness. In the situation we are in now, competitiveness needs to be strengthened not only in Sweden but in Europe, where shipping is important.
I thank you for this perhaps not nerdy but very interesting and important debate.
Source: The Swedish Parliament. The speeches come from the open data of the Riksdag, translated into English by AI, which may contain errors.