I would just offer the clarification again that the seriousness of the situation might cause risk to other persons, vessels or traffic, or other dangers to the environment. If that is not the case, then in the case-by-case consideration of which tools to deploy to intervene, an emergency zone may not always be required even if the threat is grave or imminent. Intervention may proceed without the declaration of a zone, in other words.
On February 26th, 2018. See this statement in context.