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1 2016 MEETING OF THE WMO DISASTER RISK REDUCTION USER-INTERFACE EXPERT ADVISORY GROUP ON MULTI-HAZARD EARLY WARNING SYSTEMS (WMO DRR UI-EAG MHEWS) April 2016 WMO Headquarters Geneva, Switzerland Room: Lake 7 (day 1), Salle C2 (day 2 & 3) Webpage: DRAFT (AS OF 11 APRIL ) WMO GUIDELINES FOR NATIONAL METEOROLOGICAL AND HYDROLOGICAL SERVICES ON INSTITUTIONAL ROLES AND PARTNERSHIPS IN MULTI-HAZARD EARLY WARNING SYSTEMS (MHEWS) Under Review Not for Distribution Table of Contents 1 Background Hyogo Framework for Action Relevance of HFA for National Meteorological and Hydrological Services Disaster Risk Reduction is a WMO Priority Evolving Role of NMHS s in Light of HFA Implementation and EWS Multi-Hazard Early Warning Systems Organizational and coordination aspects of HFA and EWS for the NMHS Purpose of these Guidelines Guidelines on the Role of NMHS in Relation to Institutional Partnerships in Multi-Hazard Early Warning Systems The Political Priority of MHEWS The Essential Components of Effective EWS The Management Framework for Successful EWS These guidelines are currently being updated to include the implications of the post-2015 development agenda, in particular the Sendai Framework for DRR and the latest advancements and global activities in the field of MHEWS. They represent for the largest part the status of 8 March 2014). 1

2 4.4 Adequate Resources are Essential The Importance of Information on Risks The Content of Effective Warning Messages Reliable and Timely Dissemination is Essential EWS Must Link to Emergency Preparedness Plans Effective EWS require an Informed Public The Importance of Feedback Quality Management List of References List of Acronyms Annex Early Warning Systems (EWS) A Checklist The Political Priority of EWS The Essential Components of Effective EWS The Management Framework for Successful EWS Adequate Resources are Essential The Importance of Information on Risks The Content of Effective Warning Messages Reliable and Timely Dissemination is Essential EWS Must Link to Emergency Preparedness Plans Effective EWS require an Informed Public The Importance of Feedback Quality Management

3 1 Background Reflecting the increasing worldwide concern regarding the disastrous losses of lives and other damages caused by extreme phenomena, the 1990 s were designated by the United Nations (UN) as the International Decade for Natural Disaster Reduction. At the end of that decade, UN Member States endorsed the International Strategy for Disaster Reduction (ISDR) and established an ISDR Secretariat. Subsequently, in 2005, the UN General Assembly convened a World Conference on Disaster Reduction, in Kobe, Hyogo, Japan, which concluded with the adoption of the Hyogo Framework for Action : Building the Resilience of Nations and Communities to Disasters, endorsed by 168 countries and many multi-lateral institutions [1]. 1.1 Hyogo Framework for Action The Hyogo Framework for Action (HFA) is the primary international agreement driving efforts to achieve a worldwide reduction in disasters. Its principal strategic goal is to integrate disaster risk considerations more effectively into sustainable development policies, planning, and programming at all levels, aiming to achieve a substantial reduction of disaster losses over the ten year period. The HFA s five priorities are to: 1. Ensure that disaster risk reduction is a national and a local priority with a strong institutional basis for implementation; 2. Identify, assess and monitor disaster risks and enhance early warning; 3. Use knowledge, innovation and education to build a culture of safety and resilience at all levels; 4. Reduce the underlying risk factors ;and 5. Strengthen disaster preparedness for effective response at all levels. The HFA has led to a paradigm shift in Disaster Risk Management (DRM), from a post-disaster response to a comprehensive and strategic approach encompassing risk identification, risk reduction and risk transfer. The second high-priority area of HFA stresses the need for identifying, assessing and monitoring disaster risks and enhancing early warning. Taking this into consideration a comprehensive DRM strategy of any nation should include development of the following (Figure 1): 1. Risk assessment to quantify and understand the risks associated with natural hazards and their impacts to underpin governance, institutional framework and development of strategies for risk reduction and risk financing; 2. Development of governance and institutional framework for Disaster Risk Reduction (DRR) spanning policy, legislation, legally framework and coordination mechanisms with a multi-hazard, multi-sector and multi-level approach; 3. Risk reduction through preparedness, including saving of lives through early warning systems linked to emergency preparedness; 4. Risk reduction through prevention including medium- to long-term sectoral planning and risk management in areas such as land zoning, infrastructure development, agriculture, energy, water resource management and transportation; 5. Risk Financing and Transfer through the utilization of financial instruments and markets spanning public and private mechanisms targeted at governments, institutions and individuals engaging a wide range of public and private stakeholders to transfer the economic impacts of disasters at various levels and decision timescales, and; 6. Information and knowledge sharing and educational programmes. 3

4 Figure 1: Elements of a comprehensive DRR Framework based on the Hyogo Framework for Action , encompassing the thematic components Risk Identification, Risk Reduction and Risk Financing and Transfer 1.2 Relevance of HFA for National Meteorological and Hydrological Services The fact that the HFA is now the primary driving force for the development of DRR programmes at national, regional and international levels has generated the need to examine its implications for the World Meteorological Organization (WMO) and National Meteorological and Hydrological Services (NMHSs). To this end, the WMO DRR Programme facilitated a coordination meeting where key representatives from NMHSs, and WMO s eight technical commissions and six regional associations participated to identify key HFA priorities and activities to NMHSs capacities, mandates and areas of interest [2] (Annex A). The results of this mapping exercise drew attention to areas where NMHSs would play a role to support the implementation of HFA. More specifically: 1. The application of expertise and capacities related to hydrometeorological and climate hazards (monitoring, data analysis, prediction and warning, telecommunications, outreach and education) is an area where NMHSs must exercise a leadership role; 2. NMHSs should contribute to the development of DRR plans and policies; 3. NMHSs should contribute to the development of DRR legislation, governance and coordination structures and systems. The first of the preceding areas is the traditional focus of NMHSs attention and effort. As illustrated in Figure 1, meteorological, hydrological and climate information and services are critically important inputs to risk assessments and decision-making related to preparedness and preventive strategies, providing a scientific basis for the assessment of hazard exposures, hazard frequencies and the formulation and dissemination of early warnings. 1.3 Disaster Risk Reduction is a WMO Priority In 2003, WMO Congress XIII established the Disaster Risk Reduction (DRR) Programme to strengthen capacities for provision of meteorological, hydrological and climate services of its Members and its operational and research networks to support various aspects of DRR decisionmaking. Through this crosscutting programme, WMO is developing an organization-wide coordination framework at the international, regional and national levels. 4

5 The main long-term objective of the WMO DRR Programme is to contribute to the strengthening of institutional capacities with respect to the provision of meteorological, hydrological and climate services and cooperation in supporting disaster risk reduction for the protection of lives and property and contributing to sustainable development of Members. The scope of the Programme is defined through its five strategic goals underpinned by the Hyogo Framework for Action : Building the Resilience of Nations and Communities to Disasters (HFA) and approved by WMO Congress XV in 2011 (Box 1). Box 1: WMO DRR Programme Strategic Objectives The strategic objectives of the WMO DRR Programme approved by WMO Congress XV in 2011 and underpinned by HFA include: 1. Development, improvement and sustainability of early warning systems in particular related to scientific and technical infrastructures, systems and capabilities for research, observing, detecting, forecasting and warnings of weather-, water- and climate-related hazards; 2. Development, improvement and sustainability of standardized hazard databases and metadata, systems, methods, tools and applications of modern technologies such as geographical information systems for recording, analyzing and providing hazard information for risk assessment, sectoral planning, risk transfer and other informed decision-making; 3. Development and delivery of warnings, specialized forecasts and other products and services that are timely, understandable to those at risk and driven by requirements of disaster risk reduction decision processes and operations engaging socio-economic sectors; 4. Stimulate a culture of resilience and prevention through strengthening of capacities for better integration of meteorological, hydrological and climate products and services in disaster risk reduction across all socio economic sectors, such as land use planning and infrastructure design and continued public education and outreach campaigns; and 5. Strengthening cooperation and partnerships of WMO and NMHSs in national, regional and international user forums, mechanisms and structures for implementation of disaster risk reduction. 2 Evolving Role of NMHS s in Light of HFA Implementation and EWS The implementation of the HFA by national governments is leading to changes in national DRR policies, legal and institutional frameworks, with implications on the role, responsibilities and new working arrangements for the NMHSs. These changes provide opportunities such as increased recognition of the NMHSs by their governments and stakeholders, which could result in strengthened partnerships and increased resources. However, NMHSs face increasing demands and liabilities related to the provision of products and services to larger and more diverse groups of DRR stakeholders (e.g., government authorities, public and private sectors, NGOs, general public and media, etc.) some of whom have direct responsibilities for DRR decision-making. To meet these new challenges, as illustrated in Figure 2, NMHSs should: a) Engage effectively in the National DRR governance and institutional frameworks; b) Identify, prioritize, establish partnerships and service delivery agreements with national DRR user community engaged in various DRR activities such as risk analysis, Multi- Hazard Early Warning Systems (MHEWS), sectoral risk management, disaster risk financing and transfer (DRR users); c) Develop and deliver core and specialized products and services (e.g., data, forecasts, analysis, technical advices and a range of other value-added products and services) 5

6 defined by the requirements of the DRR users for DRR decision support (e.g., hazard/risk analysis, multi-hazard EWS, sectoral risk management and disaster risk financing and risk transfer) in a cost-effective, systematic and sustainable manner; d) Ensure that core operational capacities (e.g., observing networks, forecasting systems, telecommunication systems, data management systems, human resources, etc.) are built upon the principles of Quality Management Systems (QMS) to support product and service development and delivery; e) Establish partnership agreements with other national technical agencies (e.g., hydrological services, ocean services, etc.) and with global and regional specialized centres (e.g. Global Producing Centres (GPC), Regional Specialized Meteorological Centres (RSMCs), Regional Climate Centres (RCC), Tsunami Watch Centres, etc.), with standard operating procedures; f) Engage in regional and global efforts for development of risk information for large scale and trans-boundary hazards, through strengthened regional and global cooperation. Figure 2: Overarching Framework for Development and Delivery of Products and Services to support DRR decision-making and related partnerships. With its focus on developing the DRR capacities of countries, the HFA stresses the need for coordinated DRR systems at national through local levels. Consequently, it calls on all nations to support the creation and strengthening of national integrated mechanisms such as multisectoral National Platforms to ensure that DRR is a national and a local priority. 2.1 Multi-Hazard Early Warning Systems Under the 2 nd priority for action, HFA emphasizes that Early Warning Systems (EWS) must be an integral component of any nation s disaster risk management strategy, enabling 6

7 governments at national to local levels and communities to take appropriate measures toward building resilience in anticipation of disasters. The international community has paid considerable attention to the topic of early warning systems over the past decade. Initiatives that have been undertaken during this time include three international conferences [3], [4], [5], two international experts symposia on Multi- Hazard EWS [6] [7], a 2006 United Nations Global EWS Survey Report [8], and the World Disaster Report [9] published by the International Federation of Red Cross and Red Crescent Societies. The Second International Conference on Early Warning [4] concluded that effective EWS are comprised of four components (Figure 3): 1. Monitoring and warning service: Hazards are detected, monitored, forecasted, and hazard warnings are developed; 2. Risk knowledge: Risks are analyzed and this information is incorporated in the warning messages; 3. Dissemination: Warnings are issued (by a designated authoritative source) and disseminated in a timely fashion to authorities and public at-risk; and, 4. Response capacity: Community-based emergency plans are activated in response to warnings, to reduce potential impacts on lives and livelihoods. Figure 3: WMO Schematic of the four operational components of effective EWS based on the UN-ISDR definition of EWS Moreover, many good practices around the world have demonstrated that EWS should be developed on the basis of a multi-hazard, multi-sectoral and multi-level (national to local) approach in order to gain advantage from synergies between these elements (Box 2). Implementation of the four components requires coordination across many agencies at national to local levels for the system to work. Failure in one component or lack of coordination across them could lead to the failure of the whole system. The issuance of warnings is a national responsibility; thus, roles and responsibilities of various public and private sector stakeholders for implementation of the EWS should be clarified and reflected in the national to local regulatory frameworks, planning, budgetary, coordination, and operational mechanism. 7

8 Box 2: Early Warning System The United Nations International Strategy for Disaster Reduction (UNISDR) definition of an Early Warning System is The set of capacities needed to generate and disseminate timely and meaningful warning information to enable individuals, communities and organizations threatened by a hazard to prepare and to act appropriately and in sufficient time to reduce the possibility of harm or loss. Consideration of the information and lessons learned from seven good practices around the world including Cuba, Bangladesh, France, Germany, Japan and the United States and the densely populated urban region of Shanghai, China, has led to the expansion of the preceding definition by further clarifying the concept of a Multi-Hazard Early Warning System (MH-EWS). From these cases, it has been learned that a well-designed MHEWS is one that not only targets a number of hazards but in doing so seeks to take optimum advantage of the collective capacities of all stakeholders involved in different components of the EWS. It leverages resources, monitoring and prediction networks, risk analysis capacities, communications and dissemination networks and preparedness and response systems through well-defined coordination structures and protocols to ensure the greatest possible efficiency, effectiveness, inter-operability and sustainability for the system as a whole. Throughout these international events and assessments, it has become clear that governments and various agencies could benefit from experiences of other governments, with good practices in MHEWS that had been demonstrated to reduce loss of lives and livelihoods. It also has been voiced in many international and regional forums that there is a need for systematic documentation of such good practices, lessons learned, and synthesizing the factors that have contributed to their successes. To this end, the 15th World Meteorological Congress in 2007 requested that such an initiative be undertaken by the WMO in partnership with its Member States and UN partners, particularly, related to institutional and operational aspects of EWS for weather, water and climateextremes. The book Institutional Partnerships in Multi-Hazard Early Warning Systems: A Compilation of Seven National Good Practices and Guiding Principles published in 2012 by Springer Verlag was the culmination of these efforts.[12] The book has been the result of nearly four years of consultations and efforts, including: 1. two international Multi-Hazard Early Warning Systems Symposia that established criteria for good practice identification, documentation and synthesis processes, 2. a documentation process that engaged many national agencies and ministries from each of the seven countries presented the book; and, 3. a detailed synthesis process that involved consultations with a large cadre of experts and practitioners in EWS, from around the world. The book features good practices from Bangladesh, megacity of Shanghai in China, Cuba, France, Germany, Japan and the United States of America, building on the expertise of WMO Members and relevant national ministries, UN and international partners. The book makes the case for greater integration of EWS in development, preparedness and planning at all levels of society. It provides the basis for a holistic and systematic approach to the mapping and evaluation of early warning systems including improvement and sustainability. It offers government officials, heads of agencies and their operational staff as well as other stakeholders in EWS, detailed information on policy and legal frameworks, institutional coordination and collaboration and operational aspects of EWS. 8

9 Box 4: Ten guiding principles for successful MHEWS To date, good practices have been documented in seven examples of MHEWS for meteorological and hydrological hazards. These include: the Bangladesh Cyclone Preparedness Programme; the Cuba Tropical Cyclone EWS; the French Vigilance System, which includes an example from the French West Indies; the Warning Management of the Deutscher Wetterdienst; MHEWSs in Japan and of the United States NOAA NWS; the Shanghai Multi-hazard Emergency Preparedness Programme, which provides an example of good practice for megacities. The documentation of these examples was carried out by teams of experts from relevant ministries and agencies in the respective countries and will appear in a forthcoming publication. A detailed synthesis of the good practices documented has revealed 10 principles common to the implementation of EWS in all cases, irrespective of political, social and institutional factors in each country: (1) There is a strong political recognition of the benefits of EWS that is reflected in harmonized national to local DRM policies, planning, legislation and budgeting; (2) Effective EWSs are built upon four components: i. Hazard detection, monitoring and forecasting; ii. Risk analysis and incorporation of risk information in emergency planning and warnings; iii. Timely dissemination and authoritative warnings; iv. Community planning and preparedness, and the ability to activate emergency plans to prepare and respond, with coordination across agencies, at national to local levels; (3) Early warning system stakeholders are identified and their roles, responsibilities and coordination mechanisms clearly defined and documented within national to local plans, legislation, directives and memorandums of understanding (MOUs), including those of the technical agencies such as NMHSs; (4) Capacities for EWSs are supported by adequate resources (for example, human, financial and material) across national to local levels, and the system is designed and implemented taking into account factors for long-term sustainability; (5) Information on hazard, exposure and vulnerability is used to undertake risk assessments at different levels, and is taken as being critical input into emergency planning and development of warning messages; (6) Warning messages are: i. Clear, consistent and include risk information; ii. Designed assuring that the link between threat level and emergency preparedness and response actions is clear (for example, the use of colour and flags) and that this is understood by the authorities and the population; iii. Issued from a single (or unified), recognized and authoritative source; (7) Warning dissemination mechanisms are able to reach the authorities, other EWS stakeholders and the population at risk in a timely and reliable fashion; (8) Emergency response plans are developed with consideration for the levels of hazard/risk, the characteristics of the exposed communities (for example, urban, rural, ethnic populations, tourists, and vulnerable groups such as women, children, the elderly and the hospitalized), the coordination mechanisms and the various EWS stakeholders; (9) Training on risk awareness, hazard recognition and related emergency response actions is integrated into formal and informal educational programmes, and linked to regular drills and tests across the system to ensure operational readiness at any time; (10) Effective feedback and improvement mechanisms are in place at all levels of EWS to provide systematic evaluation and ensure system improvement over time. The lessons learned from these good practices can be adapted by countries that require multihazard risk management. The specific design and implementation of EWS strategies varies according to the specific culture, socio-economic conditions, institutional structure, capacity and available resources for sustainability of the system. The book reveals that even though the specific design and implementation of EWS in each of the seven cases vary according to their governance mechanisms, specific history, climatic 9

10 regimes, culture, socio-economic conditions, institutional structure, capacities and resources for sustainability of their respective systems, there are ten principles common to all them that have led to the reduction of the impacts of hazards, particularly through saving of lives. 2.2 Organizational and coordination aspects of HFA and EWS for the NMHS The term NMHS has been used rather loosely in these guidelines as a collective one that applies to the operations of National Meteorological and Hydrological Services without necessarily implying that the two Services are combined in a single organization. In fact, in many countries, the National Meteorological Services (NMS) and National Hydrological Services (NHS) are separate agencies under different ministries. In such cases, close coordination is necessary to ensure that warnings such as flood warnings are issued in a coordinated manner with input from both agencies. The operational roles of the NMS and NHS could be divided into three categories based on their institutional structures and mandates for specific hazards; 1. NMS or NHS have sole mandate to monitor, detect and develop warnings for the hazard. 2. NMS and NHS have a joint mandate between them and/or with another specialized technical agency to monitor, detect and develop warnings for the hazard. 3. NMS and NHS are required to provide data and forecast products or lend their infrastructure (e.g., communication systems) to other agencies that have the official mandate to monitor, detect and develop warnings for the hazard. With regard to the level of coordination required between the NMS and national agencies with similar responsibilities such as hydrological, ocean services, or geophysical authorities can be subdivided into three types based on their mandates for specific hazards (Figure 4): Type I: NMS has sole mandate to issue warnings for the hazard. Type II: NMS has a joint mandate with a specialized technical agency for the development of warning for the hazard. Type III: NMS provides data and products to other agencies that have the mandate for the development of the warnings for the hazard. Increasing level of direct coordination of NM S with civil protection and risk management a gencies for issuance of warnings Type I Type II Type III Hazard fully under the mandate of NMS e.g. strong winds, strong rainfall, snow/ice, hail, tropical cyclone Hazard under joint mandate with anoth er technical agency e.g. floods, landslides, heat/health etc. Hazard under mandate of other agencies but NM S contribute e.g. locust, epidemic, man - made hazards Increas ing level of coordination of NM S wit h technical agencies for early detection, monitoring and development of warnings Figure 4: Levels of coordination between NMSs with civil protection and risk management agencies and other technical agencies at national level. 10

11 3 Purpose of these Guidelines The guidelines provided in this document build on the good practices and ten guiding principles of the book [12] and provide guidance to Directors and senior management of the NMHSs on how they could strengthen their services support to DRR and MHEWS within their countries. The purpose of these Guidelines is to: 1. Familiarize the senior management and staff of NMHSs with: The new paradigm for DRR embodied in the HFA; The broadened roles and responsibilities of NMHSs that arise from the HFA, with emphasis on the need to engage with their countries DRR authorities; 2. Provide guidance to the NMHSs on how they can strengthen their support to DRR in their countries by: Contributing to the development of policies, legislation and regulations related to MHEWS; Establishing effective partnerships and collaboration with and disaster management and civil protection authorities, development agencies, relief organizations and other key EWS stakeholders; and Participating in the implementation and operation of MHEWS that address the critical needs of disaster management and civil protection authorities, relief organizations, non-governmental organizations (NGOs), private sector organizations and other key DRR stakeholders. 4 Guidelines on the Role of NMHS in Relation to Institutional Partnerships in Multi-Hazard Early Warning Systems The foundation of these guidelines is the Ten Common Principles for successful EWS from the book Institutional Partnerships in Multi-Hazard Early Warning Systems: A Compilation of Seven National Good Practices and Guiding Principles [12], in the first instance, provide advice and guidance to WMO Members and governments on factors to be considered when seeking to implement and operate effective multi-hazard early warning systems at the national level. They are, therefore, targeted at the top levels of national authority and responsibility within their countries. NMHSs can, however, undertake actions that promote and are supportive of the application of these Principles. In the following sections, under each guiding principle, a description of its relevance to the NMHS is provided with a set of guidance statements to help directors and senior management of NMHSs strengthen their participation in their national MHEWS 4.1 The Political Priority of MHEWS Principle No. 1 - Political Commitment: There is a strong political recognition of the benefits of EWS reflected in harmonized national to local disaster risk management policies, planning, legislation and budgeting. As summarized in Principle 1, successful EWS are underpinned by strong political commitments, reflected in their integration into governments disaster risk management plans and budgeting processes and in legislation or directives defining authorities, roles and responsibilities. Directors and senior management of NMHSs often possess limited ability to influence their governments political priorities. They can, however, ensure that their organizations operate effectively within the framework of their national DRR and EWS coordination mechanisms and procedures. In addition, they can seek opportunities to promote the value of effective EWS in avoiding or reducing losses from hydrometeorological hazards. NMHSs can play an important 11

12 role in facilitating political recognition of the benefits of EWS. To accomplish this, NMHSs should endeavour to: a) Seek membership (or active engagement) in their countries national DRR platforms, DRR committees and EWS related coordination mechanisms; b) Identify, Strengthen existing or develop new partnerships with national stakeholders in EWS, spanning both public and private sectors; c) Ensure that their government s disaster risk management policies, directives, and systems reflect the importance of EWS and the role of NMHS; and, d) Demonstrate and promote the benefits of EWS as part of public outreach of the NMHS. 4.2 The Essential Components of Effective EWS Principle No. 2 - Four Building Blocks: Effective EWS are built upon four components: (i) hazard detection, monitoring and forecasting; (ii) analyzing risks and incorporation of risk information in emergency planning and warnings: (iii) disseminating timely and authoritative warnings, and, (iv) community planning and preparedness and the ability to activate emergency plans to prepare and respond, with coordination across agencies involved in EWS, at national to local levels. The four components illustrated in Figure 3 are, as noted previously, the essential building blocks for a coherent, integrated and successful EWS. Close collaboration by NMHSs with disaster management, civil protection authorities and warning authorities and all key EWS participants is clearly essential to ensuring that early warning systems in their countries incorporate these four components. The detection, monitoring and prediction of hydrometeorological hazards are primary roles of NMHSs in all countries. They represent areas where NMHSs can make a major contribution to nations EWS. NMHSs Directors and senior management must, therefore, strive to ensure that their NMHSs can carry out these roles effectively and efficiently. To that end, they should work to ensure that: a) Observational networks and systems are capable of detecting and monitoring all hazards of concern and/or their precursors; b) Observational networks and systems are operated on a round-the-clock basis (24/7/365); c) Their telecommunications networks operate effectively on a round-the-clock basis (24/7/365); d) Their forecasting and hazard warning services operate on a round-the-clock basis (24/7/365). e) Hazard risks for the country within the NMHS mandate are assessed, monitored, detected and mapped; f) Observation and forecasting data and information are quality assured and archived both temporally and geographically referenced; g) NMHSs hazard warning protocols and content are coordinated with disaster management and civil protection authorities and other key stakeholders through development and implementation of agreed Standard Operating Procedures (SOPs); h) NMHS has identified, designated and trained focal point staff member(s) for hazard warnings to maintain operational liaison with the disaster management and civil protection authorities and stakeholders at national to local levels; i) Sufficient professional and technical staff is recruited, trained and deployed to operate and maintain critical functions within these systems; and, j) Feedback process is in place to identify and rectify deficiencies of failures in infrastructures and capacities that may undercut EWS operations. 12

13 4.3 The Management Framework for Successful EWS Principle No. 3 - An integrated framework: EWS stakeholders are identified and their roles and responsibilities and coordination mechanisms clearly defined and documented within national to local plans, legislation, directives, MOUs, etc., including those of the technical agencies such as the NMHS. Successful EWS depend upon national, provincial and local governments creating an integrated and comprehensive framework, which clarifies roles, responsibilities and relationships at all levels. In the present context, it is particularly important that NMHSs roles, responsibilities and coordination mechanisms and procedures, and those of other key EWS partners, are clearly defined and documented within national to local plans, legislation, directives and MOUs. As useful steps towards this objective, directors and senior management of NMHSs should: a) Develop a clear understanding of the national DRR and MHEWS policies, legislative and institutional frameworks within which their NMHSs must function along with other stakeholders.; b) Develop a clear understanding of the role and priorities of the NMHS as specified in the national DRR and MHEWS policies, legislative and institutional frameworks especially with regard to working relationships with disaster management and civil protection authorities, MHEWS stakeholders, economic sectors and the general public; c) Identify how their NMHS can best meet its EWS responsibilities within these legislative and bureaucratic frameworks; d) Take the initiative to approach disaster management and civil protection authorities and volunteer their NMHSs active support and cooperation in implementing their countries MHEWS; e) Stress the need for clear definition and official documentation of the respective roles and responsibilities of NMHSs and other agencies involved in the MHEWS; and, f) Establish, when relevant, bilateral and multilateral coordination mechanisms among MHEWS stakeholders (e.g. Standard Operating Procedures (SOPs), MOUs). 4.4 Adequate Resources are Essential Principle No. 4 - Adequate Resources: EWS capacities are supported by adequate resources (e.g., human, financial, equipment, etc.) across national to local levels and the system is designed and implemented accounting for long-term sustainability factors. The provision of adequate human, financial, equipment and communications resources is absolutely essential for the operation and sustainability of successful EWS. Collaboration and coordination between NMHSs and all key EWS partners and stakeholders would be important in seeking to ensure that adequate human, financial, equipment and other resources are provided to operate and sustain EWS in their countries, across national to local levels. Directors and senior management of NMHSs should make every effort to: a) Recruit, train and assign sufficient qualified staff to provide hazard warning services on a round-the-clock basis (24/7/365); b) Allocate sufficient funding, personnel and equipment to operate and maintain adequate round-the-clock (24/7/365) observational programs and networks, with particular attention to hydrometeorological hazards and their precursors; c) Allocate sufficient funding, personnel and equipment to operate and maintain essential round-the-clock (24/7/365) telecommunications networks; and, d) Seek additional resources to remedy critical deficiencies in their capacities to support EWS that cannot be funded from NMHSs budget allocations. 13

14 4.5 The Importance of Information on Risks Principle No. 5 - Inclusion of Risk Information: Hazard, exposure and vulnerability information are used to carry-out risk assessments at different levels, as critical input into emergency planning and development of warning messages. Risk information on hazards, exposures and vulnerabilities enables authorities and the public have a better appreciation of the potential impact of extreme events and to plan mitigation and avoidance measures. In this context, NMHSs should endeavour to provide support to disaster management, civil protection authorities and DRR partners by: a) Supplying relevant observational data and analyses on hydrometeorological hazards to assist them in identifying exposures and vulnerabilities; b) Collaborating with these stakeholders to ensure that hydrometeorological hazard, exposure and vulnerability information is used in risk assessments and emergency planning; and, c) Collaborating with authorities to incorporate risk information on expected impacts and advice on avoidance actions in hydrometeorological hazard warning messages. 4.6 The Content of Effective Warning Messages Principle No. 6 - Effective Warning Messages: Warning messages are; (i) clear, consistent and include risk information, (ii) designed with consideration for linking threat levels to emergency preparedness and response actions (e.g., using colours, flags, etc.) and understood by authorities and the population, (iii) issued from a single (or unified), recognized and authoritative source. Warning authorities can vary from nation-to-nation. In some countries, the authority for issuance of hazard warnings is assigned to a national warning authority. In others, warnings are assigned to agencies with relevant expertise such as national meteorological, oceanographic institutions or hydrological services. In this case it is important to insure that there are clear lines of authority and associated responsibilities for the issuance of warnings for various hazards within each country. Regardless of the authority system in place for issuance of warnings it is vitally important that NMHSs Directors and senior management: a) Make every effort to ensure that hazard warning messages are clear, consistent and readily understandable to authorities, other stakeholders and the population; b) Collaborate with disaster risk authorities to ensure that hazard warning messages include appropriate risk information; c) Collaborate with disaster risk authorities to ensure that hazard warning messages activate pre-planned emergency preparedness and response actions (e.g., using colours, flags, sirens, etc.); and, d) Collaborate and coordinate with disaster risk authorities and other relevant agencies such as National Hydrological Services to ensure that hazard warning messages are issued from issued from a single (or unified), recognized and authoritative source. 14

15 4.7 Reliable and Timely Dissemination is Essential Principle No. 7 - Reliable and Timely Dissemination: Warning dissemination mechanisms are able to reach the authorities, other EWS stakeholders and the population at risk in a timely and reliable fashion. In order to be useful, warning messages must reach authorities, other key EWS stakeholders and the population at risk in a time for avoidance and mitigation actions to be taken. Collaboration and coordination by NMHSs with EWS authorities and other EWS partners will be essential to implementing and operating sustainable dissemination mechanisms countries that ensure the timely, reliable, delivery of early warning messages in their countries. From an internal management perspective, NMHSs Directors and senior management should constantly strive to ensure that: a) NMHS s telecommunications systems for dissemination of hazard warnings and related information are both reliable and cost effective; b) Back-up dissemination capabilities are in place to ensure delivery of critical warning information in the event of power failures and other outages; c) NMHSs telecommunications systems include reinforced or hardened capabilities to deliver hazard warning information to disaster management and civil protection authorities, other critical stakeholders and broadcast media; d) Advantage is taken when available, of modern dissemination systems such as the Internet, , cellular phone system, SMS to deliver targeted warning messages to special interests such as, for example, power utilities, transportation companies and local authorities; e) Effective coordination is maintained with the media and other organizations that act as multiplier points for the widespread public dissemination early warnings and related information; and, f) Where appropriate and practical, arrangements are made with NMHSs in neighbouring countries to provide back-up warning dissemination services when requested to do so in emergency situations. 4.8 EWS Must Link to Emergency Preparedness Plans Principle No. 8 - Integration with Emergency Preparedness Planning: Emergency response plans are developed with consideration for hazard/risk levels, characteristics of the exposed communities (e.g., urban, rural, ethnic populations, tourists, and particularly vulnerable groups such as women, children, the elderly and the hospitalized), coordination mechanisms and various EWS stakeholders. Effective community response requires that the populations at risk are well informed and ready to take appropriate emergency preparedness and response actions that are linked to the levels of threat indicated in the warning messages. NMHSs can make useful contributions to the development of effective emergency preparedness plans by working with emergency planning authorities and stakeholders, in their countries. More specifically, NMHSs can and should undertake the following actions: a) Archive, quality control and analyze observations of hydrometeorological hazards to yield information on the magnitudes, locations and frequencies of occurrence of hazard events; b) Provide these data and analyses to emergency planning authorities, local municipalities and other stakeholders to assist them in identifying vulnerable areas, infrastructures and populations; 15

16 c) Coordinate with emergency preparedness authorities to establish agreed hazard warning thresholds that will trigger pre-planned preparedness and response measures; and, d) Collaborate with emergency preparedness authorities to develop and deliver public awareness campaigns to inform vulnerable groups and the public at large on hazards of concern and actions that they should take to minimize danger to themselves and their property. 4.9 Effective EWS require an Informed Public Principle No. 9 - Public Education: Training on risk awareness, hazard recognition and related emergency response actions is integrated in various formal and informal educational programmes and linked to regularly conducted drills and tests across the system to ensure operational readiness at any time. Public education, training and drills are essential to operational readiness for emergency events since members of the public must be clear as to how to interpret warning information and what this means for them at individual, household and community levels. Working in cooperation with disaster risk authorities and key stakeholders, NMHSs can make useful contributions to formal and informal public education programmes on risk awareness and hazard recognition. Such contributions can include participating in training, drills and tests on emergency response actions in their countries. Specific initiatives that should be considered for implementation by NMHSs Directors and senior management include: a) Developing and distributing pamphlets on hydrometeorological hazards of concern in their countries; b) Assisting educational institutions to develop course materials on such hazards; c) Participating in radio and television broadcasts focused on hazards and hazardous events; d) Designating a staff member as the focal point for public awareness activities; e) Delivering public lectures and talks on these topics; f) Providing disaster authorities with realistic hydrometeorological scenarios to form a basis for emergency preparedness drills and exercises; and, g) Ensuring that NMHSs staff collaborate with authorities in the conduct of emergency preparedness drills and exercises 4.10 The Importance of Feedback Principle No Feedback for Improvement: Effective feedback and improvement mechanisms are in place at all levels of EWS to provide systematic evaluation and ensure system improvement over time. Effective feedback mechanisms provide valuable inputs to planning, coordination, operational, and technical aspects of EWS and are essential to improvement of the overall system. Feedback and improvement must, in consequence, be continuing priorities for all EWS authorities and participants. NMHSs have vested interests in cooperating with disaster risk authorities and other key stakeholders to implement effective feedback and improvement mechanisms in their countries. Such systems are essential to monitoring NMHSs performance in support of national EWS and ensuring that needs for improvement are recognized and addressed. Where appropriate programmes are not already in place, NMHSs Directors and senior management are encouraged to undertake the following initiatives to obtain feedback: a) Implement a forecast verification system to assess the accuracy of forecasts of hydrometeorological hazards and their precursors; 16

17 b) Implement a programme to obtain feedback from users and the public on the utility of the NMHS s hazard bulletins, advisories and warnings; c) Implement a programme to monitor the reliability and performance of the NMHS s observational and telecommunications infrastructure; d) Establish a process to identify needs for additional training of staff; and, e) Establishing a process for implementing needed improvements, rectifying deficiencies in infrastructures and processes, and providing needed training Quality Management NMHSs must be able to deliver reliable, high quality, prediction and warning services for hydrometeorological hazards on a round-the-clock basis in order to contribute effectively to MHEWS that are consistent with the ten Principles discussed in previous sections. On an ongoing basis, they must strive to ensure the quality and reliability of their services by implementing improvements as necessary to rectify any identified deficiencies. This implies that NMHSs delivery of products and services should be undertaken within the framework of a Quality Management System that can guide the NMHS towards improved performance. Consequently, all NMHSs are encouraged to adopt and implement a Quality Management System to govern their operations. 17

18 5 List of References [1]. Hyogo Framework for Action : Building the Resilience of Nations and Communities to Disasters: Website: [2]. Mapping WMO and NMHSs Roles and Mandates on Hyogo Framework for Action Key Activities; EC AG DPM 2 / Doc.2, Annex.6 (19.I.07), WMO Executive Council Advisory Group on Disaster Prevention & Mitigation, Second Session, Geneva, January Website: pdf [3]. First International Conference on Early Warning (Potsdam, 1998). Website: [4]. Second International Conference on Early Warning (Bonn, 2003) Website: [5]. Third International Conference on Early Warning (Bonn, 2006). Website: [6]. First Experts Symposium on Multi-Hazard Early Warning Systems (Geneva, 2006). Website: [7]. Second Experts Symposium on Multi-Hazard Early Warning Systems (Toulouse, 2009). Website: [8]. Global Early Warning Survey (2006) Website: [9]. World Disasters Report 2009, Focus on early warning, early action, Published by The International Federation of Red Cross and Red Crescent Societies. Website: [10]. A Checklist - Developing Early Warning Systems: Third International Conference on Early Warning - From concept to action March 2006, Bonn, Germany. Website: [11]. Questionnaire on Early Warning Systems, Training Workshop on Multi-Hazard Early Warning Systems with focus on Institutional Partnership and Coordination. March, San José, Costa Rica. Website: Questionnaire.pdf [12]. Institutional Partnerships in Multi-Hazard Early Warning Systems - A Compilation of Seven National Good Practices and Guiding Principles. Golnaraghi M., Ed., ISBN , Springer, Website: [13] UNISDR Terminology on Disaster Risk Reduction, Published by the United Nations International Strategy for Disaster Reduction (UNISDR), Geneva, Switzerland, May Website: 18