Review of Early Warning System in Bhubaneshwar, Gangtok, Madurai, Navi Mumbai, Shimla, Thiruvananthapuram and Visakhapatnam

Review Of Early Warning System in Bhubaneshwar, Gangtok, Madurai, Navi Mumbai, Shimla, Thiruvananthapuram And Visakhapatnam

TARU LEADING EDGE PVT. LTD. TARU/UNDP Review of Early Warning Systems in Indian Cities ACKNOWLEDGEMENTS

This work was conducted under the programme titled ‘GOI-UNDP Climate Risk Management in Urban Areas through Disaster Preparedness and Mitigation Project’, funded by USAID.

TARU Leading Edge Pvt. Ltd (TARU) would like to extend its deepest appreciation to all key informants/stakeholders who participated in the review process. TARU is grateful for the significant contribution provided by the State Disaster Management Authority, District Disaster Management Authority, City Administration, Technical agencies – Indian Meteorological Department and their Regional Meteorological Centres, Central Water Commission, Geological Survey of India, Public Health Department, and experts from other technical agencies and disaster management agencies at the national, state, district and city levels.

The review process involved a number of consultation meetings and workshops in the cities. The support of the city government and State Government departments/ institutions is highly appreciated.

Specifically we would like to highlight the support and in-depth engagement of the City Project Coordinators from all the seven cities.

A word of special thanks to United Nations Development Programme (India) for their fruitful partnership throughout the implementation of the review process, for their valuable support in coordinating the activities as well as in organizing city missions, and for stakeholder consultations and city workshops.

The findings of the review have been shared and reviewed by the key stakeholders, including the Local Government and their valuable inputs have been incorporated in the final report.

The report takes into account the End-to-End Early Warning System approach of the Regional Integrated Multi-Hazard Early Warning System. This report has been prepared by a six member team with experience in areas of disaster risk management, the hazard risk assessment, early warning system design and climate risk management.

No part of this publication may be reproduced or copied in any form without written permission. May 2014

Supported by: Ministry of Home Affairs, USAID and UNDP Partnership Project on Climate Risk Management in Urban Areas through Disaster Preparedness& Mitigation Published by: Taru Leading Edge Pvt. Ltd. Edited by: Anup Karanth and Umamaheshwaran Rajasekar Authors: Anup Karanth, Dr. Sandhya Rao, Dr. Umamaheshwaran Rajasekar, Lalit Dashora Team Composition: Prof. A.K. Gosain (Team leader), Dr. Umamaheshwaran Rajasekar (Deputy Team leader & System Analyst), Anup Karanth (Disaster Risk Management Expert & Project Manager), Dr. Sandhya Rao (Institutional & Capacity Assessment Expert), Puja Singh (Hydro-meterological hazard Risk Assessment Expert), Lalit Dashora (Urban Risk Assessment and Decision Support Expert) Graphics and Design by: Vishal Mehta and Mansi Shah

Review of Early Warning Systems in Indian Cities TARU/UNDP i

EXECUTIVE SUMMARY Adoption of the Hyogo Framework for Action Methodology of Review (HFA) during the World Conference on Disaster Risk Reduction (2005, Japan) has led to a The assessment involved a systematic flow of Advancements in observation and monitoring, paradigm shift in disaster risk management from understanding the EWS governance at the national, mathematical modelling, computing capabilities, a post-disaster response to a comprehensive and state, district and city levels; institutional mechanism communication technology and conduct of strategic approach in disaster risk management and their roles within the elements of EWS; delivery scientific risk assessment have allowed technical encompassing preparedness and prevention of products and services by technical and disaster and disaster management agencies to disseminate strategies. The second high priority area of the management agencies, as well as their coordination timely and accurate warnings and move people HFA stresses the need for identifying, assessing mechanism/operational cooperation; reviewing the and assets from the harm’s way. One example of and monitoring disaster risks and enhancing early existing EWS mechanism in cities; role of agencies this is the case of Cyclone Phailin, where accurate warning. in EWS and their integration in the disaster forecast was made by the Indian Meteorological management institutional framework (City Disaster Department (Cyclone Warning Division) and timely This review is commissioned by UNDP under Management Plan); discussing with stakeholders dissemination of warnings to at-risk communities Contract (2013/067), and is an initiative under the needs in EWS and gaps thereof, capacities of was done by the Orissa State and the District the programme titled, “GoI-UNDP Climate Risk institutions (technical agencies) engaged in EWS, Agencies. Another example is the case of public Management in Urban Areas through Disaster the operational cooperation of technical agencies health. Systemic collection of registered cases Preparedness and Mitigation Project”. The review with the emergency departments/functionaries at and observation of diseases in the city of Surat investigates the condition of EWS governance, the district and city levels (emergency management have led to the provision of timely information requirements of EWS users, core services structure and response capabilities), current status on potential outbreaks. Advance information provided by technical and disaster management and future needs of observation and monitoring on potential outbreaks leads to identification of agencies, coordination mechanism between capabilities, data management systems; seeking additional measures to be stepped up by the local technical and disaster management agencies and information on pre-computed assessment of risks government to reduce the risk of diseases such as finally the issues centred on service delivery and for various intensity of hazards (risk assessment), malaria, dengue, cholera, filariasis, among others. feedback in seven cities (Bhubaneswar, Gangtok, hazard analysis and prediction capabilities Madurai, Navi Mumbai, Shimla, Trivandrum and (threat assessment/potential impact assessment), India is highly diverse in terms of geography and Vishakapatnam). The report provides firsthand warning formulation/issuing of guidance and climate and so are its cities. Cities are exposed guidance as well as the steps for development potential outlook/provision of actionable early to earthquakes, tsunamis, landslides, heavy of EWS from the city level to the urban local body warning information/warning products, decision precipitation, floods, heat waves, cyclone and (ULB), disaster management institutions, technical making, generation of tailored risk information severe winds, public health risks among others. agencies involved in design and implementation and dissemination of risk information to at- Past disasters have shown significant impact of early warning systems for geological hazards, risk communities or hot-spot locations (risk on city economy and on key sectors (such as hydro-meteorological hazards and public health communication), information technology and transport, energy, water and sanitation, trade and risks. telecommunication capabilities, preparation commerce). It is expected that due to climate of response options, institution/emergency variability and climate change, the frequency and responders and community response. intensity of the hydro-meteorological hazards will see an increase in future. This, combined with poor The assessment was based on the information reservoir management practices, especially in obtained through a set of processes. cities located downstream the reservoirs, may put • Design of the review framework by the Review the lives of citizens and city assets at risk. Team

Review of Early Warning Systems in Indian Cities TARU/UNDP ii The overall analysis of this review revealed that in • City government/ULB has to make significant • A checklist and questionnaire prepared by cities: investments towards development of EWS and the Review Team for obtaining information from • EWS development is crucial for sustainable associated mechanisms such as a functional EOC. technical and disaster management agencies development and building resilience of the cities. It The current level of preparedness and resource • Mission to select cities to understand the EWS is therefore important to develop an EWS framework allocation is not sufficient to kick-start any activity environment and strengthen strategies across all levels to ensure around EWS. • Development of Criteria Development Matrix better coordination efforts for functional EWS at taking into consideration all the key elements of the city level. This must be seen as opportunity end-to-end EWS to strengthen network among institutions, foster • Information collected through stakeholder partnerships and build the capacities of all keys consultations/meetings, workshops in respective stakeholders. cities, discussions with programme focal point in • EWS framework must be made as a functional cities, meeting with key experts component of the DM Plan process (national/ • Exchange and mid-term feedback from UNDP state/district/city). The framework must foster programme team areas of cooperation in data sharing and impact • Development of policy brief, where key forecasting. recommendations cited are discussed for • It is widely realized that city institutions are endorsement at the policy level being rather response-centric instead of being the • Workshop with city stakeholders, sharing of ones that take preventive measures. The technical results capacity in understanding DRR, risk assessment • Final report and presentation and EWS needs to be strengthened at the ULB level. City level hazard and vulnerability mapping capabilities need to be enhanced on priority basis. Key Observations and Recommendations A long-term perspective on capacity development should be envisaged. Based on the development stage indicators for all • There is a common challenge in the interpretation the six components (1. EWS governance – national, of the forecast products. Technical agencies state and city level institutional framework, 2. User involved in providing warning have to evolve in needs, 3. Operational components of EWS, 4. providing information that can either be used by Products and services across the warning chain, 5. a wide pool of users or create products based on Coordination mechanism, 6. Service delivery and user needs. feedback loops), the report provides the summary • Technical agencies/scientific institutions must for each city highlighting the current status. The also enhance the capability to deliver timely Criteria Development Matrix also outlines the reason warnings with sufficient respite time so that they for selecting the development stage indicators. support DRR functions at the city level. Specific recommendations are presented together • The role of technical agencies in warning and this will lead to the development of policy formulation is increasingly being recognized. It brief. is therefore important to strengthen institutional coordination mechanism between technical and disaster management agencies at all levels. iii TARU/UNDP Review of Early Warning Systems in Indian Cities CONTENTS

GLOSSARY 1 LIST OF ICONS 3

1. INTRODUCTION 4 2. METHODOLOGY OF REVIEW 8 3. REVIEW OF EWS IN BHUBANESHWAR 11 4. REVIEW OF EWS IN GANGTOK 16 5. REVIEW OF EWS IN MADURAI 21 6. REVIEW OF EWS IN NAVI MUMBAI 26 7. REVIEW OF EWS IN SHIMLA 30 8. REVIEW OF EWS IN THIRUVANANTHAPURAM 35 9. REVIEW OF EWS IN VISAKHAPATNAM 40 10. RECOMMENDATIONS AND OUTLOOK 44

Review of Early Warning Systems in Indian Cities TARU/UNDP

GLOSSARY Forecast Definite statement or statistical estimate of the likely occurrence of a future Capacity event or conditions for a specific area The combination of all the strengths, attributes and resources available within a community, society or organization that can be used to achieve agreed Geological hazard goals Geological process or phenomenon that may cause loss of life, injury or other health impacts, property damage, loss of livelihoods and services, social and Climate change economic disruption, or environmental damage The Inter-governmental Panel on Climate Change (IPCC) defines climate change as: “a change in the state of the climate that can be identified (e.g., by using statistical tests) by changes in the mean and/or the variability of its Hazard properties, and that persists for an extended period, typically decades or A dangerous phenomenon, substance, human activity or condition that may longer. Climate change may be due to natural internal processes or external cause loss of life, injury or other health impacts, property damage, loss of forcings, or to persistent anthropogenic changes in the composition of the livelihoods and services, social and economic disruption, or environmental atmosphere or in land use” damage Hydro-meteorological hazard Disaster Process or phenomenon of atmospheric, hydrological or oceanographic A serious disruption of the functioning of a community or a society involving nature that may cause loss of life, injury or other health impacts, property widespread human, material, economic or environmental losses and impacts, damage, loss of livelihoods and services, social and economic disruption, or which exceeds the ability of the affected community or society to cope using environmental damage its own resources Natural hazard Disaster risk reduction Natural process or phenomenon that may cause loss of life, injury or other The concept and practice of reducing disaster risks through systematic efforts health impacts, property damage, loss of livelihoods and services, social and to analyse and manage the causal factors of disasters, including through economic disruption, or environmental damage reduced exposure to hazards, lessened vulnerability of people and property, wise management of land and the environment, and improved preparedness Preparedness for adverse events The knowledge and capacities developed by governments, professional response and recovery organizations, communities and individuals to Early warning system effectively anticipate, respond to, and recover from, the impacts of likely, The set of capacities needed to generate and disseminate timely and imminent or current hazard events or conditions meaningful warning information to enable individuals, communities and organizations threatened by a hazard to prepare and to act appropriately Prevention and in sufficient time to reduce the possibility of harm or loss The outright avoidance of adverse impacts of hazards and related disasters

Review of Early Warning Systems in Indian Cities TARU/UNDP 1 Response The provision of emergency services and public assistance during or immediately after a disaster in order to save lives, reduce health impacts, ensure public safety and meet the basic subsistence needs of the people affected

Risk The combination of the probability of an event and its negative consequences

Risk assessment A methodology to determine the nature and extent of risk by analysing potential hazards and evaluating existing conditions of vulnerability that together could potentially harm exposed people, property, services, livelihoods and the environment on which they depend

Risk management The systematic approach and practice of managing uncertainty to minimize potential harm and loss

Vulnerability The characteristics and circumstances of a community, system or asset that make it susceptible to the damaging effects of a hazard

Source: 2009, UNISDR Terminology on Disaster Risk Reduction

2 TARU/UNDP Review of Early Warning Systems in Indian Cities LIST OF ICONS

Background informartion on Review of EWS in 7 cities in India under the ongoing Observation and Monitoring intitatve of Climate Risk Management in Urban Areas through Disaster Preparedness and Mitigation project by UNDP.

Data Analysis Methodology/Systematic approach adopted to assess the existing EWS and emergency communication netwrok in 7 cities across India.

Prediction Summary of all the criteria of all 6 components of study framework and discussed in brief.

Risk Assessment

Potential Impact Assessment

Warning Formulation

Dissemination to communities at risk

Preparation of Response

Community Response

Review of Early Warning Systems in Indian Cities TARU/UNDP 3

At a national level there is a growing reliance upon Warning dissemination and staging response EWS as more people and assets are being exposed actions are as important as accurate forecasting 1. INTRODUCTION to the hazards. This calls for functional EWS (most and determining potential impact. Any weak link in effective for events that take time to normally the elements of EWS (even in case of previous well A systematic approach towards managing risk develop, such as tropical cyclone) or Alert Systems performing system) will result in under-performance through an established early warning system (EWS) (most effective for events that start immediately, or its failure. Hence evaluation of EWS is important. can minimize loss of lives and adverse economic such as earthquake) that have applicability for The evaluation of the system effectiveness can be impact. EWS backed with effective institutional most hazards. In 2013, Government of Orissa done during the event, post-event or during the lean arrangements can predict hazards in a timely and agencies evacuated more than half million people period. This review of EWS for all the seven cities effective manner, thereby empowering decision in advance of tropical cyclone (Phailin, Category: is done during the lean period. In most cases the makers and communities at risk. Very Severe Cyclonic Storm) thereby reducing cities haven’t formally put in place a functional EWS. fatalities to a fraction (loss of human life - 21) when While it is important to have technical competence Adoption of the Hyogo Framework for Action compared to the fatalities (loss of human life - around a range of elements (forecasting, prediction, (HFA) during the World Conference on Disaster 9887) from a tropical cyclone (Paradip Cyclone, impact assessment), discussions with stakeholders Risk Reduction (2005, Japan) has led to a Category: Super Cyclonic Storm) in the same emphasize that EWS is more organizational and paradigm shift in disaster risk management from region 14 years previously. institutional process which works to reduce loss. a post-disaster response to a comprehensive and The methodology adopted in the study has roots strategic approach in disaster risk management Advancements in observation and monitoring, to EWS elements defined by RIMES (2008) and the encompassing preparedness and prevention mathematical modelling, computing capabilities, criteria-development concept by Parker (1999). strategies. The second high priority area of the communication technology and conduct of HFA stresses the need for identifying, assessing scientific risk assessment have allowed technical The review investigates into the condition of and monitoring disaster risks and enhancing early and disaster management agencies to timely EWS governance, requirements of EWS users, warning. disseminate accurate warnings and move people core services provided by technical and disaster and assets from the harm’s way. In the case of management agencies, coordination mechanism In recent years hazards of different origin have Cyclone Phailin, accurate forecast by the Indian between technical and disaster management caused significant loss of lives and economic Meteorological Department (Cyclone Warning agencies and finally on issues centered around damages. The damages are showing a growing Division) and timely dissemination of warnings to service delivery and feedback. trend, and increase in climate variability and climate at-risk communities by the Orissa State and the change can tip of many existing mechanisms of District Agencies made this possible. The purpose of this report is to provide guidance managing risk. A closer look into the nature of to the city government, disaster management the hazard events clearly indicates the role of The other example is in the case of Public Health. institutions and technical agencies involved in the technical agencies (national/regional/state/ Systemic collection of registered cases and design and implementation of early warning systems city) and the disaster management agencies observations of diseases in the city of Surat has for geological hazards, hydro-meteorological (at the national/state/district/city/village) in early led to the provision of timely information regarding hazards & public health risks. This study aims to warning as critical. The increasing factor of risk in potential outbreaks. Advance information of assess the existing EWS in seven cities (Refer today’s society underlines the need for enhanced potential outbreaks leads to identification of Figure 1) through: cooperation from a wide spectrum of stakeholders additional measures to be stepped up by the local • Review of the technical design/structure in effective risk reduction and emergency government to reduce the risk of diseases such as and efficacy of existing early warning system, response. malaria, dengue, cholera, filariasis, among others. assessment of early warning agencies, communications networks, protocols for issue

Review of Early Warning Systems in Indian Cities TARU/UNDP 4 of warning, and transmission to the people, assessment of how the residents of the city access the information and how they act upon it. • Review of the technologies involved in the early warning system network design, technical specifications, up-time performance standards, connectivity and integration with all the important facilities and installations, emergency services, and the disaster management system in the city. • Review of the mode of collecting information Shimla related to hazard events, monitoring, and transmitting it to other agencies, particularly the municipal government and district administration. Gangtok • Review of the mode and reach of the warning especially last mile connectivity and dissemination plan through mass media, print and audio-visual. • Review the messages disseminated through the EWS: on timeliness, appropriateness, accuracy, I N D I A and simplicity parameters. • Review of the service support for maintaining the EWS on a regular basis and ensuring hundred Bhubaneshwar percent uptime. Navi Mumbai This report reviews the institutional mechanism and the decision making across the development model of EWS and its components. This report Vishakapatnam considers the use of Criteria Development Matrix (tool for review) to assess the level of development and present the findings for seven urban centres. Specifically, it focuses on the geological hazard, hydro-meteorological hazard and public health risk warning system, their current status, and capabilities N and supporting disaster risk reduction. Madurai

Case studies of best practices and warning system Trivandrum for individual hazards are presented at the end of the city review sections for ready reference.

Figure 1: Seven cities selected for review of EWS

5 TARU/UNDP Review of Early Warning Systems in Indian Cities • The third ability, which requires considerable A range of factors influence the hazard event phase Background social and cultural awareness, is the communication and the emergency phase. They include: of information to specific recipients about the Early warning in the usual context means some threat in sufficient time and with sufficient clarity • Lack of standardized EWS framework, which form of, either written or verbal indication of, an so that they can take action to avert negative is understood by both technical and disaster impending hazard. Early warning in the disaster consequences. management agencies. context implies the means by which a potential • Non-availability of warning information products danger is detected or forecast and an alert issued. Warning systems are only as good as their and services at different temporal and spatial In this report, the following definition has been weakest link. They can, and frequently do, fail in scales, and provision of same information content taken into consideration: ‘The provision of timely both developing and developed countries for a for various sectors/stakeholders. and effective information, through identifying range of reasons. There are significant decision • Warning message not being aligned in terms institutions, that allows individuals exposed to the points for the scientific/technical agencies and the of societal impacts, risk assessment not being hazard to take action to avoid or reduce their risk disaster management agencies. These decision undertaken and potential impact assessment and prepare for an effective response.’ ISDR 2004 points coincide with the phases of the disaster being based on either individual understanding or management/emergency management decision on past experience and being non-scientific. Over the last decade, India has incorporated stages as shown in Figure 2 (say, for hydro- • Lack of systemization steps for emergency disaster-reduction policies in its national, social meteorological event with sufficient lead time). response based on event severity. and economic development plans to establish • Warning content unable to facilitate appropriate effective preparedness measures and improve the response capacities. The value of timely and STANDARD WEATHER EVENT DECISION PHASE effective warnings in averting losses and protecting Decision to resources/development assets becomes apparent. Identification deactivate Urban centres are exposed to greater risk due of increased Decision that threatening to severe exposure of elements at risk (Mumbai potential for event is likely or Decision to phenomenon Review and Decision making event imminent activate warning doesn’t exist Feedback Floods 2005, Surat Floods 2006). Some of the recent events show the rising trend in the number of people being affected by disasters, especially Emergency Increased Event specific Ongoing operations Post disaster/ Ongoing in the urban areas. readiness and preparation, preparedness (Warning Post event preparedness stockpilling of based on communication, and planning recovery and planning Action points resources hazard intensity Evacuation, S&R Warning represents an added value and function in among others) the overall disaster risk management/disaster risk reduction framework. There are three main abilities that constitute the basis of early warning. Time Dimension • The first is technical capability to identify a potential risk or the likelihood of occurrence of Standard Emergency Phase a hazardous phenomenon, which threatens a Preparedness Preparedness Response Recovery vulnerable population. and Mitigation and Mitigation • The second ability is that of identifying accurately the vulnerability of a population to whom a warning Figure 2: Highlighting overlay of decision points over standard emergency phase and has to be directed, the weather event decision phase

Review of Early Warning Systems in Indian Cities TARU/UNDP 6 and timely decision actions at least to those people who are most immediately at risk or are under the Observation influence of the hazard. /Monitoring

An effective early warning system links technical agencies that generate warning information with Data Analysis disaster management/emergency management institutions and finally with communities/people at risk. The end-to-end early warning system (RIMES, Prediction Risk Assessment 2008) involves the following elements (Figure 3 shows the link between these elements): 1. Observation and monitoring 2. Data processing and analysis Potential Impact 3. Prediction and forecasting Assessement 4. Risk assessment 5. Potential impact assessment 6. Warning formulation 7. Dissemination to communities at risk (until the last mile) Warning 8. Preparation of response options Formulation 9. Community response, which is shaped by: a. Resourced and practiced emergency response plans b. Risk awareness Dissemination to c.Mitigation programmes communities at risk 10. Receiving user feedback 11. System adjustment/improvement

Preparation of Response

Community Response

Figure 3: Key elements in end-to-end EWS

7 TARU/UNDP Review of Early Warning Systems in Indian Cities of response options, institution/emergency 2.TECHNOLOGIES INVOLVED IN EWS: Review responders and community response. the network design, technical specifications, up- 2. METHODOLOGY OF REVIEW time performance standards, connectivity and The assessment was based on the information integration with all the important facilities and A systematic process was adopted by the Review obtained through a set of processes. They are as installations, emergency services, and the DM Team to assess the EWS, particularly with respect follows: system in the city. to the systems for geological, hydro-meteorological • Design of the review framework by the Review and public health risks in all the seven cities. Team 3. MODE OF COLLECTING HAZARD • A checklist and questionnaire prepared by RELATED INFORMATION (Geological hazards, The assessment involved a systematic flow of the Review Team for obtaining information from hydrometeorological hazards and disease risks): understanding the EWS governance at the national, technical and disaster management agencies Review the mode of collecting information related state, district and city levels; institutional mechanism • Mission to select cities to understand the EWS to hazard events, monitoring, and transmitting and their roles within the elements of EWS, delivery environment it to other agencies, particularly the municipal of products and services by technical and disaster • Development of Criteria Development Matrix government and district administration. management agencies, as well as their coordination taking into consideration all the key elements of mechanism/operational cooperation; reviewing end-to-end EWS (Figure 3) 4. WARNING OUTREACH AND LAST MILE of existing mechanism of EWS in cities; role of • Information collected through stakeholder CONNECTIVITY: Review the mode and reach of agencies in EWS and their integration in the disaster consultations/meetings, workshops in respective the warning especially last mile connectivity and management institutional framework (City Disaster cities, discussions with programme focal point in dissemination plan through mass media, print and Management Plan); discussing with stakeholders cities, meeting with key experts audio-visual medium. the gaps and needs in the EWS, capacities of • Exchange and mid-term feedback from UNDP institutions (technical agencies) engaged in EWS, programme team 5. MESSAGE CONTENT AND APPROPRIATENESS: operational cooperation of technical agencies with • Development of Policy Brief, where key Review the messages disseminated through the the emergency departments/functionaries at the recommendations cited are discussed for EWS: on timeliness, appropriateness, accuracy, district and city levels (emergency management endorsement at the policy level and simplicity parameters. structure and response capabilities), current status • Workshop with city stakeholders, sharing of and future needs of observation and monitoring results 6. SERVICE SUPPORT AND SYSTEM capabilities, data management systems; seeking • Final report and presentation MAINTENANCE: Review the service support information on pre-computed assessment of risks for maintaining the EWS on a regular basis and for various intensity of hazards (risk assessment), The review includes key criteria as indicated in ensuring 100 percent uptime. hazard analysis and prediction capabilities RFP for following key components: (threat assessment/potential impact assessment), The schematic diagram (Figure 4) is an illustration warning formulation/issuing of guidance and 1. TECHINCAL DESIGN / STRUCTURE AND of institutional mechanism and decision making potential outlook/provision of actionable early EFFICACY OF EXISTING EWS: Assessment of around the key warning chain elements. Numbers 1 warning information/warning products, decision early warning agencies, communication networks, to 6 in the schematic highlight the core components making, generation of tailored risk information protocols for issue of warning and transmission to for evaluating the warning system provided by and dissemination of risk information to at- the people. The review should also assess how the the technical agencies (national/state/city) to risk communities or hot-spot locations (risk residents of the city access the information and the DM agencies and other DRR stakeholders. communication), information technology and how they act upon it. The description of the core components and the telecommunication capabilities, preparation evaluation principles are summarized below:

Review of Early Warning Systems in Indian Cities TARU/UNDP 8 1. EWS GOVERNANCE: National, State and City agencies. The technical agencies rely on a range WARNING CHAIN: A wide range of products Level Institutional Framework: EWS is underpinned of supporting functions such as data gathering, and services aid in decision making. While by ministry/department/technical institutions data analysis, IT and telecommunication services technical agencies undertake hazard monitoring, providing operational nowcast/forecasts, products and product development through qualified and detection, analysis, prediction and forecasting and services to a wide range of users/community. trained staff. The prediction/operational forecast of (issue advisories to key stakeholders for initiating EWS in India is underpinned by legislation (DM hazard onset and hazard intensity are to be further decisions), risk information will have to be tailored Act 2005, State Disaster Management Act, State translated into the potential impact assessment at to the requirements of the city and communities at Disaster Management Policy) and institutional the city level and the surrounding regions. In case risk. framework that clearly define the roles and of the city having a reservoir/dam located upstream, responsibilities of various stakeholders among the regional forecast needs to further take into account 5. COORDINATION MECHANISM: A large number key warning chain elements. Emphasis under this the opening of the reservoir gates and subsequent of institutions are involved in the warning chain component was given towards understanding of inundation scenarios for emergency release. elements. Each institution plays an essential role the organizational coordination and cooperation and there is a need for synergy and collaboration mechanism (decision making and feedback across Risk assessment, risk communication and between forecasting (warning, data exchange key warning elements), and allocation of resources preparedness for emergency response/evacuation through hydro-meteorological services, climate at the city level (functional EOC, risk assessment, are the responsibilities of the local government/DM services, public health etc.) and DM agencies. human resource capacity). stakeholders (as identified in the City DM Plan). It is important to analyse if there are any specific Guidelines and procedures typically follow the provisions of expertise by the technical agencies to 2. USER NEEDS: The users in the city are Standard Operating Procedure (SOP) as outlined the DM stakeholders that could support or enhance spread across government agencies (district in the City DM Plan. A sufficient number of qualified decision making. DM authority, municipal corporation city DM and trained staff undertakes the response functions authority/local authority, emergency services, through designated Emergency Support Functions 6. SERVICE DELIVERY AND FEEDBACK LOOPS: first responders); communities at risk; general (ESF). The nerve centre of operations during While technical agencies issue the forecast and public; NGOs/CBOs; urban service providers emergency is the City Emergency Operation Centre related warning, DM agencies have to understand (government and private: line departments such (EOC equipped with tools for decision support), the user needs and ensure effective and timely as water supply, storm water drainage, drainage, which functions as the main hub for all emergency delivery of the services (overarching capacities in sanitation, health, transportation, energy, law and functions during the onset of hazard and during the quality management system is essential for service order); various sectors of the economy including impact, and shall remain operational until the threat delivery across functions). Feedback mechanism business establishments, trade and commerce; phenomenon subsides. Organizational coordination across the warning element chain helps in improving and the media. The requirements and needs of and cooperation mechanism between ESFs are delivery/quality of product and services over time. EWS products and services vary among different essential for effective delivery of early warning users. produced/generated by technical agencies. The elements of EWS and components have been integrated into the development of Criteria 3. OPERATIONAL COMPONENTS OF EWS: The City-level product development includes outputs Development Matrix (CDM). tasks of the technical agencies and disaster derived from risk assessment studies, tailored management agencies include developing risk information generated for the event, relevant products and offering a range of services across the information technology and telecommunication warning chain elements. Observation, monitoring, services for outreach and capability to handle prediction analysis and operational forecasting are emergency response. core capacities to be exhibited by the technical 4. PRODUCTS AND SERVICES ACROSS THE

9 TARU/UNDP Review of Early Warning Systems in Indian Cities EWS Governance 1 2 City EWS users

National, Regional & State Technical National, State, District & City DM District DM Authority Agenceis Agenceis City DM Authority Hydro-meteoro- Ocean Services Public Health SDMA / State DDMA / City City EOC / logical Services EOC DM Authority Emergency Responders 6 Municipal Corporation Emergency Services/ESF Coordination Mechanism Service 5 Delivery First Responders and Communities at risk

Feedback General Public Loops EWS Core Services NGOs/CBOs

Technical Services Disaster Management Business establishment

Operational Products Operational Products Trade and Commerce Components and Services Components and Services Media * Observation & Monitoring * Risk Assessment Urban Service providers * Prediction * Potential Impact * Risk Assessment * Data Analysis Assessment Water supply & Drainage * Operational NowCasting * Generation of Tailored * Advisories, Warning & * Tailored risk risk communication at * Forecasting other forecast products information timescale Sanitation

* Continued Analysis *Specific Analysis & * ESF * Emergency Response Technical advice Public Health * SOP * Evacuation Transportation 3 * Risk communication 4 Energy * Data Management Systems * Information Technology and Telecommunication Services * Decision Support Systems Law and Order * Qualified and Trained Human Resources

Component 1 Component 2 Component 3 Component 4 Component 5 Component 6

Figure 4: Study framework schematic showing the links of stakeholders across the development model of EWS Note:Various components analysed are numbered (as in the text) in the schematic

Review of Early Warning Systems in Indian Cities TARU/UNDP 10

3. Review of EWS in Bhubaneshwar

Review of Early Warning Systems in Indian Cities TARU/UNDP 11 Figure 5: Satellite Image and basic information: Bhubaneshwar

12 TARU/UNDP Review of Early Warning Systems in Indian Cities I n s

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t i o S ar

ta i s n w e t a i e e l t

l m nc e a e g n e i g Component 1: Governance is c a m l h t a e t a n t i s n e c o s P i a n i e s m p s d r m f f m o o ge r o t m f a d i r or r Component 2: User Needs y n a U t a n i a z c L U B or g e L ha n h r m i l of t B t e n o t ia r u t a E be t s a o n w W a e f t e s b i Component 3: Operational Components S o o p h e d n mon t p a o L r i e par g t r h a v t t n fo e i in l it of s o o w d t m f p r e u r e E o fie efl d d amo i s ro W f t s e i g e s n c a E d e Component 4: Products and Services t S d e l i n r b on W d d t on id a F o i n r t e a S a r c s n a am c t ln g d r c o u g f a n v le ra p ti o e a a e n s s t r t m a s n s wo B o i i c g n f L o e Hot e in Component 5: Coordination Mechanism g nt r rn is r r w U e e fo a e v i k nc o : w id m v e f ge r e o E e pr r c a xte n k ti n nt n t w o p c io e t to v a at em w it e d r g h h m p na ich in n min a t lo en a e m Component 6: Service Delivery & Feedback loop h s r e c ach is e EW a t s e d ast S l au s tr y is allo el y d ws tho ne Ou im e b fo r d T ns g r i e rnin c ty r po a onfi es of w rm d r ation ati pa an min on e sse & r ing n di fe P rn t i ed wa men bac e gage k f t tim ia en rom gh Med User co af Ni mmunity fec knowledg ted Preparedness Level e of variou are B s EWS an a l public by UL d its effe rning to genera ctiveness Content of wa Little Progress/ Major concerns

Risk and s W Impact Assessment gencie arning ment a mecha anage nisms ster m rs for var Partial Progress/ Minor concerns d disa de Use ious ha dia an vi of tec zards a en me ro hn nd pub betwe p olog lic hea kages ice y fo lth risk t of lin rv r var s Exten ious se s St ha nd e a zar i s ds a c fﬁ by Good Progress/ On track s e ie n C ng techn c c e i i ic n t & U al e g a v y n g g c e a r c n a e U a e cie t t rt s e a n n m s p in a t s e y me e c i e e o n g m r ity fo

a & g f B re

e n t w ud ca a g t e e s

c i g t m n t a a c h e n r h t d e n c in D w u n a st a y U a ll a ol o r a d ta n s m c in i o o L a g d r o g B a tio p n r v n e e y f a o i b e p l ste ra t r a y o w t a o b U e i L S p l b s t d it B i o is e y f Development Stage Indicators di r f o es n se a o r g t r E a d s R io o W k n m p in c ed n S l r EW f a D in s e o l e ra vl. 5 l t e u a a a n t n t e t n i c t n e d o n te i a g r d x n e w ma s

E c r a o h A e a c f n r i f lvl. 4 e o n E w e o c ni W t t t r y en n a S of h g s i a r n a s n en e l z c l. een o c lv 3 a fo e c o w ci r t e r m o a d h e n f s b l , m a E e s z WS d v u a vl. s l 2 g u a e n r e l d a i g r t n c s i ai a t e si a b k l r t n s a i y in n o lvl. 1 l e b U g i n f n il s L

m c i B t o a t n o y n b e r e ge a t n o p nd w xt a o u o o E i n t t r rk a r a a w i s t s c e r k i m a n d i r n n u i e f i n t o m n s g wa m a s o s r i c a ni d t c k n s i g of it R s y

t l i e l i v

b e

l A

Figure 6: Preparedness of EWS indicators for Bhubaneshwar

Review of Early Warning Systems in Indian Cities TARU/UNDP 13 evidence of forecast being developed for weather their impacts, are being appreciated by the general events and warnings being provided for all key public who are able to take action, events such 3.1 SUMMARY hazards (excluding earthquake and landslide) as strong winds and heavy rainfall remain vague by IMD, Water Resource Department and Health and no actions are being taken at the local level Bhubaneswar, being the capital city of Odisha, has Department to other government institutions and (ward-level flooding). The event of heavy rainfall the advantage of being the headquarters for all key media. provided at regional level is also less used by the State Government and regional institutions. The Water Resource Department to incorporate into presence of Odisha State Disaster Management The review of key agencies brought to the forefront its functioning, especially reservoir management, Authority (OSDMA), the State Emergency Operation realization of need for early warning system for due to high uncertainty and generalization of such Centre (SEOC), Department of Water Resources all hazards. Success of any EWS will depend on forecasts. Similarly, Water Resource Department, (DoWR), emergency management cell, Indian the detailed understanding of city risks. In case of being a state department, does issue flood Meteorological Department’s (IMD) regional centre Bhubaneswar, city-level risk assessment has been warning at catchment level which is more relevant for cyclone warning and State Surveillance Unit undertaken and the qualitative ward-level hazard for district-level actions and irrigation, but does not (SSU) of Integrated Disease Surveillance System indication has been mapped. This information is convey city-level warning or impact. (IDSP) has led to spurious perception within urban rudimentary and cannot be used for potential impact local bodies to not have an early warning system assessment or warning to vulnerable population Health advisories and warnings are currently for the city. in the city. The need of targeting the warning to provided by health department and IDSP, upon the the intended users is currently realized based realization of disease break out. Similar to hydro- The city municipality released its first city disaster on the experience and outcome of past disaster met events, technology used to monitor, nowcast management plan in 2012. This comprehensive events. Technical institutions realize the gap in and disseminate warning lacks required information document has indication of local authority being the data collection for arriving at informed forecast for to address city-specific needs. nodal agency for incident command, information disseminating timely warning. For example, IMD collection, preparedness and generating indicated its requirement for high resolution city- The current method of dissemination of warning awareness. However, it does not mention the need specific radar information to track extreme rainfall by all the above agencies is through formal mail/ of early warning system or possible coordination events, while Water Resource Department indicated fax being sent to government departments. The required for collection and dissemination of early its requirement of high resolution satellite-based same information is also disseminated to general warning information, which is currently being rainfall information to derive runoff within sub-basin public and local media, both print and television. In issued by various authorities within the city. and forecast water levels in the reservoirs. While spite of the uncertainty in information, some of the individual technical and disaster management government departments and technical agencies Post major disaster events in Odisha, notably agencies realize their needs and share their are able to interpret the information to suit their the super cyclone and heat wave of 1999, have forecast information through mail, phone and fax, functioning requirements, while the general public resulted in increased awareness of the need for no immediate plans exists within these agencies to is unable to translate the forecast into warning warning within the state. The events have led key develop forecast that could address the specific or actionable points. Addressing the last mile technical agencies to focus on the development of needs of other users. connectivity is still an issue. state wide warning system. Bhubaneswar, being around 55 km from the coast of Bay of Bengal, IMD, Bhubaneswar, is the regional centre for Similar to IMD, Water Resource Department and and the distributaries of Mahanadi flowing near cyclone monitoring in India. They currently forecast IDSP, the state EOC is also located within the peri-urban areas, has attracted less attention from regional weather and also provide warning for city. The strong presence of regional and state technical agencies for developing a city-specific cyclones. Based on their weather forecast, while institutions has led to non-realization of needs to early warning system. Nevertheless, there was some of the hazards, especially heat wave and establish and operate a city disaster management

14 TARU/UNDP Review of Early Warning Systems in Indian Cities centre with a functional city EOC. This has led to between departments (IMD sends a daily forecast state institutions, including EOC, to function for the at 12:30 p.m., while Water Resource Department state and the city. Also, OSDMA, in spite of being a sends a revised bulletin based on IMD forecasts state authority, due to its presence in the city, has at 05:30 p.m.). These warning messages are sent made attempts to collate data. ULB is currently not to all key government departments, including the involved in the process of collection or collation. media. But this system caters to only hydro-met hazards, especially those that are of importance Evidence of warning mechanism exists for hydro- to the state. City-specific forecast and warning met and public health risks. The key stakeholders, is limited for events such as pluvial floods and based on their previous experience, do tend disease incidents which occur every year. The to translate the hazard information to possible need for development of a system is realized by risk (including vulnerability) to take action. The all institutions. agencies which are currently providing these warnings realize the need for development of customized products/services. The lack of user need assessment across all stakeholders may be the reason for isolated technology incorporation, product development and service delivery plans. While the awareness programmes are currently being conducted by state and national agencies (OSDMA, UNDP and IDSP) with a wide reach, the realization and move towards city-specific risk and warning issues are yet to evolve.

Due to the absence of city disaster management cell and city EOC, the state agencies (OSDMA and EOC) wear more than one hat. While their mandate limits their extent of involvement in city affairs, being a state agency provides them with an advantage to link/communicate with all agencies. Formal links between agencies is evident through mail, fax and phone communications and in the reflection of warning information in media products (daily).

Post-event reflections leading to increased communication and response mechanism over the past one decade is evident from the emergence of new state institutions, decrease in the number of deaths and in timely transfer of information

Review of Early Warning Systems in Indian Cities TARU/UNDP 15

4. Review of EWS in Gangtok

Review of Early Warning Systems in Indian Cities TARU/UNDP 16 Figure 7: Satellite Image and basic information: Gangtok

17 TARU/UNDP Review of Early Warning Systems in Indian Cities I n s

s g LEGEND: t i n t i u n

t i o S ar

ta i s n w e t a i e e l t

l m nc e a e g n e i g

is c Component 1: Governance a m l h t a e t a n t i s n e c o s P i a n i e s m p s d r m f f m o o ge r o t m f a d i r or r y Component 2: User Needs n a U t a n i a z c L U B or g e L ha n h r m i l of t B t e n o t ia r u t a E be t s a o n w W a e f t e s b i S o o Component 3: Operational Components p h e d n mon t p a o L r i e par g t r h a v t t n fo e i in l it of s o o w d t m f p r e u r e E o fie efl d d amo i s ro W f t s e i g e s n c a E d e d Component 4: Products and Services t S e l i n r b on W d d t on id a F o i n r t e a S a r c s n a am c t ln g d r c o u ge f a n v le ra p ti o a e a n s s t r t m a s n s wo B o i i c g n f L o e Hot e in g nt r rn is Component 5: Coordination Mechanism r r w U e e fo a e v i k nc o : w id m v e f ge r e o E e pr r c a xte n k ti n nt n t w o p c o e t ti m to i v ra a wh th e d p age ic in m n min an h en a e m th lo s r e c ach is e Component 6: Service Delivery & Feedback loop EW a t s e d ast S l au s tr y is allo el y d ws tho ne Ou im e b fo r d T ns r i e rning c ty r po a onfi es of w rm d r ation ati pa an min on e sse & r ing n di fe P rn t i ed wa men bac e gage k f t tim ia en rom gh Med User co af Ni mmunity fec knowledg ted Preparedness Level e of variou are B s EWS an a l public by UL d its effe rning to genera ctiveness Content of wa Little Progress/ Major concerns

Risk and s W Impact Assessment gencie arning ment a mecha anage nisms ster m rs for var d disa de Use ious ha Partial Progress/ Minor concerns dia an vi of tec zards a en me ro hn nd pub betwe p olog lic hea kages ice y fo lth risk t of lin rv r var s Exten e ious s s St ha nd e a zar i s ds a c fﬁ by Good Progress/ On track s e ie n C ng techn c c e i i ic n t & U al e g a v y n g g c e a r c n a e U a e cie t t rt s e a n n m s p in a t s e y me e c i e e o n g m r ity fo

a & g f B re

e n t w ud ca a g t e e s

c i g t m n t a a c h e n r h t d e n c in D w u n a st a y U a ll a ol o r a d ta n s m c in i o o L a g d r o g B a tio p n r v n e e e y f a o i b e p l st ra t r a y o w t a o b U e i L S p l b s t d it B io i e y di s r f fo es Development Stage Indicators n se a o r g t r E a d s R io o W k n m p in c ed n S l r EW f a D in s e o l e ra t e u a a lvl. 5 a n t n t e t n i c t n e d o n te i a g r d x n e w ma s

E c r a o h A e a f c fo n r i E vl. 4 e n l w e o c ni W t t t r y e n a S of h g n s i a r n a s n en een e l z c c o a fo e lvl. 3 c o w ci r t e r m o a d h e n f s b l , m a E e s z WS d v u a s g u lvl. 2 a e n r e l d a i g r t n c ai s i a t e si a b k l r t n s a i y in n o l. l e b U lv 1 g i n f n il s L

m c i B t o a t n o y n b e r e ge a t n o p nd w xt a o u o o E i n t t r rk a r a a w i s t s c e r k i m a n d i r n n u i e f i n t o m n s g wa m a s o s r i c a ni d t c k n s i g of it R s y

t l i e l i v

b e

l A

Figure 8: Preparedness of EWS indicators for Gangtok

Review of Early Warning Systems in Indian Cities TARU/UNDP 18 management plan. Implementation is limited to (using paper-based forms) and analysis is adaptation and short-term measures. Resource undertaken at city level. 4.1 SUMMARY constraint was quoted as a main barrier in realizing implementation. Warning system reflects the arrangement Gangtok, being the state capital of Sikkim, has partially developed, and scope for considerable SSDMA, Land Revenue and Disaster Management The SSDMA has a range of products, which indicate improvement exists. State EOC has been Department, Irrigation and Flood Control their efforts towards sound disaster management established post recent disaster events, especially Department. However, ULBs has limited interaction practice, including preparation of Multi Hazard earthquake. The EOC lacks technical and human with national-level technical agencies. Risk and Vulnerability Assessment of Gangtok resource support and is activated only on a need Municipal Corporation Area and Multi Hazard basis. Use of modern technology (mobile SMS) GMC, which was very recently formed by State Risk and Vulnerability Assessment of North, East, to disseminate hydro-meteorological and public Urban Development Department, is only looking West and South Sikkim. Hotspots are identified health hazards was evident. In addition, presence after Solid Waste Management (SWM) in the city. and mapped across them, but are not updated at of PAS, siren, digital display, satellite phones and Early warning and disaster management activities regular intervals. ham radios was evident. But, their use is currently are managed by SSDMA through District Collector limited. With no dedicated budget for the owning of East District (headquarters in Gangtok). Dissemination of warning exists for hydro- and operating of EWS, both the state and city are meteorological and public health hazards by IMD limited from deploying dedicated staff to manage IMD has established a meteorological centre in and health department respectively with limited the system on a day-to-day basis. the city of Gangtok. This centre provides early respite time. Due to the nature of the terrain, media warning on heavy rain and thunderstorm to the has limited coverage. Currently warning information User needs, while realized, have not been assessed. District Collector’s Office and state departments is collected by media from the respective technical Initiatives for the development of training materials such as agriculture, revenue etc. The District and administrative agencies for dissemination. and awareness building were evident. Local risk Collector’s Office passes on this information to the Shortcomings in communication were evident. assessment has been undertaken (MHRVA) and general public using PAS. The city also has 24X7 City stakeholders recognize the need for warning, communicated (threat and associated safety Emergency Operation Centre at MG Road, which especially night time warning, but are yet to prepare measures) to limited stakeholders. Efforts are is run by the District Collector Office. State Health an action plan for implementation. also being made to sensitize citizens on frequent Department and IDSP give recommendations to hazards such as landslide, maintenance of natural the general public on vector- and water-borne There exists high dependency on national agencies drainage (jhoras). A comprehensive dissemination diseases. (Met Centre, IMD Regional Centre) for observation, plan is required to support the ongoing efforts. monitoring and forecasting. Efforts are underway GMC came into being recently and its mandate by IMD to improve the consistency and reliability The current communication, including SMS on risk for operations is currently limited to solid waste of the warning message. For public health, general events, is limited to select agencies. In most cases, management. State Disaster Management Plan advisory currently exists with no indication of areas these systems are active post event and do not indicates roles and responsibilities of local and vulnerable groups. The city does not have provide action points for pre-event preparedness governments. Select state departments have DM nowcast/forecast mechanisms for geophysical or coordination. Due to the nature of the terrain and Plan but these plans are yet to be implemented. hazards risk monitoring or forecasting. State health connectivity problems, the role of media is limited While the role of ULB is realized, the mandate for department has established a mechanism under in providing warning information. implementation does not exist and dissemination IDSP to observe, monitor and nowcast disease of early warning information is not formalized. outbreaks at regional/district levels. Surveillance Post-event reflection is done and change is evident Much of the state departments have disaster exists at city level within government hospitals in the mode of communication. Only key staffs in

19 TARU/UNDP Review of Early Warning Systems in Indian Cities ULB are aware of select early warnings and the impact, but are not clear on initiating action. Formal procedures to monitor the performance, including the roles of respective departments for initiating the warning and translating it to on-ground action will help strengthen the existing mechanisms.

Review of Early Warning Systems in Indian Cities TARU/UNDP 20 TARU/UNDP Review of Early Warning Systems in Indian Cities 5. Review of EWS in Madurai

Review of Early Warning Systems in Indian Cities TARU/UNDP 21 Figure9: Satellite Image and basic information: Madurai

22 TARU/UNDP Review of Early Warning Systems in Indian Cities I n LEGEND: s

s g

t i n t i u n

t i o S ar

ta i s n w e t a i e e l t

l m nc e a e Component 1: Governance g n e i g is c a m l h t a e t a n t i s n e c o s P i a n i e s m p s d r m f f m o o ge Component 2: User Needs r o t m f a d i r or r y n a U t a n i a z c LB U or g e L ha n h r m i l of t B t e n o t ia r u t a E be t s a o n w W a e f Component 3: Operational Components t e s b i S o o p h e d n mon t p a o L r i e par g t r h a v t t n fo e i in l it of s o o w d t m f p r e u r e E o fie efl d d amo i s ro Component 4: Products and Services W f t s e i g e s n c a E d e t S d e l i n r b on W d d t on id a F o i n r t e a S a r c s n a am c t ln g d r c o u ge f a n v ra i le a p t o a e n s s t r t m a s n s wo B o i i c g Component 5: Coordination Mechanism n f L o e Hot e in g nt r rn is r r w U e e fo a e v i k nc o : w id m v e f ge r e o E e pr r c a xte n k ti n nt n t w o p c o e t ti m to i v ra a wh th e d p age ic in m n min an Component 6: Service Delivery & Feedback loop h en a h e m th lo s r e c ac is e EW a t s e d ast S l au s tr y is allo el y d ws tho ne Ou im e b fo r d T ns g r i e rnin c ty r po a onfi es of w rm d r ation ati pa an min on e se & r ing dis f P n t in eed ar en bac e w agem k tim eng fro ht dia U m ig Me ser comm affe N unity know cted Preparedness Level ledge of v ar arious EW ea ic by ULB S and its general publ effectiven t of warning to ess Conten Little Progress/ Major concerns

Risk and s W Impact Assessment gencie arning ment a mecha anage nisms Partial Progress/ Minor concerns ster m rs for var d disa de Use ious ha dia an vi of tec zards a en me ro hn nd pub betwe p olog lic hea kages ice y fo lth risk t of lin rv r var s Exten ious se s St ha nd e a zar Good Progress/ On track i s ds a c fﬁ by s e ie n C ng techn c c e i i ic n t & U al e g a v y n g g c e a r c n a e U a e cie t t rt s e a n n m s p in a t s e y me e c i e e o n g m r ity fo

a & g f B re

e n t w ud ca a g t e e s

c i g t m n t a a c h e n r h t d e n c in D w u n a st a y U a ll a ol o r a d ta n s m c in i o o L a g d r o g B a tio p n r v n e e y f a o i b e p l ste ra t r a y o w t a o b U e i L S s t d p li Development Stage Indicators b t B io i e y di s r f fo es n se a o r g t r E a d s R io o W k n m p in c ed n S l. 5 l r EW f a D in s e lv o l e ra t e u a a a n t n t e t n i c t n e d o n te i a g r d x n e w ma s l. E c r a o lv 4 h A e a c f n r i f e o n E e o w c ni W t t r y ten n a S of h g s i a r a n vl. 3 s n l en een e l z c c o a fo e c o w ci r t e r m o a d h e n f s b l , m a E l. e v s z WS l 2 d v u a s g u a e n r e l d a i g r t n c s i ai a t e k si a b l. l r t v 1 n s a i y l in n o l e b U g i n f n il s L

m c i B t o a t n o y n b e r e ge a t n o p nd w xt a o u o o E i n t t r rk a r a a w i s t s c e r k i m an n d i r n u i e f i n t o m n s g wa m a s o s r i c a ni d t c k n s i g of it R s y

t l i e l i v

b e

l A

Figure 10: Preparedness of EWS indicators for Madurai

Review of Early Warning Systems in Indian Cities TARU/UNDP 23 newspapers, television and other media. PRO However, low lying areas have been marked and 5.1 SUMMARY makes arrangement to broadcast public address mapped by MMC. Health Department of Madurai through the Mayor and/or Commissioner. Corporation actively observes the existing situation of public health in the city and also collects relevant As per City DM Plan, Health Department of MMC is data. This information is also provided to state level Madurai is tier two city in Tamil Nadu, which has assigned to issue warning to people residing in low research institution. Awareness programmes are very limited link with state and national level early lying areas by the Vaigai river side and also advise limited to public health only. warning and disaster management agencies. The them to move to safer locations (towards high city of Madurai has limited exposure to hydro-met rise area); communicate flood warning to people The review of city level key agencies brought the and geological hazards. Flood is considered to be with the help of public address system (PAS); need for early warning system for all hazards to the a threat to the city. The last recorded major flood in broadcast flood warning information through radio forefront. Currently, there is no EOC established Madurai city was in the year 1993. Forecast for hydro- and television. and operationalized within the Madurai Corporation met hazards (heavy rainfall) is currently provided (ULB) to support EWS or to undertake disaster by IMD Regional Met Office, Chennai, to State MMC also receives three levels of warning from management initiatives. Hotspots such as low lying Relief Commissioner. District Collector receives PWD (Irrigation Department) through Collector areas and shelters have been identified, mapped warning from State Relief Commissioner. Madurai Office. This warning is related to water level for flood hazard by Madurai Corporation. Hazard is highly vulnerable to vector-borne diseases such in Vaigai reservoir and water release from the map updating process has not been undertaken as dengue, malaria and chikungunya. In recent reservoir. After issuing the third warning, water is and technology such as GIS is not envisaged for years, dengue has emerged as one of the major released from Vaigai dam. City Hotline between the mapping exercise. diseases in the city and the surrounding regions. Indian Meteorological Department and the State Emergency Operation Centre (EOC) is established The Hazard, Risk and Vulnerability Assessment Vulnerability is very high due to floating population. (in Chennai). Dissemination to the districts is done (HRVA) is at various stages of completion in Madurai is a city of tourist importance; both domestic through telephone and fax. IP phones are also the city. HRVA data format was prepared and and foreign tourists visit the city. The economy is available; they connect the State with the district circulated to collect necessary details to assess mainly dependent on tourism business. headquarters, taluks and blocks. Wireless radio risk and vulnerability of particular locations. Need network – both high frequency and very high for technical analysis dissemination through user Madurai district and city have their respective frequency – is available for communication across friendly formats is realized. Since city level risk Disaster Management Plans. As per District DM the state. assessment has not been completed, critical Plan, Madurai Corporation is a member of District infrastructures, critical locations, vulnerable Disaster Management Committee (DDMC). Roles MMC is fully dependent on District Collector’s Office population to enable/enhance the mitigation and responsibilities are clearly mentioned in the for hazard based early warning. At the city level, and response delivery mechanism have not city disaster management plan. Department of Madurai Corporation has established a wireless been identified. Systematic collection, collation, Madurai Corporation has been assigned the task communication network. Each officer at the ward maintenance and updating of relevant data related to early warning. level (up to sanitary inspector) is equipped with required to make an effective EWS is limited. wireless sets, which helps in a close coordination Public Relation Officer (PRO) of Madurai Corporation between implementing agencies. There is no separate budget allocation for creating is responsible for informing the public in low lying and operationalizing EWS. However, the ULB is areas for evacuation and providing shelter in the Local level details are not incorporated in hydro- proactive in warning dissemination by using the corporation in areas identified as safe. PRO is met forecast/warning, which is currently given by locally available communication modes (sirens also responsible for issuing flood warning through district level disaster management agency to ULB. and vehicle mounted PAS).

24 TARU/UNDP Review of Early Warning Systems in Indian Cities depend on information hosted on public domain. User needs assessment has not been undertaken by MMC to demand specialized products from Currently, there are no formal feedback mechanisms technical agencies (like IMD, CWC). The same observed in Madurai city between technical and is true for lack of coordination between technical disaster management agencies, and between ULB agencies to make effort to understand local and communities at risk. However during annual user specific needs to disseminate relevant pre-monsoon meetings, limited discussions are information. held on the results of actions taken in the previous year. Systematic feedback and evaluation at all Coordination between national to state and local levels is needed for determining system efficiency. level agencies is very important in early warning It helps to understand whether the established system. Failure at one level or lack of coordination mechanisms are able to translate the information across them could lead to the failure of the whole gathered to take preventive measures. system.

Limited formal links except for the protocols defined by the agency’s mandate (IMD is mandated/requested to send forecast to specific departments at state and district levels) exists between different agencies in Madurai city. The city level Emergency Operation Centre (EOC) and city disaster management cell are not operational in Madurai. In the absence of EOC, hazard early warning in the city is being conveyed by the state and district agencies.

For hydro-meteorological and geological hazards, the issuance of warnings is the responsibility of technical agencies; however, roles and responsibilities of various state and city stakeholders for implementation of early warning need to be clarified and reflected in the state and city level disaster management plan, regulatory frameworks, planning, budgetary, coordination and operational mechanisms. Coordination mechanism for health hazards is well-established in the city and Madurai Corporation has data/information sharing mechanism with district and state level health research institutions. It is also observed that no direct link is established with local media. Media

Review of Early Warning Systems in Indian Cities TARU/UNDP 25 TARU/UNDP Review of Early Warning Systems in Indian Cities 6. Review of EWS in Navi Mumbai

Review of Early Warning Systems in Indian Cities TARU/UNDP 26 Figure11: Satellite Image and basic information: Navi Mumbai

27 TARU/UNDP Review of Early Warning Systems in Indian Cities I n LEGEND: s

s g

t i n t i u n

t i o S ar

ta i s n w e t a i e e l t

a & g f B re

e n t w ud ca a g t e e s

m c i B t o a t n o y n b e r e ge a t n o p nd w xt a o u o o E i n t t r rk a r a a w i s t s c e r k i m an n d i r n u i e f i n t o m n s g wa m a s o s r i c a ni d t c k n s i g of it R s y

t l i e l i v

b e

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Figure 12: Preparedness of EWS indicators for Navi Mumbai

Review of Early Warning Systems in Indian Cities TARU/UNDP 28 required to strengthen the warning mechanism. 6.1 SUMMARY There is no separate budget allocation for creating and operationalizing EWS. However, the ULB Navi Mumbai is a newly planned city and much of is proactive in warning dissemination using the the city development needs are designed taking locally available communication modes (sirens into consideration of possible impact of hydro- and vehicle mounted PAS). Initiative to collect meteorological disasters. Regulatory mechanisms, information from the local level is attempted (evident like restriction on activities, which can probably through installation of 19 rain gauge stations). City trigger an event such as landslide, are in place. has an EOC with two control rooms and eight Zonal The Maharashtra State Disaster Management Officers with specific responsibilities to manage Plan addresses planning arrangements only the facilities. The EOC and control rooms are at the district level. Navi Mumbai City Disaster mainly geared for relief operations. EOC is manned Management plan mainly focuses on the roles and by government officials on deputation with the responsibilities during or post disaster. Currently help of supporting temporarily hired staff, which NMMC manages the disaster situation through an is functional round the year. Capacity (human EOC and two control rooms. There is no institutional resources as well as infrastructure) to add value mechanism within the NMMC (ULB) to establish or to improve the delivery mechanism of forecast/ and operationalize EWS. potential impact is yet to be developed.

City is dependent on technical agencies like Active awareness building measures are Regional Meteorological Centre (IMD), INCOIS and undertaken for frequent hazards. Local institutions Coast Guards for forecast/ information. Currently, have helped develop customized warning products the onus of dissemination of warning and response for fishermen community. The warnings include lies with the NMMC (DM Cell) through media and action points in case of an event and are targeted other protocols, which restricts the outreach (time, at hydro-meteorological hazards. space and communities at risk). Value addition to the warning received by technical agencies is Lack of formal links and feedback mechanism restricted to visual display (readability). Information exists between different institutions within the sources including satellite cloud cover and locally city. Links between local agencies, such as PWD/ installed rain gauge stations were evident in engineering – health/traffic, if established, can NMMC. stage better response and reduce the overhead costs substantially. City-level risk assessment is yet to be undertaken to enable/enhance the preparedness and response delivery mechanism. Without detailed hazard, vulnerability and risk assessment may limit response actions to target locations and groups/ communities. Systematic collection, collation, maintenance and updating of relevant data are

29 TARU/UNDP Review of Early Warning Systems in Indian Cities 7. Review of EWS in Shimla

Review of Early Warning Systems in Indian Cities TARU/UNDP 30 Figure13: Satellite Image and basic information: Shimla

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Figure 14: Preparedness of EWS indicators for Shimla

Review of Early Warning Systems in Indian Cities TARU/UNDP 32 based on past experiences and from observed The overall vulnerability of Shimla to various phenomenon in some cases (sinking zones, 7.1 SUMMARY hazards is high complex function of hazard building tilts, mass wasting and debris flow). intensity, population (densely-packed settlements, Translation of severe weather warning to potential Shimla city, being the capital of Himachal Pradesh, settlements in dangerous and environmentally impact is not analysed at the moment. City and has distinct advantage of institutional presence fragile zones), exposure of assets, remoteness/ state level agencies realize the need for precise and resources for management of severe event accessibility, socio–economic factors, services and local weather forecast and plan for establishment (disasters) and risk reduction activities. The utilities outreach and infrastructure vulnerability of monitoring mechanism for geophysical hazards city has the presence of institutions catering to (critical buildings, transport – roads and railways, in the city. the needs of services in disaster management. communications). The city of Shimla now has a Key institutions include: HPSDMA/DM Cell larger and more densely-packed population, Health advisories and warning are currently Department of Revenue, Meteorological Centre coupled with terrain challenges the exposure provided by health department and IDSP upon (Shimla), Geology Wing of Industries Department, to risk of damage caused by hazard events realization of disease breakout. Technology used Aryabhatta Geoinformatics and Space Application stands to be significant. Well-established EWS to to monitor, nowcast and disseminate hydro- Centre (AGiSAC), IDSP (State Surveillance Unit), potential hazard risks will ameliorate disaster risk meteorological event warning and geophysical and Municipal Corporation of Shimla (Urban Local management concerns of the city. event alerts is currently limited and lacks required Body). The city is also implementing a range of data/information to address city specific needs. programmes on disaster risk reduction and climate The review of key agencies brought to the forefront, risk management aspects. the need for early warning system for all hazards. The current method of dissemination of extreme Success of any EWS will depend on the detailed weather warning to all nodal agencies is through The institutional framework for early warning system understanding of city risks. In case of Shimla, mail/fax and SMS being sent from MO, Shimla, (severe weather warning) is limited to information qualitative risk assessment has been undertaken to government departments. The information is received from the Meteorological Office (MO), and key locations and hotspots are known to SMC also disseminated to general public through local Shimla, and the mechanism established by IDSP and stakeholders. This information is, however, media (print, radio and television. General public for disease outbreak. Given the city dynamics and rudimentary and cannot be used for potential are unable to translate the forecast into warning limitations due to geographical location and spread, impact assessment or warning to vulnerable or actionable points. Addressing the last mile a well-established EWS for geophysical and hydro- population in the city. Post-Uttarakhand Tragedy connectivity is still an issue. meteorological hazards is the need of the hour. The (June 2013) there has been a growing concern for City Disaster Management Cell of SMC rolled out developing early warning system and addressing SMC has been supported by UNDP for preparation the first City Disaster Management Plan in 2012 the forecast needs and dissemination mechanism of the City DM Plan and there has been significant (under the GoI-UNDP Disaster Risk Reduction to the stakeholders. effort to capture the operational components for Programme). The document indicated the hazard disaster management and risk reduction in the profile of the city, vulnerability and risk posed to the At present, the only evidence of forecast is CDMP. The City EOC is located in the city. Though city for various hazards, and outlines the mitigation developed for weather events by the Meteorological these developments are very recent, there is a and response plan for the city. The section of Office (MO) in Shimla. This forecast also needs need to further strengthen the mechanisms within the plan also outlines the trigger mechanism for significant improvement so as to identify and the City EOC and develop a SOP for functioning of various hazards. However, discussions with key track extreme events within the geographical area the EOC with appropriate number of trained staff on stakeholders in the city and the state department of the city. Lack of field studies and updating of a 24X7 basis. In the absence of the functional State reveal that there is need for greater coordination vulnerability assessment limits the dissemination EOC, the strengthening of City EOC is imperative. and establishment of EWS in the city. to intended users. The target for warning is purely

33 TARU/UNDP Review of Early Warning Systems in Indian Cities Due to terrain constraints and the threats of hazard, the EOC has to be established at both the state and the city levels. In the non-emergency period, the city EOC can be advised to collate data and monitor specific hazard risks such as slope instability, sinking zones and ground failure due to wrong construction practices and update the risk profile of the city. This database shall strengthen the EWS mechanism and help to establish threshold levels for hotspots and risk zones and determine potential impact for key hazards.

Evidence of warning mechanism exists only for severe weather events and for health risks. Information from the technical agencies is passed on to the disaster management agencies/response agencies and based on the past understanding of the events, response is initiated. The staging of response may differ due to lesser understanding of the severity/intensity of the event or due to no real time information management system from the impact zones/areas. Two of the agencies (MO Shimla and IDSP) currently providing these warnings realize the need for development of their products and services.

The lack of user needs assessment across all stakeholders could be the reason for isolated technology incorporation, product development, service delivery plans and integrated with the CDMP. Both MO Shimla and IDSP undertake awareness programmes on their respective subjects and, in addition, a wide range of departments in the state also conduct public awareness campaigns on life safety and preparedness (including drills) for earthquakes, landslides, cloud bursts/flash floods and fire.

Review of Early Warning Systems in Indian Cities TARU/UNDP 34 TARU/UNDP Review of Early Warning Systems in Indian Cities 8. Review of EWS in Thiruvananthapuram

Review of Early Warning Systems in Indian Cities TARU/UNDP 35 Figure15: Satellite Image and basic information: Thiruvananthapuram

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Figure 16: Preparedness of EWS indicators for Thiruvananthapuram

Review of Early Warning Systems in Indian Cities TARU/UNDP 37 rains, thunderstorm and strong winds to the off-shore/coastal engineering works and for field of District Collector of Thiruvananthapuram. The calibration and validation of sea-state forecasting 8.1 SUMMARY District collector sends these early warning model. CESS also issues voice messages (mobile messages to various institutions, including the collaboration with a service provider network for the Thiruvananthapuram, capital city of Kerala state, Thiruvananthapuram Corporation via fax, email registered users) in the local languages through has well-established links with national level and phone calls. Thiruvananthapuram Corporation radio once at 8:30 a.m. and then at 6:15 p.m. early warning agencies and state level disaster informs the people within its jurisdiction on receipt management institutions. Thiruvananthapuram city of warning from the District Collector’s office. Health advisories are currently provided by Health has a good presence of key national level institutions Department and IDSP, upon the realization of such as Geological Survey of India (GSI), Indian Thiruvananthapuram Corporation has very limited disease break out. Health department issues Meteorological Department (IMD), and Centre for coordination mechanism with state and national health advisories especially before monsoon, as Earth Science Studies (CESS). It also has state agencies providing forecast and warning services. and when the situation warrants. level institutions such as KSDMA, ILDM and state Thiruvananthapuram City Corporation realizes the IDSP cell. Thiruvananthapuram City Corporation need of an Emergency Operation Centre (EOC) Early warning mechanism exists only for has put in place a City Disaster Management and to establish link with INCOIS, CESS and IMD severe weather events and for health risks in Plan (CDMP). The local government and HRVA to receive warning message. Thiruvananthapuram City. Information from Cell (KSDMA) are working towards preparation of technical agencies are passed on to the disaster hazard, vulnerability and risk assessment. Centre for Earth Science Studies, in collaboration management agencies/response agencies and. with Indian National Centre for Ocean Information based on the past understanding of the events/ As per the KSDMA, the need is recognized by Services (INCOIS) under the Ministry of Earth experiences, response is initiated. the State Government to facilitate community Sciences (MoES), Government of India, has participation in the improvement process of Early installed (in 2011) two coastal stations, off the When rainfall amount is expected to exceed by 7 Warning System and Disaster Risk Management. coastal waters of Thiruvananthapuram, at 30 m cm per hour, heavy rainfall warning is issued by Within the state, 295 selected vulnerable villages depth. The coastal station gives real time data on IMD to the District Collector. The warning is also in all districts have been connected through EWS coastal weather conditions, which include tide, issued to various agencies, such as public services, network; however, there is no involvement of ULB current and wave parameters. This information PWD, irrigation, hydro-electric, port, telegraphs, in the current efforts. is vital to the local community, especially the railway and Community Project Officials, so that fishermen during extreme weather conditions the disaster management machinery can be kept Early warning of impending disasters and their for safe planning of their activities and also in in readiness. The existing system of dissemination effective dissemination by using various alternative identification of potential fishing zones. The real of weather warning by IMD to nodal agencies is communications are the key factors for effective time data is disseminated to the various scientific done through fax, email and SMS. The information prevention and preparedness. Thiruvananthapuram communities/research organizations/institutes to is also shared to media and disseminated to the city lies in the Thiruvananthapuram district and carry out research on coastal hydrodynamics and general public through local media (print, radio early warning on an impending event is the key applications of sea-state forecasting. and television). Local media translate the forecast responsibility of the District Collector. The District and warning into local language. Collector (as ex-officio) is the Chairman of District Disaster Management Authority (DDMA). The wave-rider buoy data is currently extensively Coordination mechanism is well-established used for the calibration of observations made by between agencies which are mandated to Meteorological Centre (IMD) at Thiruvananthapuram the satellite sensors and for various applications in coordinate the response effort. District Collector’s provides early warning information on heavy fisheries, coastal zone management, oil exploration, Office is the coordinating agency for early warning

38 TARU/UNDP Review of Early Warning Systems in Indian Cities and disaster management. There exists no formal feedback mechanism between technical agencies and ULB, and between ULB and communities at risk. Establishing the feedback mechanism can ensure reflection and learning process, thereby improving the efficiency of the current system.

Review of Early Warning Systems in Indian Cities TARU/UNDP 39 TARU/UNDP Review of Early Warning Systems in Indian Cities 9. Review of EWS in Visakhapatnam

Review of Early Warning Systems in Indian Cities TARU/UNDP 40 Figure17: Satellite Image and basic information: Visakhapatnam

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Figure 18: Preparedness of EWS indicators for Visakhapatnam

Review of Early Warning Systems in Indian Cities TARU/UNDP 42 with HRVA. Hotspots such as low lying areas and set of warning messages to relevant agencies. shelters will be identified during the study. This includes fax messages, SMS and phone calls. 9.1 SUMMARY During any event, centre also runs 24X7 call centre. The review of city level key institutions brought to However, local level details are not incorporated the forefront, realization of need for early warning in hydro-met forecast/warning, which is currently Visakhapatnam city has the presence of key system for hydro-met hazard (especially flood, given by the district level Disaster Management institutions catering to the needs of services in early severe rainfall and cyclone) and also establishment Authority to ULB. GVMC uses public address warning and disaster management. Key institutions of Emergency Operation Centre (EOC). GVMC system (PAS) to inform the public. Fishermen include: Cyclone Warning Centre (IMD), Irrigation (ULB) also realized the need of EOC to support communities along Visakhapatnam coast are Department, District IDSP Cell, GVMC Fire Service EWS and improving disaster management activities informed by Joint Director (Fisheries) and also by Department and Indian Navy. in the city and its planning areas. INCOIS using digital display boards.

Visakhapatnam District Collector’s Office is District Collector of Visakhapatnam has a hotline Coordination mechanism for early warning system responsible for providing early warning information connection with Cyclone Warning Centre (IMD) and disaster management in Visakhapatnam to relevant agencies and institutions in its jurisdiction and State Disaster Management Department. The is formal. Links are established only via District such as GVMC (UMB), Irrigation Department, VPT Cyclone Warning Centre has a Doppler radar at Collector’s Office. GVMC is responsible for informing (Port) etc. GVMC has various departments such Visakhapatnam that provides precise information people and undertaking response actions within as engineering, water supply, sewer and drainage, and near real time warning to DM agencies. corporation boundary. Agencies such as GVMC, health and social welfare, responsible for specific INCOIS provides tsunami warning to State Relief Irrigation Department have the experience of tasks within GVMC area. GVMC is responsible for Commissioner or Secretary Disaster Management handling past events and, therefore, coordination carrying out disaster management activities based Department. In Visakhapatnam, INCOIS mechanism improvement is based on institutional on information provided by the District Collector. established Ocean Information System at Fishing memories and individuals who have been in the The District Collector’s Office receives regular Harbour, which gives ocean state information; such forefront of managing the crisis situation. update and warning from the State Disaster as wave height, wave direction to the fishermen Management Department. Cyclone Warning Centre community. (IMD) at Visakhapatnam provides early warning to There is limited formal feedback mechanism the District Collector’s Office. District Collector calls emergency meeting and observed in Visakhapatnam city between technical, assigns specific tasks to relevant agencies after disaster management agencies and between ULB Irrigation Department provides Meghadrigedda receiving warning from the national and state and communities at risk/city stakeholders. During dam water release information four to six hours in agencies. District Collector monitors the situation annual pre-monsoon meetings chaired by District advance to the District Collector, VPT, Navy and very closely and provides further updates to GVMC, Collector, limited discussion is held on activities GVMC. Irrigation Department has installed some VPT, Navy and Irrigation Department. planned in the previous year and actions taken rain gauge stations at Meghadrigedda dam site. in the current season. Establishment of feedback The department conducts monsoon preparation The existing methods of dissemination of warning mechanism can improve the current functioning. meetings at city. by agencies are through formal mail/fax, that are sent to government departments. The same City level City Disaster Management Plan (CDMP) information is also disseminated to the general and Hazard, Risk and Vulnerability Assessment public and local media, both print and television. (HRVA) for Visakhapatnam city are not available. However, GVMC is working on preparing CDMP Cyclone Warning Centre (IMD) transmits standard

43 TARU/UNDP Review of Early Warning Systems in Indian Cities 10. RECOMMENDATIONS & OUTLOOK 5. Cities (not the state capital) have limited DM Plan, communities at risk, media, emergency interactions with state agencies. There is need for responders and key stakeholders. Initial results of the review have been shared with enhanced coordination mechanism amongst DM the cities during discussion meeting with city Agencies and ULB. 12. Awareness programme should aim at stakeholders. Stakeholders from the cities have strengthening the level of preparedness. The endorsed the results emanating from the review 6. There is a need to create discussion platform programmes should be contextualized and process. The following set of recommendations for deliberation and discussion between technical scenario-based. have been developed and presented for further agencies (IMD, CWC, GSI, CESS, and INCOIS action: among others), State Departments and the ULB. In 13. Networking and involvement with state, regional addition, there is a need to create an appropriate and national level institutions will strengthen EWS framework with due legal process to ensure that at city level. Networking brings in exchange of Recommendations for improving the EWS for roles and responsibilities of the agencies are observation data, expertise, joint validation of Urban Areas defined and executed. modelling results, improved decision making, sharing of lessons learnt and best practices. National / State Institutions 1. State DM Plan should entrust ULB with the Urban Local Bodies responsibility of developing city EWS for specific 7. The ULB/city government should earmark annual 14. The ULB/city government should identify and hazards. budget for development and maintenance of EWS link technical and resource institutions within the (Capex & Opex). city for EWS operations. 2. For an integrated approach, SDMA should provide an enabling platform to debate, increase 8. ULB’s DRR agenda should encompass EWS as 15. A functional EWS puts forth the requirement coordination and strengthen EWS links across a critical component. The city government should to harmonize SOPs that determine response. all levels of the government, technical agencies establish and provide operational services and Standardization of departmental plans and (geological, hydro-meteorological, public health guide the local development agenda/safeguard terminology ensures effective response actions. risks), private sector, city level institutions and non- infrastructure – assets – communities at risk. SOPs have to be evaluated and modified through government organizations. conduct of drills. 9. Institutionalization of EWS within ULB must 3. IMD’s Doppler radar system at city level or ensure integration between line departments and 16. ULB/City Government should develop hazard within the range of the city has proven to be quite technical agencies. Line departments, in turn, analysis, vulnerability assessment and risk beneficial during cyclone. While the plan to have must focus on development of appropriate SOPs assessment (on GIS platform). Climate variability a radar network is underway, fast-tracking of the for EWS. and climate change should be an integral part of same is the need of the hour. the risk assessment. 10. Cities should invest in a fully operation EOC 4. IDSP’s Health surveillances across cities (24X7) to support risk assessment and EWS. Trained 17. To strengthen disaster preparedness and are found to be relatively useful in detecting manpower must run the centre’s operations. emergency response, it is important to ensure that outbreaks, since they are directly linked to the emergency response actions are guided through state department. Currently, the paper-based 11. Capacity building of ULB/City Government scientific and observed data. The city EOC should approach has a turnaround time of 10 to 15 days on EWS (technical and management) is crucial harmonize flow of information from all agencies for actions. Tools for real time monitoring should be for system development and implementation. The and determine potential impact locations within considered. ULB should earmark funds for training so as to the city assist the process of strengthening the EOC, City

Review of Early Warning Systems in Indian Cities TARU/UNDP 44 18. ULB/City Government requires real time adaptation and resilience measures across key 29. Warning mechanism should keep focus on data for a range of services (traffic, health, sectors and integrate with DRR and development communities at risk. A generic city-level warning services monitoring – water/sanitation/solid planning. may not be appropriate, given the diversity of waste management). There is a need to design the built environment in urban areas. In addition, and develop integrated hydro-meteorological, Technical Agencies customized local warnings have to be provided to public health and environmental (say, air quality) 24. The ULB and allied institutions require support hotspot locations. monitoring systems in close cooperation with from technical agencies to build the current technical agencies, disaster risk management understanding of hazard risks, DRR options,\ and 30. Warning products should clearly indicate threats agencies and the ULB. Such an integrated system expand the understanding to incorporate future to the population/stakeholders. Efforts have to be will be cost-effective and will ensure operations at threats of climate change and other hazards in made by the technical and disaster management all times. decision making for new development and public agencies to tailor the warning that allows not safety. only understanding the potential event but also 19. Event preparedness meetings should be determining the potent impact. The warning at the regularized: before winter (for snow/cold wave), 25. Development of EWS (monitoring, impact city level should highlight societal impacts and not summer (heat wave) and monsoon season (tropical forecasting, warning formulation) has to be hazard be broad-based. Stakeholders should be able to cyclone). Pre-Monsoon Preparedness Forum has specific. EWS development should take into distinguish between low impact and high impact helped several cities minimize the risk (discussions consideration predominant hazards and more events. At the city level, there has to be minimum around monsoon outlook, calibration of model frequent/less frequent events (but with a potential ambiguity in information when shared with the results, preparedness plan). for severe damage). general public. Communities at risk should be able to perceive risk and react appropriately. 20. Night time warning has to be an integral part 26. Despite technical breakthroughs in earthquake of EWS. If need for evacuation arises, additional EWS (alerts), efforts should be made by technical 31. Simple and easy to use visualization tools measures should be stepped in to stage emergency agencies to implement EWS in high seismic should be made available by technical and response. The city DM Plan should make a clear prone cities. Landslide EWS can be successful disaster management agencies to the citizens. This provision for night time warning. in conjunction with appropriate selection of land will ensure participation and effective decision- use criteria for landslide prone region, further making. 21. Relay of warning information should use a wide combined with environmental monitoring of the risk variety of options. Select hot spot locations should prone areas. be equipped with sirens. To maximize outreach of warnings to general public places (railway stations, 27. Community-based monitoring has proved to be bus stations/stops, important city junctions, city beneficial for management of geological hazards. market places, parks etc.), display screens must A combination of technical and community-focused be positioned with real time information. approach should be adopted for implementation.

22. Engagement of the media is important to build 28. User understanding of the forecast in technical a culture of safety and resilience. An exclusive terms is limited. This is evident from the current set weather channel is recommended. of common information products shared with the user community. Therefore, translation of forecast to 23. It is critical for City Government/ULB to invest warning action has to be backed with action-based in city-level climate scoping studies, promote information in easy understandable language.

45 TARU/UNDP Review of Early Warning Systems in Indian Cities Summary It is important at this stage to note that EWS in the seven cities needs to be upgraded significantly to meet the larger objective of reducing fatalities and protecting infrastructure/assets from future events. It is recognized globally that an operational EWS has the potential of minimizing loss and contributing to sustainable development and building resilience. While technology is available for establishing the robust communication system for EWS, it is the institutional foundation and the networking arrangements which have to be deep rooted for meeting the desired objectives of the system. All the key elements of the system have to be functional and it is important to review them annually by targeting for different scenarios and measuring performance.

This report provides insights to issues that need to be addressed for an operational EWS, defines the criteria and measures the development stage indicators for the present situation. The results of this review provide a status and the need to be aware of key design considerations for improvement of existing EWS, as well as for design and implementation of new EWS. It is envisaged that city landscape will have to tailor solutions for public safety, and EWS will be designed and developed on various platforms. It is important to keep these systems people-centric and subsequently build risk knowledge among the stakeholders for success of this system. Criteria Development Matrix can be used as a tool for further review. As EWS systems develop in the city, robust EWS audit mechanism can be rolled in the future to measure system efficiency.

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