MODERNIZATION OF Japan’s Hydromet SERVICES A Report on Lessons Learned for Disaster Risk Management CONTRIBUTORS ABBREVIATIONS World Bank: Jack Campbell and Makoto Suwa AMeDAS Automated Meteorological Data (Co-leads); Toshihiro Sonoda (GFDRR Hydromet Acquisition System Team); Ray Canterford, Anne Himmelfarb and CCTV closed-circuit television Sonia Luthra (Consultants); and James Newman, CREWS Climate Risk and Early Warning Systems Keiko Kaneda, Naho Shibuya and Vibhu Jain DRM disaster risk management (DRM Hub, Tokyo), under the guidance of Francis FRICS Foundation of River & Basin Integrated Ghesquiere, Luis Tineo and Vladimir Tsirkunov. Communications, Japan GFCS Global Framework for Climate Services Japan Meteorological Business Support Center GFDRR Global Facility for Disaster Reduction (JMBSC): Mitsuhiko Hatori (Head), Tokiyoshi and Recovery Toya, Michihiko Tonouchi, Hiroshi Yokoyama, ICAO International Civil Aviation Organization Masao Mikami, Tsutomu Jyoumura, and Yasutaka ICT Information and Communications Makihara. Technology IMO International Meteorological Foundation of River & Basin Integrated Organization Communications, Japan (FRICS): Akihiko IWRM Integrated Water Resources Management Nunomura (Head), Minoru Kuriki, Masaaki JICA Japan International Cooperation Agency Nakayasu, Hideyuki Kamimera, and Atsuhiro JMA Japan Meteorological Agency Yorozuya. JMBSC Japan Meteorological Business Support Center ACKNOWLEDGMENTS LMOs Local Meteorological Offices The Government of Japan provided substantial MLIT Ministry of Land, Infrastructure, Transport and Tourism inputs and advice in the drafting of the reports and NHK Japan Broadcasting Corporation overall strategic guidance. Particular thanks go NMHS National Meteorological and to the Ministry of Land, Infrastructure, Transport Hydrological Service and Tourism (MLIT); the Japan Meteorological NTT Nippon Telegram and Telephone Agency (JMA); the Cabinet Office; the International Corporation Centre for Water Hazard (ICHARM); and the Japan NWP Numerical Weather Prediction International Cooperation Agency (JICA). QPE/QPF Quantitative Precipitation Estimation/ Quantitative Precipitation Forecast Special thanks are extended to the experts SDG Sustainable Development Goal of JMA and MLIT who were very helpful in TMO Tokyo Meteorological Observatory providing a great deal of comprehensive and UNESCO United Nations Educational, Scientific and Cultural Organization precise information on the past and current UNESCO IHP International Hydrological Programme meteorological and hydrological services in Japan, UNESCO IOC Intergovernmental Oceanographic as well as valuable comments and suggestions, Commission and to a number of former staff members of WMO World Meteorological Organization JMA and MLIT, and their predecessors, who WDMB Water and Disaster Management devoted a substantial effort to the modernization Bureau of Japanese meteorological and hydrological WWC World Water Council services over 100 years, and which gives the valuable lessons and models of modernization for developing countries as reviewed in the this report and background papers. i Modernizing Japan’s Hydromet Services Table of Contents ACKNOWLEDGMENTS .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. . i ABBREVIATIONS. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. . i 1. Helping Developing Countries Reduce Disaster Risk from Natural Hazards Through Modern Hydromet Services .. .. .. .. .. .. .. .. .. .. 3 1.1 Role of the World Bank .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. 4 1.2 Role of International Frameworks and Agreements .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. 5 1.3 Structure of this Summary Report . .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. 5 2. The Emergence of Modern Hydromet Services in Japan .. .. .. .. .. .. .. .. .. 6 2.1 Overview .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. 6 2.2 Institutional Strengthening .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. 7 2.2.1 Meteorological Services . .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. 7 2.2.2 Hydrological Services .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. 8 2.2.3 Legal Framework and Warning Dissemination .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. 10 2.3 Modernization of Systems .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. 12 2.4 Enhanced Service Delivery .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. 15 2.4.1 Seamless Early Warning Services and a Comprehensive Multi-hazard Approach . .. 15 2.4.2 Institutional Cooperation for Improved Flood Forecasting Service Delivery .. .. .. .. .. 16 2.4.3 Landslide Alert Information.. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. 17 2.4.4 Private Meteorological Services .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. 17 2.4.5 Cost-Recovered Aviation Weather Services.. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. 18 3. Lessons Learned, Conclusions, and the Way Forward .. .. .. .. .. .. .. .. .. . 20 Summary Report 1 2 Modernizing Japan’s Hydromet Services 1. Helping Developing Countries Reduce Disaster Risk from Natural Hazards through Modern Hydromet Services T his summary report aims to provide a services has been applied and developed through knowledge base for policy and decision numerous experiences of disastrous events, such makers that will allow governments and as the 2011 Great East Japan Earthquake, strong sponsor organizations to understand typhoon landfalls, and volcanic eruptions. Taking the fundamental operations of weather, climate, Japan’s approach as a model, this summary report and hydrological services (together constituting contributes to a growing knowledge base around “hydromet” services) and consequently target how to avoid uncoordinated investments in the effective funding, in particular to developing hydrological and meteorological sector, which in countries. It summarizes two detailed and the past have sometimes led to fragmented and comprehensive supporting reports: a background unsustainable outcomes for developing countries. paper by the Japan Meteorological Business Support Center (JMBSC) on meteorological services; and Against the above background, international a background paper by the Foundation of River & cooperation for developing technological and Basin Integrated Communications, Japan (FRICS), human capacities in NMHSs is rapidly increasing. on hydrology and water resources.1 The background International financing for improved and responsive papers and this summary report were commissioned services, particularly in adaptation to climate change, by the World Bank’s Disaster Risk Management has increased the availability of targeted funds, while (DRM) Hub, Tokyo to document the modernization international financial and technical institutions—for trajectory of Japanese meteorological and example, the World Bank and the Japan International hydrological services. Cooperation Agency (JICA)—have increased their technical capacity to deliver to developing country It is clear that disasters from natural hazards are clients. Indeed, the number of countries looking to having extensive impacts on vulnerable communities modernize their own observation, forecasting, and and the economies of many nations. Well-prepared early warning systems is on an upward trend. and resourced hydrological and meteorological services can warn governments and communities Sharing knowledge between countries and facilitating so that this disruption is minimized, and can also aid effective coordination between development in rescue and recovery efforts and in reconstruction; partners can substantially increase the prospect that daily weather information can help prevent secondary investments are sustainable and fit-for-purpose. As disasters in environments where vulnerability part of this effort, taking a historical perspective on and risk are high, and flood hazard maps and the evolution of developed National Meteorological other tools can guide rebuilding efforts. Japan’s and Hydrological Services (NMHSs) can help comprehensive multi-hazard approach covering countries embarking on their own modernization weather, climate, ocean-related, and terrestrial effort to set their pathways for investment and 1. Japan Meteorological Business Support Center (JMBSC), A Background Paper on Meteorological Services in Japan and Lessons for Developing Countries (2016). Foundation of River & Basin Integrated Communications, Japan (FRICS), A Background Paper on Hydrological Services in Japan and Lessons for Developing Countries” (2016). Each paper stands alone in its value to operational and policy clients. Summary Report 3 benchmarks of progress. Clear steps for moving 1.1 Role of the World Bank forward are particularly important given the long This summary report is part of a series of time frames for investment, and the necessary knowledge projects led by the DRM Hub, which incremental improvements in service delivery. seeks to document and apply knowledge from Japan in developing countries. The DRM Hub has In their book on weather and climate resilience for commissioned this work as a contribution to a the World Bank, Rogers and Tsirkunov describe the broader initiative—led by the specialized Hydromet importance of NMHSs and note their decline in some Team at the Global Facility for Disaster Reduction developing countries: “Over the past 15–20 years, and Recovery (GFDRR)—to provide more guidance to the situation in many NMHSs in developing and least project teams and clients on options and pathways developed countries has worsened.”2 for modernizing meteorological and hydrological services. The present study, which is a comprehensive analysis of Japan’s hydrological and meteorological services, This report, along with the background papers, uses the three-component framework developed by is expected to provide a knowledge base for the Rogers and Tsirkunov for large-scale modernization: generation of more targeted guidance and reference materials for task team leaders and their clients, • Institutional strengthening, capacity building, and to inform technical assistance to countries. The and implementation support (hereafter referred World Bank Hydromet Community of Practice will be to as “institutional strengthening”); a critical partner in this effort, particularly in light of growing scale of demand for technical and financial • Modernization of observation infrastructure services in this sector. The report is also timed to and forecasting (hereafter referred to as coincide with the launch of major programs, such “modernization of systems”); and as the Regional Framework Program to Improve Hydrometerological Services in Sub-Saharan Africa • Enhancement of the service delivery system and the Climate Risk and Early Warning Systems (hereafter referred to as “enhanced service (CREWS) initiative.3 delivery”). In addition, the Japan–World Bank Program for In addition, drawing on Japan’s experience in Mainstreaming DRM in Developing Countries, which modernizing its NMHSs, it presents lessons learned the DRM Hub Tokyo implements, has a growing over a century of changes in legal and institutional portfolio of technical assistance projects focused arrangements, advances in technology, and on the development of modern meteorological responses to major natural disasters. The eight and hydrological services. Projects in Afghanistan, lessons referenced in the report are collected and Cambodia, Ghana, Honduras, the Lao People’s further elaborated in Section 3: Lessons Learned, Democratic Republic, Myanmar, Nicaragua, and Conclusions, and the Way Forward. Further the Pacific have been launched, and projects are in recommendations on how developing countries can the pipeline for countries in Africa. These all offer undertake a modernization project are detailed in the an opportunity to apply knowledge and expertise two background papers. identified through this knowledge program, in coordination with JICA. 2 David P. Rogers and Vladimir V. Tsirkunov, Weather and Climate Resilience: Effective Preparedness through National Meteorological and Hydrological Services (Washington, DC: World Bank, 2013). 3 See GFDRR, “CREWS—Climate Risk and Early Warning Systems,” http://www.gfdrr.org/crews-climate-risk-early-warning-systems. GFDRR, Program Profile: Strengthening Climate and Disaster Resilience in Sub-Saharan Africa https://www.gfdrr.org/sites/default/files/publication/ Program_Profiles_Africa_Hydromet.pdf 4 Modernizing Japan’s Hydromet Services 1.2 Role of International Frameworks 1.3 Structure of this Summary and Agreements Report The Japanese model of hydromet services outlined Section 2 explains the key historical phases of in this summary report and the background papers is modernization of each service (as described in an excellent example of a modern service with strong the background papers), which led to the current government involvement and institutional governance integrated modern service provided for the public built up over decades, comprehensive infrastructure, good. The analysis follows the World Bank’s three- and sound and advanced service delivery. Japan’s component framework (developed by Rogers and hydromet services are also effectively engaged Tsirkunov) for large-scale modernization: Institutional in relevant global and regional structures and strengthening (Section 2.2), modernization of services, including those of the World Meteorological systems (Section 2.3), and enhanced service delivery Organization (WMO) and the Global Framework for (Section 2.4). Climate Services (GFCS). In Section 3, the paper concludes with a synthesis For hydromet services, operating within international of the key elements of the Japanese experience agreements and frameworks is extremely important understood as a model for countries undertaking because it allows them to share data and provide modernization, and discusses possible implications consistent and standardized services to their own for developing countries. country and neighbors. Hydromet hazards know no boundaries, and global connections are essential. In the global and regional context, the Japanese model and its institutional arrangements all are harmonized with the agreed international operating frameworks of WMO, the World Water Council (WWC), the International Civil Aviation Organization (ICAO), the United Nations Educational, Scientific and Cultural Organization (UNESCO) International Hydrological Programme (IHP), and the UNESCO Intergovernmental Oceanographic Commission (IOC). Especially for developing countries seeking modernization, the historical development of Japanese hydromet services can be seen as an exemplar for strengthening hydrological and meteorological services and enhancing early warning systems. 4 See the GFCS website at http://www.gfcs-climate.org/. Summary Report 5 2. The Emergence of Modern Hydromet Services in Japan 2.1 Overview It is important to recognize that the modern A major driver of modern meteorological and service that Japan now enjoys was established hydrological services in Japan has been the desire over several decades and with careful institutional for effective disaster management. But DRM is not and observational consideration on both the new in Japan. Pre-19th century, Japanese families meteorological and hydrological sides. Certain sought to protect their homes and property from extreme events, such as the devastating 1959 recurring flood and other hydrometeorological risks. Typhoon Vera and the 2011 Great East Japan Households would often monitor the sky and rivers, Earthquake and associated tsunami, also helped and predict the weather and water levels based on shape the service over time. traditional knowledge and techniques. The resulting modern services were established in a The Japan Meteorological Agency (JMA), Japan’s series of long-term steps (see Lesson 1) and include National Meteorological Service, began efforts to four key features: modernize its services in the early 1950s, when the modern Meteorological Service Act was enacted, and 1. Issuance of warnings and countermeasures the first operational weather radar and Numerical for natural hazards. The source of the Weather Prediction (NWP) model were introduced. single authoritative voice for early warning Japan’s National Hydrological Service, the Water in meteorological services, JMA issues and Disaster Management Bureau of the Ministry of warnings for severe weather, strong ground Land, Infrastructure, Transport and Tourism (WDMB/ motions by earthquakes, tsunami, ocean MLIT, previously the River Bureau of the Ministry of waves, and storm surges in collaboration with Construction), was modernized as an integral part of stakeholders (central, prefectural, and municipal flood management and water resources management. governments), the media, first responders, and Both WDMB/MLIT and JMA have evolved steadily the private sector. It also notifies the authorities since around 1950s through numerous steps in order and the public of disaster countermeasures. to respond to challenges—including devastating disasters and growing requirements—while embracing 2. Issuance of early flood warnings to assist in advances in science and technologies, including the evacuation planning. The river management information and communications technology (ICT) authorities, in cooperation with JMA, provide available at the time. early warnings of floods to the media, the public, and prefectural and municipal Identifiable meteorological, hydrological, and governments (heads of municipalities via a geophysical services in Japan originated in the 19th hotline in emergency events) in order to assist century. They have had similar development paths, with evacuation plans. albeit different legal and institutional drivers and consequential governance frameworks. 6 Modernizing Japan’s Hydromet Services 3. Support of regional and other NMHSs with recognized by sponsors or donor organizations in data and capacity development activities. JMA maximizing the impact of resource contributions. provides geostationary meteorological satellite imagery to the NMHSs in the Asia-Pacific 2.2 Institutional Strengthening region. It also carries out various capacity Japan launched its first national meteorological development activities for NMHSs in developing service in 1875, and informal hydrological services countries through the projects implemented by are even older; levee building to prevent flood WMO and JICA. disasters started hundreds of years ago. The first- ever storm warning and weather map date to 1883, 4. Institutional integration of hydrological and the first national weather forecast was issued to services and river management. Under the the public in 1884. The first tsunami warning system river management authorities, all components was established in 1941. What steps did Japan take of river management, including disaster from these beginnings to develop the world-class management, river water use, flood forecasting, systems that exist today? and conservation of the river environment, are integrated for optimized and enhanced 2.2.1 Meteorological Services hydrological services. In the 19th century, Japan’s national meteorological service began as a nationwide network of Today, hydromet services in Japan range over various meteorological observatories that relied on telegram areas, driven by public service mandates for disaster for communication. It was rapidly expanded to risk reduction as well as market forces (see Figure establish the then-modern forecast/early warning 1 from the meteorological service perspective and services. In those early days, Japan faced almost the same challenges that developing countries are facing today. The newly established Japanese government Lesson 1 was assisted by many foreign experts in its drive MODERNIZATION OF METEOROLOGICAL toward modernization. In 1885, two years after the first weather map and warning were issued, the AND HYDROLOGICAL SERVICES Tokyo Meteorological Observatory (TMO) joined the REQUIRES LONG-TERM STEP-BY-STEP International Meteorological Organization (IMO, the predecessor of WMO). EFFORTS, WHICH SHOULD BE ANCHORED TO WELL-DEFINED MEDIUM- AND LONG- The legal framework of meteorological services TERM STRATEGIES. in Japan was established in 1952 under the Meteorological Service Act. This act defined the statutory form of the roles and responsibilities of Figure 2 from the hydrological service perspective). the JMA and its partners, as well as the mechanism The roles and responsibilities of hydromet service for wider collaboration across public and private providers, including the government, the media, and spheres. It assigned JMA, as the National the private sector, are legally defined in the River Law Meteorological Service, a key role as the single and Meteorological Service Act. authoritative voice for warning services. In 1953, Japan joined WMO, and the current organizational It is important to note in Figures 1 and 2 that both structure of JMA was established; this structure still general public and user-specific services also form exists in its fundamental form today. Full legal and part of, and are codependent on, integrated services regulatory frameworks can be seen to be essential for nongovernment sectors and the private sector. in establishing modern hydromet services, as In terms of modernization, this is an important highlighted in Lesson 2 (see page 8). contribution or partnership that needs to be Summary Report 7 In 1993, in response to a rapid expansion of private and the acquisition of land to control floodwaters sector forecasting activities, and to the growing became more difficult. At that time, plans were need for specific meteorological information issued developed by river management authorities (the by JMA (such as NWP data, products, analysis, Ministry of Construction or prefectural governments) and forecasts), Japan established the institutional to construct dams and retarding basins in the frameworks of the private meteorological service upper reaches to store floodwaters. In response, a support center5 and the certified weather forecaster “Specified Multipurpose Dam Act” was enacted in system. The center supports the weather business 1957 to reflect the multi-purpose use of dams to in the private sector by distributing various data both control floods and provide safe drinking water. and products from JMA, including consulting and research. In 2002, the center was officially granted responsibility for verifying meteorological Lesson 2 instruments. LEGAL AND REGULATORY FRAMEWORKS Figure 1 illustrates the institutional landscape SHOULD CLEARLY DEFINE THE ROLES of meteorological service institutions and user communities as they operate today. AND RESPONSIBILITIES OF THE NATIONAL METEOROLOGICAL AND 2.2.2 Hydrological Services Hydrological services in Japan have evolved to keep HYDROLOGICAL SERVICE, AS WELL AS pace with demands for the management of flood and THOSE OF THE PUBLIC AND PRIVATE other hydrometeorological disaster risks. In Japan, SECTOR STAKEHOLDERS WHO PROVIDE levee building to prevent flood disasters started hundreds of years ago. Before the Edo era (1603– METEOROLOGICAL, HYDROLOGICAL, AND 1868), circle levees – designed to protect only the EARLY WARNING SERVICES. builder’s own community – were very common. Over time, however, communities located upstream and downstream, or on the right and left banks, began Consequently, to manage river basins in an integrated to have conflicts over safety issues. To solve such way, Japan needed to collect hydrological data from conflicts, flood management policy shifted instead to entire basins. Since 1938, national data on rainfall continuous levees on both sides of rivers to contain and discharge have been published annually to meet floodwaters within river courses and to discharge demand. Furthermore, design standards for levees to the sea as fast as possible. These beginnings of have increasingly shifted to probabilistic methods (as integrated river basin management aimed to provide the climate changes, construction based on historical each riparian community with the same level of records is no longer sufficient). This again requires protection against floods. The revised version of the statistical analysis of hydrological data collected River Law, enacted in 1964, required that integrated from the entire river basin, which in turn requires the river basin management underpin the management accumulation of hydrological data for a long period of all rivers in Japan (see Lesson 3, page 10). of time. This has further increased demand for hydrological services and data collection at the basin As demands for water resources increased, dams level. were constructed in the upper reaches of rivers for water supply. In parallel, as flood safety increased Hydrological services have continued to expand through improved river management, towns and despite resource pressures. Experts with practical cities expanded to river banks and flood plains, knowledge of, and skill in, river management and 5 This is the legal designation of the Japan Meteorological Business Support Center (JMBSC). 8 Modernizing Japan’s Hydromet Services Figure 1: Institutional Relationships and User Communities in Meteorological Services in Japan Summary Report 9 DRM are essential for providing these critical Lesson 3 services, and additional funding support beyond that of government was required to meet the growing DESIGN AND DEVELOPMENT OF need for them. A new agency, FRICS (Foundation of River & Basin Integrated Communications), was HYDROLOGICAL REGULATORY established in 1985 with funding from public and FRAMEWORKS IN DEVELOPING private organizations, in addition to a subsidy from COUNTRIES SHOULD BE FULLY ALIGNED government. With the establishment of FRICS, the institutional arrangement was in place to deliver high- AND WHERE POSSIBLE, FULLY INCLUDED quality hydrological information, mainly observations WITHIN INTEGRATED WATER RESOURCES by the national government. These types of arrangements—in which the public and private sector MANAGEMENT (IWRM). collaborate—are not unique to Japan, because of the linkages of river forecasting to water resources management. FRICS offers an excellent example of A key area of cooperation between providers of such arrangements. meteorological and hydrological data is on early warning services for flooding protection and Figure 2 illustrates the institutional landscape for management. This is a collaborative effort of the flood protection and other hydrological services WDMB/MLIT, JMA, and prefectural governments. for DRM (as well as broader water resource This is critical for understanding the core hydrological management). and meteorological inter-relationship in Japan and lessons learned (and being learned still). The basis for 2.2.3 Legal Framework and Warning this cooperation is enshrined in the Flood Protection Dissemination Act, as well as the Meteorological Service Act. In Japan, all the laws related to hydromet services— such as the River Law, Meteorological Service Act, Early warning systems for severe weather, tsunami, Disaster Countermeasure Basic Act, and Flood ocean waves, and storm surges were institutionally Protection Act—consistently and clearly stipulate the established under the Meteorological Service roles and responsibilities of the National Hydrological Act in 1952. JMA provides warnings to relevant Service and National Meteorological Service of Japan authorities, including the National Police Agency, (WDMB/MLIT and JMA) and key stakeholders. The the Fire and Disaster Management Agency, River Law outlines responsibilities for integrated river prefectural governments, and the Nippon Telegram basin management. The Meteorological Service Act and Telephone Corporation (NTT), and through formulates the roles and responsibilities of JMA and them to mayors of cities, towns, and villages. JMA its partners; these include providing basic national also provides warnings to the Japan Broadcasting services with an open data policy, and establishing Corporation (NHK) for immediate broadcast to the coordination and collaboration mechanisms with the public. The private mass media and authorized private sector. The Disaster Countermeasure Basic forecast service companies also play significant Act and Flood Protection Act systematically and roles in warning dissemination. These multiple holistically address DRM issues, including issuance of routes are critical for exceedingly reliable warning evacuation advisories and orders in relation to early dissemination to end users. warning messages, as well as the development of disaster management plans, designation of disaster Early warning systems were strengthened in 2013 risk areas, and disaster response and recovery (see with the introduction of a system of emergency Table 1 on page 12). warnings for catastrophic events. Under this system, JMA issues emergency warnings when there is significant likelihood of catastrophes in association 10 Modernizing Japan’s Hydromet Services Figure 2. Overview of Information Flow in Flood Protection and Water Resource Management in Cooperation between Hydrological and Meteorological Services in Japan River Management Authorities (MLIT, Prefectures) JMA Hydro. Services Met. Services Agricultural Dam/Weir W.L./Discharge Obs. Rainfall Obs. Rainfall Obs. International Other Met. Obs. Data/Information Exchange Hydro Power Dam/Weir River Discharge Inundation Analysis, NWP Models, etc. Analysis Analysis Water Supply Dam/Weir Flood Forecast Met. Forecast (Rainfall and Others) Water Level-based Rainfall-based Rainfall Water Management Flood Forecast/ Flood Forecast/ Forecast/ Warning Warning Warning (Flood time) Operation of dams/water gates and others, Flood Fighting, Sandbagging, Pref., FDMA, etc. Private Sector Emergency Drainage Pump Flood Fighting Warning and Others Vehicles (Non- governmental (Drought time) Services) Dam Discharge Municipalities Operation of dams/water Warning gates and others, Disaster Evacuation Drought Coordination, Prevention Advisory/Order Mass Media Emergency Water Actions Conveyance (Normal time: For Planning) River Improvement/Dam Flood Fighting Corps (Community Residents/Relevant Organizations Construction and others, Organization) Socio-economic Sectors (Companies etc.) Land use Guidance Note: Almost all information is delivered through the website of each organization. Colors of arrows show data/analytical information (blue), order/request (brown), and forecast/warning (red). W.L. = water level; Obs. = observation; Pref. = prefectural governments; FDMA = Fire and Disaster Management Agency. Summary Report 11 Table 1: Key Moments in the Development of a Modern Institutional and Legal Framework for Early Warning for Flood Protection and Management in Japan 1955 The Flood Protection Act and the Meteorological Service Act required that MLIT (then the Ministry of Construction) and the Japan Meteorological Agency designate rivers and issue advisories and warnings in cooperation. Required data and information were consequently exchanged smoothly. Institutional cooperation was non-negotiable, particularly due to the very high public awareness and demand for effective flood warning. As telemetry expanded from the late 1960s, and online data exchange became widely available in 1990s, the number of rivers covered rapidly increased to include small and medium-sized rivers managed by the national government and rivers managed by the prefectural governments. 1959 In 1959, Typhoon Vera hit Japan and left 5,098 people dead or missing - the biggest disaster until that point to affect 20th century Japan. The disaster led to the enactment of the Disaster Countermeasure Basic Act, which systematically addressed issues regarding development of disaster management plans, DRM, designation of disaster risk areas, issuance of evacuation advisories and orders, disaster response, and disaster restoration. It defined the roles and authority of the national and local governments, and designated public organizations and the general public, as well as financial measures. This legislation facilitated further improvement of hydrometeorological services in a more systematic way. 2001 The Flood Protection Act was revised, additionally requiring the river management authorities to designate the expected inundation area, to notify the prefectural governments with the inundation area and depth, and to inform the general public as well. 2005 The Flood Protection Act was revised, additionally requiring the river management authorities to forecast the expansion of inundation area due to flooding, and to inform the general public with the inundation area and depth. In addition, the revision obligated local governments to distribute flood hazard maps indicating expected inundation area, inundation depth, media of flood forecast communication, and others. Currently, such maps are distributed in almost all municipalities in Japan. with natural phenomena of extraordinary magnitude, computerization, and networking stage (1985–2005); such as the 2011 Great East Japan Earthquake or and (4) advanced networking stage with modern ICT the heavy rains induced by Typhoon Talas in 2011; to meet future challenges (2005–present). mayors are to immediately convey these warnings to the public in their respective municipalities. The JMA Automated Meteorological Data Acquisition System (AMeDAS), a nationwide Establishment of the Cabinet Office in Japan in 2001, observation network of more than 1,300 automatic which designs and coordinates disaster management weather stations, was established in 1974. The policy, has helped to streamline disaster risk concept of AMeDAS was quite innovative; with management activities, including early warning observation rates of 99.7–99.9%, it targeted the services. fourth modernization stage from the beginning. After several system upgrades/replacements, 2.3 Modernization of Systems the latest system collects all the data from Both meteorology and hydrology systems in representative stations every minute, and delivers Japan have steadily modernized in a step-by- the information to users within 40 seconds. In the step process. Major system (infrastructure) case of severe events, the data are disseminated improvements in meteorology occurred over four through the mass media to the public. All the quality- stages of modernization: (1) initial/primitive stage controlled observation data are archived and used to of modernization (1950–1965); (2) nationwide establish effective early warning services, as well as automation and networking development to properly monitor and predict climate change and stage (1965–1985); (3) nationwide digitization, variability. 12 Modernizing Japan’s Hydromet Services The first operational weather radar was established the cooperation of volunteers who record the depth in 1954, and by 1971, radar service areas had of precipitation stored in a container or the water been expanded to cover all of Japan. In 1982, the surface on a staff gauge. When abolished in 2002, modernization of data processing was initiated by the there were more than 600 rainfall observation digitization of radar data, and by the introduction of stations and more than 1,000 water level observation a quantitative precipitation estimation/quantitative stations recorded manually by volunteers. precipitation forecast (QPE/QPF) technique using high-quality AMeDAS data and NWP models. Doppler Aside from these manual stations, technology has weather radars were introduced in 2006–2013 with evolved over the last decades. A “tipping bucket” the aim of improving the ability of services to cope automated precipitation gauge was introduced in with strong gusts, including tornadoes, specifically Japan around the mid-1950s, alongside a telemeter through the issuance of the “alert information system to enable real-time observation. The float type for tornadoes” (from 2008) and the “nowcast for water level gauge was developed in 1962. This type tornadoes” (from 2010). Japan’s advances in satellite required a stilling well and is now largely replaced by technology are ongoing and are described in the box pressure-type recording gauges. below. In recent years, more advanced devices have been Like meteorological observations, hydrological developed that use radio waves or ultrasound to measurements have developed considerably over observe flow velocity. Other advances in hydrology- the last century—progressing from manual to fully related technology include use of CCTV (closed- automated observations of various elements such circuit television) images to observe river surface as rainfall, river water levels, and flow velocity. The flow velocity and use of satellite images for flood advances have been driven in part by users’ needs forecasting. for better observation accuracy and more user- friendliness. Historically, MLIT’s rainfall and water As these examples suggest, technologies developed level measurements were carried out daily in the in different areas have been successfully adopted case of rainfall, or twice a day for water level, with for hydrological observation. One further example is radar technology, which has been found very useful for disaster management purposes because it is capable of observing the condition of raindrops A major scientific and technological achievement for over a widespread area. The rapid progress of Japan has been the series of Japanese Geostationary information technology has also contributed to Meteorological Satellites Himawari-1 to Himawari-7, disaster management by hydrological services which have made an enormous contribution to because it allows large volumes of data to be NMHSs in the Asia-Pacific region for about 40 years. processed and transmitted at a faster rate. Advanced Himawari-8, the first third-generation geostationary ICT has enabled in-depth analysis of voluminous data, production of more user-friendly interfaces, meteorological satellite, started its operation on July and provision of information with handheld devices. 7, 2015, and is expected to significantly enhance This sharing of information and techniques across monitoring and forecasting capabilities of NMHSs in disciplines can be highly effective as long as suitable the region. The Himawari-series satellites contribute data-sharing arrangements are established, as in significantly to both hydrological and meteorological Japan. services. Quality-assured data are a critical part of modernized hydromet systems. They are essential for establishing the long-term meteorological, climatological, seismic, and hydrological databases Summary Report 13 that form the basis for effective DRM and climate Lesson 4 change adaptation strategies. An open data policy and user-friendly data dissemination systems, SOUND METEOROLOGICAL, SEISMIC, developed over time and at the request of stakeholders, are needed to ensure a broader use AND HYDROLOGICAL OBSERVATION of data and thus greater socioeconomic benefits. AND DATA MANAGEMENT SYSTEMS Lesson 4 emphasizes this important requirement for ARE A PREREQUISITE FOR ANY high-quality data to underpin all services. As part of this, the Japan case demonstrates the importance ASSOCIATED SERVICES. AN OPEN DATA of establishing systems to observe, collect, POLICY SUPPORTS BROADER USE AND and accumulate accurate and comprehensive hydromet data. Reliability and credibility of data are HIGHER VALUE OF THE DATA FOR THE fundamental to meet the needs and expectations COMMUNITY. of end users. In Japan, the focus on accurate and complete data has been a steady effort since the early stages of modernization. sectors, which access these data sets regularly to use in their daily decision making. The Japan Meteorological Business Support Center (JMBSC) and FRICS have been established In modern hydromet services, it is important to to facilitate and ensure the broader use of have a level of redundancy in systems to ensure at meteorological and hydrological data, respectively. a minimum the functioning of emergency services JMA not only delivers comprehensible meteorological (such as typhoon warnings) and some aviation information to the general public, but through services. In meteorological services by JMA, the JMBSC, also disseminates all its data, products, and redundant center is located at the JMA’s Osaka information—including the gridded data of NWP—on Regional Headquarters. It is an active (hot standby) a real-time, 24/7 basis free of charge. (As one of the center. The data collection and dissemination pioneers among NWP centers, JMA has continued active development and enhancement of a suite of NWP systems since operational numerical prediction Lesson 5 began in 1959.) A “HOT” BACKUP OF A HYDROLOGY MLIT, through FRICS, similarly disseminates AND METEOROLOGY SYSTEMS-AND- hydrological data. FRICS combines hydrological data from MLIT and local governments, controls their SERVICES HUB IS ESSENTIAL FOR quality, and translates them into comprehensible BUSINESS CONTINUITY. risk information for the general public and flood- related information used by municipalities in issuing evacuation information. FRICS, like JMBSC, also system, as well as the meteorological observation disseminates this information on a real-time, 24/7 systems (including weather radar and AMeDAS) basis free of charge. and seismic monitoring systems, are generally developed so as to ensure redundancy both in The number of users of JMBSC’s dissemination systems (hardware and communication) and in services has steadily been increasing; current geographical location (Tokyo and Osaka). This dual users include not only the public sector, private form of redundancy is extremely effective in case weather companies, and mass media, but also the of earthquake, fire, power loss, pandemic, or other manufacturing, transport, power, and construction disaster. Lesson 5 emphasizes the requirement for developing countries to have at least a 14 Modernizing Japan’s Hydromet Services geographically separated second center that can and disaster management. As discussed earlier, it also operate the most basic emergency services. recognizes the growing risks of some hazards, such as those affected by climate change. Communities are The system improvements highlighted above also demanding more services in real time and for their make clear that the modernization of Japanese particular location. New technologies such as smart- infrastructure and systems has come together phones and social media are putting additional pres- across institutions, driven by the need for timely sure on NMHSs in generating demand for information, information on severe weather, flood, earthquake, but this also is an opportunity to reach more people. and tsunami. Lesson 6 highlights this Japanese accomplishment and the need to continue the testing The importance of new technology is perhaps most of institutional arrangements. evident in service improvements for typhoons, which are the most disastrous severe weather phenomenon The service improvements arising from system in the northwestern Pacific region, including Japan. improvements are discussed in the next section. The accurate prediction of their locations and intensities has always been a vital challenge for 2.4 Enhanced Service Delivery JMA. It took around 60 years from the initiation As modern Japan has developed, meteorological of operational typhoon forecasts to meet this services have expanded to serve an ever-increasing challenge; 24-hour through 48-hour track forecasts numbers of users. Public services—weather became possible in 1989; 72-hour track forecasts forecast and water- and storm-related disaster became possible in 1997; and by 2009, five-day track countermeasures—rely on the availability of timely forecasts were in use. The comprehensive framework of early warning Lesson 6 services for multi-hazards, including the legal USER-ORIENTED, RISK-BASED, AND framework imposed by the Meteorological Service Act as discussed above, was enhanced greatly. For SEAMLESS EARLY WARNING SERVICES example, there were originally (until 1997) around 90 SHOULD BE ESTABLISHED AND service areas at the prefecture level, corresponding to the responsibility for disaster countermeasures ADVANCED IN CLOSE COOPERATION in local governments. Using risk-based quantitative WITH THE RELEVANT AUTHORITIES AND criteria for issuing warnings (underpinned by QPE/ THE PUBLIC. MAINTAINING AND TESTING QPF techniques), the warning service areas were subsequently subdivided into the municipality level to INSTITUTIONAL ARRANGEMENTS ARE enhance the effectiveness of warnings. The number KEY TO AN EFFECTIVE SERVICE. of service areas reached around 1,800 in 2010 (see Figure 3 on page 16). and accurate information. Sectors of industry—from 2.4.1 Seamless Early Warning Services shipping, aviation, and railways to agriculture and and a Comprehensive Multi-hazard fisheries—also generate increasing demand. Approach Real-time information on evolving severe weather A systematic approach to improving services has been events is issued to authorities and the public by undertaken by Japan and can be emulated in other JMA in collaboration with disaster management NMHSs. It involves a risk-based approach (see Lesson authorities of central and local governments and 6) to the identification of the major natural hazards other stakeholders. Alerts for typhoons, for example, affecting the country and engagement with stakehold- start with a five-day track forecast; the public also ers across all levels of government, the private sector, receives bulletins, advisories, and warnings (including Summary Report 15 emergency warnings) as alert levels increase. Lesson 7 Bulletins are issued to complement advisories and warnings from local meteorological offices and IT IS IMPERATIVE TO MAINTAIN A headquarters; the number of bulletins issued may reach several dozen in cases of a typhoon making STRONG COLLABORATION WITH LOCAL landfall. Japan’s NMHSs classify events in terms EMERGENCY FIRST RESPONDERS, AS of danger levels that correspond to recommended actions to be taken by municipalities and residents WELL AS WITH THE PUBLIC. THIS “LAST when an advisory, warning, or emergency warning is MILE” IS CRITICAL TO THE SUCCESS OF issued. They further encourage municipalities and EARLY WARNING SYSTEMS. the public to promptly respond to those advisories/ warnings, which may change with the evolving stages of severe weather events, in cooperation with the flood forecasting. Data collected by JMA on rainfall, relevant authorities. An essential component of early typhoons, and other meteorological factors, and data warning services is strong links to disaster first collected by MLIT on basin rainfall, river water level responders, as shown in Lesson 7. and discharge, and other hydrological factors are shared between the two organizations in real time. 2.4.2 Institutional Cooperation for Improved Flood Forecasting Service Delivery To release flood forecasts, river management As noted above, cooperation between hydrological authorities forecast river water levels and floods, and meteorological services is particularly critical for exchanging data with JMA in addition to their Figure 3. Early Warnings at the Municipality Level has Improved in the Last Decade (provided by JMA) 16 Modernizing Japan’s Hydromet Services self-collected data. River management authorities particular, it is important to recognize the vital role conduct simulations for water level forecasting using of the Internet and mobile media in disseminating real-time data and a runoff analysis model furnished warnings and other hydrometeorological and related with basin rainfall and upstream water levels as the information. Recent surveys show that the data main input. Flood forecasting reports for individual volumes and traffic for meteorological information rivers are created through mutual consultation have soared year by year for a wide range of industrial between river management authorities and Local corporate activities in Japan. Meteorological Offices (LMOs) of JMA and jointly released. In the case of inundation forecasts, which 2.4.3 Landslide Alert Information are conducted by river management authorities, MLIT, and in particular MLIT’s Sabo (Erosion multiple flood scenarios are simulated ex ante. and Sediment Control) Department, and JMA When a flood occurs, the simulation closest to Headquarters established an additional partnership reality is employed to forecast the development of with prefectural governments in 2005 to issue the inundation. These simulations ahead of time are landslide alert information. In close collaboration important because it is usually impossible to forecast with the Sabo Department, prefectural governments the effect and extent of a flood in real time (unless the have established local networks of precipitation flood is very slow developing). measurements and topographical and geological information, including hazard maps. Based on the Mayors of local governments are responsible for combined information—that is, QPE/QPF and soil- issuing evacuation advisories and orders for proper water index data from JMA, along with landslide evacuation of residents. The issuance, in the case hazard maps from prefectural governments— of flood, is based on the information of river water landslide alert information is collaboratively issued by level, flood forecast, and inundation forecast. To help LMOs and sediment control authorities. contribute to their decision, mayors hold a hotline call with directors of MLIT offices and LMOs, who 2.4.4 Private Meteorological Services manage rivers on the ground and watch severe Commercial meteorological services have expanded weather, respectively. in recent years under the national open data policy, and forecast service companies, authorized by JMA, provide specific user-oriented forecast services. As a Lesson 8 result of collaborative efforts between JMA and the USER NEEDS SHOULD DEFINE THE private sector, combined with recent rapid advances in ICT and improvements in the quality (i.e., accuracy and MODERNIZATION OF METEOROLOGICAL timeliness) of JMA data, the utilization and application AND HYDROLOGICAL SERVICES. of meteorological information by the public and industry have widely expanded in recent years. For flood forecasts to be utilized in evacuation The private sector provides a wide variety of integrated actions of every single resident, information should be services; authorized forecast service companies, received quickly without fail. An information delivery for example, offer value-added forecasting to the service for smartphone users, including information public and specific users. The background paper on of flood hazard maps, started in April 2016 as an meteorological services provides details on these option for individuals. The interface of JMA and river important complementary services. authorities with central/local governments and the mass media, and more recently with the Internet Any modernization project should recognize that the and mobile media, continues to grow. In developing private meteorology sector, as well as the media, can these services, user needs across all stakeholders play an important role for a developing country. must be taken into account (see Lesson 8). In Summary Report 17 2.4.5 Cost-Recovered Aviation Weather Services Cost-recovered aviation weather services are an important component of both modern and developing hydromet services. Delivered under the regulatory framework of the ICAO, these services are predominantly cost-recovered from the aviation industry, and many NMHSs rely on this funding to complement public weather and emergency management services. They should not be considered in isolation but rather incorporated within any modernization project. Indeed, aviation weather services rely heavily on the public weather training of meteorologists and (often) publically funded systems infrastructure. There is usually an interdependent relationship that benefits both the public and the aviation industry, which often funds additional observations and systems on an incremental basis. Quality management systems are mandatory internationally for aviation weather services as a means of quality assurance. As one of the most advanced national aviation weather service authorities, JMA issues meteorological information for both airspace and aerodromes for air traffic services units of the Civil Aviation Bureau of MLIT and airlines under the international frameworks of ICAO and WMO. Among those aviation services, providing information to the air traffic management and on the volcanic ash from volcanic eruptions is a good practice of the cooperative dialogues with the aviation community, and of comprehensive multi-hazard approach due to volcanic eruptions. 18 Modernizing Japan’s Hydromet Services Summary Report 19 3. Lessons Learned, Conclusions, and the Way Forward Given that Japan is subject to a range of contained in this document). Following this in-depth meteorological, hydrological, and geophysical hazard study of Japan’s hydromet services, similar studies of impacts, it is one of several countries that can offer other countries with advanced, modernized systems lessons about the requirements for modern hazard could offer other extremely valuable parallels and services (see Table 2 for a summary of the lessons additional lessons. Table 2: Lessons Learned from Japan’s Institutional Strengthening, Modernization of Systems, and Enhanced Service Delivery Lesson learned Description 1. Modernization of meteorological This summary report on Japanese hydromet services and hydrological services requires demonstrates that hydrological and meteorological long-term step-by-step efforts, which strategies need to take into consideration currently should be anchored to well-defined available science and technology, as well as financial medium- and long-term strategies. and human resources. Thorough strategic planning is a continuous and iterative process; special attention should be paid to opportunities to reexamine and revise these strategies immediately after major disasters, as such events usually offer valuable lessons on gaps in systems or services. Well-defined strategies should also facilitate coordination among donors if support is provided by multiple donors. 2. Legal and regulatory frameworks Effective early warning systems require good coordination should clearly define the roles and among stakeholders that have clearly defined roles and responsibilities of the NMHS, as well responsibilities, and streamlined operational procedures as those of the public and private to ensure timely delivery of actionable messages to all sector stakeholders who provide residents at risk, and to avoid multiple and contradicting meteorological, hydrological, and warnings. To promote these effective systems, national early warning services. law(s) should clearly define the NMHS as the single authoritative voice for warning services, and effective regulatory framework and standard operational procedures should be in place. 3. Design and development of IWRM, designated a Sustainable Development Goal by the hydrological regulatory frameworks United Nations, is currently being enhanced through a river in developing countries should be basin approach around the world. In Japan, hydrological fully aligned with and where possible, services have evolved as an integral part of IWRM. fully included within, Integrated Water Resources Management (IWRM). 20 Modernizing Japan’s Hydromet Services Lesson learned Description 4. Sound meteorological, seismic, Maintaining and operating robust, sustainable, quality- and hydrological observation and assured, and user-oriented observation systems is the data management systems are a key for successful meteorological and hydrological prerequisite for any associated services. They are essential for a climate change services. An open data policy adaption and DRM strategy. Observation systems supports broader use and higher should use instruments with a high degree of traceability value of the data for the community. within national, regional, and global meteorological and hydrological communities, and with adequate maintenance mechanisms for quality assurance/quality control and data archive. 5. A “hot” backup of a hydrology and In developing countries, there should be at least, a meteorology systems-and-services geographically separated “second” services center that can hub is essential for business operate the most basic emergency services. This should continuity. include redundant observations and ICT, and minimal services for “hot” rapid activation. 6. User-oriented, risk-based, and Some disasters could result from a complex combination seamless early warning services of multiple events. Thus, effective preparation and should be established and advanced management of such events requires a comprehensive in close cooperation with the multi-hazard approach through collaboration with relevant authorities and the public. multiple stakeholders, including water authorities, disaster Maintaining and testing institutional management agencies, and local governments. arrangements are key to an effective service. 7. It is imperative to maintain strong At the local, public level—that is, the final operational level collaboration with local emergency of actions for DRM (“first responders”)—it is imperative to first responders, as well as with the strengthen the interface with local governments and the public. This “last mile” is critical public in a variety of ways. This is because early actions to the success of early warning are generally not ensured just by issuing warnings and systems. associated information, nor by the management of the government authorities. This is an important lesson for emerging hydromet services. 8. User needs should define the Socioeconomic values of meteorological and hydrological modernization of meteorological and information are generated only when users understand hydrological services. and utilize information to make decisions and take actions. Moreover, it is user needs that should define the scope and types of services to provide the necessary amount of information and minimum quality requirements. Modernization of hydromet services in Japan has been largely driven by evolving user needs, be it for flood management, water use planning, navigation, transport, agriculture, energy, or early warning for hydromet hazards. The preceding sections describe the extensive Rogers and Tsirkunov.6 The framework highlights modernization accomplished by the hydromet Japan’s expertise, skill, and forward-looking services of Japan over the last century. Included strategic thinking, melded with tactical responses in this historical journey are essential lessons for to major disasters, including the 2011 Great East the reader. The developments and associated Japan Earthquake and tsunami. Many of the lessons, it should be noted, fit remarkably well lessons emphasized in this study are ones that within the modernization framework outlined by other modern NMHSs have learned and possibly 6 Rogers and Tsirkunov, Weather and Climate Resilience. Summary Report 21 responded to in similar ways. Although this study The regional and international contexts and follows Japan’s progress toward becoming a world- collaboration referred to in the earlier sections leading NMHS, it offers lessons that should be of include such asset sharing as data exchange, value to any other NMHSs, especially in developing which is indispensable for all NMHSs given that countries. meteorological and hydrological phenomena do not respect national boundaries. They also include In countries like Japan where the National use of regional and global resources and services Meteorological Service and the National Hydrological provided by global and regional centers of excellence, Service operate separately, it is important to which can promote the most efficient design and strengthen collaborative efforts between the two implementation of modernization programs. Services, including the exchange (and archive) of observation data and to ensure effective The types of asset sharing now taking place early warning services and flood (and drought) are evident in JMA’s role as both a WMO Global management. A particular challenge faced by Information System Center and a Regional developing countries is that they often have little data Specialized Meteorological Center; NMHSs in to exchange. This lack of observed data will affect all developing countries should enhance information aspects of meteorological and hydrological service and communication networks and computer delivery, and needs to be addressed as part of any resources to fully avail themselves of such products. modernization effort. Capacity building is also essential for successful and sustainable modernization. Education and As modernization efforts proceed, coordination of training opportunities, such as those offered by donors must be paramount; mechanisms such as JMA and MLIT to meteorological and hydrological those of WMO and certain NMHSs are effective services in many developing countries, should be in modernizing NMHSs in developing countries. taken advantage of, and a mechanism should be Support from international donors has historically established to systematically transfer knowledge and been offered independently, based on donors’ own expertise attained through such trainings to all other interests and priorities, and has not necessarily been NMHS staff. well coordinated with other support. Some bilateral coordination mechanisms have recently been This study shows that donors, international developed, such as a recent first hydrometeorology organizations (such as Multilateral Development development partners’ roundtable, co-hosted by the Banks, WMO, ICAO, United Nations Office for World Bank and WMO in Geneva in April 2016. Disaster Risk Reduction, and WWC), and developed countries should support and coordinate In essence, NMHSs are expected to contribute development cooperation projects. To help to disaster risk reduction activities and the developing countries achieve sustainability in the enhancement of a wide range of socioeconomic modernization of their NMHSs, partners’ efforts activities. Thus relevant policies, legal/institutional should be based on the lessons highlighted above, contexts, and design and implementation of NMHSs such as the use of well-defined medium- and themselves require a common understanding long-term strategic planning and management among stakeholders on certain key issues: the broad for sustainability; development and maintenance societal benefits offered by NMHSs at various scales of observation, monitoring, and forecast systems; (global to local), the status of and challenges faced and improvement of service delivery to user by NMHSs, and the roles the services are expected communities. to play. Going forward, a high priority should be placed on meeting the specific needs of potential Japan’s efforts to modernize its hydromet services, beneficiaries and improving their resilience against the lessons described above, and Japan’s extensive water-related and other disasters. experience in assisting developing countries are 22 Modernizing Japan’s Hydromet Services all described in the background papers focused specifically on meteorology and hydrology. These papers offer important recommendations on how to design and implement development projects on a collaborative international basis. WMO provides the foundation (regulations, coordination for networks, etc.) of global and regional meteorological services and the framework for such international cooperation under the Convention of the World Meteorological Organization. Both papers also make clear that well- planned and well-executed fact-finding studies or missions are essential prior to designing, or seeking additional financial support for, a project. This study was conducted in the context of the Japan–World Bank Program for Mainstreaming DRM in Developing Countries. The Japanese knowledge, technology, and expertise assessed through this review have already contributed—and will continue to contribute—to the modernization of NMHSs in developing countries, in particular in terms of systems, operations, and human resources development, as well as to World Bank operations. Interested parties should draw on the experience of and/or closely collaborate with the WDMB and JMA, both under the MLIT, as they seek to modernize water-related disaster management, water use, and operational weather, climate, ocean-related, and terrestrial services, especially in the Asia-Pacific region, through long-term, sustainable efforts. Summary Report 23 24 Modernizing Japan’s Hydromet Services Contact: World Bank Disaster Risk Management Hub, Tokyo Phone: +81-3-3597-1320 Email: drmhubtokyo@worldbank.org Website: http://www.worldbank.org/drmhubtokyo The World Bank Disaster Risk Management Hub, Tokyo supports developing countries to mainstream DRM in national development planning and investment programs. As part of the Global Facility for Disaster Reduction and Recovery and in coordination with the World Bank Tokyo Office, the DRM Hub provides technical assistance grants and connects Japanese and global DRM expertise and solutions with World Bank teams and government officials. Over 37 countries have benefited from the Hub’s technical assistance, knowledge, and capacity building activities. The DRM Hub was established in 2014 through the Japan-World Bank Program for Mainstreaming DRM in Developing Countries – a partnership between Japan’s Ministry of Finance and the World Bank.