Security and resilience — Emergency management — Part 1: General guidelines for the implementation of a community-based disaster early warning system

This document gives guidelines for the implementation of a community-based disaster early warning system (EWS). It describes the methods and procedures to be implemented and provides examples. This document is applicable to communities vulnerable to disasters, without taking secondary/indirect effects into consideration.

Sécurité et résilience — Gestion des urgences — Partie 1: Lignes directrices générales pour la mise en oeuvre d'un système d'alerte communautaire rapide en cas de catastrophe

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Status
Published
Publication Date
16-Nov-2020
Current Stage
6060 - International Standard published
Start Date
17-Nov-2020
Due Date
28-Sep-2020
Completion Date
17-Nov-2020
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INTERNATIONAL ISO
STANDARD 22328-1
First edition
2020-11
Security and resilience — Emergency
management —
Part 1:
General guidelines for the
implementation of a community-
based disaster early warning system
Sécurité et résilience — Gestion des urgences —
Partie 1: Lignes directrices générales pour la mise en oeuvre d'un
système d'alerte communautaire rapide en cas de catastrophe
Reference number
ISO 22328-1:2020(E)
©
ISO 2020

---------------------- Page: 1 ----------------------
ISO 22328-1:2020(E)

COPYRIGHT PROTECTED DOCUMENT
© ISO 2020
All rights reserved. Unless otherwise specified, or required in the context of its implementation, no part of this publication may
be reproduced or utilized otherwise in any form or by any means, electronic or mechanical, including photocopying, or posting
on the internet or an intranet, without prior written permission. Permission can be requested from either ISO at the address
below or ISO’s member body in the country of the requester.
ISO copyright office
CP 401 • Ch. de Blandonnet 8
CH-1214 Vernier, Geneva
Phone: +41 22 749 01 11
Email: copyright@iso.org
Website: www.iso.org
Published in Switzerland
ii © ISO 2020 – All rights reserved

---------------------- Page: 2 ----------------------
ISO 22328-1:2020(E)

Contents Page
Foreword .iv
Introduction .v
1 Scope . 1
2 Normative references . 1
3 Terms and definitions . 1
4 Community-based disaster early warning system . 2
4.1 General . 2
4.2 Risk assessment . 2
4.3 Dissemination and communication of knowledge . 3
4.4 Monitoring and warning service . 3
4.5 Response capability . 4
4.5.1 General. 4
4.5.2 Establishing a disaster preparedness team . 4
4.5.3 Determining an evacuation shelter . 4
4.5.4 Developing an evacuation map and routes . 5
4.5.5 Developing standard operating procedures. 5
4.5.6 Conducting an evacuation drill . 6
4.6 Commitment of the authority and community on the sustainability of the early
warning system . 6
Annex A (informative) Example of a community disaster preparedness team .7
Annex B (informative) Example of a layout of the evacuation map and routes .8
Annex C (informative) Example of a scheme of a community-based early warning system .9
Annex D (informative) Example of a flow of warning information and evacuation command .10
Annex E (informative) Example of an evacuation standard operating procedure.11
Bibliography .14
© ISO 2020 – All rights reserved iii

---------------------- Page: 3 ----------------------
ISO 22328-1:2020(E)

Foreword
ISO (the International Organization for Standardization) is a worldwide federation of national standards
bodies (ISO member bodies). The work of preparing International Standards is normally carried out
through ISO technical committees. Each member body interested in a subject for which a technical
committee has been established has the right to be represented on that committee. International
organizations, governmental and non-governmental, in liaison with ISO, also take part in the work.
ISO collaborates closely with the International Electrotechnical Commission (IEC) on all matters of
electrotechnical standardization.
The procedures used to develop this document and those intended for its further maintenance are
described in the ISO/IEC Directives, Part 1. In particular, the different approval criteria needed for the
different types of ISO documents should be noted. This document was drafted in accordance with the
editorial rules of the ISO/IEC Directives, Part 2 (see www .iso .org/ directives).
Attention is drawn to the possibility that some of the elements of this document may be the subject of
patent rights. ISO shall not be held responsible for identifying any or all such patent rights. Details of
any patent rights identified during the development of the document will be in the Introduction and/or
on the ISO list of patent declarations received (see www .iso .org/ patents).
Any trade name used in this document is information given for the convenience of users and does not
constitute an endorsement.
For an explanation of the voluntary nature of standards, the meaning of ISO specific terms and
expressions related to conformity assessment, as well as information about ISO’s adherence to the
World Trade Organization (WTO) principles in the Technical Barriers to Trade (TBT), see www .iso .org/
iso/ foreword .html.
This document was prepared by Technical Committee ISO/TC 292 Security and resilience.
A list of all parts in the ISO 22328 series can be found on the ISO website.
Any feedback or questions on this document should be directed to the user’s national standards body. A
complete listing of these bodies can be found at www .iso .org/ members .html.
iv © ISO 2020 – All rights reserved

---------------------- Page: 4 ----------------------
ISO 22328-1:2020(E)

Introduction
Disasters such as earthquakes, tsunamis, volcanic eruptions, high river flows (e.g. floods, low river
flows, sudden flash floods), landslides, storm surges and hurricanes as well as slow-onset events such
as drought, extreme temperatures, heat waves or soil erosion can have devastating impacts. Disasters
can happen anytime to anyone who lives in a disaster-prone area. These disasters injure and kill people
and result in tremendous economic, social and environmental losses. Disasters can be caused by natural
hazards and/or by human beings.
Disaster mitigation can be conducted by using various approaches, including the construction of
prevention and protection works, which require a high investment of cost and time. In addition,
disasters can have a varied and wide range of impact, meaning that implementing these measures
may not be effective. Therefore, effective disaster risk reduction is implemented through various
approaches, by means of improving the community’s preparedness and consequent resilience through
the implementation of an early warning system (EWS).
A community-based disaster EWS is proposed to empower individuals and communities who live in
hazard-prone areas to be more aware, to react or evacuate in a sufficient time, and to reduce losses
caused by disasters, such as injuries, loss of life, and damage to property, economy and the environment.
The implementation of a community-based disaster EWS is consistent with the Sendai Framework for
[6]
Disaster Risk Reduction of 2015–2030 , specifically target g) of the seven global targets: “Substantially
increase the availability of and access to multi-hazard early warning systems and disaster risk
information and assessments to people by 2030”. Based on the fourth priority of the framework,
the improvement of preparedness is the basis for the capability to respond effectively to a disaster.
Improvement of preparedness can be achieved by implementing an EWS, in addition to improving the
dissemination and communication of knowledge about the early warning of disasters at local, national,
regional and international levels.
[7]
According to UN-ISDR , a complete and effective EWS consists of four interrelated key elements:
a) risk knowledge;
b) monitoring and warning service;
c) dissemination and communication;
d) response capability.
All of these elements are strongly correlated to the implementation of a community-based EWS.
EWSs are incorporated not only into engineering, but also into social aspects such as demography,
economics and culture. This document encourages the active response of the community to disasters
and considers social aspects in general. Further dissemination and communication of knowledge to the
community are carried out by the authority at local and national levels.
By referring to the four key elements of a community-based EWS, this document promotes uniformity
in the development and implementation of an EWS. It will improve the preparedness of the communities
and interested parties vulnerable to disasters.
The community-based disaster EWS considers the different communication channels, legal aspects and
responsibility allocation as well as final decision-making and its communication.
This document recognizes population behaviour response planning as a key part of the preparedness.
[3] [4]
It takes into account the approach of ISO 22315:2014 and ISO 22322:2015 and provides additional
specifications for a disaster EWS.
© ISO 2020 – All rights reserved v

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INTERNATIONAL STANDARD ISO 22328-1:2020(E)
Security and resilience — Emergency management —
Part 1:
General guidelines for the implementation of a
community-based disaster early warning system
1 Scope
This document gives guidelines for the implementation of a community-based disaster early warning
system (EWS). It describes the methods and procedures to be implemented and provides examples.
This document is applicable to communities vulnerable to disasters, without taking secondary/indirect
effects into consideration.
2 Normative references
The following documents are referred to in the text in such a way that some or all of their content
constitutes requirements of this document. For dated references, only the edition cited applies. For
undated references, the latest edition of the referenced document (including any amendments) applies.
ISO 22300, Security and resilience — Vocabulary
3 Terms and definitions
For the purposes of this document, the terms and definitions given in ISO 22300 and the following apply.
ISO and IEC maintain terminological databases for use in standardization at the following addresses:
— ISO Online browsing platform: available at https:// www .iso .org/ obp
— IEC Electropedia: available at http:// www .electropedia .org/
3.1
community vulnerability
characteristics and conditions of different exposed elements at risk, such as individuals, groups or
infrastructures, that put them at risk for the destructive effects of a hazard
3.2
early warning
provision of information through local networks, allowing affected individuals to take action to avoid
or reduce risks and to prepare responses
3.3
community-based early warning system
community-based EWS
method to communicate information to the public through established networks within institutional,
political, legal and social contexts
Note 1 to entry: The warning system can consist of risk knowledge, monitoring and warning service,
dissemination and communication, and response capability to avoid, reduce risks and prepare responses against
disaster.
© ISO 2020 – All rights reserved 1

---------------------- Page: 6 ----------------------
ISO 22328-1:2020(E)

1)
[SOURCE: ISO 22300:—, 3.27, modified — “early” has been added to the term and “within institutional,
political, legal and social contexts” has been added to the definition.]
3.4
evacuation command
series of orders to evacuate people
3.5
evacuation drill
activity that practises a particular skill related to evacuation and often involves repeating the same
thing several times
EXAMPLE A drill to practise safely evacuating a neighbourhood or village from a disaster.
[SOURCE: ISO 22300:—, 3.69, modified — “disaster” has replaced “landslide” in the example.]
4 Community-based disaster early warning system
4.1 General
The community-based disaster EWS should comprise five main sub-systems:
a) risk assessment, see 4.2;
b) dissemination and communication of knowledge, see 4.3;
c) monitoring and warning service, see 4.4;
d) response capability, see 4.5;
e) commitment of the authority and community on the sustainability of the EWS, see 4.6.
4.2 Risk assessment
The disaster preparedness team should conduct a risk assessment in accordance with ISO 31000:2018,
[5]
Clause 6 , and identify vulnerabilities.
The disaster preparedness team should consider the following factors in its risk assessment:
— Technical: To help understand the physical conditions of the vulnerable area; to classify the types
and the range of hazards, their potential extremes and their dependencies; to collect information
regarding the indicators of a disaster; and to determine vulnerable and safe zones. These indicators
may include specific symptoms and conditions that indicate the potential hazards area. These
indicators may be used to determine the placement of the EWS instruments.
— Institutional: To understand whether there are established organizations currently responsible
for monitoring and mitigating in the disaster-prone areas and if respective legal frameworks are
provided.
— Socioeconomic and cultural: To collect information on community demographics, such as population,
by age, education, mobility and financial situation, the number of households, vehicles and livestock,
and cultural considerations. These factors also provide information on the community’s knowledge
concerning disasters. This information provides insight into the community’s perception of disaster
risk and disaster risk reduction means (technology, population preparedness, etc.) that can be used
to improve the successful introduction of the EWS and to gain an understanding of the community’s
vulnerabilities and complexities.
NOTE 1 Information on potential vulnerable inhabitants and infrastructure due to disasters is important to
determine the level of community vulnerability.
1) Under preparation. Stage at the time of publication: ISO/FDIS 22300:2020.
2 © ISO 2020 – All rights reserved

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ISO 22328-1:2020(E)

NOTE 2 The community’s eagerness and motivation to actively participate is relevant to design strategies for
disaster risk reduction programmes that are suitable for the local social conditions.
NOTE 3 The programmes can give knowledge and increase people’s capacity to be able to decide what needs
t
...

DRAFT INTERNATIONAL STANDARD
ISO/DIS 22328-1
ISO/TC 292 Secretariat: SIS
Voting begins on: Voting terminates on:
2019-05-10 2019-08-02
Security and resilience — Emergency management —
Community-based disaster early warning system —
Part 1:
Guidelines for implementation of a community-based
disaster early warning system
ICS: 03.100.01
THIS DOCUMENT IS A DRAFT CIRCULATED
FOR COMMENT AND APPROVAL. IT IS
THEREFORE SUBJECT TO CHANGE AND MAY
NOT BE REFERRED TO AS AN INTERNATIONAL
STANDARD UNTIL PUBLISHED AS SUCH.
IN ADDITION TO THEIR EVALUATION AS
BEING ACCEPTABLE FOR INDUSTRIAL,
This document is circulated as received from the committee secretariat.
TECHNOLOGICAL, COMMERCIAL AND
USER PURPOSES, DRAFT INTERNATIONAL
STANDARDS MAY ON OCCASION HAVE TO
BE CONSIDERED IN THE LIGHT OF THEIR
POTENTIAL TO BECOME STANDARDS TO
WHICH REFERENCE MAY BE MADE IN
Reference number
NATIONAL REGULATIONS.
ISO/DIS 22328-1:2019(E)
RECIPIENTS OF THIS DRAFT ARE INVITED
TO SUBMIT, WITH THEIR COMMENTS,
NOTIFICATION OF ANY RELEVANT PATENT
RIGHTS OF WHICH THEY ARE AWARE AND TO
©
PROVIDE SUPPORTING DOCUMENTATION. ISO 2019

---------------------- Page: 1 ----------------------
ISO/DIS 22328-1:2019(E)

COPYRIGHT PROTECTED DOCUMENT
© ISO 2019
All rights reserved. Unless otherwise specified, or required in the context of its implementation, no part of this publication may
be reproduced or utilized otherwise in any form or by any means, electronic or mechanical, including photocopying, or posting
on the internet or an intranet, without prior written permission. Permission can be requested from either ISO at the address
below or ISO’s member body in the country of the requester.
ISO copyright office
CP 401 • Ch. de Blandonnet 8
CH-1214 Vernier, Geneva
Phone: +41 22 749 01 11
Fax: +41 22 749 09 47
Email: copyright@iso.org
Website: www.iso.org
Published in Switzerland
ii © ISO 2019 – All rights reserved

---------------------- Page: 2 ----------------------
ISO/DIS 22328-1:2019(E)

Contents Page
Foreword .iv
Introduction .v
1 Scope . 1
2 Normative references . 1
3 Terms and definitions . 1
4 Disaster early warning system . 2
4.1 General . 2
4.2 Risk assessment . 2
4.3 Dissemination and communication of knowledge . 3
4.4 Monitoring and warning service . 3
4.5 Response capability . 3
4.5.1 General. 3
4.5.2 Establishment of a disaster preparedness team . 3
4.5.3 Determining evacuation shelter . 4
4.5.4 Development of an evacuation map and routes . 4
4.5.5 Development of standard operating procedures . 5
4.5.6 Conducting evacuation drill . 5
4.6 Commitment of the authority and community on the sustainability of the EWS . 5
Annex A (informative) Example of the community disaster preparedness team .6
Annex B (informative) Example of the layout of the evacuation map and routes .7
Annex C (informative) Example of the scheme of a community-based EWS .8
Annex D (informative) Example of the flow of warning information and evacuation command .9
Annex E (informative) Example of evacuation SOP .10
Bibliography .13
© ISO 2019 – All rights reserved iii

---------------------- Page: 3 ----------------------
ISO/DIS 22328-1:2019(E)

Foreword
ISO (the International Organization for Standardization) is a worldwide federation of national standards
bodies (ISO member bodies). The work of preparing International Standards is normally carried out
through ISO technical committees. Each member body interested in a subject for which a technical
committee has been established has the right to be represented on that committee. International
organizations, governmental and non-governmental, in liaison with ISO, also take part in the work.
ISO collaborates closely with the International Electrotechnical Commission (IEC) on all matters of
electrotechnical standardization.
The procedures used to develop this document and those intended for its further maintenance are
described in the ISO/IEC Directives, Part 1. In particular, the different approval criteria needed for the
different types of ISO documents should be noted. This document was drafted in accordance with the
editorial rules of the ISO/IEC Directives, Part 2 (see www .iso .org/directives).
Attention is drawn to the possibility that some of the elements of this document may be the subject of
patent rights. ISO shall not be held responsible for identifying any or all such patent rights. Details of
any patent rights identified during the development of the document will be in the Introduction and/or
on the ISO list of patent declarations received (see www .iso .org/patents).
Any trade name used in this document is information given for the convenience of users and does not
constitute an endorsement.
For an explanation of the voluntary nature of standards, the meaning of ISO specific terms and
expressions related to conformity assessment, as well as information about ISO's adherence to the
World Trade Organization (WTO) principles in the Technical Barriers to Trade (TBT), see www .iso
.org/iso/foreword .html.
This document was prepared by Technical Committee ISO/TC 292 Security and resilience.
A list of all parts in the ISO 22328-series can be found on the ISO website.
Any feedback or questions on this document should be directed to the user’s national standards body. A
complete listing of these bodies can be found at www .iso .org/members .html.
iv © ISO 2019 – All rights reserved

---------------------- Page: 4 ----------------------
ISO/DIS 22328-1:2019(E)

Introduction
Disasters such as earthquake, tsunami, volcanic eruption, flood, drought, landslide, and hurricane
events can have devastating impacts. Disasters could happen anytime to anyone who lives in a disaster
prone area. These disasters have injured and killed human lives and resulted in tremendous losses in
economics, social and environment. Disasters can be both natural and human-caused.
Disaster mitigation can be conducted by hard and soft approaches. Hard approaches include the
construction of prevention works and protection works, all of which would require a high cost and time.
Furthermore, the implementation of these measures might not be effective considering that disasters
can have a varied and wide range of impact. Therefore, effective disaster risk reduction is implemented
by not only hard approaches but also soft approaches by means of improving the community’s
preparedness through the implementation of early warning system.
The community-based disaster early warning system is proposed to empower individuals and
communities who live in hazard prone areas, to increase their awareness, to react or evacuate in
a sufficient time and to reduce losses caused by disaster such as injuries, loss of life, and damage of
property and the environment.
The implementation of a community-based disaster early warning system is consistent with the Sendai
[1]
Framework for Disaster Risk Reduction of 2015–2030 . Based on the fourth priority of the framework,
the improvement of preparedness is the basis for the capability to respond effectively to a disaster.
Improvement of preparedness can be achieved by implementing an early warning system, in addition
to the improvement of the dissemination and communication of knowledge about early warning of
disasters at local, national, regional and international levels.
[2]
According to UN-ISDR , a complete and effective early warning system consists of four interrelated
key elements:
a) risk knowledge,
b) monitoring and warning service,
c) dissemination and communication, and
d) response capability.
All of these elements are strongly correlated to the implementation of a community-based early
warning system.
Early warning systems are incorporated to, not only engineering, but also social aspects such as
demographic, economic, and culture. This document encourages active response of the community to
disasters with the consideration of social aspects in general. Further training and socialization to the
community are carried out by experts/researchers and by decision-makers at local and national levels.
By referring to the four key elements of community-based early warning systems, this document
promotes uniformity in the development and implementation of early warning systems and will
improve the preparedness of the communities and stakeholders vulnerable to disasters.
This document recognizes population behaviour response planning as a key part of the preparedness.
It takes into account the approach of ISO 22315 and provides additional specifications for disaster early
warning system.
© ISO 2019 – All rights reserved v

---------------------- Page: 5 ----------------------
DRAFT INTERNATIONAL STANDARD ISO/DIS 22328-1:2019(E)
Security and resilience — Emergency management —
Community-based disaster early warning system —
Part 1:
Guidelines for implementation of a community-based
disaster early warning system
1 Scope
This document provides guidelines for the implementation of a disaster early warning system. It
provides a definition, aims to improve understanding, and describes methods and procedures to be
implemented.
It is applicable to communities vulnerable to disasters, without taking secondary effects into
consideration.
2 Normative references
The following documents are referred to in the text in such a way that some or all of their content
constitutes requirements of this document. For dated references, only the edition cited applies. For
undated references, the latest edition of the referenced document (including any amendments) applies.
ISO 22300, Security and resilience — Vocabulary
3 Terms and definitions
For the purposes of this document, the terms and definitions given in ISO 22300 and the following apply.
ISO and IEC maintain terminological databases for use in standardization at the following addresses:
— ISO Online browsing platform: available at https: //www .iso .org/obp
— IEC Electropedia: available at http: //www .electropedia .org/
3.1
community vulnerability
characteristics and conditions of individuals, groups or infrastructures that put them at risk for the
destructive effects of a hazard
3.2
early warning
provision of information through local networks, allowing affected individuals to take action to avoid
or reduce risks and to prepare responses
3.3
community-based early warning system
method to communicate information to the public through established networks
Note 1 to entry: The warning system can consist of risk knowledge, monitoring and warning service,
dissemination and communication, and response capability to avoid, reduce risks and prepare responses against
disaster.
[SOURCE: ISO 22315:2014, 3.3, and ISO 22300, 3.43 modified — “early” added, Note added]
© ISO 2019 – All rights reserved 1

---------------------- Page: 6 ----------------------
ISO/DIS 22328-1:2019(E)

3.4
evacuation command
series of orders to evacuate people
3.5
evacuation drill
activity that practises a particular skill related to evacuation and often involves repeating the same
thing several times
EXAMPLE A drill to practice safely evacuating a neighbourhood or village from a disaster.
[SOURCE: ISO 22300:2018, 3.74, modified —“related to evacuation” added in the term, example changed]
4 Disaster early warning system
4.1 General
The community-based disaster early warning system (EWS) should comprise five main sub-systems:
a) risk assessment;
b) dissemination and communication of knowledge;
c) monitoring and warning service;
d) response capability;
e) commitment of the authority and community on the sustainability of the EWS.
4.2 Risk assessment
The risk assessment should be based on ISO 31000 and should consist of technical, institutional,
socioeconomic and cultural surveys of vulnerable communities.
ISO 31000:2018 should be adapted to meet the specific requirements including risk identification.
A technical survey for risk identification should be conducted to understand physical conditions
of vulnerable area, to classify the types and range of hazard, to collect information regarding the
indicators of a disaster, and to determine vulnerable and safe zones. These indicators may include
specific symptoms that indicate the potential hazards area. These indicators may be used to determine
the placement of the early warning system instruments.
The purpose of an institutional survey is to understand whether there are established organizations
currently responsible for monitoring and mitigating in the disaster-prone areas.
Socioeconomic and culture surveys collect information on community demographics, such as
population, by age, education and financial situation, the number of households, vehicles and
livestock, and cultural
...

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