IPA Beneficiary Disaster Risk Reduction
Needs Assessment
Republic of Croatia
This publication has been produced with the assistance of the European Union. The contents of this
publication are the sole responsibility of the UNDP and WMO and can in no way be taken to reflect the
views of the European Union.
1
Contents
INTRODUCTION...................................................................................................................................... 6
NATURAL HAZARDS AND DISASTER RISKS .................................................................................. 7
GOVERNANCE AND INSTITUTIONAL ARRANGEMENTS FOR DRR ......................................... 8
Enabling Environment......................................................................................................................................8
Institutional Framework ................................................................................................................................ 10
Civil Society and Private Sector ...................................................................................................................... 11
FUNDING AND BUDGETS ................................................................................................................... 12
RISK ASSESSMENT AND INFORMATION MANAGEMENT ........................................................ 13
EARLY WARNING SYSTEMS .............................................................................................................. 15
CAPACITY DEVELOPMENT ............................................................................................................... 16
Awareness Raising ......................................................................................................................................... 16
Public Education ............................................................................................................................................ 17
Training ......................................................................................................................................................... 17
PREVENTION AND MITIGATION ..................................................................................................... 18
PREPAREDNESS FOR DISASTER RESPONSE ............................................................................... 19
GENDER ISSUES .................................................................................................................................... 19
CLIMATE RISK MANAGEMENT ........................................................................................................ 20
REGIONAL AND INTERNATIONAL COOPERATION ................................................................... 20
SWOT ANALYSIS ................................................................................................................................... 22
Strengths ....................................................................................................................................................... 22
Weaknesses ................................................................................................................................................... 23
2
Opportunities ................................................................................................................................................ 23
Threats .......................................................................................................................................................... 24
RECOMMENDATIONS ENDORSED BY THE NATIONAL POLICY DIALOGUE ...................... 24
BIBLIOGRAPHY .................................................................................................................................... 27
ANNEX 1: TECHNICAL RECOMMENDATIONS TO STRENGTHEN DHMZ CAPACITIES
IN SUPPORT OF DRR ........................................................................................................................... 30
ANNEX 2: LIST OF INSTITUTIONS VISITED AND PERSONS MET .......................................... 33
ANNEX 3: CONCLUSIONS OF THE FIRST CONFERENCE OF THE NATIONAL
PLATFORM FOR DRR .......................................................................................................................... 36
3
List of Acronyms
ALADIN – High Resolution Numerical Weather Prediction Project
CBO – Community Based Organization
CMEP – Civil-Military Emergency Preparedness
DHMZ – Croatian Meteorological and Hydrological service
DMCSEE - Drought Management Centre for Southeastern Europe
DPPI – Disaster Preparedness and Prevention Initiative
DRR – Disaster Risk Reduction
DRR-SEE – Disaster Risk Reduction in South Eastern Europe
EADRCC - NATO Euro-Atlantic Disaster Response Coordination Centre
EC - European Commission
ECMWF - European Centre for Medium-Range Weather Forecasts
EU - European Union
EUMETNET – The Network of European Meteorological Services
EUMETSAT - European Organization for the Exploitation of Meteorological Satellites
EWS – Early Warning System
GDP – Gross Domestic Product
GIS – Geographic Information System
HFA - Hyogo Framework for Action
INSARAG USAR - International Search and Rescue Advisory Group Urban Search and Rescue
IPA - Instrument for Pre-Accession Assistance
ISRBC - International Sava River Basin Commission
IUCN - International Union for Conservation of Nature and Natural Resources
MDG – Millennium Development Goals
MSB - Swedish Civil Contingency Agency
NATO – North Atlantic Treaty Organization
NGDC - National Geophysical Data Centre
NGO – Non-Governmental Organization
NPRD – National Protection and Rescue Directorate
NRP - National Reform Programme
NSRF - National Strategic Reference Framework
RCC – Regional Cooperation Council
RC-LACE - Regional Cooperation for Limited Area Modeling
RSS – Republic Seismological Survey
SCEPC - NATO Senior Civil Emergency Planning Committee
SCF - Strategic Coherence Framework 2007–2013
SEEDRMAP - South Eastern Europe Disaster Risk Mitigation and Adaptation Programme
SEEFREC - South East Europe Fire-Fighting Regional Centre
SOP – Standard Operating Procedure
THW - German Federal Agency for Technical Relief
UN CADRI – United Nations Capacity for Disaster Reduction Initiative
UNDP – United Nations Development Programme
UNISDR - United Nations Strategy for Disaster Risk Reduction
4
UN OCHA – United Nations Office for the Coordination of Humanitarian Affairs
UNSCR – United Nations Security Council Resolution
WMO - World Meteorological Organisation
WMO RA-VI – WMO Regional Association VI (Europe)
5
Introduction
The Republic of Croatia is highly exposed and vulnerable to natural hazards, including flooding - river
flooding and flash floods, earthquakes, forest fires drought, heavy snow, strong winds and heat
waves. However, to date not enough is known concerning the ability of the government and
communities of the country to manage natural hazard-related risks. This assessment report focuses
on the ability of the government and communities of the country to manage and reduce natural
hazard-related risks and identifies and elaborates general needs with respect to strengthening
disaster risk reduction in Croatia.The report covers the five priority areas of action under the Hyogo
Framework for Action.1 It begins with an analysis of the enabling environment and institutions
involved in disaster risk reduction (DRR). Risk assessment and early warning systems are then
examined. The ensuing sections deal with capacity development and education, the integration of
DRR into development, and the state of preparedness and response mechanisms. Cross-cutting
issues covered include gender, mechanisms for dealing with climate change, and regional and
international cooperation. The report also includes an overarching SWOT (strengths, weaknesses,
opportunities and threats) analysis and results and recommendations from a national policy dialogue.
An assessment of capacities, gaps and needs of national hydrometeorological services in DRR, as well
as technical recommendations to enhance their capacities to support DRR are provided as Annex 1.
The report was produced under the auspices of the South East Europe Disaster Risk Mitigation and
Adaptation Programme (SEEDRMAP), for which UNDP, WMO, ISDR, and World Bank are collaborating
in their respective areas of comparative advantage. Within this framework, WMO and the UNDP
developed two complementary project proposals that were funded together as the “Regional
Programme on Disaster Risk Reduction in South East Europe” by the European Commission (EC)
Directorate General for Enlargement, through its Instrument for Pre-Accession Assistance (IPA). The
UNDP component of the initiative covers disaster risk reduction in general and aims to build capacity
in DRR mainstreaming and the establishment of National Platforms, to promote the harmonisation of
DRR methodologies, plans, and strategies, as well as to assess needs for the purpose of elaborating a
regional strategy for strengthening DRR. The WMO component of the project focuses on building the
national and regional capacity of the National Meteorological and Hydrological Services (NMHS) in
the provision of reliable weather, water and climate products and services such as hazard analysis to
support risk assessment and forecasts and warnings with adequate lead time to support the DRR
activities of the IPA beneficiary countries and the region as a whole. Building better cooperation
between the NMHS, which are the providers of hydrometeorological information and services and
the agencies responsible for civil protection and emergency response, as well as, with the main
economic sectors, is a primary objective.
To create this report, UNDP and WMO mobilized consultants to work jointly with national
consultants. These teams consulted with a wide range of DRR stakeholders. Detailed assessment of
the DRR policies and practices as well as the NMHS capacities, gaps and needs in the beneficiaries to
support DRR were completed and conducted to support the development of policy
1
The HFA was elaborated and signed by over 160 countries during the World Conference on Disaster Reduction
held in Kobe, Japan in January 2005. It sets the global DRR agenda through 2015
6
recommendations. Initial results were presented to national stakeholders during a National Policy
Dialogue organised in Zagreb on 7-9 June 2010 for review and discussion. During this meeting, highlevel participants endorsed the report, as well as a set of recommendations emanating from it.
These recommendations comprise the final section of the document.
Natural Hazards and Disaster Risks
Croatia is highly exposed to meteorological hazards. River flooding occurs frequently. Croatia is
located within the Danube basin and is under the influence of the Danube and Sava rivers and their
tributaries . Around 15% of the territory of Croatia territory is prone to flooding on major rivers. This
area contains 57 settlements and 87,000 residents. Between 1925 and 2000 23 destructive floods
struck in seven different river basins. Flash floods affect 85 settlements containing 160,000
residents. Between 1989 and 206 floods affected 108,929 people.
Drought periodically strikes Croatia. Long dry seasons without rain leads to severe drought, which
accompanied by high temperatures devastates crops and increase the risk for wildfires. Croatia
suffers highest damages due to drought mainly in the Mediterranean region and East Croatia. The
frequency and intensity of drought has increased since 1981. In the last 20 years severe drought hit
the country four times, resulting mainly in reduced crop yields (especially maize). Damage to
agriculture caused by drought between 1980 and 2002 was estimated at around $3.23 billion.2 In
2003 Croatia experienced the most severe drought in 50 years, with water levels in some areas
dropping to70% below normal. The most affected area was Vukovar-Srijem County. The reported
damages were around $330 million, mostly in the form of damage to crops.
The country is also prone to extreme temperature. In June 2000, a severe heat wave affected
Zagreb, Split, Osijek and Rijeka areas by killing 40 persons and injuring 200 persons.
The hazard of forest fires is high during dry periods throughout Croatian territory, particularly in the
coastal zone. In 2000 wildfires caused losses of $177.5 million and in 2003 $20 million. In 2007
around 2,700 wildfires were reported on the coast.
Disasters caused by hydrometeorological and climate-related hazards already have a significant
impact in Croatia and are affecting the country's economic standing as well as key sectors
(agriculture, transport, water management, energy, tourism, finance). Furthermore, as revealed in
the Fourth Assessment Report of the Intergovernmental Panel on Climate Change, it is expected
that, due to climate change, the frequency and severity of such hazards will increase in the future,
leading, together with changes in land-use patterns and increased human settlements in areas that
are prone to disasters, to increased risks in the coming years.
2
Ministry of Environmental Protection, Physical Planning, and Construction, 2010, Republic of Croatia Fifth
National Communication of the Republic of Croatia under the United Nation Framework Convention on the
Climate Change, p. 171. “Damage caused by drought, frost and hail – extreme weather conditions causing
damage mostly in agriculture – is estimated to EUR 3.5 billions for the period from 1980 – 2002, which
corresponds with amount of EUR 152 millions per year. Drought caused the largest damage (65%), followed by
hail, frost, rain, floods and wind/storms.”
7
As in other areas of the Balkans, seismic hazards are significant. Over 36% of Croatia’s area,
containing almost two-thirds of the total population, is likely to experience earthquakes with an
intensity of VIII-IX on the MSK scale, and the rest of the country is prone to VII intensity earthquakes.
The Biokovo Mountain earthquakes of 1962 are the most important seismic events of the last
century. The Ston-Slano earthquakes of 1996 (main shock magnitude 6) completely destroyed three
villages, and caused heavy damage in a number of southern Dalmatian cities. According to the
National Geophysical Data Center, earthquake has caused an economic loss of around $5 million in
the country during the last 33 years.
Governance and Institutional Arrangements for DRR
Enabling Environment
The core legal act pertaining to DRR in Croatia is the Law on Protection and Rescue (adopted in 2004
and amended in 2007 and 2009), which establishes National Protection and Rescue Directorate,
defines the rights and responsibilities of government and civil society, and specifies disaster needs
assessment and response actions. Other relevant laws include the following:






Law on Protection from Natural Disasters (1997),
Law on Protection from Fire (2010), the Mountain Rescue Act (2006), the
Law on the Croatian Red Cross (2010)
Law on the Performance of the Hydro-meteorological Service in the Socialistic Republic of
Croatia (1978)
Law on Physical Planning (Zoning) (1994)
Water Management Act (1995)
Most laws are oriented towards preparedness and response, although some structural mitigation
measures are specified (particularly for flood protection). Many laws, most notably the Law on
Protection and Rescue are presently being redrafted to incorporate EU norms. There is a need to
shift the focus of the legal and regulatory framework from preparedness and response to a
comprehensive approach to DRR,a s well as eliminate overlaps in the mandates and competencies of
various institutions.
DRR is not systematically addressed in either overarching or sector strategies. The most relevant
strategies are the Strategic Development Framework 2006-13 and the Strategy of Government
Programmes for 2010-12. The former very generally specifies strengthening of flood control
measures, as does the Water Management Strategy in greater detail.3 The Strategy of Government
Programmes for 2010-2012 foresees a wide range of response-oriented measures to improve the
protection and rescue and fire-protection systems and the development of an integrated 112
3
With regard to flood protection, the strategic goal is to reconstruct, up to 2010, the protection systems to the
same level they were in 1990, i.e. before the war and the reduction of maintenance and development funding,
and to utilise capital development investments for further development to match European standards till 2025.
The Water Management Strategy has defined planned investment cycles up to 2038.
8
emergency number.4 Additionally, the Meteorological and Hydrological Service has been tasked to
improve the quality and the amount of meteorological (climate related) and hydrological
information, raise awareness, and involve the public. The Spatial Planning Strategy makes sporadic
reference to structural measures. There is a need for comprehensive and coherent approach to DRR
in overarching and sector strategies, proceeding from a national DRR strategy.The National
Protection and Rescue Directorate is developing/updating the Rescue and Protection Plan, based
upon a recent risk assessment. In addition, several other plans and programmes related to disaster
management have been already developed and adopted:





4
Physical Plans: these exist at national and municipal level. Seismic risk is regularly
considered in spatial plans, particularly in high-risk coastal areas where the tourism industry
is centered.
National Flood Protection Plan (1997): defines criteria needed to commence with regular
and/or extraordinary flood and ice protection, sections of and constructions on water
courses which are to be protected against flooding and ice, measures needed to be
undertaken before, during and after flood protection, measure to be undertaken for ice
protection, legal and private entities responsible i.e. ice protection, communication system,
data collection and information sharing etc.
Intervention Plan during Wild and Forest Fires on the territory of the Republic of Croatia
(2001): specifies the structure, roles, and responsibilities of relevant agencies, coordination
and management systems, capacity building of the Plan’s implementers, public information
procedures, and the financial support for implementation;
Activity Program for the Implementation of the Special Fire Protection Measures in Republic
of Croatia in 2010 (2009): defines the roles and responsibilities of national administration
entities, public companies, regional and self-government units, citizens’ associations and
others involved in the implementation of the fire protection measures;
Programme for Equipping and Technical Development of the National Protection and Rescue
Directorate until 2009 (2006): envisages the development direction of the rescue and
The protection and rescue and fire-protection systems are to be strengthened through the following:
 establishment of a cohesive monitoring system for the implementation of protection and rescue
activities
 participation in the management and coordination of action to extinguish forest fires in South Eastern
Europe
 establishment of a system of standard procedures for addressing catastrophes and big disasters
including the involvement of citizens
 establishment and integration of the 112 system for coordination of operational forces during
catastrophes and big disasters
 testing of the protection and rescue system
 development of the fire-protection system
 transportation of the affected and wounded persons and organs for transplantation
 participation in search and rescue in inaccessible mountainous areas and at sea
 participation in protection and rescue during earthquakes, floods and man-made disasters
 development and enhancement of the existing preparedness system for nuclear accidents
 enhancement of the escort system for radioactive materials.
9
protection system in the Republic of Croatia, especially regarding priority areas of the
system at the state level.
Further information on the DRR legal and institutional framework and the role of DHMZ in this
framework are provided in Appendix I.
Institutional Framework
The Law on Protection and Rescue charges the National Protection and Rescue Directorate (NPRD)
with preparing plans and managing operational forces, as well as coordinating the activities of all
participants in the protection and rescue system. NPRD’s mandate includes conducting risk and
vulnerability assessment, drafting and executing measures aimed at preventing crises and accidents,
and ensuring effective emergency management in case of major disasters. NPRD has sections for
Civil Protection, Fire Fighting, 112 System, and the Protection and Rescue School. County Protection
and Rescue Offices in Zagreb, Rijeka, Osijek and Split contain Protection and Rescue Departments,
while those on the coast (Zadar, Sibenik, Split and Dubrovnik) also have State Intervention Units.
NPRD’s capacities are understandably in the areas related to its mandate, e.g. these are heavily
weighted towards preparedness and response. NPRD is is the beginning phases of a shift toward
comprehensive DRR.
The Croatian Meteorological and Hydrological Service (DHMZ )is charged with observation and
monitoring of hydrometeorological phenomena, as well as the production and dissemination of
hydro-meteorological hazard products, such as historical data archives, real-time hazard monitoring,
forecasts , outlooks, and early warnings to relevant Ministries, emergency response services, the
general public and news media. DHMZ maintains the database of all meteorological and hydrological
events including extreme events according to WMO standards. DHMZ also provides value-added
services in support of hydro-meteorological risk assessment activities and services based on realtime monitoring of hazards. Operational data utilization and information exchange between DHMZ
and System 112 has been regulated by the Standard Operating Procedures (SOP) for the utilization
of the DHMZ weather forecasts. DHMZ operates according to the Quality Management Systems
(QMS). The DHMZ, within its own structure, has established DRR Focal Point that coordinates
activities at national, regional and international level. Although DHMZ is one of the leading
hydrometeorological services in the region, there is a need to modernize enhance its human and
technical resources capacities in the areas of operational monitoring, mapping of hydrological and
meteorological hazards, forecasting and early warning, .The Croatian Seismology Survey is part of
the Geophysical Institute of the Faculty of Science and Mathematics of Zagreb University. It
maintains and deploys the network of seismographs and strong-motion instruments, compiles the
earthquake catalogue, and analyzes and exchanges seismological data. It is responsible for
collection, analysis and archiving of all kinds of seismological data. It also undertakes general
research, studies earthquake statistics, analyzes surface-wave dispersion, and develops numerical
algorithms for the earth-quake location.
10
The Croatian Platform for DRR in 2009 was as a permanent forum for the exchange and provision of
opinions, proposals and achievements contributing to DRR in all areas of development.5 The
Government of the Republic of Croatia has decided to hold an annual conference of the National
Platform (in September) under the chairmanship of the Croatian Government’s representatives.
Currently the chairperson of the National Platform is the vice prime minister, Ms Djurdja Adlesic.
The National Platform includes members from all ministries and other state administration bodies as
well as representatives of the Croatian Academy of Sciences and Arts, large economic entities, public
companies, non-governmental organizations that deal with protection and rescue, especially the
Croatian Red Cross, Croatian Mountain Rescue Service, Croatian Fire-fighting Organization and
representatives of religious communities registered in the Republic of Croatia. The National Rescue
and Protection Directorate is the key entity within the platform for coordination, organization and
management of DRR. There is a need to establish the Croatian National Platform for DRR as a legal
entity and to integrate its mandate and competencies into the legal and regulatory framework as the
basis for further capacity development. Media should e represented.
In addition to the NPRD and the Croatian National Platform for DRR, the Rescue and Protection
Headquarters of the Republic of Croatia is established as an expert, operational and coordination
entity/body responsible for the preparation of activities to be implemented during disasters and
particularly during the emergency relief phase. Implementation is undertaken by the NPRD. The
Chairmen and the Deputy Chairmen of the Rescue and Protection Headquarters of the Republic of
Croatia are from the NPRD, while the other members are from NPRD, Ministry of Defence, Ministry
of Environmental Protection, Spatial Planning and Construction, Ministry of Economy, Labour and
Entrepreneurship, Ministry of Regional Development, Forestry and Water Management, Ministry of
Culture, Ministry of Interior, Ministry of Tourism, Ministry of Finance, Ministry of Foreign Affairs and
European Integration, Ministry of Health and Social Welfare, Ministry of Sea, Transport and
Infrastructure, State Office for Radiation Protection, State Office for Nuclear Safety, State Geodetic
Administration, Metrological and Hydrological Service, Croatian Red Cross, Seismological Service,
Croatian Waters, Croatian Fire-fighting Organization, Croatian Association of Technological Culture,
Croatian Mountain Rescue Service and Croatian Institute for Toxicology.
The Ministry of Environmental Protection, Physical Planning and Construction manages the Spatial
Planning Council of Croatia. It is responsible for Council proposing and preparing the criteria for the
preparation of physical plans, as well as monitoring their execution. The Institute for Physical
Planning develops and monitors the implementation of the Physical Planning Strategy and
Programme. However, the main focus of these entities in spatial planning is environmental
protection, and it is likely that their capacity to integrate disaster risk reduction in any areas besides
flood protection is weak.
Civil Society and Private Sector
Close cooperation has been established at all levels between state administration bodies, NGOs, and
public and private companies participating in disaster management. The Croatian Red Cross,
5
The conclusions of the first Croatian National Platform Conference are presented in Annex 2.
11
Croatian Mountain Rescue Service, Croatian Fire-fighting Organization, Croatian Academy of
Sciences and Arts and Croatian Caritas are members of the Croatia National Platform Committee.
In addition, the Croatian Red Cross, Croatian Fire-fighting Organization and Croatian Mountain
Rescue Service are also active members of the rescue and protection system and the Rescue and
Protection Headquarters of the Republic of Croatia, and as such, they have their roles identified in
protection and rescue plans (disaster preparedness plans). In addition, all three organizations are
well known for their capacity to engage a substantial number of volunteers.
The Croatian Government recognizes the auxiliary role of the Croatian Red Cross to the public
authorities in the humanitarian field. With its 130 local branches, 30,000 active members and 10,000
volunteers the Croatian Red Cross provides strong support, especially at the local level. The Croatian
Parliament adopted the Croatian Red Cross Law on October 12, 2001. According to the Article 1 of
the Law, the Croatian Red Cross “enjoys the special protection and care of the Republic of Croatia”.
The Law defines the core aims, public duties, and tasks of the Croatian Red Cross: alleviation of
human suffering, especially suffering caused by large-scale natural, ecological and other disasters
that result in mass afflictions, epidemics, and armed conflicts; it contributes to the promotion and
protection of health, sickness prevention, improvement of civil health and ecological culture.
NPRD Directorate has taken care of the protection and rescue system through its local branches and
has been stressing the need for active involvement of local self-government bodies. In the
transitional period, financial assistance from the national level will be provided to the local
capacities for disaster response – a limited budget has obstructed desired development and the
necessary preparedness levels.
Private sector involvement in the DRR system to date is limited to communications companies,
which contribute to the warning and disaster response system. The energy sector is partially
privatized, and these companies are leaders in critical infrastructure protection. DRR offers greater
scope for involvement, more opportunities to leverage core private sector competencies, and a
more sustainable paradigm for engagement than traditional response and relief.
Funding and Budgets
At the national level funding for disaster management and DRR is a combination of a budget
allocations for the National Protection and Rescue Directorate, other respective Governmental
entities (HMS, RSS, Croatian Waters, Croatian Forests) and funds allocated for the implementation of
specific disaster protection plans (like the National Flood Protection Plan, Intervention Plan during
Wild and Forest Fires on the territory of the Republic of Croatia and Activity Program for the
Implementation of the Special Fire Protection Measures in Republic of Croatia in 2010). However,
there is no specific allocation for DRR per se in the national budget.
Insufficient funds have been allocated for disaster management at local level. Neither fixed
percentages nor allocation amounts have been defined. Local DRR activities have been supported
mainly from national entities (especially NPRD). Thus, local governments do not have adequate
resources to fulfill their legal mandate regarding DRR.
12
The national disaster fund amounts to U$ 5.5 M of annual allocations. It is set aside for disaster
response and relief operations. This amount should be increased and the scope of its uses
broadened to encompass comprehensive DRR.
Risk Assessment and Information Management
NPRD is mandated with conducting risk assessment at the national level, while other ministries,
technical agencies, and municipalities are required to develop risk assessments related to their areas
of responsibility. In 2009 NPRD finalized the Croatia Risk Assessment of Natural and Technogenic
Disasters and Major Catastrophes.6 The assessment reflects the risk assessment capacities of NPRD,
which are primarily in the analysis of hazard exposure, with some emphasis on structural
vulnerability. There is a need to boost capacities in assessing socioeconomic vulnerabilities,
particularly of high-risk social groups such as women, children, and the elderly. A coherent and
integrated methodology should be developed, following the EU Risk Assessment and Mapping
Guidelines (adopted in December of 2010).7
Financial resources are not always available for risk assessment, even at the national level.
Pursuant to the 2009 assessment at the national level, counties and local governments are beginning
the process of risk assessment: 90% have contracted for this, 50% have commenced, and 15% have
completed the risk assessments. Seismic micro-zonation is under development only for the city of
Zagreb. The remaining local governments have yet to start the process.
The NPRD collects risk information, establishes data-bases and records on all events, accidents and
disasters in the country, as well as on big accidents and disasters abroad, disaggregates their
consequences and protection and rescue intervention modalities; analyses data per category, time
and geographic area, and reports on them on a monthly and yearly basis. It monitors information on
the protection and rescue situation in Croatia, collects and analyses data on hazards and disaster
impacts, and keeps the records on operational protection and rescue forces, their location,
equipment and material needs, in a single GIS database.
Other governmental entities, such as DHMZ, the Republic Seismological Survey, Croatian Forests,
and Croatian Waters, also collect, store and analyze risk information from their respective areas of
responsibility. All of them are linked to an operation and communications centre (Centre 112),
which is a hub for sharing information.
DHMZ provides value-added services in support of hydro-meteorological risk assessment activities
that include quality controlled historical databases of hydrological and meteorological measures,
statistical analyses to characterize the hazards, hazard mapping and high-risk zone analysis (heavy
6
The assessment is available at:
http://www.duzs.hr/download.aspx?f=dokumenti/Stranice/PROCJENAUGROZENOSTIREPUBLIKEHRVATSKE.pdf.
7
See:
http://ec.europa.eu/echo/civil_protection/civil/pdfdocs/prevention/COMM_PDF_SEC_2010_1626_F_staff_worki
ng_document_en.pdf.
13
precipitation, drought, snow, ice, hail, storm, forest fire), and technical advice (in support of
emergency plans, emergency response planning, provision of data and expertise to support hydrometeorological risk assessment for development projects. Croatian Waters is fully involved in floods
hazard mapping and risk assessment as requested by the EU “Directive on the assessment and
management of floods risks”.
No systematic method exists yet for collecting disaster data. Each institution has a database, but
data is dispersed among different institutions. A central database does not exist to collect and
integrate this information. The process of linking separate databases into a single database and
their transfer to GIS is time-consuming and requires financial means and appropriate information
technology equipment and well-trained personnel. This system is presently under development and
may take the form of a National Disaster Observatory.
DHMZ is responsible for operation of the national meteorological and air quality observation and
monitoring networks. The meteorological monitoring network consists of 40 manned weather
stations (8 observations per day) and 30 automated weather stations (hourly data or more), 2
weather radars, 112 climate stations (3 observations per day), 337 rainfall stations (2 observations
per day), 10 marine weather stations and 80 hydrological discharge stations. The forecasting of
hazards is based on international and national observations collected and analysed by DHMZ and
use of numerical weather predictions produced by ECMWF and DHMZ.
Croatian Waters, in accordance with the National Flood Protection Plan, has installed some
automatic water gauges within the flood monitoring system, thus allowing the EWS to receive water
level data in real time. Systematic water flow and water level prediction has been undertaken by
the Croatian Waters at 5 distinctive locations/points. Flood monitoring systems have also been
established with Slovenia and Hungary. The water level estimations are available 24-48 hours in
advance. There are two different warning levels used for flood protection: regular and emergency.
Regular, i.e. emergency flood defense is announced when the water level reaches the level
determined by a flood defense plan and when further rising of the water level may be expected. The
River Section Director for Flood Protection has the authority to declare the beginning and the end of
the both regular and emergency protection. Croatian Waters also has an agreement with DHMZ
which produces quality controlled national and international hydrological data in near real time in
agreed format. However, currently hydrological numerical models are not in use and no hydrological
forecasts are produced.
The Croatian Seismological Survey operates the seismological observation network. It consists of
electromagnetic seismographs (Sprengnether, SKM-3, Vegik) obtained in the early 1970s, a strongmotion network, 16-bit digital instruments installed beginning in the late 1980s, and seven
broadband seismometers with 24-bit digitizers, which were obtained in 1999. It is part of the
observation network for the European-Mediterranean Seismological centre.8
In addition to these networks, the following observation capacities are present:
8
See: http://www.emsc-csem.org/
14


State Radiation Protection Service: monitors radiation level in the atmosphere
State Service for Public Health: monitors the health situation related to infections and
epidemics, etc.
Early Warning Systems
Preparedness levels are defined by protection and rescue plans both nationally and locally. They are
interlinked with the EWS – HMS for weather related occurrences.
DHMZ is responsible for operation of the national meteorological and air quality observation and
monitoring networks. The meteorological monitoring network consists of 40 manned weather
stations (8 observations per day) and 30 automated weather stations (hourly data or more), 2
weather radars, 112 climate stations (3 observations per day), 337 rainfall stations (2 observations
per day), 10 marine weather stations and 80 hydrological discharge stations. The forecasting of
hazards is based on international and national observations collected and analysed by DHMZ and
use of numerical weather predictions produced by ECMWF and DHMZ.
The Croatian Seismological Survey operates the seismological observation network. It consists of
electromagnetic seismographs (Sprengnether, SKM-3, Vegik) obtained in the early 1970s, a strongmotion network, 16-bit digital instruments installed beginning in the late 1980s, and seven
broadband seismometers with 24-bit digitizers, which were obtained in 1999. It is part of the
observation network for the European-Mediterranean Seismological centre.9
In addition to these networks, the following observation capacities are present:
 State Radiation Protection Service: monitors radiation level in the atmosphere
 State Service for Public Health: monitors the health situation related to infections and
epidemics, etc.
 Croatian Waters: in accordance with the National Flood Protection Plan, has installed some
automatic water gauges within the flood monitoring system, thus allowing the EWS to
receive water level data in real time. Systematic water flow and water level prediction has
been undertaken by the Croatian Waters at 5 distinctive locations/points.
Flood monitoring systems have also been established with Slovenia and Hungary. The water level
estimations are available 24-48 hours in advance. There are two different warning levels used for
flood protection: regular and emergency. Regular, i.e. emergency flood defense is announced when
the water level reaches the level determined by a flood defense plan and when further rising of the
water level may be expected. The River Section Director for Flood Protection has the authority to
declare the beginning and the end of the both regular and emergency protection.
DHMZ has the mandate to issue general science based warnings of hydrometeorological hazards
(strong winds, hail storm, thunderstorm, heavy snow, freezing rain, dense fog, storm surge, icing of
9
See: http://www.emsc-csem.org/
15
roads, heat & cold waves, drought, river flooding and marine hazards) through media, its internet
pages and EU METEOALARM, and directly to authorities.
The overall early warning system is now delivered via System 112, but complete modernization has
not been completed due to financial limitations. It is expected to become fully operational in 2011.
The System is regularly maintained and tested. DHMZ also shares some responsibilities, e.g.
concerning hydromeoteorological hazards and landslides
The System 112 is run by NPRD. It is not, as in many other countries, purely an emergency
communications system for receiving information on and responding to emergencies. It functions as
a crisis management center, collecting, analyzing and disseminating information, news and data, as
well as functioning as an operations center. The System 112 reports on all risks and hazards, and if
needed, alerts citizens, legal entities, administration bodies, rescue services, respective civil
protection forces and relevant NPRD management. Agreements signed between NPRD and DHMZ
regulate information and data exchange modalities. The system is considred reasonably effective
and efficient.
It should be noted that part of the forest fire early warning system located in the National and other
parks is the responsibility of the Ministry of Culture, Directorate for inspection of nature protection.
Back in 2003 the automatic telemetric fire-protection system was piloted. The National Programme
for the establishment of the Integral Fire-protection Monitoring System in National and other parks
for 2006-2008 has been developed, but has never been implemented to its full capacity.
Capacity Development
Awareness Raising
NPRD awareness-raising activities take the form of dissemination of information via the print media,
radio, TV, printing information brochures, and internet. NPRD has developed and posted on their
web-site several guidance notes and SOPs with an aim to inform and educate the population on such
issues as “Evacuation, temporary relocation and shelter”, “What to do in the case of a heat wave?”,
“What to in a case of an extreme weather condition?”, “What to do in a case of a thunder?”, “What
to do in a case of an earthquake?”, “What to in a case of a fire?” etc. In addition, the NPRD is in the
process of upgrading their web site by adding an education page for children, which should contain
child-friendly information and games related to disaster management, as well as information and
assistance for teachers. Other endeavors of this type are pursued by DHMZ (materials related to
DRR within the context of climate change adaptation) and Croatian Red Cross (developing, posting
on their web site and publishing brochures related to the First Aid, traffic security and marine
security).
There is a need to broaden and systematize awareness-raising activities, using other forms of media,
training events, and mitigation activities as vehicles for this. The Second Conference on the National
Platform for DRR has recommended that steps be taken to raise public and media awareness on the
early warning system and 112 system. This and other ways of disseminating information on risks
and preparedness for disasters need to be elaborated within a coherent framework.
16
Public Education
Hazards and risks are “included” in the school curricula but not to a sufficient level. To address this
need, the NPRD has developed the National Action Programme to Educate Children in Protection
and Rescue. For the last 2 years NPRD representatives have been visiting elementary schools and
providing training for school principals andteachers and informative “lectures” to the 1st and 2nd
grade pupils, thus providing out-of–curriculum DRR lectures and education for children. In addition,
taking into account that the elementary and secondary school curricula is currently under
revision/development, NPRD has partnered with the Ministry of Science, Education and Sports to
mainstream DRR into school curricula within certain subjects such as geography, history, chemistry,
biology, physics, etc.
Topics such as fire protection, civil protection and crisis management may be studied as university
majors. So far only the University of Applied Sciences Velika Gorica has included DRR as part of a
Crisis Management study programme.
DHMZ is also providing education and public outreach programmes on addressing risks posed by
hydro-meteorological hazards, including the folowing:
 Education and training targeted at DRR and emergency personnel on hazards, watches,
warning, etc.
 Educational modules and training programmes targeted at general public;
 Training of the news media; and
 Collaboration with schools and universities to develop educational programmes and
curricula for hydro-meteorological hazards.
Training
The NPRD is responsible for developing and implementing training and educational programmes
related to protection and rescue. One of the sections of NPRD is the Fire Fighting and Protection
and Rescue School, which offers response-oriented specialist courses and trains professional firemen
and protection and rescue forces (command headquarters, unit commanders, shelter managers and
civil protection commissioners). NPRD also organizes training and workshops for county and local
government (for mayors, senior management and other relevant staff), as well as for volunteer
associations (diving associations, mountain rescue services, volunteer fire departments). Training is
more through at state level (50-360 tecing hour sfor specialist units) than at the local level (50-80
hours).
Croatia extensively uses simulation exercises to validate preparedness activities and contingency
planning. Exercise “Biskupija 2010” was conducted on April 23, 2010 to demonstrate the possibilities
of regular protection and rescue forces providing assistance and rescue to populations in danger and
protecting the environment in case of a major man-made disaster. Also in April the NPRD
representatives participated inthe international rescue dog exercise in Slovenia. Republic of Croatia
has also participated in the NATO Crisis Management Exercise CMX09, this time as a full NATO
member. In January 2010 the NPRD experts developed and analyzed the evacuation exercise
“Procesor 2010” in two secondary schools in Bejlovar, with the participation of 400 students,
17
teachers and administrative personnel. The exercise objective was to validate evacuation and rescue
plans for both schools.
At the same time, the NPRD members participate on regular basis in the EU Civil Protection
Mechanism training programme and in the UN CADRI and DPPI DRR oriented workshops and
training. In addition, training and other types of educational events are attended as part of bilateral
international cooperation, for example the training for INSARAG USAR teams organized by France.
Also, disaster management related training, workshops and similar have been provided through the
established cooperation with CMEP.
DHMZ is conducting internal capacity building and technical training activities related to DRR, such
as: evaluation of the suitability of communications, workstations, and software to support DRR;
forecasting of hazards including up-to-date training of new forecasting technologies and products;
training on DRR processes and similar. In addition, DHMZ participates in exercises and drills i.e.
concerning nuclear accidents, floods, major traffic accidents etc to ensure disaster preparedness.
Pamphlets, brochures, posters and recorded materials are the methods and instructional materials
used by the HMS to provide education and public outreach programmes.
Capacities of local agencies are strongest in preparedness and response, because of this emphasis
within the training programmes. As the paradigm shifts to more comprehensive DRR, there will be a
need to expand the focus of training programmes to include capacity needs assessment, risk
assessment, comprehensive DRR planning, and disaster mitigation. Correspondingly, the range of
participants in the training should also expand to include all of the stakeholders that undertake
these functions. Dedicated funding and systematic planning will need to be secured for this effort to
succeed.
Prevention and Mitigation
Disaster impacts are accounted for piecemeal, primarily in spatial plans (mainly structural measures
to address seismic risk) and via Environmental Impact Assessments for major projects such as dams,
irrigation schemes, highways, mining, tourist, developments etc. The inclusion of DRR into
development strategies concerns mainly the water sector in relation to flood protection. There is a
need for a more comprehensive specification of disaster mitigation in the enabling environment,
specifying mechanism for addressing the full range of risk faced by Croatia, as well as elaborating a
system for monitoring its implementation. This should begin with the most vulnerable sectors of
the economy (agriculture and tourism) and municipal planning. The most obvious entry points for
this are in spatial planning and climate risk management. Simultaneously, human resources must
be strengthened in this area through training in key sectors and municipalities at both national and
local levels. DHMZ capacities in climate change analysis should be strengthened so that it could
produce large-scale climate change studies to support climate risk management. Moreover, risk
assessment must improve along the lines noted above in order to target beyond the most obvious
sectors, locales, and segments of the population. Finally, an overarching coordination mechanism is
needed. It is hoped that the National Platform can provide this.
18
Preparedness for Disaster Response
Disaster preparedness plans and contingency plans are in place at all levels. They are constantly
being reviewed and supplemented and their measures regularly practiced. County and local
governments are responsible for the development of draft protection and rescue plans (i.e. disaster
preparedness plans) for their respective administrative units. Preparedness/contingency plans are
publicly available and are posted at the county and local self-government web sites.
The National 112 Centre, with all other 112 centres at county, city of Zagreb and local- government
level, combined with NPRD regional and municipal branches present the effective and efficient
protection and rescue system. During emergencies, the National Centre 112 undertakes the role of
the Emergency Operational Centre, which is managed by the Rescue and Protection Headquarters of
the Republic of Croatia. Similar arrangements are applied at other levels as well.
The operational forces consist of the following:





protection and rescue headquarters at local, regional and state level;
services and units of the state administration which are undertaking protection and rescue
as part of their regular activities;
commanding and fire-fighting units;
commanding and civil protection units;
services and units of the legal entities which are undertaking protection and rescue as part
of their regular activities.
Equipment and material is much better at the national than the local level, where funds are often
lacking for this purpose.
There are 62 professional public fire-fighting units with 2,308 professional fire-fighters in the
Republic of Croatia. In addition, 32,084 volunteer fire fighters are members of 1,808 voluntary firefighting organizations. Within the NPRD national intervention protection and rescue units have been
established. Their headquarters are located in Dubrovnik, Sibenik, Zadar and in the air-base Divulje
near Split. Intervention units are capable of intervening along the whole coast, using fire-fighting
vehicles, helicopters and boats. It has been planned to train and equip national intervention
protection and rescue units so they become multifunctional and multi-response units capable of
reacting to all types of disasters, as well as to provide assistance abroad.
In addition, and as needed and in full cooperation with the NPRD forces, the police and army forces
participate in protection and rescue activities.
Gender Issues
The Gender Law (2003) and the National Policy for Gender Promotion 2006-10 aim at protection
from gender discrimination, as well as equal opportunities for women at all levels and sectors. The
gender ombudsman monitors the implementation of the Law, which provides a mechanism for
ensuring the full participation of all vulnerable groups in all disaster management and DRR activities.
19
However, heretofore the specific vulnerabilities of women to disasters are not well understood, and
little has been done to support specific roles for women in DRR.
Climate Risk Management
The Republic of Croatia is Party to the United Nations Framework Convention on Climate Change
and to the Kyoto Protocol. The five National Communications to the Conference of the Parties
broadly identify some of the risks associated with the likely intensification of meteorological hazards
(such as impacts upon agriculture, hydropower, and tourism) and specify some general measures
(such as introducing drought resistant crop species, further investment in flood protection, and
integrate water management to account for hydrological extremes). Nevertheless there are several
gaps, which were identified in the UNDP Human Development Report of 2008.10 First, climate
change modeling and simulation of impacts should be enhanced, and work undertaken to evaluate
the benefits and costs of various measures. Currently DHMZ does not have sufficient amount of
scientific staff, numerical modeling staff and computer power to produce independently large scale
and very detailed climate change studies.
Because of these gaps and low capacity to manage risks, national and local governments have
limited ability to formulate and implement policies and measures. Remedying these deficiencies
should take place within the framework of an approach that integrates DRR and climate change
adaptation, focusing upon the management of present-day climate risks, while building resilience to
climate change in the future.
Regional and International Cooperation
The Republic of Croatia has active multilateral cooperation with regional initiatives and organizations
such as the Disaster Preparedness and Prevention Initiative for South East Europe and Civil-Military
Planning Council for Southeast Europe and within this cooperation assistance has been obtained
primarily in the form of capacity building. Croatia also participates in the EU Civil Protection
Mechanism and the EU Civil Protection Financial Instrument. Obtaining additional EU funding is not
feasible taking into account that disaster management and DRR belong to the operational sector of
environment and the sector-specific implementation document, i.e. the Environmental Operational
Programme has not focused on disaster management and DRR.
Regional and sub-regional cooperation has been promoted through the Regional Cooperation
Council – Disaster Preparedness and Prevention Initiative, Central European Initiative and CivilMilitary Emergency Preparedness - South Eastern Europe Council. Three years ago the idea to link all
countries in the Danube watershed into one information network was launched in DPPI. The
objective was to harmonize river levels measuring data – at the moment some countries are
measuring the water levels while the others are measuring the water flow (m3 per second).
10
UNDP, 2008, Human Development Report, Croatia 2008: A Climate for Change. Climate Change and Its Impacts
on Society and Economy in Croatia .
20
Within the framework of overall regional cooperation and coordination in the South Eastern Europe
and the European Union accession process, EC DG Environment has launched the “Civil Protection
Cooperation for the candidate countries and potential candidates” Project. The overall objective of
the project is “Reducing vulnerability of beneficiaries to natural and man-maid disasters at local,
national and regional levels”, while the project purpose is “To bring the candidate countries and
potential countries closer to the Community Civil protection Mechanism and contribute to the
development of their civil protection capacities”. Expected results are:






Enhanced capacities through trainings, exercises and exchange of experts
Enhanced ability to provide and receive assistance during disasters and host-nation support
Enhanced cooperation on early warning systems
Enhanced capacities on building ‘112’ centers
Enhanced knowledge of IPA and building capacities to access it
Enhanced awareness about the Community Mechanism
Together with other consortia members, the Administration of the Republic of Slovenia for Civil
Protection and Disaster Relief, the German Federal Agency for Technical Relief and the Swedish Civil
Contingency Agency, the National Protection and Rescue Directorate has been shortlisted for all
three project lots: capacity-raising through training and exchange of experts, capacity-raising
through exercises and facilitating enhanced cooperation through workshops on specific subjects.
This service contract is expected to be awarded soon.
In addition, and also contributing to the regional cooperation and coordination in disaster
preparedness, the Regional Sustainable Development and Civil Protection in Bosnia and
Herzegovina, Croatia and Montenegro (The Golden Triangle) Project has been developed. The
primary objective of the project is to “Establish the first Joint Fire Fighting Centre (JFFC) as part of
the SEEFREC, with the aim to demonstrate the mechanisms for coordination of fire-fighting related
activities of the RCC members from South East Europe, set up a joint operational structure to
address this critically important area in line with the Hyogo Framework, and address and diminish
barriers to development in the three-nation cross-border region”. The secondary objective is “To
facilitate sustainable economic development through an area-based development approach in the
three-nation cross-border region that would catalyze regional economic cooperation and trade,
environmental protection, and increased participation of communities and businesses in risk
reduction to forest fires”. The funding has yet to be secured for the implementation of this project.
In addition to the multilateral cooperation, NPRD has established bilateral cooperation with
Hungary, Slovenia, Bosnia and Herzegovina, Slovak Republic, Austria, Poland, France and
Montenegro. Many of these concern data sharing and early warning functions.
As part of international cooperation Croatia is actively collaborating with UNISDR, UNDP, UN OCHA,
Council of Europe, NATO Senior Civil Emergency Planning Committee (SCEPC) and NATO EuroAtlantic Disaster Response Coordination Centre (EADRCC), and EU Civil Protection Mechanism and
EU Civil Protection Financial Instrument.
21
Regarding the hydrometeorological sector, development of risk assessment, multi-hazard early
warning systems, and other capacities to support disaster risk management and reduction could
significantly benefit from regional coordination and cooperation, leveraging expertise, capacities,
resources and information across the region among SEE countries and with various regional centers
in Europe. DHMZ is already a member of the European Meteorological Infrastructrure, including the
European Center for Medium-Range Weather Forecasts (ECMWF), the European Organization for
the Exploitation of Meteorological Satellites (EUMETSAT), and the Network of European
Meteorological Services (EUMETNET). DMHZ also participates in the ALADIN consortium for
numeraical weather modeling. , DRR-SEE and RC LACE and cooperates with UNDP, WMO RA-VI,
ALADIN and DMCSEE.In the sub-region, DHMZ is also contributing to steering activities of the
Drought Management Centre for Southeastern Europe (DMCSEE) in Ljubljana (Slovenia) and is
building up resources and potentials for the establishment of the Sub-regional (WIS-DCPC) Marine
Meteorological Centre (Croatia).
World Bank has made a loan of $48 million for the implementation of the Disaster Risk Mitigation
and Adaptation Project, which targets disaster preparedness and emergency response and weather
forecasting. However, it has been put (temporarily) on hold, owing to the global economic crisis.
SWOT Analysis
Based upon the forgoing analysis, several strengths, weaknesses, opportunities and threats are apparent
for DRR in Croatia. These are presented below.
Strengths










There are well established institutions for protection and rescue established at national and
local levels
There is a legal framework in place governing protection and rescue actions (preparedness
and response)
There is a national disaster preparedness plans and contingency plans at all levels
Government of Croatia has created a strong coordinating mechanism for protection and
rescue
The National Natural and Man-made Catastrophes and Major Disasters Vulnerability
Assessment provide the foundation for a strong DRR database
There is an active early warning system and a developing 112 system to support early
warning development
The Croatia National Platform for DRR is in place to consider issues related to the
development of DRR
There are established capacity development activities for protection and rescue coordinated
from the centre
Croatia is strongly involved with a wide range of regional and international partnerships and
collaboration and bi-lateral partnerships with neighbouring countries.
The national Hydro-meteorological Service in Croatia is a leading agency in the region;
similarly the Republic Seismological Survey is a highly respected institution
22

Croatia has developed specific and important experience in some key areas such as
addressing forest fires
Weaknesses












There is effectively no DRR programme active in Croatia and with DRR theoretically being
the responsibility of the National Protection and Rescue Directorate it is difficult to see how
it can obtain strong profile
Disaster management legislation and strategy is spread over a wide range of agencies and
ministries with no real harmonisation
DRR is not mainstreamed into development policies and programmes and there is no
existing mechanism to enable this to happen
The Croatia National Platform for DRR has no formal status and is largely a forum for
discussion
DRR is currently not a part of any education curricula in Croatia
There is a lack of financial resources for DRR, particularly at local level
While structures exist at local government level at least for protection and rescue, there is
very little focus on community capacities
Mechanisms for early warning are very complex and confused with many agencies and
structures involved
The Hydro-meteorological Service in Croatia is not actively involved in supporting planning
and programming for disaster management
The technical and human capacity is not at adequate level
There is no mainstreaming of gender issues into disaster management or DRR
There is no focus on climate change adaptation and the relationship between climate
change adaptation and DRR.
Opportunities







The well established institutions for protection and rescue, with their tacit responsibility for
DRR, could provide a significant platform for the promotion of DRR
The strong development planning process in Croatia could create an opportunity for
effective mainstreaming of DRR across the sectors
The scientific potential and regional leadership of the Hydro-meteorological Service in
Croatia could create the potential for innovations in the use of hydromet deliverables for
DRR
The establishment of a 112 centre creates an opportunity to develop strong links with
different groups and the general public
The presence of the Croatia National Platform for DRR offers the potential for lifting the
profile of DRR activity
The National Natural and Man-Made Catastrophes and Major Disasters Vulnerability
Assessment creates a starting point for future risk assessment
Croatia’s disaster profile is not extensive and therefore it is possible to perceive an effective
DRR programme in the country, particularly if it embraces climate change considerations
23
Threats





A major disaster, if one occurs, will lead to a major focus on response and preparedness to
the detriment of DRR
The Government, supported by external agencies and donors, may not see the point of
focusing heavily on DRR, particularly in the absence of any major disaster occurring
The economic downturn may considerably reduce resources for even protection and rescue
Difficulties to get academic scientists and IT experts to the DHMZ
There is a lack of political will to invest in protection and rescue and therefore, tacitly, in DRR
Recommendations Endorsed By the National Policy Dialogue
Based on the analysis of the foregoing Needs Assessment report, the following recommendations
have been suggested for discussion and endorsement in the course of the DRR National Policy
Dialogue in Croatia (held in June of 2010). The recommendations are aligned with the Hyogo
Framework for Action’s five priorities for action, as follows:
1. Ensure that disaster risk reduction is a national and local priority with a strong institutional
basis for implementation
To encourage all existing disaster risk reduction actors in Croatia, as defined by the existing legal
framework, to work together and invest additional efforts in recognizing and fulfilling existing
disaster risk reduction tasks and responsibilities.
To strengthen coordination, strategic planning and management of disaster risk reduction at the
national level through modifications of the existing institutional set-up by empowering, i.e.
providing authority, accountability and responsibility to the National Platform to evolve into a multistakeholder national mechanism that serves as an advocate of disaster prevention and disaster risk
reduction; provides coordination, analysis and advice on areas of priority; and undertakes strategic
DRR planning and management.
To facilitate and support establishment of mirrored/similar/same mechanisms at the county and
local government levels through strengthening and reinforcing local capacities, institutions and
governance capabilities.
2. Identify, assess and monitor disaster risks and enhance early warning
To enhance the early warning system and interoperability of the System 112 through
modernization of the continuous and real-time collection and information sharing by expanding
the hydrological, meteorological and air-quality monitoring networks, establishing integrated fireprotection system and ensuring functional horizontal and vertical links among all disaster risk
reduction actors.
24
To strengthen technical and human resources of the State Seismological Survey, and enhance the
modernization and improvement of the seismological monitoring network and data transmission
system.
To enhance technical and human resources of the Meteorological and Hydrological Service in
operational monitoring, warning, forecasting and mapping of hydrological, meteorological and
ecological risks.
To enhance investments in climate modeling and forecasting and analysis to support strategic and
sectoral planning for at-risk sectors.
3. Use knowledge, innovation and education to build a culture of safety and resilience at all levels
To further strengthen operational cooperation of the National Protection and Rescue Directorate
and the Hydrological and Meteorological Service through joint training and improvements to the
standard operating procedures across agencies linked to the different threat levels and lessons
learnt from each disaster event.
To increase the awareness of the citizens and media regarding the early warning system and the
European Emergency Number 112.
The Ministry for Science, Education and Sport is mandated to mainstream disaster risk reduction
into national educational curriculum by establishing Curriculum Revision Working Group composed
of the representatives from the Ministry for Science, Education and Sport, from the National
Protection and Rescue Directorate, Meteorological and Hydrological Service, the Republic
Seismological Survey, other respective line Ministries, the Croatian Red Cross, expert organizations
and individuals.
4. Reduce the underlying risk factors
To develop the disaster risk reduction Strategy and corresponding Implementation/Action Plan as
a first mutual step undertaken by the key disaster risk reduction actors, e.g. the National
Protection and Rescue Directorate, the Hydrological and Meteorological Service, the Republic
Seismological Survey, line Ministries and respective public enterprises, the Croatian Red Cross, civil
society and business community toward integration of disaster risk reduction into the development
policies, strategies and sectoral plans, followed with the implementation of the said Strategy.
To develop national capacities for climate services to support medium and long-term sectoral
planning through strong collaboration and cooperation across line ministries and with the
Meteorological and Hydrological Service, and through enhanced regional cooperation with other
South Eastern European and EU countries.
25
5. Strengthen disaster preparedness for effective response at all levels
To proceed with the establishment, in Croatia, of the Centre of Excellence for a training of fire
fighters and coordination of response to forest fires in the countries of South Eastern Europe,
including the harmonization of the development of fire-fighting brigades in the countries of the
region through standardization of equipment and procedures, thus promoting regional cooperation
and collaboration in disaster risk reduction in South Eastern Europe.
26
Bibliography
South Eastern Europe, Disaster Risk Mitigation and Adaptation Programme, 2008
Meteorological, Hydrological and Climate Services to Support Disaster Risk Reduction and Early
Warning Systems in the Republic of Croatia, 2011
Risk Assessment for South Eastern Europe Desk Study Review, 2008
Strengthening the Hydro-meteorological Services in South Eastern Europe, 2008
Mitigating the Adverse Financial Effects of Natural Hazards on the Economies of South Eastern
Europe, 2008
The Structure, Role and Mandate of Civil Protection in Disaster Risk Reduction for South Eastern
Europe, 2008
Implementing the Hyogo Framework for Action in Europe: Advances and Challenges, 2009
UNISDR DRR Terminology, 2009
Words Into Action: A Guide for Implementing the Hyogo Framework
Gender Perspective: Working Together for DRR, Good Practices and Lessons Learned, UNISDR, 2007
Making Disaster Risk Reduction Gender-Sensitive, Policy and Practical Guidelines, UNISDR, UNDP and
IUCN, 2009
World Bank economic indicators (http://data.worldbank.org/)
Regional Programme on Disaster Risk Reduction in South East Europe; WMO-UNDP Joint Activities;
PROJECT DESCRIPTION; Activity 1: Building Capacity in Disaster Risk Reduction through Regional
Cooperation and Collaboration in South East Europe (SEE)
Regional Programme on Disaster Risk Reduction in South East Europe; WMO-UNDP Joint Activities;
PROJECT DESCRIPTION; Activity 2: Regional Cooperation in South Eastern Europe for meteorological,
hydrological and climate data management and exchange to support Disaster Risk Reduction (WMO)
Council Decision establishing a Community Civil Protection Mechanism (recast), November 8, 2007
A Community approach on the prevention of natural and man-made disaster, February 23, 2009
COM(2009) 82 final
27
Council Conclusions on a Community framework on disaster prevention within the EU, November
30, 2009
National progress report on the implementation of the Hyogo Framework for Action, 2008
IPA Environmental Operational Programme in Croatia 2007-2009, 2007HR16IPO003
Strategic Development Framework 2006-2013, Central Office for Development Strategy and
Coordination of EU Funds, 2006
Strategy Coherence Framework 2007 – 2013, IPA
Strategy of Government Programmes 2010 – 2012, 2009
Water Management Strategy, Croatian Waters, 2008
National Security Strategy, 2002/2004
Protection and Rescue Law 2004/2007/2009
Environmental Protection Law 2007
Water Law 1995/2005
Spatial Planning and Construction Law 2007/2009
Fire Protection Law 1993/2005/2009
Fire-fighting Law 1999/2001/2002/2003/2004/2004
Law on Natural Disaster Protection 1997
Croatian Red Cross Law 2001
Law on the Performance of the Hydro-meteorological Service 1978
Gender Law 2003
Executive Order on Internal Structure of National Protections and Rescue Directorate, 2008
Decision to organize the First Conference of the Croatia National Platform for DRR, 2009
Decision to Appoint the Rescue and Protection Headquarters of the Republic of Croatia, 2009
28
Natural and Man-made Catastrophes and Big Disasters Vulnerability Assessment, National
Protection and Rescue Directorate, 2009
National Flood Protection Plan (1997, 2003)
Intervention Plan during Wild and Forest Fires on the territory of the Republic of Croatia (2001)
Long-term Development Plan of the Army Forces of the Republic of Croatia 2006 - 2015
Activity Program for the Implementation of the Special Fire Protection Measures in Republic of
Croatia in 2010 (2009)
Program for Equipping and Technical-technological Development of the National Protection and
Rescue Directorate until 2009 (2006)
National Programme for the establishment of the integral fire–protection and monitoring system in
national parks and parks of nature in the Republic of Croatia 2006-2008
Environmental Operational Programme
National Policy for Gender Promotion 2006-2010
Ordinance on the Methodology for the Development of the Risk Assessments and the Rescue and
Protection Plans
Ordinance on Standard Operating Procedures of the Integrated Operational-Communicational
Centre (Centre 112)
Standard Operating Procedures for the utilization of the Hydrological and Meteorological Service
weather forecasts
Standard Operating Procedure of the Centre 112
Conclusions of the First Conference of the Croatian Platform for DRR, 2009
First Conference of the Croatian Platform for DRR presentations – abstracts
UNDP Human Development Report for Croatia analyses the links between the economy, human
development
and
climate
change
Zagreb, Croatia htpp://content.undp.org/go/ newsroom/2009/february
29
in
Croatia
Annex 1: Technical Recommendations to Strengthen DHMZ Capacities
in Support of DRR
Among the SEE countries the technical capacity of DHMZ is at a high level, but compared to
advanced EUMETNET NHMSs its observation networks and premises are obsolete, human resources
are understaffed and financial resources are very low. It is necessary to modernize the DHMZ and
ensure adequate human, technical and financial resources in order to sustain their role in different
phases of the DRR: operational monitoring, mapping of hydrological and meteorological hazards,
forecasting and warning per the following technical recommendations:
Legal framework and institutional arrangements related to the role of NMHS in DRR
1. There are needs to promote awareness of the great potential which the DHMZ has to
contribute to the DRR and the social and economic development in the countries;
2. There are needs to better integrate the DHMZ into the DRR planning process;
3. There is a need to increase the number of type I warnings by enhancing the mandate of
DHMZ.
Operational relationships with other agencies
4. There is need to improve the cooperation at the national level between DHMZ and NPRD
and relevant institutions and end-users to further enhance national system for preventing
and mitigating the impact of extreme weather and climate events
Monitoring and observations networks and data exchange
5. There are needs to modernize the hydrological and meteorological early warning systems in terms of real-time data collection and dissemination of information;
6. There are urgent needs to further automatize the hydrological, meteorological and marine
observation systems and to increase the number of automatic stations in cooperation with
DRR management and industry;
7. There is a need to further strengthen the observation network by developing remote
sensing systems, including 4-5 dual-polarization weather radars;
Forecasting
8. There is a need to further develop capacities to support DRR through nowcasting;
9. There is a need to improve the capacities in Numerical Weather Prediction (NWP) modelling
to produce operationally mesoscale products and to implement data assimilation;
10. There are needs to promote use of very high resolution NWP models, which are essential for
hydrological modelling in complex terrain;
11. There are urgent needs to implement hydrological forecasts;
12. There is a need to improve capacities to use automatic analysing, editing and dissemination
tools;
13. There is a need to invest in proper back up capacity for NWP modelling.
30
Hydrometeorological data management systems
14. There is an urgent need to initiate a data rescue programme to digitise and quality ensure
the historical data
15. There is a need to develop the technical capacities for data management and to adopt
automatic quality control systems of hydrometeorological data
Hazard analysis and mapping to support risk assessment
16. There is a need to develop hazard analysis and mapping (through GIS tools) based on
historical data and climate change projections to support risk assessment
17. There is a need to strengthen the systematic collection of drought/floods impact
information on a state level with standardized procedure and long-lasting approach;
18. It is necessary to invest more in climate mapping, forecasting and analysis so as to plan
adequate adaptation measures in risk-exposed sectors
19. There is a need to train staff in drought/floods analyzing, forecasting and warning to better
respond to the requests of users or in the case that DHMZ is charged of other activities in
risk assessment;
20. There is a need to strengthen GIS and remote sensing capacities for the agrometeorology
Division, to strengthen agrometeorological modeling for specific crops (grape,
olives),.agrometeorological operational modeling and forecasts, application of seasonal
weather forecasts for crop yield modeling and to involve young scientists in
agrometeorology
Information technology and telecommunication issues
21. There are urgent needs to promote automatic production of tailored end-user-orientated
services and automatic dissemination of forecasts and warnings.
Warning products and services
22. There is an urgent need to establish a 24/7 science based analysing, forecasting and warning
system at DHMZ;
23. There is urgent need to promote production of flood and flash flood warnings;
24. To increase the number of warning products;
25. There is need to give the DHMZ mandate to have alarms shown on every TV channel as an
info-stripe when needed.
Climate change analysis
26. There is the need of strengthening DHMZ technical capacity to better monitor climate
through enhanced investments in climate modeling, forecasting and analysis ^to develop
climate change impact studies to support sectoral planning for DRR and other at-risk sectors.
Human Resources
31
27. It is necessary to ensure adequate human, technical and financial resources to the DHMZ to
sustain their role in different phases of the DRR: operational monitoring, mapping of
hydrological and meteorological hazards, warning and forecasting;
28. There is urgent needs to increase the number of skilled weather forecasters to enhance the
forecasting capacity to achieve 24/7 operation;
29. There are urgent needs to increase the number of hydrological modellers and researchers,
NWP model experts, ICT and IT experts, engineers and observation network and
maintenance experts, data management experts, PR experts and marketing experts;
30. There are urgent needs to promote training of the mid-management in leadership, project
management and participation in EU R&D projects.
31. There are needs to improve laws, statutes, administrative practices and accounting systems
to promote NHMS´s possibilities improve their commercial services, participation in EU R&D
projects and to better adjust the structure and amount of staff to respond to new
challenges, to enhance the base of financing and to promote sustainable development.
Facilities
32. There are urgent needs to have new premises for DHMZ in order to ensure data
communication and exchange and production of NWP based weather forecasts which are
critical for DRR, operation of industry and wellbeing of people.
Regional cooperation
33. A regional Multi-Hazard Early Warning System composed of inter-operable national Early
Warning Systems should be designed through a regional cooperation process. A
comprehensive design and planning document should include institutional and technical
aspects of MHEWS, as well as a cost-benefit analysis and a fund-raising strategy.
34. Risk assessment at regional, national and local level is the foundation for development of
agreements and implementation plans.
35. Modernisation and interoperability of the meteorological and hydrological networks should
be implemented at the sub-regional level to benefit from economies of scale and financing
opportunities. This plan should include automatic on-line stations, a sub-regional radar
network as well as a lightning detection network.
36. To improve their forecasting capacities SEE countries should increase their cooperation with
global, regional and specialized Centres (eg ECMWF) producing NWP, by developing their
NWP capacities and become members of NWP model consortiums. Linkages between NWP
models and hydrological models should also be developed for a better flood forecasting
37. A regional harmonisation of watch and warning systems should be promoted
38. Cross-border exchanges of real-time data, forecasts and warnings should be increased
32
Annex 2: List of Institutions Visited and Persons Met
Institution
Function
First
name
Damir
Last name
Phone
number
+385 1
385 5914
e-mail address
National Protection
and Rescue
Directorate
Civil protection
sector
National Protection
and Rescue
Directorate
Civil protection
sector
Department for
prevention, planning
and inspection
National Protection
and Rescue
Directorate
Sector for 112
system
National Protection
and Rescue
Directorate
Fire service
Department for
Operations and
Analysis
National Protection
and Rescue
Directorate
Zagreb Field Office
Meteorological and
Hydrological Service
Meteorological and
Hydrological Service
Meteorological and
Hydrological Service
Meteorological and
Hydrological Service
Republic
Seismological
Survey
Faculty of Science
and Mathematics
Geophysical
department
Civil
Protection
Deputy
Commander
Department
Head
Josip
Sajko
+385 1
385 5900
josip.sajko@duzs.hr
Head of
Prevention,
Planning and
Supervision
Department
Head of
Department
Milan
Erjavec
+385 1
365 0092
milan.erjavec@duzs.hr
Neven
Szabo
+385 1
3855 930
neven.szabo@duzs.hr
Head of the
Field Office
Petar
Vitas
Director
Ivan
Cacic
cacic@cirus.dhz.hr
Director
Assistant
Director
Assistant
Director
Assistant
Head of the
Survey
Kreso
Pandzic
Vlasta
Tutis
Branka
IvancanPicek
Kuk
+385 1 45
65 693
+385 1 45
65 684
+385 1 45
65 768
+385 1 45
65 678
+385 1
4605 900
Vlado
Cemerin
33
damir.cemerin@duzs.hr
pandzic@cirus.dhz.hr
tutis@cirus.dhz.hr
picek@cirus.dhz.hr
kuk@rudjer.irb.hr
Republic
Seismological
Survey
Faculty of Science
and Mathematics
Geophysical
department
Central Office for
Development
Strategy and
Coordination of EU
Funds
Ministry of
Environmental
Protection, Physical
Planning and
Construction
Ministry of Culture
Directorate for
inspection of nature
protection
Ministry of Culture
Directorate for
inspection of nature
protection
Ministry of Culture
Directorate for
inspection of nature
protection
Ministry of Science,
Education and
Sports
Directorate for
Preschool and
Elementary
Education
Ministry of Science,
Education and
Sports
Directorate for
Secondary education
Ministry of Science,
Education and
Sports
Directorate for
Higher Education
Department for
Higher Education
Development
Department for
University
Ivo
Allegreti
Mirjana
Balenovic
Arbutina
+385 1
4569 141
Mirjana.BalenovicArbuti
na@strategija.hr
Hrvoje
Buljan
+385 1
3782104
hrvoje.buljan@mzopu.h
r
Director
Kresimir
Ilic
+385 1
4866 193
kresimir.ilic@minkulture.hr
Senior
Inspector of
Nature
Protection
Branko
Hromatko
+385 1
4866 138
branko.hromatko@minkulture.hr
Marko
Trosic
Marko.Trosic@minkulture.hr
Head of
Directorate
Jasenka
Djenovic
ured@mzos.hr
Head of
Directorate
Vesna
Hrvoj Sic
Head of
Department
Anica
Hunjet
34
alleg@irb.hr
+385 1
4569
ured@mzos.hr
ured@mzos.hr
Cooperation
Croatian Forest
Department for
Forest System
Croatian Forest
Department for
Forest Ecology
Croatian Waters
Water Management
Institute
State Office for
Nuclear Safety
State Office for
Nuclear Safety
City of Zagreb
Emergency
Management Office
Croatian Red Cross
Croatian Red Cross
Disaster
Preparedness and
Response
Department
Ministry of Interior
Inspection Affairs
Sector
Ministry of Interior
Fire Protection
Inspection
Head of
Department
Ivica
Milkovic
+385 98
438 962
ivica.milkovic@hrsume.
hr
Head of
Department
Ana
Hercegova
c
+385 98
456 955
ana.hercegovac@hrsu
me.hr
Deputy Head
Alan
Cibilic
+385 1
6307 321
acibilic@voda.hr
Assistant
Director
General
Head of
Department
Head of
Office
Sasa
Medakovic
+385 1
486 31 17
sasa.medakovic@dzns.
hr
Nevenk
a
Pavle
Novosel
+385 1
486 31 03
+385 1
6585 141
Deputy
Executive
President
Vera
Plesa
Golubovic
Ead
Becirevic
Nikola
Zoran
Head of
Inspection
Affairs Sector
Head of Fire
Protection
Inspection
Kalinic
pavle.kalinic@zagreb.hr
+385 1 46
55 814/
ext. 108
+385 1 46
55 814
vera.golubovic@hck.hr
Turkalj
+385 1
2391 570
nturkalj@mup.hr
Hulenic
+385 1
2391 576
zhulenic@mup.hr
35
ead.becirevic@hck.hr
Annex 3: Conclusions of the First Conference of the National Platform
for DRR
The overall objective of the First Croatian National Platform Conference was to present and discuss
already existing disaster risks or those likely to emerge. It took place on November 9, 2009 with over
180 participants from the state authorities, large economic entities, scientific community (Croatian
Academy of Sciences and Arts and several colleges and institutions), as well as citizens’ associations
and religious communities. The following are the conclusions of the First Conference of the Croatian
Platform focusing on priorities for building better DRR systems for the future:
The development of the early warning system by raising public awareness of disaster risks.
Especially important are the educational systems and processes, starting with family, pre-school
education and all through university. School curricula should incorporate topics explaining the need
for DRR and develop safe behaviour and a self-help culture while building solidarity for all
threatened by disaster risks.
In addition to educational institutions, the media should also play an important role in raising public
awareness, which calls for an active cooperation with them.
In the future, risk assessments should be developed by applying state-of the-art science and
technology, especially concerning early warning systems. A multi-sector approach would enable
maximum use of domestic knowledge and capacities, primarily the most competent scientific and
educational institutions in the Republic of Croatia.
A special emphasis should be placed on a better linkage between and understanding of different
scientific and social disciplines, thus enabling their collaboration in terms of developments and
activities, including the division of responsibilities in DRR. The funding of projects aiming at DRR
should be encouraged and a continuous well-oriented development of the scientific capacities
should be included. The platform has encouraged the linking of scientific institutions with all actors
related to DRR and disaster response and the building of the early warning system.
Readiness of all relevant scientific and expert institutions, economic entities, state administration
bodies, citizens’ associations and the media actively contributes to increasing safety in the Republic
of Croatia through proactive behaviour with a view to reducing disaster risks. This process can also
be reinforced through the development and strengthening of public-private partnerships which in
turn can strengthen the economic basis of society while respecting local diversities and ensuring
uniform development and strengthening of rural areas and regions.
Participants at the First Conference of the Croatian National Platform for DRR have recognized their
task in the development of DRR capacities at political, technical and institutional levels. Future
progress should be ensured by fostering dialogue, establishing coordination and the exchange of
information between crisis managers and development sectors, as well as through regional and local
approaches to disaster response focusing on DRR.
36