World Meteorological OrganizationWORLD METEOROLOGICAL CONGRESSEighteenth SessionGeneva, 3 to 14 June 2019

Cg-18/INF. 5.4Submitted by:

Secretary-General29.V.2019

STRENGTHENING MARINE AND COASTAL SERVICES

List of the most relevant WMO regulations and guides for marine and coastal services

WMO provides regulatory and guidance material to assist delivery of marine and coastal services including:

WMO-No 9 Weather Reporting, Vol. D, Information for Shipping (2014)

WMO-No. 471 Guide to Marine Meteorological Services (revised 2018 Edition)

WMO-No. 485 Manual on the Global Data-processing and Forecasting System (Published in 2017 and the latest marine amendments are pending Cg-18 approval – see Draft Resolution 6.3(2)/1 (Cg-18))

WMO-No.558 Manual on Marine Meteorological Services - Volume I — Global Aspects: (revised 2018 Edition)

WMO-No. 574 Sea-Ice information services in the world (2006 (3rd ed.) – revision currently in process).

WMO-No. 702 Guide to Wave Analysis and Forecasting (Published in 1998 (2nd ed.) and the latest revision is pending EC-71 approval)

WMO-No. 781 Guide to the Applications of Marine Climatology (1994)

WMO-No. 1076 Guide to Storm Surge Forecasting (2011)

WMO-No. 1129 WMO Strategy for Service Delivery And Its Implementation Plan (2014)

WMO Multi Hazard Early Warning Checklist (2018)

Marine and Coastal Services Survey 2018

A survey was conducted between November 5 to December 31 2018, to collate the status of WMO Members’ capabilities in the provision of marine and coastal services. 47% of Members with marine responsibility (and in some cases services over lakes) responded, of which more than 80% of these had a National Marine Services Focal Point. There was a call for National Marine Service Focal Points after JCOMM-5 (October 2017). In May 2019, 42% of eligible countries have a National Marine Services Focal Point (NMSFP), see:

https://jcomm.info/index.php?option=com_oe&task=viewGroupRecord&groupID=385

The results of the Survey clearly indicated the need for more Members to appoint National Marine Services Focal Points, to strengthen communications on marine and coastal service delivery, between WMO and Members.

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Gaps in marine and coastal services were also evident from the Survey, particularly related to lack of human resources, capacity development and training, funding and equipment. A summary of the results (in all UN Languages) is at:

https://jcomm.info/index.php?option=com_content&view=article&id=372:wmo-survey-assessment-of-national-marine-and-coastal-services&catid=7:services

JCOMM/Marine and Coastal Services Vision and Strategy 2019 to 2021

Mindful of the challenges in delivery of marine and coastal services, as identified in the above-mentioned Survey (2018), the marine and coastal services Vision and Strategy (2019 to 2021) has been drafted with the intent to strengthen marine and coastal services, with support from JCOMM and reflecting the themes of the JCOMM Services and Forecasting Systems Programme Area. These priorities will be realigned as appropriate to suit the new structure of marine meteorology and oceanographic services, as proposed in the WMO reform.

VISION

By 2021, the global maritime community will have access to world class authoritative marine and coastal met-ocean products and decision support services, which will enhance safety of life and

property at sea while mitigating the damaging impact of hazardous weather events along the coasts.

STRATEGIC PRIORITIES

1. Engender high-quality, consistent routine met-ocean services, to inform decision-making by maritime and coastal users, reducing risk

2. Establish a framework for providing timely and accurate met-ocean support to marine environmental emergencies.

3. Foster an integrated approach to operational weather, ocean, and polar ice forecasting.4. Improve the inextricable link between high quality observations of the maritime

environment with forecasts.5. Establish standards and protocols to modernize the dissemination of marine weather

products to users at sea.

Coastal Inundation Demonstration Forecasting Project (CIFDP)

The Coastal Inundation Forecasting Demonstration Project (CIFDP) provides a good example of how a Multi-hazard Early Warning System (MHEWS) can save lives. The CIFDP seeks to demonstrate how an integrated system can address all sources of coastal inundation, from ocean waves to storm surges to cresting rivers.

Four sub-projects were implemented, in Bangladesh, the Caribbean, Fiji and Indonesia, coordinated by the Marine Meteorology and Oceanography Programme with support from the Hydrological Water Resources Programme, and technical advice from JCOMM and CHy. The Bangladesh project, funded by USAID with additional support from the European Commission, was successfully completed in November 2017. Forecasters at the Bangladesh Meteorological Department (BMD), together with national partners and international experts, developed an end-to-end forecasting and early warning system for the coastal region, which is mostly at sea level, subject to frequent storms and tropical cyclones, and home to three major river basins. Human and livestock deaths and injuries have been clearly reduced

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(https://public.wmo.int/en/media/news/coastal-flooding-forecasts-save-lives-bangladesh). The system was also recently used by BMD during Tropical Cyclone Fani in April/May 2019.

The CIFDP Caribbean, which focussed on the Island of Hispaniola, was completed in December 2018, also with funding support from USAID (https://public.wmo.int/en/media/news/coastal-flooding-forecasts-strengthened-caribbean). This will be in operation for the Atlantic Hurricane season which starts on June 1. In January 2019, the CIFDP Indonesia was deemed no longer ‘demonstration’ (https://public.wmo.int/en/media/news/coastal-flooding-forecast-strengthened-indonesia) and by April 2019, was operational at BMKG, who self-funded with supplementary support from The Netherlands and WMO. One sub-project remains: CIFDP Fiji, funded by the Korean Meteorological Administration (KMA). It is expected to be completed by end of 2019.

The concept of the CIFDP and its long-term sustainability was independently reviewed between August and October 2018 (with credit to Dr Ray Canterford, Australia, and Mr Curtis Barrett, USA), and results presented in the report available at:

https://www.jcomm.info/index.php?option=com_oe&task=viewDocumentRecord&docID=24274

The report showed the value and success of the CIFDP concept, and as such, suggested that the ‘Demonstration’ aspect has been proven. Therefore, the recommendation is to create an ongoing activity for coastal inundation forecasting (taking into account inundation from all sources e.g. river and ocean). See draft Resolution 5.1/4 (Cg-18) for further detail in how this relates to other WMO Demonstration projects and the Multi Hazard Early Warning System (MHEWS).

Further information about CIFDP in general, is at: https://www.jcomm.info/index.php?option=com_content&view=article&id=167

Acknowledgment is given to the CIFDP Project Steering Group for their commitment and dedication over the past 10 years:

POSITION NAME COUNTRY INSTITUTIONCIFDP Co-Chair (JCOMM) 2009 to present)

Mr Val Swail CanadaEnvironment and Climate Change, Canada

CIFDP Co-Chair (CHy) 2009 to 2015 Prof Don Resio United States of

AmericaUniversity of North Florida

Former Co-Chair (CHy) 2015 to present

Dr Yuri Simonov Russian Federation Hydrometeorologica

l Research Centre

Member of the CIFDP Steering Group

Dr Linda Anderson-Berry

Australia James Cook University

Member of the CIFDP Steering Group Mr Paul Davies

United Kingdom of Great Britain and Northern Ireland

Met Office

Member of the CIFDP Steering Group

Dr Monika Donner Germany DHI Group

Member of the CIFDP Steering Group

Dr Maria Paula Etala Argentina

Servicio Meteorológico Nacional

Member of the CIFDP Steering Group

Dr Bapon Fakhruddin New Zealand Tonkin & Taylor

International Ltd.Member of the CIFDP Steering Group

Prof. Kevin Horsburgh

United Kingdom of Great Britain and

National Oceanography

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POSITION NAME COUNTRY INSTITUTIONNorthern Ireland Centre

Member of the CIFDP Steering Group

Mr Nadao Kohno Japan

Japan Meteorological Agency

Member of the CIFDP Steering Group

Mr Jamie Rhome

United States of America

National Oceanic and Atmospheric Administration

Member of the CIFDP Steering Group

Dr Graeme Smart New Zealand

National Institute for Water and Atmospheric Research

Member of the CIFDP Steering Group

Mr Deepak Vatvani The Netherlands Deltares

Changing landscape of Satellite Broadcasts for METAREAS

The Global Maritime Distress and Safety System (GMDSS) of the International Maritime Organization (IMO) entered into force on 1 February 1992. The high seas marine broadcast system for the GMDSS, which operates through the International SafetyNET Service of INMARSAT, was also implemented from this date. National Meteorological and Hydrological Services (NMHS) from 19 countries have assumed responsibility for producing and broadcasting Maritime Safety Information (MSI) on behalf of WMO Members. As of today, the world’s ocean is fully covered under 21 Meteorological Areas (METAREAs), coordinated by these 19 countries issuing MSI bulletins to the entire maritime community at no charge (see Figure 1).

The contact list of METAREA Coordinator is at: http://www.wmo.int/pages/prog/www/ois/Operational_Information/VolumeD/GMDSS/Focal_Points/GMDSS/fp.pdf

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Figure 1: Limit of METAREAS (2017)

This International Maritime Organization (IMO)/WMO Worldwide Met-Ocean Information and Warning Service (WWMIWS) is to undergo a significant change. The 99th session of the IMO’s Maritime Safety Committee (MSC) in May 2018 agreed that Iridium Satellite LLC had satisfied the established criteria to receive recognition as a mobile satellite communication service provider in the GMDSS and adopted a Statement of Recognition of the Maritime Mobile Satellite Services provided by Iridium Satellite LLC, which recognizes the services provided by the Iridium Safety Voice, Short-Burst Data and enhanced group calling services, for use in the GMDSS. The International Mobile Satellite Organization (IMSO), which oversees public satellite safety and security communication services provided by recognized mobile satellite communication systems for use in the GMDSS, was invited to monitor the implementation of the Iridium services and report to the Committee when the Public Services Agreement with Iridium had been concluded and the Letter of Compliance issued. The MSC also adopted a Statement of Recognition of Maritime Satellite Services provided by Inmarsat Global Ltd, for use in the GMDSS. The statement recognizes services provided by the Inmarsat Fleet Safety service, in the coverage area under the Inmarsat-4 Middle East and Asia (MEAS) region satellite.

This change, agreed by the 99th session of the IMO’s MSC in May 2018, will require that the NMHS from the 19 METAREA coordinating countries broadcast their MSI bulletins on the new Iridium system, expected from 2020, in addition to the existing satellite system operated by Inmarsat. This could increase broadcast costs. The issue of costs associated with the introduction of Iridium services has been raised many times in the meetings of the IMO’s Sub-Committee on Navigation, Communications, Search and Rescue (NCSR). Also the issues related to interoperability and MSI monitoring over different mobile satellite service providers has been discussed at the NCSR. The NCSR invited interested IMO Member States to submit proposals for

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a new output on issues related to interoperability between recognized GMDSS mobile satellite systems, including the dissemination of MSI and distress relay messages.

The subject of monitoring MSI broadcasts over different satellite systems was dealt separately under an existing output from NCSR 6 (January 2019) when IMO Member States were invited to address the issues related to the monitoring of Enhanced Group Calling (EGC) messages in a multi-provider environment, through submitting proposals to a future NCSR session.

It is important that the affected WMO Members of the 19 METAREA coordinating countries, are aware of this situation and consider necessary action within their country, including liaising with their counterpart delegations in their country, who attend IMO meetings, for any input to these discussions at the relevant IMO meetings.

Cost Recovery

Cost Recovery from Marine Meteorological Services for Shipping

Technology in shipping is developing fast. New technologies are used and new service providers are coming in, for example, to the space radio communications. In some cases this might lead to the unexpected increase to the costs for the Countries that are providing these services to shipping. For some Countries, the burden from increased costs can be higher than these Countries can tolerate.

Some WMO Members:

do not have established processes to enter into contractual arrangements for customised marine services;

do not have capabilities to offer customised marine services for revenue generating purposes;

do not have adequate funding from Government appropriations to provide, sustain or improve their basic marine services for national requirements; and

with METAREA Issuing Service responsibility are facing internal funding pressures and priorities to sustain funding of GMDSS broadcast cost requirements.

Open discussions are needed between the Governments of Member Parties to the International Convention for the Safety of Life at Sea (SOLAS), regarding how costs from Marine Services can be recovered. Specifically for the marine meteorological services, these discussions should be facilitated by the World Meteorological Organization (WMO) in collaboration with the International Maritime Organization (IMO).

Cost Recovery can be achieved, for example, by amending existing conventions or by seeking mutual arrangements made by Contracting Governments to the International Convention for the Safety of Life at Sea (SOLAS). Also there are some other models explained at the end of this document that can be used for cost recovery. Amending SOLAS is possible, but it is likely to take long time and no guarantees can be given that the Convention would be changed in a way that cost recovery would be possible. Governments could also find an agreement on how cost recovery could be done. However, this could take many years and no guarantees could be given that there would be mutual agreement. Initial results of the cost recovery investigation from shipping, by JCOMM, indicates some useful references and tools, explained below.

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Adopting or amending International Maritime Organization (IMO) Conventions(For the full text see: http://www.imo.org/en/About/Conventions/Pages/Home.aspx)

Adopting a Convention is the part of the process with which IMO has the most deep involvement (and not WMO). IMO has six main bodies concerned with the adoption or implementation of Conventions. The Assembly and Council are the main organs, and the committees involved are the Maritime Safety Committee, Marine Environment Protection Committee, Legal Committee and the Facilitation Committee. Developments in shipping and other related industries are discussed by IMO Member States in these bodies, and the need for a new Convention or amendments to existing Conventions can be raised in any of them.The adoption of a Convention marks the conclusion of only the first stage of a long process. Before the Convention comes into force - that is, before it becomes binding upon Governments which have ratified it - it has to be accepted formally by individual Governments.The enforcement of IMO Conventions depends upon the Governments of Member Parties.Contracting Governments enforce the provisions of IMO Conventions as far as their own ships are concerned and also set the penalties for infringements, where these are applicable.Amendments to the International Maritime Organization (IMO) Conventions

In the case of the 1974 SOLAS Convention, an amendment to most of the Annexes (which constitutes the technical parts of the Convention) is `deemed to have been accepted at the end of two years from the date on which it is communicated to Contracting Governments...' unless the amendment is objected to by more than one third of Contracting Governments, or Contracting Governments owning not less than 50 per cent of the world's gross merchant tonnage. This period may be varied by the Maritime Safety Committee with a minimum limit of one year.

SOLAS - International Convention for the Safety of Life at Sea

Regulation 5 (Meteorological services and warnings) in SOLAS states that Contracting Governments undertake to carry out, in co-operation, the following meteorological arrangements to:

warn ships of gales, storms and tropical cyclones by the issue of information in text and, as far as practicable graphic form, using the appropriate shore-based facilities for terrestrial and space radio communications services,

issue, at least twice daily, by terrestrial and space radio communication services, as appropriate, weather information suitable for shipping containing data, analyses, warnings and forecasts of weather, waves and ice. Such information shall be transmitted in text and, as far as practicable, graphic form including meteorological analysis and prognosis charts transmitted by facsimile or in digital form for reconstitution on board the ship's data processing system,

prepare and issue such publications as may be necessary for the efficient conduct of meteorological work at sea and to arrange, if practicable, for the publication and making available of daily weather charts for the information of departing ships,

arrange for the reception and transmission of weather messages from and to ships, using the appropriate shore-based facilities for terrestrial and space radio communications services, and

endeavour to obtain a uniform procedure in regard to the international meteorological services already specified, and as far as practicable, to conform to the technical regulations and recommendations made by the WMO, to which Contracting Governments may refer, for study and advice, any meteorological question which may arise in carrying out the present Convention.

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Forecasts, warnings, synoptic and other meteorological data intended for ships shall be issued and disseminated by the national meteorological service in the best position to serve various coastal and high seas areas, in accordance with mutual arrangements made by Contracting Governments, in particular as defined by the WMOs System for the preparation and dissemination of meteorological forecasts and warnings for the high seas under the global maritime distress and safety system (GMDSS). More information is in the SOLAS Convention (1974), the WMO-No. 558 Manual on Marine Meteorological Services and associated WMO-No.471 Guide to Marine Meteorological Services.

Cost Recovery from Shipping by the Decision from Individual Governments

In many countries, several different kinds of fees and taxes are used for shipping. There is a lot of variation depending from the legislation and political will within the Country, and types of fees already in use. Common to these fees and taxes is that they are used for cost recovery from the shipping. These costs are taken from those ships entering to the ports and/or territorial waters of the different States. Names of these different fees vary even though the purpose would be the same. Every Country can decide to use these fees to recover the cost also for Marine Meteorological Services depending on the legislation in the each individual country.In different Countries there are, or there have been, for example fees/dues/taxes for Fairways, security (Vessel Traffic Service), Harbours, Pilotage and Navigation; and coastal and Lighthouse charges. These fees/dues/taxes/charges are used to recover costs from shipping, in most cases from territorial waters and ports. Variations also exist depending on who collects these fees or taxes, and to what purpose they are used. These fees/dues/taxes/charges can be used, if Countries so decide, also for covering costs for the various Marine Meteorological Services provided to the ships.Instead of trying to reach an international agreement to the cost recovery issue, which would take some time, the most likely scenario for cost recovery is for individual Countries to consider their situations independently. Comparison to Aviation

The provision of aeronautical meteorological service for international civil aviation is fulfilled nationally, regionally and globally for airports and airspaces through a combination of NMHS and non-NMHS providers, public- and private-sector enterprise. These services can be funded through cost recovery mechanisms on a national or multi-national basis based on four key charging principles of the International Civil Aviation Organization (ICAO) – namely those of non-discrimination, cost-relatedness, transparency and user consultation – and associated ICAO guidance. In a complementary capacity, WMO also provides guidance to its Members on cost recovery arrangements within WMO-No. 904, Guide to Aeronautical Meteorological Service Cost Recovery: Principles and Guidance.

Wherever cost recovery is applied, the charges for aeronautical meteorological services must be separately identified even though they may be included in wider air navigation service (ANS) charges. All costs need to be incorporated, including development, capital and operating costs – direct and indirect. Notwithstanding the determination of the costs, it is ultimately the decision of the State/Member concerned as to what proportions of those costs are sought from what users.While many States/Members do apply cost recovery for the provision of aeronautical meteorological services, some do not – often due to a lack of a requirement or due to an inability. Even in those instances where cost recovery mechanisms do exist, occasionally these are not applied consistently, and it can be challenging if not impossible to relate the cost(s) assigned with the service(s) received. Moreover, an increasing number of aeronautical meteorological service providers lament receiving no funds, despite the aviation users, especially airlines, air traffic services and airport operators, paying ‘Met charges’ to the State/Member as part of the ANS charges.

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Conclusions from the Cost Recovery Investigation for Shipping / Marine Meteorological Services

In comparing Aviation and Shipping, there are some similarities but the legal framework is different. This is mainly because of the history of these different transport modes. In the early stages when different legal frameworks and business models were developed a lot of it was borrowed from shipping. Aviation, as a very young transport mode, was able to globally harmonize most of the issues better compared to shipping.

Regarding cost recovery, different type of Meteorological Services perceive these industries (Aviation and Shipping) to be the same. However, for both Aviation and Shipping, whilst it is possible for different countries to recover costs from these industries, how and if they do that, varies.

In the Aviation industry in general there are more precise instructions on how to recover costs. In Shipping it is left more freely to the different Countries to decide cost recovery methods for the Marine Meteorological Services, should they so wish to do.

Proposal There is an obvious need to discuss together between the WMO and IMO about Cost Recovery for the Marine Meteorological Services. To help different Governments consider and decide what to do with the issue of cost recovery from Marine Meteorological Services, it is proposed that a study be carried out. In this study it would be possible to investigate the existing legal framework on this issue. The study could also look in to different Countries around the world and their methods of cost recovery concerning different services to the shipping. The result could be reported to WMO EC-72.

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