Five countries are featured in the Global status of multi-hazard early warning systems 2024 report that demonstrate national efforts. Each case study includes details of the key institutions involved in MHEWS at the national level as well as the legislative frameworks and national plans that can support MHEWS.
National context
Lao People's Democratic Republic (Lao PDR) is an LDC and LLDC in the Asia-Pacific region. With a projected population of 7.5 million in 2024, Lao PDR faces increasing occurrences of extreme weather events, including storms, tropical cyclones, floods, and landslides (particularly in the Mekong River Basin) as well as droughts, heatwaves and earthquakes.147 In 2018, large-scale floods affected over 2,300 villages and 616,000 people, highlighting the need for improved EWS.
The development of an MHEWS in Lao PDR aims to reduce the country's vulnerability to climate-induced disasters by leveraging advanced scientific and technological capabilities. This system prioritizes a people-centred approach, emphasizing inclusiveness, collaboration and sustainability to ensure that warnings reach the most vulnerable groups such as women, children, older persons, ethnic groups and persons with disabilities. It does this by ensuring their participation in the design and implementation of EWS.
Highlights and successes
Key stakeholders:
The Department of Meteorology and Hydrology (DMH) under the Ministry of Natural Resources and Environment (MONRE) handles weather forecasting, hydrological data collection and early warning dissemination.
Local support is provided by the Provincial Office of Natural Resources and Environment. Various ministries, including Labour and Social Welfare (MoLSW), Agriculture and Forestry, and Public Works and Transport, also contribute.
The MoLSW coordinates disaster management efforts and serves as the Secretariat to the Central Disaster Management Committee. Local implementation is managed by Provincial, District and Village Disaster Management Committees. These committees implement disaster management policies, strategies, measures, laws, regulations, plans, programmes and projects.
International partners include the United Nations system, including the EW4All pillar leads: WMO, UNDRR, ITU and IFRC/Red Cross Red Crescent, as well as some of its specialized organizations (e.g. WFP and FAO) together with the World Bank and UNDP. Numerous development partners are also involved, for example, the International Cooperation Agencies of Korea and Japan, as well as NGOs and non-profits (for example, China Aid).
Platforms, policies and plans:
The importance of enhancing EWS in Lao PDR is highlighted in key strategies, plans and laws:
The National Strategy on Disaster Risk Reduction 2021-2030 addresses challenges in accessing and utilizing early warning information.
The Disaster Management Act (2019) provides a legal framework for disseminating meteorological and hydrological data, including forecasts and warnings.
The Early Warning Standard Operating Procedures 2017 detail tasks for agencies involved in early warnings, incorporating technology-based monitoring and forecasts.
The National Socio-Economic Development Plan 2021-2025 focuses on strengthening disaster management committees and improving early warnings.
Activities and projects:
Lao PDR's EW4All Road Map 2024-2027 was endorsed following a country-led, multisector process. The road map aims to protect 80 per cent of the population from hazardous weather, water and climate events with a life-saving EWS. The road map has a total budget of $ 27.7 million, of which $ 5.9 million has already been mobilized, enabling 14 of the 107 activities to commence.
A regional CREWS project aims to enhance meteorological and hydrological services in Cambodia and Lao PDR (see Box 4 in section 3.1.1) through a range of activities including training for technical staff, community education and drills.
Over the past decade, DMH has upgraded its observation networks and forecasting systems, enhancing weather forecasts and early warnings. The Upgrading Meteorological and Hydrological Stations project, supported by the World Bank and WMO, the Korean International Cooperation Agency and ChinaAid continues to improve weather and water monitoring facilities at the DMH and is establishing the National Water Resources Information Centre.
The Mekong Integrated Water Resource Management (MIWRM) Project focuses on mitigating flood and drought risks through better data collection and dissemination.
MONRE, in collaboration with key ministries and research institutions, has developed flood and drought risk profiles, paving the way for the implementation of impact-based forecasting in the Xe Kong, Xe Done and Namhoung basins. The impact-based forecasting is calibrated and ready for operation during the 2024 monsoon period.
MoLSW and MONRE have implemented community-based EWS using loudspeakers and SMS alerts, while a Mobile Alert Messaging Pilot Project provides SMS warnings via partnerships with telecom companies such as Lao Telecom and UNITEL.
With support from the WFP and FAO under the leadership of MoLSW, national and regional anticipatory action dialogues have been held and a National Anticipatory Action Technical Working Group has been established. There has also been a test of whether the Social Protection Emergency Rice Reserve Standard Operating Procedure might be an entry point for forecasttriggered anticipatory action for drought or floods (WFP, 2024).
Challenges and gaps
Lao PDR faces significant challenges in developing effective MHEWS due to the absence of legislative tools to mobilize private-sector resources, high staff turnover and a lack of skilled forecasters. The hydrometeorological infrastructure is inadequate, with limited capacities in MHEWS, especially in hazard monitoring, impact-based forecasting and last-mile communications, although on other measures, the maturity scores for Lao PDR exceed both the regional and global average (of the assessed countries featured within the dashboard; see Figure 4.4)
Coordinated dissemination of early warning messages requires adoption of the CAP and regular updates to the National Emergency Telecom Plan, led by the Ministry of Technology and Communications.
Another challenge is the reliance on external funding, which hinders long-term sustainability of national MHEWS. While it is recognized that hydropower companies could help improve EWS by providing their data, there are no mechanisms to do this.
Gaps also exist in disaster loss and damage tracking, comprehensive hazard and risk assessment methodologies and pre-assessments of vulnerable persons and infrastructure. Climate predictions lack socioeconomic and environmental impact evaluations, while innovation to improve risk understanding is minimal. The country also struggles with hazard identification and forecasting due to weak infrastructure, a scarcity of stations and insufficient maintenance. Where they exist, warning systems fail due to a lack of impact-based forecasting, poor coordination and limited automated public warning systems. Inconsistent emergency plans and inadequate disaster response protocols at the village level further weaken preparedness and response capabilities. There is also limited consideration of gender equality, disability or social inclusion in climate and hydromet products, exacerbated by inadequate disaster resilience awareness of and among vulnerable groups.
Lessons learned and good practices
Implementing MHEWS in Lao PDR highlights the importance of inclusive community involvement. Engaging local communities through Village Disaster Management Committees ensures that early warning messages are clear, actionable and communicated effectively to the last mile through preferred channels, including loudspeakers, while partnerships with mobile operators enable warnings to be disseminated by SMS. The experience shows that ongoing training for hydrometeorological and disaster management staff, along with community education and drills, is vital for a successful EWS. These initiatives ensure that professionals are well trained and communities are emergency ready.
Investments in modern technology, such as advanced weather monitoring systems and communication platforms, have enhanced the accuracy and timeliness of alerts but for MHEWS to be effective, long-term maintenance of hydrometeorological infrastructure is crucial. The mobilization of local resources - human, technical and financial - is essential for MHEWS to be sustainable, rather than relying on external support. Strategic funding allocations, including private-sector contributions, need to be investigated as these could support the maintenance and operationalization of MHEWS, ensuring that systems are sustainable.
CREWS in Lao PDR (South-East Asia)
CREWS is supporting Lao PDR through its South-East Asia multi-year regional project (see Box 4 in section 3.3.1).
The CREWS Cambodia and Lao PDR project aims to build capacity at the national level to improve hydrometeorological services, ensuring that vulnerable populations are reached through effective and inclusive risk-informed EWS. This will also improve climate change adaptive capacities and strengthen climate and disaster resilience.
Informed by a consultative process with EWS stakeholders, the project has been designed around the four elements of MHEWS and also aims to strengthen governance mechanisms and create an enabling environment.
The project has focused on developing national flood and drought risk maps in three pilot areas to support the development of subnational preparedness and response plans, as well as the National Flood Plan. For example, in the Phogsaly Province of Lao PDR, 15 community-based disaster risk management plans have been finalized through a validation exercise by trained local authorities and Village Disaster Management Committee representatives. These plans outline key preparedness and response measures for target communities.
CREWS has also supported DMH in drafting a strategic plan and complementary action plan, as well as running workshops on CAP, impact-based forecasting and climate database management, all aligned with the recently launched South-East Asia Flash Flood Guidance System and the inclusive, people-centred approach to early warnings.
The limited human resources capacity of key agencies has been a constraint but close coordination with key stakeholders at the subnational, national and regional levels has been a success factor for the project, along with the direct participation of vulnerable communities. Community involvement in Lao PDR has been ensured by the establishment of the Community Flood Management Committees, whose membership includes women, persons living with disabilities and community elders. An awareness and training session has equipped each member with knowledge and skills for flood preparedness and response, with a particular emphasis on gender mainstreaming and DRR. Moreover, a two-way and interactive feedback mechanism ensures that warnings provide information that is relevant and understandable to the intended recipients, especially vulnerable groups.
SOFF in Lao
PDR With support from GeoSphere Austria and the Chinese Meteorological Administration as peer advisers, and the World Bank as implementing entity, Lao PDR is finalizing the Readiness Phase of SOFF, identifying key gaps related to GBON and carrying out a country hydrometeorological diagnostics assessment. All partners are working together to ensure the coordinated implementation of Lao PDR's EW4All road map through the implementation of SOFF, CREWS, GCF programmes and other investments in the country.