Tasks of Voluntary Rescue Teams in Extreme Weather Situations1

The occurrence of weather phenomena associated with extreme precipitation, temperatures and winds are not unusual in the history of meteorology in Hungary. However, in view of the characteristics of damages, it can be ascertained that they are usually witnessed at local (settlement) level; they damage the natural and built environment, jeopardise the safety of people and their financial resources. This greatly burdens the human resources of forces designated to respond to these anomalies, also their deployments, logistics and the management system of their equipment. The current Disaster Management Act created a resolution to this tension between damage prevention, response and rescue by declaring the possibilities of involving the voluntarism of citizens in organised and regulated frameworks. It means: in order to increase the country’s safety, central, territorial, later district and settlement-level voluntary rescue organisations and teams may be established. These units, considering their capabilities, are able to effectively and efficiently manage the impacts of anomalies due to the weather. In this publication, the author attempts to present Hungary’s vulnerability due to weather extremities with the help of the disaster management classification of settlements, to analyse the deployment possibilities of voluntary rescue organisations and rescue teams, taking into account their capabilities established in the framework of the national classification system.


Introduction
Weather-related damage events are integral parts of Hungary's meteorological events. In the world, the rise of weather phenomena can be clearly presented which for example, appears in domestic firefighting interventions. 3 The basis of this statement is the collection of data which is realised in data sheets uploaded to the Disaster Management Data Service Program. 4 The types of uploaded technical rescue operations cover natural calamities, treefalls, outdoor fires, local floods which demonstrate the effects of extreme weather events on firefighting operations.
There are plenty of standardisation methods to identify weather phenomena and to determine their parameters, such as the hazard warning system of the Hungarian Meteorological Service, 5 the national disaster risk assessment, the report on national disaster risk assessment methodology and its results. These documents reveal that the identification should be carried out related to temperature, rainfall and windstorm. For some domestic damage areas and damage sites related to extreme weather phenomena, it is typical that they influence the district level locally, increase the number of intervention forces, the wider defence-rescue capabilities, and the involvement of larger assets. The management becomes more complex (more administrative bodies, organisations, higher management levels are activated), the concerned infrastructures (vital-utility, residential) are damaged in every case. Damage-remediation activities may take from several days to several months, resulting in insurance claims, extremely high defence costs and material damage. There are possibilities for supporting intervention forces, such as rescue organisations and rescue groups which are based on the principle of volunteering.
This paper covers the disaster management aspects of domestic weather vulnerability, by its results the potential application of volunteer rescue organisations and rescue groups will be analysed.

Presentation of vulnerability caused by extreme weather phenomena by demonstrating the disaster management classification of settlements
According to point (1) of Section 21 of Chapter V of Government Decree 234/2011 (XI.10.), 'Hungary's settlements shall be classified in disaster management categories as a result of a risk assessment procedure conducted with respect to a given settlement'. 6 Within the framework of a risk assessment procedure, according to Annex 2 of the Government Decree, hazard impacts should be considered in all cases. The disaster management classification procedure should be carried out for each settlement in the country. 7 3 László Teknős, 'The Psychological Effects of Extreme Weather Conditions -The Importance of Crisis Intervention in Disaster Management ', in NISPAcee, Government vs. Governance in Central and Eastern Europe: From Pre-Weberianism to Neo-Weberianism? ed. by Zsuzsanna Árva (Budapest: NISPAcee Press, 2014). 4 In Hungarian: Katasztrófavédelmi Adatszolgáltatási Program (KAP online). It includes the intervention statistics of the official disaster management organisation's deployment units. With the help of this, data related to storm damage can be extracted arisen from the topic of the present paper. 5 In Hungarian: Országos Meteorológiai Szolgálat (OMSZ). After assessing the real hazard impacts typical of the valid local features, the result of the risk assessment process will be the classification of settlements into three disaster management categories. The vulnerability levels/categories of settlements are contained in Annex 1 of the Decree of the Minister of the Interior (MoI) 61/2012 (XII.11.). 8 The 2016 data shown in Table 1 are the result of a risk assessment procedure. One of the elements of this process is the categorisation of the settlements themselves. The  In Table 2, one can see the classification categories of settlements affected by hazard impacts of meteorological origin related to the number of the population. Extreme weather can be found in point a) of Annex 2 of Government Decree 234/2011 (XI.10.), under natural disasters and hazards of natural origin. It can be ascertained that out of the 3,177 settlements in Hungary, 2,491 settlements may be affected by hazard impacts of extreme weather origin.
In the most vulnerable category (I), 6 settlements were classified; in Class II, 346 settlements and in Class III, 2,139 settlements, affecting altogether more than six million people. As far as winter weather vulnerability is concerned, one may ascertain that it is characterised by high risk despite the fact that due to the increase of mean temperatures in Hungary, the number of days with temperatures under freezing point is decreasing. It can (also) be ascertained based on this that the weather phenomena incurring hazards should be addressed, and the disaster management-approach analysis should be continued.  Table 3 shows the total number of events related to technical rescue operations which required intervention from 2011. An increase can be noticed in case of natural calamities, storms and treefalls. It can be seen that natural calamities and storms rise compared to the data of 2011, an increase is showed illustrated in a linear trend. According to statistics, a higher number of intervention cases has to be calculated which predicts the fact that at a time of extreme intervention, the professional forces become more loaded. Based on KAPonline data, it is expedient to call up volunteers 10 who are qualified in disaster management in order to apply them for managing this type of events.   Table 3. Within natural disasters, an increase may be observed with storm-triggered and fallen trees incidents. In case of storms, from 2013, it is even more significant. The content of the above figure also evidences that the trend in Hungary follows the increasing world-wide tendency of meteorological phenomena.

Regulation of the deployment of voluntary rescue teams -The national classification system
Under item (2) of Article G) of the Fundamental Law, one can read: 'Hungary protects its citizens.' To this end, it defines the rights and obligations. An obligation is, for instance, based on paragraph (1) of Article XXXI of the Fundamental Law, that: 'Every Hungarian citizen shall protect/defend the fatherland.' 11 Its content affecting the protection against disasters can be found in paragraph (2)  referred to as Kat. tv.), according to which: 'Every Hungarian citizen has the right and the obligation to participate in disaster management.' 12 A citizen may comply with the above through voluntary social activities, since, based on paragraph (2) of Article VIII of the Fundamental Law: 'Everyone is entitled to establish organizations and join organizations.' It is stressed by the stipulation in Act CLXXV of 2011, since the Hungarian National Assembly acknowledges that the voluntary collaboration of people is inevitable for the development of Hungary. Paragraph (1) of Section 18 of Act CXXVIII of 2011 on disaster management and on the amendment of certain relevant acts states that persons providing voluntary assistance, the voluntarily participating social and charitable organisations may perform tasks related to disaster management. The above-mentioned legislation, without being exhaustive, creates a voluntary institutional system of the protection against disasters. In Table 4, one can see the division of voluntary rescue teams and organisations, demonstrating the different levels by some examples. The total number reaches 20,200, which shows that voluntary rescue organisations and teams in Hungary constitute realistic potentials, increase the self-defence capabilities of settlements. It can also be stated that the level-by-level divisions are aligned with the levels of protection management, supporting the activities of organisations and entities established to implement the protection/defence functions of the state. The state supports the establishment of these forces by which it fulfils the state obligations set forth in the Fundamental Law. Some of the pictures in the table show that volunteers are wearing uniforms, they are disciplined, and they make an image of a strong, cohesive country representing a strong power. It can be stated that they are able to support the intervention units of professional disaster management forces, their potential application should be kept in mind.
Professional disaster management bodies, in addition to the professional management of voluntary rescue organisations, are involved in the protection against the impacts of disasters and damage remediation. If the use of special skills and specialised equipment is required, the involvement of voluntary rescue organisations in response activities is ordered by the head of the territorial body of the professional disaster management body (director of the County Disaster Management Directorate).
Chapter VIII of Government Decree 234/2011 (XI.10.) issued on the implementation of Act CXXVIII of 2011 on disaster management and on the amendment of certain relevant acts stipulates the rules of participation of voluntary rescue organisations, in which it defines in detail: • general principles • requirements on the personnel • technical requirements • rules of registration and deletion • rules of classification and its renewal • special rules of participation in international relief According to item (1) of Section 57 of Government Decree 234/2011 (XI.10.), a voluntary rescue organisation operating in Hungary may participate in the protection against the impacts of disasters and emergencies in Hungary once it has obtained a classification determined by the National Classification System, meeting the basic skills and preparedness requirements, conducted by the regional entity of the professional disaster management organisation. 16 The classification procedure of voluntary rescue teams shall be conducted according to the National Classification System, based on the Act on Disaster Management and the provisions of Government Decree 234/2011 (XI.10.) issued on its implementation.

Procedures of the National Classification Exercises
The National Classification System is a classification, to be renewed every 5 years, elaborated by the central body of the professional disaster management organisation, based on the fulfilment of professional criteria. 17 The National Classification System is a system established and adjusted to the Guidelines and Methodology, consisting partly of theoretical education, partly of practical training, defined by the United Nations International Search and Rescue Advisory Group, and provides classification. 18 The newly formed voluntary rescue organisation conducts a system integration exercise, and the organisation wishing to obtain reclassification conducts a trial classification exercise before the classification exercise. A system integration exercise is a joint field exercise carried out for the first time, involving the units of a newly formed rescue organisation, 16 'Nemzeti minősítési rendszer'. where the units practice cooperation. A trial classification exercise is a command post and field exercise simulating a real situation, assisting in preparing the team for the National Classification Exercise, elaborated in accordance with the Organisational and Operational Guidelines issued for the rescue branch(es).
The National Civil Protection Inspector General organises the trial classification, system integration and national classification exercises in semi-annual cycles. A regional body (county directorate) prepares a conduct plan for the exercises, which will be submitted to the National Civil Protection Inspector General for approval 30 days prior to the exercise date by the head of the Department Emergency Management of the NDGDM.
The classification exercise should be prepared striving for conditions close to real life, to be performed in 36 hours continuously, without interruption. On the daily results of the classification exercise, the head of the Emergency Management Department of the NDGDM informs the Central Duty Office of the NDGDM by 18:00 hours in a digital way (electronic mail). The results are submitted by the Central Duty Office of the NDGDM in its Daily Report. The classified rescue organisations conduct annual exercises and regularly provide for the readiness level of the theoretical knowledge of their personnel and conduct refresher training courses. 19

Figure 2: The sequence and elements of the Hungarian National Classification System
Source: László Teknős, 2017. Voluntary regional civil protection organisations, after they are established, need to follow their Organisational and Operational Guidelines, considering both their structure and operation. For the first time, a voluntary organisation must submit an introductory background material, a so-called portfolio. With the help of this background material and the system integration field exercise, it must demonstrate its compliance with the Organisational and Operational Guidelines. The acquired skills and knowledge must be maintained by training, preparation and demonstration exercises held annually.
A rescue organisation, having acquired its certification, receives a rescue team certificate (rescue certificate/ID card), by which it is entitled to participate in rescue operations, to enter the confined incident site, and, at the same time, this certificate is also to prove that the organisation has appropriate equipment. A rescue organisation or team that qualifies for 19 NDGDM Instructions 6/2013 (X.31.) stipulates the requirements of the National Classification System. this certification, signs an agreement, thereby accepting the coordination and management rights of the central body of the professional disaster management organisation (NDGDM), thereby it is registered. This registry is kept by the regional body (county directorate) of the professional disaster management organisation. 20 Criteria of acquiring the National Classification: • introductory professional background material (portfolio) • system integration exercise plan Introductory professional background material (portfolio) The necessary documents must be submitted in writing and in an electronic form to the National Civil Protection Inspector General by the head of the regional body.

System Integration Exercise Plan
The rescue organisation prepares and submits an exercise plan for the National Classification Exercise 30 days prior to the exercise via the head of the regional body for approval to the National Civil Protection Inspector General. Based on the exercise plan approved by the National Civil Protection Inspector General, the rescue team or organisation gives evidence to the National Classification Committee, by carrying out a field exercise, in compliance with the Organisational and Operational Guidelines. It implements the exercise according to the Organisational and Operational Guidelines chosen by it. The document certifying the acquisition of the certificate is certified by the signature of the head of the rescue organisation, the director of the regional body and the head of the classification committee appointed by the Deputy Director General of the NDGDM. The voluntary rescue team or organisation, having acquired the National Classification, may renew its certificate every 5 years, by repeating the classification exercise. 22 Volunteers need to undergo a system integration exercise. This is a 36-hour field exercise to find out whether they have the skills meeting the basic professional requirements and whether they can meet the Organisational and Operational Guidelines. They have to continuously maintain their capabilities afterwards. Continuous training, preparation and demonstration exercises are suitable for this purpose. Another basic expectation of a voluntary rescue team is the appropriate level of readiness of the organisation, as rapid deployability is a key issue in their activity.
The classification exercise is mandatory to be repeated every five years. Participation in this classification procedure and a successful examination are necessary conditions in order that the rescue organisation may be involved and participate in rescue activities, furthermore, that the rescue team is included in the logistics system of the professional disaster management body. By way of participating in tenders and other non-cash benefits, its operation should be ensured. The operational strategy of voluntary rescue organisations, that is, the one related to the personnel, should be formulated as per Section 60 of the Government Decree, and as far as technical requirements, as per Section 61. 23 NDGDM Instruction 6/2013 (X.31.) on the criteria of the National Classification System contains the minimum professional requirements. Although the document is only a recommendation, the central disaster management body intends and requires that only organisations be involved in rescue operations and damage liquidation that meet the minimum professional requirements, based on which they had been classified. These requirements have been elaborated based on the Guidelines of UN INSARAG, 24 thus ensuring that Hungarian voluntary rescue organisations may join the international search and rescue system. The structure, the management, the rescue and the logistics component search and rescue activities by heavy, medium and light categories also contributes to international unity. 25 The compliance with these criteria ensures professional response capabilities. Given the capabilities of voluntary rescue organisations, they are deployable to natural or other disasters, such as canine search, ruin and area search, tracking, scuba-diver and water search and flood search and rescue. They can be used for technical, high-and low-angle rescue, aerial reconnaissance, medical rescue and first aid, complex rescue operations, etc. According to local, real vulnerabilities (see settlement classification), rescue organisations and teams are established. The National Classification System defines the Organisational and Operational Guidelines, taking into account the disaster management categorisation of settlements, for seven specialised branches. It could also be stated that these areas cover the Hungarian capabilities such as water and flood rescue, canine search, scuba-diving and rope rescue, command and control, basic water damage prevention, and urban search and rescue activities.
The main classification type of settlement-level voluntary rescue teams is focused on basic water damage prevention activities; however, the capabilities include flood and water rescue, storm damage mitigation, firefighting, technical rescue, damage liquidation, urban search and rescue, person research, rope (Alpine) technology, population protection activities, command and control, logistics.
As a summary, in case of incidents, in disasters and emergencies, only voluntary rescue organisations and teams are eligible for deployment that have acquired certificates within the framework of the National Classification System, or only such teams may be deployed to the incident sites. Rescue organisations participate, with the professional management of disaster management organisations, in protection activities and response activities against the impacts of disasters. The instruction right is exercised by a member being commissioned by a professional disaster management body. This person is in charge of the entire personnel of the rescue organisation, assigned by the Disaster Management Director with respect to the regional and settlement-level civil protection organisation, or with respect to the central civil protection organisation, by the Director General of the NDGDM. Rescue organisations perform their duties based on agreements with the professional disaster management bodies.  Volunteering is not just a European demand, but it is the best chance for a citizen to take part in the joint efforts against impacts endangering their lives, environment and valuables, according to their self-motivation. 26 Between 2012-2017, voluntary rescue organisations and teams were deployed in incidents, such as life-saving, rescuing injured persons, search and rescue of missing persons from water and underwater, extracting persons from wells, saving and extracting animals, firefighting, technical rescue, storm damage mitigation, removal of hazardous trees, foiling roofs, patient transport, lifting of sunken small boats to water surface, rescue of cars in snowdrifts, rescuing crashed motor gliders, flood and inland water protection, protecting residential areas, water removal, removal of accumulated rainwater, water pumping, ditch clearing, clearing of the lock system of fishing ponds, drinking water distribution, providing alternative heating and power supply, etc. 26 'Mentőcsoportok -Önkéntes mentőszervezetek az állampolgárok védelme érdekében'.

Examples of deployments of voluntary rescue organisations and teams
Storm on 08 July 2014    Storm at Lake Balaton between 10 and 14 July 2017  In the early afternoon of 06 August 2017, in addition to the stormy wind gusts, a heavy thunderstorm arrived in our county sleet, which resulted in nearly two hundred emergency calls coming from Orosháza till 21:00 hours. The professional firefighters removed the fallen trees, broken logs and restored the damages caused by the storm to roof structures of real  The meteorological phenomena listed above well illustrate the response operations, increasing in such times, mainly numerical peaks related to technical rescue operations. It can be seen that voluntary firefighters, voluntary rescue organisations and rescue teams contributed to the liquidation of mass incidents. Based on the data of the above tables and their related content, it can be stated that, for example, in case of weather incidents, it is necessary to use the voluntary units as an additional potential force. Considering both their numbers and their equipment, they are suitable for participating in interventions lasting several days, to ensure the safety of settlements, and to protect the local population from a disaster management aspect. Provably, they contribute to the effectiveness of local, district and regional protection.
In order to maintain this high level of professionalism, inter alia, it is necessary to develop, elaborate and upgrade the intervention modules, capabilities, capacities and the procurement of the necessary up-to-date equipment facilitating specialised activities.

Conclusion, recommendation
According to paragraph 21 of Chapter V of the Hungarian Government Decree no. 234/2011 (XI.10.), for example as a result of municipalities' disaster classification, the term extreme weather hazard was defined. According to Table 1, 2 and Annex 1 of the Government Decree, it can be stated that municipalities in Hungary are affected by extreme meteorological events, and most of the population is at risk. It can be identified that endangering weather phenomena need to be addressed, and the analysis from disaster management perspective should be continued. Furthermore, Table 3 shows that among the types of investigated technical rescue operations -in terms of the total number of events requiring intervention -a rise can be observed in cases of natural calamities, storms and treefalls. Referring to weather-related vulnerability, it can be stated that the increase of potentiality of predetermined forces could be necessary, and the risks with rising tendency require a greater degree of responsiveness. This is illustrated in Figure 4, which presents the so far established rescue organisations, rescue groups based on volunteering. In Table 4 it can be observed that domestic voluntary rescue organisations and rescue groups provide realistic potentialities and increase the selfdefence capabilities of municipalities. It has also been carried out that the levels of defence management are aligned with their segments, supporting the activities of organisations established for accomplishing defence functions of the state. Some of the pictures in the table show that volunteers are wearing uniforms, are disciplined, and they make an image 29 Ákos Horváth, 'A 2017. október 29-i vihar meteorológiai elemzése', October 31, 2017.
AARMS (19) 2 (2020) of a strong, cohesive country representing a strong power. It can be stated that they are able to support the intervention units of professional disaster management forces, their potential application should be kept in mind. Why? Because volunteers must meet the high standards of stringent intervention minimum requirements drawn up in NDGDM instruction no. 6/2013 (X.31.) about the basic requirements of the National Qualification System, in order to get involved in domestic or international incidents, accidents, emergencies and disasters. The National Qualification System declares professional competence and the possibility of the domestic voluntary rescue organisations for joining the international search and rescue system. Based on intervention activities of events related to weather phenomena presented in this paper, it can be said that the co-operation with partners and co-operative organisations, furthermore, the disciplined and professional task execution of the intervening staff played an important role during the elimination of damages. Damage elimination and eradication activities were effective and took place continuously despite the numerous cases of mass incidents. The co-operation and the vocation of volunteer firefighters and rescue units were key factors to success and efficiency.