Summary of NIST Recommendations from the Joplin Tornado Investigation

Recommendation Interested Parties

Organization with Lead 

Responsibility for 

Implementation

Group 1: Tornado Hazard Characteristics and Associated Wind Field 

Recommendation 1: NIST recommends that a capacity be developed and deployed that can 

measure and characterize actual tornadic wind fields, including near–surface wind fields, for use in 

the engineering design of buildings and infrastructure. This would require enhancement and 

widespread deployment of cost-effective, advanced technologies, including weather radar.

Academia, DOE, FEMA,

NOAA/NWS, NRC, 

NSF 

NOAA

Recommendation 2: NIST recommends that information gathered and generated from tornado 

events (such as the Joplin tornado) should be stored in publicly available and easily accessible 

databases to aid in the improvement of tornado hazard characterization.

Academia, FEMA, 

NGA 

NWS

Recommendation 3: NIST recommends that tornado hazard maps for use in the engineering design 

of buildings and infrastructure be developed considering spatially based estimates of the tornado 

hazard instead of point–based estimates.

ASCE, DOE, FEMA, 

ICC, NRC

NIST

Recommendation 4: NIST recommends that new damage indicators (DIs) be developed for the 

Enhanced Fujita tornado intensity scale to better distinguish between the most intense tornado events. 

Methodologies used in the development of new DIs and associated degrees of damage (DODs) 

should be, to the extent possible, scientific in nature and quantifiable. As new information becomes 

available, a committee comprised of public and private entities should be formed with the ability to 

propose, accept, and implement changes to the EF Scale. The improved EF Scale should be adopted 

by NWS.

Academia, ATC, 

FEMA, NRC, NSF, 

OSTP

NWS

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Summary of NIST Recommendations from the Joplin Tornado Investigation

Recommendation Interested Parties

Organization with Lead 

Responsibility for 

Implementation

Group 2: Performance of Buildings, Shelters, Designated Safe Areas, and Lifelines

Recommendation 5: NIST recommends that nationally accepted performance–based standards for 

the tornado–resistant design of buildings and infrastructure be developed and adopted in model codes 

and local regulations to enhance the resiliency of communities to tornado hazards. The standards 

should encompass tornado hazard characterization, performance objectives, and evaluation tools. 

The standards shall require that critical buildings and infrastructure such as hospitals and emergency 

operations centers be designed to remain operational in the event of a tornado.

An example of a tornado performance objectives matrix for buildings of different risk categories is 

shown below:

(1) Hardened area, shelter–in–place.

(2) Public shelter.

* Risk Categories based on ASCE 7–10.

Academia, ATC, 

Design and 

construction industry 

(including ACI, AISC, 

AWS, NAHB, PCA, 

SDI, SJI, TMS), 

FEMA, ICC, NFPA

ASCE

Risk Cat.*IV Facilities

Risk Cat.*III

Risk Cat.*II

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Summary of NIST Recommendations from the Joplin Tornado Investigation

Recommendation Interested Parties

Organization with Lead 

Responsibility for 

Implementation

Recommendation 6: NIST recommends the development of risk–balanced, performance–based 

tornado design methodologies such that all building components and systems meet or exceed the 

same performance objectives when subjected to tornado hazards.

Academia, ASCE, 

ATC, Design and 

construction industry 

(including ACI, AISC, 

AWS, NAHB, PCA, 

SDI, SJI, TMS), ICC, 

NFPA

NIST, FEMA

Recommendation 7: NIST recommends that: (a) a tornado shelter standard specific for existing 

buildings be developed and referenced in model building codes; and (b) tornado shelters be 

installed in new and existing multi–family residential buildings, mercantile buildings, schools and 

buildings with assembly occupancies located in tornado hazard areas identified in the performance–

based standards required by Recommendation 5.

Academia, FEMA, 

NAHB, NFPA, States 

and authorities having 

jurisdiction (AHJ) in 

tornado–prone areas 

ICC

Recommendation 8: NIST recommends the development and implementation of uniform national 

guidelines that enable communities to create safe and effective public sheltering strategies. The 

guidelines should address planning for siting, designing, installing, and operating public tornado 

shelters within the community.

IAEM, IAFC, ICC, 

NAC, NCSL, NEMA, 

NFPA, NSF, NWS

FEMA

Recommendation 9: NIST recommends that uniform guidelines be developed and implemented 

nationwide for conducting assessment of tornado risk to buildings and designating best available 

tornado refuge areas as an interim measure within buildings until permanent measures fully consistent 

with Recommendations 5 and 7 are implemented.

Academia, DHS S&T, 

IAEM, IAFC, ICC, 

NAC, NCSL, NEMA, 

NFPA, States and AHJs 

in tornado–prone areas

FEMA

Recommendation 10: NIST recommends that aggregate used as surfacing for roof coverings and 

aggregate, gravel, or stone used as ballast be prohibited on buildings of any height located in a 

tornado–prone region.

ASCE, NFPA, SPRI, 

States and AHJs

ICC

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Summary of NIST Recommendations from the Joplin Tornado Investigation

Recommendation Interested Parties

Organization with Lead 

Responsibility for 

Implementation

Recommendation 11: NIST recommends that enclosures of egress systems (elevators, exits, 

stairways) in critical facilities in tornado–prone areas be designed to maintain their functional 

integrity when subjected to tornado hazards.

BOMA ICC, NFPA

Recommendation 12: NIST recommends that (a) tornado vulnerability assessment guidelines for 

critical facilities be developed and (b) owners and operators of existing critical facilities in tornado–

prone areas perform tornado vulnerability assessments, which includes steps to protect the 

functionality of (1) backup power supplies, (2) vertical movement within the building (elevator 

equipment and shaft enclosures), and (3) means of egress illumination (battery–powered lighting in 

addition to backup power), in a tornado event.

BOMA, DHS IP, 

DHS S&T, IFMA, 

NFPA, States and AHJs 

FEMA

Group 3: Pattern, Location, and Cause of Fatalities and Injuries, and Associated Performance 

of Emergency Communications Systems and Public Response

Recommendation 13: NIST recommends the development of national codes and standards and 

uniform guidance for clear, consistent, recognizable, and accurate emergency communications, 

encompassing alerts and warnings, to enable safe, effective, and timely responses among individuals,

organizations, and communities in the path of storms having the potential to create tornadoes.

NIST also recommends that emergency managers, the NWS, and the media develop a joint plan and 

take steps to make sure that accurate and consistent emergency alert and warning information is 

communicated in a timely manner to enhance the situational awareness of community residents, 

visitors, and emergency responders affected by an event.

Academia, FEMA, 

IAEM, ICC, NEMA, 

and NWS

NFPA

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Summary of NIST Recommendations from the Joplin Tornado Investigation

Recommendation Interested Parties

Organization with Lead 

Responsibility for 

Implementation

Recommendation 14: NIST recommends that the full range of current and next–generation 

emergency communication “push” technologies (e.g., GPS–based mobile alerts and warnings, reverse 

9–1–1, outdoor siren systems with voice communication, NOAA weather radios) be deployed and 

utilized to maximize each individual’s opportunity to receive emergency information and respond 

safely, effectively, and in a timely fashion.

Academia, DHS, FCC, 

IAFC, NEMA, NFPA, 

NWS

FEMA

Recommendation 15: NIST recommends research be conducted to identify the factors that will 

significantly enhance public perception of personal risk and promote rapid and effective public 

response during emergencies, including tornadoes.

Academia, DHS, ICC, 

NFPA, NWS

NSF, NIST

Recommendation 16: NIST recommends that technology be developed to provide tornado threat 

information to emergency managers, policy officials, and the media on a spatially resolved real–time 

basis to supplement the currently deployed official binary warn/no warn system.

FEMA, IAEM, Media 

industry, NEMA, 

NFPA

NOAA

Key: ACI, American Concrete Institute; AHJ, authority having jurisdiction; AISC, American Institute of Steel Construction; ASCE, American Society of Civil 

Engineers; ATC, Applied Technology Council; AWS, American Welding Society; BOMA, Building Owners and Managers Association International; DHS, U.S. 

Department of Homeland Security; DHS IP, DHS Office of Infrastructure Protection; DHS S&T, DHS Science and Technology Directorate; DOE, U.S. Department 

of Energy; FCC, Federal Communications Commission; FEMA, Federal Emergency Management Agency; IAFC, International Association of Fire Chiefs; IAEM, 

International Association of Emergency Managers; ICC, International Code Council; IFMA, International Facility Managers Association; NAC, National 

Association of Counties; NAHB, National Association of Homebuilders; NCSL, National Conference of State Legislators; NEMA, National Emergency 

Management Association; NFPA, National Fire Protection Association; NIST, National Institute of Standards and Technology; NOAA, National Oceanic and 

Atmospheric Administration; NRC, U.S. Nuclear Regulatory Commission; NSF, National Science Foundation; NWS, National Weather Service; PCA, Portland 

Cement Association; SDI, Steel Deck Institute; SJI, Steel Joist Institute; SPRI, Single Ply Roofing Industry; TMS, The Masonry Society.

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