I would say it's by providing support and expertise in terms of surveillance and diagnostic capacity and physical resources, but being careful not to mandate activities in a very strict way and automatically tie them to funding.
There have been examples in research in the U.S. In 2001-02, there were mandates to prepare for anthrax or white powder events. U.S. federal funding was tied to those preparations, and it led to declines in preparation for other emergencies that would be much more common than bioterrorism, such as hurricanes and other events.
Hospitals in New Orleans, for example, were more prepared for bioterrorism than they were for Hurricane Katrina, with disastrous results.