ii
The following people and organizations provided valuable assistance towards this regional report and their contribution is hereby acknowledged.
Cook Islands Solomon Islands Mr Tere T Bishop Mr RandallBiliki Chairman Secretary National Disaster Management Committee National Disaster Council
Fiji Tonga Mr Joeli Rokovada Mr Sione Taumoepeau SemorSecretary Director Ministry of Fijian Affairs & Regional Development Ministry of Works
Kiribati Tuvalu Mr Iamti Tawita Mr Emau Lemako Assistant Secretary for Home Affairs & Rural Development Assistant Secretary General
Federated States of Micronesia Vanuatu Mr Chutomu Nimwes Chief Inspector Knox Kalkaua Special Assistant to the President on Disaster Coordination Director National Disaster Management Office Marshall Islands Mr Clement Capelle Western Samoa Disaster Coordinator Leiataua Dr Kilifoti Eteuati Secretary to Government Palau Mr Abel Suzuki SOPAC Coordinator Russell Howorth National Emergency Management Office Training Coordinator
Papua New Guinea Forum Secretariat Mr Leith Anderson David Esrom Director Environment Liaison Officer National Disaster & Emergency Services
Report prepared by: DHA-SPPO SPREP EMA (Australia) USAID/OFDA Joseph Chung Neville Koop Trevor Hatchard Joanne Burke Luc Vrolijks
ISBN 0646182056 Published March 1994
Final edit and preparation by Peter May, Manager Disaster Awareness Programme, Emergency Management Australia.
Published by Emergency Management Australian on behalf of the Australian IDNDR Coordination Committee. This document is printed on recycled paper.
Printed in Australia by Pirie Printers Pty Ltd, 140 Gladtsone Street, Fyshwick ACT 2609 m FOREWORD
Those of us who are fortunate to call the Pacific Islands home are often reminded of the ravages inflicted on the region by the frequent occurrences of natural disasters. Tropical cyclones, drought, floods, earthquakes, landslides, tsunami and volcanic eruptions are a selection of the hazards in the region. Because of their unique environmental, economic and social circumstances, Pacific island countries (PICs) are particularly vulnerable to natural hazards.
The decision of the United Nations General Assembly to designate the 1990s as the International Decade for Natural Disaster Reduction (IDNDR) means that all countries and agencies should collaborate and pool their resources to reduce the devastation and massive loss of lives often caused by natural disasters. Frequency of disaster occurrence is high in the Pacific region, resulting in constant disruption to social and economic development of countries. In normal circumstances, these vulnerable countries do have difficulties implementing projects successfully without any external disruptions from natural hazards. Therefore for any meaningful and sustained development to be possible, PICs must take up the challenge of the Decade and work towards a programme that will mitigate the long-term impact of natural disasters, thus reducing or hopefully eliminating one of the major constraints to development. The Decade has provided the challenge and the catalyst for all the disaster-prone PICs to actively and persistently strive towards achieving the goals of IDNDR. It was adopted by the UN General Assembly that, by the year 2000, all countries, as part of their plans to achieve sustainable development, should have in place the following:
• Comprehensive national assessment of risks from natural hazards, with these assessments taken into account in development plans. • Mitigation plans at national and/or local levels, involving long-term prevention and preparedness and community awareness. • Ready access to global, regional, national and local warning systems and broad dissemination of warnings.
This regional report provides the frarnework and a clear starting point for all countries in the region to begin to analyse the disaster issues that affect them and to review current activities and future programmes planned to achieve the IDNDR targets at the local, national and regional levels. It is a collective policy statement of the PICs. It maps out a common policy that will enable countries to achieve their own goals and that of the Decade. Only through real commitment by PICs and the international community will these goals are possible.
The role of both SPREP and DHA-SPPO is to provide, wherever possible, technical assistance and funds towards the achievement of the goals of IDNDR. They will work closely with bilateral, multilateral donors, NGOs and other regional organizations to ensure the success of disaster reduction strategies as outlined in this regional report.
/'-" --"",--- ~hChung Chief Technical Adviser DHA South Pacific Programme Office v
CONTENTS
FOREWORD iii
PREFACE vii
REPORT ABSTRACT ix
INTRODUCTION 1
Chapter 1 THE SETTING 3 1.1 The Region and Environment 3 1.2 Hazards of the Region 5 1.3 Levels of Vulnerability 8 1.4 National Disaster Institutions 9
Chapter 2 CURRENT AND PREVIOUS DISASTER-RELATED ACTIVITIES 11 2.1 National Activities 11 2.2 Regional Organizations 12 2.3 International Assistance 13
Chapter 3 ISSUES IN DISASTER REDUCTION 17 3.1 A Common Basis for Reduction 17
Chapter 4 COMMON STRATEGY FOR DISASTER REDUCTION 25 4.1 Human Resource and Institutional Development 25 4.2 Disaster Planning and Procedures 26 4.3 Hazard, Vulnerability and Risk Assessment 26 4.4 Community Awareness and Disaster Warning 27 4.5 Disaster Reduction for Sustainable Development 29
Chapter 5 MEANS OF STRATEGY IMPLEMENTATION 31 5.1 National Policies, Resources and Capacities 31 5.2 Regional Cooperation and Support 32 5.3 International Assistance: Ongoing and New Initiatives 35
Chapter 6 THE INTERNATIONAL DECADE FOR NATURAL DISASTER REDUCTION IN THE SOUTH PACIFIC REGION 37 6.1 First Half of the Decade: IDNDRActivities in the South Pacific Region 37 6.2 IDNDRin the Second Half of the Decade: Towards an Action Programme 38 6.3 Action Programme Recommendations 39
CONCLUSION 41
ACRONYMS 43
ACKNOWLEDGEMENTS 45 vii
PREFACE
AUSTRALIA'S INVOLVEMENT
Australia's participation in the International Decade for Natural Disaster Reduction was announced by the Prime Minister on 21 Apri11989. To pursue the objectives of the Decade, an Australian IDNDR Coordination Committee was formed under the chairmanship of the Director General Emergency Management Australia, with wide representation from government and from academic, scientific and local communities.
Although the Committee is concerned about disaster reduction within Australia, it also gives significant attention to the needs of neighbours in the South Pacific region. Strong links have been established with the United Nations Department of Humanitarian Affairs in Fiji (UNDHA-SPPO) and on a collective and bilateral basis with Pacific nations.
The development of this regional report began when the Australian IDNDR Coordination Committee held a workshop for South Pacific disaster managers in Honiara, Solomon Islands in May 1992. At that time only three Pacific island countries were members of IDNDR.
A second meeting was sponsored by Australia in August 1993 in Port Vila, Vanuatu. By that time a further two Pacific island countries were members of IDNDR. This activity was organized in response to the resolution of the third session of the IDNDR Scientific and Technical Committee (STC) which encouraged the holding of preparatory meetings, both regional and technical, relevant to the World Conference. The meeting resolved to develop this South Pacific Regional Report for the World Conference.
Subsequently, it was also resolved that a regional organization should coordinate the preparation of the report. This has been done by the South Pacific Regional Environment Programme (SPREP) assisted by UNDHA SPPO, United States Agency for International Development and Emergency Management Australia.
To date 12 Pacific nations have joined IDNDR and arrangements are being made to form a regional IDNDR committee.
The Australian IDNDR Coordination Committee has been privileged to work in partnership with Pacific island nations. Together, we can ensure that the outcomes for the Decade are positive, and that there will be a significant reduction in the loss of life and property damage from natural disasters as a result of our combined efforts.
~.
Brigadier Alan Hodges Chairman Australian IDNDR Coordination Committee IX NATURAL DISASTER REDUCTION IN PACIFIC ISLAND COUNTRIES ABSTRACt
The South Pacific Report to the World Conference on Natural Disaster Reduction represents the voice of 14 Pacific Island Developing Countries. It describes the region, its natural hazards and vulnerabilities and outlines a common strategy and the means necessary to implement this strategy. The region is characterised by small land masses dispersed over the world's largest ocean. A wide range of natural disasters occur in the region, with tropical cyclones as the most common and damaging natural hazard. The small island developing states of the Pacific are extremely vulnerable to these hazards, and consequences to individual countries often reach severe proportions.
The report describes the main issues that have shaped the way in which disaster management has developed and which form the constraints and opportunities for disaster reduction during the remainder of the IDNDR. The overriding issue is that disasters frequently and intensivelydisrupt the development of countries in the region. Other issues are the scale and orientation of economies, population growth and concentration and limited human resources. An issue of considerable concern is climate change and sea level rise, which may have a profound impact on the region.
The common strategy for disaster reduction outlined in the report comprises four key areas: human resource and institutional development; hazard and risk assessment; disaster warning and community preparedness; and disaster mitigation for sustainable development. For these key areas the report outlines approaches and priorities. The means of implementation outlined in the report puts the primary responsibility within the countries but concludes that their efforts will need to be supplemented by regional and international organizations and other donors. The report emphasises the need for effective cooperation and collaboration at national and regional level.
IDNDR has had only limited impact in the South Pacific region to date and only a small part of the disaster programmes in the region is linked to the Decade. It would be beneficial to the region if the IDNDR infrastructure is used to strengthen the implementation of the common strategy for disaster reduction. The opportunities identified in the report include contribution to raising awareness within the region, improved access to scientific and technological information and increased appreciation of the characteristics and vulnerabilities of Pacific island states, leading to further cooperation.
The report urges the World Conference and the IDNDR Secretariat to give special recognition to small island developing states. Towards an action programme for the second half of the decade, the document recommends the following: 1. The focus of the second half of the decade be on the implementation of disaster mitigation projects at national and regional levels. 2. The High Level Council and the Scientific and Technical Committee be tasked to actively support fund-raising for identified disaster mitigation projects. 3. Action be taken to support and facilitate the setting up of a South Pacific Regional IDNDR Committee for the exchange of ideas, information and strategies for disaster reduction in the region. 4. Action be taken to appoint a representative, nominated by the South Pacific Regional IDNDR Committee, of Pacific Island Developing Countries for the Scientific and Technical Committee. 5. The IDNDR Secretariat intensify efforts to facilitate exchange and cooperation between regions. INTRODUCTION
This report represents the voices of 14 Pacific Island Developing Countries. It outlines the problems and opportunities we see to address the issue of disaster reduction in our region. The countries represented in this report are: Cook Islands, Federated States of Micronesia, Fiji, Kiribati, Marshall Islands, Niue, Palau, Papua New Guinea, Solomon Islands, Tokelau, Tonga, Tuvalu, Vanuatu and Western Samoa. In international disaster management circles, the South Pacific is sometimes seen as an annex to the Asia region. One of the aims of this report is to increase the international community's understanding and appreciation of the unique character of our societies, along with the vulnerabilityand the hazards we face.
Natural disasters are one of the specific threats to which our smallisland developing states are exposed. It will be a major challenge to reduce the impact of natural disasters in our countries, especially in view of increasing vulnerabilities and potential impacts of climate change and sea level rise. We see regional cooperation and a common strategy in addressing this challenge as a viable way to eptimize our efforts in meeting the objectives of the International Decade for Natural Disaster Reduction. It is hoped that the IDNDR initiative and the World Conference for Natural Disaster Reduction can contribute to this shift from disaster response towards pre-disaster planning and disaster reduction.
The report is prepared as a contribution to the World Conference on Natural Disaster Reduction, held within the framework of the Intemational Becade for Natural Disaster Reduction in Yokohama, Japan, in May 1994. We outline a common approach for the South Pacific, presenting six strategic measures to reduce disasters in our region, including the means and actions that we consider necessary to implement these strategies. It is hoped that the International Decade for Natural Disaster Reduction will serve as a catalyst for the implementation of our disaster reduction strategy, and similar efforts around the world.
This contribution to the World Conference is based upon reports prepared by national IDNDR committees in the region, consultations with all regional countries in January - February 1994 and the following recent meetings and workshops: • South Pacific Regional Meeting of lJllNI>R Committee Representatives, Port Vila, Vanuatu, 25-26 August 1993. • South Pacific Workshop, United Nations Disaster Management Training Programme, Apia, Western Samoa, 29 November to 4 December 1993. • Regional INSARAG meeting, Apia, Western Samoa, 6-7 December 1993. • Regional Technical Meeting for the Pacific and Indian Ocean, in preparation of the World Conference on Sustainable Development of Small Island Developing States in Barbados in 1994, Port Vila, Vanuatu, 31 May to 4 June 1993. • South Pacific Disaster Managers Workshop, Honiara, Solomon Islands, 11-14 May 1992.
Chapter 1 of the report describes the context in which our disaster reduction efforts will take place. It describes the hazards, vulnerabilities and institutional arrangements that form the basis of our operations. Chapter 2 describes current and recent activities in disaster management at national, regional and international level. In Chapter 3, we outline what we see as the main issues in disaster reduction in the South Pacific region, while Chapter 4 formulates our common strategy to reduce disasters in our region. Chapter 5 identifies the means considered necessary to implement this strategy. Chapter 6 finally, describes how our efforts are linked to the International Decade, and suggests how IDNDR can further contribute to our disaster reduction efforts. 3
CHAPTERl
THE SETTING
1.1 THE REGION AND ENVIRONMENT
The South Pacific is unique, not only because our geographical, biological, sociological and economic characteristics are found nowhere else in the world, but also particularly because of the combination of these characteristics in our region. The combined Exclusive Economic Zones (EEZ) of the countries occupy 30 million square kilometres, but the land area is only 1.8 percent of that total. The area has an estimated population of 5.8 million, of which 4 million are in Papua New Guinea. The island countries vary greatly in their physical and economic characteristics and their resource endowments.
The South Pacific covers a vast area, with small land masses dispersed over part of the world's largest ocean. Even within countries, distances can be vast. The region's economic and cultural base is highly dependent upon the natural environment and is vulnerable to a wide range of natural hazards. The cultures and languages, traditional practices and customs of the region are very diverse. Land tenure systems vary throughout the region, but are commonly based on communal land ownership patterns, in which a large degree of communal control is retained over land use and the exploitation of natural resources. 4
The Melanesian countries of Fiji, Papua New Guinea, Solomon Islands and Vanuatu are extensions or parts of undersea mountain ranges. They comprise large, rugged, mainly volcanic islands which are generally rich in natural resources. They have relatively fertile land, mineral wealth and abundant living marine and terrestrial resources.
Micronesia and Polynesia are made up of countries comprising small island groups. The Cook Islands, the Federated States of Micronesia (FSM), Tonga and Western Samoa have some volcanic islands with rich soil. Most of the islands are however small, isolated atolls with poor soils. Among these are Kiribati, Marshall Islands, Tokelau and Tuvalu, where the highest elevation does not exceed five meters and is commonly between one and two meters. The seas of Polynesia and Micronesia are Upolu, Western Samoa generally rich in living resources and reported to have significant prospects tor exploitable non-living resources, but apart from these, the natural resources of these islands are severely limited.
Global concerns about the inter-relation between natural disasters and the environment, and their combined impacts on society, are of particular relevance to the South Pacific. First because natural disasters cause extensive disruption of the development process in small island states, and second because of the high degree of dependency on the natural environment
The way in which Pacific island countries may be affected by climate change is not yet clearly established. However, there is widespread concern about the potential impact that may be inflicted on the vulnerable natural and human environment of the region. Part of this concern is that potential global warning may induce an increase in the severity and frequency of meteorological and hydrological hazards in the region.
Increasing frequency and intensity of tropical cyclones, increased rainfall, heavier floods and higher storm surge levels are all hazardous phenomena that may be associated with climatic change. Some sources indicate that an increase in intensity and frequency of natural hazard impacts may well be one of the first climate change effects on populations. These sources continue to conclude that "the obvious path for development planning, sensitive to the threat of global warming and to losses from natural disaster, is firstly to improve the ability to manage current hazards".
Better management of current hazards also includes increasing efforts to reduce the vulnerability of communities and natural environments to these hazards. This will require increasing efforts of countries, communities and individuals. This is of particular importance in the Pacific region in view of the frequency of natural disasters caused by cyclones, floods and droughts, and the vulnerability of human and natural environments.
I 5
1.2 HAZARDS OF THE REGION
The Pacific is often exposed to extremely damaging natural hazards, primarily in the form of catastrophic cyclones, volcanic eruptions and earthquakes. Some islands are also susceptible to landslides, extended droughts and extensive floods. A table showing regional nations' vulnerability to these hazards appears on page 9. For those affected by these natural hazards, the economic, social and environmental consequences can be severe and long-lasting. As a result of climate change, disaster events, such as cyclones, droughts and floods are forecast to occur in increasing frequency and intensity, and Pacific island developing countries increasingly recognize the need and challenges to addressing these issues.
Of the natural hazards that affect the South Pacific region, tropical cyclones are the most frequent and have the most damaging effect. For example, the Republic of Vanuatu is one of the most cyclone prone of the Pacific island nations with 29 cyclones between 1970 and 1985. A recent study concluded that in any 20-year period since 1940, any given location in Vanuatu would be affected by around 10 cyclones. Similar figures exist for a number of other countries in the region. The countries most at risk from Aftermath of Cyclone Val- Savaii, Western Samoa, 1991 tropical cyclones include Vanuatu, Fiji, Solomon Islands, Tonga, Niue, Cook Islands, Western Samoa, Palau, FSM and Marshall Islands.
Tropical cyclones are relatively rare in Kiribati, Tuvalu, PNG and Tokelau, but even in these countries, damaging cyclones do occur. Tokelau for example had only recorded three such storms since 1846, until the last five years, when the country experienced two cyclones (Tusi and Of a). Ofa was so severe that waves completely covered the islets of the atoll, washing away topsoil. Residual salt prevented crop growth for some months and salt contaminated the freshwater lens making it too brackish for drinking purposes. Papua New Guinea was affected by cyclones as recently as May 1993 and January 1994.
Cyclone Namuflood damage - Solomon Islands, 1986 6
Tropical cyclones in many cases trigger other hazards, in particular storm surge, flash-floods and landslides. In fact the most serious impact of a tropical cyclone, in many cases is caused by the coastal and riverine floods that often follow. Wave impact associated with cyclones can be particularly severe on atolls, where sometimes the landscape is drastically altered after cyclones. In Tuvalu for example, tropical Cyclone Bebe hit Funafuti in October 1972, and formed a huge rubble rampart of 18 km. long, which is still visible today. One of the major disruptions in Fiji after Cyclone Kina in 1993 was that three major bridges were washed away by flood waters.
Landslides can cause major disasters, in particular in the Melanesian countries. They often happen as a secondary disaster to cyclones or earthquakes. Research has shown that landslides in Fiji are in most cases triggered by heavy rainfall, often associated with tropical cyclones. The most extensive landslides were recorded after Cyclone Wally in 1980, when Fiji's main road between Navua and Yarawa was blocked by 45 huge landslides.
Droughts are slow-onset disasters, and their impact tends to be underestimated. But especially on atoll islands, droughts can impose considerable hardship. For example during the 1950s a considerable number of i-Kiribati* were resettled to the Solomon Islands. Kiribati, now an independent country, needs to develop its capabilities to deal with such a situation, because if a similar event were to occur again, it would have to solve the problem within its own borders.
Although earthquakes and volcanic eruptions do not frequently cause large scale disasters, they pose considerable threats to some of the South Pacific countries, in particular Vanuatu, Fiji, Tonga, Solomon Islands and Papua New Guinea. The recent earthquakes in Papua New Guinea caused 41 deaths and forced the evacuation of over 7000 people, mainly because of landslide hazards. (see opposite page) " Tsunamis have not frequently caused disasters in recent times, Manam Volcano - Papua New Guinea although their generation is considered one of the potentially serious consequences of earthquakes for most of the region.
Global warming and sea level rise are the most serious long term disaster threat. Pacific island countries are particularly vulnerable because they include many hundreds of low-lying islands and atolls, house most of their populations in coastal zones, and depend on extremely scarce supplies of potable ground water.
*People of Kiribati.
8
1.3 LEVELS OF VULNERABILITY
A number of studies have indicated that small island states have high levels of vulnerability to natural hazards. The South Pacific region is no exception, and natural hazards tend to have considerable impact on the economies of Pacific island countries. The consequences for individual countries often reach severe proportions due to the following factors:
1.3.1 Proportionately Very High Disaster Impact - Pacific island countries, in terms of physical size and their economies, are usually dependent on a narrow range of commodities, mainly from the agricultural, fisheries, and forestry sectors. The disaster impact is often proportionately very high, paralysing a whole country and causing damage that may be equivalent to annual GNP and resulting in very long recovery period. This places considerable stress on small island economies, destabilising other development processes.
1.3.2 Fragile Island Environments - The narrow resource base and the limited carrying capacity of the environments of countries in the South Pacific make them vulnerable to long term damage by natural and man-made disasters. Atoll communities and settlers of coastal plains are vulnerable to tropical cyclones, storm surges and coastal floods due to the characteristics of their environments, in which houses, agriculture and water sources are easily damaged or destroyed by natural hazards.
1.3.3 Scattered and Isolated Island Communities - Pacific island countries are characterised by their scattered and isolated communities of small size, with limited resources. This means it is both difficult and expensive to keep such communities aware and prepared, and to provide emergency assistance. Transportation and communication become extremely important in these circumstances, and their limitations and cost make it difficult to reduce the impact of disaster.
1.3.4 Urbanization and Population Pressure - The vulnerability of populations in both rural and urban areas to natural disasters is increasing because of growth rates and urbanization. Increasingly, hazard-prone urban fringe areas are settled. Newcomers in these urban areas often do not have the resources or knowledge to take adequate precautions against natural hazards. Urbanization tendencies give rise to high population densities and increase the vulnerability of communities. Loss of agricultural land and degradation of forests, lagoons and reefs, following urbanization, further increase the natural disaster risks.
1.3.5 Degradation of Traditional Coping Mechanisms - Traditionally, Pacific island communities had developed numerous measures to help them withstand the impacts of natural hazards, although often not without considerable hardship. These measures included food preservation, planting of 'disaster crops' and systems of social support between individuals and communities. However, economic and social change, as well as urbanization are factors that have reduced the efficacy, or the incentive to maintain many of the traditional measures. This results in an increased dependency on governments and external donors, and a decline in self-reliance.
These vulnerabilities follow from the characteristics of our societies and present day development processes. Our major challenge in disaster reduction is to formulate and implement strategies to reduce the vulnerability of Pacific island communities within this context. 9
PACIFIC ISLAND COUNTRIES ESTIMATED LEVEL OF VULNERABILITY TO SPECIFIC NATURAL HAZARDS
Coontry Population Land Area Cydone 0mtaI River Drought Em1hquake Land!iide Tsunami Volcanic (km2) Aood Aood Fruptim
Cook Islands 19,500 240 M M L H L L M - Federated States of 114,800 701 M H L H L L H - Micronesia Fiii 752,700 18,272 H H H M M H H - Kiribati 76,000 725 L H - H L L H - Marshall Islands 50,000 181 M H - H L L H - Niue 2,300 258 M L - M L L M - Palau 21,600 494 M M - M L L M - Papua New Guinea 4,056,000 462,243 L H H M H H H H Solomon Islands 337,000 28,370 H H H L H H H H Tokelau 1,600 12 M H - H L L H - Tonga 97,400 720 H H M M H L H H Tuvalu 9,100 24 L H - M L L H - Vanuatu 156,500 12,200 H H H L H H H H Western Samoa 163,000 2,935 M H H L M H H L
H = HIGH M = MEDIUM L = LOW
1.4 NATIONAL DISASTER INSTITUTIONS
Most countries in the region have some institutional mechanism in place to cope with natural disasters. In general however, responsible organizations are oriented towards emergency response and disaster relief, with some limited disaster preparedness responsibilities. Institutional arrangements vary considerably between countries, but two typical models can be distinguished:
1.4.1 The first model often has a relatively strong disaster organization, with responsibilities that are limited to the management of the immediate emergency. These organizations are usually linked to police forces. This type of disaster organization operates in the Cook Islands and Vanuatu. One problem is that the emergency management organization misses the link with development and reconstruction aspects of natural disasters. Responsibility for the preparation of rehabilitation programmes tends to be unclear in situations where the formal disaster management organization is only charged with disaster preparedness and emergency response. This often leads to a lack of emphasis and lower priority for disaster mitigation activities. Efforts to include disaster considerations in development planning are often limited by inadequate linkage between disaster managers and development planners. The Cook Islands government is currently working to expand the roles of its disaster organization to address these issues. 10
1.4.2 The second model is one in which a government agency or team has a broad range of responsibilities in disaster management This includes disaster mitigation, preparedness, emergency response, relief and rehabilitation. These organizations are often responsible for a host of other activities, eg in Papua New Guinea, fire, police-emergencies, civil strife and search and rescue are included in the portfolio of the disaster manager. Fiji and Palau are other examples of such organizational structures. Although this type of organization enables a broad approach to disaster management, they tend to be weak, due to a lack of support from other government departments and lack of government commitment. Disaster managers often operate in isolation without adequate backing.
National level organizations are the key organizations for effective disaster management in our region and further strengthening of these organizations is a precondition for disaster reduction. Efforts to strengthen disaster management will need to take into account the differences between countries in terms of their organization models and will need to improve the weak points in each of the models. This will include linking of rehabilitation and development to disaster management in the first model, and strengthening of the operational capabilities and arrangements in the second model. For both models to be effective, considerable political will is needed:
The status, applicability and quality of national disaster plans varies widely over the region. Some countries do not have approved disaster plans, others are outdated or are rigidly based on models followed in other countries without adequately taking into account specific local circumstances. Strengthening of national disaster management organizations will need to be combined with a review and revision of national disaster plans, as part of improving the basis of disaster-related activities.
While their work is often not formally recognized, non-government organizations [NGOs], especially women's and church groups, play an important role in post-disaster response, especially in the provision and/or distribution of relief. These groups have considerable untapped potential to contribute to the reduction of community disaster vulnerability through preparedness and mitigation activities as well as through their roles in public awareness building and education. Efforts to reduce the impact of disasters in the region should encompass institutional strengthening for NGOs so they can better carry out their roles. NGOs also need to be recognized by governments as partners in disaster reduction. 11
CHAPTER 2
CURRENT AND PREVIOUS DISASTER-RELATED ACTIVITIES
2.1 NATIONAL ACTIVITIES
Disasters, and in particular tropical cyclones, are a part of life in the South Pacific and disaster preparedness measures have been carried out from early times. Still, in most contemporary Pacific island countries the major response strategy to disasters is to react to the events once they have occurred through the provision, receipt and redistribution of relief assistance. Similarly, rehabilitation of infrastructure and major economic activities (eg agriculture, tourism) are major tasks following disasters.
While large amounts of bilateral and multilateral assistance are required for disaster relief and rehabilitation, it is widely considered that it accounts for only a small portion of public and private sector losses. Cyclone Kina [1993] in Fiji is a case in this point. The total assistance for disaster relief amounted to US$4.37 million, while the redeployment of government funds from the 1993 budget exceeded US$26 million, including provisions for relief food supplies for 115,000 people, costing the government more than US$7 million.
The region recognizes the need to provide effective and expedient emergency management, disaster relief and reconstruction. It also attaches great importance to assisting communities and sectors of society to prepare for natural hazard impacts and to reduce the risks to which communities are exposed. The activities carried out in this respect have been constrained by limitations in resources and by other pressing priorities. Nevertheless, progress has been made in disaster preparedness and disaster reduction. There has been increased attention to improve disaster preparedness, especially in the form of community awareness programmes. Primarily these include some public awareness activities combined with limited arrangements for disaster preparedness of government departments. These activities were adequate given the limited resources, but disaster preparedness definitely requires strengthening.
Disaster mitigation, as a deliberate activity to reduce the effects of future natural hazard impacts, has been practised as part of our traditional coping mechanisms, but has received less attention as a separate activity in present day activities by disaster authorities. In most countries in the region, disaster reduction has however been undertaken to a certain extent as part of normal, on-going development efforts, often not linked to disaster management. These include flood control schemes, coastal protection, improvement of building standards and other activities that have reduced the risks to which communities are exposed.
Natural disasters have in some cases been a concern of those involved in development planning and practical programming. Yet we have not yet been able to systematicallyinclude disaster considerations in development planning and programming. This is in part due to the lack of institutional capabilities to appraise potential disaster impacts and identify possible remedies, and partly due to a lack of comprehensive assessments of hazards and vulnerabilities. We are further becoming increasingly aware of the risks of complacency. After a few years free from a major disaster, sometimes priority 12 for disaster preparedness and reduction fades and is shifted to on-going and every day needs associated with the provision of government services and with management and initiation of development activities, sometimes irrespective of their vulnerability to disaster. Maintaining a state of alert and preparedness and bolster linking disasters to development are two of the more critical challenges facing the region.
For a more detailed account of activities in individual countries, refer to the lONDR Country reports, as prepared by individual countries for the World Conference on Natural Disaster Reduction.
2.2 REGIONAL ORGANIZATIONS
Regional organizations play an important role in the South Pacific. Because of the limited human resources in individual countries, regional organizations provide specialised services to member countries, mainly in the fields of environment, applied geosciences, agriculture and fisheries. The Universities of the South Pacific [USP] and Papua New Guinea (UPNG) provides tertiary education to the region and there are several fora for policy coordination.
Regional support for disaster management has been somewhat fragmented over the last decade. The most sustained period of regional disaster reduction activity was in the early and mid-1980s when the Pacific Island Development Programme [PlOP] at the East-West Centre of the University of Hawaii, conducted a five year disaster preparedness project. The programme was funded by USAID. It produced some 30 manuals and publications that included: a comprehensive overview of disaster experience and response in Pacific island countries; surveys of housing vulnerability in a number of countries and the production of manuals showing simple ways to strengthen homes; a housing demonstration project in the Solomon Islands; production of manuals on disaster preparedness planning and post-disaster assessment; and production of disaster profiles for selected countries. PIDP also held a number of meetings and workshops. The main problem with the programme was the lack of in-country follow-up activities, yet programme outcomes may still serve as a basis for building in-country capabilities and institutions.
Following this programme, the Forum Secretariat had a regional disaster adviser for a period of three years. Unfortunately, this did not lead to any regional disaster reduction programme. The South Pacific Forum meeting is an important policy making body for the region. The Forum Secretariat operates a regional trust fund for disaster assistance. This fund provides relief assistance to member governments up to approximately US$13,000 per event.
Over the years, regional organizations, in particular SPREP and SOP AC have increasingly started to integrate disaster matters within their own mandates. SOPACs involvement in disasters is linked to the work on geological processes which are recognized as hazards in the island nations of the Pacific. The organization has been involved in post-disaster assessment after numerous cyclones and other disasters, focusing on coastal erosion and accretion, landslides and other on-shore geological processes and damage to infrastructures. As part of its coastal management programme, SOPAC has assessed the impact of hazards, including cyclones, storm surges, tsunamis, coastal erosion and sea level rise on the coastal zones of Pacific island countries. The results are applied to development projects to optimize the design and operation of coastal structures and minimise any adverse impacts. SOPAC is further involved in the mapping of geological hazards and its training programmes continue to foster a better understanding of geological processes and potential resultant hazards and disasters. 13
Through its current programmes, SPREP's involvement in natural disasters is mainly linked to medium and longer term environmental changes and processes, and their actual as well as possible impact on Pacific island countries. SPREP has been called upon in the past to assess environmental impacts of natural disasters, in particular the effect of tropical Cyclone Ofa on the native forests of Western Samoa. SPREP's expertise in this area is available to all countries in the region. The SPREP climate change programme has close linkages with natural disasters, and the risks they impose. SPREP has carried out a number of studies in several Pacific island countries to assess the coastal vulnerability and resilience to climate change and sea level rise. SPREP is currently in the process of including a number of new disaster- related projects in its work programme. These include hazard assessment and mitigation in the framework of integrated coastal zone management and appraisal of hazard impacts on the natural environment.
2.3 INTERNATIONAL ASSISTANCE
Most donor countries and other organizations that are active in development cooperation in the region also provide relief assistance after natural disasters. Australia, New Zealand and France have recently signed a formal agreement to coordinate their disaster relief assistance. For other donors, no such arrangements exist, and support is given on a country by country basis. Assistance for disaster rehabilitation is also provided by a large number of donor countries and, organizations often concurrent with existing Emergency supplies arrive at Port Vila, Vanuatu programmes. following Tropical Cyclone Prema, 1993
An important activity in tropical cyclone prediction is the biennial World Meteorological Organization [WMO] Tropical Cyclone Programme [TCP] meeting. This meeting has identified the need for strengthening the capacity of Pacific meteorological services through training, technical assistance and upgrading of equipment. Other WMO Programmes, such as the World Weather Watch [WWW] and the World Climate Programme [WCP] are fundamental in determining meteorological hazards in the region.
Several donors are contributing, (or have done so) to the improvement of cyclone forecasting capabilities in the region. USAID funded a programme to enhance the satellite data receiving capability of SPSSD system at the Tropical Cyclone Waming Centre in Nadi and AIDAB has undertaken to install two wind surveillance radars in Fiji.
Substantial assistance to natural disaster reduction was provided by UNDP in the fourth cycle regional programme through funding of the "Regional Tropical Cyclone Programme" (RAS/86/l09). This programme provided equipment, technical assistance and training to improve and upgrade regional tropical cyclone forecasting and waming services and regional communication. 14
Support to disaster reduction activities further included Australian-assisted preparation of building codes for several countries in the region such as Fiji and Tuvalu. Within the framework of IDNDR, Australia has further helped develop a number of cyclone preparedness and assessment guidelines for Vanuatu and Solomon Islands. Other proposed Australian support for disaster management in the South Pacific includes in-country training workshops, printing of the revised disaster plan in Fiji, development of a media based awareness campaign for Solomon Islands and Vanuatu, and the provision of Australian disaster awareness materials and guidelines. Australia is currently funding a national disaster management adviser in Vanuatu. Assistance has been on-going for two years and has considerably strengthened Vanuatu's disaster management capacity, in particular in disaster preparedness and emergency operations. More detail on these programmes can be found in the Australian National Summary Report to the IDNDR World Conference on Natural Disaster Reduction.
Other disaster management assistance includes the South Pacific Programme Office of the United Nations Department of Humanitarian Affairs [DHA-SPPO], which provides technical assistance to Pacific island countries on a wide range of disaster management subjects. USAID has recently re- activated its post of regional disaster adviser, in cooperation with the Office of US Foreign Disaster Assistance [OFDA]. Several of the New Zealand bilateral development aid projects have disaster components. These include assistance to meteorological offices, geographic information systems, environmental and forestry projects, and assistance in the training of rural carpenters in Fiji. As part of a disaster rehabilitation programme, the Asian Development Bank is currently funding technical assistance in disaster management in the Marshall Islands. In Palau, Federated States of Micronesia and Marshall Islands several disaster mitigation projects are currently undertaken under an arrangement providing for USA Federal Emergency Management Agency [FEMA].
In recent years a number of workshops and meetings involving NGOs and government officials have been conducted with support from a variety of agencies. AODRO, a former Australian coordination body of NGOs has held a series of workshops for disaster preparedness for NGOs in most countries. Recent regional meetings of disaster managers have been organized and funded by DHA-SPPO (Fiji, 1991) and the Australian IDNDR Coordinating Committee (Solomon Islands, 1992 and Vanuatu, 1993). The most recent regional workshop was the South Pacific Workshop of the UN Disaster Management Training Programme, which was held in Western Samoa in 1993.
A relatively large number of disaster managers have participated in overseas training by the Asian Disaster Preparedness Centre [ADPC] in Bangkok and by the Australian Emergency Management Institute [AEMI] at Mount Macedon in Australia. Participation in ADPC courses was mainly funded by USAID, Australian International Development Assistance Bureau (AIDAB), ODA and EC, while funding for AEMI courses is generally provided by AIDAB. In all, a considerable amount of training and workshops have taken place in the region. Unfortunately, countries of the region has not yet been able to build a long-term programme of activities based upon these efforts in a way that steadily enhances human resources in disaster management in the region.
It is important to draw together all these initiatives. Collaboration amongst the various aid agencies needs strengthening. Improving the flow of information, and an on-going mechanism to enhance the national disaster management capabilities would contribute to an improved framework for disaster mitigation, preparedness and response. The region advocates for a concerted and coordinated effort by all to ensure effectiveness and sustainability of programmes at regional and national levels. 15
COOK ISLANDS - BROADENING OF THE DISASTER ORGANIZATION
Disaster awareness in the Cook Islands has increased considerably over the last ten years. Following two major cyclones, Cyclone Sally in 1985 and Peni in 1990. The Hurricane Safety Committee, which was chaired by the Commissionerfor Police and was the coordinating agency for emergency response activities began to look at the issue,of disaster preparedness and mitigation. Officialsfrom relevant agencies were sent on disaster training courses and technical assistance was provided by UNDPIDHA-SPPO in Suva. A National Disaster Preparedness Workshop in March 1992 developed recommendations and prepared future action plans.
Partly, as a result of that Workshop, a National Disaster Management Committee (NDMC) wasformed. The NDMC, chaired by the Secretary of the Prime Minister's Department, is charged with co-ordinating all disaster related activities in the Cook Islands. NDMC membership includes a wide range of government and private agencies to ensure that the members of the public are fully represented, and their voices can be beard at the policy and decision making levels.
The NDMC recently completed a draft Civil Defence Act, which encompasses both natural and man-made disasters and will replace the Hurricane Safety Act. Assistance is now being sought for a consultant to produce an associated Civil Defense Plan. Other activities include on-going public awareness media campaigns, as well as disaster preparedness and mitigation. The committee is working successfully and is fully committed to achieving IDNDR goals and objectives. 17
CHAPTER 3
ISSUES IN DISASTER REDUCTION
This chapter summarizes the main issues for disaster reduction in the South Pacific region. These have shaped the way disasters are managed and constitute opportunities for, and constraints on, future disaster management in the South Pacific region. They range over both broad economic and demographic processes of change, and specific technical arrangements for disaster reduction such as communications and warning arrangements.
3.1 A COMMON BASIS FOR REDUCTION
These issues form the common basis on which efforts to meet the targets set by the International Decade for Natural Disaster Reduction will need to be based within the South Pacific context. At the same time, the diversity of Pacific island countries, and the way in which national strategies for disaster reduction are shaped will also be influenced by the specific circumstances of each country. Nonetheless, the broader issues discussed below form the common basis for disaster reduction in the region:
3.1.1 Development Disruption - The overriding issue is disaster reduction in that disasters frequently and intensively do disrupt the development of countries in the region. The small island developing states of the South Pacific are highly vulnerable to natural disasters, and development efforts can be severely disrupted. A case in point is Fiji. After Cyclone Kina, the 1993 government budget had to be adapted to cater for disaster rehabilitation works. More than 30% of the capital works programme had to be postponed to allow for the most urgent relief and rehabilitation works. Efforts to achieve a more sustainable development in the South Pacific region therefore have to address the negative impact wrought by natural disasters.
3.1.2 Scale and Orientation of Economies - Pacific island countries usually depend on a narrow range of commodities, mostly from agricultural, fisheries and forestry sectors. The dependency on this narrow range of
"".' .. '1 " . ~ '"'!Jli~ commodities is amplified by the -""....-:, .~'"',>;: limited carrying capacity of island "."~,'Jc'~ •. '~,:'.~~.0.\.;."', . ,'\.,;,,- _ environments. Because ,of the "'. """_ .~~ --- small scale of the econormes, the -'!;' ••••••• ~., ~ damage wrought by one cyclone can easily exceed the GNP of a country, and set back the development for years, One natural disaster can necessitate the re-orientation of the economy, because of loss of crops, over- dependence on one commodity or loss of export markets. The potential economic impact of disasters is shown by the case of Western Samoa. Since July 1993, Banana palms recover in Western Samoa- Cyclone Ofa, 1990 a taro leaf blight disease has wiped 18
out large parts of the taro crop of the country. This had a profound impact, since taro is not only the main staple food, with its associated cultural value, but also the main export commodity. The annual crop itself can be valued at US$20 million, including the local market, and taro was cultivated as a single crop on 36,500 acres.
An emerging sector which is increasingly vital for the region is tourism development. For the sustainable development of this sector, it is imperative that adequate disaster mitigation and preparedness measures are undertaken, not only within the economic sector through adequate protection of tourism facilities, but also in related sectors, such as transport and commercial development.
3.1.3 Population Growth and Population Concentration - The nett population growth in the region is high, with natural rates of population increase well over two percent, in some countries over three percent. This means that national economies in general, have to cater for ever- increasing populations. Consequently, increased demands will be made on disaster organizations and expenditures for relief assistance after natural disasters will increase. In countries that have special emigration arrangements with metropolitan countries, these problems may be avoided, or rather exported, by emigration. Even in Tonga, where emigration reduces the nett annual population growth to 0.2 percent, problems still exist because of in-country migration to the capital city which puts additional strains on its facilities and leads to the occupation of flood- prone land without taking adequate precautions.
The major population issue in disaster reduction is the increasing human vulnerability to natural hazards because of urbanization and population concentration, mainly in the national capitals. Disaster-prone urban fringe areas are occupied by new settlers who often are unable to take adequate precautions against natural hazards, living in crowded, makeshift housing without adequate sanitary facilities. The inevitable health hazards are amplified after disasters. 19
POPULATION TRENDS Resources are spread very unevenly in the Pacific and so are people. There are congested places - particularly around the capitals of each country - but other areas are relatively empty. The unevenness of settlement is increasing as jobs and services expand faster in some places than others. This is particularly so in the small island countries .. As thefigure shows, over 60 per cent of the populations of Palau, the Cook Islands and the Marshall Islands live in urban areas. In Palau and the Cook Islands, this refers to two localities only: Koror and Rarotonga, respectively. Thefigure also shows that in several countries including Tonga, Tuvalu, Western Samoa, and Kiribati - the urban population lives solely in the national capital. Even in the least urbanised countries, the Solomon Islands and Vanuatu 80 percent and 75 percent of all urban residents live in Honiara and Port Vila respectively. The growing concentration of Pacific island people around their capital, which is often their only city, is even more apparent if we look at the proportion of people on the island where the city is located. For example, one third of the national population of Kiribati now lives on South Tarawa, one third of the Tuvalu population lives on Funafuti, and two-thirds of the Tongan population lives on Tongatapu. Significantly for disaster management, most urban centres and most economic infrastructure of all Pacific island countries are located in coastal areas, vulnerable to flooding, storm surges, cyclones, and possibly the cumulative effects of sea-level rise. With their high population densities and, increasingly, their multi-story buildings, earthquakes also pose a real threat to Pacific towns. Urban populations are growing fast, through 'in-migration'. Many new urban residents are squatters living in poor housing with little access to basic services. Pacific towns, increasingly, are characterised by sub- standard housing which is highly vulnerable to natural hazards, particularly cyclones. Problems with public health, limited means of livelihood, costly transport, and insufficient water, sewerage and waste disposal services are immediately compounded when disasters occur. As always, the combined consequences of crowding, environmental degradation and heightened vulnerability, fall most heavily on those already disadvantaged. Meanwhile, some outer island communities are disadvantaged by their relative remoteness, particularly their poor access to schools, health care and cash. Even in sparsely-settled parts of the region, the vulnerability of Pacific islanders to cyclones and other climate hazards is also increasing through changes in settlement patterns, housing, farming systems, and land use. Both dense and sparse settlement therefore, complicate disaster management. It is difficultfor governments to provide everywhere, the types and quality of services that people nowadays expect, particularly where there are afew people and large distances.
Population liVing in urban areas and the largest city 70 60 50 40 30 20
10 0 Urban areas o • Largest city
.>0<: o o U 20
3.1.4 Dispersed Island Communities with Limited Resources - One of the unique characteristics of the Pacific region is its vastness. Even within countries distances can be enormous. Kiribati is the most widely-dispersed country in the region, with a ratio of sea to land which exceeds 4000: 1. Kirimati in the east of the country is more than 3,000 km. east of Tarawa, the capital. This dispersion of islands and island groups may be less extreme in other countries, but in most countries the geographical spread determines the way in which development activities take place. It is also of critical importance in disaster reduction efforts.
External assistance is very costly due to the high travel cost, and development activities involving the outer islands of Pacific countries are expensive and time consuming. Opportunities for transport and communication are of major importance in the planning and implementation of disaster reduction activities. Ways to deliver assistance, be they for disaster reduction or for development purposes, are determined by the geographic conditions that prevail in the region. The limited resources available in-country, often do not allow governments to fully involve outer islands in efforts to reduce disaster impacts.
3.1.5 Climate Change and Sea Level Rise - Global warming and possible sea level rise are the most serious environmental threats to the Pacific region. Island countries are particularly vulnerable to these changes because they include hundreds of low-lying islands and atolls which house most of their populations and many important economic activities in coastal zones. To a large extent these islands depend on extremely scarce supplies of potable ground water and have very limited areas of arable soil.
There is grave concern in the region that global changes may induce an increase in the severity and frequency of hydrological hazards in the region. Increase in the frequency and intensity of tropical cyclones, increased rainfall, heavier floods, higher storm surge levels are all hazardous phenomena that may result from climatic change. Some sources indicate that an increase in intensity and frequency of natural hazards may well be one of the first effects inflicted on populations by climate change. This makes climate change a major issue in the Pacific, not only for the longer term, but also for short term disaster reduction. 21
ASSESSMENT OF COASTAL VULNERABILITY AND RESIUENCE TO SEA-LEVEL RISE
As part of the SPREP Climate Change Programme, preparatory missions to more than 10 Pacific island countries have been undertaken to establish the likely implications of accelerated sea-level rise on the islands of the region. These reports identify and prioritize future studies on specific issues to mitigate negative impacts, and make use of possible benefits, of sea-level rise. The Kingdom of Tonga comprises volcanic and limestone islands, and the impact of sea-level rise on them varies with the type of island. The threat to parts of lowflat limestone islands, particularly the largest island of the group, Tongatapu, is greatest. Inundation of low areas, particularly the capital of Nuku'alofa and nearby rural areas, is one cause for concern. The impact of sea-level rise on coral reefs, island lagoons and shorelines is another.
The preparatory mission to Tonga identified impacts on coastal margins of islands as the most immediate and serious threat posed by climate change and sea-level rise. Other activities such as clearance of mangrove forests, land reclamation and mining of beach sand have exacerbated this threat. Over-topping of coral reefs by storm waves will increase the amount of scour and sediment movement within the lagoons, resulting in erosion of the beaches, and damage to the reef It may result also in a nett loss of sediment from the island lagoon/shoreline system to the deep ocean. Strategies for addressing these concerns have been identified by SPREP, other regional organizations, and the Tongan government. This includes coastal re-afforestation programmes, regulations to restrict sand mining and the clearing and reclamation of marginal coastal areas, as well as climate indices and sea-level monitoring. This will help to alleviate damage to coastal systems, ensure sustainability of resources, and provide long term disaster mitigation to the islands of the Kingdom of Tonga.
3.1.6 Human Resources - Most Pacific island countries are relatively small in terms of their population. This means that the human resources available to cope with any specific area of development are fairly limited. This is also the case with disaster management where the institutional capacities and human resources available to prepare for, and respond to disaster are limited. Public sector disaster managers are often also charged with a wide range of other responsibilities. The limited number of human resources is seen as a major constraint for effective disaster management at this stage. Further strengthening of human resources and manpower planning with some commitment for disaster management is required. Efforts need to take into account this reality and find ways to maximise the benefits of human resource talents that exist. This should be done at national level, as well as at local level, where the ability of officials to cope with demands of effective disaster management should be increased.
3.1.7 Disaster Reduction Versus Other Development Policies - Limited resources force the region to make strategic choices in the investments for developments in its countries. The awareness that natural disaster reduction can serve as an effective instrument to contribute to sustainable development is slowly increasing in the region. However, this will be a very gradual process, in which the benefits of the first step justify the second step and so forth. For progress in this area to continue, disaster reduction activities will have to be result-oriented and visibly demonstrate direct benefit to populations, in order to be acceptable as priority investment.
The priority assigned to disaster reduction activities in any situation has to be judged against other priorities in health care, education, infrastructure development etc. It is also important however, to look for ways in which disaster mitigation components can be included in on-going development programmes. An example is the regional development project in Fiji, which also included some flood control measures, in addition to agriculture and infrastructure development. This may provide very cost-effective options for disaster reduction activities. 22
The region should also set out to make optimum use of the 'blessing in disguise' of disasters and use the opportunities provided to reduce the risks of future disasters. This would include the incorporation of disaster mitigation elements in rehabilitation programmes, such as the rebuilding of houses and bridges that are stronger than the original structures.
3.1.8 Knowledge of Hazards and Risks - Our knowledge of hazards and risks is far from complete. It is known to a reasonable extent, mainly from historic sources, which country or area is exposed to which hazard, but detailed, up to date knowledge on hazards is in many cases lacking. Some flood and landslide hazard mapping has been carried out, notably in the Solomon Islands and Fiji, but the picture is far from complete. In line with the targets of the International Decade for Natural Disaster Reduction, it will be necessary to carry out comprehensive hazard mapping exercises to fill the gaps. This will include flood, storm surge and landslide hazard mapping for all inhabited areas, and earthquake micro-zoning at least for larger cities that are earthquake-prone.
In addition to this hazard mapping exercise, the analysis and mapping of vulnerabilities is an issue that needs to be addressed in the coming period. The region needs to carefully examine the vulnerability of communities, critical facilities and infrastructures, in order to enable to assign high priority to the communities and facilities that are exposed to high risks.
3.1.9 Communication and Warning Systems - Due to the characteristics of the South Pacific with its dispersed island communities, communication within countries, and within and outside the region, is considered an important issue. Also in terms of disaster management, communication is important, in particular for the dissemination of disaster warnings. For tropical cyclones, three steps can be distinguished: first, the data collection needed for cyclone forecasting; second, dissemination of cyclone warnings to national meteorological offices; and thirdly dissemination of warnings to the public and specific target groups.
All three are of concern, although having concentrated efforts on the first and second, now more emphasis is needed on the dissemination of disaster warnings to the public in to ensure optimum precautions are taken. Vanuatu, in cooperation with IDNDR Australia, is already working along this line with extensive information campaigns for the general public, targeted radio messages and other efforts. It is felt that similar strategies can be mounted in other South Pacific countries. The strengthening of national broadcasting organizations, and ensuring that disaster warnings can be widely disseminated and received, (including during cyclones), are also matters that need to be addressed.
3.1.10 Traditional Disaster Response - Natural hazards, and in particular cyclones and droughts, have always been part of human life in the South Pacific, Over the years, communities have developed mechanisms that enabled them to cope with such natural hazards, although often not without considerable hardship. The cores of these traditional coping mechanisms were food conservation and preservation techniques, and a social system between families as well as between villages or islands, to assist those affected by disaster.
In recent times these traditional systems have eroded. People now tum more to government to provide assistance in disaster. In part, this is a normal development, in which old systems are replaced by others that are more in line with the current times. It should also be remembered, 23
however, that a lot can be learned from the traditional ways of coping with hazards. In particular, traditional disaster mitigation measures such as crop diversification, planting schemes, food preservation and shelter construction certainly still have their value in present day life. Revival or continuation of such practices should be included in disaster mitigation policies and projects.
IMPACT OF CYCWNE KINA ON DEVEWPMENT IN FIJI
Cyclone Kina in January 1993 caused Fiji to suffer its greatest everfinancial loss due to a tropical cyclone with destruction or damage to houses, property, infrastructure and crops valued at nearly F$170 million (US$ll0 million). 23 human deaths occurred, several others were reported missing and there was an unaccountable loss of livestock. Prolonged heavy rainfall brought by Kina, with a combination of other factors including high tides and heavy seas which basically blocked the mouths of major rivers, caused the worst flooding experienced in over sixty years, accounting for much of the loss.
The rehabilitation and relief effort was largely funded through re-deployment of government funds, particularly those relating to the capital works programme. Total government budget re-deployed amounted to F$40.12 million, which represents 32 percent of the total 1993 capital budget.
A total of 294 schools were either completely destroyed or partially damaged and, as a result of disruption to the education system, the start of the 1994 school year was deferred for up to two weeks to enable school authorities to carry out urgent reconstruction work so that schools could resume normal operation.
Cyclone Kina caused widespread devastation to the main staples, and to export crops and livestock. Also agricultural infrastructure, including drainage and irrigation schemes were damaged. Resultant floods adversely affected the main agricultural areas of the country, particularly along thefour major rivers, which are: the Sigatoka valley, known as the "salad bowl of Fiji"; Navua River, one of the main rice producing areas; the delta and upper banks of the Rewa River, the main supplier of root crops and vegetables for the Suva urban area; and the Ba River. Damage to the agricultural sector, excluding the sugar industry, amounted to F$40 million, of which F$17 million was the estimated crop damage.
A considerable number of dwellings mainly in rural areas were either completely destroyed or suffered extensive damage. Altogether 5544 people qualified for government emergency housing assistance and funds of F$6.451 million were paid out to them. Damage to buildings in urban areas was fairly right, as most are structurally sound, having been constructed in accordance with required standards.
Most of Fiji's tourism industry escaped direct damage because the path of the cyclone stayed well clear of the main tourism areas. There were some difficulties with transport due to the collapse of the Sigatoka bridge, and some disruption to power and telecommunications. The most significant impact of Cyclone Kina on the tourism industry may well have been on the insurance of resorts. Many smaller resorts had insured their properties overseas, and their premiums increased considerably due to Kina. Some of the resorts are now turning to the local insurance market, but will first have to upgrade the technical standards of their property before insurance can be given, still at considerably higher prices than before Kina.
The total insured damage caused by Cyclone Kina amounted to F$50 million, of which F$42 million was reinsured on the international market. The cost for reinsurance of calamities, including cyclones, earthquakes and floods has increased significantly over the last year due to major international disasters such as Hurricane Andrew and the Mississippi floods (USA) and many others. This seems to be the main reason for the hike in overseas reinsurance costs, although Cyclone Kina may have alerted the international market to calamity insurance in Fiji. Reinsurance cost for calamity insurance, including cyclones, earthquakes and floods, has increased by 100 percent to 300 percent for insurance operators in Fiji.
25
CHAPTER 4
COMMON STRATEGY FOR DISASTER REDUCTION
Pacific island countries are increasingly aware of the negative impact that natural disasters have on the sustainability of development efforts in the region. The region intends to increase its efforts to counter these adverse impacts through strategic measures in four key areas, as described below. The dispersed setting of island societies and the characteristics of the vulnerabilities necessitates outside assistance to materialize these strategies and reduce the risks to which our populations are exposed.
Pacific island countries are diverse in terms of their landscapes, people and natural disasters. Yet there are also commonalities in the way in which natural disasters impact upon countries and how these disasters can be addressed. This chapter formulates a common strategy for disaster reduction in Pacific island countries for the remainder of the decade. Emphasis of national programmes is likely to differ between countries, but the broader framework and approaches discussed here are a common basis for further action to reduce the impact of disasters in the South Pacific region.
4.1 HUMAN RESOURCE AND INSTITUTIONAL DEVELOPMENT
Human resources are of critical importance for the reduction of natural disasters in the South Pacific region. People form the basis of all action to prepare for natural hazard impacts and to respond effectively and efficiently when they occur. This includes not only government agencies, but also NGOs and communities that should also be aware of natural hazards and of ways and means to respond to these threats. Further strengthening of human resources and institutional capacities is considered a prerequisite for the reduction of the impact of natural disasters.
National disaster organizations need to be developed in a way that they can prepare and implement programmes that result in community level disaster reduction, through mitigation, preparedness and effective emergency response. The people working in disaster organizations need to further develop their capabilities to prepare and implement such programmes through training and technical support. This will lead to an institutional capacity to effectively mitigate, prepare for and respond to natural disasters.
The way in which human resources and institutional capacities need strengthening will vary between countries of the region. In some cases it implies the establishment of an adequately equipped and staffed national disaster office; in other cases further strengthening of existing national arrangements will be adequate. Human resource development and institutional strengthening will in most instances have to start with improving the management of emergency relief situations and preparedness. From there, efforts can expand into less familiar disaster management aspects of mitigation and rehabilitation programming. Such efforts will need to factor into account on-going realities such as personnel changes, turnover, need for continued refresher and upgrade opportunities, as well as the need for systematic follow-up to in-country programmes and activities. 26
4.2 DISASTER PLANNING AND PROCEDURES
Disaster plans and procedures need to be prepared or improved in many Pacific island countries. Disaster plans, when available, are not always tailored to the specific needs and circumstances of each country, or only cover a limited segment of disaster management elements. Revision of these plans, in conjunction with improvement of the institutional structures, is considered important in order to provide a solid basis for disaster reduction efforts and to improve the quality of preparedness and emergency response. Supportive legislation, in particular for pre- and post-disaster, is in many cases still pending, but it is considered important that disaster plans are supported by a clear legal framework. Disaster plans should be based on an assessment of hazards and vulnerabilities, as outlined in Section 4.3.
There is a need to develop appropriate post-disaster assessment procedures and instructions to better determine expedient relief and recovery measures. A considerable amount of work is available at regional level, but country-specific instructions have to be prepared. Often, a substantial problem during and after natural disasters in the region is the absence of accessible, reliable and consistent baseline data for disaster management purposes. This includes population data, information about crops and agricultural land use, the location of critical facilities and high-occupancy structures, and the location of key infrastructures and other vulnerable elements.
Because of the limited human resources capacity of most countries in the region, external support will be needed to develop the institutional capacity to a more effective level. Technical support of national disaster organizations is needed in a wide range of aspects of disaster management, including preparation of disaster plans, development of community disaster reduction programmes and increasing the effectiveness of disaster response. The assistance will need to be tailored to the needs of individual countries, although a degree of commonality in the disaster management approach is also considered desirable.
4.3 HAZARD, VULNERABILITY AND RISK ASSESSMENT
The appraisal of hazards and vulnerabilities in Pacific island countries is still far from complete. In most countries, nothing has been done in this area. Yet these assessments are a major input in the development of disaster mitigation measures and the effective inclusion of disaster considerations in development planning. Action is required to fill gaps in the available information, both related to the hazard-proneness of specific locations and to the vulnerability of communities, critical facilities and strategic infrastructure.
Major actions required include the assessment and mapping of coastal and riverine flood hazards, earthquake micro-zoning for large cities and assessment of landslide hazards. The implications of climate change and drought on the fragile environments and economies of the Pacific have to be investigated. Tsunami risks have to be established in relation to coastal topography. Vulnerability assessments of communities, critical facilities and strategic infrastructures need to be carried out to identify high-risk situations and priorities for risk reduction.
Such assessments often require specialized technical skills and equipment that are not always available in-country. Support from regional organizations and international donors will be required to achieve an adequate level of assessment. Information on hazards and vulnerabilities is an important basis for adequate actions to reduce the threats posed by natural hazards in the region. To make assessments effective, training is needed in how to identify risk reduction priorities and use of hazard and vulnerability data in development planning and disaster mitigation programmes. 27
4.4 COMMUNITY AWARENESS AND DISASTER WARNING
Efforts to improve the state of preparedness of communities and the public and private sector need to be intensified to achieve reduction of disaster impacts in the short term. The main focus of disaster preparedness and awareness has to be on local communities. Disaster preparedness activities need to be linked increasingly to the local level where the impact of disasters is felt most. Pacific societies in general have a strong community level organization and this provides opportunities to effectively address the disaster issue at local level. Community disaster awareness programmes can be conducted effectively through school education, radio and other broad means of communication. Maximum impact however, will be achieved when this is combined with activities at 'grass roots' level. A combination of community awareness and disaster preparedness programmes, using national and community level activities, information and assistance, is thought to be of substantial benefit for short term reduction of disaster risks in the South Pacific. Community level preparedness programmes should be implemented in conjunction with more long term efforts to reduce the vulnerabilities of communities.
Although substantial efforts have been made to improve cyclone forecasting capabilities and communications, cyclone warnings and their broad dissemination to the public remain an area of concern. Additional improvement in forecasting capabilities is necessary, but the major focus for improvement should be the communication of warnings, alerts and related information to national meteorological offices, and the broad dissemination of warnings to the general public.
Not all countries have adequate back-up communication systems that ensure the continued ability to receive cyclone weather information from the Regional Tropical Cyclone Forecasting Centre. These 28 shortfalls should be identified and addressed in conjunction with the in-country capability to continue communication throughout the disaster. Broad dissemination of disaster warnings involves provision of information to the public of cyclone threats in a clear, timely, accurate way. This information should be such that it allows people to take adequate precautions for the impending disaster, and informs the people of the situation throughout the emergency phase. This includes the capability to continue broadcasting cyclone warnings during periods of high winds. Equally important, it refers to the way in which warnings are disseminated. At present populations do not always take optimum precautions. Optimization of warning dissemination should be facilitated by training key officials and through adequate public awareness programmes.
Warning systems for other natural hazards, including coastal and riverine flooding, tsunarnis and landslides, have not received high priority in the region. Yet these hazards can pose considerable threat. For the dissemination of warnings, the same channels as for cyclones seem applicable, but it is important that the people know whether or not they are living in hazard-prone areas. To this aim, wide distribution and discussion of hazard and risk maps, and their implication for the population, is instrumental. Opportunities for improvement of forecasting, in particular for floods, need to be identified and addressed.
DISASTER REDUCTION FOR SUSTAINABLE DEVELOPMENT
Once the threat posed by natural hazards is known through hazard and vulnerability assessment, these threats can be taken into account in development planning. Disaster considerations should increasingly become part and parcel of development planning. This requires an increasing knowledge within government agencies, such as Central Planning, Public Works, Regional Development and Finance, of the disaster threats and ways and means to address these threats within development planning. 29
Assessment data of hazards and risks should be widely available to public and private planners and investors in a form that can be understood by these target groups. Training and technical assistance to development planners is necessary to increase their understanding of these threats and to prepare development plans in ways that do not increase, but rather reduce disaster risks. Particular attention is required for the tourism sector, which is of increasing importance to the region.
Development and budgeting authorities need to be sensitized to the fact that disasters in Pacific island countries can place severe strains on the development process and that disasters need to be taken into account in project formulation from the early stages. Evaluation of disaster risks in development planning and project formulation is thought to be a significant contribution to a more sustainable development of Pacific island countries.
The implementation of specific projects with long term and short term disaster mitigation objectives will have to be considered for high risk functions and areas. Depending on the outcome of risk assessment, efforts may be required to strengthen existing high-occupancy structures such as schools, hospitals and churches. Protection or relocation of disaster-prone communities or strengthening of bridges and other critical infrastructure elements may also need to be undertaken.
Large industries and strategic economic sectors such as tourism and agriculture need to increase their ability to cope with disasters and thus reduce the disruption to the national economy. This will require specific mitigation projects as well as adequate preparedness and response strategies. Mitigation projects will have to be adapted to the Pacific situation. Traditional land tenure systems for example, make the implementation of land use regulations difficult but the strong community level organization creates good opportunities for community level disaster reduction projects.
The implementation of disaster mitigation projects and activities, in part, represents an effort to compensate for less than adequate inclusion of disaster considerations in past investments and developments. It will be more important however, to address the issue of natural disasters in new developments, from their inception. It is much more cost effective to build a school in a way that it can withstand tropical cyclones, than it is to strengthen the school afterwards. Yet for existing structures, strengthening of construction and similar measures often provide the best way to reduce risks to acceptable levels.
Another way of reducing the risks to which communities and facilities are exposed, is to include disaster mitigation investments in rehabilitation programmes. This would not only allow for repair of damage, but would also prevent damage in future calamities. In Pohnpei, in the Federated States of Micronesia, bridges washed away after Typhoon Axel, were rebuilt higher, wider and stronger, so that they would be able to withstand future similar hazard impacts.
Reducing the risk to which existing communities and facilities are exposed will require substantial financial inputs. Strategic choices will have to be made. International assistance and support from regional organizations will be sought to identify critical risks and to formulate disaster mitigation options. Support will also be needed for implementation of projects and activities to reduce the risk to which Pacific societies are exposed.
31
CHAPTERS
MEANS OF STRATEGY IMPLEMENTATION
The implementation of the common strategy for disaster reduction rests primarily within the countries of the region, and the policies, resources and capacities that are to be put in place at national and local levels. The role of regional organizations will become more pronounced and streamlined over the remainder of the Decade. Several projects and activities are already in place supported by international donors. These will provide part of the required support to reduce natural disasters in the region, but it is anticipated that further international support is needed to enable countries to fully implement the above strategies.
For support activities to contribute to the common goal of disaster reduction in the Pacific, it is imperative that programmes and projects are implemented in a coordinated and coherent manner, and that they are consciously planned to complement, and relate to, other activities.
The following summarises some of the specific roles and activities that have been determined at this stage:
5.1 NATIONAL POLICIES, RESOURCES AND CAPACITIES
The first and most important means to support implementation of the disaster reduction strategy are the policies, resources and capacities of each of the Pacific island countries. Irrespective of support from regional and international partners, it is primarily our countries who will have to shape the way in which they prepare for, respond to, and reduce the impact of natural disasters.
The way to move ahead is to strengthen the relevant institutions, develop human resources, and put plans and programmes in place in line with identified strategic measures. But the basis of all these is the adoption of firm policies to counter the impact of natural disasters. These policies will have to be put in place in a step by step fashion, in ways that clearly demonstrate the benefits of investing in disaster preparedness and disaster reduction programmes to those involved. A careful, step-by-step approach will ensure wide support for activities and investments that are not always perceived as directly development-oriented, but which ultimately contribute to more sustainable development of Pacific island countries.
A common characteristic of Pacific island countries is that they have a high level of community organization and strong ties within communities. An expression of the importance of the community, are the systems of land tenure that prevail in the South Pacific. Although these systems are highly variable throughout the region, they are commonly based on communal land ownership patterns. This will have to shape the way in which disaster reduction projects are designed and implemented; real reduction of risks will not be possible without full involvement of communities.
Strong community linkages, accompanied by strong community leadership, provide excellent opportunities for community-based disaster awareness programmes. Community level activities for disaster awareness provide good opportunities for disaster reduction in the short term; these programmes can be linked to longer term disaster mitigation programmes at community level. 32
In the implementation of disaster reduction strategies, we should also draw on the strength of non- government organizations (NGOs), which could be major players in disaster reduction in the region. Linkage between local communities and national disaster institutions and coordination of efforts of NGOs are needed to draw the full benefits. Ties will have to be formed with key sectors of the economy to allow for a concerted effort in risk reduction.
Where applicable, the private sector should be fully involved in disaster reduction. For example in the tourism sector, private sector interests go beyond the protection of their own interests. It is also important for this sector to have adequate disaster preparedness and response mechanisms in place in areas like transport, communication and health care.
5.2 REGIONAL COOPERATION AND SUPPORT
Although natural disasters, in terms of their impact and management, are essentially national concerns, there are several reasons why strengthening regional linkages and fostering a degree of commonality is useful. Firstly, the problems that are experienced by countries, and the institutional in-country arrangements within the region, have certain general similarities, despite some considerable differences. It is considered, and shows from our experience, that these similarities and differences can provide a fruitful basis for cooperation. 33
A further reason for promoting regional linkage and a degree of commonality is the consideration of efficiency. Technical support to all Pacific island countries on an individual basis, as has been the norm, will continue to be very fragmented. Technical support to countries from a regional level seems more appropriate to provide continuity. With a degree of commonality and established regional links, it will also be possible to ensure that disaster reduction in the region can be sustained over a longer period, thus providing the on-going support that will be needed by countries in view of their limited human resources.
A regional approach for disaster reduction will be achieved through cooperation and exchange between national disaster management officers, support from regional organizations and support from international organizations and other donors. In particular the South Pacific Disaster Reduction Programme mentioned in Section 5.3 is expected to serve as a focal point for regional level activities. The activities of this programme will in due course be incorporated within the structure of regional organizations.
In the South Pacific, regional organizations playa very significant role in supporting the small island developing states in their development efforts. So far, their involvement in disaster matters has been limited, but it is anticipated that the role of regional organizations in disaster reduction will become more pronounced and streamlined over the remainder of this Decade, increasingly contributing to the implementation of common disaster reduction strategies.
The South Pacific Forum is an important regional policy-making body with involvement in disaster management The mandate of the Forum Secretariat includes disaster management, but at present the Secretariat plays a limited role. The main role of the South Pacific Forum and its Secretariat is expected to be in policy coordination and in providing technical assistance for member states.
The other regional organizations are expected to contribute to disaster reduction from their specific technical and organizational mandates, as a continuation of their present programmes. The South Pacific Commission [SPC] is expected to focus on technical advice, training, assistance and information in social, economic and cultural fields to 22 governments and administrations in the region. It currently has work programmes in agriculture, fisheries, rural health and nutrition, sanitation and water supply, population, community education and media. The South Pacific Applied Geoscience Commission [SOPAC] has a regional mandate for production of technical information on coastal and other geological hazards, including hazard assessment for earthquakes, volcanic eruptions, landslides and coastal erosion.
The South Pacific Regional Environment Programme [SPREP] is to assist member countries and territories to maintain and improve their shared environment and enhance the capacity of countries to provide a present and future resource base to support the quality of life of the people. SPREP activities are linked to natural disaster concerns in particular through climate change, coastal management and sustainable development programmes. The University of the South Pacific CUSP] is a regional tertiary academic institution with a wide range of subjects, including geography, agriculture, social science and maritime resources. The University has a network of extension centres covering all project countries. This regional network may be beneficial to disaster reduction efforts. Other contributions of USP can include training material, personnel and facilities, regional disaster management training, curriculum development and specific technical assistance, research and studies.
35
THE SPREP WORK PROGRAMME IN RELATION TO NATURAL DISASTER MANAGEMENT IN THE PACIFIC REGION
SPREP has, in the past, incorporated many disaster-related projects and activities into its work programme and budget as part of its mandate to manage the shared environment of the Pacific region. While these are spread throughout the various programmes, the majority of these activities are being undertaken as part of the 'SPREP' Climate Change Programme and are associated with weather/climate-related extremes such as tropical cyclones and droughts. A proposed new Climate Change work programme, to be tabled at the 1994 SPREP meeting in Kiribati during September, gives even greater emphasis on the impacts of extreme events in the Pacific region, particularly the linkage between climate change and natural disasters.
In this region, as is the case elsewhere in the world, natural disasters are environmental disasters. There is a real and obvious need to link disaster management, sustainable development and sound environmental management into national planning strategies if thefull potential of the many resources of the region is to be realised.
In collaboration with other regional and international organisations, SPREP will continue to expand its role in assisting the region to meet the goals of IDNDR, and successfully manage natural disasters. Projects relating to natural disasters and the environment will complement activities concerning the socio-economic impacts of disasters. There has been discussions within SPREP regarding proposed workshops to highlight the linkages between population and natural disasters. Through activities such as this, the impact of natural disasters on development in the region will be minimised and we can all enjoy living in a better prepared and safer environment.
5.3 INTERNATIONAL ASSISTANCE: ON-GOING AND NEW INITIATIVES
The "South Pacific Disaster Reduction Programme" is a four year regional project, which started in January 1994. The project is funded by UNDP with co-funding from Great Britain, Australia, New Zealand, Peoples Republic of China and possibly other donor countries. The project will be implemented by the South Pacific Programme Office of the United Nations Department of Humanitarian Affairs, and is expected to serve as a focal point of disaster management activities in the region. The main objective of the project is to strengthen institutional capacities and develop human resources to enable these countries to mitigate the impact of natural disasters, improve disaster preparedness and to improve post disaster recovery management, and thus reduce a major constraint on sustainable development
The project is expected to contribute significantly to the priorities outlined in Chapter 4, in particular to Section 4.1. The three main components of the project are in-country training and technical assistance, the provision of technical support materials, and regional cooperation and coordination. The project will assist in setting up databases and includes some pilot projects for disaster mitigation. A major function of the project is to provide a regional forum for disaster reduction activities, through which projects and activities can be carried out in a coordinated and coherent manner. The project will assist Pacific island countries in identifying priority activities and programmes for disaster reduction, that go beyond the scope of the actual project, and for which additional funding sources will need to be found.
Several other programmes and projects are in place or will be implemented shortly. A major Australian contribution to the IDNDR is the Pacific Disaster Preparedness Programme, which was started in 1989 and which provides packages of assistance for countries, according to their needs, for 36 the development of national disaster preparedness. Australia has further organized several meetings of disaster managers in the region, leading up to the World Conference on Natural Disaster Reduction. This type of support is expected to continue and contribute to the implementation of disaster reduction strategies.
SPREP has recently formulated a project proposal for "Integrated Coastal Zone Management in the Pacific Islands Region". One of the project components is coastal hazard management planning and coordination, which includes hazard mapping and development of disaster mitigation plans and strategies for coastal areas. Implementation of this project is expected to contribute in particular to 'hazard and risk assessment' and 'disaster mitigation for sustainable development'.
The European Community is currently looking into possibilities to support the improvement of cyclone forecasting and warning dissemination in the region. This would contribute in particular to the implementation of our fourth stated disaster reduction strategy in Section 4: 4.4 (Community Awareness and Disaster Warning). Other on-going international assistance programmes and new initiatives are mainly on a country-by-country basis; which we documented in greater detail in the National Summary Reports prepared for the World Conference.
The above programmes and projects, when implemented in a coordinated and coherent manner, form a substantial contribution to risk reduction in the South Pacific region, and will assist in implementing the strategies set out until the end of the Decade. As institutional capacities and awareness develop in Pacific island countries, it becomes more feasible to identify and implement strategic risk reduction projects which have wide support, including that of policy makers. The main additional requirements for international assistance to fully implement the outlined strategy will be in the field of international training and disaster-related education, national workshops, training and awareness programmes, and resources for imnlernentation of disaster mitization nroiects. 37
CHAPTER 6
THE INTERNATIONAL DECADE FOR NATURAL DISASTER REDUCTION IN THE SOUTH PACIFIC REGION
We support the targets set by the International Decade for Natural Disaster Reduction. Our common strategy in the South Pacific region is fonnu1ated in this report in the form of disaster reduction activities in five strategic areas. When fully implemented, these strategies will enable the region to meet the targets of IDNDR, while at the same time improve emergency management and disaster rehabilitation. In our region, we see disaster management as a continuum, and we intend to address disaster management in all its aspects, starting from improving emergency management and disaster preparedness and moving into disaster mitigation and post-disaster rehabilitation.
6.1 FIRST HALF OF THE DECADE: IDNDR ACTIVITIES IN THE SOUTH PACIFIC REGION
Of the fourteen Pacific Island Developing Countries represented in this report, twelve have formed and registered IDNDR committees. This demonstrates the interest of the region in international cooperation for natural disaster reduction. In most countries, the IDNDR committees are the same committee as the National Disaster Management Council, or a similar body. The notable exception to this is in PNG, where the IDNDR committee is a separate body, in which universities and other entities are also represented. Most other countries have, in view of their limited human resources, chosen to assign the roles of the IDNDR committee to their 'normal' disaster management infrastructure.
The extent to which countries themselves have initiated disaster reduction activities as part of their IDNDR efforts, varies between countries, but in general it can be said that most activities that are specifically labelled 'IDNDR activity' are supported by donor countries, in particular by the Australian IDNDR Coordination Committee.
Regarding the activities in the first half of the decade, a distinction has to be made between activities that are aimed at the IDNDR objectives, and those that are specificallylabelled 'IDNDR activity'. The first type of activity is described in Chapter 2 of this report As for the latter, it has to be concluded that those labelled 'IDNDR activity' are only a small part of disaster-related programmes, in most cases linked to the Australian IDNDR Coordination Committee. Nevertheless; the region has benefited from IDNDR in a number of ways, as described below:
6.1.1 IDNDR has been instrumental in bringing together South Pacific disaster managers on two occasions: in Solomon Islands in 1992 and in Vanuatu in 1993. Both meetings were organized and funded by the Australian IDNDR Coordination Committee, and have contributed to further the cause of disaster reduction in the region. The meeting in Vanuatu was seen as a preparation for the World Conference on Natural Disaster Reduction, and has initiated the formulation of this report.
6.1.2 Several IDNDR projects and activities have been implemented in recent years. Most of these with assistance of the Australian IDNDR committee, and many under the umbrella of the 38
Australian "Pacific Disaster Preparedness Programme". Projects include the preparation of cyclone action guides for Solomon Islands and Vanuatu, the Vanuatu Cyclone Awareness and Education Programme and provision of Australian IDNDR materials to the Pacific region.
6.1.3 The technical assistance provided by the South Pacific Programme Office of the United Nations Department of Humanitarian Affairs is closely linked to the international decade, because of close institutional links to the IDNDR Secretariat The assistance has resulted in disaster management needs assessments for several Pacific island countries, the revision of the Fiji National Disaster Management Plan and various studies and project proposals. The assistance will be further intensified over the coming period with the implementation of the "South Pacific Disaster Reduction Programme".
6.1.4 The United Nations Disaster Management Training Programme [DMTP] complements the IDNDR objectives. The South Pacific workshop of DMTP was held in Apia, Western Samoa, in December 1993. The workshop brought together disaster managers and others involved in disaster reduction programmes from the whole region and has contributed to disaster reduction activities in the region.
6.1.5 The region has further gained some benefits from IDNDR activities in other regions and through global activities. Materials and studies carried out, or prepared for other regions have in cases proved useful for use in the Pacific. In particular, materials prepared for small island developing states in the Caribbean have contributed to disaster reduction efforts in our region. The distribution of the publication "STOP! Disasters" in the region and the preparations for the World Conference have contributed to a change of focus in the South Pacific toward more pre- disaster oriented disaster reduction efforts.
6.2 IDNDR IN THE SECOND HALF OF THE DECADE: TOWARDS AN ACTION PROGRAMME
As shown in Chapter 4, we have formulated four strategic areas for disaster reduction in the South Pacific in the second half of this Decade. The means that are currently available for the implementation of these strategies do not suffice for full implementation of these strategies. It would be beneficial to the region if the IDNDR infrastructure is used to strengthen our cause. We see opportunities for this in three directions:
6.2.1 IDNDR should play an increasing role within the South Pacific, in particular by raising awareness of the opportunities to reduce the toll of natural disasters and thus further contribute to a shift from disaster relief to disaster mitigation and preparedness. This could include distribution of IDNDR materials to policy makers, and also to community-oriented activities.
6.2.2 It is hoped that through the IDNDR activities, the region will gain increased access to technological and scientific information that can contribute to risk reduction, either from other regions, or from global sources. The region also hopes to secure and improve its access to telecommunication links and satellite facilities for natural hazard monitoring, assessment and information exchange.
6.2.3 Through the activities and meetings in IDNDR, the international community may increase its understanding and appreciation of the characteristics and vulnerabilities of Pacific island states, 39
and the impact disasters can have on sustainable development in the region. It is hoped that this may initiate further cooperation in efforts to reduce disasters in the region.
6.3 ACTION PROGRAMME RECOMMENDATIONS
In line with the Programme of Action for the Sustainable Development of Small Island Developing States, as proposed to the United Nations Global Conference in Barbados in May 1994, the World Conference and the IDNDR Secretariat are urged to give special recognition to small island developing states, so that their unique characteristics are taken into account in the development of natural disaster reduction programmes. Towards an action programme for the second half of the decade, we recommend the following:
6.3.1 The focus of the second half of the Decade be on the implementation of disaster mitigation projects at national and regional levels. The first half of the Decade has focused on scientific studies and international cooperation. It is now time to focus on the in-country implementation of these findings.
6.3.2 The High Level Council and the Scientific and Technical Committee be tasked to actively support fundraising for identified disaster mitigation projects. To make this Decade a success, funds and technical assistance are required to actually reduce risks within countries.
6.3.3 Action be taken to support and facilitate the setting up of a South Pacific Regional IDNDR Committee, which could serve as a platform for the exchange of ideas, information and strategies for disaster reduction in the region. This would recognize the characteristics of the South Pacific, and provide opportunity for scientific and technical cooperation at regional level.
6.3.4 Action be taken to appoint a representative, nominated by the South Pacific Regional IDNDR Committee, of Pacific Island Developing Countries, to the Scientific and Technical Committee. With the second half of the Decade focusing more on practical implementation of disaster reduction activities, adequate representation of regions becomes more important. This would allow full use of human and scientific resources from the region. Pacific island countries feel that the characteristics of their region, and its approaches to disaster reduction, warrant representation on this Committee.
6.3.5 The IDNDR Secretariat intensify efforts to facilitate exchange and cooperation between regions. This will enable the South Pacific region to benefit more from lessons learned in other parts of the world. In particular, we hope to increase our cooperation with countries, organizations and individuals that may have similar conditions, problems and opportunities to those prevailing in our region. 41
CONCLUSION
Pacific Island Developing Countries are committed to reduce the impact of natural disasters. This has to be done in unique geographical conditions, where transport opportunities and costs determine the way in which disaster reduction efforts can take place. The region is prone to a wide range of natural hazards and its economic, social and environmental characteristics make it highly vulnerable. Human, financial and material resources needed to cope with disasters are very limited and costs of projects are high.
Several activities are in place to address the disaster issue at national and regional levels. When implemented in a coordinated and coherent manner, these activities and programmes will form a substantial contribution to our common strategy for risk reduction in the region. The International Decade for Natural Disaster Reduction can provide a vehicle for additional programme support, create greater awareness for opportunities to reduce risks and assist in forging linkages with other regions and donor countries and organizations. 43
ACRONYMS
ADPC Asian Disaster Preparedness Center AEMI Australian Emergency Management Institute (of EMA) AIDAB Australian International Development Assistance Bureau AODRO Australian Overseas Disaster Response Organization
DHA-SPPO Department of Humanitarian Affairs - South Pacific Programme Office DMTP Disaster Management Training Programme DSO Disaster Support Organization
EC European Community EEZ Exclusive Economic Zones EMA Emergency Management Australia
FEMA Federal Emergency Management Agency (USA) FSM Federated States of Micronesia lONDR International Decade for Natural Disaster Reduction INSARAG International Search and Rescue Advisory Group
NDC National Disaster Committee NDMC National Disaster Management Committee NGO Non-Government Organization
ODA Overseas Development Assistance OFDA Office of the US Foreign Disaster Assistance
PIC Pacific Island Country PlOP Pacific Island Development Programme
SOPAC South Pacific Applied Geoscience Commission SPC South Pacific Commission SPPO South Pacific Programme Office SPREP South Pacific Regional Environment Programme SPSSD South Pacific Satellite Storm Detection STC Scientific and Technical Committee SWP South West Pacific
TCP Tropical Cyclone Programme
UNDHA United Nations Department of Humanitarian Affairs UNDP United Nations Development Programme USAID United States Agency for International Development USP University of the South Pacific
WCP World Climate Programme WMO World Meteorological Organization WWW World Weather Watch 45
ACKNOWLEDGEMENTS
At the 6th SPREP Meeting held in Suva, Fiji in September 1993, the delegates agreed on a motion that SPREP prepare a regional report and to assist PICs prepare their national reports for the World Conference on Natural Disaster Reduction. SPREP then requested the South Pacific Programme Office of the United Nations Department of Humanitarian Affairs to put together a team of disaster management professionals for this purpose.
The team has made this report possible and the efforts of its individual members, viz, Joseph Chung and Lucas Vrolijks (DHA-SPPO); Neville Koop (SPREP); Trevor Hatchard (EMA); and Joanne Burke (USAID/OFDA) is hereby acknowledged. Special recognition must be given here for Luc Vrolijks' effort in putting the report together.
The report reflects the contributions made by all the National Disaster Management Officers of the 14 Pacific island countries which participated. With their valuable assistance and input, this report becomes truly regional. A special thanks is conveyed here to all the personnel of those government departments of PICs that were consulted during the compilation of this report.
Financing for consultations was provided by the Australian International Development Assistance Bureau (AIDAB) and by SPREP. Emergency Management Australia (EMA) provided funds and resources for the publishing and printing of this regional report.