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Pukapuka Atoll, Cook Islands and the Cook Islands National Disaster Management Office

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Pukapuka Atoll, Cook Islands and the Cook Islands National Disaster Management Office College of Design Cyclone Management Report for Pukapuka Atoll, Cook Islands and the Cook Islands National Disaster Management Office Volume 1, #2 Robert A. Findlay AIA, professor College of Design, Iowa State University United States of America Crisis Corps (Peace Corps) volunteer Romani Katoa ONU Group, Rarotonga Cyclone Management Report for Pukapuka Atoll, Cook Islands and the Cook Islands National Disaster Management Office Robert A. Findlay AIA, professor College of Design, Iowa State University United States of America Crisis Corps (Peace Corps) volunteer Romani Katoa ONU Group, Rarotonga August 1998 Cyclones are an inevitable part of life on South Pacific islands. Islanders cannot control these events, but they can manage them in order to minimize the loss of life and property. This report provides background for managing a resilient community: one that is prepared, minimizes losses, and recovers quickly. Cover photograph Pukapuka Enua (dance group) in a Kapa Rima interpretation of Cyclone Martin performed at the Cultural Dance Festival in Rarotonga, Cook Islands, August 1, 1998. This report was produced for the Cook Islands National Disaster Management Office with financial support from the Asian Development Bank. Additional support was provided by the United States Crisis Corps (Peace Corps) Program and the Institute for Design Research and Outreach at Iowa State University. The project was managed by the ONU Group International, Engineers and Architects, Rarotonga, and conducted on Pukapuka Atoll by the authors. Recommendations in this report are made by the authors and are based on a four-week field study on the atoll, including interviews with contributors and on-site observations, and are not the result of community decisions at this time. For more information, contact Robert A. Findlay, professor Department of Architecture 156 College of Design Iowa State University Edited by Heather Sauer and Lee Haugen Ames, IA 50011 Designed by Mary Immesoete [email protected] August 1998 Penrhyn Rakahanga Pukapuka Wale Island Manihiki Nassau Roto Village Yato Village Suwarrow Ngake Village Reef Cook Islands Palmerston Motu Kotawa Island Lagoon Aitutaki Motu Ko Island Toka Island Manuae Japan Takutea Hawaii Mitiaro Airport Papua Atiu New Guinea Mauke N Samoa Fiji Rarotonga Tonga Cook Islands Australia Mangaia New Zealand Map 1 Pukapuka Atoll Map 2 Pukapuka and the Cook Islands in the South Pacific Report Contents: Introduction................................................................................................... 1 1. Cyclone Risk Assessment of Pukapuka Atoll: The Islands.......................... 3 2. Vulnerability of the Pukapukan Population to Cyclones: The People......... 7 3. Town Planning Responses and Adjustments: The Villages......................... 12 4. Village Regulation and Control: Mitigation Recommendations................ 13 5. Cyclone Emergency Responses: Preparing, Enduring, Surviving............... 15 6. Recovery and Rehabilitation: Program Implementation Documents and Activity, Time, and Cost Schedules...................................................... 17 References...................................................................................................... 22 Maps 1. Pukapuka Atoll.......................................................................................... above 2. Pukapuka and the Cook Islands in the South Pacific................................. above 3. Topography and hazardous areas on Wale.................................................. 4 4. Topography and hazardous areas on Motu Ko........................................... 5 5. Topography and hazardous areas on Motu Kotawa................................... 6 6. Principal features of Yato, Roto, and Ngake on Wale................................ 12 7. Cyclone management recommendations for Wale.................................... 19 Appendices 1. Cyclones Affecting the Cook Island Group, 1904 to 1998....................... 23 2. Saffir/Simpson Hurricane Scale................................................................ 26 3. A Note on Mapping Pukapuka................................................................ 27 4. TCM Recovery Program and Updates as of July 1998.............................. 28 Introduction Islanders of Pukapuka Atoll report cyclones at Category 1-2 (Saffir/ Simpson Hurricane Scale) to be nearly annual events, and more severe, Category 3 events each decade in recent history. Normally the cyclones strike Wale, the principal inhabited island of the three which constitute the atoll, from the west-northwest as is typical in this part of the South Pacific. Cyclone Martin, however, struck without warning during the early morning hours of November 1, 1997, from the opposite direc- tion, with strong winds and two wave surges on the eastern shoreline. In addition, tsunami-like waves were seen along the eastern shoreline in July 1997. There is no explanation, to date, for the shift in direction. Various official reports suggest that Cyclone Martin was a Category 3, causing considerable damage to the northern group of the Cook Islands, especially to Manihiki Atoll to the east of Pukapuka later that same day. The event increased awareness among Pukapukans and Cook Islanders, as well as internationally, for cyclone preparedness and mitigation ac- tions such as are included in this cyclone management study. The study covers cyclone risk assessment inherent in the physical makeup of the atoll; vulnerability of the population in social, economic, and physi- cal terms; town planning responses and adjustments to cyclone hazards in the development of the villages; recommendations for appropriate Passenger landing at Roto Village regulation and controls; emergency responses such as evacuation and the establishment of cyclone management shelters; and concludes with actual and proposed recovery and rehabilitation programs. In conducting this study, the authors used an ecologically-based, gener- ally nonstructural approach to cyclone hazard mitigation as outlined in two sources: Living by the Rules of the Sea and Coasts of Pacific Islands. Both emphasize the economic costs and the temporary and sometimes self-defeating results of structural solutions, while recognizing the power of natural forces. They recommend removing or keeping people out of harm’s way through limitations on development locations and through maintaining intact natural systems of sea and land where they meet at the shoreline. The provision of warnings, evacuation plans, and safe havens constitutes cyclone hazard preparedness measures. Although this study was brought about in response to the recent experi- ence with Cyclone Martin, it provides a longer-term view of cyclone hazard mitigation and preparation for future storm events. Of the three islands of Pukapuka Atoll, only Wale is inhabited year round. Motu Ko and Motu Kotawa are food reserves that are not visited during cy- clone season except for the occasional flight into the Pukapuka airport on Motu Ko. As the airport and the three-mile small powerboat ride across the lagoon to Wale are of considerable importance in emergency preparation and recovery, Motu Ko is also mapped and discussed in this study. Although Motu Kotawa is a low-lying island in the path of cyclone activity, it is less frequently visited and is not examined here 1 beyond the topographic survey. Contributors to the Study Mayor Mataa Aumatanga Island Council Ngarima Nooroto, Ngake Tere Mataio, Ngake Rukuaro Marukore, Roto Lito Tinokura, Yato Manila Matenga, Yato Ministry for Outer Island Development Isaac Itako Elisa, CEO Billy Tiro, construction foreman Department of Agriculture Paulo Paulo Mika Akariri Government Representative Office Vai Peua, Registrar Health Manongi Amosa, nurse practitioner Shopkeepers Ravarua Tutai Charlie Frisbie Pukapuka School Griffith Robati, principal Kate Robati, teacher Walewoa Teingoa, teacher Tukia Mataora, teacher Tuwunga Mataora, teacher Motu Kotawa Pule (guards) Tangitane Manila Tokoua Ravarua Onongauru Tinokura Telecom Maeraro Merota Karito Tauia Residents Walemaki Pakere Tetiare Taunga Katikity Petero ONU Group International Chris Manu National Disaster Management Office Anthony Brown Peace Corps Steven Nagler (Western Samoa) Mary Jordan (Crisis Corps) Photographs and maps are by the authors unless otherwise noted. 2 1. Cyclone Risk Assessment of The most westerly of the Cook Islands, Pukapuka Atoll is located approxi- Pukapuka Atoll: The Islands mately 715 miles northwest by north of the capital, Rarotonga. The atoll comprises three islands containing 1,250 acres that lie within an enclosed, roughly triangular-shaped lagoon. Wale is the island on which the three villages of Yato, Roto and Ngake are located. Yato has a small food reserve on Wale, Motu Niua, and another on the entire island of Motu Kotawa. Roto has a food reserve on Wale, Motu Uta, that extends northward from the village. Ngake has its food reserve on most of Motu Ko, which is also the location of the Pukapuka airport. The northern group of Cook Islands is equally low in elevation and vulner- able to cyclone activity, although Pukapuka has a wider land mass, lending more natural protection mid-island as well as more opportunity for protec- tive setbacks and buffers to ocean waves. The existing setbacks on Puka- puka are either maintained naturally by storm winds and periodic storm surges that keep the areas clear, or local wisdom has advised avoidance of building in these areas, as there are no formal
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