End of 2019/ 2020 South Pacific Cyclone Season Report Localisation During Overlapping Responses: COVID-19 Pandemic & Tropical Cyclone Harold
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End of 2019/ 2020 South Pacific Cyclone Season Report Localisation during Overlapping Responses: COVID-19 Pandemic & Tropical Cyclone Harold 1. Executive Summary • There were nine named tropical cyclones during this 2019/ 2020 tropical season. TC Harold was the first Category 5 cyclone since TC Gita (in February 2018), and was stronger than TC Gita. • The 2019/ 2020 cyclone season had a number of additional disasters with Both the measles outBreak in Samoa and the COVID pandemic across the Pacific region presenting concurrent emergencies. • The global COVID pandemic led Vanuatu authorities to declare a state of emergency on 26th March. This placed restrictions on a typical international response from humanitarian INGOs, and the TC Harold response became a situation of ‘forced localisation’. • INGOs understand at an intellectual and ethical level the imperative of localisation, particularly as operational necessity during a public-health emergency, such as COVID. • While CID memBers have Been aBle to effectively provide support through local partners during the TC Harold response, this does not necessarily constitute or address the concerns of localisation as identified by Pacific partners. Further work may Be needed to clarify what an INGO localisation processes might actually involve operationally. • The Barriers that New Zealand INGOs experience in being aBle to implement a more effective localisation relationship can be catagorised into four categories: vision and clarity of definition, funding, power relations and global/ local perceptions. • The experience of the overlapping crisis of COVID and TC Harold present five opportunities by which humanitarian INGOs can better support response activities that will progress a localisation agenda: 1. The strengthening of partnerships and the improvement of complementarity, 2. Support funding that allows national actors to directly support locally led responses, 3. Support human resourcing solutions locally, particularly recruitment and local surge, 1 4. Adapt systems, policies and processes to accommodate new ways of working, and 5. Support national coordination processes and mechanisms. 2. Background and Context of the 2019/ 2020 Cyclone Season The 2019 World Risk Report ranks Vanuatu and Tonga as first and third respectively at the top of a list of 180 countries based on level of risk from natural disaster. Vanuatu in particular is no stranger to severe tropic cyclones, having experienced Tropical Cyclone (TC) Pam in 2015 and TC Harold during this latest (2019/ 2020) South Pacific cyclone-season. Events surrounding TC Harold were considerably different to previous response contexts. The global COVID pandemic led Vanuatu authorities to declare a state of emergency on 26th March. This placed restrictions on what might have Been a typical response from humanitarian INGOs to a cyclonic disaster of this scale. With few options, the response effort became a situation of ‘forced localisation1’, with Vanuatu experiencing what locally sourced emergency aid means in very real terms. However, if the situation provided some uncertainly and consternation for international partnerships, the concept a locally led response did not represent the emergence of a new priority for the Vanuatu authorities. Following TC Pam previously, Vanuatu had seen an influx of international personnel and resources to support the response, which quickly complicated and overwhelmed the government’s own localised initiatives. With this still in recent memory, and a new concern that an outbreak of COVID could quickly overwhelm their limited medical capacity, the Vanuatu National Disaster Management Office (NDMO) took an expedient and definitive position. They decided that the response would be managed locally; declaring that, “no foreign personnel are being brought to Vanuatu for response efforts at the present time; this will be an internally run operation”. In April the Pacific Islands Forum Leaders also have evoked the Biketawa Declaration; a 2000 agreement on a coordination framework for a regional crisis. As an immediate priority and in consultation with senior officials, regional agencies and development agencies, Pacific Forum Foreign Ministers also estaBlished a Pacific Humanitarian Pathway. This was to ensure a supply-chain remained in lieu of traditional or commercial routes no longer being available for humanitarian assets via Australia and New Zealand. The manner in which the Pacific region, and specifically Vanuatu, managed the response to TC Harold provides critical insight into what a national and locally led disaster response can be in the Pacific. The localised response in Vanuatu was explored in a rapid review ‘No Turning Back: Local Leadership in Vanuatu’s Response to Tropical Cyclone Harold’ undertaken by the Humanitarian Advisory Group (HAG) and the Vanuatu Association of NGOs (VANGO). 1 Vanuatu: A real test for local emergency response (Lowry Institute – July 2020) 2 3. Purpose of this Report The localised response experienced in Vanuatu during the 2019/ 2020 cyclone season is not a unique case. International humanitarian responses to Cyclone Amphan in Bangladesh and India (May 2020), and monsoon-flooding in Bangladesh (July 2020), were restricted due to COVID restrictions. Pandemic restrictions also impeded emergency response efforts to Typhoon Vongfang in the Philippines (May 2020). Furthermore, it can be argued that, many of the lessons-learnt and opportunities for clarity that a localised response during a pandemic might also inform response support in other situations of limited access, such Myanmar and Syria2. In the following days of these events, a substantive amount of otherwise standardized international response actions were ‘shut outside’ coordinated localised initiatives. INGOs were somewhat left sitting on the side-lines to contemplate exactly what ongoing restrictions and limited humanitarian access might mean to traditional humanitarian programming partnerships and operating models. Yet, the concept of localisation is not new. The concept of localisation has been discussed in numerous seminars and surveys both internationally and domestically (within New Zealand) by the sector, including two workshops and a survey facilitated By CID and the Pacific Islands Association of Non- Governmental Organisations (PIANGO), and the Australian Council for International Development (ACFID). The feedBack and findings from these suggest that the implementation and suBstantiation of ‘localisation’ appears to be at best inconsistent, and at worst somewhat guarded and non-committal As such, the theme of the 2019/ 2020 South Pacific Cyclone Season Report is the ‘enforced localisation’ triggered in the response to severe cyclones like TC Harold. This report will not only provide a snapshot of the season itself but will also review the barriers and opportunities that restrictions - such as those relating to the COVID pandemic - might present to the implementation of localisation. A review of previous literature on regional localisation is further collated, to provide a broader summary of recommendations. These are particularly relevant to INGO partners who in future, wish to address access restrictions and genuinely support local response initiatives, including by remote. 4. TC Harold (1st – 11th April 2020) – Vanuatu, Solomon Islands, Fiji and Tonga A meteorological overview of the entire season is attached as Appendix 1 - Meteorological Overview of 19/ 20 Cyclone Season. There were nine named tropical cyclones during this 2019/ 2020 tropical season, including those that originated in the Gulf of Carpentaria. TC Harold was the first Category 5 cyclone since TC Gita (in February 2018), and was in fact slightly stronger than TC Gita. TC Harold tracked from 1st – 11th April 2020 and was the second strongest cyclone to impact Vanuatu after TC Pam (in March 2015). 2 ‘All eyes are on local actors’: Covid-19 and local humanitarian action (HPG – July 2020) 3 TC Harold underwent what the NZ Met Service term ‘Rapid Intensification’ (RI), a rare transition from Category 1 to Category 4 within a 24-hour period. It sustained peak winds of 120 knots (or 222km/h) once over Vanuatu. TC Harold also impacted the Solomon Islands, Fiji and Tonga, and caused significant damage and destruction across all the four affected countries. Vanuatu was most heavily impacted in terms of infrastructure; however, the most significant number of fatalities were from the Solomon Islands. Tragically, TC Harold resulted in some 30 fatalities; 27 lives were lost in the Solomon Islands, two lives in Vanuatu and one in Fiji. In Vanuatu alone TC Harold affected 160,000 people. The northern provinces of Samna, Mama and Panama were most severely impacted. In the country’s second largest city Loganville, over 70% of structures were damaged. In some provinces of Vanuatu, 80-90% of the community received damage to, or lost their homes. 5. The Response to TC Harold Governments of countries impacted by TC Harold stated that their emergency response would Be led nationally, and restrictions were placed on any incoming personnel. All personnel going into Vanuatu were required to undertake a two-week quarantine. As a result, any ‘Boots on the ground’ response options were off the taBle, which forced INGOs, MFAT and other organisations to recalibrate their package of assistance to affected countries. Still CID member organisations were able to work through their partners on the ground. Oxfam worked with the National Disaster Management Office,