53203 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands republic of fiJi country Assessment GFDRR Global FaCIlITY FoR DISaSTER REDUCTIoN aND RECoVERY Acronyms and Abbreviations ADb Asian Development Bank AusAiD Australian Agency for International Development ccA Climate change adaptation cHArm Comprehensive Hazard and Risk Management Drm Disaster risk management Drr Disaster risk reduction eu European Union fJ$ Fiji dollar GDp Gross domestic product GefpAs Global Environment Facility Pacific Alliance for Sustainability GefpAcc Global Environment Facility Pacific Adaptation to Climate Change Gis Geographic Information System GfDrr Global Facility for Disaster Reduction and Recovery HfA Hyogo Framework for Action isDr International Strategy for Disaster Reduction nAp National Action Plan (for DRM) nApA National Adaptation Plan of Action (for CCA) nDmo National Disaster Management Office nDmp National Disaster Management Plan nGo Nongovernmental organization nZAiD New Zealand Agency for International Development p-Hycos Pacific Hydrological Cycle Observing System piccAp Pacific Islands Climate Change Assistance Program seeDs Sustainable Economic and Empowerment Development Strategy sopAc Secretariat of the Pacific Islands Applied Geoscience Commission unDp United Nations Development Program unfccc United Nations Framework Convention on Climate Change contents introduction ............................................................................................................ 4 country context .................................................................................................... 6 Key country findings ......................................................................................... 9 Detailed country Assessment ........................................................................ 12 Legal framework and policies, and their effectiveness ............................ 12 Inter-government and agency coordination ................................................ 13 Planning and budgetary processes.............................................................. 15 Vulnerability and risk assessments ............................................................... 16 Knowledge, data, and tools............................................................................ 18 Monitoring and evaluation .............................................................................. 20 Awareness raising and capacity building.................................................... 21 Coordination among donors and key stakeholders .................................. 22 opportunities for investment ......................................................................... 25 Annex A. proposals for support to fiji....................................................... 27 Annex b. project team and people consulted ....................................... 30 references and select bibliography ........................................................... 31 4 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands introduction T he World Bank policy note, "Not If, But When" Instead, it cites other reports that have covered this shows the Pacific island countries to be among and complements these with suggestions for taking the world's most vulnerable to natural disasters. the necessary steps. Since 1950, natural disasters have directly affected more than 3.4 million people and led to more than The assessment aims to deepen the understanding of 1,700 reported deaths in the Pacific Islands Region the gaps, opportunities, and needs at the national level (excluding Papua New Guinea). In the 1990s alone, re- toward stronger operational disaster and climate risk ported natural disasters cost the Region US$2.8 billion management in Fiji and to link closely to other ongo- (in real 2004 value). The traditional approach of "wait ing and future efforts by other donors and stakehold- and mitigate" is a far worse strategy than proactively ers (such as the SOPAC regional initiatives follow- managing risks. ing the Madang Framework and the National Action Plans) to ensure synergy and avoid duplication. The The Hyogo Framework for Action (HFA) 2005-2015 assessment focuses on practical, proactive measures as lists the following 5 key priority areas for action: ways in which Fiji can inform its national develop- ment policies and plans and strengthen its capacity (1) Ensure risk reduction is a national and a lo- to reduce the adverse consequence of natural hazards cal priority with a strong institutional basis for and climate change with regard to risk reduction. The implementation; linkage of these two areas mainly includes managing (2) Identify, assess, and monitor disaster risks and the impacts of extreme weather events, variability in enhance early warning; precipitation and storm surges, and sea-level rise. (3) Use knowledge, innovation, and education to build a culture of safety and resilience at all lev- This Fiji assessment highlights the current country els; status; gaps, opportunities, and barriers related to (a) (4) Reduce underlying risk factors; and national policies, strategies, plans, and activities to (5) Strengthen disaster preparedness for effective manage natural hazards; (b) the enabling environment response at all levels. for a comprehensive risk management approach to natural hazards; and (c) the capacity to undertake such This assessment represents a stocktaking exercise to a comprehensive approach, including institutional ar- review the extent to which disaster risk reduction rangements, human resources, public awareness, infor- (DRR) and climate change adaptation (CCA) activi- mation, and national budget allocations. It also reviews ties have progressed in Fiji. It also identifies the gaps and identifies the need for informed policy choices, im- or impediments to achieving the HFA principles, proved decisionmaking processes, strengthened regu- and proposes opportunities for future DRR/CCA lations, and legislative and policy changes required to investments that would be timely, cost-effective, and support proposed country-level activities. implementable within a three-year timeframe. The focus is on risk reduction, as opposed to post-disaster With respect to achievement of the first (1) HFA recovery and response. While some sector-specific priority action principle, there is clear evidence of activities are addressed in the assessment of national systemic difficulties among many Pacific island coun- and local government policies and institutional ar- tries in establishing an enabling environment and rangements, the Fiji report does not provide a com- promoting a cross-sector focus for DRR and CCA prehensive summary of sector-by-sector activities. activities. Since the available evidence shows that ad Republic of Fiji Country Assessment 5 hoc, externally driven approaches have not yet pro- on key findings and a detailed country assessment that vided satisfactory results, the HFA emphasis upon a focuses on some relevant components to achievement strong government commitment and action is one of of the HFA: adopting and mainstreaming policies; the primary and early challenges to be surmounted in data and knowledge; risk and vulnerability assess- achieving the goals of the UN International Strategy ments; monitoring and evaluation; awareness raising for Disaster Reduction (ISDR). and capacity building; planning and budgetary pro- cesses; and coordination. From this assessment, pos- World Bank experience in countries with similar chal- sible opportunities for addressing the identified gaps lenges shows that while it is important to have a clear and needs within the HFA are presented in the final long-term vision given the institutional, financial, and section. Three proposals for investment support to Fiji resource constraints, more modest "bottom-up" ap- are presented in Annex A. proaches tend to have better results. Also, taking ex- isting investment programs and incorporating simple Funding for this assessment was provided by the key DRR/CCA elements demands relatively fewer ef- Global Facility for Disaster Reduction and Recovery forts and resources and yields results that can lay the (GFDRR), which is a partnership of the UN Interna- foundation for more complex, follow-up stages. Get- tional Strategy for Disaster Reduction (ISDR) system ting stakeholders to coordinate their activities in line to support the Hyogo Framework for Action. Other with the 2005 Paris Declaration on Aid Effectiveness acknowledged partners who support the GFDRR also appears relatively easier with such a modest start- work to protect livelihoods and improve lives are Aus- ing point than with formal efforts aimed at compre- tralia, Canada, Denmark, European Commission, hensive "top down" coordination. Finland, France, Germany, Italy, Japan, Luxembourg, Norway, Spain, Sweden, Switzerland, United King- This report begins by explaining the DRR/CCA-re- dom, USAID Office of Foreign Disaster Assistance, lated context of the country. It follows with sections and the World Bank. v 6 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands country context T he Republic of Fiji is an island nation with an es- figure 1. map of fiji timated population of 850,000 people and an an- nual population growth of 0.8 percent. The coun- try has a total land area of 18,333 square kilometers, and a much larger exclusive economic zone of 1.26 million square kilometers that encompasses over 320 islands of which 105 are inhabited (Figure 1). The inhabited is- lands are mostly volcanic in origin, including the larg- est--Viti Levu (10,390 square kilometers) and Vanua Levu (5,538 square kilometers). Together these islands make up about 87 percent of the nation's landmass. Fiji is second only to Papua New Guinea as the Pacific island country having been most affected by natural disasters since 1990 (ADB 2005). The social and eco- nomic implications of climatological and hydrological risks are considerable across all primary production sectors, especially agriculture. Floods and droughts can disrupt agricultural production for domestic and export activities and landslips can cut roads and dis- rupt communications and access. Cyclonic events are a threat to settlements, infrastructure, tourist facilities, and the population that is located on the coastal fringe of the high islands and on the low islands. Despite low population growth rate, pressure on land upon which many economic activities are dependent, resources for increased food production is growing. represent over 40 percent of the country's GDP (ADB According to the estimates of the Asian Development 2005). All of these economic sectors are at risk to adverse Bank (ADB 2005), about 30 percent available land is impacts from climatic variability and climate change. flatland suited to sustainable agricultural production. Geographically characterized by high and low islands, Fiji has a diverse economy. Economic activities en- Fiji is exposed to a wide range of geological, clima- compass agriculture, fisheries, forestry, garment tological, and hydrological hazard and risks. It has a manufacturing, and mining. Exports include sugar, tropical-oceanic climate with tempering influences clothing, gold, coconut products, tropical fruits, root of prevalent southeast trade winds producing a mean crops, vegetables, tobacco, fish, and timber products. annual temperature of 28° Centigrade. Rainfall varies Tourism is the fastest growing industry in the coun- considerably, with the windward sides of larger islands try. Tourism contributes about 17 percent to GDP, being extremely wet while leeward sides have consid- while 3-4 percent draws from agricultural produc- erably less rainfall. For example, annual rainfall ranges tion, 4 percent from forestry, and 1-3 percent from the from approximately 440 millimeters in the west and minerals sector. The nation's biodiversity resources, 1,120 millimeters in the southeast of the larger main is- Republic of Fiji Country Assessment 7 table 1. Key Hazards to be Addressed by the republic of fiji Key natural hazard Key human-induced hazard Flooding and droughts Fire (dwellings and wild-fire in forest) High cyclonic /storm winds Oil and chemical spills Storm surge and coastal inundation Contamination of water supplies Landslides Disease outbreaks Earthquakes Slope instability due to over-clearing Seabed volcanism Contaminated storm run-off Tsunami Coastal siltation lands. The combination of high rainfall accompanying earthquake and tsunami was registered in 1953. The cyclonic activity and storm events, as well as steep bare threat from volcanic eruptions is rather low with their slopes, causes rapid runoff with river floods and sedi- primary effects on the maritime sector limited to the ment discharges into the nearshore coral reef habitats. impact of large pumice rafts from sub-marine erup- It has adverse implications for coastal communities, as tions to the east of Fiji. well as for commercial fishing and tourist activities. The core natural hazards are weather and climate re- Table 1 provides a summary of the key natural and hu- lated. They are caused by tropical storms and cyclones man-induced hazards in Fiji. The current key hazards that produce storm surge, flooding, and heavy seas. and risks of most concern to Fiji are products of cyclon- Drought, which affects coastal and upland areas, is ic and geological-forcing activity. Fiji is in the tropical another outcome of a climatic condition. Since 1978, cyclone belt, and one cyclone on average passes through several droughts have had a major impact on the eco- Fijian waters each year. Cyclones cause loss of lives and nomic productivity and subsistence livelihoods across property, coastal and riverine flooding, as well as dam- the country. The threats can become significantly ages to agricultural and tree crops from high winds. higher due to a longer-range climate change. They have severe consequences for the nation's econo- my. Reaping damages to the country at a cost of FJ$100 The Fiji Islands are characterized by physical, demo- million, Cyclone Ami exemplified how poor building graphic and socio-economic conditions and pressures standards can result in large infrastructure losses and that exacerbate vulnerability and the risks posed by aggravate the human catastrophe (ADB 2005). natural and human-induced hazards. The characteris- tics of Fiji include the following: Other hazards of a priority nature include landslides n Geographic extent of an island nation that covers on unstable slopes resulting from geological and soil a large area of ocean that makes communications conditions and excessive clearing of vegetation; and and disaster response difficult; storm waves and swells, and rising sea level contribut- ing to coastal erosion. n Topographic variability with low-lying coastal ar- eas and atolls that are susceptible to overtopping Fiji's location on the Pacific "ring of fire" puts it at risk by storm surge and the considerable areas of steep from geological hazards, in particular earthquakes and hills and mountains that are over-cleared, geologi- locally generated tsunamis. The last major destructive cally unstable, and susceptible to landslips; 8 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands n Diverse and terrestrial and marine ecosystems that n Primary industry-based economy vulnerable to offer a diversity of habitats and ecosystem services, droughts, floods, and global market influences. for example, related to mangroves and coral reefs that provide some coastal protection from storm To address disaster risk reduction and disaster man- waves and seas; agement, the Government of Fiji adopted the Strate- n Fresh-water resources that are highly vulnerable to gic Development Plan 2007-2011, based in large part over-use, contamination, and droughts; on the regional Framework for Action 2005-2015. In November 2007, the Interim Fiji Government pro- n High-density population pockets in coastal areas of mulgated the Sustainable Economic and Empowerment Viti Levu (for example of Suva), as well as the coral Development Strategy (SEEDS) 2008-2010, One key coast and low islands that have been developed for goal of the new policy strategy is to reduce vulnerabil- tourist resorts; ity to disasters and risks, while promoting sustainable n Socio-economic disparity with a considerable part development. v of the rural and low island populations at subsis- tence levels; Republic of Fiji Country Assessment 9 Key country findings T he key natural and human-induced hazards of private property and infrastructure--deserves urgent major concern to Fiji require DRR/CCA mea- attention to translating these objectives into effective, sures that are tailored to the geographic char- well-planned, and coordinated activities. acteristic and type of governance of the island nation. Key areas of concern for disaster risk reduction arise This assessment concludes that the climatological, from Fiji's salient characteristics: hydrological, and geological pressures raise concerns about risk reduction when taking into account the n Some coastal tourist developments are sited in vul- cumulative effects of the risks from interactions nerable areas that make disaster risk management between natural and human-induced hazards. The and liability in relation to early warning and evacu- assessment findings can be summarized as follows: ation more difficult. n Fiji has an inherently high potential for exposure to n Settlement planning processes and building codes are considerable array of natural disasters. The prob- needed to integrate risk reduction and adapting to ability for catastrophic damage and loss of life climatic variability and change. from hazards, such as cyclones and tropical storms, n Significant areas of the coral reef, beach and man- storm surge, flooding and landslips, is assessed as grove systems are degraded making coastal areas very high. more vulnerable to storm surges and coastal ero- n Fiji is extremely vulnerable to natural and human- sion. induced hazards. Overall, the associated risks ap- n Emergency response and relevant infrastructure, pear to be increasing due to population pressures, early warning mechanisms and community ar- poorly regulated land resources, and the potential rangements are limited with scattered islands par- for climate change. ticularly vulnerable to cyclones and droughts, with n Human-induced hazards increase negative impacts subsequent water and food shortages. from cyclonic and tropical storm events and geologi- n Waste management and sanitation are inadequate, cal (including seismic) activity. The impacts result which increases the potential for the pollution of from poorly planned and developed urban and critical water sources and the general threat to peri-urban areas, vulnerable tourist facilities and public health, especially in coastal lowland areas infrastructure; unsustainable economic develop- utilized for tourist developments. ment processes and activities; and inadequately resourced disaster response mechanisms. n Poor agricultural land use practices are one of the main causes of soil erosion, flooding, and siltation n Insufficient preparation for natural and human-in- of nearshore coral reef habitats. duced hazards increases the underlying risks. While core hazards and risks have been identified and While relevant policies and regulations in Fiji are priority issues are known, they are not integrated reasonably well structured, their implementation into national and sector plans and policies. Fur- remains weak. This situation is compounded by a thermore, the ability to manage population growth widely acknowledged lack of institutional capacity. in certain areas, land use, and protection of envi- The task at hand--reducing risks to human life and ronment is severely undermined by institutional health, land-surface stability, terrestrial and marine constraints, including professional and technical biodiversity, socio-economic viability, and public and capacity of government agencies. 10 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands The situation is complex in a financial, structural, based, and seek to improve the collection, collation, and functional nature. Also being considered is the synthesis, analysis, and dissemination of information gap between short-term government priorities and that is essential for effective disaster risk reduction and perceived long­term priority needs for disaster risk climate change adaptation. The proposed activities reduction and climate change adaptation. In addition, reflect priorities identified across governmental and disaster risk reduction and climate change adaptation nongovernmental bodies. are often seen as externally driven, lacking local political champions and institutional commitment. The way forward depends to some extent on the This situation is further complicated by culture and continued presence of a "champion" in-country to traditional practices involving land ownership, power provide some basis for a sustainable outcome. Any relationships, and leadership. Common in other initiatives should also result in capacity development Pacific island countries, lack of awareness and poor throughout Fiji. Further work is required to identify consultation and engagement mechanisms exacerbates appropriate areas of activity that meet these criteria the problems in Fiji. and for the development of project contexts with the appropriate sector. Any proposals should form the Within the context of country findings, this assessment basis of a longer- term strategic commitment. has identified priority areas where investment could prove effective in strengthening disaster risk reduction A summary of broad situations, gaps, and opportunities and climate change adaptation. These areas of is shown in Table 2. The final chapter of this Fiji report strategic investment are targeted rather than broad- expands on these opportunities. v Republic of Fiji Country Assessment 11 table 2. summary of Key Gaps and opportunities for Drr and ccA in fiji situation Gap or impediment opportunities Adequate legislative steps Arrangements for addressing strengthen the institutional environment, have been taken (i.e., current risk reduction are not through fostering leadership and supporting redrafting of the Disaster penetrating into national or capacity-building initiatives at the national Management Act) but are not sector development plans and planning and budgetary level and follow followed with action. budgets. Hence, there is no through to the sector levels. operational commitment to address these issues Data and risk information on No operating central system establish an integrated hazards threats to life, infrastructure for information management, information and analysis system to and property is not readily storage and access to allow facilitate Drr and ccA activities that accessible across and vulnerability and risk analyses would be subject to a thorough review of between sectors making to inform DRR and CCA sector agencies, provided their revitalization effective DRR and CCA initiatives. of institutional mandates and reactivation of response difficult. their responsibilities. Hazard monitoring and Monitoring networks are review hazard monitoring needs and the data collection in Fiji has degraded and the monitoring institutional arrangements, particularly regressed in the past agencies are dispersed through for hydrological monitoring combined with decade. a range of departments. meteorological monitoring. Combined with lack of funding and commitment data on future disasters is not being used. Cyclones, floods, and droughts Measures to improve water supply Water supply and food production are key hazards and pose systems and food security systems need to be climate-proofed, a major threat to food and and production (subsistence which should involve assessing the water security, and social and and cash crops) are lacking in increased risks from a changing climate. economic well-being of the communities at risk. nation. Some public infrastructure, Capacity in inadequate for enforcement of land use planning coastal settlements, and planning and development and building codes need to be tourist facilities are sited in approvals that are required to strengthened, including the application of low-lying coastal areas and address exposure to natural reviews by the public, commercial, tourist, are vulnerable to cyclones, hazards (including climate and residential sectors; the linking of risk storm surge, flooding, and variability). reduction measures with insurance and tsunami. financial lending instruments should be taken into account in the funding processes. Awareness programs, such Community awareness of and promotion of community-based as successful Disaster attitudes toward DRR and awareness programs for community Awareness Week, have CCA is variable across the Fiji groups, local government, and nGos, limited potential in islands, and there is a big gap including education on changing attitudes extending its message to between awareness and action and behavior critical for responding to all communities to promote at the community and local DRR/CCA and building resilience of community engagement. government levels. environmental, social, and economic systems to reduce vulnerability. Due to its success, Disaster Awareness Week should be copied in all communities. 12 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands Detailed country Assessment legal framework and policies, and Fiji issued in 2005 a First National Communication on their effectiveness Climate Change Strategic Actions, pursuant to commit- T he much-needed Sustainable Economic and Em- ments under the United Nations Framework Conven- powerment Development Strategy 2008-2010, tion on Climate Change (UNFCCC). adopted in 2007 by the Government, could only be effective with practical targets and an imple- Other relevant legislation is in place and being ad- mentation plan. These are not included. At this point, ministered. Fiji's building codes are used on a voluntary there are no planned risk reduction activities coming basis as informal guidelines since there is no institu- from the strategy. tion regulating and monitoring their implementation. As a prerequisite to securing home insurance cover- Adopted by the previous Government, the Comprehen- age, the main risk design standards applied to roofs of sive Hazard and Risk Management (CHARM) guide- buildings will be introduced through a Government lines also endorsed the need for disaster risk reduction. program to adapt the standards to schools and other These guidelines led to some activities directed by the public buildings. Ministry of Regional Development but have not been adapted across all government departments, thus lim- There is no evidence that land use regulations have iting coordinated efforts. been updated to incorporate DRR and CCA com- ponents. Evidence shows that if land use regulations At the sector level, a national DRR framework had and other legal instruments are continually inad- been proposed through two instruments: an updated equate or not enforced, adverse impacts caused by draft of the 1995 National Disaster Management Plan some coastal development, particularly by the tour- (NDMP) and a draft rewrite of the National Disas- ism industry, will continue in the future (ADB 2005). ter Management Act 1998. Both instruments focus Across Fiji, the institutional capacity to control the mainly on disaster prevention and mitigation. Their spread of settlement and tourism development in the effectiveness could be insured through institutional sensitive coastal margins is limited from the view- and political commitment that is now lacking. Imple- points of public and private sector interests. Physical, mentation of the NDMP awaits development of a social, economic, and cultural vulnerability of these National Action Plan (NAP), which depends on gov- settlements is higher when low institutional capac- ernmental priorities and donor funding. ity is coupled with land degradation and changes in rural land use. This coupling can influence food and Another important piece of legislation -- the 2005 water security and the quality and productivity of in- Environment Management Act -- had potential to be- shore marine waters. come the promotional vehicle for CCA efforts. How- ever, the Act does not explicitly state this statutory In summary, DRR and CCA policies are currently in underpinning. In December 2007, the Government place but the institutional arrangements for imple- of Fiji adopted a Climate Change Policy Paper that mentation are ineffective and lack national and sector commits the Government to addressing governance planning and budgetary provisions. issues, integrating policies, data collection, and capac- ity building. Since the policy paper neither lists targets These plans, policies, and strategies require the fol- nor provides budget and action plans, its adaptation lowing actions to become effective: has made no progress. Republic of Fiji Country Assessment 13 n Adequate institutional capacity and commitment ferred from the Ministry of Provincial Development within the key Ministry of Finance and Planning, and Multi-Ethnic Affairs to the Ministry of Defense, as opposed to its present view that disaster risk re- National Security, and Immigration and Disaster Man- duction and climate change are environmental or agement. The NDM Council is active and supports disaster management issues. This position under- NDM Office programs. Measures have been underway mines the ability of the Fiji Government to ad- to review the NDM Plan and the Disaster Manage- equately confront the challenges of risk reduction ment Act in order to address some of the critical gaps. and climate change in the context of national eco- The NDM Office has a role to promote disaster risk nomic and social development. reduction through all government sectors and, as a sign n Integrating DRR/CCA policies across the whole of increased commitment to this effort, is strengthen- range of relevant portfolio areas that have DRR- ing its staff. Serving as the minister in charge of disas- and CCA-related responsibilities rather than using ter management and the NDM Office, the Minister of existing instruments located in individual agencies. Defense also chairs the NDM Council. Consequently, the Fiji public sector needs to ad- dress disaster risk reduction and climate change The establishment of a National Environment Coun- adaptation contiguously rather than treating both cil to coordinate the formulation of environment-re- as separate issues. lated policies and strategies was proposed under the 2005 Environment Management Act. However, it n Linking policy instruments to applicable action is uncertain whether the policies and strategies un- plans with adequate resources to support new sec- der the Environment Management Act will extend tor-driven instruments promoted and put in place to coordination and implementation of disaster risk by the Fiji Government. reduction. n Promoting the knowledge of risk reduction, which tends to be misinterpreted as either a disaster re- Coordination measures include several long-estab- sponse mechanism or an area to be addressed dur- lished committees and working groups. One of the ing the statutory environmental impact assessment groups addresses the development of national building process. codes. Until now, these codes have not been adopted. Also, a long-standing working group on drought oper- n Better use of available tools and techniques, such as ates in Fiji. A relatively new working group was formed CHARM guidelines and the SOPAC Environ- to address DRM impact on tourism. A coordination mental Vulnerability Index. It requires enhanced committee in Fiji, chaired by a representative from the data and information exchange across the institu- private sector, has been working on the Suva Earth- tions of government. quake Risk Management Project. Another working group was more recently formed to study a tsunami inter-government and agency early warning system. In light of the lack of evaluation coordination information, the effectiveness of these committees has Overall coordination of the National Disaster Man- not been assessed. Experience has shown that in Fiji agement (NDM) Plan and the Disaster Management --as in other Pacific island countries--committees Act is a responsibility of the National Disaster Man- tend to be formed as a reactive instrument, and their agement Council. Serving the NDM Council, the Na- effectiveness depends on the dedication and compe- tional Disaster Management Office was recently trans- tence of the members who participate. 14 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands In 1999, a Climate Change Working Group was of coordination groups is one issue. In 2007 the formed to interface with the Pacific Islands Climate NDM Council held 1 out of 4 scheduled meet- Change Assistance Program (PICCAP). With the ings. Much of the coordination is geared toward ending of PICCAP, this group no longer operates and, information exchange and awareness rather than as confirmed by governmental consultations, no alter- effective implementation. Non-participation and native has been established to continue CCA activities cooperation of leading agencies is cited as the main that have been initiated by international bodies. reason for the ineffectiveness of many committees and working groups. In particular, the establish- Climate change issues are primarily the responsibil- ment of informal bodies for disaster risk manage- ity of the Department of Environment. The Ministry ment and climate change adaptation demonstrates of Foreign Affairs and External Trade is the political a low-level concern over accountability. focal point for climate change, particularly on issues n Poor coordination of intra-governmental activities. related to international conventions and obligations. There is a need to review institutional arrange- The Fiji Government proposed that all line ministries ments and the reallocation of institutional respon- establish environmental management units to address sibilities with respect to disaster management, risk the cross-cutting aspects of climate change. This may reduction, and climate change adaptation. Also prove difficult as illustrated by the problems encoun- missing is a one-stop center to help focus leader- tered in recruiting skilled personnel for the Depart- ship and coordination and to avoid proliferation of ment of Environment. committees and working groups. Critical shortages of human resources in Fiji are ham- n Insufficient understanding of risk reduction as a pering DRR and CCA activities. The Fiji Meteoro- key development issue. For coordination to become logical Service is probably the best-resourced techni- more effective, risk reduction must be addressed as cal agency operating although with a minimally sus- a key issue in promoting sustainable development. tainable staffing level. The situation is more severe in Within the Fiji Government and in some private the Hydrology and Mineral Resources Departments, sector enterprises, risk reduction is viewed as an responsible for monitoring earthquakes, tsunamis, environmental impact assessment or a disaster re- volcanic eruptions, landslides, and other geological sponse issue. hazards. Both agencies are critically under staffed and n Lacks of connection between SEEDS and viable resourced. These and other line agencies are pursuing plans of action. The DRR and CCA activities are DRR and CCA activities, although it is largely on a not strongly linked to Fiji sustainable development site-specific project basis. Donor initiatives or regional goals embedded in SEEDS, and there are no match- programs often drive these DRR and CCA projects. ing implementable action plans. It is fundamental to SEEDS effectiveness to set up priorities along with To enhance inter-governmental and agency coopera- strategic planning and appropriate budgets. tion in disaster risk management and climate change adaptation, the following weaknesses need to be ad- n Limited participation of the Ministry of Finance and dressed: Planning in DDR and CCA efforts. There is a clear need for the Ministry to play a key role in develop- n Weak political and institutional commitment, as ing national strategies, along with relevant budgets, well as accountability. Poor attendance at meetings to lead the nation in disaster risk reduction. Republic of Fiji Country Assessment 15 n Limited understanding of the differences between and budgetary support. As the nation's key hydrologi- disaster risk reduction and disaster response, as well cal monitoring service, the Hydrology Section should as of the risks from climatologic, hydrological, geo- be better equipped and have dedicated field transport. physical, and disease hazard. As a consequence, at The present situation is viewed as most unsatisfactory the decisionmaking level, opportunities are missed by some governmental bodies and business sectors. to improve understanding of disaster risk reduction Other alternatives such as relocation with Fiji Me- in the rehabilitation and reconstruction phases of teorological Service would be possible if adequate fi- disaster response. For example, damaged infra- nancial resources are found. Support to the Hydrology structure is often replaced in situ as a result of lack Section is only possible with a realistic Government- of a clear understanding of the hazards and risk- supported operating budget. exposure faced and more appropriate options are not fully considered. Another example is under- The Fiji Meteorological Service has a well-estab- taking flood mitigation solely through river dredg- lished national and regional cyclone warning system. ing rather than dealing with the root causes, such However, it suffers from resource problems common as deteriorating land use upstream or inappropri- to Pacific island countries: lack of funding and limited ate land use on the downstream flood plains. Such professional capacity. The Meteorological Service is knowledge gaps can be remediated by in-house a critical regional asset and should be supported by DRR/CCA workshops and training activities. guaranteed long-term international technical support, appropriate capacity-building programs, and adequate funding and staff. planning and budgetary processes Fiji's planning and budgetary processes do not sig- Planning is underway in Fiji and throughout the nificantly incorporate DRR and CCA linkages. Al- Region on an all-hazards early warning system. The though SEEDS does highlight integrating disaster NDM Office plans to promote this initiative at the risk reduction into political decisions and states that village level in Fiji. As such, the system could herald Government efforts are underpinned by a "risk man- a revival of traditional early warning and disaster pre- agement approach," no particular strategy is offered to paredness customs and practices. address the issue. Also, no evidence supports the as- sertion stated in the SEEDS that effective risk reduc- Fiji should continue to re-allocate existing capital tion projects would be identified and implemented. works and maintenance budgets to better respond to major disaster events. Poor resource allocation is re- Continuing deterioration in governmental support for flected in the deterioration of essential services and hydrology, meteorology, and hazard and environment lack of maintenance and upgrading of infrastructure. assessments also seems to contradict the SEEDS pri- There is an urgent need for disaster management and orities. The Hydrology Section of the Fiji Govern- response-specific budget allocations, as well as for ment is located in inadequate accommodations at an development of special financial risk transfer mecha- operational division of the Suva Water Supply. Hy- nisms to support unforeseen emergency events. drology should have a higher profile and more promi- nent presence to emphasize its key role in addressing A common response of the Fiji Government to disas- flooding as the first priority of the Fiji Government. ters is freezing of capital expenditure. At times this The Hydrology Section also lacks scientific, technical, freeze extends to the recurrent expenditure of a range 16 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands of ministries. This action is taken by the Fiji Gov- n Insufficient operational commitment to DRR/CCA ernment to offset rehabilitation and rebuilding costs. initiatives. Across Government, the absence of an Many public and private sector consultants contribut- operational culture and commitment fails to gen- ing to this assessment report view this standard prac- erate a risk management approach in planning and tice as counterproductive since it prevents the delivery budget preparation. This deficiency is attributable of risk reduction by line agencies. to inadequate capacity building and DRR/CCA championing at the highest levels of government Effective DRR and CCA implementation may prove and civil society. problematic without the pro-active involvement and n Ineffective governance/institutional mechanisms to leadership from the Ministry of Finance and Plan- address DRR/CCA issues. Some key line agencies ning that would include risk reduction initiatives in are not capable of delivering on either risk reduc- national planning and budgets. In addition, while the tion or climate change adaptation due to systemic policy frameworks are reasonably strong, their imple- administrative and operational deficiencies. mentation through the institutional frameworks and the commitment of others requires strengthening. n Limited implementation of strategic and location- specific development planning for high-risk zones. Greater project funding alone is not a viable solution Disaster risks increase in parallel as both exposure for enhancing DRR and CCA efforts. To a large de- and vulnerability factors increase. This situation is gree, minimal investments in DRR and CCA projects sometimes best demonstrated by the poor planning in Fiji could be attributed to the prevailing political and of tourist resorts and infrastructure development in economic situation. Without appropriate assistance, the fragile coastal zone where lives and property Fiji will not be able to train staff with the basic required are vulnerable to extreme weather events, storm skills or have resources and general absorptive capacity surge, and flooding. to formulate and implement DRR and CCA initiatives and incorporate these in sector plans and projects. It also faces the challenge of using data and other risk in- Vulnerability and risk assessments formation for implementing projects to reduce vulner- The exposure of coastal towns and cities to disasters ability and potential adverse impacts from climatologic, has increased with their expansion due to reclama- hydrological, and geophysical hazard. tion and urban development into more geologically marginal areas. Civic assets become more exposed to Impediments inundation from the sea and increased landslide risks n Absence of a favorable enabling environment at the in less geologically safe areas. It is particularly visible national level. This key institutional weakness ap- in and around the national capital, Suva. Recognizing plies particularly within the Ministry of Finance this vulnerability, SOPAC-assisted mapping for flood and Planning. This governance issue is exacerbated and landslide hazards is being carried out. by apparent lack of capacity in understanding and undertaking appropriate policy analysis and frame- Poor or inappropriately planned agricultural practice work development of implementable actions. Lim- has exacerbated the impact of droughts and floods. The ited professional understanding of DRR and CCA lack of an assessment of the effect of certain non-indig- issues only compounds the inherent difficulties enous forestry on groundwater and base-stream flows from lack of skill and expertise. could undermine effective water resources manage- Republic of Fiji Country Assessment 17 ment. Inappropriate land use--such as promoting agri- caused FJ$45 million in damages. The Ministry fur- culture on steep terrain--has caused what is considered ther states that in the period since 1985 there have to be near uncontrollable soil erosion in some major been 130 disaster-related fatalities. In 1998 an out- watersheds. Thus, increased river sedimentation has in- break of dengue fever amounted to FJ$12 million in fluenced the rising occurrence and severity of flooding. economic costs to Fiji. At the national level, there is no strategy to understand the threat or to address flooding problems with preven- Apart from a 2005 study carried out by SOPAC and tive initiatives--control land use on steep slopes, reduce the University of the South Pacific (McKenzie and land degradation, and rehabilitate severely eroded land others 2005) no other more detailed socio-economic surfaces--at the most vulnerable spots. loss data are readily available. The inconsistency in damage and economic loss data coupled with differ- Coastal erosion, due to changing climatic conditions ences in assessment procedures makes it difficult to or from human-induced interference with coastal substantiate average annual losses from hazards, either processes, also threatens coastal communities and in- singly or in aggregate. Consequently this is an imped- frastructure. Coastal engineering is often not based iment to any economic evaluation of risk-reduction on understanding of climate drivers of geomorphic measures and funding. Overall, adequate socio-eco- change. In these instances, sea-level rise scenarios or nomic data to support rigorous vulnerability assess- the complexity of coastal oceanographic and hydro- ment is critically needed. dynamic conditions and processes operating on the shoreline require more attention. The absence of accessible risk profiles is also a con- cern. Over the past 20 years, at-risk assets have in- The average annual social and economic losses from creased significantly, particularly with the proliferation geological and climatic hazards in Fiji are unclear of tourism development facilities and infrastructure when reviewing the mixed sources with disparate fig- along the main island coasts and on more and more ures. Between 1950 and 2004 there were a reported smaller offshore islands. In this context the tourism 38 disasters with estimated losses of approximately sector, which is important to Fiji's economy, is vulner- US$2.2 million. The highest reported damage caus- able in two ways: in the short term to the possible ing climatic event in Fiji was Cyclone Kina in 1993. impact of category-4 or -5 cyclonic events and in the The Fiji Government estimates 100 in human lives medium term to sea-level rise, storm surges, and the lost and FJ$500 million in economic loss from tropi- impact of a locally generated tsunami. cal cyclones over the last decade (1997-2007) (Gov- ernment of Fiji, 2007c). In this period Cyclone Ami Disaster risks in Fiji often appear to be based on post- in 2003 caused economic losses of more than FJ$44 event perceptions and usually are non-quantifiable. million, which is less than half the 2005 ADB fig- Moreover, the descriptions of threats are often anec- ure. Other estimates reported that the 2004/2005 and dotal. Adaptation is largely pursued as a pilot project 2006/2007 floods caused FJ$135 million and FJ$20 or a site-specific study with no obvious strategy for million in damages, respectively. By comparison, fig- up-scaling. Characteristically, analytical work is also ures provided by the Ministry of Regional Develop- difficult in the absence of a comprehensive database ment cite losses in more recent years: flash flooding containing raw geophysical, climatological, and hy- caused damages of FJ$113,000 in 2005 and FJ$15 drological data; hazard maps; and synthesized bio- million in 2007; and in 2008 Tropical Cyclone Gene physical information. 18 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands Where datasets have been collated, the quality is often formation for assessing future changes in risk, such questionable due to incomplete or missing data. Fur- as climate-related diseases or possible changes in thermore, data are not shared between specific data flood frequencies. Socio-economic analyses of di- gatherers in the various governmental sectors. The saster impacts and future risks are fundamental to Mineral Resources Department and the Environment decisionmaking on risk reduction initiatives. Department, which are responsible for impact assess- n Limited meteorological and hydrological datasets, ment, do not share data. databases, ecosystem monitoring, and information system management. Specifically, a unified and Often global or regional data sets are not easily acces- consistent data and information system for all the sible in Fiji for varying reasons. Additionally, country- government sectors does not exist, and there are no based resource managers, who would be more interested channels of information exchange for government in interpretation rather than raw data, cannot obtain the agencies. This is a matter of urgency and may need types of data-derived products they require for natural donor support. resources and risk management. Similarly, in terms of future changes in risk management, there is no evidence n Shortage of technical and scientific resources at that agencies maintain up-to-date databases of meteo- monitoring institutions. Although flooding is rec- rological and climate data and sea-level projections that ognized as a priority area of disaster risk response, could be used for DRR and CCA purposes. the sustainable collection and analysis of hydro- logic data is not occurring. Gaps n Poor scientific understanding and monitoring of hazards. Hazard-monitoring agencies are poorly Knowledge, data, and tools The National Disaster Management Office leads the resourced and lack technical skills. Monitoring national effort in carrying out post-disaster damage networks are degraded and lack operational bud- assessments. Fiji also has access to the UN Disaster gets. Agencies are uncoordinated, and there is little Assessment and Coordination Team. In the past Fiji sense that their services are appreciated. could also call upon New Zealand and Australia for n Asset data and information is not made available post-disaster airborne surveys. for the purposes of assessing exposure to risks. These data are required to ensure effective management The following is a list of Fijian Government depart- and planning. Current activities are largely ad hoc ments and other organizations and institutions with as data collection and information for risk reduction the technical data provided within their areas of statu- management is not a requirement or governmental tory responsibility and operational interest: strategy. The DRR and CCA programs have no rig- orously documented socio-economic base to build n Fiji Meteorological Services­rainfall data, weather from for risk assessment and reduction. forecasting, climatology; n Limited vulnerability mapping to guide development n Land and Water Resources Management Division­ planning. This is a serious deficiency and a matter of drainage, irrigation, land use planning; urgency. It is likely to require donor support. n Mineral Resources Department­hydrogeology, n Poor evidence of systematic use of climate change in- seismology, engineering geology, coastal processes; Republic of Fiji Country Assessment 19 n National Disaster Management Office­post-disas- n Secretariat of the Pacific Community­pandemic ter damage assessments; awareness, germplasm center, land use planning; and n Environment Department­environmental impact assessments, waste management, pollution con- n Others, including Bureau of Meteorology Australia. trol; There is a strong body of hazard knowledge and his- n Divisional Engineer (Hydrology Section)­hydro- torical hazard information available within each of the logical data; hazard-monitoring agencies in Fiji. The Fiji Govern- n Fiji Land Information System­land and remotely ment acknowledges that current hazard monitoring, sensed information; and data collection, and analysis tools are deficient and need strengthening. Much of available information is n Ministry of Health and Fiji School of Medicine­ not readily accessible or transferable to other agencies. water- and vector-borne diseases. Government's concern is laid out both in the SEEDS 2008-2010 (Section 9.13) and the National Climate Other external organizations, among the following, Change Policy Framework for Fiji (Section 6) of De- contribute biophysical and socio-economic informa- cember 2007. tion to Fiji Government, the private sector, and civil society: The hydrological monitoring network has become non-operable over the past decade. The Hydrology n Secretariat of the Pacific Applied Geoscience Com- Section of the Public Works Department notes that mission­hazard and risk mapping, sea-level rise its 2008 operational budget was halved from its 2007 products, oceanographic information (including allocation. And with a critical shortage of technical the IOC Global Ocean Observing System data), staff, a credible gauging and monitoring program has satellite and airborne data and imagery, coastal re- proven impossible to maintain. A 2007 EU-funded sources and processes data, water resource manage- Navua catchment flood monitoring and warning proj- ment information; ect is not operating because the gauging station can- n Pacific Tsunami Warning Center­tsunami warn- not be maintained. A similar prognosis exists for the ings; 2008 HYCOS-funded Rewa catchment flood moni- toring and early warning system. n Secretariat of the Pacific Regional Environment Program­climate updates in collaboration with The better-served meteorological network provides National Institute for Water and Atmospheric Re- a regional service with support from the World Me- search in New Zealand and other partners; teorological Organization and links to the Bureau of Meteorology in Australia and National Institute for n World Meteorological Organization Global Climate Water and Atmospheric Research in New Zealand. Observing System­regional climatological infor- However the Fiji Meteorological Service, in addition mation; to its weak capacity, requires enhanced monitoring n University of the South Pacific­laboratory analy- network and analysis tools to identify and quantify ses, community vulnerability studies, professional the increasing climate variability potentially associ- development in disaster management and climate ated with climate change. change; 20 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands The seismological monitoring network is degraded physical systems in Fiji is at a very basic level. More and does not have a 24-hour capability. The Japan critical, systematic monitoring of policy implemen- International Cooperation Agency has identified a tation and/ programmed actions in and among gov- program to upgrade the network and monitoring ca- ernmental agencies is lacking. Overall, it is extremely pability. difficult to ascertain whether DRR/CCA activities are achieving their desired outcomes. Hazard monitoring of cyclones and earthquakes is done by national and international bodies. Cyclones Gaps are tracked by the Fiji Meteorological Services with the n Weak institutional and support arrangements, un- support of the U.S. National Oceanographic and Atmo- steady funding, and lack of coordination for hazard spheric Administration. Tsunami warnings are provided agencies. The importance of hazard monitoring to by the Hawaii-based Pacific Tsunami Warning Center. support sustainable development decisions goes widely unrecognized, although it is gaining recog- Considerable time and resources have been placed on nition in the SEEDS. Support for hydrological and participation in a regional tsunami warning system. meteorological services is growing. There is considerable professional opinion that be- lieves this effort may be somewhat misdirected with n Lack of technical or scientific expertise to observe respect to understanding the geotechnical vulner- and assess natural and human disaster events. There ability of the Fiji islands. There is some experiential is an urgent need to provide national capacity to evidence that the tsunami threat to Fiji will be from learn from all types of disaster events. Specifically, locally generated tsunamis, such as the 1953 tsunami. developing realistic hazard and vulnerability maps Tsunami, like the one that struck the Solomon Islands and assessment is required. on April 2, 2007, had faster impact than the reaction n Limited disaster mapping and assessment support. time of any known early warning system. Ability to access land information and mapping capability or airborne platforms to carry out rapid Some risks and threats from climate change do not post-disaster mapping and assessment needs to be result from catastrophic events. Changes in biology improved. There is also need for adequately re- --often slow and imperceptible to the naked eye, such sourced remote sensing programs and expertise to as increasing aridity, marine sedimentation, coastal interpret data. erosion, and altered ecology--require tools and pro- grams for identifying trends over long-term monitor- n Limited integrated information systems for hazard ing rather than reacting precipitously to irreversible data and analysis with GIS capability. There is damage. Currently, such biophysical changes are not limited ability to store, analyze, and map hazard being monitored except for coral bleaching studies data. Data availability in and among government undertaken by the University of the South Pacific. agencies is an important input to decisionmaking on DRR and CCA issues. Support of decisionmakers is necessary to invest in long-term monitoring in order to assess trends and take precautionary steps to reduce the risks that may monitoring and evaluation arise from potentially disastrous situations. Overall, There is currently little or no monitoring or evaluation monitoring of climatological, hydrological, and geo- conducted by any government agency of risk reduc- Republic of Fiji Country Assessment 21 tion activities related to hazards or climate change. A event has been rather small: in 2007 the government number of objectives for environmental sustainability budgetary allocation for its awareness activities was (including climate change) and for reducing vulnera- less than 2 percent of its annual budget. bility to disasters and risks are listed in the 2008-2010 Government strategy (SEEDS) but commitment to Hazards are major socio-economic concerns to many monitor or evaluate progress is lacking. governmental bodies, NGOs, and the tourism sec- tor. These are often expressed in terms of identifiable In addressing the institutional framework objectives threats such as sea-level rise, coastal erosion and de- for good governance under SEEDS, the Government position, food and water security (especially in terms should introduce performance budgeting, and moni- of availability and quality), pollution of the marine toring and evaluation arrangements in order to mea- environment, and the degradation of terrestrial and sure progress against its commitments. marine ecosystems. The media in Fiji provide substantial coverage of Awareness raising and capacity disaster-related news. Awareness of potentially cata- building strophic situations in the Fiji water sector has not On the basis of regional and local experience, more reached all levels of government and communities. emphasis should be placed on public awareness, edu- Continued use of the media is an important tool in cation, and taking precautionary measures. emphasizing risk awareness of the threat to water security by climatic variability and change, and then On-going DRM awareness programs, coordinated by turning awareness into action. the NDM Office, focus primarily on disaster manage- ment with some elements of family risk reduction. An effort to mainstream DRR lessons into curricu- These program, as recognized by the NDM Office, la has started in 6 pilot schools. The Fiji Schools of need to be strengthened to include community ex- Medicine and Nursing have also introduced DRM ercises. The Suva-based, Pacific program director of courses to its second-year students. Over the past The Asia Foundation/U.S. Office of Foreign Disaster 12 to 13 years, The Asia Foundation/U.S. Office of Assistance thinks that there were two main problems Foreign Disaster Assistance has provided significant related to the promotion of disaster risk reduction: training to Fiji nationals. This package offers 6 train- (a) much of the awareness activities were conducted ing courses covering disaster management, damage at the national level and were not filtering down to assessment, and risk management; and another DRR provincial and community levels, and (b) this was in course is being developed. The Asia Foundation/U.S. part due to the lack of effective support for the NDM Office of Foreign Disaster Assistance has been run- Office across government. ning about 20 in-country courses with an average of 24 to 28 participants and has attracted Fiji participants The main awareness raising effort in Fiji is the NDM who have attended 18 regional courses. This would Office-led annual National Disaster Awareness Week equate to over 500 nationals being exposed to some held in October at the beginning of the hurricane sea- form of awareness training. Regional organizations son. In 2007 this event encompassed a range of ac- and NGOs, such as Fiji Red Cross and Live & Learn, tivities in 19 different centers throughout 3 of the 4 also participate in awareness programs. national administrative divisions. The budget for the 22 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands In terms of climate change capacity building, the coordination among donors and key University of the South Pacific, the region's largest stakeholders tertiary institution located in Suva, initiated a CCA The regional Pacific Partnership Network plays a use- program in 1999. Aimed at capacity building for Pa- ful information and coordinating role for disaster risk cific island countries, this PICCAP-funded initia- reduction. This SOPAC-facilitated network encom- tive was conceived, developed, and initially delivered passes over 40 member agencies and has championed by the International Global Change Institute at the the development of National Action Plans and the University of Waikato. The program provided courses Pacific Disaster Net, an improved disaster informa- for professional training, as well as post-graduate and tion system. Operationally, the Pacific Partnership undergraduate students. Subsequently, the program Network has no power of decisionmaking, funding, or was suspended due to lack of scholarships to maintain implementing. Project implementation is through the a critical number of trainees, but was re-instated in initiatives of individual members or groups. 2008. Professional and technical support to the Uni- versity of the South Pacific for development of new A Regional Roundtable on Climate Change received CCA courses and program delivery has been made attendance from donor organizations and the Coun- available from the University of the Sunshine Coast cil of Regional Organizations in the Pacific. Opera- in Queensland, Australia. The program still faces po- tionally, the Roundtable is viewed as an information tential problems due to limited financial support for exchange mechanism, but whose effectiveness has yet students from Fiji and other Pacific island countries. been assessed. Impediments Over the past decades, AusAID and NZAID have n Obtaining means to measure the effectiveness of been key bilateral donors for Fiji. Both of these do- public awareness efforts or to determine whether nors have suspended assistance to Fiji after its last there has been any measureable behavioral change at coup and as a consequence, several DRR/CCA activi- the community level. For example, coastal commu- ties are presently left unfunded. Australia was about to nities aware of the risks to their lives and property provide FJ$250,000 toward the formulation of a NAP, can decide independently whether or not to pursue and New Zealand support was anticipated for a flood measures to reduce risks. hazard mapping project; both of these activities now n Gathering funds to effectively bridge the gap be- face implementation problems tween national and community awareness-raising initiatives. This needs to be addressed at all levels At the regional level, the main DRR proponents are and may require initiating of innovative measures SOPAC and the UNDP Pacific Center. The CCA to fund community-based activities. projects are initiated through the Secretariat for the Pacific Regional Environment Program and the n Scholarships for CCA tertiary-level professional de- UNDP country offices. Fiji also accesses DRR assis- velopment and training. This is a regional problem tance and related environmental activities, including and part of a greater capacity-building issue, and as CCA related, through the Secretariat for the Pacific such it should be addressed with appropriate donor Regional Environment Program, Secretariat of the Pa- support. cific Community, University of the South Pacific, and other regional organizations. The major donors who make contributions to Fiji are the European Union, Republic of Fiji Country Assessment 23 the Global Environment Facility, the United Nations CCA activities. Specifically, the Department of the Development Program, the World Meteorological Environment represents Fiji's CCA interests at the Organization, the World Health Organization, and Secretariat for the Pacific Regional Environment Pro- The Asia Foundation/U.S. Office of Foreign Disas- gram. The Mineral Resources Department and the ter Assistance. Of these organizations, the European NDM Office represent Fiji's DDR agenda at SOPAC. Union has possibly emerged as the largest donor in Other line ministries represent Fiji's interests through the DRR area. Fiji continues to benefit from EU their own contacts with international bodies, such as programs starting with the regional EDF8 reducing the Ministry of Health with the World Health Or- vulnerability program. The European Union is also a ganization. However, it is done with what appears to major donor in the Pacific Hydrological Cycle Ob- be minimal intra-governmental communication and serving System (P-HYCOS) program. Risk reduction coordination. and adaptation projects get their start from donor ini- tiatives or regional programs such as the P-HYCOS. Regional organizations are also under-staffed and un- able to service their member countries, such as Fiji, The impact of flooding on food security has been in a timely manner. For example, Secretariat for the identified as Fiji's top priority for the Pacific Adap- Pacific Regional Environment Program has the services tation to Climate Change funds. The Ministry of of just one person handling both the Global Climate Agriculture (Land and Water Resource Management Observing System and regional meteorological issues. Division) will implement these funds. Support has Additionally, although SOPAC appears to be well re- been provided for studying the Navua and Rewa river sourced, it has to spread this capacity over some 14 basins. Work in these major basins has commenced as countries; consequently, the Pacific island countries part of the P-HYCOS program. The New Zealand cannot fully rely on SOPAC as a substitute for the National Institute for Water and Atmosphere will ex- lack of in-country capacity. In some ways, the activi- ecute this SOPAC-implemented initiative. Fiji Gov- ties provided by donors and regional organizations ernment has made subsequent requests to SOPAC for mask the true nature of challenges being faced with additional assistance with implementing further work DRR/CCA implementation in Fiji. in catchment hydrology. Possible areas of improvement: The Japan International Cooperation Agency is a bi- n Donor awareness of Fiji's specific DRR and CCA lateral donor specifically supporting DRR initiatives needs. Apparently, over the past years there has and continuing support of other environmental initia- been little evidence that donor support for DRR/ tives in Fiji. About 10 years ago, Japan was the key do- CCA programs in Fiji has been addressing priority nor in refurbishing the main meteorological facilities institutional strengthening, capacity building, and at Nadi Airport and has supported the seismological technical support issues. Donor support is urgently network in Fiji for a long time. More recently, Japan needed to address these issues of core risk reduc- was involved in upgrading the monitoring systems in tion and climate change vulnerability and adap- Fiji and Tonga and has supported the on-going river tation. The lack of donor attention to these core dredging program in Fiji. needs is probably influenced by Fiji's own lack of support for DRR/CCA initiatives, which are not Government agency representation and interests initi- listed among the island's priorities during bilateral ate requests or proposals for donor support for DRR/ aid negotiations. 24 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands n Sufficient absorptive capacity to take advantage of n Joined efforts by donors and their respective man- donor assistance. Some assistance provided to Fiji dated agencies. The separation of DRR and CCA is unsustainable since the absorptive capacity of issues is perpetuated when donors continue to sup- the country is weak. For example, professional and port different agencies whose own mandates are technical capacity is extremely limited, if not criti- narrowly focused. The Pacific Partnership Net- cal, within the hydrology services in the key area work and the Climate Change Roundtable have of Fiji's flood management. Hydrological measure- promoted separate DRR and CCA development; ment and analysis has been designated a low pri- as regional collective bodies, they could use their ority. The main focus of government action with influence to address the issue of joining those two respect to riverine flood control appears to be on areas of concern. dredging rather than up-land stream and land sur- n Regional leadership on sustainable development. face rehabilitation. This engineered approach is The working group on Sustainable Development viewed as unsustainable: little effort is being made of the Council of Regional Organizations in the to control the erosion of excessively cleared slopes. Pacific has been ineffective in promoting risk re- A proper understanding of the rates of erosion and duction activity as part of the sustainable develop- riverine siltation requires inputs of climatological, ment approach. This group should be responsible hydrological, and soil data, which is not readily for active regional coordination, while it focuses on available. providing briefing and position papers. v Republic of Fiji Country Assessment 25 opportunities for investment T his assessment highlights the current country Prerequisites for an enabling environment are centered status, gaps, opportunities, and barriers related to on addressing accountable performance budgeting, national policies, strategies, plans, and activities, encouraging broader participatory planning, ensuring as well as with the enabling environment for a compre- high-level inter-sectoral coordination and leadership, hensive risk management approach to natural hazards. and demonstrating national commitment through the It further focuses on the capacity to undertake a com- realistic allocation of national budgets. At the heart prehensive approach, including institutional arrange- of Fiji's DRR and CCA effort, the Ministry of Fi- ments, human resources, public awareness, information, nance and Planning requires well-planned strength- and national budget allocations. From Fiji's assessment, ening and capacity building. Without this, all DRR it is evident that the situation is a little more complex and CCA efforts in Fiji would continue to be ad hoc than in many of its Pacific island neighbors. While the and deprived of leadership. This role would be further enabling environment in terms of policies and regula- strengthened if it were implemented in parallel with tions is reasonably well developed, the institutional ar- implementing SOPAC-issued Comprehensive Haz- rangements are weak in giving effect to the policies. ard and Risk Management guidelines. It is evident that commitments to meet international obligations and internal programs are not supported by As is common in many countries, Fiji could improve current budget and institutional arrangements. Prog- its communication and operational links, as well as its ress depends on the implementation of SEEDS. central system for information management, storage, and access. The country has a number of information Policymakers, sector officials, and various donors, and system models such as Fiji Land Information Sys- financial institutions have identified key institutional tem based in the Lands Department; unfortunately, weaknesses relevant to planning and budgeting, as well they are as yet too narrowly used and data-focused. It as hazard monitoring for weather, climate, and flood. would be advisable to build an integrated all-hazards The Government might want to pursue any of these information system and tools (with GIS capability). options with its own resources, with support from the international donor community, and/or international Opportunities also exist for addressing critical gaps in financial institutions such as the Asian Development awareness raising and encouraging behavioral changes Bank and the World Bank. at the community level. As a reaction to the most recent disaster, flood mitigation and related concerns Awareness of the need for disaster risk reduction and of greater food security emerged as a country priority. climate change adaptation with new organizational Fiji has identified this as top priority for support from arrangements appears widespread within the Govern- the GEF Pacific Alliance for Sustainability and GEF ment of Fiji. Disaster management and response also Pacific Adaptation to Climate Change. As in other seem to have firm institutional and legislative basis as countries, the need for risk reduction instruments, demonstrated by the many agencies and actors en- such as the enforcement of improved building codes, gaged throughout the country that have some role re- is highly necessary; but might be better addressed lated to disasters and climate change. However, there through some regional initiative. are critical and systemic institutional weaknesses that with the proper enabling environment provide an op- Not unique to Fiji but definitely critical to any sus- portunity for strengthening and mainstreaming DRR tainable DRR/CCA implementation is the issue of and CCA initiatives. capacity both in terms of human skills and resources, 26 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands as well as technical institutional capacity. Short-term Annex A expands on the three main proposals for op- challenges lie in the broader area of climate-related portunities to support DRR and CCA programs in Fiji. risks and, more specifically, in the water sector. The The tables provide preliminary information on indica- hydrological services in Fiji are under-resourced and tive costs, timeframes, and first-order actions and tasks. verge on being dysfunctional. Without a sustainable This information should be sufficient for the develop- hydro-meteorological service, the country remains ex- ment of detailed proposals and terms of reference for tremely vulnerable, putting sustainable development possible further investment opportunities. v and food and community security at risk. Finally, an- other priority issue should be the strengthening of the Fiji Hydrological and Meteorological capability. Annex A. proposals for support to fiji Proposal f1 strengthen integrated Hazards information system and tools (with Gis capability) Country/sector fiji: Hazards advisors and sector users Goal and purpose to inform and promote risk reduction decisions through information sharing and sound data management, analysis and presentation Scope national Lead agency to be determined with ministry of lands and the nDm office Cost and duration us$220,000 over 12 months Risk reduction Cost Time- Hazards targeted measures Key gaps/Barriers Tasks US$k frame Wind, storm surges Evaluate and map Generally weak Provide technical assistance support (8 person 160 Year 1 hazards information management months) for development of an integrated Sea-level rise systems in most agencies hazards information system including: Assess risks and map Climate change and no Information ­ Development and adaptation of a Hazards vulnerability extreme events System Management Information Policy addressing: Map assets and policies. · data sharing and availability Coastal inundation · single GPS datum/projection system for Fiji assess critical and erosion Much historical hazard infrastructure · catalog of data to be held information is still hard- Fire · datasets to be made available digitally Monitor environmental copy based. Droughts, changes and increased ­ Assessment of data needs and products for Limited capacity for exposure to risks DRR/CCA Fresh and marine information system waters pollution management ­ Identification of long-term storage Pandemics Weak hardware and requirements, analysis tools and mapping 30 Year 2 software computing needs capacity ­ Acquiring appropriate computer hardware, Limited tools and models software and high-speed Internet connection 30 Year 2 for resource managers ­ Supporting capacity building through populating information system with available historical data and undertaking vulnerability mapping and risk modeling and for climate change& risk prediction Fiji Government to ensure sustainability through annual recurrent budget for data & image Republic of Fiji Country Assessment acquisition, hard/software maintenance, and communication access costs Continues 27 28 Annex A. proposals for support to fiji Continues Proposal f2 strengthen risk reduction policy, planning, and budgetary Arrangements ­ seeDs 9.13 objectives Country/sector fiji: planning, finance, climate change, Disaster risk management Goal and purpose country policy Scope to promote the mainstreaming of risk reduction initiatives, through strengthened policy, decisionmaking and funding frameworks Lead agency ministry of finance and national planning with Dept. for environment and ministry for province Development Cost and duration us$250,000 over 10 months Risk reduction Cost Time- Hazards targeted measures Key gaps/barriers Actions and tasks US$k frame All hazards Hazard and Climate Risk issues not on political Provide technical assistance support for: Change risks assessed or departmental priorities ­ Review of the hazard profile of Fiji and 50 2 the potential effects of climate change in months Policy frameworks Departmental barriers exacerbating climate risks developed for decision- Skills in risk management making lacking ­ Development of a policy framework for 100 4 a whole of government mechanism for months Planning and budgeting addressing risk as a development issue mechanisms addressing within sector planning and budgeting. risk reduction issues Complete the review of the NDMP and the through all sectors Act and address the integration of DRR and CCA ­ Strengthening Ministry of Finance and 70 2 National Planning capacity for understanding months Reducing the Risk of Disasters and Climate Variability in the Pacific Islands and bringing a focus to this issue ­ Strengthening political and departmental 30 2 awareness of hazard risk issues and months how to reduce them, in order to enhance sustainable development Annex A. proposals for support to fiji Proposal f3 rationalize and strengthen the hydrological and meteorological capability for fiji Country/sector fiji: Hazards monitoring and advice Goal and purpose functional and coordinated hydro-meteorological capability, by strengthening and rationalizing hazards monitoring and advice capacity to inform ccA and Drr issues Scope national and related to Hycos and meteorological office review Lead agency national environmental council, with fiji meteorological service, ministry of Works Cost and duration phase 1 us$1.25 million over 2 1/2 years, phase 2 us$3.0million to follow Risk reduction Cost Time- Hazards targeted measures Key gaps/barriers Actions and tasks US$k frame Cyclone Improve monitoring Inadequate monitoring Review the meteorological and hydrological Phase 1 network for weather, networks to provide monitoring networks and identify minimum 150 Year 1 Storms rivers and climate credible data requirements to inform weather, hazard Flooding change management and climate change needs Inadequate institutional Tsunami Improve capacity for arrangements to support a Review and develop institutional arrangements 100 Year 1 hazard advice credible service to support a credible and sustainable level of Wave surge service Improve arrangements Insufficient capacity and Coastal inundation for managing the resources to manage the Implement institutional arrangements 500 Year 2 Drought services networks Identify and provide for necessary systems and 500 Year 2 ­ including climate Insufficient capacity to tools to support the service change effects for develop advice to inform all these hazards Enhance the meteorological, hydrological Phase 2 Year 3 DRR/CCA issues and climate change networks to the minimum 3,000 required level Republic of Fiji Country Assessment 29 30 Reducing the Risk of Disasters and Climate Variability in the Pacific Islands Annex b. project team and people consulted Project team Alf Simpson Consultant, Australia Graham Shorten Consultant, Australia Richard Warrick Consultant, New Zealand People consulted (Country visit, March 11-14, 2008) Salomone Karusi Acting Director, NDMO Manasa Vaniqi PS Min of Provincial Development and Multi Ethnic Affairs Epeli Nasome Director, Dept of Environment Laisenia Naitila Executive Officer, NDMO Akisi Korodrau Senior Administrative Officer Training & Awareness, NDMO Waisea Quminikelo Principal Administrative Officer, Emergency Coordination, NDMO Colin Simmons Principal Agricultural Officer, Land and Water Resources Management Division Mukesh Chandra Executive Officer ,Mineral Resources Department Gulab Chandra Administrative Officer, Mineral Resources Department Emosi Davetanivalu Economic Planning Officer, National Planning Office Viliame Tuimanu Administrative Officer, Policy Research Risk Management, NDMO Jope Sadranu Medical Officer, Ministry of Health Eliki Malodali CCD Commissioner Central Lagisoa Delana Tailevu, Provincial DISMAC Manoa Malani Director, Tourism Rajendra Prasad Director, Fiji Meteorological Services Ana Vesikula Director, Development Services, Min of Provincial Dev Pajiliai Dobui Risk Manager Policy Research, NDMO Joeli Rokovada Commissioner, Western Division, Fiji Government Lloyd Smith Water Sector Advisor, SOPAC Peni Bava Acting Hydrologist, Hydrology Section, Ministry of Works Ravindra Gopal Technical Assistant, Hydrology Section, Ministry of Works Joeli Cawaki Director NDMO ( July 08) Republic of Fiji Country Assessment 31 references and select bibliography ADB (Asian Development Bank). 2005. Fiji Islands: Country Environmental Analysis. ADB. 2004. Pacific Region Environmental Strategy 2005-2009. Executive Summary. Bettencourt, Sofia, Richard Croad, Paul K. Freeman, John Hay, Roger Jones, Peter King, Padma N. Lal, Alan Mearns, Geoff Miller, Idah Pswarayi-Riddihough, Alfred Simpson, Nakibae Teuatabo, Ulric Trotz, and Maarten van Aalst. 2006. Not If, But When ­ Adapting to Natural Hazards in the Pacific Islands Region ­ A Policy Note. Pacific Islands Country Management Unit, East Asia and the Pacific Region, World Bank. GEF (Global Environment Facility). 2008. GEF-Pacific Alliance for Sustainability - Program Framework. GEF/UNDP. 2006. Pacific Adaptation to Climate Change. Fiji Islands, Report of In-Country Consultations. Geoscience Australia. 2008. A Natural Hazard Risk Assessment of the Asia Pacific Region Government of Fiji. 2008. National Disaster Management Office Presentation: 2007 Performance Assessment Workshop, MPD Conference Room, 21-22 January 2008 ­­­. 2007a. Fiji Tourism Development Plan 2007-2016: Tourism - Fiji's Opportunity. ­­­. 2007b. National Climate Change Policy Framework for Fiji. ­­­. 2007c. Sustainable Economic and Empowerment Development Strategy (SEEDS) 2008-2010. ­­­. 2006. Strategic Development Plan 2007-2011: Maintaining Stability and Sustaining Growth to Achieve a Peaceful, Prosper- ous Fiji. ­­­. 2005. Environment Management Act 2005 ­­­. 2005. Fiji Islands Initial National Communication under the UNFCCC ­­­. 2005. Fiji Climate Change Policy Paper for Fiji - Adapting to Climate Change, Variability and Sea Level Change: Planning for the Future. ­­­. 1998. National Disaster Act 1998. ­­­. 1995. Disaster Management Plan 1995 (DMP). McKenzie, E., B. Prasad, and A. Kaloumaira. 2005. Economic Impact of Natural Disasters on Development in the Pacific. Uni- versity of South Pacific. SOPAC. 2007. Integrated Water Resources Management in Pacific Island Countries- A Synopsis ­ and related Country Diagnostic Reports. east Asia and the pacific region The World Bank 1818 H St. NW, Washington, D.C. 20433 http://www.worldbank.org/eap Special thanks and appreciation are extended to the partners* who support GFDRR's work to protect livelihood and improve lives: ACP Secretariat, Australia, Belgium, Brazil, canada, Denmark, european commission, Finland, france, Germany, India, Ireland, italy, Japan, luxembourg, the netherlands, norway, spain, sweden, switzerland, Turkey, united Kingdom, united states, UN International Strategy for Disaster Reduction, and the World bank. *In bold, GFDRR Donors