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F I N A L V 0 . 4 , J U N E 2 0 0 9

Document Control

Version

Date

Author

Comments

0.1

3 March 2009

C. O’Brien

Initial Draft, inclusive of Lasarusa Vuetibau
comments in Table 2 13/02/2009 and
AusAID feedback on report structure

0.2

2 April 2009

C. O’Brien

Inclusion of comments from:

•  Sarwan Dey (Bureau)
•  Timothy Wilcox (AusAID)
•  Bryan Hodge (Bureau)
•  Bryan Boase (Bureau)
•  Jane Warne (Bureau)
•  Michael Bonte-Grapentin (SOPAC)
•  Rick Bailey (Bureau)

0.3

16 April 2009

C. O’Brien

Inclusion of comments from:

• Ram Krishna (Bureau)
• Geoff Crane (Bureau) – travel times

form threat sources

• Michael Bonte-Grapentin (SOPAC)
• Ray Canterford (Bureau)

0.4

26 May 2009

C. O’Brien

Inclusion of comments from Fiji review
including Rajendra Prasad, Lasarusa
Vuetibau, Alipate Waqaicelua and Joeli
Cawaki. Formatted for publishing.

0.4

29 July 2009

C. O’Brien

Final sign-off by SOPAC. Minor edits
provided by Michael Bonte-Grapentin.

For bibliographic purposes, this document should be cited as follows:

Australian  Government  Bureau  of  Meteorology  2009,  SOPAC  Member  Countries  National
Capacity  Assessment:  Tsunami  Warning  and  Mitigation  Systems,  Republic  of  the  Fiji  Islands,
Suva,  11  –  14  March  2008,  research  report  prepared  by  C.  O'Brien,  Australian  Government
Bureau of Meteorology, Melbourne.

Acknowledgements:

The Bureau of Meteorology wishes to acknowledge the contribution of all those who participated
in the assessment workshop, particularly those who made their time available to help organise the
workshop and to deliver presentations.  The Bureau also acknowledges the efforts of the visiting
assessment  team  and  continued  support  from  partners  AGD  and  SOPAC  and  funding  body
AusAID  as  well  as  UNESCO/IOC,  the  WMO  and  ISDR  for  their  input  into  the  original
questionnaire on which the project was based.

Approved for release:

Branch Head, Weather Services
Branch, Australian Bureau of
Meteorology

Date: 24 June 2009

Corrections &
comments:

Cherie O'Brien
Project Manager - SOPAC Member Countries Tsunami Capacity
Assessments
Australian Bureau of Meteorology
GPO Box 1289 Melbourne VIC 3001
E-mail: c.o'brien@bom.gov.au
Phone: +61 (3) 9669 4065
Fax: +61 (3) 9669 4695

Distribution:

Fiji Tsunami Capacity Assessment Workshop Participants, Australian
Bureau of Meteorology, AGD, AusAID, SOPAC, Pacific Disaster Risk
Management Partnership Network, UNESCO/IOC, GA.

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Table of Contents

RESULTS OUTLINE.................................................................................................................................. 1

1.1.

XECUTIVE

UMMARY

......................................................................................................................... 1

1.2.

ECOMMENDATIONS

(

INCLUDING PRIORITY AND RESOURCE INTENSITY

) ........................................... 3

PROJECT BACKGROUND .................................................................................................................... 15

2.1.

BOUT THE

ROJECT

........................................................................................................................ 15

2.2.

ROAD

ROJECT

........................................................................................................................ 15

2.3.

ROJECT

UTPUT

...................................................................................................................... 15

2.4.

ROJECT

ETHODOLOGY

................................................................................................................. 15

2.5.

NDERLYING

OLICY

BJECTIVES OF THE

USTRALIAN

SUNAMI

ARNING

YSTEM

ROJECT

.. 16

2.6.

SUNAMI WARNINGS IN THE

ACIFIC

................................................................................................. 16

2.7.

NTERNATIONAL

SUNAMI

ORUMS

................................................................................................... 16

COUNTRY BACKGROUND AND THE TSUNAMI THREAT ............................................................ 18

3.1.

BOUT

IJI

......................................................................................................................................... 18

3.2.

SUNAMI

HREAT

OURCES AND

SUNAMI

ISTORY IN

IJI

............................................................ 20

THE FIJI TSUNAMI CAPACITY ASSESSMENT ................................................................................ 23

4.1.

ATE AND

OCATION

......................................................................................................................... 23

4.2.

ISITING

SSESSMENT

EAM AND

ARTICIPANTS

............................................................................ 23

4.3.

ISIT TO

ADI

EGIONAL

PECIALISED

ETEOROLOGICAL

ENTRE

............................................... 23

4.4.

ORKSHOP

UMMARY

...................................................................................................................... 23

4.4.1.

Day 1 (5 February 2008) ........................................................................................................... 23

4.4.2.

Day 2 (6 February 2008) ........................................................................................................... 24

4.4.3.

Day 3 (7 February 2008) ........................................................................................................... 24

4.4.4.

Day 4 (8 February 2008) (Morning only)................................................................................. 24

4.5.

ORKSHOP

HOTOS

UVA

ARCH

2008) ..................................................................................... 25

ASSESSMENT RESULTS...................................................................................................................... 26

5.1.

TATUS OF

YSTEM

OMPONENTS

........................................................................................... 26

5.2.

ASE

TUDY

–

ONGA

RENCH AND

OLOMON

SLANDS

SUNAMI

VENTS

.................................. 36

5.3.

TRENGTHS

PPORTUNITIES FOR

MPROVEMENT AND

ECOMMENDATIONS TO

ROGRESS THE

SUNAMI

GENDA IN

IJI

................................................................................................................................. 37

5.3.1.

Governance and Coordination.................................................................................................. 37

5.3.2.

Regional and International Coordination................................................................................. 39

5.3.3.

Research Expertise .................................................................................................................... 39

5.3.4.

Tsunami Monitoring Infrastructure ........................................................................................... 40

5.3.5.

Tsunami warnings ...................................................................................................................... 41

5.3.6.

Communications ......................................................................................................................... 43

5.3.7.

Tsunami Emergency Response (including evacuation) ....................................................... 45

5.3.8.

Tsunami Hazard, Vulnerability, Risk and Mitigation .............................................................. 46

5.3.9.

Public and Stakeholder Awareness and Education............................................................... 47

5.4.

DDITIONAL

ORKSHOP

ENEFITS

.................................................................................................. 49

5.5.

EXT

TEPS

...................................................................................................................................... 49

ANNEXURE............................................................................................................................................... 50

6.1.

NNEXURE

–

ECORD OF

ARTICIPANTS

...................................................................................... 50

6.2.

NNEXURE

–

HE VISITING ASSESSMENT TEAM

............................................................................. 53

6.3.

NNEXURE

–

GENDA

IJI

SUNAMI

APACITY

SSESSMENT

ORKSHOP

................................ 54

6.4.

NNEXURE

–

UPPORTING

OCUMENTS

............................................................................... 61

6.5.

NNEXURE

ISIT TO

ADI

EGIONAL

PECIALISED

ETEOROLOGICAL

ENTRE

...................... 62

6.6.

NNEXURE

–

EFINITIONS

............................................................................................................. 63

6.7.

NNEXURE

–

EFERENCES

............................................................................................................ 68

CD ATTACHMENT - SUPPORTING DOCUMENTS .......................................................................... 70

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A
A
A
Acrony

crony

cronyms

AGD

Australian Attorney-General’s Department

Amplitude Modulated

ATWS

Australian Tsunami Warning System

AusAID

Australian Agency for International Development

Bureau

Australian Bureau of Meteorology Bureau

Document (e.g. Document 39 = D39)

DEOC

District Emergency Operations Centre

DFAT

Australian Department of Foreign Affairs and Trade

DivEOC

Divisional Emergency Operation Centre

EMA

Emergency Management Australia

EMWIN

Emergency Managers Weather Information Network

European Union

FIDMA

Fiji Islands Disaster Management Authority (currently known as NDMO)

FIMSA

Fiji Islands Maritime Safety Administration

Frequency Modulated

FMS

Fiji Meteorological Service

Geoscience Australia

GIS

Geographic Information Systems

GPRS

General Packet Radio Services

GTS

Global Telecommunications System

High Frequency

ICG

Intergovernmental Coordination Group

IISEE

International Institute of Seismology and Earthquake Engineering

IOC

Intergovernmental Oceanographic Commission

ISDR

International Strategy for Disaster Reduction

ITC

Information Technology Centre

ITIC

International Tsunami Information Centre

ITSU

ICG for the Tsunami Warning System in the Pacific

JICA

Japan International Cooperation Agency

LiDAR

Light Detection and Ranging

MoU

Memorandum of Understanding

MRD

Fiji Mineral Resources Department

MSG

Melanesian Spearhead Group

Moment Magnitude

NDC

National Disaster Controller

NDMC

National Disaster Management Council (referred to as National Disaster Risk
Management Council (NDRMC) in draft 2006 Fiji National Disaster Risk Management
Arrangements)

NDMO

Fiji National Disaster Management Office (Referred to as Fiji Islands Disaster
Management Authority (FIDMA) in draft 2006 Fiji National Disaster Risk Management
Arrangements)

NDMP

National Disaster Management Plan

NDRMA

National Disaster Risk Management Arrangements

NEOC

National Emergency Operations Centre

NFA

National Fire Authority

NGOs

Non-Government Organisations

NOAA

National Oceanic and Atmospheric Administration

PDC

Pacific Disaster Centre

PGSP

Pacific Governance Support Programme

PICs

Pacific Island Countries

PTWC

Pacific Tsunami Warning Centre

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P A G E 1

1. Results Outline

Results Outline

1.1.

1.1. Executive

Executive

Executive Summary

Summary

The National Capacity Assessment of Pacific Islands Applied Geoscience Commission (SOPAC)
Member  Countries:  Tsunami  Warning  and  Mitigation  Systems  project  aims  to  work  in
collaboration  with  the  member  countries  of  SOPAC  to  assess  their  capacity  to  receive,
communicate and respond effectively to tsunami warnings.  The Tsunami Capacity Assessment
of the  ability  of  the  Republic  of the  Fiji Islands (hereafter referred to  as  “Fiji”  or  “Fiji Islands”)  to
receive, communicate and effectively respond to tsunami warnings took place in a workshop held
from 11 – 14 March 2008 in Suva, Fiji.

The workshop was facilitated by a team of visiting experts and attended by some thirty Fiji
Government agency representatives, Non-Government Organisations (NGOs), international
organisations and the private sector to discuss key areas of tsunami warning and mitigation in Fiji
by completing a comprehensive questionnaire in session, presentations and site visits.

As well as outlining Fiji’s current status, strengths and opportunities for improvement with regard
to tsunami warning and mitigation, a list of recommendations were formulated by the visiting
assessment team in consultation with national participants. The aim of these recommendations is
to guide further capacity development programs to target improvements in Fiji’s tsunami warning
and mitigation system.

In  1953,  a  tsunami, generated  by  a  coral  reef  platform  collapse  as  a  result of  a  magnitude  6.8
earthquake offshore from Suva, Viti Levu in Fiji, killed five people.  In Fiji, local tsunami can be
generated by submarine landslides caused by earthquakes within the Fiji Platform.  In addition, Fiji
is  susceptible  to  tsunami  regionally  generated  from  the  New  Hebrides  and  Tonga  subduction
trenches (Refer to Figure 2) and distant sources from the surrounding so called “Pacific Ring of
Fire” such as the subduction trenches off the coast of South America.  Fiji’s national response to
the  Tonga  Trench  tsunami  (May  2006)  and  the  Solomon  Islands  tsunami  (April  2007)  were
reviewed during the workshop to enable the visiting assessment team gain an understanding of
how Fiji’s operational system..

Participants in the workshop stated a number of urgent priority areas that need to be addressed.
Recurring  themes  included  improved  agency  coordination  and  clarity  of  roles  as  well  as  24/7
operation  of  key  warning  and  response  agencies.    The  workshop’s  resulting  recommendations
reflected  the  priorities  raised  by  workshop  participants.    High  priority  recommendations  made
include:

• Review, approval and implementation of the revised disaster management legislation, risk

management arrangements and tsunami response arrangements;

• The production, by each key agency involved in tsunami warning and response, of a set of

Standard Operating Procedures (SOPs);

• Continued engagement in international tsunami forums; and

• Defining responsibilities and boosting cooperation between key agencies to ensure robust

24/7 warning and response for tsunami.

To ensure timely and effective tsunami warnings for the Fiji community it is essential that tsunami
warning procedures are agreed upon and implemented.  Central to these procedures is outlining
how  the  international  Pacific  Tsunami  Warning  Centre  (PTWC)  tsunami  message  will  be
interpreted and disseminated nationally for Fiji.  The visiting team and workshop participants came
to  the  conclusion  that  currently  in  Fiji,  the  realisation  of  effective  tsunami  early  warning
communication to the community is impeded by a lack of defined and agreed agency roles and

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P A G E 2

responsibilities.    It  is  evident  that  although  the  Fiji  Mineral  Resources  Department  (MRD)
Seismology Section is officially responsible for issuing Fiji’s national tsunami warnings, it does not
operate 24/7 nor can it realistically fill the required role  with current resources.  It was however
noted that the Fiji Meteorological Service (FMS) operates 24/7, has established international and
national communications links and warning dissemination mechanisms.

In view that there is currently one single qualified seismologist at the MRD Seismology Section, a
large increase in ongoing expert staffing and other resources is required to support 24/7 warning
operations.  It is recommended that institutional arrangements are developed that allow technical
agencies involved in early warning systems and disaster risk management to be located together.
This would streamline operations by enabling pooling and sharing of resources, information and
knowledge.  This would particularly benefit sharing of information technology and communication
systems.    The  feasibility  of  FMS  staff  (who  have  strong  science  backgrounds)  being  trained  to
assume the role of analysing and interpreting tsunami messages and data and issuing tsunami
warnings should be further explored as a possible measure.

FMS and MRD Seismology Section have an existing capability and expertise that can be further
built  upon  to  move  the  tsunami  agenda  forward  in  Fiji.    The  MRD  Seismology  Section  is
undertaking  commendable  initiatives  in  tsunami  preparedness  such  as  the  coastal  community
awareness program as well as scientific studies and training.  Fiji’s emergency response capability
is led by the Fiji National Disaster Management Office (NDMO) and supported by a combination
of Government agencies, NGOs, the private sector and regional and international organisations.
Fiji also has established relationships with overseas technical agencies and foreign aid agencies
that  can  assist  in  areas  such  as  seismic  and  sea  level  monitoring  equipment.    To  realise  the
required improvements strengthening of inter-agency communication and existing national forums
such as the Fiji Tsunami Working Group (TWG) is required.

Fiji  workshop  participants  are  encouraged  to  use  this  National  Tsunami  Capacity  Assessment
report to guide both national projects and aid funded projects to achieve targeted improvements
on Fiji’s tsunami warning and mitigation system.  It is hoped that this could be achieved by using
the  National  Tsunami  Capacity  Assessment  report  as  the  basis  of  a  work  plan  for  the
strengthened Fiji TWG.  In turn, this will assist in improving systems for other natural hazards such
as earthquakes and cyclones.

Contingent  on  the  availability  of  human  and  financial  resources,  the  Australian  Bureau  of
Meteorology (the Bureau) and project partners will aim to work with potential donors to bring the
findings of this project to their attention on a country and regional scale.  This will be done in the
hope of further capacity development projects being undertaken.

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P A G E 3

1.2.

1.2. Recommendation

Recommendation

Recommendations (including p

s (including p

s (including priority and

riority and

riority and rrrresource

esource

esource intensity)

intensity)

Table  2  outlines  the  priority  and  resource  intensity for recommendations made  to  improve  Fiji’s
tsunami warning and mitigation system.  Both the priority and resource intensity are based on the
consensus of the visiting Tsunami Capacity Assessment Team after discussions held within the
Tsunami Capacity Assessment Workshop.  It is recognised that these rankings may not reflect the
opinions  of  all  individuals  involved  in  the  workshop  as  priorities  vary  depending  on  personal
responsibilities  and  areas  of  interest.    Each  recommendation  is  important  in  its  own  right  to
achieve holistic improvements in Fiji’s tsunami warning and mitigation system.

The  priority  ranking  and  resource  intensity  scale  used  as  a  basis  for  allocating  a  priority  and
resource  intensity  to  each  recommendation  is  explained  in  Table  1.    The  Very  High  priority
recommendations should be seriously considered as requiring urgent completion.  Low resource
intensity recommendations are considered the ‘low-hanging fruit’ that are achievable with very few
additional resources.

Table 1:

Priority ranking and resource intensity scale

PRIORITY

RESOURCE INTENSITY

Very High

Low – Recommendation currently being
progressed or could possibly be progressed within
the capacity of existing in-country resources (funds
and staff).

High

Medium – Recommendation could be progressed
by existing staff or with a low to moderate number of
additional staff and/or expertise and a moderate
level of additional in-country funds. May or may not
require external funding.

Medium

High – Recommendation would require a high level
of additional staff and/or expertise and funds.
External funding support is likely to be required.

Low

Very High – Recommendation would require a very
high level of additional staff and funds. External
funding support will be required.

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P A G E 4

Table 2:

Priority and anticipated resource intensity for completion of recommendations made for improving Fiji’s tsunami warning and mitigation

system.

Priority

Recommendation

Resource

Intensity

Topic

Multi-hazard or

tsunami specific

Recommendation

Number In Table

Very High

Investigate options and formalise arrangements with Telecom
Fiji, Digicel, Vodaphone and the Fiji Government to allow Short
Message Service (SMS) messaging and a siren system to be
used as mechanisms for warning the Fiji population.

Low (SMS)

Medium (Siren)

Communications

Multi-hazard

Very High

Develop institutional arrangements that allow technical agencies
involved in early warning systems and disaster risk
management to be located together. This would streamline
operations by enabling pooling and sharing of resources,
information and knowledge. This would particularly benefit
sharing of information technology and communication systems.

Medium

Governance and

Coordination

Multi-hazard

Very High

That MRD Seismology Unit are adequately resourced to
maintain adequately trained staff and systems (High Frequency
(HF) radio, fax etc.) to enable a 24/7 (stand-by) operation for the
interpretation of PTWC tsunami warning messages for Fiji and
coordination with FMS for dissemination of national warnings
through FMS communications channels and processes.

Medium

Governance and

Coordination

Multi-hazard

Very High

Complete the review, approval and implementation of the
revised National Disaster Management legislation for Fiji to
clearly outline responsibility and authority for mitigation,
preparedness (including effective early warnings), response and
rehabilitation. Review other relevant Fiji legislation to ensure it
compliments the National Disaster Management Act and make
necessary amendments where required.

Medium

Governance and

Coordination

Multi-hazard

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P A G E 5

Priority

Recommendation

Resource

Intensity

Topic

Multi-hazard or

tsunami specific

Recommendation

Number In Table

Very High

Complete the review, approval and implementation of the
revised Fiji National Disaster Risk Management Arrangements
(D17) and commence development of disaster risk
management structures and plans at Divisional and District
levels.

Medium

Governance and

Coordination

Multi-hazard

Very High

Complete tsunami warning and response procedures outlining
how the international PTWC tsunami message will be
interpreted and disseminated nationally for Fiji with the aim of
improving and finalising the draft Fiji Tsunami Warning System
and Response Arrangements (D4a).  Completion of this task
should be a coordinated effort involving all key warning and
response agencies.  Upon agreement of these procedures,
each agency involved must ensure they have in place a
comprehensive set of SOPs to cover the responsibility of their
agency.

Medium

Governance and

Coordination

Tsunami specific

Very High

Fiji install a second back-up system at a second 24/7
operational centre to ensure redundancy in receipt of PTWC
messages. It is recommended that this be in the form of
additional Emergency Managers Weather Information Network
(EMWIN) systems (Satellite or Internet) at a second 24/7 centre.

Medium

Tsunami Warnings

Multi-hazard

Very High

Use the tsunami hazard studies that have been completed for
the Southwest Pacific Nations (D13, D19) to date and any
historical tsunami records, to identify at low-lying communities
which may be potentially prone to tsunami impacts and
commence tsunami mitigation, response and evacuation
planning using local knowledge.

Medium

Tsunami Hazard,

Vulnerability, Risk

and Mitigation

Tsunami specific

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P A G E 6

Priority

Recommendation

Resource

Intensity

Topic

Multi-hazard or

tsunami specific

Recommendation

Number In Table

Very High

Use the available inundation modelling for the Suva area (Suva
hazard map) to assess and quantify likely impacts and continue
to progress planning.

Medium

Tsunami Hazard,

Vulnerability, Risk

and Mitigation

Tsunami specific

Very High

Build on the tsunami community awareness program developed
by the MRD Seismology Section with the aim of establishing a
comprehensive national tsunami public education and
awareness program reaching all sectors of the Fiji community.
This program should be based on the knowledge of which
communities are at risk where possible and fed into a multi-
hazard, agency coordinated approach. Including:

a. Focus on key “Tsunami Safety Rule” messages

outlined in MRD Seismology Section print material
(MRD Information Note 5)

b. Separate Tsunami Safety Rules into two categories (1)

Be prepared for a tsunami – with messages such as
plan a tsunami evacuation route in your village and (2)
Take action in the case of a tsunami – with messages
such as stay out of dangerous areas until the all clear is
given by the authority.

c. Enhancement of key messages to explain the different

scale  of  tsunami  with  words  such  as  “even  a  small
tsunami  that  does  not  wash  onto  land  could  cause
danger to swimmers and damage to marine vessels”.

d. Incorporate evaluation into programs to review the

effectiveness of the program. For example, what
worked, what did not, and where resources and funds
should be focused.

High

Public and

Stakeholder

Awareness and

Education

Tsunami specific

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P A G E 7

Priority

Recommendation

Resource

Intensity

Topic

Multi-hazard or

tsunami specific

Recommendation

Number In Table

Very High

(Continued)

e. Identify dialect / language groups that may require

tailored programs.

Identify other community / business sectors that may
require tailored programs (e.g. tourism and hotels).

g. Continue the use and development of the suite of

materials for public education, utilising existing national
and international materials wherever possible.

h. Consider the use of electronic media for delivery of

educational messages (e.g. TV and Radio).

Network with regional / international agencies, such as
the International Tsunami Information Centre (ITIC)
regarding funds and materials.

Incorporate delivery of tsunami awareness activities into
annual work plans and budget proposals.

High

Public and

Stakeholder

Awareness and

Education

Tsunami specific

Very High

Investigate and implement (in a multi-hazard framework) an
improved mechanism for dissemination of tsunami warnings to
the population outside of waking hours, particularly remote
villages. For example, a combination of SMS, tsunami sirens,
dedicated HF radio (email enabled) or Very High Frequency
(VHF) radio frequencies, Very Small Aperture Terminal (VSAT)
etc.

High

Communications

Tsunami specific

Very High

Ensure NDMO has the resources it needs to fulfill the agencies
responsibilities under the National Disaster Management Act
and Plan. This should include ongoing refurbishment of
operations centre and implementation of a 24/7 Duty Officer
arrangement.

High

Tsunami

emergency

Response (including

evacuation)

Multi-hazard

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P A G E 8

Priority

Recommendation

Resource

Intensity

Topic

Multi-hazard or

tsunami specific

Recommendation

Number In Table

Very High

Ensure staff are adequately trained including:

a. Completing training needs analysis of staff tsunami

knowledge  and  skills  in  key  warning  agencies  (MRD
Seismology Section and FMS) and response agencies
(NDMO,  Police  etc.).    Based  on  this  needs  analysis,
develop  a  competency  based  training  program  to
address the identified training gaps of each agency.

b. Possible topics identified throughout this process, in

which relevant agencies may require further training,
include:

Tsunami warning decision processes;

SOPs;

Model scenario interpretation;

Sea level data analysis;

Tsunami science and behaviour;

Communication systems;

Information management and networking; and

Exercise management.

c. Development of ongoing staff training (including

developing

links

with

tertiary

institutions

and

international

technical

agencies)

and

incentive

programs to ensure maintenance of adequate technical
staff in Fiji.

Very High

Tsunami warnings

Tsunami specific

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P A G E 9

Priority

Recommendation

Resource

Intensity

Topic

Multi-hazard or

tsunami specific

Recommendation

Number In Table

High

Share the findings of this report with international and regional
organisations (those based in Fiji and others) to provide
guidance on targeting future capacity development programs
and projects and use the report to guide the work of the Fiji
national TWG.

Low

Regional and

International
Cooperation

Multi-hazard

High

Ensure that project agreements with international donors for
upgrade of equipment includes sharing of data internationally in
real-time and suitable data formats (such as Seedlink, a seismic
data exchange protocol) to facilitate improvements in accuracy
of messages from international tsunami watch/warning
providers.

Low

Tsunami Monitoring

Infrastructure

Tsunami specific

High

Include action prompts (pre agreed between relevant agencies)
in tsunami warnings advising the community on action to take
pre, during and post the tsunami event.

Low

Public and

Stakeholder

Awareness and

Education

Tsunami specific

High

Continue active participation in the Southwest Pacific Tsunami
Working Group (WG5) of the Intergovernmental Coordination
Group (ICG) PTWS.

Medium

Regional and

International
Cooperation

Tsunami specific

High

Due to the short time period available for tsunami warning,
implement an interim measure whereby FMS issues a “Tsunami
Watch” bulletin based on PTWC messages on behalf of MRD,
before MRD Seismology Section comes online to qualify the
threat.

Medium

Tsunami Warnings

Tsunami specific

High

Ensure key agencies (FMS, MRD and NDMO) have updated
Iridium satellite phones with international and national voice and
SMS backup capability.

Medium

Communications

Multi-hazard

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Priority

Recommendation

Resource

Intensity

Topic

Multi-hazard or

tsunami specific

Recommendation

Number In Table

High

Incorporate tsunami into a multi-hazard media education
program to assist the media to understand hazards and
associated warnings and procedures, therefore passing the
correct information onto the Fiji community.

Medium

Public and

Stakeholder

Awareness and

Education

Tsunami specific

High

Develop a plan for tsunami education to occur regularly post a
tsunami event. This is particularly important if a warning was
issued and a small tsunami was generated that created unusual
rips and currents. It is important to educate the public that it was
not a false alarm to maintain confidence the tsunami warning
system.

Medium

Public and

Stakeholder

Awareness and

Education

Tsunami specific

High

In possible cooperation with Fiji Live or ITC (Information
Technology Centre) FMS/NDMO/MRD Seismology Section
should consider running an integrated messaging system that
manages SMS, e-mail, fax and voice messaging that could be
the database for all emergency contacts (including satellite
phones), with the possibility of expanding this system to allow for
public subscription. This system should maintain the details of
active staff at all agencies their roles and operational status and
be accessed by the web.

High

Communications

Multi-hazard

High

Continue to prepare evacuation plans for villages, major urban
centres and across sectors that may have special requirements
(such as tourism) and incorporate these plans into the Fiji
Tsunami Warning System and Response Arrangements as well
as associated agency SOPs.

High

Tsunami

emergency

Response (including

evacuation)

Tsunami specific

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Priority

Recommendation

Resource

Intensity

Topic

Multi-hazard or

tsunami specific

Recommendation

Number In Table

High

Acquire the necessary baseline data for other urban areas as
part of a multi-hazard mapping activity. This will include
acquiring high resolution topography (Light Detection and
Ranging (LiDAR)) data of low-lying major urban areas (such as
Nadi and Lautoka) as well as high resolution bathymetry data
(for Nadi Bay and Lautoka area) to assist multi-hazard
assessments, modelling and mapping (e.g. storm surge, climate
change and tsunami). Current data available in Fiji is outlined in
the report “Inventory of Geospatial Data and Options for
Tsunami Inundation & Risk Modelling, Fiji Islands” (D11).

Very High

Tsunami Hazard,

Vulnerability, Risk

and Mitigation

Multi-hazard

High

Investigate future, long-term options for completing tsunami
inundation modelling, particularly for large population and
infrastructure centres. Ensure consideration is given to
software, hardware and the information technology capacity to
analyse, interpret and use this information in operations.

Very High

Tsunami Hazard,

Vulnerability, Risk

and Mitigation

Tsunami specific

Medium

That NDMO, the assigned responsible agency, schedule, formal
meetings of the TWG and develop a Work Plan for this working
group to improve interagency coordination and integration for
tsunami. Ensure nomination to the TWG of an officer from each
key agency involved in tsunami warning, mitigation and
response in Fiji. This group should also be used for post
tsunami real event and testing debriefing to capture lessons
learnt and update plans and SOPs ensuring continuous
improvement (from a warning, response and recovery
perspective).

Low

Governance and

Coordination

Tsunami specific

Medium

Continue to develop and foster links with international partners
with the aim of encouraging scientific research in Fiji and training
opportunities for Fiji staff. Develop a protocol to receive copies
of all scientific research reports completed.

Low

Research Expertise

Multi-hazard

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Priority

Recommendation

Resource

Intensity

Topic

Multi-hazard or

tsunami specific

Recommendation

Number In Table

Medium

Sign Australian Tsunami Warning System (ATWS)/ South
Pacific Sea Level and Climate Monitoring Project (SPSLCMP)
Memorandum of Understanding (MoU) to facilitate potential
upgrade, possible future installations and ongoing maintenance
of tsunami and climate monitoring sea level network and
potential future seismic monitoring network options by Australia.

Low

Tsunami Monitoring

Infrastructure

Multi-hazard

Medium

The TWG, as part of SOPs, discuss, develop and implement a
tsunami warning distribution list for the responsible agency to
use in the case of a tsunami event. Ensure this list is agreed to
by appropriate stakeholders and regularly maintained.

Low

Tsunami Warnings

Tsunami specific

Medium

Incorporate into Fiji’s tsunami warning procedures the issuing of
tsunami warnings in Fijian, Hindi and English to cater for Fiji’s
community.

Low

Tsunami Warnings

Tsunami specific

Medium

Include in tsunami warning processes, issuing of “No threat”
messages to the public and media for the following events:

a. Felt earthquakes that are not large enough to generate

tsunami;

b. Tsunami that do not have the potential to threaten Fiji;

and

c. Under-sea earthquakes that do not have the required

characteristics to generate a tsunami.

This will prevent misinterpretation of information for sources
external to Fiji, as well as maintaining practiced operational
systems and community awareness when there is a long time
between events.

Medium

Tsunami Warnings

Tsunami specific

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Priority

Recommendation

Resource

Intensity

Topic

Multi-hazard or

tsunami specific

Recommendation

Number In Table

Medium

Work towards development of an information management
system/database that enables various hazard and vulnerability
data to be turned into a decision making tool for relevant
Government departments. Incorporate available Global
Telecommunications System (GIS) data into this database and
continue capacity building in GIS use in-country.

Medium

Tsunami Hazard,

Vulnerability, Risk

and Mitigation

Multi-hazard

Medium

As part of SOPs, develop multi-agency and agency specific
procedures to handle media and public enquiries and ensure
accurate and timely information flow to the media and public
during the warning, response and recovery stages of an
operational tsunami event. These procedures could include,
pre-recorded or text to voice phone warnings, designated
spokespeople and topics, talking points, media release
templates etc. Incorporate these arrangements into the draft Fiji
Tsunami Warning System and Response Arrangements.

Medium

Tsunami Warnings

Multi-hazard

Medium

FMS utilise Cellular General Packet Radio Services (GPRS) for
telemetry and also as a potential communications mechanism
between its regional offices that have coverage.

Medium

Communications

Multi-hazard

Medium

Exercise the tsunami warning system and response procedures
by conducting regular multi-agency exercises to facilitate
coordination across Government and expose gaps and
shortcomings. Exercises should include post exercise debriefs
to ensure continuous improvement. It is preferable that
exercises are conducted on an annual basis (at least at the
strategic level) with full deployment exercises conducted every
second year at all levels (National, Divisional, and District) to test
the tsunami warning system and response arrangements.

Medium

Tsunami

emergency

Response (including

evacuation)

Tsunami specific

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Priority

Recommendation

Resource

Intensity

Topic

Multi-hazard or

tsunami specific

Recommendation

Number In Table

Medium

Partner with regional or international organisations to conduct
paleo-seismic and paleo-tsunami studies to extend and
enhance historical event records.

Medium

Tsunami Hazard,

Vulnerability, Risk

and Mitigation

Tsunami specific

Medium

Continue implementation of risk reduction recommendations
from the Suva Earthquake Risk Management Scenario Pilot
Project (SERMP, D19, 2002) and consider extension to other
urban areas.

High

Tsunami Hazard,

Vulnerability, Risk

and Mitigation

Tsunami specific

Medium

FMS and other agencies activate their HF e-mail system. This
is vital for during disasters when other communication
mechanisms may fail.

High (Funding

required)

Communications

Multi-hazard

Medium

FMS investigate access to Pacific sea-level data for tsunami
warnings via the Global Telecommunications System (GTS)
with the Bureau including agreement on the Bureau
communicating to FMS when instrumentation is out of order.

Medium

Tsunami Monitoring

Infrastructure

Tsunami specific

High

Complete an inventory of agency and national communication
systems and investigate options for integration. Possibilities
include:

a. Investigating extending the use of the FMS direct line to

Honolulu National Weather Service to PTWC for
tsunami warning purposes; and

b. FMS assisting NDMO to set up and maintain their

EMWIN system by training NDMO staff.

Medium

Communications

Multi-hazard

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2. Project Background

Project Background

2.1.

2.1. About the Project

About the Project

The  National  Capacity  Assessment  of  SOPAC  Member  Countries:  Tsunami  Warning  and
Mitigation Systems project aims to work in collaboration with the member countries of SOPAC to
assess their capacity to receive, communicate and respond effectively to tsunami warnings.  The
Bureau  is  the  lead  implementing  agency,  in  partnership  with  the  Australian  Attorney-General’s
Department  (AGD),  (formerly  Emergency  Management  Australia  (EMA)),  SOPAC,  and  with  the
assistance  of  the  Intergovernmental  Oceanographic  Commission  (IOC)  a  division  of  the  United
Nations  Educational,  Scientific  and  Cultural  Organization  (UNESCO).    The  project  is funded  by
the  Australian  Agency  for  International  Development  (AusAID)  under  the  Pacific  Governance
Support Programme (PGSP).  It is implemented under an agreement (Schedule 5 to the Record
of Understanding 14304, June 2006) between AusAID and the Bureau).  The fourteen SOPAC
member  countries  participating  in  the  project  are  the  Cook  Islands,  the  Federated  States  of
Micronesia, Fiji, Kiribati, the Marshall Islands, Nauru, Niue, Palau, Papua New Guinea, Samoa,
the Solomon Islands, Tonga, Tuvalu and Vanuatu.

2.2.

2.2. Broad Project Aim

Broad Project Aim

By  undertaking  an  assessment  of the  capacity  of  individual  nations to manage tsunami events,
the  project  aims  to  better  guide  donor funding  towards  achieving  targeted  improvements  in  the
tsunami warning and mitigation systems in the respective countries.

2.3.

2.3. Key Project Output

Key Project Output

The key deliverable of the project is a comprehensive set of reports, including one national report
specific to each country, detailing the strengths and opportunities for improvement of the country
with regard to tsunami warning and mitigation.  The national report for each country also includes
recommendations  to  address  priority  issues.    These  reports  will  then  feed  into  a  consolidated
Regional report that will aim to identify common issues across the Region with regard to tsunami
warnings and mitigation.

2.4.

2.4. Project Methodology

Project Methodology

National assessments in each SOPAC member country are conducted by visiting teams including
experts  in  the  fields  of  tsunami  warnings,  emergency  management,  disaster  risk  reduction  and
data and warning communications.  The visiting team meets with in-country experts during a four-
day  workshop  involving  government  agencies,  the  private  sector,  NGOs  and  regional  and
international organisations involved in tsunami and natural disaster management.

The  workshop  aims  to  complete  a  questionnaire  covering  all  aspects  of  tsunami  warning  and
mitigation and gather information to support questionnaire responses.  This information then feeds
into the national report.  Consultation with individual countries before completion of the report is an
integral part of the report writing process.

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The questionnaire for the Pacific Island Countries (PICs) is a modified version of that used for the
Indian  Ocean  equivalent  project.  The  Indian  Ocean  questionnaire  was  jointly  developed  by
UNESCO/IOC,  SOPAC,  the  World  Meteorological  Organisation  (WMO)  and  the  International
Strategy  for  Disaster  Reduction  (ISDR).  Details  of  the  Indian  Ocean  equivalent  project  can  be
found at http://ioc3.unesco.org/indotsunami/nationalassessments.htm

2.5.

2.5. Underlying Policy Objectives of the Australian Tsunami Warning

Underlying Policy Objectives of the Australian Tsunami Warning

System Pr

System Project

oject

The Bureau in partnership with Geoscience Australia (GA) and AGD, has recently completed a
four-year project to establish the ATWS.  One of the three policy objectives of the ATWS project
was  “To  contribute  to  the  facilitation  of  tsunami  warnings  for  the  South  West  Pacific”  (DFAT,
2006). The Tsunami Capacity Assessment project and this report, contributes to the achievement
of this policy objective.  Also, as part of the implementation of the ATWS, Australia has and will
continue  to  contribute  to  the  facilitation  of  more  effective  tsunami  advisory  bulletins  to  Pacific
Island nations through the provision of seismic and sea level observations to the PTWC in Hawaii.

2.6.

2.6. Tsunami warnings in the Pacific

Tsunami warnings in the Pacific

Tsunami messages for the Pacific Ocean are issued by the PTWC in Hawaii as the United States
of  America  (USA)  contribution  to  the  Pacific  Tsunami Warning  and  Mitigation  System  (PTWS).
Individual  countries  are  then  responsible  for  using  this  advice  to  distribute  national  tsunami
warnings to their communities.  PTWC messages can be Tsunami Warnings, Tsunami Watches,
Tsunami Advisories and Tsunami Information Bulletin/Statement.  For the purpose of this report,
products from the PTWC will be referred to generically as ‘tsunami messages’.  A full definition of
each PTWC product products can be found at
http://www.prh.noaa.gov/ptwc/about_messages.php

2.7.

2.7. International Tsunami Forums

International Tsunami Forums

Under the auspices of the IOC, the ICG for the PTWS (formerly known as ICG for the Tsunami
Warning System in the Pacific (ITSU)) was first convened in 1968 (IOC, 2009). This is an
international cooperative effort involving many IOC Member States of the Pacific Region. The
ICG/PTWS meets regularly to review progress and coordinate activities resulting in improvements
of the service (IOC, 2009).

The  Working  Group  on  Tsunami  Warning  and  Mitigation  in  the  Southwest  Pacific  Ocean  was
formed at the ICG/PTWS-XXI meeting in Melbourne in early May 2006 with the aim of enhancing
tsunami warning and mitigation in the Southwest Pacific Ocean.  The membership of the working
group is composed of representatives from IOC Member States and other countries in the region
(as  members  and  observers).    SOPAC  provides  secretariat  support.    The  Working  Group  is
currently chaired by a representative of New Zealand, with vice-chairs from Fiji and Samoa.

The Working Group has a number of Terms of Reference and this project is directly relevant to
the following Terms of Reference:

• To evaluate capabilities of countries in the Southwest Pacific Region for providing end-to-

end tsunami warning and mitigation services;

• To ascertain requirements from countries in the Southwest Pacific Region for the tsunami

warning and mitigation services;

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3. Country Background and the Tsunami

Country Background and the Tsunami

Country Background and the Tsunami
Threat

Threat

3.1.

3.1. About Fiji

About Fiji

Fiji's 1.3 million square kilometre Exclusive Economic Zone in the South Pacific Ocean contains
approximately 330 islands, of which about one third are inhabited.  Fiji, with a total land area is
18,333 square kilometres, has two major islands, Viti Levu (10,429 square kilometres) and Vanua
Levu  (5,556  square  kilometres).    The  Capital,  Suva,  is  the  most  populated  city  with  167,975
persons  followed  by  Lautoka  with  43,274  and  Nadi  at  30,884.    The  official  language  of  Fiji  is
English (University of the South Pacific, 2009).

The  estimated  population  of  Fiji  in  2007  was  869,000  people.    The  population  is  made  up  of
a combination of  indigenous  Fijians  (50%),  Indians  (46%),  with  the  remainder  of  the  population
including  Rotumans,  Chinese,  other  Pacific  Islanders  and  Europeans  (University  of  the  South
Pacific, 2009).  Fiji is becoming increasingly urbanised as internal migration to towns and cities
continues.    Close  to  half  of  Fiji’s  population  now  live  in  urban  areas  (Fiji  Government  Online,
2009).

Fiji's  economy  is  based  on  mainly  agriculture  and  tourism.  The  sugar  and  tourism  industries
provide employment for over 50% of the labour force, with that figure looking to increase due to
the influx of resorts and hotels being built in the West.  Both sugar and tourism are based mainly
in Western Viti Levu.  A variety of crops are also produced including coconut oil, cocoa, ginger
and kava.  Fiji's tourism industry has grown over the last decade to become an important source
of jobs and the major source of foreign exchange since 1990 (Fiji Government Online, 2009).

On independence in 1970, Fiji adopted a constitutional democratic form of government based on
the Westminster  model.    Fiji  has  a  bicameral  parliament  consisting  of  a  nominated  Senate,  an
elected  House  of  Representatives  and  a  Cabinet  presided  over  by  a  Prime  Minister.    Fiji  is  a
member of the United Nations (UN), the Commonwealth, the Pacific Community, and the Pacific
Islands Forum.  It also has trade and political links with Papua New Guinea, Solomon Islands and
Vanuatu  through  the  Melanesian  Spearhead  Group  (MSG),  and  is  a  member  of  the  African-
Caribbean-Pacific Group associated with the European Union (EU) (DFAT, 2009).  Because of its
central location in the South Pacific and relatively well-developed economy and infrastructure, Fiji
is also host to many regional and international organisations.

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3.2.

3.2. Tsunami Threat Sour

Tsunami Threat Sour

Tsunami Threat Sources and Tsunami History

ces and Tsunami History

ces and Tsunami History in Fiji

in Fiji

An overview of potential tsunami threat sources and tsunami history in Fiji is outlined below.  This
information  should  be  treated  as  general  background  and  does  not  attempt  to  provide  a
comprehensive  picture  of  tsunami  hazard  and  vulnerability  and  associated  risk for  Fiji.    Such  a
study is outside the scope of this project.

Reliable recording of seismic events in Fiji commenced in 1918 (Pacific Disaster Centre, 2005).
Earthquakes occur in several zones, with some of the largest earthquakes in Fiji occurring in the
north-eastern  region  of  the  country.    This  region  is  considered  to  be  the  Islands’  most  active
earthquake zone (Vuetibau, 2004, D4a).  The main islands of Fiji, Viti Levu and Vanua Levu, are
within a seismically active area within the Fiji Platform (Rahiman, 2006).  This, and the seismicity
of the plate boundary zone between the Pacific and Australian Plates and the Pacific Ring of Fire
mean Fiji is susceptible to tsunami generated by local, regional and distant (or ocean wide) events
(from sources 100 km, 1000 km, >1000 km respectively).  The impact of tsunami on Fiji is variable
and dependant on the shape of the seafloor between the source and the affected area (Thomas,
Burbidge and Cummings, 2007, D13).

Thomas, Burbidge and Cummings, 2007 (D13) completed A Preliminary Study into the Tsunami
Hazard faced by Southwest Pacific Nations.  Scenarios for an 8.5 moment magnitude (Mw) and
9.0  Mw  earthquakes  were  used  to  investigate  normalised  offshore  (to  a  notional  depth  of  50
metres) wave amplitudes for tsunami caused by earthquakes along subduction zones.  For Mw
8.5  events  Fiji  were  placed  in  Category  3  (normalised  amplitude  of  75  –  150cm).    For  Mw  9.0
events, Fiji were placed in Category 5 (normalised amplitude of >250cm).

A further study completed by Thomas and Burbidge (2009, D19) attempts to answer the question
“which  Pacific  nations  might  experience  offshore  amplitudes  large  enough  to  potential  result  in
hazardous inundation, what are the probabilities of experiencing these amplitudes and from which
subduction zones might these tsunami originate”.  The report states that the Tonga trench, with
some contribution from the New Hebrides trench dominates the tsunami hazard to Fiji at the 2000
year return period with maximum amplitudes 1 to 3.3 metres (Thomas and Burbidge, 2009, D19).
Thomas and Burbidge state that amplitudes on the eastern islands and on the eastern coast of
Vanua Levu are significantly higher than elsewhere in Fiji.

There have been several recorded incidences of tsunami events within Fiji.  The Pacific Disaster
Centre’s (PDC) Summary of Earthquakes and Tsunamis Affecting Fiji 1850 – 2004 states that “Fiji
experienced  17  tsunami  events  between  1877  and  2004”.    Of  these,  four  had  recorded  wave
heights ranging between 0.5 and 5 metres above mean sea level.  Fiji’s Seismology Section of the
MRD  states  that  “eleven  tsunamis  have  been  recorded  in  Fiji,  of  which  three  were  generated
within Fiji waters” (Prasad, 1991).

Most  of  Fiji’s  300  islands  are  volcanic  in  origin  and  have  a  range  of  fringing  and  barrier  reefs.
Local tsunami can be generated by submarine landslides caused by earthquakes (Pearce, 2008,
D11).  In 1953, a magnitude 6.8 earthquake originating offshore from Suva, Viti Levu triggered a
coral reef platform collapse, which in turn generated a local tsunami.  The tsunami itself killed five
people.    Another  three  people  died  as  a  consequence  of  the  earthquake.    The  tsunami  wave
heights ranged from 0.7 to 5.0 metres above mean sea level.  A wave height of 4.3 metres was
recorded in Nakasaleka in Kadavu.  Eyewitness accounts indicate that the first wave took only 3
minutes to reach Suva (Pacific Disaster Centre, 2005 and Rahiman, 2006).

Three other significant events have been caused by earthquakes that occurred off the island of
Vanua Levu in 1881 and off the cost of Chile in South America in both 1877 and 1960.  During the
1960  Chile  event,  the  tsunami  waves  took  approximately  13  hours  to  reach  Suva.    In  Fiji  the
tsunami damaged ships anchored at Walu Bay but fortunately, caused no deaths (Pacific Disaster
Centre, 2005).  A small tsunami was generated in 1975 by a moderate earthquake in Fiji’s Kadavu

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4. The

The

The Fiji

Fiji

Fiji Tsunami Capacity Assessment

Tsunami Capacity Assessment

4.1.

4.1. Date and Loc

Date and Loc

Date and Location

ation

The Tsunami Capacity Assessment of the ability of the Fiji Islands to receive, communicate and
effectively respond to tsunami warnings took place from 11 – 14 March 2008 at the Holiday Inn,
Suva.

4.2.

4.2. Visiting Assessment Team and Participants

Visiting Assessment Team and Participants

The visiting assessment team was made up of those outlined in Annexure 2. The focal points in
Fiji for the completion of this project were Mr Rajendra Prasad, Director, FMS and Mr Lasarusa
Vuetibau, Senior Seismologist, MRD Seismology Section. A full list of workshop participants can
be found in Annexure 1.

4.3.

4.3. Visit

Visit

Visit to Nadi Regional Specialised Meteorological Centre

to Nadi Regional Specialised Meteorological Centre

A visit to Nadi Regional Specialised Meteorological Centre, operated by FMS, was undertaken by
part  of  the  visiting  assessment  team  prior  to  the  commencement  of  the  Tsunami  Capacity
Assessment Workshop.   The  visit  was  primarily  aimed  at  helping the  visiting  assessment  team
gain an improved understanding of the operations and resources available at Nadi.  Initial talks
were  held  with  Mr  Rajendra  Prasad,  the  Director,  and  then  a  group  meeting  was  held  with
available  technical  and  operational  staff  to  discuss  specific  issues  in  communication  systems.
Outcomes of the discussion are included in Annexure 5.

4.4.

4.4. Workshop Summary

Workshop Summary

For a copy of the full agenda for the workshop see Annexure 3.

4.4.1.

4.4.1. Day 1 (5 February 2008)

Day 1 (5 February 2008)

Mr. Pajiliai Dobui, from the NDMO, was the Master of Ceremonies for the opening of the
workshop.    The  opening  ceremony  commenced  with  the  singing  of  the  Fiji  National
Anthem  and  an  opening  prayer.    Mr  Rajendra  Prasad,  Director  of  FMS  welcomed
participants.    Rick  Bailey,  ATWS  Project  Director  for  the  Bureau,  made  an  opening
address on behalf of the visiting assessment team.  A vote of thanks from the participants
to the visiting assessment team was then made before the closing prayer.

After refreshments, presentations were given by Fiji representatives Mr Rajendra Prasad
and  Lasarusa  Vuetibau.    Topics  included  Fiji’s  early  warning  system,  tsunami  disaster
management  and  risk  reduction  and  tsunami  awareness  programs  in  Fiji.    Rick  Bailey
then  provided  an  overview  of  tsunami,  tsunami  systems  and  the  national  Tsunami
Capacity Assessment project.

In the afternoon the workshop participants commenced discussing and recording answers
to the questionnaire (refer to Attachment 1a).

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4.4.2.

4.4.2. Day 2 (6 February 2008)

Day 2 (6 February 2008)

In  the  morning  of  Day  2  Sarwan  Dey,  Natural  Hazard Warning  Expert  from  the  visiting
assessment  team,  presented  to  the  workshop  on  the  tsunami  threat  to  Fiji  and  early
warning systems in general.  Bryan Hodge, Data Communications Expert from the visiting
assessment team then presented on data communications for tsunami warnings.  For the
remainder of the day the workshop participants continued to discuss and record answers
to the questionnaire (refer to Attachment 1a).

4.4.3.

4.4.3. Day 3 (7 February 2008)

Day 3 (7 February 2008)

In  the  morning  of  Day  3,  a  presentation  was  made  by  Peter  Willett,  Emergency
Management  Expert for the  visiting  assessment team,  on  emergency  management  and
preparedness  for  tsunami  in  the  Australian  context.    Michael  Bonte-Grapentin,  Risk
Assessment Specialist for the visiting assessment team, then presented on work that has
been completed for tsunami risk assessment in Fiji.  Workshop participants continued to
discuss  and  record  answers  to  the  questionnaire  (refer  to  Attachment  1a).    In  the
afternoon site visits were conducted by the visiting team, accompanied by Fiji participants.
Visits were made to:

•

The Fiji Meteorological Service, Laucala Bay Weather Observation Station;

•

Suva Harbour Sea level Station;

•

Fiji’s Seismology Section, Mineral Resources Department, Nabua;

•

Seismic Station; and

•

The Fiji National Disaster Management Office.

4.4.4.

4.4.4. Day 4 (8 February 2008) (Morning only)

Day 4 (8 February 2008) (Morning only)

A  presentation  of  preliminary  findings  from  the  visiting  assessment  team  was  made  by
Rick  Bailey.    Fiji  participants  then  had  the  opportunity  to  provide  feedback  on  these
preliminary  findings  and  the  project  methodology  in  general.    Closing  addresses  to  the
workshop  were  provided  by  Cherie  O'Brien,  Rick  Bailey  and  Michael  Bonte-Grapentin
from  the  visiting  assessment  team  as  well  as  the  Permanent  Secretary  for  Provincial
Development,  Multiethnic  Affairs,  and  Disaster  Management,  Mr  Manasa  Vaniqi.    The
close of the workshop was followed by lunch and a discussion of the ATWS/SPSLCMP
MoU.

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5. Assessment Results

Assessment Results

5.1.

5.1. Status of Key System Components

Status of Key System Components

The Tsunami Capacity Assessment Workshop results are summarised below in Table 3 in which
the status of key components of the Fiji Islands tsunami warning and mitigation system are
outlined (as at the date the Tsunami Capacity Assessment Workshop was held in March 2008,
updates between then and the publication of this report are as marked).

Table 3: Summary of current status of key components of the Fiji Islands tsunami warning and
mitigation system as at March 2008

Rating

Yes - fully realised

Partially realised

No - not realised

Key Component

Rating

Discussion

Authority, Coordination and NGO Role

Legislation in place
for tsunami
warnings and
response

Partially

Legislative responsibility for issuing tsunami warnings is currently not
formally defined.  The Natural Disaster Management Act 1998 (D2) and
Amendment 11/2005 makes provision for formulation and
implementation of disaster management policies and structures at a
national and divisional level (Update March 2009 – Revisions of this Act
have been drafted and are due to go to the Solicitor-General’s Office for
vetting).  The legislation refers to the National Disaster Management
Plan (NDMP, currently version 1995 being revised, D16) which outlines
responsibilities across government for warnings, response and recovery
for natural and man made hazards.  Certain agency responsibilities
during disasters are covered by their own acts, such as the Police Act.

Under the NDMP 1995 (D16) current responsibility rests with MRD
Seismology Section to “provide information and advice to National
Disaster Management Council (NDMC) on matters pertaining to
earthquake, tsunami and landslide”. FMS are listed as being
responsible for issuing cyclone warnings under the plan but no
responsibility is nominated for tsunami warnings.

The draft 2006 Fiji National Disaster Risk Management Arrangements
(NDRMA, D17), the revised version of the Fiji NDMP 1995 (D16), lists
tsunami as a hazard “with the potential to create emergencies or
disasters in Fiji” (D17, p11). It names the agency responsible for
development and regular testing of the early warning system for tsunami
as MRD with support agencies FMS, Fiji Islands Disaster Management
Authority (FIDMA, currently known as NDMO), Fiji Navy, Fiji Police
Force, and the Fiji Islands Maritime Safety Administration (FIMSA)
(D17).

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Key Component

Rating

Discussion

Authority, Coordination and NGO Role (Continued)

(Continued)

Legislation in place
for tsunami
warnings and
response

Partially

Update May 2009 –

Fiji is considering engaging another consultant to complete

the  review  of  the  NDMP  1995  and  the  plans  draft
replacement  (the  2006  Fiji  National  Disaster  Risk
Management Arrangements).

A workshop was held late in 2008 to review the draft

arrangements.  At this meeting a possible plan restructure
was  discussed  and  the  need  for  accountability  in  the
complimentary Act and plan was discussed.

Under the plan review, further use of FMS as a backup will

be considered given their 24/7 operation.

Tsunami
coordination
committee or effort
at a National and
local level

Partially

The NDMC (who report to cabinet) encompasses three committees.  (1)
Emergency Committee (2) Preparedness Committee (3) Mitigation and
Prevention Committee.  The TWG was established under the NDMC in
2002 as a recommendation of the SERMP Project.  Regularity and
attendance at the TWG meetings requires improvement.

All hazard Divisional Emergency Operations Centres (DivEOC) and
District Emergency Operations Centres (DEOC) exist.

Update May 2009 – The TWG currently meet to discuss tsunami
mitigation and preparedness for Suva based on the results of the
SERMP Project. Plans progressing for Suva include evacuation
locations, routes and signage, billboards (showing danger areas and
evacuation routes) and sirens. Dissemination of warnings is also being
discussed with the three telecom providers Telecom Fiji Limited (TFL),
Digicel and Vodaphone.

Agency
responsibilities
clearly defined

Partially

The draft Fiji Tsunami Warning System and Response Arrangements
(D4a) outline the roles and resources of key agencies. These
arrangements are yet to be finalised and adopted.

NGOs have a
defined role in
tsunami warning
dissemination,
preparedness and
awareness and
emergency
response

Yes

The roles of NGOs are outlined in the NDMP 1995 (D16). The main
focus of NGOs is disaster relief and community awareness.

International and Regional Cooperation

Country
represented at an
international and
regional level to aid
cooperation in
tsunami warning
and mitigation
efforts

Yes

Fiji became a member of the IOC in 1974 and has been regularly
involved ICG/PTWS and the Southwest Pacific Working Group.

Update May 2009 – Fiji will have one person involved in one-year
training on "Tsunami Disaster Mitigation" course run by The International
Institute of Seismology and Earthquake Engineering (IISEE) and Japan
International Cooperation Agency (JICA).

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Key Component

Rating

Discussion

Priorities

Priorities
established for
implementation of
tsunami warning
and mitigation
system at a
National level

Partially

Key players in Fiji have a developed understanding of where priorities
should lie to improve Fiji’s National tsunami warning and mitigation
system (refer to questionnaire Question 12 and D7). Documents such
as D7 outline strengths and weaknesses of the current arrangements.

Participants in the workshop were asked to outline what they thought
Fiji’s urgent priorities should be to enhance the country’s tsunami
warning and mitigation system. Agency coordination was a consistent
theme throughout these discussions. Urgent priorities identified by
participants included:

•

• Legislation and relevant plans to specify agencies roles;

•

• Proper SOPs for all key agencies involved;

•

• Key agencies on 24/7 watch;

•

• Earliest possible issuing of warning (all of Fiji) including issuing of

“No Threat” messages;

•

• Basic risk assessment training for key agencies;

•

• Training on how to interpret and best utilise PTWC bulletins;

•

• Define roles and responsibilities of agencies and communicate

amongst key-agencies;

•

• Each agency to know and review roles on regular basis (staff

turn-over);

•

• Exercises to improve coordination; and,

•

• Awareness programmes to communicate roles to other

agencies/public.

Multi-hazard Approach

Tsunami warning
capabilities are
being established
within a multi-
hazard framework

Yes

The NDMP 1995 (D16) outlines disaster risk management in an all-
hazards context. The NDMC and committees, NDMO, National
Emergency Operations Centre (NEOC) and related agencies are all
charged to deal with disasters in a multi-hazard framework, which
includes tsunami.

Research Expertise

Active research is
being undertaken
within the country
for seismology and
tsunami to
strengthen the
tsunami warning
and mitigation
system

Partially

A number of seismological studies have been undertaken by MRD
Seismology Section (refer D14). A number of regional and international
agencies have also undertaken scientific research including New
Zealand Geological Survey, PDC, GA, SOPAC, and Canterbury
University etc.

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Key Component

Rating

Discussion

Tsunami monitoring infrastructure

Existence of
seismograph
stations and
integration of real
time data from
these stations into
the tsunami
warning process

Partially

Fiji has a VSAT Telemetry Seismograph Network with data available in
real time to MRD Seismology Section who manually calculates
earthquake parameters.  This is fed into national warnings where
possible but is not always timely.  The current network is comprised of
three stations.  JICA project is underway to add another three (making a
total of 6) stations to broadband to allow faster automated solutions in
determining threat from local earthquakes.  Seismic data is not available
to international community in real-time but will eventually be made
available via the JICA project.  The JICA project also includes training of
technicians to maintain the system.

Existence of sea
level stations and
integration of real
time data from
these stations into
the tsunami
warning process

Partially

Two sea level gauges exist in Fiji that are operated by Australia.  (1)
Lautoka – Seaframe (2) Suva – former National Oceanic and
Atmospheric Administration (NOAA) gauge now run by the Bureau.
Real-time data for both stations is accessible via a Registered User
Website at the Bureau as well as via the WMO GTS.  This data is not
currently accessed by Fiji for use in their national tsunami warnings.  Sea
level data is utilised by PTWC in regional warnings.

Sharing of seismic
and sea level data
internationally to
facilitate
improvement of
PTWC tsunami
messages for the
region

Partially

National seismic data is not currently shared internationally. Timely and
free sea level data (third party sites) is shared internationally and fed into
PTWC tsunami messages. There are intentions to eventually make the
seismic data available internationally after the JICA upgrade is complete.

Warnings

Nation receives
PTWC messages

Yes

As per the draft Fiji Tsunami Warning System and Response
Arrangements (refer to D4a), FMS is presently the agency that receives
PTWC messages.  The information is then passed onto the MRD
Seismology Section for assessment.  The MRD Seismology Section
assesses the information and relays the assessed information to FMS
and the NDMO.  FMS are operational 24/7 and receive PTWC
messages via the GTS, e-mail and to the FMS Director via Radio and
Internet for the Communication of Hydro-Meteorological Information for
Rural Development (RANET) SMS.  MRD Seismology Section, who are
not operational 24/7, receive PTWC messages from FMS (by phone
call) and directly from PTWC (email and RANET SMS to the Senior
Seismologist).  During the night / weekends FMS is first to receive the
information and then passes this onto MRD Seismology Section.

Update May 2009 -

The Senior Seismologist has changed phones and is

currently not receiving the SMS.

FMS does not contact NDMO or Fiji Police Force at the

moment, only MRD.

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Key Component

Rating

Discussion

Warnings (Continued)

24/7 operational
staff at warning
receipt and
dissemination
location

Partially

FMS receives PTWC messages and is staffed 24/7. Neither MRD
Seismology Section nor NDMO, who receive the messages internally,
are 24/7. They do have informal on-call arrangements. MRD
Seismology Section prepares and disseminates national tsunami
warnings and NDMO prepare to coordinate emergency response.

Update May 2009 - NDMO have no current on call arrangements. They
plan to move towards a Duty Officer arrangement.

Disseminate
national tsunami
warnings as guided
by a Standard
Operating
Procedure

Partially

Although the Fiji Tsunami Warning System and Response
Arrangements (refer to D4a) draft plan exists arrangements and detailed
SOPs for the issue of national tsunami warnings in Fiji are not yet
agreed and formalised.  The draft arrangements state that the authority
to issue warnings and implement actions resulting from natural hazards
is with the National Disaster Controller (NDC).  However, the draft
arrangements recognise the short onset lead time of a tsunami and
propose FMS should have delegated authority to issue tsunami
warnings for Fiji.  The draft arrangements propose that FMS will instruct
the media to broadcast specific messages directly to the public as well
as instructing TFL to activate tsunami warning sirens.

Under present arrangements FMS receives messages from PTWC and
contacts MRD Seismology Section (by phone and fax). MRD
Seismology Section will then issue a national bulletin in English (D9,
D10). If FMS is unable to contact MRD Seismology Section, FMS will
contact the Fiji Police Force and other response agencies and may issue
a tsunami advisory to the general public to be broadcast on national
radio.

Update May 2009 - Dissemination of warnings is also being discussed
with the three telecom providers TFL, Digicel & Vodaphone using Suva
as a pilot.

System
redundancies in
place for receipt of
PTWC messages
and dissemination
of National
warnings

Partially

FMS receives PTWC messages via the GTS and e-mail in real time.
Staff at MRD Seismology Section receive the PTWC messages via
email and RANET SMS (as does the FMS Director) but are not 24/7.
MRD Seismology Section on duty staff are not provided with a work
mobile phone.  Mobile phones registered for the RANET SMS alert
services are private and usually pre-paid and apparently vulnerable to be
disconnected from service (lack of credits, switched off, number
change).

Update May 2009 – NDMO have an EMWIN system that is not working.
SOPAC operated this system during the last flood.  NDMO do not have
technicians to maintain operational EMWIN.  FMS (who have an
EMWIN) can help set up and provide technical EMWIN training.

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Key Component

Rating

Discussion

Warnings (Continued)

Redundant 24/7
method available
for dissemination of
warnings to
community (e.g.
public radio, sirens
etc.)

Partially

National broadcasts through Amplitude Modulated (AM) and Frequency
Modulated (FM) radio stations are the main means of dissemination of
national tsunami warnings to the Fiji community during waking hours.
Television is also used.  All major population centres are covered by AM
and FM radio.  Remote communities are covered by AM.  Most
households have a radio.  Radio stations are 24/7 in most cases but
some stations may go into pre recorded modes overnight.  VSAT exists
in the Lau Group.  Police stations in the community are 24/7 contact
points for communication.

HF and VHF) predominately voice only radio systems exist, linking key
agencies including FMS, NDMO (including District Offices), Ministry of
Health, Royal Fiji Military Forces (RFMF), Fiji Police Force, TFL, Power
Authorities and MRD Seismology Section. Although there is no
dedicated disaster frequency NDMO have two HF channels to Divisions
and Districts and FMS has three meteorological channels used formally
for disaster communication.

After hours Fiji plans to use tsunami warning sirens (a project for
remotely operated siren system for Suva is underway), Fiji Police Force
sirens and broadcasts from mobile units, SMS National broadcasts,
RFMF sirens and communication means, Navy ships alerting systems
and the National Fire Authority (NFA) (if necessary) to warn the
population.  Harbour Master, Navy and TFL will be responsible for
marine warnings.  Traditional Lali drums may be used in remote
communities and face to face contact by Fiji Police Force and other
response agencies may be undertaken.  FMS has an internet site but
tsunami warnings or advisories are not currently posted.

Update May 2009 - Tsunami siren progress – Vodaphone funding has
lapsed. New funding and a revised project proposal are required.

Effective warning
dissemination to
remote
communities

Partially

Communication of tsunami warning messages to remote villages in Fiji
presents a particular challenge.  Remote villages and islands have AM
radio coverage and a radio in most households.  VSAT in locations such
as the Lau Group and 24/7 Police stations are also possibilities.  This
may facilitate dissemination of tsunami warnings to these communities in
waking hours.  However, further work is required to ensure communities
can receive tsunami warning messages after hours through systems in
remote centres such as HF and VHF radio operated by the Ministry of
Health, RFMF and Police.  Community education on the natural warning
signs of tsunami is also vital to ensure appropriate action is taken for
locally generated tsunami for which warnings are not provided or
timeframes too short.  Local communities know their village and are best
placed to plan their response ahead of an event occurring.

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Key Component

Rating

Discussion

Warnings (Continued)

Communications
coverage of whole
country that is
effectively utilised
for the
dissemination of
tsunami warning
messages

Partially

Adequate communications coverage via FM and AM radio as well as HF
radio (primarily voice) systems.

Iridium satellite phones are relatively common (Red Cross etc.) but are
not normally switched on 24/7.  They are used more as a
communication back up.  There is concern about the costs of satellite
phones (for example, FSM has an old sat phone. $3USD per minute.
Pre-paid with a post pay option).  A central database of numbers is not
held.

Scope for improvement by development and use of dedicated HF
frequencies, HF e-mail and SMS. Communication with field officers post
a disaster or emergency requires improvement.

Issue of marine
tsunami warnings
and guidance for
vessels, harbours
and ports

Partially

There is no specific marine tsunami warning product as such.  However,
whatever product is put out by FMS or MRD Seismology Section is
broadcast hourly over marine HF coastal radio (3DP) run by TFL.
Improvement in two-way communications with small boat operators
required, possibly as part of the licence system.

Update May 2009 –

Suva Radio is now coming under FIMSA so hopefully this

can provide a better service.

FMS considering whether tsunami warnings should be fed

into other marine warnings.

Emergency Response and Evacuation

Disaster
preparedness and
emergency
response system
has been reviewed
and opportunities
for improvement
and training
identified

Partially

Tropical Cyclone Gene and exercises such as Pacific Wave 06 and the
Tsunami Emergency Response Tabletop Exercise 2007 have been
effective tools to identify strengths and improvements required in Fiji’s
disaster preparedness and emergency response system.

However, a plan for implementing the identified improvements required
is not evident.  An informal approach is taken to implement the identified
improvements.  There is a need to further engage with local government
such as Suva City Council (resources and knowledge of localities).

Tsunami
emergency
response,
evacuation and
recovery plan exists
(including
responsible
agencies)

Partially

The NDMP 1995 (D16) details the functions of groups at national,
divisional and local level. The plan includes a “Rehabilitation” section.
This plan has been reviewed and will eventually be replaced by the Fiji
NDRMA (current version October 2006, D17).

Under current arrangements (D16) the NDMO and NEOC (when
activated) are responsible for emergency response, with support of other
agencies.  All hazard DivEOC and DEOC exist.  However, in some
instances, these are not fully implemented.  Plans are required for
Districts and Divisions.

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Key Component

Rating

Discussion

Emergency Response and Evacuation (Continued)

(Continued)

Tsunami
emergency
response,
evacuation and
recovery plan exists
(including
responsible
agencies)

Partially

Under the revised draft (NDRMA), FIDMA (currently known as NDMO) is
listed as the lead agency for tsunami disaster/emergency response with
support from all agencies as directed by the NDC (D17, p41). The draft
NEOC SOPs (draft 4, 2006, D3) provides for FIDMA to become
operational forming the NEOC in all types of emergency or disaster
operations.

Update May 2009 –

The NEOC SOPs have been finalised but the National

Disaster Management Plan and Act need to be finalised
before the SOPs are able to be effective.

NDMO currently has 12 staff.

The designated
agency for
evacuation is
identified and have
authority by law

Yes

Authority designated to the NDMO by the NDMC. Evacuation is
organised through the NEOC.

If a Disaster is declared the NDMC officials like Fiji Police Force and
RFMF can have special powers relating to the protection of life and
property (including forced evacuation). NDMC arrangements at the
district and local government level are in place, but not fully
implemented.

Communication with evacuation agencies to mobilise during an event
requires improvement.

Plans have been
made for safe
evacuation of
population centres
including aspects
such as maps,
routes and signage

Partially

Tsunami evacuation exercises have been conducted in Suva leading to
the development of some preliminary evacuation plans and routes for
Suva. During the village education progressed by MRD Seismology
Section, villages are encouraged to put their own tsunami evacuation
plans in place. It is expected that Suva will be a pilot area for signage.
Outer islands with tourist resorts are also vulnerable and no concrete
plans exist for the safe evacuation or otherwise of residents.

Update May 2009 - Suva City Council has agreed on evacuation routes
and billboards and signage to communicate these evacuation routes to
the community in low lying areas of Suva. International signage will be
used. NDMO is currently looking for funding.

Procedures are
tested and
exercised to
improve the
response through
better planning and
preparedness

Yes

To assist with continuous improvement of the Fiji tsunami warning and
response system, three significant tsunami exercises have been
conducted in Fiji between 2003 and 2008. Exercises include:

•

In October 2007 Tsunami Tabletop exercise;

•

Earthquake building evacuation drill in Suva September 2003 (as
part of the SERMP Project); and

•

Involvement in Pacific Wave 2006.

Update May 2009 – Suva evacuation test will occur once signage and
community awareness plans are complete.

Land use policies
and building codes
are in place to
mitigate against the
tsunami hazard

Partially

Critical infrastructure has been identified in the Suva area only as part of
the SERMP project (D18). Legislation, building codes (under review)
and zoning of land is all aimed at reducing development in tsunami
danger zones and making buildings safer. Issues addressed for Suva
area (with Suva City Council), but need to be addressed for all areas
within the country.

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Key Component

Rating

Discussion

Tsunami hazard, vulnerability and risk

Completion of
studies to assess
the tsunami hazard
in the country or
Region

Partially

Studies have been completed by MRD Seismology Section, SOPAC
and the SERMP Project (D18).  The SERMP project concluded that a
significant risk of local tsunami does exist for the City of Suva and its
harbour environs.  A Suva hazard map exists.  The project considered
mitigation measures for both the earthquake and tsunami impacting
upon the City of Suva, with the scenario event based on the real
experience of the 1953 Suva earthquake and tsunami.  GA has
completed a preliminary tsunami hazard assessment of the Southwest
Pacific as well as a probabilistic study.  Both of these studies include Fiji.

Local risk
assessments have
been completed for
at risk communities

Partially

Not on a country scale, but specific for Suva area Pacific cities Suva, the
SERMP project.

Adequate data
exists and local
inundation
modelling has been
completed for
population centres

Partially

Some high resolution bathymetry and topography data exists, however,
some gaps exist and need to be addressed. Refer to D11, Fiji Islands
Inventory of Geospatial Data and Options for Tsunami Inundation & Risk
Modelling.

Public and stakeholder awareness and education

Measures have
been taken to
ensure the public
understand and
take action in the
event of a tsunami
warning being
issued

Partially

Public education (such as on the MRD Seismology Section web site and
brochures) has focused on educating people to respond to the natural
tsunami warning signs and warnings issued by the relevant authorities.

Community level
education and
preparedness
programs exist for
tsunami

Yes

MRD Seismology Section tsunami awareness program has been
undertaken in approximately over 90 (as at May 2009) costal
communities so far.  This program is ongoing using the limited MRD
Seismology Section budget.  MRD Seismology Section also have web
and print education resources (D1, D4b and D8).  NDMO have a
disaster awareness program (Disaster Awareness Week).  The Fiji
Tsunami Awareness Kit has also been distributed to schools.  The Navy,
FIMSA (work with maritime communities) and Fiji Red Cross also
contribute to awareness programs.

Update May 2009 –

MRD Seismology Section’s tsunami awareness program

has been integrated with NDMO into an all hazards
program for rural coastal communities.

A more integrated approach between key agencies is now

being  taken  to  training,  awareness,  exercises  and
development of disaster plans for schools and community.
Key agencies include FMS, MRD, NDMO, NFA, St John’s
Ambulance, Police and the Red Cross.

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5.2.

5.2. Case Study

Case Study

Case Study –––– Tonga Trench and Solomon Islands Tsunami Events

Tonga Trench and Solomon Islands Tsunami Events

Throughout the Tsunami Capacity Assessment Questionnaire completed in Fiji, the country’s
response to two events was reviewed to gain an understanding of the operation of the system in a
real time event. The findings of these case studies are outlined below. The two tsunami events
used for the case study included:

1. Tonga Trench Event – Magnitude 7.9, 160km northeast of Nuku’alofa (Tonga), 15:26:39

Coordinated Universal Time (UTC), Wednesday 3 May 2006 (3.30am Fiji time)

2. Solomon Islands Event – Magnitude 8.1, 45km south-southeast of Gizo (Solomon

Islands), 20:39:56 UTC, Sunday 1 April 2007 (Public Holiday in Fiji, 2 April, 8.40am Fiji
time)

In  both  instances  Fiji  had  national  seismic  monitoring  systems  in  place  that  detected  the
earthquake.  For the Solomon Islands Event the earthquake evaluation was not timely because
the MRD Seismology Section was not 24/7 at the time.  Staff came in after a call from FMS.  It
took about half an hour for staff to reach the office and another 10 to 12 minutes to complete the
data  analysis.    There  are  no  local  solutions  for  earthquakes  outside  of  Fiji  waters.    MRD
Seismology Section is using the USGS solutions.  Fiji Government agencies did not use any real
time sea level data during these events.

For  both  events  the  PTWC  messages  were  received  within  a  reasonable  time  frame  via  GTS.
However,  in  country  processes  led  to  sub-optimal  warnings  issued from  Fiji  lead  organisations.
This  was  mainly  due  to  the fact  that  MRD  Seismology  Section  is  not  24/7  and  a  lack  of clarity
about agency responsibilities.  The Tonga event occurred in early morning in Fiji and the Solomon
Islands event occurred on a public holiday.  For both events the MRD Seismology Section issued
a  tsunami  warning  for  all  coastal  areas  in  the  Fiji  Islands  group  through  a  national  media
broadcast  using  fax  dissemination  (refer  to  D9  and  D10).    On  both  occasions,  the  Tsunami
Capacity  Assessment  team  was  led  to  believe  these  warnings  were  issued  within  a  30  minute
window.    These  documents  are  not  time  stamped  so  the  timeliness  of  the  warnings  cannot  be
gauged.

The response of the Fiji public to both of these events was mixed.  Some evacuated and some did
not know what action to take.  During the Tsunami Capacity Assessment workshop a participants
expressed  a  need  for  more  awareness  to  assist  in  appropriate  response,  more  coordination
during the evacuation phase and more exercises to test the system.

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P A G E 3 7

5.3.

5.3. Strengths, Opportunities for Improvement and Recom

Strengths, Opportunities for Improvement and Recom

Strengths, Opportunities for Improvement and Recommendations

mendations

mendations to

Progress the Tsunami Agenda in Fiji

Based  on  the  discussions  during  the  workshop  with  in-country  participants  and  the  supporting
documentation  collected  during  the  visit,  the  visiting  team  formulated  the  following  strengths,
opportunities  for  improvement  and  recommendation  under  key  topics  which  they  believe  will
progress the tsunami agenda in Fiji.

Table 4 – Strengths, opportunities for improvement and recommendations under key topics

5.3.1.

5.3.1. Governance and Coordination

Governance and Coordination

Strengths:

Opportunities for Improvement:

•

Proactive engagement by responsible agencies
in areas such as education.

•

All hazard approach to disaster management.

•

Fiji has:

Natural Disaster Management Act 1998

(D2)

National Disaster Management Plan

1995 (D16)

National Disaster Management Council.

Divisional

and

district

disaster

management councils and emergency
operations centres.

A TWG (were meeting regularly but

currently  meeting  on  an  ad-hoc  basis).
(Update  May  2009  –  The  TWG
currently  meet  to  discuss  tsunami
mitigation  and  preparedness  for  Suva
based  on  the  results  of  the  SERMP
Project).

A draft Tsunami Response Plan.

NDMO with 12 staff.

•

Fiji does not currently hold post event debriefing
and review of tsunami events.  (Update March
2009  -  Recent  steps  have  been  taken  by  the
NDMO to conduct reviews and debriefings after
January 2009 floods).

•

Roles and responsibilities should be reviewed to
maximise efficiency of the warning system and
account realistically for available capabilities.

•

Continuity of staff engaged in relevant roles and
activities  is  variable,  leading  to  difficulties
ensuring  efficiencies  and  consistency.    For
example, the TWG is currently inefficient due to
inconsistent  participation  and  meetings  not
being held on a regular basis.

•

The  Fiji  Tsunami  Warning  System  and
Response  Arrangements  (D4a)  are  currently  in
draft.  Some response agencies need to review
their SOPs before this plan can be finalised.

•

Review  of  the  National  Disaster  Management
Act  (D2)  and  NDMP  (D16)  (in  the  form  of  the
draft  Fiji  NDRMA  (October  2006,  D17)).
(Update  May  2009  –  Fiji  is  considering
engaging a consultant to complete the review of
the plan and possibly restructure it.  A workshop
was  held  late  in  2008  to  review  the  draft
arrangements).

•

Disaster Plans are required for Districts and
Divisions.

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P A G E 3 8

Governance and Coordination

Governance and Coordination ((((Continued

Continued

Continued))))

Recommendations:

1. Develop institutional arrangements that allow technical agencies involved in early warning systems and

disaster risk management to be located together. This would streamline operations by enabling pooling
and sharing of resources, information and knowledge. This would particularly benefit sharing of
information technology and communication systems.

2. That MRD Seismology Unit are adequately resourced to maintain adequately trained staff and systems

(High  Frequency  (HF)  radio,  fax  etc.)  to  enable  a  24/7  (stand-by)  operation  for  the  interpretation  of
PTWC  tsunami  warning  messages  for  Fiji  and  coordination  with  FMS  for  dissemination  of  national
warnings through FMS communications channels and processes.

3. That NDMO, the assigned responsible agency, schedule, formal meetings of the TWG and develop a

Work  Plan  for  this  working  group  to  improve  interagency  coordination  and  integration  for  tsunami.
Ensure  nomination  to  the  TWG  of  an  officer  from  each  key  agency  involved  in  tsunami  warning,
mitigation and response in Fiji.  This group should also be used for post tsunami real event and testing
debriefing  to  capture  lessons  learnt  and  update  plans  and  SOPs  ensuring  continuous  improvement
(from a warning, response and recovery perspective).

4. Complete the review, approval and implementation of the revised National Disaster Management

legislation  for  Fiji  to  clearly  outline  responsibility  and  authority  for  mitigation,  preparedness  (including
effective early warnings), response and rehabilitation.  Review other relevant Fiji legislation to ensure it
compliments  the  National  Disaster  Management  Act  (D2)  and  make  necessary  amendments  where
required.

5. Complete the review, approval and implementation of the revised Fiji NDRMA (D17) and commence

development of disaster risk management structures and plans at Divisional and District levels.

6. Complete tsunami warning and response procedures outlining how the international PTWC tsunami

message will be interpreted and disseminated nationally for Fiji with the aim of improving and finalising
the  draft  Fiji  Tsunami Warning  System  and  Response  Arrangements  (D4a).    Completion  of  this  task
should be a coordinated effort involving all key warning and response agencies.  Upon agreement of
these procedures, each agency involved must ensure they have in place a comprehensive set of SOPs
to cover the responsibility of their agency.

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P A G E 3 9

5.3.2.

5.3.2. Regional and International Coordination

Regional and International Coordination

Strengths:

Opportunities for Improvement:

•

Well  connected  with  international  and  regional
bodies  that  can  assist  in  disaster  risk
management,  especially  with  SOPAC,  United
Nations  Development  Program  (UNDP)  Pacific
Regional  Office,  United  Nations  Office  for  the
Coordination

Humanitarian

Affairs

(UNOCHA), foreign embassies, etc. located in
Fiji.

•

Benefit  from  related  international  activities
through  participation  on  the  Southwest  Pacific
Tsunami  Working  Group  (WG5)  of  the  ICG
PTWS.    Lasarusa  Vuetibau  from  MRD
Seismology  Section  is  the  vice  chair  of  this
group.

•

Fiji became a member of the IOC on 9 July
1974.

•

Update  May  2009  –  Fiji  will  have  one  person
involved  in  one-year  training  on  "Tsunami
Disaster  Mitigation"  course  run  by  IISEE  and
JICA.

•

Rigorous regional post event debriefing and
review and provision of feedback to ICG/PTWS
and PTWC.

Recommendations:

7. Continue active participation in the Southwest Pacific Tsunami Working Group (WG5) of the ICG

PTWS.

8. Share the findings of this report with international and regional organisations (those based in Fiji and

others) to provide guidance on targeting future capacity development programs and projects and use
the report to guide the work of the Fiji national TWG.

5.3.3.

5.3.3. Research Expertise

Research Expertise

Strengths:

Opportunities for Improvement:

•

Expertise

and

infrastructure

underpinning

tsunami

science,

warnings,

emergency

response and community education

•

Technical  agencies,  such  as  MRD  Seismology
Section and FMS face the continuing problem of
loosing  qualified  technical  staff  to  other
countries.

Recommendations:

9. Continue to develop and foster links with international partners with the aim of encouraging scientific

research in Fiji and training opportunities for Fiji staff. Develop a protocol to receive copies of all
scientific research reports completed.

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P A G E 4 0

5.3.4.

5.3.4. Tsunami Monitoring Infrastructure

Tsunami Monitoring Infrastructure

Strengths:

Opportunities for Improvement:

•

Data from seismic network available in real time
on VHF ad VSAT network for use by Fiji.

•

Sea level infrastructure exists (Lautoka and
Suva tide gauges) with information available via
the GTS and via the Bureau Registered User
Website.

•

Upgrade  and  expansion  of  existing  seismic
network  to  broadband  capability  planned  with
JICA.  Already planned with Tonga to be able to
share  seismic  data.    JICA  advocate  the
exchange  of  data  internationally,  especially  for
use  in  tsunami  warning  systems.    It  is  planned
that

data

will

eventually

shared

internationally. The JICA project also includes
training of technicians to maintain the system.

•

Real-time access to other seismic data in the
region would improve accuracy and speed of
Fiji’s earthquake solutions.

•

Earthquake  magnitude  and  location  solutions
reached  by  regional  tsunami  watch/warning
providers, such as PTWC, could be improved by
making  local  Fiji  monitored  seismic  information
available to the international community in real-
time.

•

Signing  the  ATWS/SPSLCMP  MoU  could
facilitate  potential  upgrade,  possible  future
installations  and  ongoing  maintenance  of
tsunami  and  climate  monitoring  sea  level
network by Australia.

•

Ability for relevant agency(s) to access, interpret
and feed real-time sea level information into Fiji
tsunami warnings would greatly enhance the
national system.

Recommendations:

10. Sign ATWS/SPSLCMP MoU to facilitate potential upgrade, possible future installations and ongoing

maintenance of tsunami and climate monitoring sea level network and potential future seismic
monitoring network options by Australia.

11. Ensure that project agreements with international donors for upgrade of equipment includes sharing of

data internationally in real-time and suitable data formats (such as Seedlink, a seismic data exchange
protocol) to facilitate improvements in accuracy of messages from international tsunami watch/warning
providers.

12. FMS investigate access to Pacific sea-level data for tsunami warnings via the GTS with the Bureau

including agreement on the Bureau communicating to FMS when instrumentation is out of order.

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P A G E 4 1

5.3.5.

5.3.5. Tsunami warnings

Tsunami warnings

Strengths:

Opportunities for Improvement:

•

Considerable expertise exists at FMS, MRD
Seismology Section and NDMO

•

FMS operates 24/7 with scientifically astute
staff, has established international and national
communications

links

and

warning

dissemination mechanisms and well established
links with media and other agencies.

•

National  seismic  analysis  and  real-time
monitoring capability exists at MRD Seismology
Section  (on-call,  but  not  24/7),  with  future
potential  to  automatically  alert  for  locally
generated tsunami.

•

FMS  (are  24/7)  receive  PTWC  messages  via
the  GTS,  e-mail  and  SMS  to  FMS  Directors
mobile  in  real  time.    MRD  Seismology  Section
(not  24/7)  receive  PTWC  messages  from  FMS
(by  phone  call)  and  directly  from  PTWC  (email
and  RANET  SMS).    (Update  May  2009  -  The
Senior Seismologist has changed phones and is
currently not receiving the SMS.  FMS does not
contact  NDMO  or  Fiji  Police  Force  at  the
moment, only MRD).

•

After receiving the message, MRD Seismology
Section then value ads by providing Fiji specific
threat information before issuing to public (D9
and D10).

•

MRD  Seismology  Section,  a key  agency  in  the
warning process, is not operational 24/7.  In the
long term, it would be beneficial to Fiji’s tsunami
warning  system  to  have  local  tsunamigenic
earthquakes monitored in real-time and fed into
timely warnings.

•

There  is  potential  for  panic,  false  alarms  and
community  complacency  if  Fiji’s  tsunami
warning  system  does  not  include  information
bulletins  for  non-tsunamigenic  events,  felt
earthquakes,  tsunami  that  wont  impact  on  Fiji
and  education  post  tsunami  (regardless  of  the
size  of  the  tsunami).    This  will  be  particularly
important as awareness of tsunami increases in
Fiji.    Also,  PTWC messages  have  the  potential
to  be  misinterpreted  by  media  without  local
evaluation and interpretation.

•

Development of tsunami specific procedural
documentation (SOPs, etc) for key agencies is
required.

•

Ongoing tests of Fiji’s end-to-end warning
system and procedures are required.

•

Further  specific,  competency  based  tsunami
related  training  of  staff  involved  in  tsunami
warning operations is required (best done based
on  a  comprehensive,  agency  specific,  set  of
SOPs).

•

Staff are generally well trained at FMS, however
high staff turnover can, at times, leave FMS
resource poor.

•

MRD Seismology Section currently has only one
qualified seismologist. High staff turnover is a
problem.

•

Access to a tsunami scenario database
(including appropriate training regarding how to
use

the

database)

enable

further

determination of more specific threat information
for Fiji.

•

Warnings are issued in English only.

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P A G E 4 2

T
T
T
Tsunami Warnings

sunami Warnings

sunami Warnings ((((Continued

Continued

Continued))))

Recommendations:

13. Due to the short time period available for tsunami warning, implement an interim measure whereby FMS

issues a “Tsunami Watch” bulletin based on PTWC messages on behalf of MRD, before MRD
Seismology Section comes online to qualify the threat.

14. Fiji install a second back-up system at a second 24/7 operational centre to ensure redundancy in receipt

of PTWC messages. It is recommended that this be in the form of additional EMWIN systems (Satellite
or Internet) at a second 24/7 centre.

15. Include in tsunami warning processes, issuing of “No threat” messages to the public and media for the

following events:

a. Felt earthquakes that are not large enough to generate tsunami;

b. Tsunami that do not have the potential to threaten Fiji; and

c. Under-sea earthquakes that do not have the required characteristics to generate a tsunami.

This will prevent misinterpretation of information for sources external to Fiji, as well as maintaining
practiced operational systems and community awareness when there is a long time between events.

16. The TWG, as part of SOPs, discuss, develop and implement a tsunami warning distribution list for the

responsible agency to use in the case of a tsunami event. Ensure this list is agreed to by appropriate
stakeholders and regularly maintained.

17. Ensure staff are adequately trained, including:

a. Completing training needs analysis of staff tsunami knowledge and skills in key warning agencies

(MRD Seismology Section and FMS) and response agencies (NDMO, Fiji Police Force etc.).
Based on this needs analysis, develop a competency based training program to address the
identified training gaps of each agency.

b. Possible topics identified throughout this process, in which relevant agencies may require further

training include:

Tsunami warning decision processes;

SOPs;

Model scenario interpretation;

Sea level data analysis;

Tsunami science and behaviour;

Communication systems;

Information management and networking; and,

Exercise management.

Development of ongoing staff training (including developing links with tertiary institutions and
international technical agencies) and incentive programs to ensure maintenance of adequate
technical staff in Fiji.

18. As part of SOPs, develop multi-agency and agency specific procedures to handle media and public

enquiries and ensure accurate and timely information flow to the media and public during the warning,
response and recovery stages of an operational tsunami event.  These procedures could include, pre-
recorded or text to voice phone  warnings, designated spokespeople and topics, talking points, media
release templates etc.  Incorporate these arrangements into the draft Fiji Tsunami Warning System and
Response Arrangements.

19. Incorporate into Fiji’s tsunami warning procedures the issuing of tsunami warnings in Fijian, Hindi and

English to cater for Fiji’s community.

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P A G E 4 3

5.3.6.

5.3.6. Communications

Communications

Strengths:

Opportunities for Improvement:

•

Communications coverage for whole of Fiji (AM
radio at least), with most households having a
radio.

•

Cellular  phone  networks  with  SMS  available  to
large  population  centres  and  most  regional
centres.    Local  carriers  are  willing  to  work  with
SMS distribution systems.

•

Good  multi-agency  voice  HF/VHF  network  for
land  based  warnings  and  good  Marine  Radio
HF/VHF  service  for  coastal  and  high  seas
warnings  (which  are  working  reliably  and
effectively  in  alignment  with  international
protocols).

•

NDMO have two HF channels to Divisions and
Districts and FMS has three meteorological
channels

used

formally

for

disaster

communication.

•

Police stations key 24/7 contact points for
communication.

•

FMS is receiving government funding to
upgrade

its communication infrastructure.

(Update May 2009 – FMS has spent
FJ$2million over the last two years updating
communications equipment).

•

Iridium Satellite phones are available in
Government and NGO agencies.

•

Technical support and expertise for satellite
systems and equipment in Fiji is high. MRD
Seismology Section is supported and up to date
with available satellite technology knowledge.

•

Siren warning system is being developed for
NDMO in conjunction with Cellular carrier.