Microsoft Word - FINAL_Samoa_Tsunami Capacity Assessment National Report.doc

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Version

Date

Author

Comments

0.1

16 April 2009

C. O’Brien

Initial Draft, including comments from
Filomena Nelson in Table 1 and review of
recommendations

0.2

27-29 April 2009

C. O’Brien

Inclusion of team review comments:
• Prue Harley (AGD)

• Garry Clarke (Data Comms Expert)

• Andrew Gissing (State Emergency

Services)

• Rob Webb (Bureau)

• Bryan Boase (Bureau)

0.3

12 May 2009

C. O’Brien

Formatting and inclusion of review
comments from:
• Filomena Nelson (NDMO, Samoa)

• Michael

Bonte-Grapentin

(SOPAC)

0.3

17 July 2009

C. O’Brien

SOPAC sign-off. No changes.

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, Samoa, Apia, 28 April – 1 May
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: 7 July 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:

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

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

1.1.

XECUTIVE

UMMARY

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

1.2.

ECOMMENDATIONS

(

INCLUDING PRIORITY AND RESOURCE INTENSITY

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

PROJECT BACKGROUND .................................................................................................................... 12

2.1.

BOUT THE

ROJECT

........................................................................................................................ 12

2.2.

ROAD

ROJECT

........................................................................................................................ 12

2.3.

ROJECT

UTPUT

...................................................................................................................... 12

2.4.

ROJECT

ETHODOLOGY

................................................................................................................. 12

2.5.

NDERLYING

OLICY

BJECTIVES OF THE

USTRALIAN

SUNAMI

ARNING

YSTEM

ROJECT

.. 13

2.6.

SUNAMI WARNINGS IN THE

ACIFIC

................................................................................................. 13

2.7.

NTERNATIONAL

SUNAMI

ORUMS

................................................................................................... 13

COUNTRY BACKGROUND AND THE TSUNAMI THREAT ............................................................ 15

3.1.

BOUT

AMOA

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

3.2.

SUNAMI

HREAT

OURCES AND

SUNAMI

ISTORY IN

AMOA

...................................................... 17

THE SAMOA TSUNAMI CAPACITY ASSESSMENT ........................................................................ 22

4.1.

ATE AND

OCATION

......................................................................................................................... 22

4.2.

ISITING

SSESSMENT

EAM AND

ARTICIPANTS

............................................................................ 22

4.3.

ORKSHOP

UMMARY

...................................................................................................................... 22

4.3.1.

Day 1 (28 April 2008) ................................................................................................................. 22

4.3.2.

Day 2 (29 April 2008) ................................................................................................................. 23

4.3.3.

Day 3 (30 April 2008) (Morning only)....................................................................................... 23

4.3.4.

Day 4 (1 May 2008).................................................................................................................... 23

4.4.

ORKSHOP

HOTOS

PIA

PRIL

2008)................................................................................. 24

ASSESSMENT RESULTS ...................................................................................................................... 25

5.1.

TATUS OF

YSTEM

OMPONENTS

........................................................................................... 25

5.2.

ASE

TUDY

–

SUNAMI

YSTEM

PERATION IN

AMOA FOR

ONGA

RENCH AND

OLOMON

SLANDS

SUNAMI

VENTS

.............................................................................................................................. 35

5.3.

TRENGTHS

PPORTUNITIES FOR

MPROVEMENT AND

ECOMMENDATIONS TO

ROGRESS THE

SUNAMI

GENDA IN

AMOA

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

5.3.1.

Governance and Coordination.................................................................................................. 36

5.3.2.

Regional and International Coordination................................................................................. 38

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 .............................................................. 48

5.3.9.

Tsunami Hazard, Vulnerability, Risk and Mitigation .............................................................. 49

5.3.10.

Public and Stakeholder Awareness and Education.......................................................... 50

5.4.

DDITIONAL

ORKSHOP

ENEFITS

.................................................................................................. 52

5.5.

EXT

TEPS

...................................................................................................................................... 52

ANNEXURE............................................................................................................................................... 53

6.1.

NNEXURE

ECORD OF

ARTICIPANTS

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

6.2.

NNEXURE

ISITING

SSESSMENT

EAM

............................................................................. 55

6.3.

NNEXURE

GENDA

AMOA

SUNAMI

APACITY

SSESSMENT

ORKSHOP

............................ 56

6.4.

NNEXURE

UPPORTING

OCUMENTS

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

6.5.

NNEXURE

EFINITIONS

............................................................................................................... 65

6.6.

NNEXURE

EFERENCES

.............................................................................................................. 69

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

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AFTN

Aeronautical Fixed Telecommunication Network

AGD

Australian Attorney-General’s Department

AM Amplitude

Modulated

ATWS

Australian Tsunami Warning System

AusAID

Australian Agency for International Development

Bureau

Australian Bureau of Meteorology Bureau

CEO

Chief Executive Officer

CTBTO

Comprehensive Nuclear-Test-Ban Treaty Organization

Document (e.g. Document 39 = D39)

DAC Disaster

Advisory

Committee

DFAT

Australian Department of Foreign Affairs and Trade

DMO

Disaster Management Office

EMA

Emergency Management Australia

EMWIN

Emergency Managers Weather Information Network

FM Frequency

Modulated

GA Geoscience

Australia

GDP

Gross Domestic Product

GIS Geographic

Information

System

GSN Global

Seismic

Network

GTS

Global Telecommunications System

HF High

Frequency

ICG

Intergovernmental Coordination Group

IMS International

Monitoring

Station

IOC

Intergovernmental Oceanographic Commission

IPES

Institution of Professional Engineers of Samoa

IPsec Secure

Internet

Protocol

ISCS

International Satellite Communications System)

ISDR

International Strategy for Disaster Reduction

ITIC

International Tsunami Information Centre

ITSU

ICG for the Tsunami Warning System in the Pacific

JICA

Japan International Cooperation Agency

JMA

Japan Meteorological Agency

LiDAR

Light Detection and Ranging

MMI

Modified Mercalli Intensity Scale

MNRE

Ministry of Natural Resources and Environment

MoU

Memorandum of Understanding

Mw Moment

Magnitude

MWCSD

Ministry of Women, Community and Social Development

NDC

National Disaster Council

NDMP

National Disaster Management Plan

NEOC

National Emergency Operations Centre

NGOs Non-Government

Organisations

NLA

National Legislative Assembly

NOAA

National Oceanic and Atmospheric Administration

New Zealand

PGSP

Pacific Governance Support Programme

PICs

Pacific Island Countries

PTWC

Pacific Tsunami Warning Centre

PTWS

Pacific Tsunami Warning and Mitigation System

RANET

Radio and Internet for the Communication of Hydro-Meteorological Information for
Rural Development

RTH

Regional Telecommunications Hub

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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 Independent State of Samoa (hereafter referred to as “Samoa”) to receive,
communicate and effectively respond to tsunami warnings took place in a workshop held from 28
April – 1 May 2008 in Apia, Samoa.

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

As well as outlining Samoa’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 ongoing
improvements in Samoa’s tsunami warning and mitigation system.

Samoa’s National Tsunami Plan (2008, D5, D5.1) states that anecdotal evidence indicates a total
of 60 tsunami events have been recorded in Samoa between the years 1937 and 1980.  Samoa
is susceptible to tsunami from local, regional and distant sources.  The Tonga trench, lying to the
south of Samoa, is the country’s most significant regional source of potential tsunami (Thomas
and Burbidge, 2009). In its National Disaster Management Plan (NDMP, 2006, D1) and National
Tsunami Plan (2008, D5, D5.1), Samoa has rated tsunami, as an “extreme risk”. The National
Tsunami Plan (D5, D5.1) states that “the main areas at risk of a tsunami are all low-lying coastal
areas of the inhabited islands of Samoa; that is areas less than 10 metres above sea level”.
Samoa’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 Samoa’s system operates in a real event.

Samoa’s sound tsunami warning and mitigation system currently in place is underpinned by the
country’s Disaster and Emergency Act (2007, D3). The Act focuses on inter-agency cooperation,
community awareness and engagement by high level political officials. The Act includes
provisions for disaster risk reduction and preparedness in addition to emergency response. Other
strengths of Samoa’s current system include:

• A responsible agency for issuing tsunami warnings operating 24/7 under a comprehensive

set of Standard Operating Procedures (SOPs);

• An active and effective Disaster Advisory Committee (DAC) and Disaster Management

Office (DMO) exist, reporting to the National Disaster Council (NDC);

• A strong dissemination system to the population using Digicel and SamoaTel mass SMS

broadcast in the first instance to key community leaders. The media, sirens, Church and
school bells, boat horns and word of mouth are then used to reach the wider community;

• Samoa conducts regular tests of their tsunami warning system and follows up with

appropriate evaluation;

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• Response agencies are outlined in the NDMP and agency responsibilities for emergency

response are clearly defined;

• Each response agency must prepare and implement a response agency plan;
• Mitigation projects such as Coastal Infrastructure Management Plans have already been

completed for villages to assist in building the resilience of Samoa’s coastal communities to
natural hazards; and

• Community education and capacity building is being progresses through projects such as

village Disaster Risk Management workshops (otherwise known as the “Village Program”)
which are planned to be rolled out in Samoa’s 329 villages by the end 2013.

Participants in the workshop stated a number of priority areas for improvement that need to be
addressed. Recurring themes included enhancement of seismic monitoring infrastructure, more
funding for public awareness and relocation of the National Emergency Operations Centre
(NEOC) to a safe location. In addition to ensuring maintenance of the strong current system
already in place the workshop’s resulting recommendations reflected the priorities raised by
workshop participants. Very high priority recommendations made include:

• Investigate the permanent relocation of critical warning and response functions within

Ministry of Natural Resources and Environment (MNRE) including the DMO and NEOC to
a location outside of any likely tsunami impact;

• Investigate obtaining further resources to allow the Village Program to be completed within

the designated timeframes (end 2013);

• That all agencies with key roles to play in the tsunami warning system be adequately

resourced to carry out their legislated functions under the Disaster and Emergency
Management Act and/or the NDMP;

• Continue development and implementation of tsunami public awareness and education in

a multi-hazard context;

• That an analysis be undertaken on aspects of redundancy in the total tsunami warning

system; and

• Continue the development of tsunami plans for local communities including warning and

evacuation procedures.

Samoa 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 Samoa’s tsunami warning and mitigation system. In turn, this will assist in improving systems
for other high priority natural hazards.

Contingent on the availability of human and financial resources, 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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Table 2 outlines the priority and resource intensity for recommendations made to improve
Samoa’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 Samoa’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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Ver

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H

i
gh

Contin

ue th

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vel

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r
loc

unities

inc

l
ud

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war

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ng and

uatio

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edur

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ati

on of

thes

e p

l
ans

hould

inc

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ude th

e pr

tion

evac

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ion m

aps

and c

munit

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c

ons

ulta

tion

hen

leted p

l
ans

hou

ld be

ade availa

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to th

e pub

lic

and

evac

uat

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aps

dis

y
ed

i
n

inent loc

ti
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th

unities

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Res

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pla

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agenc

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n

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ver

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m

bet

ents

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in ts

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ng pr

,
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edia f

r
the

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potent

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to thr

eat

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oa;

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pec

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High

Sam

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Sec

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io

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lete

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unam

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lti-

zar

r
d

r
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sk

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ents

,

m

odelli

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apping of

pop

ulat

ed ar

eas

unam

i Haz

r
d

Vuln

abi

lit

y
,
R

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s

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tig

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Mult

i
-
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High

Contin

ue ac

ti
ve

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Sou

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h

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)
of

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oup (

I
CG

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Pac

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n

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tig

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em

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P

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,

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Dir

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or

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atf

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er

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Managem

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eetings

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teor

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v

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s

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on

MNRE as

r
e

pons

ible

war

g aut

hor

it
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.

Medi

(

t
er

nal

i
s

t
anc

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equir

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nal and

Inter

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ona

Coor

din

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unam

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pec

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f
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hat Sam

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igat

the

deve

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c

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on

r
n

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em

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Contin

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velo

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d c

duc

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ses

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t
em

genc

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m

ana

gem

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angem

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at national

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y

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as

endatio

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s

y
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em

ove

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e

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endations

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plem

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s

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plan.

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Res

pons

e (

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nc

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pec

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ve b

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t
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vant

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this

now

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e in

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dis

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r
all ha

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a

r
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High

unam

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d

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abi

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tig

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pdat

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he DMO

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eques

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f
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tab

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ism

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c

netw

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n

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data inter

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m

ats

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H

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gh

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Inf

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as

truc

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High

Contin

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tab

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uat

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pot

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l of

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volc

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Ver

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H

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gh

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as

truc

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High

hat ex

ting las

t
m

ile ts

una

i
w

r
n

ing c

unic

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thods

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r
engthen

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f
or

ple, im

ple

entation

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i
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em

attac

hed to

loc

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n

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quir

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populat

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ident

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ents

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m

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appin

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tor

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g

unam

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m

ate c

hange)

Ver

y
H

i
gh

unam

i Haz

r
d

Vuln

abi

lit

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,
R

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s

and M

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tig

tio

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Recommend

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s

be u

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tak

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ind

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v

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th

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the Pac

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W

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)
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W

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on

and

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x

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en p

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ind

oor

Com

unic

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Mult

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-
h

Medi

Deve

lop

a nat

iona

l d

i
s

t
er

ver

y

pla

that f

r
t
her

out

li
nes

r
angem

ents

f
o

r
r

ver

y
,

i
n

l
udi

ng the

oor

din

tio

lf
ar

e, publ

hea

lth a

nd i

f
r
as

tur

ons

tion.

unam

genc

Res

pons

e (

i
nc

din

evac

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h

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Cons

ider

w Sam

oa c

an m

ve t

r
d

deter

i
nation

dif

f
e

r
ent thr

eat lev

the

i
r
ts

unam

i w

r
n

ings

. For

ple,

r
i
ne onl

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or

l
and

inun

dat

unam

i
W

r
n

ings

unam

i
s

pec

i
f
ic

Medi

hat the lic

enc

e r

ents

r
pr

i
m

r
y
c

unic

tions

eans

on boats

e c

hange

d to r

adi

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Com

unic

tions

Mult

i
-
h

Medi

hat the MNRE

e r

ens

ing dat

a (

h as

high

r
e

lutio

tel

lite

ages

)

f
o

r
pos

t dis

t
er

dam

age

sse

t
s.

Medi

to High

unam

genc