Microsoft Word - Final Inception Report

132 Vincent Street

PO Box 6345, Auckland, New Zealand

Telephone +64-9-300 9000

Fax +64-9-300 9300

www.beca.com

The Chief Executive Officer
Ministry of Natural Resources, Environment and Meteorology
Private Bag
Apia
SAMOA

Attn: Vitaua Peleiupa Fuatai, PCM SIAM2

20 May 2005

Our Ref: 6060030/100
L2:49382-Final Inception
Report - May 2005.DOC

Dear Sir

SIAM2 - Sustainable Management C4: Environment Risks & Resource
Management Inception Report - Final

We have pleasure in enclosing the finalised Inception Report for the above project. We
have amended the report to take into account our discussions at the Draft Inception Report
Workshop held on 14 April 2005 and the written comments received from both MNREM
and from the PUM Division on MWTI.

We are still awaiting confirmation from both MNREM and MWTI that our understanding
of our obligations under the contract consequent to the transfer of the PUM Division from
MNREM to MWTI as set out in our letter to you dated 22 February 2005 was agreed. We
have prepared the final Inception Report on the basis that these understandings have been
accepted.

The hard copies of this report will follow by courier.

Yours faithfully
Graeme Roberts
Manager, Planning

on behalf of

Beca International Consultants Ltd

Direct Dial: +64-9-300 9271
Email: groberts@beca.co.nz

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Table of Contents

Executive Summary ......................................................................................... 1

Introduction ............................................................................................... 3

1.1

Project Description ..........................................................................................3

1.2

Purpose of Report ............................................................................................4

1.3

Structure of Report...........................................................................................4

1.4

Definitions .........................................................................................................5

Methodology by Workstream.................................................................. 6

2.1

Environmental Management Workstream....................................................6

2.2

Natural Risk Management Workstream ......................................................10

2.3

Natural Resource Management Workstream ............................................18

2.4

Emergency Management Workstream ......................................................24

Work Programme and Deliverable Outputs ......................................... 36

3.1

Introduction....................................................................................................36

3.2

Overall Work Programme .............................................................................37

3.3

Natural Risk Management Work Programme ............................................38

3.4

Emergency Management Work Programme.............................................39

3.5

CIM Plan Typical District Work Programme ................................................41

3.6

Deliverable Outputs ......................................................................................42

3.7

Anticipated Counterpart Involvement........................................................42

Key Performance and Progress Indicators........................................... 43

Risk Management Plan .......................................................................... 45

5.1

Introduction....................................................................................................45

5.2

Project Risk Plan ............................................................................................45

Decisions/Actions Required................................................................... 48

6.1

Organisational Changes ..............................................................................48

6.2

Natural Risk Management............................................................................48

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Appendices

Appendix A – Description of Services Required

Appendix B – GIS Layers held by MNREM

Appendix C – Mapserver equipment released by SOPAC to Met Office,

Samoa

Appendix D – Comments from MNREM & MWTI on Draft Inception Report

Appendix E – Attendance List & Notes from Draft Inception Report

Workshop 14 April 2005

Appendix F – MCDEM Comments on Draft Inception Report and Inception

Review Workshop - Letter dated 18 April 2005.

Appendix G – List of Persons Consulted for Emergency Management

Workstream Inception Visit

Appendix H – Letter from BICL to MNREM & MWTI dated 22 February 2005

Appendix I - Districts Table and District Program Map

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Executive Summary

The Inception Report has substantially confirmed the Consultant’s proposals to undertake
the project as per the Technical Proposal submitted with the tender with two notable
exceptions which are outlined below. The project will be managed around the four
workstreams, viz:

Environmental Management

covering:

–

EIA regulations review

–

Environmental monitoring development and policy

–

Completion of Codes of Environmental Practice

–

Provision of further industry training and development including a contractor
qualification scheme.

Natural Risk Management

covering:

–

CIM Strategy review

–

CIM Plan/SMP review

–

Effectiveness Survey

–

Completion of CIM Plans for the remaining 28 Districts.

Natural Resource Management

covering:

–

Further development of the application of GIS to the management of natural
resources.

–

Preparation of a sustainable aggregate supply policy.

Emergency Management

covering:

–

A revised NDM Plan.

–

A plan and programme for institutional and staff development.

–

DMO Office and equipment specifications.

–

Agency and stakeholder workshops and response plan development.

–

Revised legislation.

–

Community education and development.

–

Disaster simulations

–

Disaster Insurance review.

The two areas where significant changes have been proposed are as follows:

CIM / SMP Plans

It has been suggested that a cautious approach be adopted in moving CIM Plans towards
being SMP’s under the PUM legislation. This has been advocated for two principal reasons:

The original philosophy of the CIM Plan was that of a “partnership” between local
villages/districts and Government. It is our belief that the ultimate success of the CIM
Plans will derive more from the articulation of this philosophy than the more
“regulatory” and “prescriptive” rules based approach which appear to be anticipated

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in the SMP’s. This approach may be necessary for the urban and peri-urban areas of
Samoa but is in our view overly complex for the vast majority of rural districts.

Secondly, we have real concerns about the resource implications arising from the SMP
process. The process set down in the legislation will require substantial professional
and technical resources in both MWTI and the community, which to date do not
appear to have been available or forthcoming. It would in our view be unfortunate if
all the real advances in coastal infrastructure management and the communities
comprehension of the underlying issues were put at risk by the adoption of a resource
hungry approach at this point in Samoa’s development. We do however see how
subtle amendments can be made to the CIM Strategy and CIM Plan formulation
process to anticipate this step at an appropriate point in the future.

Emergency Management Task Content and Timing

The number of work tasks has been reduced from 12 to 10 by combining some tasks and
the order of completion of tasks has been varied from that sought by the TOR. The
reordering has been undertaken to allow for a more logical work flow and for the outcomes
of key tasks to feed into subsequent tasks.

One matter which has not been resolved relates to the review of the National Co-ordination
Centre. This was not allowed for in our original proposal nor was it a specific explicit
requirement of the TOR. The PUM Division of MWTI in a letter of 13 April 2005 providing
comments on the Draft Inception Report (See Appendix D) suggests that the MCDEM
Review report (July 2004) has already provided discussions on and a summary of the NCC,
implying that it would be a relatively straightforward task to include a review of the NCC
within the current scope of work. MCDEM’s letter of 18 April 2005 (Appendix F), states
that a review of the NCC is “pivotal to the effectiveness of existing or new disaster management
arrangements and any review of the disaster management structure”

implying that this piece of

work has yet to be undertaken.

We have proposed that this work be undertaken as additional items to the scope of work
under the contract and would be pleased to provide our fee estimate for doing this.

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1 Introduction

1.1 Project

Description

The Terms of Reference for the project describe the project as follows:

‘The Government of Samoa (The Client) requires services for:

1. Environmental Management - provide assistance to: (i) finalise the EIA regulations so that
they can be endorsed by Cabinet and passed into law (and the requirements will then
apply to all government and private sector proponents); (ii) provide further support and
training in environmental management practices (including the COEP) relating to physical
works, especially targeted at the design and construction industry; and (iii) assist to embed
the routine process of data collection for environmental monitoring and impact assessment
as a mainstream activity within MNREM.

2. Natural Risk Management - expand the CIM strategy to: (i) incorporate issues relating to
climate change adaptation; and (ii) incorporate strategies for other types of hazards (e.g.
flooding, landslips etc.) and to complete the CIM plans for the remaining 28 Districts of
Samoa, incorporating coastal and other hazards.

3. Natural Resource Management - train and support MNREM to better manage and provide
policy advice to government on natural resources using GIS as an analysis tool. The specific
activities will be identified during project implementation, but will be strongly tied to
initiatives identified from, or that make use of, the CIM Plans and the policy development
objectives for MNREM as specified in its corporate plan.

4. Emergency Management - reform the National Emergency Management Plan (NEMP) to
be consistent with best pacific region practice relating to emergencies, so that there is an
emphasis on reduction as well as readiness, response and recovery. Apart from rewriting
the NEMP, the proposed activities will include:

(i)

workshops to align the approach forward amongst various stakeholders;

(ii)

training and professional development;

(iii)

community and organisation awareness training (implemented in conjunction
with the CIM Plan consultation process);

(iv) simulations;

(v)

additional equipment;

(vi)

preparation of supporting legislation; and

(vii)

review of options for disaster management insurance.

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1.2

Purpose of Report

The Inception Report has the following purposes:

To record the investigations and discussions undertaken during the inception review
phase of the project.

To review and comment upon the methodology proposed to complete the project in
the light of those investigations and to propose any alterations thereto.

To provide a detailed workplan for the execution of the project.

To suggest key performance and progress indicators for the project and

To develop an initial risk assessment and risk management plan for the project.

1.3

Structure of Report

Following this Introduction, the report has a further five sections:

Section 2 reviews the methodology proposed by workstream and identifies any
alterations to that contained in the tender proposal document.

Section 3 contains the detailed work programme and deliverable outputs arising
therefrom.

Section 4 suggests key performance and progress indicators.

Section 5 contains the initial risk management plan; and,

Section 6 summarises the key decisions required or actions to be taken as a result of
this report.

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1.4 Definitions

The following definitions and abbreviations are used in this report:

AusAID

Australian Agency for International Development

Beca

Beca International Consultants Ltd

CIM Plan

Coastal Infrastructure Management Plan

CIMS

Coastal Infrastructure Management Strategy

COEP

Codes of Environmental Practice

DMO

Disaster Management Office (part of MNREM)

EIA

Environmental Impact Assessment

GEF

Global Environment Facility

GIS

Geographic Information Systems

GoS

Government of Samoa

GPS

Global Positioning System

IAMP-1

Infrastructure Asset Management Project – Phase 1

IDA

International Development Agency (World Bank)

LAN Local

Area

Network

MCDEM

Ministry of Civil Defence and Emergency Management

MNREM

Ministry of Natural Resources, Environment & Meteorology

MOF

Ministry of Finance

MWTI

Ministry of Works, Transport and Infrastructure

PAD

Project Appraisal Document

PCC

Project Coordination Committee

PMU Project

Management

Unit

PUMA

Planning and Urban Management Agency

SOPAC

South Pacific Applied Geoscience Commission

SPREP

South Pacific Regional Environment Programme

SIAM-2

Second Infrastructure Asset Management Project

SMP Sustainable

Management

Plan

WB World

Bank

fono village

council

komiti committee

matai chief

pule customary

authority

pulenu’u government

village

representative,

village

mayor

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Methodology by Workstream

2.1

Environmental Management Workstream

2.1.1

Introduction and Overview

Our Inception review discussions have largely confirmed the understanding we had of the
required actions to achieve the overall project goals in regard to this portion of the work.
The draft EIA regulations have been being applied with varied levels of success and what
is now required is for them to be the subject of a rigorous technical review and to then be
promulgated under the relevant legislative framework. The recently passed PUMA Act
2004 provides for the drafting of regulations to give effect to the EIA requirements.

2.1.2 EIA

Regulations

Review

Discussions held with relevant MNREM staff during the Inception review have confirmed
the broad applicability of the methodology as set out in the tender proposal. This involved
the following key steps:

Structured interviews with key stakeholders to assess the application of the draft
regulations. This will include key staff in MNREM and other stakeholders including
MWTI, EPC, SWA, SamoaTel, NGO’s and other aid donors.

Production of an annotated review of the current draft regulations with suggested
areas for amendment and addition/deletion

Facilitation of a half-day workshop for key stakeholders to agree the technical scope of
revised draft regulations.

Preparation of a Technical Paper on the scope and content of the revised draft EIA
regulations for the guidance of the legal drafting team.

2.1.3

EIA Regulations Legal Drafting

The four stage process proposed in the tender proposal is still appropriate with minor
modifications.

Stage 1 involved initial consultations and consideration of the MNREM principal act
together with the PUMA Act 2004. With the transfer of the PUMA division to MWTI there
will need to be consequential amendments to the PUMA Act to replace the responsible
Minister amongst other matters. In addition it will be necessary to review the MWTI
principal act and other relevant legislation. It will be necessary for confirmation to be given
that MWTI will be responsible for the EIA regulations. We have not allowed for the
additional work associated with changes to the PUMA Act in our tender but would be
prepared to undertake it as a variation to the contract if required.

The PUMA Act provides for the making of regulations under the Act to give effect to the
provisions of the Act. EIA related matters appear to be specifically provided for in sections
105(2)(j), (k), (s), (t) and (u) which provide for the form, content, examination and making
available for public comment of EIA’s and statements of environmental effects.

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Stages 2, 3 and 4 will proceed as outlined in the tender proposal. These are briefly
described below.

Stage 2 allows for a broad range of consultation both inside and outside MNREM and
MWTI on the findings from Stage 1. We will also consider how the Memorandum of
Understanding between MNREM and MWTI regarding the application of the draft EIA
regulations to Government works, developed under IAMP-1, can be accommodated in the
new regulations. Findings will be documented in a brief report summarising views
collected during consultation.

Stage 3 involves the redrafting of the regulations. Taking the output from the Technical
Review and any other matters identified in Stages 1 and 2, a revised set of draft regulations
will be prepared in a content, style and format commonly used in Samoa. These will be
circulated to and discussed with key staff in MNREM and MWTI. Following MWTI’s
acceptance of the draft regulations, these will be discussed in detail with the AG’s office
who will be responsible for the final processing of the regulations to Parliament.

Stage 4 involves the finalisation of the draft regulations including circulation to
stakeholders outside MWTI, conducting workshops for MWTI , MNREM and other
stakeholders to explain the revised draft regulations and final amendment of the draft
regulations following the workshops.

Output will be finalised draft EIA regulations ready for submission by MWTI to Cabinet
for approval including a supporting draft Cabinet paper.

2.1.4 Environmental

Monitoring

It was not clear from Inception review discussions how this function will be split in future
between the relocated PUMA Division in MWTI and MNREM. This matter requires early
attention to provide the necessary clarity of functions. Overall the primary focus of the task
will remain regardless of who will be responsible for its performance.

The task requires an assessment of the role environmental monitoring can and should play
in assisting MNREM/MWTI to discharge their statutory obligations and desired core
competencies under their Corporate Plans. We will commence this by reviewing and
confirming with MNREM and MWTI senior management staff in a workshop what those
key activities are, assessing where the responsibility lies for that function, where the two
Ministries currently feels they are at and where they desire to be in the short, medium and
long term. Objectives and action plans will be formulated for these future positions. The
action plans will define the who, what and how together with a consideration of the
potential funding of these actions. We would envisage a series of perhaps three interactive
workshop sessions to develop the action plans with key MNREM/MWTI staff. It will be
important for the staff to be intimately involved in the development of the action plans as
this will secure ownership of them. We would wish to reserve the option of seeking a
contract variation if this involves significantly more work than envisaged before the
relocation of the PUMA Division.

We will review data collected to date, potential future data collection and suggest
appropriate analytical methods and techniques to provide for the data to support desired
policy initiatives. Where policy initiatives are currently being pursued or are desired in

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future, we will identify the data sets necessary to support them. A desktop review will be
undertaken of selected practice elsewhere in the Pacific (including NZ and Australia) and
in other countries to draw out common good practice elements and identify areas of
potential difficulty or limitations.

The output from this task will be Environmental Monitoring Mentoring Workshops and
Action Plans.

2.1.5 COEP’s

Review

The interim codes, prepared by Beca in 2000, focus on road planning, design, construction
and maintenance along with associated coastal protection works.

The intention is to broaden the scope of the COEP’s to cover mainstream construction
activities in general, in particular those for infrastructure works where there is the potential
to have adverse effects on the environment.

The main advantage of the COEP is that, if they are adopted for particular public works,
they reduce the amount of information that needs to be provided under the EIA process.
This has been agreed as part of a Memorandum of Understanding between MNREM and
MWTI and has already been demonstrated on recent projects. With respect to private
works undertaken by other major agencies, similar positive benefits can also be realised.

It is therefore appropriate that the COEP’s be developed into a complete set of codes and
expanded to cover routine physical works undertaken by other infrastructure providers
such as EPC, SamoaTel and the Samoa Water Authority. It will also be appropriate to
review the application of the interim COEP’s and their practical effectiveness.

Beca prepared the original COEP’s under IAMP-1 and provided training sessions for staff
from PWD, DLSE, Samoa Water Authority and EPC. A presentation on the COEP’s was
also provided to the Samoa Institution of Engineers. As part of this process it was signalled
to the consultant industry that it was the intention to make compliance with the COEP’s
mandatory on Government contracts and that the possibility of requiring knowledge of the
COEP’s would be a pre-qualification criteria for future Government works contracts. We
will review the application of these policies on recently let Government contracts with
selected key staff from MNREM and MWTI plus obtain information on typical works
activities from other bodies such as EPC, Samoa Water Authority, SamoaTel and any other
substantial works undertakers identified.

Results of these investigations will be reported back to a workshop of relevant parties and
recommendations will be made for new/revised COEP’s. Draft new/revised COEP’s will
be prepared and circulated for comment before being finalised. A mechanism for
approval/adoption of the COEP’s will be discussed and agreed with MWTI.

2.1.6

Industry Training & Development

The objective of this portion of the project is to improve the general awareness of the
consulting and contracting industry of the new EIA regulations and enhanced COEP’s. To
complete this task successfully it will be necessary to identify the majority of consultants
and contractors working in the newly developing private market. Most consultants belong
to the Samoa Institution of Engineers and can be contacted via MWTI, MNREM and this

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body. For the contracting industry the situation is less clear. We understand that at
present there is no formal association of contractors in Samoa but that initial moves are
underway to form such a group based around the NZ Master Builders Federation model.
Through the Samoa Institution of Engineers, the local consulting industry and the
combined knowledge of both MNREM and MWTI we will prepare a listing of known
domestic consultants and contractors. We propose that a series of workshops, probably
three or four will be required at which the general concepts of the EIA regulations,
environmental management procedures, and the COEP’s will be introduced.

We would suggest that a trial period of application of the new/revised EIA Regulations
and COEP’s be undertaken on Government works contracts under SIAM-2. Specific
obligations to comply with the regulations and codes will be written into the Conditions of
Contract and their application reviewed during both contractor selection and works
implementation. We have assumed that the mentoring required under this task will not
exceed 2 person weeks for the entire project.

2.1.7 Contractor

Qualification

Scheme

Our discussions with a number of consultants and contractors during the Inception review
have confirmed our initial views that the key ingredients of a Contractor Qualification
Scheme should be that:

It should be simple and easy to administer;

It should deliver improved environmental outcomes;

It should cover as many contractors as possible to ensure the pool of available
contractors for Government projects is not unduly limited.

Our initial thoughts are that contractors be required to attend a set number of training
sessions, that they then complete a practical test to confirm the knowledge gained and then
that qualification be valid for a set period of time. We consider that the qualification
should attach to individuals rather than firms and that there should be a self-instruction
process to allow for additional persons to qualify after the initial courses have been
conducted. We would aim at developing the training materials such that they could be
used as self-instruction programme and/or be delivered by trained personnel in MNREM
and MWTI.

We will develop this approach further during the initial visit for this task and will prepare
a Technical Paper for presentation at a workshop. Following this, we will prepare a draft
Contractor Qualification Scheme for discussion with MWTI and stakeholders.

A key aspect of the success of the Contractor Qualification Scheme will be the linkage to
the mandatory requirements to construct works in accordance with the COEP’s and for the
necessary consents to be obtained under the EIA regulations before works commence. This
can be achieved by additions to the Standard Conditions of Contract applying to
Government works. We will explore with MWTI and other stakeholders means by which
this can be achieved for other works.

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2.2

Natural Risk Management Workstream

2.2.1

NRM1.1-1.3, 2.2 CIM Strategy

Introduction & Overview:

Our Inception visit has confirmed that the CIM Strategy (and CIM Plans) have become well
engrained in a diverse range of planning and management frameworks and systems since
its adoption in 2001. In fact it was very pleasing to observe the extent to which CIMS has
become a foundation document for most of the agencies and stakeholders active in coastal
management.

Accordingly, our philosophical approach is not to reinvent the wheel. Rather, for the CIM
Strategy Review we propose to build on the success of the IAMP-1 projects and to further
cement the role of CIMS as a foundation national policy instrument for planning, hazard
avoidance and mitigation.

Further, feedback from the Inception visit has identified other key strengths of CIMS which
must be retained or enhanced through the review process. In summary these key success
factors are:

A concise, attractive and easy to read format for the Strategy with detail housed in
supporting technical background reports.

Clear linkages from strategy through goals, objectives, policies and implementation
methods.

Adoption of the concept of a partnership between government and villages (cementing
integration of national and local responses to management).

Focus on a hierarchy comprising of four core groups of tools that can achieve effective
implementation (Information, Evaluation and Monitoring; Education and Awareness;
Management and Use of Land and Resources; Intervention Actions).

Emphasis on ‘self management’ and an ethic of mutual responsibility under the
umbrella Vision of “Resilience”. For all agencies, stakeholders and communities to be
resilient they must be “adaptive, responsive and quick to recover”.

One area that can be strengthened from IAMP-1 is the dissemination and adoption of CIMS
by a wider cross section of Samoan society. This is best achieved by education and
awareness raising and is the focus of specific attention as part of the detailed methodology
and work plan as outlined later in this report.

Methodology:

Task 1.1 CIM Strategy Review

Broadening the Scope of CIMS:

By definition CIMS mainly addresses hazards and management of the coastal environment.
This reflects planning priorities for Samoa with over 80% of the population living in close
proximity to the coast.

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CIMS and the supporting CIM Plans address coastal hazards including erosion, landslip,
flooding and severe events including cyclones and tsunami. The existing CIM Strategy has
also incorporated matters arising from the likely effects of sea level rise as a result of
climate change together with the predicted increase in the number and severity of extreme
weather events.

Because many hazards can impact upon the same coastal areas, in practice the
identification and mapping of coastal hazard zones undertaken during IAMP-1 has
captured those areas of Samoa most at risk from the diverse range of hazards that exist. By
way of example, the Coastal Flood Hazard Zone (CFHZ) in many coastal villages will be
very similar for a variety of event scenarios including coastal inundation by waves,
tsunami or by overtopping of rivers and streams discharging at the coast. The appropriate
policy responses for these hazards (as identified in CIMS) are often also similar (whether
they be avoidance by retreat inland or mitigation perhaps by the relocation of key
infrastructure or community assets to safer sites).

In general therefore there is no need or justification for a substantive review of the content
of CIMS. Emphasis should instead be directed to reviewing the utility of the existing
policies, tools and actions and strengthening these to address the broader scope sought by
SIAM-2. The review will also examine current best practice around the Pacific region and
update CIMS where appropriate to incorporate best practice. Of note, Beca together with
the NZ National Institute of Weather and Atmospherics (NIWA) has recently completed a
national Planning Guidance Note for the Ministry for the Environment to provide Regional
Councils and Territorial local authorities in NZ with practical guidance and good practice
examples on appropriate planning responses to climate change.

With respect to incorporating additional policy in CIMS to address inland hazards such as
flooding, river erosion and landslides, we note that Addendum 1 to the TOR has clarified
the scope of works required and this has been discussed further during the inception visit.

The focus of consideration of these further hazards is primarily directed to their potential
to adversely affect the major population areas and their associated infrastructure. Again
these concentrations largely sit within or close to the coastal environment. Where hazards
or land management issues are so significant that they have national implications, they are
to be examined on a whole of catchment basis and we envisage the need for some
additional objectives, policies and management tools to address matters of catchment wide
relevance.

Aside from policy development for CIMS, we propose to develop for the CIM Plans
additional GIS based interpretative layers to assist as necessary with the identification of
potential hazard zones within the coastal areas beyond those already identified in IAMP-1.

For landslips we will review the existing geological maps plus review topography,
geology, seismic risk and develop a susceptibility classification as an additional GIS layer.
Depending upon the availability of information such as the geological maps, this may be a
preliminary analysis only and further detailed investigation may be required in future to
refine the analysis in areas of dense population or perceived higher risk.

For river and stream flooding hazards we will review basic data availability and flow
records for identified catchments. We understand rainfall data is available for selected sites

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around Samoa from Meteorological Office records. This will be reviewed to identify
typical patterns of rainfall distribution together with any information on peak events and
historical flood records. We will review the rivers and watercourses data layers in the
existing GIS to identify key catchments for review with relevant MNREM and MWTI staff.
We are also aware of anecdotal information of flooding from past major storm events plus
some details at the village level gathered during the CIM Plan consultation under IAMP-1.
Further useful anecdotal evidence will emerge from the 28 additional CIM Plans. We will
utilise all this information to develop a GIS layer identifying locations which may be
susceptible to flooding hazard. Again the degree of detail possible will be limited by the
data available, but we will indicate where further field or technical work could be
undertaken to improve the accuracy of the output.

One additional hazard that has been identified from discussions during the Inception Visit
stems from river and stream bank erosion. This is particularly evident in the lower
catchment of some waterways and hence often already falls within a Coastal Hazard Zone.
CIMS can be strengthened by the addition of policy guidance for hazard avoidance or
mitigation and in particular to assess proposals for waterway stop banks and walls. We
understand PUMA is receiving increasing numbers of applications to erect training walls
and controls structures along the margins of eroding waterways. As is often the case with
sea walls this tends to be rather a knee jerk reaction to a perceived immediate risk rather
than seeking to gain a fuller understanding of the root causes of the emerging hazard. A
range of response options should be identified and evaluated before selecting a preferred
solution. CIMS can help provide an appropriate assessment framework in this regard.

Scope of Work (Sub Tasks):

Meetings and targeted consultation with key Government staff (users of CIMS)

Gap Analysis

Desk top review of current best practice for South Pacific coastal management.

Technical research and mapping as appropriate of additional hazards

Draft revised CIM Strategy

Prepare material for formal CIM Strategy review Workshop

Output:

Expanded draft CIM Strategy with additional content as necessary to address broader
scope of hazards.

Additional hazard layer overlays for the MNREM GIS system.

Task: NRM1.2 Revised CIM Strategy

We note the intention that MNREM should lead this task and are fully supportive of this
approach – the CIM Strategy is now a Government approved national policy statement
“owned” by MNREM.

We suggest that the formal review process commence with a structured 3 hour workshop
involving the Beca project team, MNREM staff and other key stakeholders involved in the

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application of the CIM Strategy. This will principally be those involved in the initial CIM
Plans, including key national infrastructure providers such as EPC, SWA, SamoaTel etc.
The consultant team would be willing to facilitate the workshop if required and we have
discussed an appropriate format and framework with key counterpart staff as part of the
Inception Visit.

From our Inception Visit we have also confirmed that the existing CIM Strategy is widely
used and understood. However some stakeholders and infrastructure providers have seen
significant staff turnover since 2001 and there are one or two new agencies of direct
relevance (for example the Ministry of Women, Community and Social Development).

New staff within these organisations are not so familiar with the background to CIMS or its
application at both national and local levels. A structured workshop provides an
opportunity to introduce newcomers to the CIM Strategy and CIM Plan preparation
process. We recommend that the first half hour of the workshop be devoted to a short
presentation on the philosophy of and major policy directions contained in the existing
CIM Strategy. To ensure workshop participants come well prepared we also envisage the
need for the Beca Project Manager to visit some of the key agencies in advance to provide a
short introduction and any background information they made need.

With respect to workshop structure, the focus will be on reviewing the component sections
of the Strategy in a “step by step” manner similar to the way the initial draft of the Strategy
was formulated.

Whilst not mentioned in the TOR, it will be important to consider any implications for the
CIM Strategy arising from the review of the CIM Plans and the potential actions required
to promulgate them as SMP’s under the PUMA Act. For completeness alone, it would be
desirable to ensure that there is appropriate cross referencing. We will take the output of
Task NRM 2.1 into account in this process as they will be proceeding in parallel.

Upon completion of the workshop and any further consultation required, we will prepare a
revised draft of the CIM Strategy together with a draft Cabinet paper explaining the
rationale behind the changes proposed. We will review this with senior MNREM staff and
adjust the draft as required to ensure it is suitable for the CEO to recommend to the
Minister for a Cabinet discussion.

Following cabinet adoption we recommend a wide spread publicity campaign be launched
to highlight coastal management issues and to signal the start of another round of local and
stakeholder consultation geared to preparation of CIM Plans for the remaining 28 Districts.

The need to continue to “advertise” and widely advocate the use of the CIM Strategy was
highlighted during several consultations undertaken as part of the Inception Visit. In
general it is apparent that there is a high degree of awareness of coastal hazards associated
with cyclones but only limited appreciation at a village level of the potential impacts and
need to avoid or mitigate other hazards such as erosion, inundation and localised flooding.

With respect to appropriate media, it appears that television and radio offers the best
potential to capture a wider audience than is possible through conventional consultation
programmes. Government staff interviewed during the Inception Visit suggested that a
video documentary could be developed tracing the process from review of the CIM

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Strategy through to village consultation for the CIM Plans. ‘Signature projects’ highlighting
good practice and successful outcomes from IAMP-1 can also be marketed this way.

The potential to highlight the SAMPII projects as part of a national education programme
(as was done very successfully on Environment Day for the CIM Strategy in IAMP-1)
should also be pursued.

Beca is happy to meet with PUMA staff to assist them formulate a publicly campaign and
can help with source material, however our contract does not currently extend to leading
the campaign or producing material suitable for multi-media or public education
programmes. We would be happy to lead this additional work if required.

Scope of Work (Sub Tasks):

Agree attendance list and workshop protocol with the Project Component Manager

Pre-Workshop briefings for key participants by Beca Project Manager

Circulate Workshop invitations, agenda and background material to participants

Half-day workshop facilitated by either MNREM or Beca

Write up minutes and matters arising from workshop

Revise final draft of reviewed CIM Strategy

Draft Cabinet Paper and brief CEO prior to submission

Assist with formulating strategy for publicity campaign.

Output:

Completion of CIM Strategy Review Workshop

Revised Draft CIM Strategy plus Cabinet paper.

Task: NRM 1.3 Revised CIM Strategy Background Report

We will develop a revised CIM Strategy Background Report to document the process,
findings and outcome of the review process from the Task above. This will include:

An outline of the review process adopted, its findings and the recommended changes
to the strategy.

A record of the consultation undertaken and a summary of key views expressed plus
the response to those views.

Identification of key performance indicators for monitoring purposes.

Any assumptions adopted.

Recommendations for future review and development.

This report will be No 8 in the series of CIM Strategy Background Reports and will
complete the reference materials developed under IAMP-1.

Output:

Revised CIM Strategy Background Report.

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Tasks: NRM 2.1 SMP Requirements Review& NRM2.2 Completed CIM Plans Review

Our preliminary view at the time of tender was that based on our understanding of the
new PUMA Act, it would be possible to translate existing CIM Plans into Sustainable
Management Plans (SMPS) on the basis of the requirements outlined in sections 12-19 of
the Act.

It is still our view that the Act contains sufficient flexibility to allow for the CIM Plan
process to transition into the preparation of SMPs, however following our Inception Visit
we now have some doubts about the wisdom of such an approach and seek to discuss and
resolve this with key stakeholders in MWTI and MNREM as soon as possible.

Our reservations with the relationship between the CIM Plan process and SMP process
stem mainly from a philosophical stand point. We also note however that there are
currently no SMPs in draft or finalised so the process to convert CIM Plans might well be
the country’s first attempt and a bad experience now could impact on wider application of
the SMP model later.

It has always been the intention (and we believe is now a widely accepted principle) that
the CIM Plan is a non statutory instrument something akin to a ‘charter’ registering a
partnership between government, villages and other key stakeholders to improve
community and infrastructural resilience to coastal hazards.

The engagement process with communities has been very effective because of this
philosophical stance. We wish to retain such a positive focus for the next 28 plans.

Having further reviewed the PUMA Act and discussed this matter further with PUMA
staff, we believe that there is a risk of undermining the positive process by moving the CIM
Plan process too quickly towards a more regulated framework. In particular we see
significant problems with a quick conversion of the existing 15 CIM Plans, because these
were prepared through an intensive community consultation process, in good faith, and
without any suggestion that at some point the CIM Plans would take on a more formal and
or regulatory function.

Having reached this preliminary conclusion as a study team, we have seriously evaluated
alternative ways forward. In short we envisage three alternatives:

Proceed to convert all CIM Plans to SMPs and take them through the prescribed
statutory process.

Abandon the idea and leave the CIM Plans as stand alone planning documents
outlining how an agreed partnership approach to improving resilience can be
achieved.

Adopt a pragmatic approach which retains the spirit and intent of the CIM Plan
process but identifies ways that some matters can be progressed through to forming
the basis for SMPs.

We see real risks with respect to the first option. However it should not be necessary to
abandon the potential to convert some or certain aspects of the CIM Plans, hence our
preference at this stage would be to adopt the third approach.

What we have in mind in this regard is outlined below as a series of logical steps for both
existing and new CIM Plans

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For existing CIM Plans

1. Review existing CIM Plans to identify key areas and key local recommendations

that might be best progressed through a more formalised SMP. Prepare a report on
how parts of the existing CIM Plans might best be translated (if at all).

2. Identify elements common to all CIM Plans that might benefit from being captured

in a generic or national coastal SMP addressing Good Practice in Coastal
Management. What we have in mind here are basic parameters such as those listed
below:

natural hazard buffer and coastal habitat protection
avoidance of new development in Coastal Hazard Zones
safe location policy and design guidance for life line infrastructure, key

community buildings and emergency shelters

standards for the location of houses with respect to roads, streams, the coast etc.
simple environmental standards and other practical initiatives to enhance local

sustainability.

3. Investigate and make recommendations on an appropriate process to consult

Districts on whether and how some of their desired local CIM Plan outcomes might
be introduced to the SMP Plan preparation process.

4. Pilot the SMP consultation process with one District to test the reactions and

response.

5. Agree a way forward for the existing CIM Plans and review scope of work and

contract accordingly.

For new CIM Plans

1. Include an overview and discussion of the PUMA Act and SMP process in the first

round of village consultations and gauge understanding and acceptance or
otherwise of the new process.

2. Identify as part of the Plan preparation process matters that should or should not

be captured by a local SMP.

3. Consult on the appropriateness of formalising some of the CIM Plan

recommendations.

4. Draft the CIM Plan with a section on matters that could possibly be progressed

through either a generic or local SMP and seek specific feedback.

5. Review the draft in light of consultation.

6. If appropriate (but do not make it mandatory) include a section in the completed

and signed off CIM Plan on matters that will be progressed through either a generic
or local SMP.

Finally, as a general observation we would see the greater detail referenced in S32 of the
PUMA Act (Development Standards) as being more appropriate to urban development
such as the main centres of Apia and Salelonga. Whilst in due course it may be necessary
to move towards more detailed standards for the whole country, in our view a simpler

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approach may be an appropriate first step encouraging better rural and village
development through a more generic good practice guide as discussed earlier. This would
allow more resources to be focused upon the development of management plans for the
urban area and recognises the critical need for local partnership and engagement (rather
than regulation) at a rural and village level.

Scope of Work (Sub Tasks):

As outlined in staged methodology above

Output:

Report on content of existing CIM Plans and matters of relevance to PUMA Act and
SMP’s

First draft of a ‘Good Practice in Coastal Management’ guide that might form the basis
for a generic or national SMP.

Report on pilot conversion project recommending a way forward for the existing CIM
Plans.

Section on possible SMP content in each new CIM Plan.

2.2.2

NRM2.3 CIM Plan Completion (RFP Clause 20, 21)

Plans will be prepared by District as per the original methodology, but several districts will
be grouped together to improve data gathering and workshop setup efficiencies.

It is assumed that two Teams will be operating during preparation of the CIM/SMP Plans,
but the Village and District Workshops will be staggered so that only one team is “on the
road” at any one time. Where logistical reasons dictate and staff resources allow, however,
two teams involving two separate Districts may operate in the field at the same time.

In the months following the first inception workshop there will be a second workshop of all
likely CIM Plan team members to explain the plan preparation process in detail. This CIM
Plan Preparation workshop will be followed by a test run involving all team members to
prepare a plan for a single district (Si'umu).

Beginning in July 2005, the team members involved in the Si’umu plan will then split into
two teams and both will head for the western end of Savai’i for a second test run involving
all three Districts in Group 2 (Vaisigano II, Falealupo and Alataua West). After that (in
October) the two teams will then begin working independently in the same general area of
the country. The work has been clustered around single geographic areas so that the two
teams can share resources if necessary and make it easier to organize the orators and
meeting venues.

The more complex districts (involving the north coast area of Upolu around Apia) will be
tackled in mid 2006, after the teams have had a reasonable amount of on the ground
experience, but not at the end of the project, so there is sufficient time should these districts
prove to take slightly longer to secure agreement.

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2.2.3

NRM2.4, 2.5, 2.6, Public Awareness, Effectiveness Survey (RFP Clauses
22,24,)

The approach to this work element remains as per the original methodology. The main
survey work will be undertaken prior to beginning the formal CIM Plan preparation (apart
from the first “test” plan). Plan preparation procedures will be continuously monitored and
altered if necessary to ensure that the final plans are the result of full and fair public input.

2.3

Natural Resource Management Workstream

2.3.1

Mobilisation of Consultants

Substantive work by the international consultants in Samoa began on 17 February 2005
with the arrival in Apia of the Team Leader (Graeme Roberts) and Project Manager (Ted
Wells). Peter Newsome (Natural Resource Management workstream leader) arrived for
the period 22-25 February. The consultants’ time was mainly spent visiting, collectively and
individually, stakeholder divisions and agencies whose activities should harmonise with
the goals of the MNREM and who manage datasets of relevance to the project.

2.3.2

Inception Activities -Summary of Activities Undertaken

Activities and tasks during the Inception review closely followed the Consultants’
Technical Proposal. These included:

(a) Establishing the project office; confirming the TOR, financial and institutional

arrangements;

(b) Discussions with the Chief Executive Officer and senior MNREM staff;

information and compiling an inventory of available relevant spatial and non-
spatial data;

(d) Developing a risk management plan based on AS/NZS4360 (See Section 5 for

details);

(e) Based on meetings with counterparts and key ministries revision of the work plan

and implementation schedule.

2.3.3

Initial Findings - Imagery and GIS Data Layers

a. Aerial

Photography

MNREM have two sets of recent digital aerial photography:

1:5,000 scale natural colour taken in 1999-2000 by Air Research (Australia) Ltd (who
later went out of business though their records were taken over by ‘Fugro’). Coverage
is of coastal areas of all islands and inland areas of Upololu in the Lepale-Alesia-Vitele
area, the western and central cross-island roads and the O Le Pupu-Pu’e National Park,
222 frames in total. Image resolution is 0.8m and, with each frame comprising a
65MB.tif, total size of all frames is approximately 14GB. We are informed, but could
not confirm that the negatives of this photography are held by the MNREM.

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1:50,000 scale natural colour taken in 1999-2000 by Air Research (Australia) Ltd.
Coverage is of all islands. Frames have been tiled to equate with the current 1:50,000
scale topographic maps of which 6 cover the country. Each tile is a 300MB.tif with total
size of all six tiles of approximately 1.8GB. We are informed, but could not confirm that
the negatives of this photography are held by the MNREM.

b. Satellite

Imagery

IKONOS multispectral imagery has been acquired for all Samoa. These data have not yet
been rectified. Rectification is being done by MNREM using a method advised by SOPAC
that uses ground control points alone, and not GCPs combined with a DEM.

c. GIS Data Layers

The MNREM have a respectable collection of GIS data accessible from about five GIS
workstations (primarily MapInfo but they have one ArcGIS-9 licence). Appendix 3 presents
a list of those data layers described in the MNREM metadatabase. The origin of these data
layers is often obscure even in the metadatabase. Probable origins include:

the early 1:20,000 scale topographic maps (NZMS174) captured by tablet digitizing

contours derived photogrammetrically from recent aerial photography

screen-digitised features from digital imagery

It is difficult to determine whether multiple occurrences of the same data layers found in
several locations are all unaltered replicates of one undetermined original or multiple,
different, representations of that feature layer.

We are informed that the roads and rivers and 20m contour layers were captured by
photogrammetry in Australia from the 1:5,000 aerial photography.

There are three immediate issues associated with the data layers as they presently exist.

1. Their derivation is obscure and cannot be determined. Metadata is present but

there are few statements about lineage, the fidelity of the data capture, its currency
and utility.

2. The positional accuracy of the data layers is not evident, except by observation of

features in relation to each other. Geometric accuracy is also difficult to judge.

3. There is no overall data model identifying the specification and relationship of data

layers.

The metadata facility used by the Ministry was created by James Atherton under IAMP1
for the Coastal Hazard mapping and is now used by several agencies in Samoa.

2.3.4

Initial Findings - Other Relevant Spatial Data

Two topographic map series exist for Samoa

The current 1:50,000 scale topographic maps published as six sheets using conventional
offset printing but using the digital layers now held in the GIS database

The old 1:20,000 scale topographic maps compiled by the New Zealand Department of
Lands and Survey as NZMS174. (Note: These are now obsolete)

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It is believed, but we were unable to confirm, that SamoaTel, and possibly the Samoa Water
Authority, have created additional digital spatial data layers on their systems, to
complement those described above and Listed in Appendix B.

2.3.5

Stakeholder Agency Functions and their GIS Usage

a. MNREM

Mapping

Section

The MNREM sees itself as the prime supplier of core data to government and other
agencies. The Mapping Section has a pricing policy for hardcopy GIS products that seems
to be a mix of cost recovery and public good. Their policy for electronic data is considered
more restrictive by some stakeholders. These stakeholders see the MNREM data pricing
and cost recovery policy as a potential barrier to GIS application in nationally, and locally,
important applications.

The Mapping Section of the MNREM are building a tangible record of GIS applications for
private, business, and government clients including:

Delineating closing lines across the mouth of bays to extend Samoan sovereignty over
these coastal waters under international law

Providing map material for village consultations on biodiversity protection by the
Environment and Conservation Division, MNREM (with GEF funding).

Providing map material for Environment and Conservation Division studies on
watershed areas

Delineating National Park boundaries and subdivisions for Environment and
Conservation Division

Digitizing new boundaries

MNREM will now have to successfully integrate the respective GIS capabilities of the
present Mapping Section with those of the incoming Forestry Division and Met Office.

b. Disaster Management Office

The Disaster Management Office considers GIS to be key to its effectiveness in all four
phases of disaster management namely; mitigation, preparedness, response, and recovery.
Key to an effective disaster GIS service would be data layers of community lifelines; roads,
electricity, communications, water etc. Also important is data of vulnerable and hazardous
sites like low-lying areas, private, commercial and public buildings oil storage installations,
industrial sites, reclamations, etc and refugia like schools and hospitals (although most of
the local responsibility during emergencies is the responsibility of village authorities. The
DMO is responsible more for mitigation, preparation and information dissemination
during the response and recovery phases. At present, during an emergency, the authorities
activate the National Coordination Centre, located in the Police Headquarters, Apia. The
National Disaster Council determines priorities for response during an emergency. This
council comprises the PM (as chair), all cabinet ministers, all ministry CEOs, Red Cross and
the DMO (as secretariat). Disaster response is by agencies executing their normal functions
such as, police/fire for rescue, PWD for roads, EPC for electricity, etc. DMO would like to
acquire some basic resources for use during emergencies like communications equipment,

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shelters, generators, tools and equipment, food and water to sustain the NCC during times
of crisis, and a GIS to input and analyse information.

c. PUMA Sustainable Development Section

The Sustainable Development Section of PUMA (working under the Planning and Urban
Management Act 2004) is responsible for processing all development consents, evaluating
their environmental impact and recommending approval or otherwise to the Planning and
Urban Management Board. Activities requiring consents include:

Subdivision (Technical Services Division, MNREM also involved)

Building

Land clearance

Sand mining (Land Management Division, MNREM also involved)

Reclamation (Land Management Division, MNREM also involved)

Each village has a pulenu’u or mayor who acts as an intermediary between the people and
central government. Every month there is a meeting of pulenu’u, hosted by the Department
of Internal Affairs. In this forum, government projects are explained (for promulgation to
the people) and the concerns of, and issues for, villages are made known to central
government. Many of the consents handled by the Sustainable Development section are
vetted by pulenu’u on behalf of their villages, because of their inevitable affect on the large
area of customary land in Samoa.

The transfer of PUMA, including its Sustainable Development Section, to the Ministry of
Works, Transport and Infrastructure could place their function of environmental
assessment in conflict with the Ministry’s primary role of development. It is also
considered that Sustainable Development’s Section function of environmental monitoring
is well away from the core role of the MWTI. There is some speculation and optimism that
this move might lead to subsequent restructuring to create a standalone planning and
environmental monitoring agency.

d. MNREM Terrestrial Biodiversity Section

The Terrestrial Biodiversity Section is concerned with the biodiversity of all island
ecosystems. It undertakes monitoring of birds, bats, reptiles and forest extent. The section
also does some limited marine monitoring. Monitoring sites and techniques are not well
standardised yet and nor do they use GIS for storage and analysis.

National ecosystem mapping was done by the University of Hawaii in 1991. The NZ
Department of Conservation also did ecological surveys in Samoa of lowland forests (1991)
and subsequently of upland forests (date unkn). Forest cover mapping is also available for
1954, 1989, and most recently, with FAO funding, 2004. There is potential to undertake GIS
analyses of these data in conjunction with data on hazard and threat to assist the
management of remaining areas of high indigenous biodivesity.

Public awareness and education is an obstacle to successful conservation of indigenous
ecosystems. Incursions into indigenous forest for firewood and agricultural land is constant
and clearance of both forest and mangroves for development continues. Many still regard
these areas as a resource to be used without consideration of their other values. Hence,
public awareness of their fragile state, and their contribution to a healthy island

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environment, needs to be raised through publicity and education. Two social structures are
key to the success of any publicity/education campaign, schools (because children are both
key to the future and a means of educating adults) and Pulunu’u with their village fono
(because almost all remaining indigenous ecosystems are in customary ownership).

The move by MNREM to undertake waste disposal is seen as positive and beneficial. In
addition, limited recycling (of drink bottles) has begun as well as metallic (steel and
aluminium cans). Large inorganic waste (appliances, cars, etc.) is also collected periodically
in order to ensure safe disposal.

e. Electric Power Corporation of Samoa

EPC presently use accounting software to maintain an inventory of assets, but would like
to move to a GIS-based asset management package. They would be keenly interested in
accessing reputable spatial data of buildings, road centrelines (if edges are not available),
land imagery, and property boundaries. They anticipate having to input poles,
transformers, underground lines junction boxes, switches, etc.

Of the other utilities companies, SamoaTel is viewed as a maturing user, having been
running GIS for two years, and Samoa Water Authority also have a MapInfo/ArcView
system

MNREM Watershed Section

This section was part of the Forestry Division until 3 years ago and will now become part
of the Forestry Division within MNREM. Now its focus is more on whole ecosystems (from
the source to the sea) rather than primarily forests. Their function is advocacy in respect to
watershed management. Data is collected by ground survey. They have a working
relationship with Samoa Water Authority who has done some water quality monitoring –
work that the Watershed section would like to see expanded.

Maps and map information are tools of the trade for this section. Although their use of GIS
has been limited to date, they foresee potential for this as a powerful tool to analyse and
depict land use and vegetation change, to facilitate data management and storage, and as a
medium for the integration of disparate data and disciplines in whole catchment studies.
The section views the Vaisigano Catchment studies done with FAO funding in the mid
1990s as a good example. They are also trying to promote the concept of watershed
protection areas on customary land in for example the Loimata o Apoula area.

g. MNREM Parks and Reserves Section

The Parks and Reserves Section have 4 salaried staff and 38 wageworkers to manage all the
park and reserve lands in Samoa. It also has a keen interest in the state of ecosystems
outside reserves as a barometer of condition, trend and threat to the reserve system. There
is hope that the present reserve system may be expanded from the present single national
park (O Le Pupu-Pu’e) to include a park around Lake Lanoto’a and perhaps some
watershed management areas.

A management plan is in place for the O Le Pupu-Pu’e National Park, and a management
plan is in preparation for the whole reserve network. Samoa’s ecosystems, while not
endangered, have suffered a slow decline in the face of shifting agriculture and
development. Anecdotal accounts point to the incidence of drought and water shortages as

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evidence of the reduction in the ability of shrinking forests to regulate the hydrology of the
islands. Such assertions fuel the debate for a mid-upper slope watershed management zone
for both Upolu and Savaii. Other threats to environmental stability include exotic pests and
weeds. Merremia vine (M. Peltata) is of particular concern in successional vegetation and
disturbed land.

While not yet users of the GIS, Parks and Reserves can visualise uses for GIS in their work.

h. MAF/MNREM

Forestry

Division

Forests, mainly indigenous forests, cover 105 000 ha or 37.2 percent of the country’s total
land area. In the 1990s, the rate of deforestation in Samoa was around 3,000 ha or 2.1
percent per year. On the global scale, this is quite high. The main causes of deforestation
and forest degradation are uncontrolled logging operations and conversion of forest lands
to agricultural land uses. Currently, this is the number one forest-related issue in Samoa.

Samoa has about 5 000 ha of forest plantations. Plantation establishment began around
1974 with the planting of mahogany and Australian red cedar. Teak was also established
during German colonial times. More than 90 percent of the plantation estate was destroyed
by tropical cyclone Val in 1992. Samoa has banned the export of unprocessed logs.
Commercial logging in natural forests on the largest island, Upolu, has also been banned.
Samoa produces sawnwood for its domestic market. Other wood and paper products are
imported. Much new forestry is now at the village level where Forestry Officers provide
the first 100 seedlings free and demonstrate planting and silvercultural techniques, to
empower landowners to plant and manage their own small woodlots.

The Forestry Division has a fully-functioning GIS (Samoa Forest Resource Information
System, SamFRIS) built under an FAO funded project due to end in June 2005. With the
completion of the latest forest inventory survey in 2004 there is a convenient time series of
spatial forest layers dating from 1954, 1987 and 2004. SamFRIS are believed to have
digitised catchment boundaries. A significant and unwelcome cost encountered when
setting up SamFRIS was the data charge imposed by MNREM Mapping Section for basic
data.

i. Meteorological

Division

The Meteorological Division, now a part of MNREM, undertakes weather station
recording, daily forecasting, and modelling of extreme events like storm track prediction,
tsunami and storm surge inundation, and flood modelling. Extension activities are
focussed on public education and preparedness to develop a capacity for communities to
recognize and respond to emergencies when they occur.

The Met Division will become the host site for a Mapserver (Appendix C) being installed
by SOPAC with EU funding. This presents both an opportunity and a challenge to the GIS
community in Samoa. Current policies on custodianship and access will be strained as
demand builds to populate the Mapserver with data.

Samoa has an ICT advisor (Fuatai Percell) who reports direct to cabinet. Fuatai is strongly
supportive of the Mapserver as a potential central hub where spatial information is
available as a key element of e-government.

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South Pacific Regional Environment Programme (SPREP)

SPREP have an agreed division of labour with SOPAC whereby the latter supply all
technology services and SPREP concentrates on the applications of the data. SPREP also
facilitates SOPAC’s training activities in the Pacific.

SPREPs work areas include:

Environmental and sustainability development planning

Systematic integrated approach to planning (environmental/social/economic)

Encouraging better and wiser use of diminishing financial resources

SPREP promotes a multi-nodal approach to data custodianship with ready access to online
catalogues and metadata.

2.3.6

Resource and Disaster Management Applications of GIS

1. Compiling a disaster management GIS for use by the DMO for planning during

normal times and monitoring and reporting in times of crisis (key contact Filomena
Nelson).

2. Prepare a hazards atlas from existing and new survey (inc landslide, alluvial

flooding, storm surge flooding, reclamation areas (vulnerable to liquifaction?) etc
(key contact Fetolai’I Alama).

3. Digitise consents (in collaboration with C5?) (key contact Fetolai’I Alama).

4. Undertake a national, spatial, vulnerability analysis of remaining areas of high

indigenous biodiversity (key contact Tepa Suaesi).

5. Prepare an environmental resource kit for secondary schools containing maps,

overlays and study sheets. Would require sponsorship to offset printing cost
(Western Union, ANZ, National Bank of Samoa, Westpac, Pacific Forum Line,
Mobil, Fiji Bunjap?) (key contact Tepa Suaesi).

6. Undertake an integrated watershed management scoping study that combines the

interests of MNREM biodiversity, watershed, sustainable development and parks
& reserves sections

2.4

Emergency Management Workstream

As a result of information learned during the Inception review visit in early March 2005,
the methodology for the emergency management workstream has been refined and
enhanced. These refinements are discussed below and reasons given for any departure
from the original methodology in the technical proposal.

The original methodology consisted of 12 separate tasks. We have combined two of these
tasks together and have now identified 10 separate work elements which are discussed
below. References to the original numbering in both the RFP and the original methodology
are given alongside each work element.

2.4.1

DM 1 – Review Workshop & Mandate (RFP Clause 29/ Proposal ref DM 1.1)

The emergency management review workshop is an important milestone for the project.

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The intention of this workshop is to review the scope of work and programme for this
workstream together with recommendations arising from the MCDEM review. We would
also like to present four discussion documents at this workshop:

1. Options regarding changes to national disaster management structures (key committees
and working groups, their membership and terms of reference etc),

2. Key features and best practice principles of generic emergency management legislation,

3. Options regarding organisational and physical location of the DMO,

4. Key elements of agency response plans.

We envisage that the outcomes of the Review Workshop to be:

An agreed work programme (methodology and key dates) in the form of a full
Workshop Report

All departments and agencies understanding their involvements at the different stages
of the project, their required level of inputs, and key decisions to be made and the
associated options

Feedback on suggestions and options outlined in specific discussion documents

The discussion documents produced, along with the associated recommendations, will be
independent viewpoints (as required by the RFP). However the final outputs (NDMP,
legislation and DMO fitout) will reflect the consensus views of the key agencies involved.

In terms of format, we recommend that the Review Workshop comprise two separate
workshops as follows:

Day 1 (full day): (proposed date Mon 20 June)

Workshop involving core project participants (eg. MNREM; PUMA; DMO; Meteorological
Division; MWTI, Ministry of Women, Community & Social Development; Ministry of
Police, Prisons & Fire; Ministry of Health; Red Cross; NZ MCDEM; SOPAC; IDA).

Day 2 (half day): (proposed date Tues 21 June)

Workshop with utility agencies (eg. EPC; Airport Authority; SamoaTel; Ports; plus DMO;
Meteorological Division; NZ MCDEM; SOPAC) to outline their specific involvement in the
project; discuss response co-ordination arrangements; and brief them on the agency
response planning process, including an introduction to the key response plan interagency
elements discussion document.

We recommend that the Review Workshop be held during the week of 20th June 2005.
This is two months later than the RFP requested. The main reason for this delay is the 12th
Pacific Regional Disaster Management Meeting, to which the DMO principal officer,
Filomena Nelson is going. This meeting is in Papua New Guinea from 6-8 June. A number
of themes at the meeting relate directly to the project, and we want to make sure that any
policy frameworks or structures endorsed by the meeting are incorporated into the
discussion documents presented at the Review Workshop. We recommend that a member
of the consultant team attend the PNG meeting (at our cost) and work alongside the DMO

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principal officer and other Samoan Government representatives. The meeting also presents
an opportunity to spend time with SOPAC and MCDEM representatives to discuss
emerging trends in Pacific disaster management and how these relate directly to any
changes being recommended for Samoa. MCDEM are presenting Response Guidelines for
Small Island Development States at the meeting, which will be of relevance to the
development of the NDMP (component DM2). The attendance of a member of the
consultant team is supported by MCDEM (refer their letter dated 18 April 2005 – Appendix
F).

Scope of Work (Sub Tasks):

Develop Review Workshop approach and process.

Conduct Review Workshop(s)

Report on outcomes

Output:

Review Workshop Report summarizing key outcomes of the meeting, confirmed
project methodology and feedback on discussion documents.

2.4.2

DM 2 – Revised NDM Plan (RFP Clause 30/ Proposal ref DM 1.2)

The RFP calls for a revised NDMP within 3 months of commencement of the contract (7
May). During our inception visit, a number of agencies expressed the view that the
arrangements in the existing Plan for the response phase need to have a fresh look and be
more focused. Within the scope of the project proposal

this involves taking the existing Plan

largely as is

, and focusing on those elements that need changes.

The revised Plan needs to encompass all of the recommended structural changes to disaster
management arrangements for Samoa. The inception interviews have identified a number
of issues and considerations that need to be carefully worked through and widely
consulted, including at the political level (noting the linkage with the preparation of
legislation). Other feedback received during our inception visit indicated a preference for
more consultation on the Plan than has occurred during the development of previous
drafts of the NDMP. A staged approach is therefore recommended, including the
preparation of a discussion document for consideration at the Review Workshop (DM 1)
and at subsequent agency workshops.

We also recommend that the structures be tested during the simulation planned for August
(DM 9) prior to producing a draft revised NDM Plan by the end of October 2005. A more
formal consultation process is suggested over the period November to April 2006, with a
final NDM Plan produced by June 2006.

We believe that the process as outlined above will result in a Plan with a greater level of
buy-in from stakeholders and a greater level of awareness about the national disaster
management arrangements.

None of the agencies interviewed

during the Inception visit could provide any tangible

information in summary form relating to the hazards and consequences that Samoa faces.

A list of persons met with is contained in Appendix G.

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We were able to locate a couple of reports relating to volcanic hazards (Savai’i) and
flooding (Apia), however, there seem to be significant gaps for some hazards (such as
earthquake and non-natural hazards). A basic indication of likelihood and consequence for
the principal hazards (natural and man-made) represents base information for risk
management and planning purposes. While a summary of these hazards suitable for
emergency management planning (specifically the NDMP) is provided for in the proposal,
the collection and compilation of the base information needed to put such a summary
together is not.

We recommend that the DMO or other staff from MNREM or MWTI (e.g. PUMA or Met
Division staff) compile what hazard information there is available (both natural and man-
made) from existing material and historical records. This would include working with
agencies such as the Fire Service (hazardous substances), Ministry of Agriculture, Forests
and Fisheries (plant pests and animal diseases), Ministry of Health (epidemics) etc. To be
useful for the development of the NDMP it will be needed by the end of August 2005. We
can assist this process by providing a template indicating what information is required and
how it should be presented. We suggest that a small workshop be held with the DMO, staff
from the Meteorological Division and also some of the other agencies listed above to
determine how the information can be compiled. This workshop could be held as part of
the Review Workshop series of meetings during the week of 20

June 2005.

Scope of Work (Sub Tasks):

Review existing NDMP

Produce discussion document including options regarding national disaster
management structures for June Review Workshop

Assist with a workshop to explore how hazard information can be collated for a hazard
summary

Meetings and targeted consultation with key Government departments and
stakeholders

Draft revised NDMP

Targeted consultation with stakeholders and public consultation

Revised NDMP

Output:

Revised NDMP with additional content as necessary and with national structures
understood by government departments and stakeholders.

Hazards summary suitable for emergency management planning (if hazard information is
able to be compiled by end August 2005).

2.4.3

DM 3 – Legislation Review (RFP Clause 37/ Proposal ref DM 3.1)

A discussion document summarising key features and best practice principles of generic
EM legislation will be presented at the Review Workshop. Development of the legislation
will be undertaken by a specialist legal draftsperson and it is recommended that this be
undertaken with input from MCDEM. Consultation on the proposed coverage of the

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legislation will need to integrate with the revision of the NDMP, so that any issues that
come up during stakeholder plan development and simulations can be addressed.

Scope of Work (Sub Tasks):

Produce discussion document summarizing key features and best practice principles of
generic emergency management legislation.

Develop proposed outline and coverage of legislation

Meetings and targeted consultation with key Government departments and
stakeholders

Draft legislation and supporting cabinet paper

Output:

Draft emergency management legislation.

2.4.4

DM 4 – Specification for DMO Office/ Equipment (RFP Clause 31/ Proposal
ref DM 1.3)

The RFP requires outline specifications for dedicated offices for the DMO within 3 months
of commencement (7 May).

However, the DMO Office arrangements need to take into account the recommended
structural changes to disaster management arrangements for Samoa (in particular the
relationship between the DMO and Government). This is likely to involve several options
with various strengths and weaknesses. Analysis and consultation preferably needs to be
undertaken in conjunction with work element DM2, and the preferred option is likely to
become more apparent as time progresses.

A discussion document on the various options will be presented at the Review Workshop.
Some recommendations for immediate equipment needs will be made, which will be
independent of the DMO physical location. We recommend that an outline fit-out not be
finalised until September 2005.

Material to the discussion of the location, functions and fit-out of the DMO, is the
relationship of the DMO with the National Coordination Centre (NCC). Discussions with
various agencies during the Inception visit highlighted the key function that the existing
National Coordination Centre plays in the response to a disaster event. It is intended to be
the hub of the response operation, and hosts the national emergency communications
facilities. In discussions with agencies in which the NCC was raised, most if not all, had a
preference that the NCC should operate as it was originally intended. Moreover, the option
of basing the DMO in the NCC was raised in several discussions, as well as being a specific
recommendation of the MCDEM report.

Given that several agencies have an operational interest in this facility (the Police and
MSA), a systematic review of how it is currently intended to operate (including
communications arrangements) and the effectiveness of those functions would seem
worthwhile for both DM4 and DM5.

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However as the RFP only made a passing reference to this facility within the framework we
were requested to work within (paragraphs 29 through 40), such a review was not allowed
for in the proposal.

MWTI’s letter of 13 April 2005 (See Appendix D) suggests that the MCDEM Review report
(July 2004) has already provided discussions on and a summary of the NCC, implying that
it would be a relatively straightforward task to include a review of the NCC within the
current scope of work. MCDEM’s letter of 18 April 2005 (Appendix F), states that a review
of the NCC is “pivotal to the effectiveness of existing or new disaster management arrangements
and any review of the disaster management structure”

implying that this piece of work has yet

to be undertaken.

While we can confine our review to the DMO, we would strongly recommend that the
scope of work be extended to include consideration of the NCC and include:

A review of how the NCC is currently intended to operate (including
communications),

A recommended fit-out for the NCC which enables it to be used for its intended
purpose,

Standard operating procedures for the activation of the NCC,

Process for recruiting and training NCC staff.

The additional work recommended assumes that the Government is supportive of using
the current facility for its intended purpose, which we understand to be the case.

Scope of Work (Sub Tasks):

Produce discussion document outlining physical options for DMO office
arrangements.

Consultation on DMO Office arrangements with key government departments and
stakeholders.

Output:

Fit-out specifications for the DMO.

Fit-out specifications for the NCC (if expanded scope is approved)

Standard operating procedures for the activation of the NCC (if expanded scope is
approved).

Process for recruiting and training NCC staff (if expanded scope is approved).

2.4.5

DM 5 – Communications Equipment Supply Specification (RFP Clause 32/
Proposal ref DM 1.4)

The RFP requires specification of radio communications equipment within 3 months of
commencement (7 May). However, the RFP was not specific around the operational scope
of the required emergency communications equipment. The shortcomings of the current
National Co-ordination Centre communications arrangements identified during the
inception interviews however indicate that the national requirements need a
comprehensive review. This review is recommended to be undertaken as part of the
extension to the scope of work as discussed above. The specification is also highly

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dependent upon physical location and decisions taken in relation to the NCC and the
DMO, which need clarification before Consultel as technical sub-consultant become
involved. An early preparation of the specification and associated procurement would
have a high associated risk of failure to meet the real needs. For this reason we recommend
that a final specification be prepared by the end of October, with a review of this with
affected agencies during November 2005.

Scope of Work (Sub Tasks):

Produce briefing document on communication requirements.

Needs analysis with respect to Pacific best practice.

Outline specification of radio communications equipment with options and
recommendations.

Findings from simulations undertaken in August and November used to verify or
further refine specification.

Review specification with affected agencies.

Output:

Communications specification (operational scope to be agreed).

2.4.6

DM 6 – DMO Institutional & Staff Development (RFP Clause 33/ Proposal
ref DM 2.1)

The approach to this work element remains as per the original methodology. The focus
will be on a long term sustainable approach to professional development as well as
providing mentoring by the project team for the duration of the contract. A better
understanding of the functions of the DMO will be gained through development of the
NDMP (DM2) and position descriptions will be developed. A training needs analysis will
be undertaken in conjunction with SOPAC, and a professional development strategy will
be developed which will look at opportunities for partnering arrangements with other
emergency management organisations in NZ, Australia and elsewhere.

The position descriptions, DMO fit-out (DM4), and professional development strategy will
be packaged together as part of a DMO Business Plan. The development of a strategic
component to the Business Plan has not been allowed for in the proposal. The strategic
component involves an analysis of gaps in existing disaster management programmes and
activities, prioritization of the gaps to be filled, and scheduling of work over a nominal (5
year) timeframe. This would identify and justify specific resourcing and budget items
beyond the deliverables for item DM4. We will work with the DMO, as part of the peer
mentoring programme to enable and support the DMO to develop this strategic
component of the Business Plan. This may only involve some adjustments to the work
programme the DMO has already developed.

Scope of Work (Sub Tasks):

Analysis of DMO functions and roles

Development of position descriptions

Consultation on DMO position descriptions with key government departments

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Scope professional development requirements and identify opportunities for ongoing
professional development.

Draft professional development and mentoring plan.

Work with DMO during mentoring sessions to develop strategic component to
Business Plan.

Identify any professional development implementation issues during term of contract.

Review and update professional development plan at end of contract.

Output:

DMO Business Plan, containing:

Position descriptions

Professional development plan

DMO fit-out (from DM4)

Strategic 5 year work programme (developed by DMO)

2.4.7

DM 7 – Community Education and Development (RFP Clauses 34 & 38/
Proposal ref DM 4.2)

The approach to this work element remains as per the original methodology. Community
education and awareness raising will be undertaken as part of the village level consultation
for the CIM Plans/SMP completion under Task NRM 2.3. A longer term education
strategy will also be developed with the DMO. It is intended that the delivery of education
material during the CIM Plan consultation be undertaken by the CIM Plan teams. It is
strongly recommended that the DMO staff participate as team members, subject to their
availability. This would allow the DMO staff to build up a picture of the vulnerabilities of
the villages and districts, and contribute to their professional development.

During our inception visit, the concept of village or district response plans was suggested
several times. We think this concept has merit. During the preparation of materials for the
CIM Plan workshops, we will develop an outline of what should be covered in a village
response plan. We will work with the DMO and CIM Pan teams to investigate the
possibility of incorporating a response plan component to the CIM Plans, or if this is not
feasible, recommend a subsequent process for their development.

Scope of Work (Sub Tasks):

Identify existing education resources and delivery methods.

Develop briefing materials for CIM Plan teams to deliver.

Consider elements of a village response plan for possible incorporation into CIM plans.

Participation in selected CIM plan consultation

Draft community education strategy

Consultation on education strategy with stakeholders

Output:

CIM Plan briefing materials

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Process for the development of village response plans

Community Education Strategy

2.4.8

DM 8 – Agency Education & Response Planning (RFP Clauses 35, 36 & 38/
Proposal ref 2.3, 4.1)

The approach to this work element remains as per the original methodology. We will
prepare a guidance document on the key elements of agency response plans, covering
aspects such as:

Linkages with national DM arrangements,

Interagency linkages,

Own continuity/ operational arrangements,

Minimum readiness/ preparedness expectations.

We will meet with individual agencies and also deliver combined agency workshops. The
workshops will focus on the first two of the bullet points above, as these were the areas that
the inception visit interviews revealed were the main vulnerabilities or gaps in agency
planning. The workshops and meetings will also provide an opportunity to consult on the
revised NDMP (DM2).

Inception visit interviews also indicated that there was quite a lot of variability in terms of
agency response plans – some seem well developed, others don’t exist, or are out of date.
The emphasis will be on assisting agencies to review and revise their own plans. A major
risk to the RFP requirement to have these plans ‘completed’ within 18 months, is the extent
to which individual agencies have the commitment to ensure their plans are completed
within the required time frame. This risk will in part be managed by involving agencies in
combined workshops so they can be motivated by how other agency plans are developing.

Scope of Work (Sub Tasks):

Prepare guidelines on the key elements of agency response plans.

Prepare and deliver agency workshops grouped in sectors (emergency services,
government departments, utilities, private sector etc)

Hold individual meetings with agencies as both a precursor and follow-up to the
workshops.

Involvement of key agencies in the simulations as part of awareness and education
about national emergency management arrangements.

Follow-up on plan development and assist where needed.

Workshop at conclusion of process for all agencies to review progress and celebrate
achievements.

Output:

Report summarizing progress in the development of agency response plans, and
recommending future follow-up.

Updated agency response plans, and greater awareness by agencies of their role in
national emergency management arrangements.

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2.4.9

DM 9 – Disaster Simulations (RFP Clause 39/ Proposal ref DM 5.1)

Disaster simulations are considered an important component to several of the work
elements, including revision of the NDMP (DM 2), development of the legislation (DM 3),
DMO location and positioning (DM 4), Communications Specification (DM 5), and Agency
Education (DM 8). For this reason we propose that the 2 programmed simulations be run
early in the project, with both completed by November 2005. It is likely that additional
simulations will be beneficial, however, we will wait until the outcomes of both
simulations before recommending additional simulations be undertaken.

The need for more simulations was a common theme from our inception interviews.
Varying sized simulations (drills, tabletops exercises, regional exercises etc) were all
identified as being critical to the development of Samoa’s disaster management capability.
We propose that the 2 simulations planned for August and November focus on different
hazards. The August simulation will be based around an earthquake scenario with the
November simulation based on a cyclone in preparation for the cyclone season.

Cyclones dominate response planning in Samoa (understandably), however, other hazards
will occur and disaster management arrangements need to be tested in a variety of
scenarios to ensure the will work in a variety of different circumstances. To assist the DMO
to develop the skills to run and debrief simulations, we propose to take the lead in the first
simulation, with the DMO in support. For the second simulation we recommend the DMO
take the lead and we will advise and assist where necessary.

Pre-planning for the simulations has already begun and an outline of the objectives of each
simulation is given below. The simulations will be discussed in more detail as part of the
series of Review Workshop meetings during the week of 20

June 2005. Both simulations

involve the use of the National Coordination Centre (NCC), and issues around its current
and future use will need to be resolved before the simulations can proceed as planned.

Disaster Simulation 1: August 2005

Objectives

To exercise the activation, set up and establishment of the National Co-ordination
Centre facilities

To exercise the national disaster management structures

To test the effectiveness of existing communications linkages and communications
equipment

To provide opportunities for DMO personnel to develop skills in simulation planning
and delivery.

Scenario

The scenario will be a moderate earthquake causing widespread damage and injuries. The
scenario impacts will necessitate the activation of the National Co-ordination Centre.
Participants will respond to the National Co-ordination Centre, set up their working areas,
and establish the necessary management and reporting structures. The management

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structure will be expected to activate, manage scenario activities, and ensure the NCC is
operational for a full day.

Recommended Participants

DMO, MNREM, PUMA, Meteorological Division, NDC representation, Police, other
selected lead response agencies.

Disaster Simulation 2: November 2005

Objectives

To exercise the National Co-ordination Centre facilities

To test the links between NCC management structures and operational response
agencies

To provide an opportunity for agencies with a role in disaster response to implement
their response plans.

To exercise the Cyclone Operational Response Procedures in the early stages of the
cyclone season

To provide the NDMO personnel with an opportunity to prepare for and deliver a
simulation exercise.

Scenario

The scenario will be a cyclone affecting islands of Samoa causing widespread damage and
injuries. The NCC will have been established during the warning period prior to the
exercise beginning, and the exercise will focus on response activities that begin shortly
before the impact of the cyclone. The exercise will be a mixture of operational and table-
top workshop activities.

Recommended Participants

DMO, MNREM, PUMA, NDC representatives, utilities, other key agencies with a disaster response

role (e.g. those listed as part of National Disaster Management Working Group), Meteorological

Division.

Simulation Debriefs

In order to ensure lessons are learned from each exercise, a series of debriefs will be held.
On the day of the exercise participating agencies will be asked to provide their initial
feedback on what processes worked well, and which will require more training or
preparation. On the day following the exercise, each agency will be given time to discuss
the lessons they have learned as part of a full debrief. A debrief report will be prepared.

Scope of Work (Sub Tasks):

Prepare outline and timing for two interagency simulations.

Conduct simulation and debrief in August 2005.

Support DMO to conduct and deliver simulation in November 2005.

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Output:

Reports on both simulations, which will include debrief notes, lessons learned, and
recommendations to any changes to procedures, linkages with other agencies, or
national structures as a result.

Report recommending format and programme for future disaster simulations.

2.4.10

DM 10 – Disaster Insurance (RFP Clause 40/ Proposal ref DM 6.1)

The approach to this work element remains as per the original methodology.

Scope of Work (Sub Tasks):

Review findings from the joint SOPAC/ World Bank/ AusAid “Catastrophe Insurance
Pilot Project” currently set up in Port Vila.

Prepare recommendations and report on preliminary review.

Output:

Report on review with recommendations as to the implementation of a national
disaster response fund or disaster management insurance.

Presentation of findings to key government departments and stakeholders.

2.4.11 Decisions

Required

During the inception visit and consequent development of the methodology, a number of
additional work items emerged, which we considered material to the overall success of the
project. These were discussed in the draft Inception Report and at the Inception Workshop
on 14

April 2005. Feedback from the workshop and also in letters from MWTI and

MNREM (appended to this report) have clarified some matters and the methodology has
subsequently been revised as a result.

There remain some matters which require a decision or further clarification and these are
discussed under the relevant sections of work above. We look forward to your
consideration of these items. There is also the opportunity to discuss these further at the
Review Workshop during the week of 20

June 2005.

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3.6 Deliverable

Outputs

Deliverable outputs will be as provided for in the contract and detailed in our Technical
Proposal.

3.7

Anticipated Counterpart Involvement

Counterpart availability for the CIM Plan process has major implications for the project. On
the one hand visible Government staff representation as part of the CIM Plan consultation
teams in the villages is essential to reinforce the “partnership” ethos of the process. On the
other we are only too aware of the significant strain this work can place upon scarce staff
resources in both MWTI and MNREM. We have structured our work programme on the
basis that a minimum of one Ministry (Could either be MWTI or MNREM or both) staff
person is available for each CIM Plan consultation team. Our discussions with MWTI and
MNREM staff during the Inception review period have indicated that, subject to sufficient
prior notice and a measure of flexibility in who actually participates on the day, then this
assumption ought to be able to be fulfilled.

We will provide substantial advance warning of the requirement for counterpart staff
support via the detailed work programme for the CIM Plan preparation which will be
discussed with the MNREM PCM and other key staff in MWTI PUMA Division on a
regular basis.

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Key Performance and Progress Indicators

At the Inception Report workshop key stakeholders agreed that the key performance and
progress indicators developed in the draft Inception Report were appropriate for the
project.. These focussed upon key outcomes sought from the project, which have been
summarised in Annex 2 of the TOR.

The key indicators proposed cover the following key elements from each workstream:

Environmental Management

Operative EIA regulations under the PUMA Act 2004.
–

Measure

: Completed EIA regulations agreed by Cabinet.

Widespread application of the EIA regulations
–

Measure

: Completed EIA regulations applied to all projects by MWTI PUM

Division

Improved environmental management techniques and practices applied to
Government and private sector construction projects.
–

Measure

: Completed COEP’s consistently applied for Government and major

private sector works

Improved environmental monitoring practices and procedures with MNREM.
–

Measure

: Completion of suggested environmental monitoring practices and

procedures.

Natural Risk Management

An updated and expanded CIM Strategy to include climate change adaptation and
other hazards.
–

Measure

: Revised and expanded CIM Strategy agreed by Cabinet.

Completed CIM plans for the remaining 28 districts.
–

Measure

: Completed CIM Plans incorporating the revised and expanded CIM

Strategy

Use of the CIM Plans as national planning documents under the PUMA Act.
–

Measure

: CIM Plans adopted for all Districts and used to administer inter alia the

Small Grants Scheme and other Government infrastructure investment decisions.

Demonstrable wider level of awareness and acceptance of CIM Plans in the
community.
–

Measure

: Completed awareness survey with increased knowledge in all sectors

of the community of CIM Plans.

Resource Management

Increased utilisation of GIS as an analysis tool in support of natural resources
management policies.
–

Measure

: Completed GIS professional development and applications

programme in MNREM.

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Support to other natural resources management initiatives arising from CIM Plans and
other policy directives in MNREM’s corporate plan.
–

Measure

: Reference in MNREM’s corporate plan to the CIM Strategy and CIM

Plans as guiding policy and implementation frameworks for Government and
private projects.

Emergency Management

An updated NEMP.
–

Measure

: Completed NEMP

Training and professional development for NDMO staff.
–

Measure

: Completed training and professional development plan and

implementation commenced during the project.

Awareness raising of community and organisations with respect to NEMP and EM
generally.
–

Measure

: Completed public awareness programme

National disaster simulations.
–

Measure

: Two disaster simulations completed by end 2005.

Specification of accommodation and additional equipment.
–

Measure

: Accommodation and equipment schedule completed

Preparation of supporting DM legislation.
–

Measure

: Legislation drafted and presented to Cabinet.

Review of options for DM insurance.
–

Measure

: Completed review of Port Vila Pilot Project

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Risk Management Plan

5.1 Introduction

The TOR for the project requires as part of the Inception Review that a “a risk management
plan for the project (based on AS/NZS 4360 [Risk Management]), against which the project
progress is to be assessed and risks are to be managed.

”

AS/NZS 4360 Risk Management

describes risk management as “ a generic framework for

establishing the context, identifying, analysing, evaluating, treating, monitoring and
communicating risk.” It stresses the achievement of an appropriate balance between
realising opportunities for gains whilst minimising losses. Risk management is an iterative
process consisting of steps which when undertaken in sequence enable continuous
improvement in decision-making and resultant performance. The Standard emphasises
both the positive as well as negative outcomes of exposure to uncertainty or potential
deviations from what was expected or planned.

The Standard is not a prescriptive tool but rather a framework for the systematic
identification, evaluation, treatment and monitoring of risks. In the context of this project
we have adopted a relatively high level analysis focussing on risks which may inhibit the
attainment of overall project objectives rather than small scale risks to the programme for
individual tasks. These risks can and will be managed via the project work programme and
the progress reporting schedules.

5.2

Project Risk Plan

For each of the identified risks we have followed the recommended process in the
Standard. This requires the Identification of the risk; the Analysis of the risk; the Evaluation of
the risk and the Treatment of the risk. This process is conducted within a framework of on-
going and continuous communication/consultation (to be achieved via the risk analysis
section of the quarterly report) and monitoring/review (to be achieved by the project
manager’s monitoring of risks and the project programme which is also the subject of both
monthly and quarterly reports.)

Identification

of the risk involves description of the item or activity that creates the risk.

Analysis

of the risk considers its potential to adversely impact upon attainment of the

project objectives. This may also be a positive impact. This is about developing an
understanding of the risk and assists with the decision as to whether the risk needs to be
treated and what might be the most cost-effective treatment strategy.

Evaluation

of the risk is all about assessing which risks need to be treated and treatment

priorities.

Treatment

of the risk involves the application of treatment methods which may include

avoidance, changing the likelihood of the risk, changing the consequences, sharing the risk
or retaining and accepting the risk.

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In the following Table we set out our suggested structure for the assessment of the major
project risks by workstream together with appropriate risk management strategies for each
risk.

Table 5.1 - Risk Management Schedule

The Risk

Risk Level

Responsibility

Risk Management

Environmental
Management
Inability to secure
Ministerial & Cabinet
support for proposed
EIA regulations

Low

MNREM & law draftsman

Briefing of Minister &
Cabinet at regular intervals
prior to draft being
presented.

COEP’s not adopted
by industry

Moderate

MNREM & MWTI

Both Ministries to publicly
notify of requirements to
adopt and of their intention
to enforce.

Nat Risk Management
Inability to secure
Ministerial & Cabinet
support for proposed
CIM Strategy revisions

Moderate

MNREM & project team

Briefing of Minister &
Cabinet at regular intervals
prior to draft being
presented.

Inability to complete
CIM Plans for
remaining 28 districts
within project
timeframe

Moderate
to High

Project Team, MNREM &
MWTI

Regular monitoring of work
programme and resource
availability

Nat Resource
Management:
Natural Events
Fire and/or water
damage to materials
and data crucial for
achieving project
outcomes, e.g.
orthophotography, GIS
data etc.

Moderate
to High

MNREM

MNREM & project team

Maintain backups on and
offsite.

Share project directories and
layers between MNREM and
project team

Nat Resource
Management:
Technology and
Technical Issues
Applications
recommended poorly
focused and
inappropriate

Low

Consultant project team

Ongoing dialogue between
consultants and counterparts

Applications are appropriate
to MNREM and other
relevant agency needs

Technical interventions are
sound and based on:

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The Risk

Risk Level

Responsibility

Risk Management

In-depth needs analysis
Stakeholder input

Senior consultants,
counterparts and agency
representatives develop
project plans with ongoing
progress reports to monitor
appropriateness of
applications

Poor uptake of GIS
technology

Low

MNREM & Consultant
project team

Senior consultants and
counterparts agree on
training content and format
based on joint needs analysis

Targeted
training/familiarization
programmes in place with
stakeholder commitment

Data unavailable to
project

Low CEO,

MNREM

Establish protocols with data
suppliers re ownership, use
and intellectual property

Emergency
Management
Lack of commitment
and buy-in by agencies
to revising their
response plans or to
the draft NDMP

Low

Consultant Project Team
and CEO/MNREM

Managed by:

alerting agencies well in
advance to the
consultation process

working with agencies
on a one-on-one basis

encouraging agencies to
show-case their plans
with others (peer
mentoring)

alerting MNREM early
in the process if
particular agencies are
reluctant to participate

Lack of support for
revised national
disaster management
arrangements by
MCDEM and/or
SOPAC

Low

Consultant Project Team
and CEO/MNREM

Managed by:

involvement of MDCEM
and SOPAC at the
Inception Workshop
stage, the Review
Workshop stage and at
other relevant parts of
the project (e.g.
invitations to
simulations; requests to
review discussion
documents and draft
reports)

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6 Decisions/Actions

Required

6.1 Organisational

Changes

During the Inception visit the project team was advised of the recent decision by Cabinet to
relocate the PUMA division of MNREM to MWTI. The PUMA division has a key role to
play in the project being intimately involved in the Natural Risk Management workstream
– this produces the revised CIM Strategy and completes the CIM Plans for the remaining
districts of the country. This workstream consumes approximately 75% of the manpower
resources of the entire contract.

There are several issues arising from this relocation both of a practical and more
conceptual/philosophical nature.

The contribution of counterpart support staff from the PUMA Division will require the
agreement of the CEO of MWTI who is not a signatory to the contract for this
component.

Similarly MNREM counterpart staff support for this workstream will be to a function
for which they no longer have an organisational responsibility.

The integration of an increased awareness of the emergency management function into
the CIM plan process will be made more difficult as will its continuous
implementation via the planning process.

As the primary environmental regulating authority under the PUMA legislation, the
PUMA division within MWTI may find itself in a conflict of interest situation with
other more works related divisions of MWTI.

The CIM Plans will need to be signed by the Minister responsible for MWTI rather
than that for MNREM.

We have initiated an exchange of correspondence to address some of these issues and look
forward to further feedback as a result of this report. We are still awaiting confirmation of
our understandings from MNREM & MWTI – a copy of our letter dated 22 February 2005
to MNREM is contained in Appendix H.

6.2

Natural Risk Management

It is essential that the project have access to digital (MapInfo or ArcView) maps of the
country.

The Preparation of the remaining CIM/SMP plans will be a very “hands-on” learning
experience for all those involved, including both Government Staff and local village
participants. Much of the data collection work will take place in the field, and the speed
and accuracy of map reproduction and modification will be critical to the successful
completion of the project.

While it is crucial that the existing government mapping system retains its integrity and
independence, it is essential that this project has a copy of all the base map layers of
relevance to the preparation of the CIM plans. The following layers are considered

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essential: coastlines, reefs, topography (contour lines), roads, paths, buildings, bridges,
coastal hazards, land resource inventory information and (where mapped), utilities.

These map layers will be updated as necessary in the field and new layers will be created
as they are developed (e.g. aggregate resources, cyclone “safe areas”, possible future
locations for public facilities, etc.). All layers, whether modified or not will be kept separate
from the Government database until/unless the new/revised information is desired by the
government offices.

During the Draft Inception Report Workshop on 14 April 2005, MNREM Mapping Division
indicated that they would give further consideration to the Consultant Team’s request for
direct access to the necessary data layers to enable the production of the consultation maps
for the CIM Plan preparation direct by the consultant. We still await conformation of this
access.

Description Of Services Required

Environmental Management

EIA Regulations: Based on discussion and feedback from MNREM, finalise the

draft EIA Regulation to be camera ready for submission by the Minister of Natural
Resources and Environment to Cabinet for approval. The EIA requirements were originally
drafted to be regulations under the Lands, Surveys and Environments Act, 1989. The draft
regulations will need to be upgraded to be compatible with the empowering legislation for
MNREM, the draft PUMA Act, and administration improvements identified through the
application of the draft regulations during the implementation under IAM-1.

Environmental Monitoring: Advise MNREM on environmental monitoring good

practice, and in particular, how to make best use of environmental monitoring data collected
to-date for national monitoring purposes, trend analysis, development and use of
environmental monitoring indicators, and the development of policy and management
initiatives based on, or drawing from, this data. This advice is likely to be delivered
through workshops involving senior members of MNREM, and through mentoring of key
staff within MNREM who can champion this initiative.

Upgrade/Extend COEP: Review and expand the Codes of Environmental Practice

(COEP) to cover for other routine physical works undertaken by infrastructure providers
such as EPC, Samoa Telecommunication and Water Authority.

Industry Training and Development: Develop and provide training to

engineering consultants and contractors on: (i) procedures and obligations under the EIA
Regulation; (ii) details, application, and obligations under the COEP; (iii) application of,
and obligations to meet, environmental management procedures in contract management
and implementation of physical works; and (iv) the principles of economic evaluation
applied to infrastructure development project evaluation (including coastal hazard
mitigation systems). It is expected that the training will be delivered through seminars and
workshops with some mentoring (i.e. hands-on) support through immersion of the
Consultant’s staff with the consultant’s/contractor’s staff during key project
preparation/implementation periods.

Provide similar, possibly concurrent, training to the MWTI, to build on the training

provided under IAM-1.

The above training and industry development shall be arranged with the assistance

of MWTI and MNREM and will also involve staff from these agencies, in order to raise
awareness and understanding of good environmental management practices, and to improve
compliance with requirements.

Contractor Qualification Scheme: Design and assist MWTI implement a

mandatory qualification scheme in environmental management and the application of the
COEP on construction works for contractors as a pre-requisite for eligibility to tender for
government projects.

Natural Risk Management

Expand Scope of CIM Strategy: Expand the existing CIM Strategy to incorporate

issues relating to climate change adaptation, and to include strategies for other, relevant,
inland hazards such as flooding and landslides. In preparing the revised CIM Strategy, the
consultant shall develop and agree with the MNREM the extent and approach to any
additional consultation required to finalise the strategy. Consultation shall be lead by
PUMA, but shall closely involve the consultant as an expert advisor in a supporting role.

Taking account of feedback from the consultation, the Consultant shall prepare a

final draft of the revised CIM Strategy acceptable to, and suitable for, the Minister of
Natural Resources and Environment to take to Cabinet for approval and endorsement as an
official, updated strategy framework for the Government of Samoa.

10.

The Consultant shall prepare a background report on the update to the CIM

Strategy. This report shall be an addendum to the background report prepared as part of the
original CIM Strategy development, and shall outline the approach taken in developing the
additions to the Strategy, the underlying thinking and reasoning, consultation activities
undertaken and conclusions drawn from them, key performance indicators for the additional
elements of the strategy, critical assumptions, and any other observations on the approach.

11.

Implement CIM Plans for Remaining 28 Districts: Implement CIM Plans for 28

Districts, namely:

Vaimauga West, Faleata East, Faleata West, Sagaga le Falefa, Sagaga le Usoga, Siumu,
Aana Alofi II, Aana Alofi III, Lotofaga, Lepa, Aleipata Itupa i Luga,, Aleipata Itupa i Lalo,
Anoamaa East, Faasaleleaga II, Faasaleleaga III, Faasaleleaga IV, Leauvaa, Gagaemauga I,
Gagaemauga II, Gagaemauga III, Gagaifomauga I, Gagaifomauga III, Vaisigano West,
Falealupo, Alataua West, Palauli West,Palauli le Falefa, Satupaitea

These plans are to:

Implement the provisions of the updated CIM Strategy (including the expanded

scope of hazards to be considered);

Be of the style, cover the scope, and be developed in a similar manner as the

plans for the 15 Districts completed under IAM-1;

Be published in both Samoan and English;

Be consistent with, and be able to be implemented as, Sustainable Management

Plans under the draft PUMA Act, or as Management Plans under the existing
Lands, Surveys and Environment Act, 1989;

Be substantially accepted, and be seen as effective, by the relevant villages.

Be prepared as user-friendly The order of implementation of plans in

documents (in Samoan and English) issued in the name of MNREM (and the
District concerned) in a format suitable for publishing including supporting
diagrams, maps and photographs as appropriate.

12.

The order that CIM Plans will be implemented in Districts is to be determined in

consultation with PUMA. Consultation with village and District representatives is to follow

the protocols developed for the project under IAM-1 (O’Meara, 1998), but also take account
of the findings and recommendations from the SIAM-2 implementation review

13.

During the course of development of the CIM Strategy and CIM Plans the

Consultant will also be involved in assisting MNREM design and implement:

Public awareness raising activities concerning the CIM Strategy and CIM Plans

and related environmental issues in general, including the use of television,
radio, newspapers, and public meetings;

Preparation of advertising, educational material, brochures and booklets.

14.

Sustainable Management Plans under the PUMA Act: Assist PUMA to adapt

the CIM Plans completed, under IAM-1 and under this contract, into Sustainable
Management Plans (SMPs) under the PUMA Act. Assistance shall take the form of re-
drafting of the CIM Plans into a suitable format for SMPs (§12 – 15 and §19 of the PUMA
Bill), advising and assisting on any additional consultation required above that already
undertaken in the preparation of the CIM Plans (§17 – 18 of the PUMA Bill), and providing
advice on issues relating to Development Standards (§32 of the PUMA Bill) and Samoa
Planning Provisions (§33 of the PUMA Bill).

15.

Effectiveness Survey: Design, conduct and report on opinion surveys on the public

understanding, support for, and effectiveness of the CIM Strategy and CIM Plans. These
surveys must cover report on cultural groups such recognised village representative and
speakers, Women’s Committee members, untitled adults and mature youths. Key
government agencies (e.g. MWTI) and private sector agencies (e.g. contractors involved in
sand extraction) are also to be assessed and reported. The survey may involve interactive
interviews, questionnaires and use of focus groups as appropriate and must involve a
sample size sufficient to ensure that results are statistically significant. It is expected that
the survey will be conducted largely in the Samoan language.

Resource Management

16.

GIS Applications to Natural Resources Management: The Consultant shall

identify and agree with the Chief Executive Officer, MNREM, suitable activities in which
GIS can be used as a primary or supporting tool to develop policy and apply, conduct
investigations, and implement mitigation programmes relating to environmental, resource
and risk management consistent with the aims of SIAM-2 and MNREM’s strategic
objectives. The Consultant shall then:

Help MNREM design implementation programmes for these activities than will

form part of MNREM’s plan of annual activities;

Act as an advisor, facilitator, mentor and occasional hands-on assistance to

MNREM staff in practices and approaches to implementing the agreed
programmes. The advice and direction is expected to cover not only practical

In particular, two aspects that need strengthening in relation to the CIMP Plan consultation processes

are: (i) ensuring that views are sought and taken into account from parts of the community who, due
to customary practice, do not necessarily participate in the community consultation processes; and
(ii) providing improved village level access to information and resources on the CIM Plans.

technical practices but also best practice on how to develop and use information
from GIS systems to support policy and programme management.

Provide additional on site and classroom based training on implementation of

GIS and supporting computer systems.

17.

Monitor and report on progress of implementation of the tasks identified from

above. Provide ongoing support, training and mentoring to MLSNR staff to achieve the
specific task objectives.

18.

Sustainable Aggregate Supply Policy: At present, management of private and

commercial extraction of aggregate taken from the coastal zone (i.e. beaches and the
foreshore) is limited. In may places, aggregate extraction is unsustainable, leading to
coastal erosion and adverse impacts on coastal hazards mitigation works, including sand
nourishment schemes. The Consultant shall assist MNREM investigate the nature and scale
of the problem (drawing largely on existing studies and opinions), and then to develop, and
provide advice on how to implement, a policy on the extraction and supply of aggregate
from the coastal zone.

Emergency Management

19.

The New Zealand Ministry of Civil Defence and Emergency Management

(MCDEM) will be undertaking a field visit and review of the existing Samoa DMO
institutional, management and operational arrangements (covering all aspects relating to
reduction, readiness, response and recovery) under a bilateral arrangement. The MCDEM
will make recommendations to allow the DMO to operate under best pacific practice,
providing a template for improvements to all relevant areas including inter alia: legislative
mandate, funding, disaster mitigation practices, warning systems, awareness and education,
departmental planning, DMO structure and staffing, control and committee processes, and
the effectiveness of the national emergency operation centre. The Consultant’s role will be
to implement this template of improvement under the framework outlines below. The
Consultant will continue to liaise and consult with MCDEM throughout this phase of the
project. MCDEM in collaboration with MNREM will maintain a governance oversight of
the Emergency Management component, reporting to MNREM PCM.

20.

Review Workshop and Mandate: Develop and conduct a Review Workshop (in

association with the MCDEM). The approach to the workshop, and facilitation processes to
be employed, are to be planned and reviewed by the Implementing Agency and IDA prior
to the workshop.

21.

Revised National Disaster Management Plan: Lead the development of a revised

National Disaster Management Plan (in association with the MCDEM). This plan, although
based on the existing plan, is to reflect best Pacific practice, and incorporate appropriate
responsibilities and processes for all aspects of emergency management covering inter alia
risk reduction (including community, government agency and private sector responsibilities
and implementation of initiative identified under the CIM Plans), readiness, response and
recovery.

22.

Specification for DMO Office/Equipment: Advise MNREM on requirements,

and prepare outline specifications, for the fit out of dedicated offices for the DMO.
Facilities are expected to incorporate office space, storage space for equipment, and a

training room. Note that a cyclone resistant emergency command centre already exists at
the Police Head Quarters.

23.

Equipment Supply: Specification of radio communications equipment, within an

approved budget, to supplement equipment being provided by Emergency Management
Australia (EMA) (the procurement will be done by the PMU).

24.

Institutional and Staff Development on EDMO Practices: The Emergency and

Disaster Management Office has only recently been integrated into PUMA. An
appointment to the position of Principal Officer (Emergency and Disaster Management) has
recently been made. Establishment of, and appointments to, supporting staff positions
(potentially up to two persons) is still to be done. The Consultant shall undertake or arrange
the following institutional and staff development delating to the Emergency and Disaster
Management Office and staff:

1. Advise on the key functions of EDMO staff, covering the Principal and supporting

staff, mapping out the skills and competencies required by each staff member to
undertake their respective roles and responsibilities. Prepare positions descriptions
for these positions.

Prepare a consolidated professional development plan including

implementation strategies and monitoring/evaluation processes.

3. Scope professional development requirements, and identify appropriate

development opportunities. Such development opportunities may include short
secondment arrangements with developed country Pacific Emergency and Disaster
organisations, and programmes available through the SOPAC Community Risk
Program. Consider the widest possible range of development including formal
courses, work assignments and mentoring.

4. Monitor staff development and progress, and provide ongoing mentoring assistance

and advice throughout the contract period.

25.

Implementation Workshops/Consultation: Assist the DMO with the

development and implementation of agency and selected community/stakeholder (including
relevant NGO) awareness raising programmes. This is expected to be delivered in the form
of interactive workshops and site visits. The purpose of the workshops/consultation is the
outline the propose and benefits of reforms to emergency management, to introduce key
people involved, identify agency/community counterparts, share experiences and opinions,
outline proposed implementation programmes, and to solicit feedback on issues that will
help ensure the implemented practices will be effective sustainable.

26.

Agency Response Planning: Assist agencies with the development of

implementation plans for business continuity plans and emergency response plans.
Agencies are: MoP, Telecom, EPC, MoH, MWTI, NGO’s, Private Sector

27.

Implementation workshops and mentoring covering all agencies. Review of

existing plan. Models for new plans. DMO would be responsible for identifying
counterparts within each agency.

28.

Legislation Review: Carry out (in association with the Implementing Agency,

Solicitor General and the Crown Law Office) and make recommendations regarding
structure and powers of the DMO and related requirements of other government

departments, crown owned entities, and private organisations. Prepare a draft of the
proposed legislation.

29.

Agency and Community Education and Development: Assist the DMO with the

development and implementation of agency and community awareness raising programmes.
This is likely to involve consultation meetings with Districts and village fonos. The
Consultant shall provide leadership and assistance to the DMO with the development and
implementation of community work programmes for disaster preparedness and response
that can be taken back, developed further and applied by village communities.

30.

Disaster Simulations: Assist the DMO with developing an initial programme of

emergency and disaster simulations to assess the efficacy of revised disaster and business
continuity plans. Observe, evaluate and provide feedback and recommendations on
emergency and disaster simulations (in association with the MCDEM).

31.

Disaster Insurance: Conduct and report on a preliminary review of the feasibility

of, and mechanisms for, implementing a national disaster response fund or disaster
management insurance. This evaluation should consider any analysis and findings from the
joint SOPAC/ World Bank/ AusAID “Catastrophe Insurance Pilot Project” currently set up
in Port Vila.

GIS layers held by MNREM

Feature

Coverage

Feature Type Attributes

Geology National

polygon

classes

Drains Apia

line

Drainage

type

Political Districts

National

polygon

District area
Population (2001)

Political Districts

National

polygon

District code
Faipule district name
Political district
Population (1999)

Conservation Areas

National

polygon

Conservation areas
National Parks
Reserves
Watershed areas
Protection forest

Ecology National

polygon

Terrestrial

ecosystem

class

Coastal Hazard Zone

National

polygon

Flood
Erosion
Landslip
Sensitive area

IKONOS Multispectral
image

National raster

Land Cover 1999

National

polygon

Land cover class

Built up area

National

polygon

Feature name

Building National

point?

Feature

name

Contour (20m)

National

line

Elevation

Text (feature name & labels) National

annotation

Cultivation National

polygon

Fuel Tank

National

point?

Hydrology

National

line?

Feature type, name

Built up type

National

polygon

Feature type, name

Offshore

National

line?

“Sea baseline”?, coast

Road

National

line

road, track

Structures National

point?

Feature

code

Feature type, name
Use

Water tanks

National

point

Transmission lines

Afulilo

line

Land Capability

National

polygon

Prim?, Suit?, Class?
Soil?
Land Use Capability?

Forest Cover 1954

National

polygon

SIAM2 - Sustainable Management C4:

Environment Risks & Resource Management

Inception Report - Final

Location:

Conference Room, MNRE offices, Matautu

Date:

14 April 2005

Time:

9.30am

Attendees List

Name

Organisation

Address/Contact

Vitaoa Pele Fuatai

MNREM

pfuatai@lesamoa.net

2 Cedric

Schuster

PECL

cschuster@conservation.ws

3 Don

Lyon

Beca

don.lyon@beca.com

John McFarlane

PMU (IPA Ltd)

johnmcf@ipa.com.ws

Jude Kohlhase

MWTI (PUMA)

jude.kohlhase@mnre.gov.ws

6 Ted

Wells

Beca

ted.wells@ipa.com.ws

7 Keith

Frentz

Beca

keith.frentz@beca.com

Natalie Mitchell

MWTI (PUMA)

natalie.mitchell@mnre.gov.ws

Fiona Sapatu

MWTI (PUMA)

fiona.sapatua@mnre.gov.ws

Fetoloai Yandall-Alama

MWTI (PUMA)

fetoloai.alama@mnre.gov.ws

11 Debbie

Cunningham Beca/Kestrel

dc@kestrel.co.nz

Simon Chambers

MCDEM, NZ

Simon.chambers@dia.govt.nz

Mueiagatele Joe Reti

PECL

joereti@conservation.ws

14 Michele

Daly

Beca/Kestrel

md@kestrel.co.nz

15 Graeme

Roberts

Beca

graeme.roberts@beca.com

16 Leo’o

Polutea

MNRE

leo’o.polutea@mnre.gov.ws

17 Filomena

Nelson

MNRE

filomena.nelson@mnre.gov.ws

Kirisimasi Seumanutafa

MWTI (PUMA)

kirisimasi.seumanutafa@mnre.gov.ws

SIAM 2 Inception Report Workshop

14 April 2005

Meeting Notes

Issue 1:

PUM Act

Uncertainty of the scope of the task of reviewing the PUM Act along with the change
of the PUM Authority to MWTI. This is likely to result in the need to review other
legislation to ensure that the statutory base remains valid.

Resolution:

Review PUM Act as per TOR and identify other reviews that should be undertaken

either as an extension to the contract or by others.

Issue 2:

CIM Strategy

CIM Strategy and Plans have a Coastal focus and while most of the population and
infrastructure is in this band they are not management tools for the whole of Samoa.

Need to build on the strengths of the CIM Strategy including:
–

Easy to read

–

Concise

–

Partnership between Village and Government

–

Provides for integrated management from Strategy to Policy to Implementation

–

Applies to everyone

Acknowledge need to incorporate “whole of catchment” inputs/outcomes as they
affect the Coastal margin:

Resolution:

Prepare an update to the CIM Strategy including a new section on inland/whole of

catchment issues and related policies and actions supported by an associated technical report within
the scope of the present contract.

Issue 3:

CIM Plans

Can CIM Plans be adapted to be SMPs
–

Different focus from partnership between Government/village to regulatory

–

CIM Plans focused on coastal issues not broad land use issues encompassed by
SMPs

–

Not envisaged that CIM Plans be extended to cover another 35 villages inland.

–

Human resource management issues within PUMA/MWTI

–

Elements of CIM Plans in an SMP but not a whole SMP in itself

–

Villages not ready for regulatory approach of SMPs

Resolution:

Prepare a relationship diagram/structure incorporating National/Local planning mechanisms and
effects based mechanisms. E.g., National Policy and Regulatory Statements, Local implementation
guidelines, Coastal Strategy and Plans and Land-use Plans. The relationships of these Strategies,

Plans and Guidelines are vertical and horizontal incorporating social and physical elements within
the scope of the present contract.

Prepare a National Coastal Sustainable Management Plan as an example of a National Policy and
Implementation Guideline within the scope of the present contract.

What is the appropriate form of Planning structure for Apia?
–

Key issues are land use

–

Beach and coast largely protected (sea wall)

–

Infrastructure highly resilient as has stood the test of time.

Resolution:

Consider amending the scope of the project in the Apia urban area to prepare an SMP as an
extension to the contract. Coastal issues incorporated into the SMP but mainly dealing with Land-
use and network infrastructure issues.

Consider relevance of Structure Planning in some areas e.g., Vaitele (presentation to be provided to
PUMA on Structure Planning as a development management tool).

Issue 4:

Provision of Aerial Photography and mapping layers

Difficulties in resourcing the provision of aerial photographs and hazard data used in
consultation from both Beca and MNRE point of view.
–

Long lead time to obtain aerials

–

No A1 laminator in Samoa (need to send to Auckland)

–

Extensive drain on MNRE resources

–

Acknowledges MNRE concern that unauthorized use may occur beyond the
scope of the project.

Resolution:

To make aerial photographs and associated topographic, hazard and text layers

available in Mapinfo format for the project use. To be installed on a password protected, secure
system accessed by named personnel and returned (including updates provided as a result of the
project) as a deliverable at the end of the project.

Issue 5:

Emergency Management

Longer timeframe for some components required to fully incorporate the project
requirements

The strategic (longer term) element of the Business Plan not included in TOR but
should be included as part of Business Plan.

The extent to which consideration of the National Coordination Centre (in terms of fit-
out, establishing operational capability etc) as part of the TOR needs clarification – also
the relationship of the National Coordination Centre with other Emergency
Management activities – Police, Fire etc., and who has responsibility for the facility.

Preparing a summary of hazards for the NDMP is a part of the methodology, however,
the collection and review of hazards information as an input to the summary is beyond
the scope of the TOR.

Persons met with during the Inception Visits (March and April 2005) for the Emergency
Management Workstream

1. Paul Brennan
Police Institutional Strengthening Project, AusAid

2. Levaopolo Tupae Esera, CEO,
Ministry of Education, Sports & Culture

3. Namulauulu Tautala Mauala, Secretary-General,
Samoa Red Cross Society

4. Tony Hill, Assistant Fire Chief
Ministry of Police, Prison and Fire Services.

5. Assistant Police Commissioner
(Tour of National Co-ordination Centre (NCC))

6. Muaausa Joseph Walters CEO, and Sam Unutoa, Safety Training Officer
Electric Power Corporation

7. Alefosio Matulino, Acting General Manager
Airport Authority

8. Michael Johnston, CEO
SamoaTel

9. Luagalau Foisaga Eteuati Shon, CEO,
Ministry of Women, Community & Social Development

10. Mulipola Ausetalia Titimaea, Assistant CEO plus several staff
Meteorology Division

11. Papali’i Lorenesse Neru, Police Commissioner
Ministry of Police, Prison and Fire Services.

12. Taulapapa Captain, Maselino Tominiko, Asst CEO Maritime
Ministry of Works, Transport & Infrastructure

13. J. Saufoi Moors, Director – Asset Management, Buildings
Ministry of Works, Transport & Infrastructure

14. Barry Wilson, Police Institutional Strengthening Project, AusAid

Ministry of Natural Resources & Environment

Private Bag

APIA

SAMOA

Attention: Tu’u’u Dr Ieti Taulealo

22 February 2005

Our Ref: 6060030/100

Final Inception Report -

May 2005.DOC

Dear Sir

SIAM2 - Sustainable Management C4: Environment Risks &
Resource Management Inception Report - Final

We refer to our meeting in your offices earlier today regarding the above contract. At that
meeting we discussed the potential impacts upon the project, both practical and
contractual, arising from the recent decision of Cabinet to undertake some restructuring of
functions between MNRE and MWTI. It was agreed that we write to you setting down our
understanding of these changes and the practical and contractual implications for the
project.

We understand that the following changes are to occur:

The transfer of the Planning and Urban Management Agency (PUMA) from MNRE to
MWTI, including the responsibility for the preparation of the CIM Plans for the
remaining 26 districts under the above project, the review and amendments to the CIM
Strategy and any consequential changes to the CIM Plans already completed under
Phase 1 of the project.

We also understand that the responsibility for the drafting of the amended EIA
regulations, to be promulgated under the PUMA Act, will also be transferred to MWTI.

The NDMO is to remain within MNRE under the Meteorology Division which is to be
transferred to MNRE from the Ministry of Agriculture Forests, Fisheries and
Meteorology.

We understand and seek your confirmation of the following with regard to our obligations
under the contract for the above project:

That the PUMA Division within MWTI will continue to have the lead responsibility for
Government inputs to the preparation of the CIM plans and the review of the CIM
Strategy in close consultation with MNRE. Final approval of the CIM Plans is to be by
the Minister of Works, Transport and Infrastructure.

That the counterpart staff support arrangements, which were developed under Phase 1
of the Project, whereby Government staff were provided to be a part of the village and

district consultation teams will continue for the duration of this project. Such provision
to be mutually agreed and programmed in advance of the consultation occurring.

The review of current draft EIA regulations and the drafting of amended legislation is
to be undertaken for MWTI in close consultation with MNRE, the Attorney General’s
office and other stakeholders. Final approval of the draft regulations to be by the
Minister of Works, Transport and Infrastructure.

The provision of all other services under the contract to remain with MNRE with final
approval of deliverable items to rest with the Minister of Natural Resources and
Environment.

In the event of any disagreement regarding the matters set out above, in the first
instance this be resolved under the auspices of the IAMP Steering Committee.

As we discussed, whilst we have some concerns that our contract will be with MNRE and
yet a substantial proportion of the deliverable items will now be for MWTI, we would be
comfortable with this being recorded in an exchange of correspondence.

We are looking forward to working with you and your staff again on this project. We are
confident that with a continuation of the goodwill and professionalism exhibited by all
parties, as was the case in Phase 1 of the project, a similar positive outcome is assured for
this phase.

Yours faithfully

Beca International Consultants Ltd

Graeme Roberts

Project Director

Direct Dial: +64-9-300 9271

Email:

graeme.roberts@beca.com

cc: Vaaelua Nofo Vaaelua CEO, MWTI.

John Macfarlane, PMU

6060030/100

Beca Page

L2:54484-Final Inception Report - May 2005.DOC

20 May 2005

SIAM2 - Sustainable Management C4:
Environment Risks & Resource Management
Inception Report - Final

Political District

Number

Villages

Date

Completed

Order

Start Date

Aiga I Le Tai, Satuimalufilufi

07/2001

Vaisigano I

10/2001

Palauli (East)

11/2001

Falealili 15

12/2001

Vaimauga East

02/2002

Falelatai/Samatau 11

02/2002

Anoama'a West

02/2002

Lefaga/Falese'ela 12

06/2002

Gagaifomauga I

06/2002

Salega 37

06/2002

Gagaemauga II

28a & b

07/2002

A'ana Alofi I

07/2002

Va'a o Fonoti, Saletele, Sauano

08/2002

Safata 13

08/2002

Fa'asalele'aga I

08/2002

Si'umu 14

05-06/2005

Vaisigano II

07-09/2005

Falealupo 35

07-09/2005

Alataua West

07-09/2005

Lotofaga 16

10-12/2005

Lepa 17

10-12/2005

Aleipata Itupa I Luga

10-12/2005

Aleipata Itupa I Lala

10-12/2005

Fa'asalele'aga II

01-03/2006

Fa'asalele'aga III

01-03/2006

Fa'asalele'aga IV

01-03/2006

Gagaemauga I

27a

01-03/2006

Sagaga Le Falefa

04-06/2006

Sagaga Le Usoga

04-06/2006

Gagaemauga I

27b

04-06/2006

Faleata East

07-09/2006

Faleata West

07-09/2006

Vaimauga West

07-09/2006

Gagaemauga III

10-12/2006

Gagaifomauga II

10-12/2006

Gagaifomauga III

10-12/2006

Palauli West

01-03/2007

Satupa'itea 39

01-03/2007

Palauli Le Falefa

01-03/2007

A'ana Alofi II

04-06/2007