Post-Disaster
Needs Assessment
Tropical Cyclone Pam, March 2015

Government of Vanuatu

Government of Vanuatu
Vanuatu Prime Minister’s Office
PMB 9053, Port Vila, Vanuatu

Currency and equivalents:
Currency unit = vatu (VT)VT 108.04 = US$11
Fiscal year: January 1–December 31
1

Published by:Lead Author:
Copy-edit:
Design:Cover photo:

Exchange rate on March 16, 2015 (Reserve Bank of Vanuatu).

Government of Vanuatu
Simone Esler
Anne Himmelfarb
MikiFernández / ULTRAdesigns Inc., Washington, D.C.
Matasu village, Shepard islands. Photo by Michael Bonte-Grapentin, World Bank GroupSupported and facilitated bywith financial support byand technical input by

Vanuatu

Tropical Cyclone Pam

Efate
Port Vila

Tropical Cyclone Pam, March 2015. (Source: © NASA/Jeff Schmaltz. Reproduced with permission; further permission required for reuse.)Table of Contents
Abbreviations and Acronyms........................................................................................................................................

v

Acknowledgments.......................................................................................................................................................... vii
Executive Summary....................................................................................................................................................... ix
Summary of Damage and Loss........................................................................................................................................ ix
Summary of Macroeconomic Impact Assessment.......................................................................................................... xi
Human and Social Impacts............................................................................................................................................. xii
Summary of Recovery and Reconstruction Needs......................................................................................................... xiii
Way Forward.................................................................................................................................................................... xiv
1. Introduction...........................................................................................................................................................
1.1 Disaster Risk Profile of Vanuatu..............................................................................................................................
1.2 Socioeconomic Context of Vanuatu........................................................................................................................
1.3 Tropical Cyclone Pam...............................................................................................................................................
1.4 Response from the Government and Development Partners.................................................................................
1.5 Post-Disaster Needs Assessment Methodology......................................................................................................
1.5.1 Assessment of Disaster Effects.......................................................................................................................
1.5.2 Assessment of Disaster Impact......................................................................................................................
1.5.3 Recovery Strategy and Needs........................................................................................................................
1.5.4 Specific Context of This PDNA........................................................................................................................
1.5.5 Limitations of This Rapid Assessment...........................................................................................................

1
2
2
3
4
5
5
5
5
6
6

2. Macroeconomic Impact........................................................................................................................................ 7
2.1 Pre-Disaster Economic Outlook............................................................................................................................... 8
2.2 Post-Disaster Economic Outlook............................................................................................................................. 9
2.3 Inflation and Monetary Developments.................................................................................................................... 10
3. Damage, Loss, and Needs by Sector.................................................................................................................. 15
3.1 Productive Sectors................................................................................................................................................... 16
3.1.1 Agriculture, Livestock, Forestry, and Fisheries.............................................................................................. 16
3.1.2 Commerce and Industry................................................................................................................................. 22
3.1.3 Tourism.......................................................................................................................................................... 28
3.2 Social Sectors........................................................................................................................................................... 34
3.2.1 Private Housing............................................................................................................................................. 34
3.2.2 Health............................................................................................................................................................ 41
3.2.3 Education...................................................................................................................................................... 45
3.2.4 Culture........................................................................................................................................................... 51
3.3 Infrastructure Sectors.............................................................................................................................................. 55
3.3.1 Transport....................................................................................................................................................... 55
3.3.2 Public Buildings............................................................................................................................................. 62
3.3.3 Water, Sanitation and Solid Waste................................................................................................................ 66
3.3.4 Energy........................................................................................................................................................... 73
3.3.5 Communication............................................................................................................................................. 76
3.4 Cross-Cutting Sectors.............................................................................................................................................. 80
3.4.1 Environment.................................................................................................................................................. 80

iv Tropical Cyclone Pam, March 2015

4. Social and Household Impact............................................................................................................................. 87
4.1 Employment, Livelihoods, and Social Protection................................................................................................... 88
4.2 Household and Community Livelihoods................................................................................................................. 94
4.3 Gender...................................................................................................................................................................... 102
5. Disaster Risk Management.................................................................................................................................. 109
6. Summary of Recovery and Reconstruction Needs.......................................................................................... 113
7. Way Forward........................................................................................................................................................... 117
7.1 Low-cost debt facility.............................................................................................................................................. 118
7.2 Agriculture Recovery............................................................................................................................................... 119
7.3 Commerce Recovery................................................................................................................................................ 119
7.4 Social Recovery Considerations.............................................................................................................................. 119
7.5 Longer-term housing reconstruction....................................................................................................................... 120
7.6 Proposed Public Sector Recovery Program............................................................................................................ 120
Annex 1: List of Contributors........................................................................................................................................ 124
Annex 2: Details on Damage and Losses Summary Results...................................................................................... 127
Annex 3: Map of Vanuatu............................................................................................................................................... 132
Annex 4: Macroeconomic Assessment......................................................................................................................... 133
Annex 5: Disaster Risk Management in Vanuatu........................................................................................................ 142
References and Materials Consulted........................................................................................................................... 151

Vanuatu | Post-Disaster Needs Assessment v

Abbreviations and Acronyms
ACTIV

Alternative Communities Trade in Vanuatu

ADB

Asian Development Bank

ADRA

Adventist Development and Relief Agency

AVL

Airport Vanuatu Limited

BBB

Building Back Better

CRI

Corrugated Galvanized Iron

DCIR

Department of Customs and Inland Revenue

DFAT

Australian Department of Foreign Affairs and Trade

DGMWR

Department of Geology, Mines and Water Resources

DLA

Department of Local Authorities

DoE

Department of Energy

DoL

Department of Labour

DRM

Disaster Risk Management

ECCE

Early Childhood Care Education

ELSP

Employment, Livelihoods, and Social Protection

EU

European Union

FHHH

Female-headed households

FSAC

Food Security and Agriculture ClusterGDPgross domestic product

GEF

Global Environment Facility

GFDRR

Global Facility for Disaster Reduction and Recovery

GIZ

German Agency for Technical Cooperation

ICT

Information Communication Technology

IDA

International Development Association

IFC

International Finance Corporation

IFRC

International Federation of the Red Cross and Red Crescent Societies

ILO

International Labour Organization

IMF

International Monetary Fund

IOM

International Organization for Migration

IUCN

International Union for Conservation of Nature

LPG

liquefied petroleum gas

MALFFB

Ministry of Agriculture, Livestock, Forestry, Fisheries and Biosecurity

MDRR

Mainstreaming Disaster Risk Reduction

MFAT

New Zealand Ministry of Foreign Affairs and Trade

MHEWS

Multi-hazards Early Warning System

MIPU

Ministry of Infrastructure and Public Utilities

MLNR

Ministry of Lands and Natural Resources

MoET

Ministry of Education and Training

MoF

Ministry of Finance

MoH

Ministry of Health

MSME

Micro-, Small, and Medium Enterprises

vi Tropical Cyclone Pam, March 2015

MTTCNVB

Ministry of Tourism, Trade, Commerce and Ni-Vanuatu Business

NBV

National Bank of Vanuatu

NDMO

National Disaster Management OfficeNGO

Nongovernmental Organization

OGCIO

Office of the Government Chief Information Officer

P&M

Ports and Marine Department

PCRAFI

Pacific Catastrophe Risk Assessment and Financing Initiative

PDNA

Post-Disaster Needs Assessment

PVMC

Port Vila Municipal Council

PWD

Public Works Department

RBV

Reserve Bank of Vanuatu

R4D

Roads for Development

SPC

Secretariat of the Pacific Community

SPREP

Secretariat of the Pacific Regional Environment Program

TRR

Telecommunications and Radio Communications Regulator

UAV

Unmanned Aerial Vehicles

UNDP

United Nations Development Programme

UNESCAP

United Nations Economic and Social Commission for Asia and the Pacific

UNESCO

United Nations Educational, Scientific and Cultural Organization

UNFPA

United Nations Population Fund

UN-Habitat

United Nations Human Settlements Programme

UNICEF

United Nations Children’s Fund

UNOCHA

United Nations Office for the Coordination of Humanitarian Affairs

URA

Utilities Regulatory Authority

VANWODS

Vanuatu Women Development Scheme

VAT

Value-Added Tax

VCC

Vanuatu Cultural Centre

VCCI

Vanuatu Chamber of Commerce and Industry

VEMIS

Vanuatu Education Management Information System

VMGD

Vanuatu Metrology and Geo-Hazards Department

VNPF

Vanuatu National Provident Fund

VNSO

Vanuatu National Statistics Office

VOIP

Voice over Internet Protocol

VTCWC

Vanuatu Tropical Cyclone Warning Centre

WASH

Water, Sanitation, and Hygiene

Vanuatu | Post-Disaster Needs Assessment vii

Acknowledgments
The Government of the Republic of Vanuatu led this Post-Disaster Needs Assessment (PDNA)
supported by the European Union, United Nations agencies, the World Bank Group, and otherdevelopment partners. The extensive and intensive exercise was conducted over three weeks.
Without committed and dedicated government officials and development partners, this could nothave been achieved.
Special acknowledgment is extended to Johnson Naviti Marakipule, Director General, Prime Minister’s
Office, for his leadership and guidance, and to the following for their dedicated cooperation andsupport throughout the process: Benjamin Shing, Director, Department of Strategic Policy, Planningand Aid Coordination; Johnny Koanapo, Director General, Ministry of Foreign Affairs, International
Cooperation and External Trades; Yvon Basil, Director, Department of Foreign Affairs; George Maniuri,
Director General, Ministry of Finance and Economic Management; Letlet August, Director, Departmentof Finance; Johnson Binaru Iauma, Director General, Ministry of Infrastructure and Public Utilities;
Sam Namuri, Director, Public Works Department; Joseph Niel, Director, Civil Aviation; Henry Woreck,
Director, Ports and Habour; Jotham Napat, Director General, Ministry of Climate Change, Meterology, Geohazards, Energy, Environment and Disaster Management; David Gibson, Director, Vanuatu Meteorology
and Geo-hazards Department; Shadrack Welegtabit, Director, National Disaster Management Office;Peter Korisa, Operations Manager, National Disaster Management Office; Jessy Benjamin, Director,
Energy Department; Marakon Alilee, Director General, Ministry of Trade, Industry, Commerce andTourism; Jimmy Rantes, Director, Department of Industry; Ridley Joseph, Acting Director, Departmentof Cooperative and Ni-Vanuatu Business; George Borogu, Director, Tourism Department; Jessy Dick,
Director General, Ministry of Education and Training; Roy Obed, Director, Education Services; George
Bongiri, Director General, Ministry of Internal Affairs; Joe Ligo, Director General, Ministry of Lands
and Natural Resources; Howard Aru, Director General, Ministry of Agriculture, Livestock, Forestry,
Fisheries and Biosecurity; George Taleo, Acting Director General, Ministry of Health; Mark Bebe,
Director General, Ministry of Justice; Dorosday Kenneth Watson, Director of Women’s Affairs; andSimeon Athy, Governor, Reserve Bank of Vanuatu.
The PDNA team is grateful for the technical support from the following agencies: Asian Development
Bank (ADB), Government of Australia (DFAT), Food and Agriculture Organization (FAO), German
Agency for Technical Cooperation (GIZ), Global Facility for Disaster Reduction and Recovery(GFDRR), European Union (EU), International Federation of Red Cross and Red Crescent Societies(IFRC), International Labour Organization (ILO), Japan International Cooperation Agency (JICA),
Government of New Zealand (MFAT), Secretariat of the Pacific Community (SPC), Secretariat of
the Pacific Regional Environment Programme (SPREP), United Nations Development Programme(UNDP), United Nations Economic and Social Commission for Asia and the Pacific Programme,(UNESCAP), United Nations Education, Scientific and Cultural Organization (UNESCO), UN-Habitat,
United Nations Children Fund (UNICEF), United Nations Office of the Coordination of Humanitarian
Affairs (UNOCHA), UN Women, World Bank Group (WBG), World Food Program (WFP) and World
Meteorology Organization (WMO). A full list of the PDNA contributors is included in Annex 1. To all
the contributors, the team would like to express its deepest gratitude and appreciation.
Finally, the government offers thanks to Roberto Jovel, internationally recognized Damage and Loss
Assessment/PDNA expert, who dedicated time for a rigurous peer review of each sector chapter andthe report as a whole, as well as other sector experts who carefully reviewed the individual sector
chapters. These colleagues include Chris Bennet, Natasha Beschorner, Habiba Gitay, Iwan Gunawan,
Nicole Jenner, Denis Jordy, Hannah Messerli, James Newman, Dina Nicholas, Pricilla Phelps, James
Reichart, Zuzanna Stanton-Geddes, Hans Shrader, Shyam KC, and Mona Sur.

Port Vila waterfront in the aftermath of Tropical Cyclone Pam. © Becky Last, Vanuatu Dept. of Tourism.

Vanuatu | Post-Disaster Needs Assessment ix

Executive Summary
Between March
12 and 14,
2015, Tropical
Cyclone Pam
struck Vanuatu
as an extremely
Severe and widespread damage was worst on the larger islands of Tanna, Erromango, and Efate, while
destructive
there was less damage on the smaller islands of Aneityum, Aniwa, and Futuna in the southern region.
Category 5
Eleven fatalities were subsequently confirmed in Tafea and Shefa Provinces. An estimated 65,000
cyclone, withpeople were displaced from their homes. Approximately 17,000 buildings were damaged or destroyed,
estimated
including houses, schools, clinics, and other medical facilities. The tropical cyclone destroyed crops on
wind speeds ofa large scale and compromised the livelihoods of at least 80% of Vanuatu’s rural population.
250km/h andwind gusts thatpeaked at around
Summary of Damage and Loss
320km/h.
Between March 12 and 14, 2015, Tropical Cyclone Pam struck Vanuatu as an extremely destructive
Category 5 cyclone, with estimated wind speeds of 250km/h and wind gusts that peaked at around320km/h. At approximately 11 p.m. local time, the center of the cyclone passed east of Efate Island,
which is home to the capital city of Port Vila, and then continued southward, passing just west of
Erromango Island and Tanna Island.

The total economic value of the effects caused by Tropical Cyclone Pam was estimated to beapproximately VT 48.6 billion (US$449.4 million). Of this, VT 29.3 billion (US$270.9 million)
is attributable to damage, and VT 19.3 billion (US$178.5 million) is attributable to loss. This isequivalent to 64.1% of the gross domestic product (GDP) in Vanuatu,2 giving an indication of thescale of impact (see Table 1).3 Because of data limitations, however, it is likely that these figures
underestimate the total impact. Despite highly commendable efforts by the Post-Disaster Needs
Assessment team to collect data during the short time frame of this assessment, the team faceddifficulties, as in many instances data were either not available or had not yet been processed.
Accordingly, this assessment is not a full assessment of total damage and loss, but is rather basedon the best available information at the time of writing.
Tropical Cyclone Pam produced different effects across the different economic and social sectors.
The sectors that sustained the highest level of damage were the housing sector, which accounts for
32% of the total damage costs, followed by the tourism sector (accounting for 20% of all damage),the education sector (accounting for 13% of all damage), and the transport sector (accounting for
10% of total damage). In contrast, the largest level of economic loss is expected in the agriculture
and tourism sectors, which are estimated at 33% and 26% of the total losses respectively. In
addition, the environmental sector suffered significant losses to ecosystem services, although theselosses are not accounted within the impacts to GDP.
While the destruction of physical assets by the cyclone occurred in March 2015, production losses
and associated higher costs of production will linger for some time. The negative impact of thedisaster on overall economic conditions in the country will thus be felt for several years to come.
Analysis shows that 69% of the disaster effects fall within private enterprises and individualownership, while the remaining 31% of effects are within public sector ownership. This breakdown2
3

The 2013 nominal GDP was VT 75.8 billion, according to the Vanuatu National Statistics Office.
All data shown in tables and figures are from the PDNA teams unless otherwise noted.

x Tropical Cyclone Pam, March 2015

Table 1. Summary ofDisaster Effects by
SectorDisaster Effects(VT millions)Share of Disaster Effects(%)

Lost Personal
IncomeDamageLossesTotal

PrivatePublicVT millions

Productive Sectors

8,526

10,40318,928

98

2

1,607

Agriculture

1,421

4,641

6,062

93

7

227

Commerce and Industry

1,196

2,152

3,348

100

0

487

Tourism

5,908

3,610

9,518

100

0

983

Social Sectors

14,339630

14,96967

33–

Housing (Private)

9,452

440

9,893

100

0

–

Health

870

107

977

1

99

–

Education

3,908

79

3,987

0

100

–

Culture

109

3

112

100

0

–

Infrastructure Sectors

6,403

2,926

9,329

51

49

–

Transport

3,017

2,137

5,155

43

57

–

Public Buildings

532

12

544

0

100

–

Water

414

284

697

63

37

–

Energy

179

106

285

100

0

–

2,261

387

2,648

67

33

–

Cross-Cutting Sector

Communication

0

5,328

5,328

0

100

–

Environment

0

5,328

5,328

0

100

–

Grand Total

29,26819,28648,554

69

31

1,607

provides guidance on the sharing of responsibilities during recovery and reconstruction. The
government is expected not only to take care of the issues that fall within its purview, but also
to exercise leadership and guidance in relation to the private sector, with special reference toaddressing the post-disaster requirements of the poor and those at risk of impoverishment.
Damage was the greatest in Shefa Province, whereas expected losses are the greatest in Tafea
Province. Total damage and losses are estimated at VT 31.9 billion (66% of the total) for Shefa
Province, VT 10.3 billion (21%) for Tafea Province, VT 3.0 billion (6%) for Penama Province, and VT
2.9 billion (6%) for Malampa Province (see Figure 1).

35,00030,000Total Effect (VT millions)Figure 1. Combined
Damage and Loss by
Province

25,00020,00015,00010,0005,000
0Malampa

PenamaShefa

Impacted provinces of Vanuatu
n Damage n Losses

Tafea

Vanuatu | Post-Disaster Needs Assessment xi

Summary of Macroeconomic Impact Assessment
The overall macroeconomic impact assessment of Tropical Cyclone Pam includes revised
projections for GDP, as well as an updated monetary, fiscal, and balance-of-payments outlook. The
effect on GDP has been calculated using the existing baseline forecasts, which have been modified
to incorporate the estimated losses and reconstruction needs as identified by each sector. Given
that Tropical Cyclone Pam struck during the first quarter of 2015, a large proportion of the losses
will be felt this fiscal year, with much of the recovery and some reconstruction activity also due
to occur in 2015. The remainder of the reconstruction activities are anticipated to be completed
during 2016 and 2017.

The losses
resulting from
Tropical Cyclone
Pam are estimatedto reduce GDP
growth by 5.5
percentage points
relative to the
The forecast for inflation in 2015 has been revised upward from 3.1% to 3.6%, reflecting the expected 2015 pre-cyclone
increase in the prices of food and housing materials and increased reconstruction activities, forecast, bringing
particularly in the short term, as well as the expected increase in liquidity associated with the the growth rate
release of significant payments to Vanuatu National Provident Fund members and monetary easing down to -0.9%
measures.
and representing
a significant
It is anticipated that the performance of the balance of payments will be affected by exports declin- slowdown to theing relative to pre-cyclone levels. This will be somewhat moderated because the provinces that pro- Vanuatu economy
vide the majority of cash crop exports were less affected by the cyclone, while imports are expected in 2015.
The losses resulting from Tropical Cyclone Pam are estimated to reduce GDP growth by 5.5
percentage points relative to the 2015 pre-cyclone forecast, bringing the growth rate down to -0.9%
and representing a significant slowdown to the Vanuatu economy in 2015. However, taking into
account the effect of recovery and reconstruction, GDP growth in 2015 is estimated to be 1.4%. The
positive growth figure reflects the scale of the reconstruction activities expected to take place in2015 and beyond. Thus the GDP growth rate is expected to accelerate in 2016 and 2017, with the
majority of activities anticipated to take place in 2016.

to rise due to increased demand for reconstruction materials. Tourism earnings are expected to bedramatically affected, with most major hotels closing their doors for three to six months. Cash grants
and aid in kind are anticipated to increase significantly compared to previous years.
There will be a number of impacts on the government’s fiscal balance. In order to support
reconstruction efforts, value-added tax and duty exemptions were introduced in the hardware
and agricultural supplies sector on March 14 for a three-month period. This is expected to support
reconstruction efforts to the value of VT 145 million. Additionally, the government has spent VT 242.3
million from its VT 248 million Emergency Relief Fund in supporting the immediate humanitarian
response. Furthermore, line ministries have redeployed funds from their 2015 budgets for recovery
activities, and these will have to be replenished.
General budget support from the European Union totaling VT 359.6 million, as well as a VT 202.0
million insurance payout from the World Bank, has been released into the recurrent budget for
financing recovery-related expenditures. At the same time, grant funding for cyclone recovery
operations equivalent to VT 667.4 million has been received from donors. Furthermore, estimates ofrecovery and reconstruction needs in the public sector will have to be accounted for as additional
expenditures for 2015 and beyond.

xii Tropical Cyclone Pam, March 2015

Men salvaging equipment inPort Vila Following Cyclone
Pam. © Becky Last, Vanuatu
Dept. of Tourism.

Human and Social Impacts
The cyclone has
seriously harmed
the livelihoodsof over 40,000
households,
severely limiting
their capacities togenerate income
and resulting inlosses of aroundVT 1.6 billion inpersonal income.

Tropical Cyclone Pam affected communities and individuals in a number of ways that will require
support, intervention, and monitoring. The cyclone has seriously harmed the livelihoods of over
40,000 households, severely limiting their capacities to generate income and resulting in lossesof around VT 1.6 billion in personal income (see Table 1). Tropical Cyclone Pam also extensively
damaged or destroyed community infrastructure, disrupting daily life and—at a time when incomes
have been lost—requiring extra expenditures to pay for repairs or replacement.
Low-income individuals and those depending on subsistence livelihoods are suffering in the postdisaster period due to reduced incomes and food sources. Among all agricultural households locatedin disaster-affected provinces, 50% have lost all or part of their crops, and they will require support
in the short term to meet minimum needs. The impact on subsistence farming, in which womenfeature prominently in the division of labor, means that the ability of women to generate income
to provide food, nutrition, and other basic needs for their families has significantly decreased.
Enabling households to recover their productive and income-generating activities and increasing
the resilience of livelihoods to future shocks must be a key component of the reconstruction andrecovery process.
The destruction of critical infrastructure has the potential to impact all people, but vulnerable
groups in particular. Disaster events can also create new vulnerabilities by impacting employment
and livelihood-generating abilities, personal safety, public health and sanitation, household efficiency, and food production. Accordingly, restoration of health facilities, water supply systems,
schools, and housing is considered a priority in order to minimize the social and human impacts ofTropical Cyclone Pam.

Vanuatu | Post-Disaster Needs Assessment xiii

Summary of Recovery and Reconstruction Needs
Table 2 provides a summary of the estimated costs for recovery and reconstruction. Total recovery
and reconstruction is estimated at VT 34.1 billion (US$316 million). Of this amount VT 10.3 billion(US$95 million) is focused over the short-term (12 months to four years).
Recovery Needs(VT million)

Productive Sectors
Agriculture

Table 2. Recovery
Needs by Sector

Share of Recovery Needs (%)

Short-term
needs(0-1 years)

Medium- tolong-termneeds(2-4 years)

Total needs(0-4 years)

PrivatePublic

4,510

1,321

5,832

79

21

651

1,162

1,813

73

27

2,280

97

3

Commerce and Industry

2,280

Tourism

1,579

159

1,738

60

40

Social Sectors

1,236

18,72919,96453

47

11,931

12,256

86

14

774

0

100

Housing

325

Health774

Education

100

6,749

6,849

0

100

Culture & Religious Buildings

36

49

85

44

56

Infrastructre Sectors

3,574

2,610

6,184

13

87

Transport

2,189

1,734

3,923

20

80

Public Buildings

297

295

592

0

100

Water Supply Sanitation

365

571

936

0

100

3

10

13

100

0

720

0

100

128

0

100

EnergyCommunications

720

Cross Cutting sector

38

Environment

90

38

90

128

Social and Houshold

694

844

1,539

30

70

Employment, Household andCommunity Livelihoods

694

844

1,539

30

70

Disaster Risk Management

275

203

478

0

100

Disaster Risk Management
TOTAL

275

203

478

10,326

23,79834,124

100

100
48

52

xiv Tropical Cyclone Pam, March 2015

Way Forward
Going forward, there is a need to prioritize the sectors for recovery and reconstruction based on
the findings of this Post-Disaster Needs Assessment and the available financial envelope. A criteriabased prioritization of recovery needs across competing intersectoral priorities will be required.
The principles of prioritization would include the following:■■

Potential for direct and widest humanitarian impact■■

Potential to generate sustainable livelihoods■■

Inclusive (pro-poor and pro-vulnerable strategies)■■

Balance between public and private sector recovery■■

Restoration and rebuilding of critical infrastructure and services

The recovery program, while implemented under the government’s leadership, is anticipated towork in close and collaborative partnership with the private sector and civil society of the nation asa whole, and should be guided by a detailed recovery framework that incorporates consideration of
the following:■■

The rehabilitation and financing of the public sector will come from public financing, with thesupport of the traditional donors of the country. At this stage it is difficult to know the amountof public resources available. Public funding will probably be a mix of grants, credits, loans,and contribution from the budget.

■■

The rehabilitation and refinancing of the private sector will come from savings, debt, grants,
subsidies, or duty waivers. Those who can borrow from banks will be faced with repair bills
and diminished income, or have extra working capital needs to fund the reconstruction.
While the Reserve Bank of Vanuatu has eased monetary policy and made available short-term
facilities, there is still a significant demand for funding to meet the VT 17 billion (US$157)
million shortfall on insured damage.

■■Taking into account Tropical Cyclone Pam’s impacts on the population and all sectors, it should
be noted that some groups are more impacted than others by the associated shocks andstresses; these include youth, women in general, women heads of households, and persons
living with disabilities. Other sectors and groups are less vulnerable, have more resources attheir disposal, and will proceed to self-recover more easily. Therefore, government should
consider strategically allocating some of its funds and those of donors to directly assist themore vulnerable groups.

■■

In a country as vulnerable to natural hazards as Vanuatu, which faces frequent extreme
weather events and geohazards, the longer-term reconstruction strategy should recognize thethe importance of strenthening resilience of communities and individuals and should seek
to enhance existing coping mechanisms. There is a role to be played by the government inensuring that individuals and communities are provided with necessary technical and social
support throughout the reconstruction phase, and that the most vulnerable are targeted.

Vanuatu | Post-Disaster Needs Assessment 1

1

Introduction

Aerial view of storm surge damage and undercutting of the ring road on North Efate. Source: © X-craft. Reproduced with permission;
further permission required for reuse.

2 Tropical Cyclone Pam, March 2015

1.1

Disaster Risk Profile of Vanuatu

Vanuatu is considered to be the world’s most vulnerable country to natural hazards. This is due
to a combination of Vanuatu’s exposure to both geophysical and hydrometeorological hazards,
and its limited financial and technical capacity to prepare for and respond to the associated risks.
Geographically, Vanuatu is located in the Pacific Ring of Fire and at the center of the Pacific cyclone
belt. This results in a relatively high frequency of volcanic eruptions, cyclones, earthquakes,
tsunamis, storm surges, coastal and river flooding, and landslides. In addition, the country suffersfrom extreme events associated with climate variability, including sea-level and temperature
extremes and droughts (UNU-EHS 2014).
Consequently, Vanuatu is expected to incur, on average, US$48 million per year in losses due toearthquakes and tropical cyclones. In the next 50 years, Vanuatu has a 50% chance of experiencing aloss exceeding US$330 million, and a 10% chance of experiencing a loss exceeding US$540 million.4

1.2
Vanuatu is
expected to incur,
on average,
US$48 million peryear in losses due
to earthquakes
and tropical
cyclones.

Socioeconomic Context of Vanuatu

Vanuatu is an archipelago of 83 volcanic islands (65 of them inhabited) covering a total area of
about 12,200km2, of which approximately a third is land. Vanuatu’s population of approximately
253,000 people is almost evenly distributed among the six administrative provinces: Malampa,
Penama, Sanma, Shefa, Tafea, and Torba. An estimated three-quarters of households engage inprimarily subsistence livelihoods in rural areas.
Vanuatu faces many of the geographic and structural challenges common to other countries in the
Pacific. Remoteness, in conjunction with small size and internal dispersion, imposes additional costsof trade and transportation, and means that domestic markets tend to be too small for industries tobenefit from economies of scale. The same factors also push up the cost and complexity of providing
public services and fulfilling the basic functions of government.
Despite these challenges, Vanuatu has taken advantage of opportunities to support growth andprivate sector development in recent years. It has become one of the faster-growing economies in
the Pacific region, with growth mainly driven by tourism, construction, and aid inflows. However,Vanuatu remains vulnerable to external shocks (due in part to its narrow economic base) and natural
disasters. Moreover, the cost of basic infrastructure services remains relatively high, which adversely
affects the environment for doing business and reduces connectivity. While extreme hardship isvery rare in Vanuatu, the challenge of ensuring that the benefits of growth are distributed broadly
across the population is ongoing. Gross domestic product (GDP) per capita is estimated at around
US$3,300, which is below the average for Pacific Island countries.
Because of the high cost structure, low tax revenues, and limited space for additional borrowing,
Vanuatu has found it difficult to provide substantial funding for basic public services and infrastructure.
However, the government has recently embarked on a new infrastructure development program
financed with a mix of development grants and loans. The government’s focus on infrastructure
investments and better access to basic services should help relax some of the binding constraints toeconomic growth, while also directly benefitting the population.
4

The calculation is based on modelling from PCRAFI (2011).

Vanuatu | Post-Disaster Needs Assessment 3

1.3

Tropical Cyclone Pam

Between March 12 to 14, 2015, Tropical Cyclone Pam struck 22 islands of Vanuatu as an extremely
destructive Category 5 cyclone. The cyclone swept through the southern portion of Vanuatu’s islands
with estimated wind speeds of 250km/h and wind gusts that peaked at around 320km/h (Figure 2).
At approximately 11 p.m. local time, the cyclone’s western eyewall passed over the eastern side of
Efate Island, which has a population of approximately 66,000 and is home to the capital city of Port
Vila. Tropical Cyclone Pam then continued southward, passing just west of Erromango Island andTanna Island.
Following the cyclone’s passage from Vanuatu, there were reports of significant damage. The storm
brought down communications systems linking the islands, which hampered initial efforts to obtaina comprehensive understanding of the full scale of the disaster impacts. Eleven fatalities were
subsequently confirmed in Tafea and Shefa Provinces. Fifteen thousand buildings were damaged or
destroyed, including houses, schools, clinics, and medical facilities. An estimated 65,000 people
were displaced and required temporary shelter. The cyclone destroyed crops on a large scale, andcompromised the livelihoods of at least 80% of Vanuatu’s rural population.

Figure 2. Modelled
Maximum Wind Speedfrom Tropical Cyclone
Pam over Vanuatu
Source: Pacific Catastrophe
Risk Assessment and Financing
Initiative (PCRAFI) event brief
April 2015.

Fifteen thousandbuildings weredamaged or
destroyed … an
Severe and widespread damage was worse on the larger islands of Tanna, Erromango, and Efate than estimated 65,000
on the smaller islands of Anatom, Aniwa, and Futuna in the southern region. A detailed breakdown people are in needof damage and loss by sector, province, and split between public and private ownership is provided of temporary
in Annex 2 to this Post-Disaster Needs Assessment (PDNA).
shelter.

4 Tropical Cyclone Pam, March 2015

Damage to Port Vilawaterfront. © Becky Last,
Vanuatu Dept. of Tourism.

1.4 Response from the Government and Development Partners
On March 15, in the wake of Tropical Cyclone Pam, the government of Vanuatu officially declared astate of emergency for Shefa Province (which includes Port Vila). On the same day, the president of
Vanuatu appealed for international support to respond to the crisis.
The government of Vanuatu has lead and continues to lead response efforts, with the support of
the Pacific Humanitarian Team and the Vanuatu Humanitarian Team. Humanitarian partners—
including the United Nations, the European Union (EU), international and national nongovernmentalorganizations (NGOs), international governments, donors, and civil society and other partners—
are also supporting the government-led response. In order to obtain a baseline overview of thesituation on the ground, reach a common understanding of the scale and severity of the cyclone,
and target the response accordingly, the government of Vanuatu undertook a joint Initial Rapid
Needs Assessment. The assessment indicated that there was an urgent need for food, water, medical
supplies, hygiene kits, kitchen kits, tents, and bedding. Humanitarian agencies are working with thegovernment to develop a single Humanitarian Action Plan that is based on the identified needs ofthe affected communities.
To assess the impact on key sectors, gain a full understanding of the scale of Tropical Cyclone Pam’s
economic impact, and assist in mobilizing the resources needed for recovery and reconstruction, thegovernment of Vanuatu requested that a Post-Disaster Needs Assessment be conducted. This PDNA
and the Humanitarian Action Plan will form the basis of a Joint Action Plan to be prepared by thegovernment of Vanuatu. The Joint Action Plan will provide a framework to guide the recovery andreconstruction within all the sectors that have been affected by Tropical Cyclone Pam.

Vanuatu | Post-Disaster Needs Assessment 5

1.5 Post-Disaster Needs Assessment Methodology
The assessment methodology is based on the PDNA guidelines (GFDRR 2013). The PDNA is anapproach to analyzing disaster effects and disaster impact for the purpose of identifying recovery
needs, understood from human, socio-cultural, economic, and environmental perspectives. A
unique aspect of the PDNA is that it is led and owned by the government of the affected country
with assistance from a multidisciplinary, multiagency team. In this instance, the PDNA teamcomprised the World Bank, Global Facility for Disaster Reduction and Recovery (GFDRR), United
Nations agencies, the European Union, the Secretariat of the Pacific Community, and other relevant
stakeholders. The methodology has three main elements: assessment of disaster effects, assessmentof disaster impact, and recovery strategy and needs.

1.5.1 Assessment of Disaster Effects
Under the PDNA methodology, assessment of the disaster effects is based on a bottom-up approach;it captures the information about the effects of the event sector by sector and then aggregates thedata to arrive at the total effect of the event on the society and the economy. Assessment of disaster
effects is based on the quantification of damage and losses.
■■

Damage to infrastructure and physical assets is the quantification of public and private sector
infrastructure and assets destroyed in the disaster. Damage includes either total or partial
destruction of the assets.

■■

Losses due to disruption of access to goods and services are defined as changes in economic
flows and higher costs in production arising from the disaster. They occur until full economic
recovery and reconstruction is achieved, in some cases lasting for several years. Typicallosses include the decline in output in productive sectors (i.e., agriculture, livestock, fisheries,
industry, commerce, and tourism).

The disaster effects also include a qualitative assessment of the increased risks and vulnerabilities
resulting from the disaster.

Damage to buildings mappedfrom X-craft footage. Source:
Micromappers.
Legend:= Fully destroyed= Partially damaged= Little or no damage

6 Tropical Cyclone Pam, March 2015

1.5.2 Assessment of Disaster Impact
Within the PDNA methodology, the assessment of the impact of a disaster encompasses the impact
on the macroeconomy, employment, livelihoods, and households.
■■

Economic impact at the macro level includes the estimation of the disaster’s likely effects on
economic performance and the temporary macroeconomic imbalances that may arise fromthe disaster.

■■Social and household impact includes the impacts of the disaster on household and community
livelihoods, employment, and gender.

1.5.3 Recovery Strategy and Needs
The assessments of disaster effects and disaster impacts collectively assist with the determinationof recovery needs under the PDNA methodology, and incorporate the concept of “building backbetter” (BBB).5 The identified recovery needs form the basis for determining short-, medium-, andlong-term recovery and reconstruction interventions through a recovery strategy. Accordingly, themain goal of a PDNA is to assist governments in assessing the full extent of a disaster’s impact on
the country and, on the basis of these findings, to produce an actionable and sustainable recovery
strategy for mobilizing financial and technical resources.

1.5.4 Specific Context of This PDNA
The geographical context of this PDNA is limited to the provinces of Malampa, Penama, Shefa, andTafea, the four provinces where Tropical Cyclone Pam’s impact was concentrated. Annex 3 provides
a map of Vanuatu that clearly shows all provinces.

1.5.5 Limitations of This Rapid Assessment
This assessment was completed 36 days after the cyclone event of March 13. For the first weeks, muchof the work focused on humanitarian efforts, cleanup, and restoration of basic services. In parallel,
the sector teams completed the significant task of collating the data for this assessment. Despite
highly commended efforts by each of the sector teams, data collection in this short time frame
competed with other efforts to get Vanuatu operational. In some cases, businesses and services did
not have operational premises, could not be contacted, or simply did not have the damage and loss
information available. Accordingly, this assessment reports only on the data received at the time ofwriting and is not a full assessment of total damage and losses. The estimates of damage, losses, andneeds may therefore be underestimates. These limitations were acknowledged at the outset by thegovernment of Vanuatu, which agreed that additional work may be required.

5

Building back better (BBB) is an approach to reconstruction that seeks to reduce vulnerability and improve living
conditions, while promoting more effective and sustainable reconstruction. BBB uses the opportunity of having torebuild to examine the suitability and sustainability of reconstruction activities.

Vanuatu | Post-Disaster Needs Assessment 7

2

Macroeconomic
ImpactDamage to structures in Port Vila - including the Ministry of Finance building. © Becky Last, Vanuatu Dept. of Tourism.

8 Tropical Cyclone Pam, March 2015

2.1

Pre-Disaster Economic Outlook

Before Tropical Cyclone Pam struck on Friday, March 13, 2015, Vanuatu was looking forward to three
years of economic growth of over 4.5% per year, following moderate growth of around 2% per year
between 2012 and 2014.
In 2014 the economy grew at an estimated rate of 2.3%, driven partly by strong growth in theinformation and communications sector following the completion of the submarine cable project.
The implementation of large construction projects in the public sector continued to contributeto growth, although growth was lower than previously forecast due to delays in some projects.
Performance in the tourism sector was mixed; although the number of air arrivals recorded a slightdecline, the number of cruise ship arrivals continued to register steady growth. The agriculture
sector continued to grow at a moderate pace, reflecting increases in livestock production.
Prior to Tropical Cyclone Pam, it was projected that the economy would show strong growth over the
medium term; the forecast was for 4.6% growth in 2015 and 4.7% growth in 2016, slowing slightly
to 4.4% in 2017. This was underpinned by the boost in construction and other related activities,
resulting from the implementation of key public sector infrastructure projects. Strong growth was
also projected in the tourism sector and other related services.

Inflation and Monetary Developments
During 2014 inflation remained comfortably within the 0–4% range targeted by the Reserve Bankof Vanuatu (RBV). In the December quarter of 2014, the Consumer Price Index (CPI) rose by 1.1%
over the same quarter of the previous year. Low global prices for fuel and food items had placed
downward pressure on imported inflation while domestic inflation remained contained. In lightof this situation, the RBV maintained an accommodative monetary policy stance, reducing its
rediscount rate from 5.50% to 5.25% in November 2014. Despite these low levels, it was anticipatedthat CPI inflation would rise to 3.1% in 2015 due to the projected increase in domestic demandand overall economic activity. In the monetary sector, money growth was slower than trend growthlevels in the immediate period preceding Tropical Cyclone Pam, although liquidity was high within
the banking system.

Balance of Payments
The current account was projected to return to deficit in 2015 with an expanded trade deficit offsetting
inflows from tourism earnings and remittances from the Recognised Seasonal Employers scheme.6 The
strong growth projected for imports in 2015 was due to the implementation of major projects, with
fuel and other project-related items the main contributing factor. Imports were set to further increasein 2016, thus widening the current account deficit, before slowing in 2017. Exports were projected to
be lower in 2015, falling to around 8% of GDP, due to low commodity prices. Tourism earnings andgrants were not expected to offset the increase in imports in 2015/16 and 2017.

Fiscal Developments
The government fiscal position improved significantly over the past four years, with sizable fiscal
surpluses. The 2015 national budget of VT 18,162.9 million was higher than the 2014 budget by

6

The Recognised Seasonal Employers scheme is a program in New Zealand that allows a quota of ni-Vanuatu topick fruit and perform other seasonal agricultural work on a temporary basis.

Vanuatu | Post-Disaster Needs Assessment 913.2%. At the time the budget was passed, the fiscal outlook was positive, with sizable operating
surpluses forecast to 2017. The government was projected to run a fiscal surplus of VT 613.5 million
in 2015, which was going to be used to meet external debt repayments. However, since the budget
was passed, the outlook for revenue has considerably worsened due to the anticipated loss in revenue of VT 950 million through the Permanent Residency Scheme.

2.2 Post-Disaster Economic Outlook
The overall macroeconomic impact assessment includes revised projections for GDP, as well as
updated fiscal and monetary outlooks.
In order to determine the impact of Tropical Cyclone Pam on GDP, the existing baseline forecasts
have been modified to incorporate the estimated losses and reconstruction needs as identified byeach sector. Given that the cyclone hit in early 2015, a large proportion of the losses will be felt inthe 2015 calendar year, although much of the recovery and some reconstruction activity will also
occur in 2015. The remainder of the reconstruction activities are anticipated to be completed during
2016 and 2017.
The losses resulting from Tropical Cyclone Pam are estimated to reduce GDP growth by 5.5
percentage points relative to the 2015 pre-cyclone forecast, bringing the growth rate down to -0.9%.
This represents a significant contraction of the Vanuatu economy in 2015, moderated only by thesignificant effect of the already-planned construction projects on GDP growth.
Recovery and reconstruction, some of which has already commenced, will have a large positiveeffect on GDP growth in 2015, thus offsetting part of the economic losses. Taking into account theeffect of recovery and reconstruction, GDP growth in 2015 is estimated to be 1.4%. This represents
a decline of 3.2% compared to the pre–Tropical Cyclone Pam baseline scenario. The positive growth
figures for 2015 and beyond reflect the scale of the reconstruction activities under the assumptionthat all the identified recovery needs are met.
The exact growth rate would depend not only on the availability of financial resources to meetthe reconstruction needs, but also on capacity constraints. There is a risk of delays due to skill

72,000Figure 3. ConstantPrice of GDP Forecast:Pre- and Post-Tropical
Cyclone Pam(VT million)

70,000GDP (VT millions)

68,00066,00064,000Sources: Baseline estimatebased on Macroeconomic
Committee forecast; postdisaster estimate based ondata submitted to PDNA team.

62,00060,00058,00056,0002014

2015

Calendar year

Baseline forecast pre-cyclone

2016
Forecast post-cyclone

2017

10 Tropical Cyclone Pam, March 2015

Sources: Baseline estimatebased on Macroeconomic
Committee forecast; postdisaster estimate based ondata submitted to PDNA team.

12.0

Total effect (VT millions)Figure 4. Economic
Growth: Pre- and PostTropical Cyclone Pam

10.0
8.0
6.0
4.0
2.0
0.0
2014

2015

Calendar year

2016

2017

n Baseline forecast pre-cyclone n Forecast post-cyclone

shortages within the construction sector and uncertainty regarding the availability of locally sourced
materials. The reconstruction over the next three years will require the existing capacity constraints
to be addressed. It is expected that a large proportion of the reconstruction activity will take placein 2016 and beyond. Thus the GDP growth rate is expected to accelerate to 10.3% in 2016. The
outlook for 2017 assumes that reconstruction will continue, resulting in a growth rate of 3.6%, as
the reconstruction activities conclude and the economic situation normalizes.

2.3 Inflation and Monetary Developments
As a result of Tropical Cyclone Pam, the forecast for inflation in 2015 has been revised upward,
from 3.1% to 3.6%, reflecting the expected increase in the prices of food and housing materials
to be used in the reconstruction efforts. There are significant upside risks to the inflation forecast
resulting from increased reconstruction activities, particularly in the short term. In addition, thepartial release of Vanuatu National Provident Fund (VNPF) funds to members may further increase
the risk of inflation.
Following Tropical Cyclone Pam, the RBV undertook further accommodative monetary policy bothto support the economy and to provide liquidity support to the banking system. In March 2015,
the RBV reduced the statutory reserve deposit requirement, which comprises reserve deposits ofcommercial banks held as required reserves, from 7% to 5%. The RBV policy rate was reduced from
5.25% and linked to the 91-day RBV note rate, which at the moment of the disaster stood at 1.8%.
This change therefore represented a significant reduction in the RBV policy rate.
The RBV also allowed holdings of commercial banks to be part of security for the RBV’s Secured
Advance Facility, in addition to the commercial banks’ holdings of government bonds and RBV notes.
This change was taken as part of RBV’s response to support banking system liquidity, following thegovernment’s decision to allow withdrawal of 20% of member retirement funds in the VNPF as partof the response to Tropical Cyclone Pam; but the move had an impact on banking liquidity. The RBV
also activated the Natural Disaster Reconstruction Credit Facility to all businesses for the purposeof rehabilitation and reconstruction following the disaster. This is a low-cost back-to-back lending
facility via commercial banks that allows domestic commercial banks to obtain credit from the RBV
at a 1% interest rate for the purpose of on-lending to all businesses at a maximum of 5% interest
a year. Repayment is for six months and can be rolled over up to five years. The lending window isavailable until September 30, 2015.

Vanuatu | Post-Disaster Needs Assessment 11

Balance of Payments

As a result of
Tropical Cyclone
Pam, the forecast
for inflation in2015 has beenrevised upward,
from 3.1% toCash grants and aid in kind are anticipated to increase significantly such that, despite the reduction 3.6%, reflecting
in tourism earnings and the expanded trade deficit, the impact on the official reserves is expected the expected
increase in theto be minimal in 2015.
prices of food andhousing materials
Fiscal Developments
to be used in the
There will be a number of impacts on the government’s fiscal balance. In order to support reconstruction
reconstruction efforts, value-added tax (VAT) and duty exemptions were introduced in the hardware efforts.
It is anticipated that the performance of the balance of payments will be affected in several ways by
Tropical Cyclone Pam from 2015 onward. First, exports are now likely to decline relative to the precyclone forecast, as there has been some damage to cash crops, including kava and copra. However,
the impact of this is somewhat limited, as many export crops come from the provinces that wereless affected by the cyclone. Import of reconstruction materials is now expected to rise to higher
levels. Tourism earnings are expected to be dramatically affected, with most major hotels closing
their doors for three to six months.

and agricultural supplies sector on March 14 for a three-month period. This is expected to support
reconstruction efforts to the value of VT 145 million. Additionally, the government has spent VT 242.3
million from its Emergency Relief Fund of VT 248 million in supporting the immediate humanitarian
response. Furthermore, line ministries have redeployed funds from their 2015 budgets for recovery
activities, and these will have to be replenished.

General budget support from the EU totaling VT 359.6 million, as well as a VT 202.0 million
insurance payout from the World Bank, has been released into the recurrent budget to be used
to finance recovery-related expenditures. At the same time, grant funding for cyclone recovery
operations equivalent to VT 667.4 million has been received from donors. Furthermore, estimates ofrecovery and reconstruction needs in the public sector will have to be accounted for as additional
expenditures for 2015 and beyond.

Damage and debris in Port
Vila. © Becky Last, Vanuatu
Dept. of Tourism.

12 Tropical Cyclone Pam, March 2015

Fiscal position after Cyclone Pam
A fiscal scenario incorporating all currently available, relevant post-cyclone information presents alarge forecasted net operating deficit for the GoV of VT 123.7 million in 2015, VT 940.7 million in2016 and VT 812.0 million in 2017. Including donor financing, the forecasted net operating surplus
would amount to a total of VT 18.1 million in 2015, VT 940.7 million in 2016 and VT 812.0 million
in 2017.
However, taking into account that the reconstruction efforts will require substantial investment in
fixed assets, this fiscal scenario shows an estimated net borrowing (or fiscal deficit) for the GoV of
VT 5,548.5 million in 2015, VT 8,090.8 million in 2016 and VT 6,264.9 million in 2017. Considering
donor financing, the combined net borrowing (or fiscal deficit) is now estimated at VT 11,296.7
million in 2015, VT 14,918.9 million in 2016 and VT 13,956.0 million in 2017. Amore detailed
picture of this fiscal scenario is provided in Annex 4.

Revenues
As of May 2015, Tropical Cyclone Pam had a number of effects on GoV revenues. While negative
impacts on revenues manifest themselves in the form of revenues forgone under tax exemptions andlosses in revenues due to the cyclone’s negative effect on GDP, the GoV also received an insurance
pay-out from the Pacific Catastrophe Risk Insurance Pilot and donor grant funding from foreign
governments and other organisations for relief operations.
As mentioned above, on 14th of March, the GoV granted VAT and duty exemptions on construction
materials and gardening tools, in order to support the country’s reconstruction efforts. The revenues
thus forgone will however also further aggravate the difficult fiscal and cash flow position of the GoV.
These exemptions will stay in place until 12th June, i.e. for a total of 3 months.
The effect of these exemptions on revenues from VAT and duties is hard to determine at this point, as
several distinct forces are at play. Firstly, VAT is forgone due to the exemptions. Secondly, imports on
both construction tools and gardening materials would be higher than usual after the cyclone due toincreased demand for such goods. Thirdly, individuals may have spent money on the purchase of thesereconstruction goods that they would have otherwise used to buy other consumption goods that are
not currently VAT exempted. Finally, members of the Vanuatu National Provident Fund (VNPF) wereauthorised to withdraw 20% of their contributions and commercial banks deferred repayments of debt
until three months. These measures increased household’s disposable income that could have led tohigher spending on both reconstruction related materials and consumption goods.
The long-term impact of the cyclone on revenues collected from VAT, duties and other revenues has
yet to be estimated. Given the uncertainty surrounding the post-cyclone situation, it is currently too
early to produce accurate forward projections.
To date, the GoV has received grants worth VT 473.0 million. These financial resources are specificallyintended to fund emergency relief operations and will be used, to the extent possible, to fund minor
reconstruction or recovery operations. The GoV also received an insurance pay-out of VT 202.0
million from the Pacific Catastrophe Risk Insurance Pilot (PCRIP) administered by the World Bank.

Vanuatu | Post-Disaster Needs Assessment 13

Expenditures
Due to the cyclone, the GoV has incurred a total of around VT 309.9 million of unexpected
expenditures to date, made up both of spending by line agencies and centred through the Declared
State of Emergency Budget. In addition, initial costing as part of this PDNA indicates that VT 34.1
billion will be required for recovery and reconstruction.
In the aftermath of the cyclone, the Council of Ministers approved a Declared State of Emergency
Budget of VT 248.0 million under the Ministry of Finance and Economic Management (MFEM). This
supplementary budget was financed in part through the PCRIP pay-out of VT 202.0 million and therest was sourced from within the GoV’s recurrent budget. As of 6th May 2015, VT 258.3 million had
been spent on relief operations. As the cost of these operations are higher than originally anticipated,
the GoV had to draw down on the annual budget allocated for emergencies to finance these.
As of 6th May, 2015, spending on emergency relief operations from Ministries’ recurrent budgets
totalled VT 51.6 million. It is possible that there are further cyclone expenditures that were made byline agencies, which are not reflected in this figures.
Total cyclone related damages and losses have been estimated at VT 29.2 billion and VT 19.3
billion respectively. 69% of these disaster effects fall within private ownership and the remaining
31% of effects are within public ownership. This breakdown provides guidance on the sharing of
responsibilities during the reconstruction and recovery process. Furthermore, the recovery andreconstruction needs are estimated at VT 34.1 billion, 52% of which will come under the publicdomain.
Applying the same reasoning as for post-cyclone GDP forecasts in the PDNA, it is assumed that 30%of these expenditures will be incurred in 2015, 40% in 2016 and 30% in 2017.

Women walk through debris scattered streets in Port Vila following Tropical Cyclone Pam. © Silke Von Brockhousen, UNDP.
Reproduced with permission; further permission required for reuse.

3

Damage, Loss, andNeeds by Sector

16 Tropical Cyclone Pam, March 2015

3.1

Productive Sectors

3.1.1 Agriculture, Livestock, Forestry, and Fisheries
Summary
For the purpose of this PDNA, the agricultural sector is defined to include the crops, livestock,fishery, and forestry subsectors. The sector is dominated by crops, which represented 79% of
the agriculture sector contribution to GDP in 2013, significantly higher than livestock (14%),
forestry (5%), and fisheries (3%).

Total agriculture
sector damage
and losses causedby Tropical
Cyclone Pam are
estimated to beslightly less thanVT6.1 billion.

Total agriculture sector damage and losses caused by Tropical Cyclone Pam are estimated tobe slightly less than VT 6.1 billion. Consistent with its share in sector GDP, the crop subsector
was the most affected (69%), followed by forestry (16%), livestock (9%), and fishery (6%) (seeFigure 5). Permanent crops, such as kava, banana, coconut, cocoa, and coffee, were the mostimpacted by the cyclone, but seasonal crops (vegetables) and annual crops (cassava, taro) also
suffered important losses. Livestock subsector damage and losses occurred mainly in Shefa andTafea Provinces, mostly for commercial poultry farms and for pigs and apiculture activities. In
the forestry subsector, damage to infrastructure and trees affected the timber industry in Tafeaand Shefa. The fishery sector was also affected, with the heaviest impact on artisanal fisheries
and commercial aquaculture.
Agriculture, Livestock, Forestry, and Fisheries Sector Background
The agriculture sector represented approximately 25% of the VT 75.8 billion GDP in 2013. Approximately 80% of Vanuatu’s population relies on agriculture (mainly crops, livestock, and fisheries)
for livelihood and food and nutrition security, and at least 71% of the rural population derivessome income from agricultural activities (VNSO 2013). Vanuatu’s agriculture sector is dominated bysemi-subsistence farmers using mostly household labor, who are located in tiny village communities
spread throughout the archipelago. Food is the most important household expenditure item among
rural households, representing 56% of total household expenditure, with the large share of the value of this expenditure being for home consumption among subsistence farmers.7
7

Based on the Vanuatu 2010 Household Income and Expenditure Survey, Vanuatu National Statistic Office, Port
Vila, Vanuatu.

Figure 5. Agriculture
Damage and Losses
by Subsector andAffected Province(VT million)

Livestock546 9%

Malampa
691 11%Shefa
1,866 31%

Forestry951 16%

Crops
4,175 69%

Fisheries
391 6%

Damage and losses bysubsector

Penama2,023 33%

Tafea
1,483 24%

Damage and losses byaffected provinceVanuatu | Post-Disaster Needs Assessment 17

Crops. Dominant food crops include taro, yam, banana, plantain, peanut, corn, and leafy vegetables.
Copra, kava, and cocoa are the major export crops and important sources of cash income for manyrural households. Some 80% of semi-subsistence households derive income from copra, while 30%
to 40% of households also receive income from cocoa and kava. However, due to logistical constraints associated with the geographical isolation of many islands, rural households find it difficult
to access markets for cash crops, particularly in the most remote areas.
Livestock. Most rural households also raise livestock such as chickens (64%), pigs (45%), and cattle(29%) (VNSO 2009). Vanuatu also has commercial poultry, pig farming, and beef industries, andexports premium beef mainly to Japan and other Pacific countries.
Forestry. The forests of Vanuatu occupy around 70% of the country’s total land area (about 1.2 million ha.8) Forests and forest products play a significant role in supporting ni-Vanuatu livelihoods byproviding food, clean water, fuel, medicine, and income.
Fisheries. Subsistence and commercial fisheries and harvest of coastal resources are a mainstay
of food security throughout Vanuatu. The fisheries sector (including aquaculture) involves 15,758
households (VNSO 2008). Fish supply for direct consumption was 7,657 tons in 2007, and annual
fish consumption is 33.6kg per capita. Nearly all households in coastal villages (32% of all households in Vanuatu) are involved in coastal fishing activities at different levels of intensity. About 6%
of households in the country are engaged in fishing activities for sale purposes.

Assessment of Disaster Effects on the Agriculture, Livestock, Forestry,
and Fisheries Sector
The loss in production and income has been assessed and estimated for the most affected crops
using an initial mapping-based assessment by the World Food Program, with additional refinementfrom key sector experts.

Description of damage to agriculture, livestock, forestry, and fisheries sector
Crops. The total damage to the crops subsector was assessed at VT 132 million.9 Most of the damagerefers to total or partial destruction to nurseries, driers, and pulperies; damage to agriculture sector
public buildings and machinery; and damage to permanent cash crops such as coconut, coffee, andcocoa. Damage in the crops subsector accounts for around 9% of total damage to the sector. Mostof the damage occurred in Shefa and Tafea, as Table 3 shows, and reflects damage to agricultural
infrastructure.
Livestock. The estimated damage to the livestock subsector was VT 282.7 million, which represents
around 20% of total damage to the sector (Table 3). Impacts on the livestock subsector included
damage to infrastructure and loss of animals, mostly poultry in Shefa Province and pigs in Tafea,
along with damage to fences, chicken sheds, and beehives.

8
9This is based on 1998 data from FAO (2006).
Key parameters for the estimates included the estimated level of the damage (percentage), the average numberof plants/trees cultivated for each crop, the expected income or yield, and the farm gate price. A seasonal crop
calendar was used in order to cross-reference accuracy of the findings in terms of the magnitude of production
losses. The cost for replanting root crops was not considered because most farmers will procure planting material
at no cost (from nondamaged crops).

18 Tropical Cyclone Pam, March 2015

The Port Vila Market, a key
location for buying and selling
local produce, was closed formany weeks following Tropical
Cyclone Pam. © Becky Last,
Vanuatu Dept. of Tourism.

Forestry. The estimated damage to the forestry subsector was VT 738 million, which is more thanhalf (52%) the total damage in the agriculture sector. Damage occurred mostly in Tanna and in Shefa
Province and includes damage to infrastructure (mainly buildings, sheds, and nurseries) and mature
trees, which were uprooted.
Fisheries. For the fisheries subsector, the estimated damage was VT 268 million, which isapproximately 19% of total damage in agriculture. Damage in the fisheries subsector includes thedestruction of fisheries infrastructure and the loss of fishing equipment, canoes, and a few boats.
Half of the damage affected artisanal fisheries activities, and the other half was distributed between
commercial fisheries (24%), loss of fisheries infrastructure (17%), community aquaculture (5%),
fisheries market facilities (3%), and subsistence fisheries (1%).

Table 3. Damage
to Agriculture,
Livestock, Forestry,
and Fisheries Sector
by Subsector andProvince (%)

Province

Crops

Livestock

Forestry

Fisheries

Total

Malampa

7

11

9

9

9

Penama

9

14

7

4

8

Shefa

42

51

41

80

50

Tafea

41

24

43

7

33

Subsector Share of Damage

9

20

52

19

100%

Total Damage (VT 1,000)

131,596282,752

738,318

268,253

1,420,919

Description of the losses to the agriculture, livestock, forestry, and fisheries sector
Crops. The estimated loss to the crops subsector was VT 4.0 billion (Table 4). The cyclone caused
significant damage to fruit trees (banana, citrus), cash crops (kava, cocoa, copra, and coffee), andfood gardens (mostly kumara, cassava, taro, and vegetables). Most of the crop losses are in kava(58%), a crop that is very fragile and vulnerable to strong winds.10 Losses in plantain (12%) and10

Total kava losses were estimated at VT 2.3 billion, which is 6% higher than kava’s contribution to GDP in 2013.
This estimate appears high, although it is based on conservative assumptions with respect to kava prices andVanuatu | Post-Disaster Needs Assessment 19

banana (10%) were also significant. Other crops such as taro, cassava, coconut, and leafy vegetables
account for between 2% and 4% of total losses. Although coffee accounts for less than 1% of losses,
it is mainly produced in Tafea (Tanna) and is an important contributor to this island’s economy.
Livestock. The estimated loss to the livestock subsector was VT 263 million. Production losses will
mainly occur in the poultry, pig, and honey sectors. In addition to livestock, farmers reported lossesof animal feedstock. Livestock is an important source of income for Shefa and Tafea Provinces, andthe loss of animals has a direct economic impact because it means loss of revenue from sales of
eggs, pork, and chicken meat as well as offspring (especially weaners and finishers for pigs).
Forestry. The estimated loss to the forestry subsector was VT 212 million, two-thirds of which is dueto the heavy losses attributable to sandalwood. Losses of indigenous species (17%) and mahogany
trees (6%) were also relatively significant. Forestry losses were concentrated in Tafea and Shefa
Provinces.
Fisheries. For fisheries, losses were estimated at VT 122 million. Fishery losses are expected to arise
from a reduction in daily catch linked to missing fishing equipment, canoes, and boats and to reduced access to fishing grounds (due to floating debris and sedimentation).
Province

Crop

Livestock

Forestry

Fisheries

Total

Malampa

13

6

5

15

12

Penama

46

9

2

5

41

Shefa

21

78

17

60

25

Tafea

20

7

75

20

22

Subsector Share of Losses

87

6

5

3

100

Total Losses (VT 1,000)

4,043,278

263,133

212,332

122,486

4,641,229

DamageLossesTotal Effects

Crops

131,596

4,043,278

4,174,874

Livestock282,752

263,133

545,884

Forestry

738,318

212,332

950,650

Fishery

268,253

122,486

390,739

1,420,919

4,641,229

6,062,148

Total Agriculture
DamageLossesTotal Effects

Private (%)

Public (%)

Malampa

462,697

1,020,125

1,482,822

95%

5%

Penama715,046

1,150,693

1,865,739

86%

14%

Shefa

132,592

557,923

690,515

92%

8%

Tafea

110,584

1,912,488

2,023,072

99%

1%

1,420,919

4,641,229

6,062,148

93%

7%

Total Agriculture

yields (5kg yield per kava plant instead of the average of 10kg; and VT 100 per kg of fresh kava instead of theaverage price of VT 200). However, the estimate appears reasonable if the losses are spread over the three tofour years that are needed for the new kava plants to mature. Taking into account the fact that the four provinces
affected by Tropical Cyclone Pam represent about 69% of total kava output for the country, the estimated annual
losses would amount to 40% to 50% of annual kava output for the four provinces, which is equivalent to 27% to
35% of Vanuatu’s annual kava contribution to GDP.

Table 4. Share ofLosses to Agriculture,
Livestock, Forestry,
and Fisheries by
Subsector andProvince (%)

Table 5. Damageand Losses in the
Agriculture, Livestock,
Forestry, andFisheries Sector by
Sub-Sector(VT 1,000)
Table 6. Damageand Losses in the
Agriculture, Livestock,
Forestry, andFisheries Sector by
Province(VT 1,000)

20 Tropical Cyclone Pam, March 2015

Social impact of damage and losses to the agriculture, livestock, forestry and fisheries sector
It is clear that extensive destruction of food crops has seriously affected households’ food security
and nutrition. Already 61.8% of ni-Vanuatu eat less than five servings of fruits and vegetable per
day as recommended by the World Health Organization.11 A head of island cabbage, a common andimportant vegetable in ni-Vanuatu cuisine, rose from VT 100 before the cyclone to VT 300 at thetime of this PDNA. The loss of vegetables and fruits, compounded by exorbitant vegetable prices,
could place food beyond the means of the most vulnerable households. According to custom, women
eat last; with limited availability of food, there are concerns that women, particularly pregnant andlactating women, may not get sufficient nutrition.

Recovery Strategy and Needs in the Agriculture, Livestock, Forestry, and Fisheries Sector
Given the loss of income and major food access issues resulting from Tropical Cyclone Pam, manysmall farmers are now facing significant hardship. The recovery should focus on facilitating accessto good-quality agro-inputs such as seeds and tree seedlings, supporting animal restocking (andpossible destocking where pastures and feed are heavily depleted), and rehabilitating damaged
infrastructure. This recovery strategy should maintain and strengthen inclusion, and incorporate
clear identification and participation of vulnerable groups, with a gender focus where necessary. Itshould also include nutrition and food security concerns through the medium and longer term.
The total value of recovery needs is estimated at VT 1.8 billion, of which VT 0.6 billion is short-term
needs and VT 1.2 billion is medium- to long-term needs.
The recovery and rehabilitation efforts in agriculture primarily aim to support the revival of economic
activity across the sector and to strengthen the capacity of the sector to sustain similar shocks in the
future. The Food Security and Agriculture Cluster (FSAC) has identified short-, medium- and long-term
post-cyclone recovery and reconstruction programs, some of which have been incorporated in the PDNA.12

Short-term recovery for the agriculture, livestock, forestry, and fisheries sector
In the short term,13 immediate attention is to be given to the following: (i) production and distributionof seeds and planting material as well as distribution of tools and equipment for the crops subsector;(ii) distribution of feed and support for stocking and restocking as well as facilitation of access toveterinary products and services for the livestock subsector; (iii) land clearing and sanitation andrecycling of byproducts as well as provision of planting material for the forestry subsector; and (iv)supply of primary fishery inputs and equipment, as well as initial repairs of retrievable assets to
support the recovery of fisheries activities. Short-term recovery needs are set out in Table 7.

Medium- and long-term reconstruction for the agriculture, livestock, forestry, and fisheries sector
In the medium to long term, the rehabilitation and reconstruction strategy aims to increase thedisaster resilience of affected farming, fishing, and natural resource–dependent households, aswell as the resilience of private commercial farming enterprises. This strategy seeks to maintain
World Health Organization, “Vanuatu Steps Survey 2011: Fact Sheet,” http://www.who.int/chp/steps/2011_
Vanuatu_FactSheet.pdf.
12Programs identified by FSAC are part of the still-developing Tropical Cyclone Pam recovery and rehabilitation
strategy. This strategy is aligned with the government of Vanuatu’s Overarching Productive Sector Policy, which isoverseen by the Ministry of Agriculture, Livestock, Forestry, Fisheries and Biosecurity (MALFFB).
13
Affected farmers and fishers require initial income support and humanitarian assistance, including food relief,
until their farming and fishing livelihoods can be restored. These needs are accounted for in the humanitarianassistance program and are therefore not included in the needs assessment in the agriculture sector.
11Vanuatu | Post-Disaster Needs Assessment 21

Subsector

Amount(VT 1,000) Responsible Agency

Programs

Crops recovery program
Community food security restoration
Crops
Seed and planting material
Distribution of tools and equipment
Support to commercial livestock farmers
Livestock
Support to animal welfare
Livestock feed program
Forestry
Forest seed, nursery, and rehabilitation
Fisheries
Fishery equipment repairs and replacement
Cross-Sector Improved disaster response and resilience
Total

56,564
98,695
MALFFB, development partners, NGOs
30,60033,05050,890 MALFFB, private sector
96,646 MALFFB, development partners, NGOs
26,400 MALFFB, development partners, NGOs
128,724 MALFFB, development partners, NGOs
82,780 MALFFB, development partners, NGOs
46,713 MALFFB, development partners, NGOs
651,062

Table 7. Short-Term
Recovery Needs
for the Agriculture,
Livestock, Forestry,
and Fisheries Sector

Some VT 460 million in emergency food relief has been distributed to the affected population. This short-term food security needhas not been included in the needs for the sector as it has been met through the UN TC Pam Flash Appeal.
Note: MALFFB = Ministry of Agriculture, Livestock, Forestry, Fisheries and Biosecurity.

and strengthen inclusion; it clearly identifies, and encourages participation by, vulnerable groups,
with a gender focus where necessary. It also incorporates nutrition and food security concerns
through the medium and longer term. This is critical for building resilience, as the vulnerable andmarginalized are always hit hardest in recurring natural disasters. When feasible, damaged buildings
and infrastructure will be rehabilitated following BBB principles. Table 8 provides an overview of
medium- to long-term recovery needs.
Subsector

Programs

Food and cash crops long-term
recovery and resilience
Crops
Community food security restoration
Rehabilitation of damaged
infrastructure and assets
Support to commercial livestock
farmers
Support to animal welfare andLivestock
resilience
Rehabilitation of damaged
infrastructure and assets
Forest seed, nursery, andrehabilitation
Forestry
Rehabilitation of damaged
infrastructure and assets
Rehabilitation of damaged
Fisheries
infrastructure and assets
Improved disaster response andCross-sector
resilience
Total

Amount(VT 1,000) Responsible Agency

340,864 MALFFB, development partners, private sector
98,695 MALFFB, development partners, NGOs
64,850 MALFFB, development partners
64,89 MALFFB, development partners, private sector
186,645 MALFFB, development partners, private sector
82,460 MALFFB, development partners
147,270 MALFFB, development partners, NGOs
50,320 MALFFB, development partners
68,804 MALFFB, development partners, NGOs
122,470 MALFFB, development partners, NGOs
1,162,378

Note: MALFFB = Ministry of Agriculture, Livestock, Forestry, Fisheries and Biosecurity.

Gender considerations for recovery strategy
There is an immediate need to provide seeds for replanting and tools for clearing gardens, as well
as a need for extension services to women, who are often sidelined in favor of men and cash crops,

Table 8. Medium- to
Long-Term Recovery
Needs for the
Agriculture, Livestock,
Forestry, andFisheries Sector

22 Tropical Cyclone Pam, March 2015

despite being the main providers of agricultural labor. Investments are needed to offer skills capacity
training and vocational training for women and so reduce their dependence on subsistence cropping
for household income. Investment in the livelihoods of women and men should be equitable, as
replacement of men’s assets only (e.g., boats) can significantly imbalance the resources available toeach gender and thus perpetuate inequality.

3.1.2 Commerce and Industry
Summary

Commerce
and industry
comprises close
to 40% of GDP
and is therefore
a key sector for
Vanuatu. The
total damage isestimated at VT
1.2 billion, andthe economic
losses are
estimated at VT
2.2 billion.

Commerce and industry comprises close to 40% of GDP and is therefore a key sector for Vanuatu.
Tropical Cyclone Pam damaged the sector’s buildings and inputs for production, and it will continue
to affect the sector through increased costs of inputs and reduced activity in the economy. The total
damage is estimated at VT 1.2 billion, and the economic losses are estimated at VT 2.2 billion, hence
the total effect is VT 3.3 billion. The economic cost of recovery is estimated at VT 645 million andreconstruction needs are estimated at VT 1.6 billion, bringing the total recovery cost to VT 2.3 billion.
It is important to note that the figures reported are likely to be underestimated due to the amountof data available for inclusion within this PDNA, which was prepared in a short time frame. The
Vanuatu Chamber of Commerce and Industry (VCCI) distributed 497 assessment forms to retail
and wholesale businesses, women’s groups, other professional services, credit facilities and otherbusinesses in the capital of Port Vila and Tafea that are not engaged in manufacturing, tourism,or communication. Three hundred and ninety-seven firms responded to the post-cyclone surveyof businesses survey (May 1, 2015), and some 122 surveys remain outstanding, predominantly inouter Shefa. The data from 397 firms were included in the assessment. There were 1,451 businesses
registered across the agriculture, tourism, and commerce sectors as of the end of 2013.
To recover in the short term and facilitate growth, the sector will need funds to cover both rebuilding
and economic losses beyond those funds that have already been committed to by proprietors anddevelopment partners.

Damage to poultry shade at
Chicko Farm, Efate Islandin Shefa Province. © Jimmy
Rantes, Vanuatu Dept. ofIndustry.

Vanuatu | Post-Disaster Needs Assessment 23

Commerce and Industry Sector BackgroundThe subsectors that contribute to the commerce and industry sector accounted for 36.3% of GDP(VT 27.7 billion), according to the 2013 National Accounts. The contributions by the subsectors arereported in Table 9 below.
The manufacturing subsector accounted for VT 2.4 billion in 2013, having experienced a reduced
share to GDP in both relative and absolute terms since 2010. Cooperative businesses are mostly
involved in the retail market and the finance subsector through loans and savings, but some are
involved in crop production and fishing. The other subsectors include retail and real estate, among
others.
Subsector

2011

2012

2013

Manufacturing

2,986,000

2,604,000

2,442,000

Wholesale and Retail Trade and Repair of Motor Vehicles

1,076,000

979,000

989,000

Other Wholesale Trade

1,863,000

2,709,000

2,766,000

Retail Trade8,094,000

8,806,000

9,101,000

Finance and Insurance

5,011,000

4,842,000

5,464,000

Real Estate

4,438,000

4,928,000

5,096,000

Professional, Scientific, Technical, and Administrative

2,239,000

1,857,000

1,881,000

Total Sector GDP (Excluding Accommodation and Food Services)

25,707,000

26,725,000

27,739,000

Total GDP

70,873,000

72,415,000

75,803,000

Source: VNSO 2013.

Assessment of Disaster Effects on the Commerce and Industry Sector
Description of damage and losses for the commerce and industry sector
Damage to the commerce and industry sector derives mainly from physical and water damage tobuildings, furniture, fittings, communication and technology infrastructure, vehicles, storage, andinventory or stock. Losses are primarily attributable to lost revenues, drop in demand, higher
operational costs, cleanup costs, and lower productivity due to temporary closures and shorter
working hours. Revenue losses resulted from lost sales (i.e., without supplies, there can be no
customers), and also from downtime arising from a lack of goods to sell, lack of power and waterto operate, or damage to premises and machinery. Additional losses derive from lack of insurance,void insurance, higher prices, additional credit and import reliance, and scarce resources; thesecause delays that compound missed sales and increase extra financing costs.
Manufacturing. All 51 firms with industrial permits in 2015 were invited to participate in theassessment carried out by the Department of Industry. Thirty two firms responded, and consequently
only their damage is included in the total damage figures for this PDNA. The damage reported inTable 10 is therefore underestimated.
The value of the manufacturing subsector was estimated in the 2013 National Accounts as VT 2.44
billion (current prices), or 3.2% of GDP. The manufacturing firms were not requested to provide
their estimated losses in the survey, and thus this information had to be inferred at a macro level.
The losses are assumed to reach 1% of GDP. Assuming GDP grew by 3% in 2014, the losses would
then amount to VT 773 million. These losses will mainly be due to the shortage of raw materials,

Table 9. Commerceand Industry
Contribution to GDP
by Subsector, Current
Prices (VT 1,000)

24 Tropical Cyclone Pam, March 2015

which affects production either through increased costs or (in some cases) through temporary or
permanent closure of manufacturing businesses.
Cooperative businesses. Surveys of cooperative businesses were conducted in the most affected
provinces of Shefa and Tafea. Damage was estimated at VT 15.7 million for building materials andother assets, while approximately VT 4.3 million was estimated to be lost due to reduced economic
activity.
Other businesses. For other subsectors in the commercial sector, the Vanuatu Chamber of Commerceand Industry (VCCI) distributed 397 assessment forms to retail and wholesale businesses, women’sgroups, other professional services, credit facilities, and other businesses in the capital of Port Vilaand Tafea that are not engaged in manufacturing, tourism, or communication. The figures presented
in Table 10 incorporate feedback from the 365 businesses who responded. There is a total of the
1,451 registered businesses across all private sector segments that were provided with assessment
forms. As such, the figures presented in Table 10 are an underestimation of the total damage andloss. Damage is mostly related to buildings, while losses comprise the expected decreased economic
activity over the next period.

Table 10.
Quantification of
Damage and Losses
in the Commerce andIndustry Subsectors(VT 1,000)

Subsector

DamageLossesTotal Effects

Private (%)

Public (%)

Manufacturing754,172

774,351

1,528,523

100

0Cooperative Businesses of All Types

15,703

4,291

19,994100

0Other Business Subsectors

426,587

1,373,288

1,799,875

100

01,196,462

2,151,930

3,348,392

1000Sector Total

Table 11 below shows the distribution of damage and losses across the affected provinces. As thecommercial sector is mainly clustered in the capital, Port Vila, in Shefa Province, most of the damageand expected losses are concentrated there.

Table 11.
Quantification of
Damage and Losses
in Commerce andIndustry by Province(VT 1,000)

Province

DamageLossesTotal Effects

Private (%)

Public (%)

Malampa

1,800

1,846

3,646

100%

0%

Penama

N/A

N/A

N/A

N/A

N/A

Shefa

1,161,323

2,111,617

3,272,940

100%

0%

Tafea

33,33938,46771,806100%0%Sector Total

1,196,462

2,151,930

3,348,392

100%

0%

Note: N/A = not applicable.

Mitigation of disaster effects on commerce and industry by the financial sector
The VNPF, the RBV, commercial banks, and the insurance industry have all acted to minimize theeffect of TC Pam on commerce and industry.
Vanuatu National Provident Fund. The government of Vanuatu reacted quickly to the disaster anddirected the VNPF to release 20% of superannuation saving to its members, on request, to help
them deal with the disaster impacts. This equates to approximately VT 2.2 billion among 21,000
members. As at May 7, 2015, VT 1.467 billion had been drawn down by 17,446 members under thisoption, which is open until May 29. This money was invested in bank term deposits, and consequently
may affect liquidity in the banking system. Fortunately, the VNPF mandated that payments be madeto bank accounts and is phasing the payments to the most-affected areas first. The withdrawal ofVanuatu | Post-Disaster Needs Assessment 25

Damage to North Efate Timber,a factory in Port Vila, Shefa
Province. © Lazarus Aising,Vanuatu Dept. of Industry.

these funds from VNPF will affect its planned investments going forward, with low-cost housing andpetroleum projects of particular relevance. Accordingly, these withdrawals will impact profitability
and distributions for the next 12–24 months. VNPF indicated that its property portfolio was largely
undamaged, although like other tourism-related sectors, it will experience diminished revenues.
The Reserve Bank of Vanuatu reacted quickly to ensure that the financial system remained robust
by easing of monetary policy to reduce the Statutory Deposit Ratio (SDR) to 5% (from 7%) and thebenchmark policy rate to 1.85%. The RBV also announced two facilities to be made available to thecommercial banks so they could continue lending to their customers. Both are short-term six-monthrolling facilities: the first is a VT 500 million import-export facility at 1.50%, and the second is a VT
500 million disaster facility for six months at 1.50%. Both can be rolled for up to five years and are
funded off the RBV balance sheet.
Commercial banks (Westpac, ANZ, Bred, and NBV) are still assessing the impact of the damage on
their loan books. The impact for them could come in two ways: (i) damage to collateral; and (ii)customer default due to decreased revenues and money diverted to rebuilding (see the discussionof insurance below). The banks’ major customers are largely covered by insurance, although some
big businesses are not covered for damage or lost revenue. The impact on smaller customers is notknown. The industry has approximately VT4.2 billion in loans to the private and residential sectors.
What has been immediately apparent is the need to fund working capital in the medium and longer
term. The liquidity in the system is adequate, but the withdrawal of the VNPF money is expected toincrease the cost of funds for Bred and NBV in particular. The challenge going forward will be to fundthe reconstruction efforts.
Commercial banks reacted by suspending all individuals loans, mortgages, and consumer finance
until May 30. This move has provided valuable breathing space to consumers but has hidden fromthe banks current debt distress. Further, many small businesses are funded from personal loans andmortgages, so there could be an increase in these after May 30.

26 Tropical Cyclone Pam, March 2015

The insurance industry comprises three insurers (QBE–Domestic General, Dominion–External
General, Vancare–Domestic General) and six brokers (Aon, Chartered Pacific, and Poe-ma aredomestic; Marsh, Willis NZ, and Arthur J. Gallagher are externally based). QBE has 86% of thedomestic market and Lloyds underwrites 3% through brokers. They are licensed and regulated.
The group had reported to the RBV that by May 6, 2015, 620 claims had been received, whichtranslated to an estimated total loss of VT 11.8 billion, all in the private sector. Claims for VT 701.4
million have been settled. Three claims of VT 1.6 million for business continuity are being paid
progressively. Normally claims must be submitted within a fixed time period, but due to infrastructuredamage the insurers have provided some latitude, so the final numbers should be available by
May 30, 2015. Reporting by sector is not yet available, Table 12 was prepared in consultation withindustry members.

Table 12. Insurance
Claims and Payouts
by Category (VT1,000)

Company / Market Share

QBE / 86%

Other / 14R%
TOTAL

Category

Claim Valuea

Payout Estimateb

Residential, Personal, Contents

3,565,320

3,303,522

2 Large Tourism Resorts

5,402,000

5,402,000

Commerce & Tourism

1,620,600

1,377,510

Residential

432,160

367,336

Commerce & Tourism

756,280642,838

11,776,360

10,820,206

Commerce & Tourism

a. Sourced from RBV as at May 6, 2015. Allocation from industry discussion. Claims excludes the other one major hotel severely
damaged and insured offshore.
b. Payout estimated at 85% of claims by industry.

The tourism survey indicated that 6 of the 38 registered hotels in Port Vila did not have insurance,
and that in the rest of Efate less than 50% had insurance. There is no insurance in the Islands, andno insurance in the agriculture sector. A large volume (versus value) of claims relates to the residential sector. There are two big claims in the tourism sector for VT 5 billion. Net of residential, there isapproximately only VT 2.2 biliion in insured damage across the rest of tourism and commerce, andthis still excludes the other major hotel damaged (i.e., the Port Vila Holiday Inn). It is believed thatno insurance or underinsurance is common, with people often electing for high excesses to reduce
insurance premiums.
In the next phase, the insurers determine what claims they will settle and for how much. The
industry indicates that it is only now starting to assess and pay claims, and companies are expecting
to complete 70% of claims by October 2015 and the balance in 2016. The industry indicates thattypically 10% will go to litigation before agreement. Insurance generally covers the larger establishedbusinesses, though even those business that have insurance may be facing uninsured losses arisingfrom insurance contracts that did not cover a Category 5 cyclone. In addition, only those buildings
with a valid engineering certificate are covered. Only a few businesses held business continuity
coverage, and damage to fences, ancillary buildings, access roads, and ancillary equipment was
generally not covered. Public sector assets (buildings, vehicles, information technology, etc.) are notinsured by commercial insurance. To minimize future event impacts, public asset insurance could be
a consideration for the government of Vanuatu going forward.

Vanuatu | Post-Disaster Needs Assessment 27

Recovery Strategy and Needs
Private businesses in the commerce and industry sector have been greatly affected by Tropical
Cyclone Pam. The economic cost of recovery is estimated at VT 645 million, and reconstructionneeds are estimated at VT 1.6 billion,14 bringing the total recovery cost to VT 2.28 billion. Thereis need for considerable support to avoid a prolonged reduction in the production capacity of thecountry. Reconstruction will need to rely on a combination of subsidized loans, commercial finance,
insurance, grants, private savings, and duty exemptions. The weight to be given to the respective
instruments and their detailed design will be decided by the committee appointed by the governmentof Vanuatu to devise the economic recovery strategy for the country.
What is clear is that buildings that were constructed to the right cyclone standards survived. Goingforward, the government should seek to have inspectors ensure that the industry rebuilds correctly.

Short-term recovery needs for the commerce and industry sector
In addition to access to finance, access to insurance is a concern for the sector. The perceived risk
from natural disasters in Vanuatu is likely to have increased after Tropical Cyclone Pam. There are
currently no suitable insurance products for micro-, small, and medium (MSME) entreprises, and thiswas likely an important barrier to investments even before the cyclone. After the cyclone, disasterrisk will be a central concern for any business owner considering an investment. This is the case forthe commerce and industry sector, but it is equally true for the tourism sector. Given the prospects
of increasing extreme weather due to climate change, the Ministry of Tourism, Trade, Commerce and
Ni-Vanuatu Business Development (MTTCNVB) considers the absence of microinsurance a key
market failure that should be addressed to facilitate private sector growth in all subsectors. A firststep would be to study possible designs for insurance products suitable for informal markets in
Vanuatu; and a second step, for the longer term, would be to facilitate the establishment of a private
microinsurance market in Vanuatu by subsidizing insurance premiums in the first years.
SectorCommerce
andIndustry

Total

Program of Activity

Value (VT 1,000)

Responsible Agency

Repairs and reconstruction of commercial andmanufacturing physical assets and economic
stimulus

2,245,000a

MTTCNVB/RBV/DCIR/
private sector/insurance

Feasbility study on the establishment of a natural
disaster microinsurance market and technicalassistance for implementation (also to benefit the
tourism sector)

35,000b

MTTCNVB/RBV

2,280,000

Note: DCIR = Department of Customs and Inland Revenue.
a. Amount would be financed through a combination of commercial finance, insurance payouts estimated at VT 600 million,
grants, private savings, and exemptions. The uninsured portion in debt distress would need subsidized loans.
b. The total reflects the cost of the implementation study (VT 20 million) plus 12 months of technical assistance as based on past
donor projects (VT 15 million).

The short-term support identified by the commerce and industry sector should not divert attention
from the pursuit of the long-term policy priorities identified by the government for the developmentof these sectors under the 2010 National Cooperatives Policy, the 2011 National Industrial Policy,
and the 2012 Trade Policy Framework and its implementation matrix. In terms of projects, donor
14

Economic recovery is calculated at 30% of loss. Reconstruction cost is calculated at 1.35% of damage to simulate
the costs associated with the BBB principle.

Table 13. Short-Term
Recovery Needs
for Commerce andIndustry

28 Tropical Cyclone Pam, March 2015

partners should confirm support to priority value chains where Vanuatu has a comparativeadvantage—mainly those where local manufacturers have the possibility of adding value to
Vanuatu’s primary goods (e.g., agro-processing). In this respect, the EU could confirm its support of€25 million toward rural development, including priority value chains already identified (coconut,
beef, and fruits and vegetables). Australia’s strategic refocus of development cooperation on aid for
trade could be followed by high-level bilateral discussions to identify and agree upon funding for
productive sectors that still lack significant support; cocoa, kava, and coffee value chains would be
ideal candidates.

Medium- to Long-term recovery needs for the commerce and industry sector
In terms of longer-term support directly linked to coping with risk from natural disasters, as explained
above, there is need for longer-term funding to support the development of an insurance market forsmall businesses. Such an intervention will be based on the feasibility study proposed below.

Table 14. Mediumto Long-Term
Activities and Needs
for Commerce andIndustry

Commerce and Industry

Program of Activity

Value (VT 1,000)

Responsible Agency

Support establishment of
microinsurance for small
businesses

Not available

MTTCNVB/RBV

Note: The feasibility study would establish the initial need for support of the proposed market.

3.1.3 Tourism
Summary
Tourism is a significant contributor to Vanuatu’s GDP. Tourism expenditure as a percentage of GDP
increased from 26% in 2002 to 33% in 2010.15 This translates to up to 4,000 direct jobs.16 Moreover,foreign exchange earnings generated by trade in tourism services represent the major contributor
to the surplus observed in the service accounts of the national balance of payment. This surplus
almost counterbalances the chronic deficit in the goods account, making the tourism sector key to
Vanuatu’s macroeconomic stability.17
Tourism activities strongly contribute to the observed growth in GDP for the construction sector
as well as for the primary sector (for example livestock, fish, fruits and vegetables).18 As a major
contributor to the country’s GDP, tourism activities provide significant revenues to the government
through VAT and import duties.

Data are from Reserve Bank of Vanuatu, 2012.
See the 2010 Millennium Challenge Account Survey, https://mcavanuatu.gov.vu/MCA%20CONTENTS/MCA%20
Environment%20and%20Social%20Assesment/MCA%20Vanuatu%20Tourism%20Survey%20Baseline%20
Study.pdf.
17
See figures of the balance of payment. There is a goods accounts and a surplus in services accounts. Most of
the surplus in services is due to tourism. See Vanuatu Government, “Trade Policy Framework,” 2012, 8, https://gov.vu/DET001%20Trade%20Policy%20Framework%20-%20Englisha711.pdf?download=45%3Atrade-policyframework-english-vs.
18
Construction is largely driven by tourism, with major construction projects, such as the 80-room Ramada Hotel,
currently under way in Port Vila. Also, draft findings from an International Finance Corporation (IFC) agriculture study
show that locally sourced produce accounts for 38% of overall spend on hotels with restaurants (the rest is imported).
15

16

Vanuatu | Post-Disaster Needs Assessment 29

Damage to Port Vila foreshore,
including many tourism
businesses. © Becky Last,
Vanuatu Dept. of Tourism.

Tropical Cyclone
Pam has severely
affected thetourism sector,
with estimateddamage of aroundVT 5.9 billion andGiven that much of the GDP contribution is generated in the peak travel months of March to August,estimated losses
cancellations and loss of future business represent the greatest risks to recovery. Accordingly, theof VT 3.6 billion.
Tropical Cyclone Pam has severely affected the tourism sector, with estimated damage of around VT
5.9 billion and estimated losses of VT 3.6 billion for a six-month period. The estimates for damage
include VT 5 billion in insurance claims for two major hotels that remain closed, as well as anadditional estimate of VT 0.9 billion representing uninsured damage. However, data on one of theremaining hotels, which was severly damaged and closed has not been accounted for, so the damage
figure may still be an underestimate.19

losses have been calculated against a six-month (March-August) projection of pre-cyclone-levelbusiness for these months. However, full recovery may take longer than 12 months.

Tourism’s greatest challenges stem from the urgent need to reconstruct and reestablish damaged
businesses, while complementing reconstruction with marketing funds to restore consumer
confidence so that visitors return to the country. The proposed recovery strategy provided as part ofthis PDNA addresses these key concerns.

19

For the insurance breakdown, refer to Table 12 in chapter 3.1.2. For the 0.9 billion figure, the average cost ofdamage per room was calculated from available information, including data collected from accommodation
operators post-cyclone and multiplied by the number of rooms damaged in the four major hotels. The losses figure
was calculated as loss of revenue for six months.

30 Tropical Cyclone Pam, March 2015

Aerial view of damaged hotel.
Source: X-craft. Reproducedwith permission; further
permission required for reuse.

Tourism Sector Background
Visitor arrivals were at record levels in 2014, with approximately two-thirds of arrivals comingby cruise ship and one-third by air. Over the last five years, cruise ship passenger arrivals havegrown at approximately 15% per year. The number of cruise passengers grew to 240,000 in 2013,
which translates to 490,000 passenger days, with Australians the main source market (over 90% ofpassengers) for the cruise ship sector.20 Cruise ship visitation is in the form of day visits, with Port
Vila, Luganville, and Mystery Island hosting 85% of all cruise ship calls to Vanuatu.
Tourism arrivals by air have grown at around 6.8% per year for the last 10 years, which is higher
than the global average of around 4%.21 Limited marketing funds have constrained further arrivals
growth, with the Vanuatu Tourism Office’s budget of VT 159 million considerably lower thancompetitors’, such as Samoa (VT 310 million) and Fiji (VT 1.3 billion).22
Vanuatu source markets are the three short-haul markets of Australia, New Zealand, and New
Caledonia. Australia is by far the largest market (60%), followed by New Zealand (13%) and New
Caledonia (12%).23 The average length of stay is eight nights.

Assessment of Disaster Effects on the Tourism Sector
Based on information collected from accommodation and tour operators, it is estimated that
Tropical Cyclone Pam has produced damage of around VT 5.9 billion and will lead to losses of VT
3.6 billion over the next six months. Accommodation represents the subsector that has incurred thehighest damage and loss (VT 8.4 billion in total). As to the geographical spread, Shefa represents
the province most affected by damage and losses to the tourism sector (97% of total effects). The
economic impact of these losses is mirrored by a significant social impact, including employment
repercussions, especially for female employees.
Data are from Vanuatu’s Department of Tourism.
Tourists’ reasons for travel include holiday, business, or visits to friends and relatives. Holiday tourists represent
82% of tourists. World Bank data on arrivals trends can be found at http://data.worldbank.org/indicator/ST.INT.
ARVL/countries?display=default.
22
The data are from an IFC analysis.
23
Data are from VNSO.
20
21

Vanuatu | Post-Disaster Needs Assessment 31

Description of damage and losses for the tourism sector
Damage from the cyclone varied from minor repairs to major structural damage to buildings,
facilities, and land caused by wind and water. While a small number of operators are functioning
in Port Vila, the major operators have closed for a three-month period to assess and repair
damage, including major resort operator Warwick Le Lagon. Two of the other major operators arescheduled for longer closure periods, including Holiday Inn (six months) and Iririki Island Resort(nine months). These three resorts are the major brands associated with Vanuatu, and account foraround 30% of room stock on Efate. Tour operators were also significantly damaged, with initialreports from the Department of Tourism indicating that 88% of operators reported damage in Shefa.
Accommodation and tour operators in Tanna were also considerably damaged by Tropical Cyclone
Pam, with only half of the rooms currently operational. Initial anecdotal reports indicate that mostof the accommodation and tour subsectors do not have adequate insurance cover to claim on thedamage and losses caused by the cyclone. The delay in trade and repairs has both revenue andfinancial costs. Additional financial costs are incurred by the need for additional credit to carry out
repairs that are not covered by insurance.
Subsector

Accommodation
Tours

DamageLossesTotal Effects

Private (%)

Public (%)

5,630,054

2,780,568

8,410,622

100

0278,177

829,033

1,107,210

1000Sector Total

5,908,231

3,609,601

9,517,832

100

0Province

DamageLossesTotal Effects

Private (%)

Public (%)

Malampa

1,000

8,630

9,630

100

0

Penama4,000

20,00024,000

100

0

Shefa

5,775,898

3,455,426

9,231,324

100

0

Tafea

127,333

31,982

159,315

100

0

Sanma

N/A

93,56393,563

100

0

Total

5,908,231

3,609,601

9,517,832

1000Note: N/A = not applicable.

Recovery Strategy and Needs
Tourism is a critically important sector of the Vanuatu economy, with significant impacts on GDP
and employment. Support is now required to ensure that the sector fully recovers after Tropical
Cyclone Pam.
Of all the productive sectors, tourism has the greatest potential for fast recovery. The recovery will
require funding allocations to three items:
1.

Reestablishment and rebuilding of business operations, done to appropriate standards andwith inspections by engineers.

2. Restoration of consumer confidence in the Vanuatu brand
3. Research on microinsurance schemes to increase future resilience

Table 15. Damageand Loss to the
Tourism Sector(VT 1,000)

Table 16.
Distribution of
Damage and Loss in
the Tourism Sector by
Province (VT 1,000)

32 Tropical Cyclone Pam, March 2015

The total estimated cost of recovery needs is around VT 1.7 billion, of which 1.2 billion is reconstruction
costs for the next 24 months (Table 17 and Table 18).24

Short-term recovery needs for the tourism sector
As part of the effort to rebuild the private sector, reconstruction will need to rely on a combinationof subsidized loans, commercial finance, insurance, grants, private savings, and exemptions.
The disaster received widespread coverage in Vanuatu’s core markets of Australia, New Zealand,and New Caledonia. A significant new marketing push, to give tourists the signal they can returnto Vanuatu for holiday, is critical to getting tourism back on its feet. The marketing budget should
increase from its current level of VT 159 million per year—one of the lowest levels of tourism
marketing seen among Pacific countries—to VT 318 million per year in 2015/16.25 This increase inmarketing allocation is critical to the recovery and will closely complement the reconstruction effort
for businesses. It is important to note that without new influxes of tourists, many Vanuatu tourism
businesses will not survive the coming 12- to 18-month period—even if they rebuild and reconstruct.
In addition, the sector requests funding to conduct a professional feasibility study of how to establish
insurance for microbusinesses. Suitable insurance will improve the ability of smaller businesses tocope with risk from natural disasters in future.

Table 17. Short-TermNeeds for the Tourism
Sector

Program of Activity

Value (VT 1,000) Responsible Agency

Reconstructions costs (partly to be financed by low-cost line ofcredit and partly by the private sector)

1,226,110Marketing activity

318,000a Vanuatu Tourism Office

Feasibility study on the establishment of a natural disastermicroinsurance market and technical assistance for
implementation

35,000b MTTCNVB, RBV

Total

Private sector, RBV,
commercial banks

1,579,110a. Tripling of the marketing budget for the next 12 months requires an additional VT 318 million.
b. This item is proposed jointly under the commerce and industry sector and the tourism sector. An additional estimate for theneeds for the commerce and industry sector are presented in Chapter 3.1.2.

Medium- to long-term recovery needs for the tourism sector
Over the longer term (between 12 and 24 months), the marketing budget should be doubled for afurther commitment of VT 159 million (on top of the existing budget). This is to ensure the credibility
and sustainability of the initiatives implemented in the first year.

The calculation multiplies damage by a factor of 1.35 to simulate the costs associated with the BBB principle.
Accordingly, the estimated reconstruction cost is VT 1.2 billion. It also discounts the VT 5 billion for the major
hotels’ damage, as this will be covered by insurance providers.
25This figure takes into account the loss of revenue from the Tourism Development Marketing Fund in the coming
months. The Vanuatu Tourism Office operating budget is VT 159 million, of which VT 123 million is for campaigns(38 million Tourism Development Marketing Fund and 85 million budgetary funds).
24

Vanuatu | Post-Disaster Needs Assessment 33

Program of Activity

Value (VT 1,000) Responsible Agency

Marketing

12–24 months: 159,000a Vanuatu Tourism Office

Support for establishing microinsurance for small
businesses through subsidized insurance premiumsfor 3 years
Total

Not availableb MTTCNVB, RBV

Table 18. Medium- to
Long-Term Recovery
Needs for the Tourism
Sector159,000

a. The figure represents the additional funding need to double the current budget for marketingb. The feasibility study would establish the initial need for support to create the proposed market.

Additional activities for consideration in the proposed recovery strategy are presented below.
Although these activities have not been costed, many of them may not require additional funding.
Program of activity

Activities for consideration

Reconstruction of
infrastructure andphysical assets andfurther development

Provide duty exemptions for construction materials for the sector, for a six-month
period that reflects realistic timelines for reconstruction.

Resumption of service
delivery and access togoods and services

Assist businesses with staff retention measures and training to prevent massunemployment in the tourism sector and to ensure that experienced, skilled personnel
are still available to businesses when they reopen (e.g., employment with cruise ships
during reconstruction period).
Provide duty exemptions for food imports for the sector, for a six-month period thatreflects realistic timelines for recovery of business.
Ensure government travel advisory services for key market countries are restored topre-cyclone levels and are supportive of tourist travel to Vanuatu.

Restorationof marketing,governance, andprocesses

The Vanuatu Tourism Council should facilitate implementation of the recovery strategy
with private sector consultation/representation and implement the governance reform
agreed to in the Vanuatu Strategic Tourism Action Plan 2014–2018 (VSTAP) and further
detailed in the Vanuatu–New Zealand Partnership arrangement and in the Activity
Design Document for the tourism interventions funded by NZAid.
The government could conduct a review of budget allocation to align support toeconomic sectors based on their economic significance.

Cross-cutting issues

The MTTCNVB could work with Ministry of Infrastructure and Public Utilities (MIPU)
and businesses to ensure a cohesive approach and alignment between Vanuatu tourism
operator minimum standards and MIPU’s development of building acts and building
codes. MTTCNVB should work with MIPU and the Vanuatu Project Management Unit to
implement priority infrastructure projects recommended by the VSTAP.
MTTCNVB could work with the Ministry of Agriculture, Livestock, Forestry, Fisheries andBiosecurity (MALFFB) to orient regeneration of the agriculture and forestry sector toincrease the supply of local produce to the tourism sector.
MTTCNVB and MALFFB should ensure that available supplies of natangura (palm fronds)
and other natural materials are distributed to damaged tourism areas to support
rebuilding and income-generating handicraft activities.

Gender considerations for recovery strategy
There is limited information on the impact of disasters on women engaged in tourism. Although
it is assumed that the percentage of women employed in this sector is higher than the national
average for all sectors of 40%, less than a third of women in the formal sector are in managerial
or supervisory roles. Women are mostly employed as housekeepers and waitresses, while men

Table 19. Additional
Uncosted Activities
for Consideration
as Part of Recovery
Strategy

34 Tropical Cyclone Pam, March 2015

tend to hold managerial posts. It is commonly observed that in coping with post-disaster stress,
the tourism sector often maintains managerial and ground staff such as gardeners while laying offhousekeepers. Thus women’s economic opportunities will probably suffer significantly as a resultof Tropical Cyclone Pam, as women will most likely be the first to lose their jobs from within the
tourism sector.
Recruitment to positions of temporary employment (in debris clearance, solid waste management,
and other activities) should prioritize women where feasible, so that their incomes can be augmented
until the tourism sector recovers. In the medium- to long-term, women should be trained to perform
managerial and supervisory roles.

3.2		Social Sectors
3.2.1 Private Housing
Summary

The passage of
Tropical Cyclone
Pam throughthe islandsof Vanuatu
resulted indamage totaling
VT 9.45 billion
to over 16,000
houses acrossa number ofprovinces.

The passage of Tropical Cyclone Pam through the islands of Vanuatu resulted in damage to over
16,000 houses across a number of provinces. As the cyclone moved slowly, wind damage to houses
was extensive; but because it was a relatively dry cyclone within the high wind zone, the potential
impacts of water damage were reduced. In summary:■■Over 16,000 houses suffered damage due to high winds from Tropical Cyclone Pam in all four
provinces considered within this PDNA.

■■

There are reports of flood damage to houses in the Torba and Sanma Provinces.

■■

Displaced populations were still living in evacuation centers in Tafea Province at the time this
PDNA was conducted.

■■

Emergency shelter response by humanitarian agencies was ongoing at the time of this PDNA.

■■

The self-recovery of affected populations is being supported by the government of Vanuatu
and humanitarian agencies, with distribution of tarpaulins, tool kits, and non-food items,
including buckets, water containers, blankets, and nails and other building consumables.

■■

Tropical Cyclone Pam has affected rental stock in informal settlements in peri-urban andurban areas around Port Vila.

■■

Recovery planning is under way, with the aim of supplementing the existing resilience andcoping systems of the ni-Vanuatu people and of assisting them in building back better—by
distributing building materials and offering technical assistance to make self-repaired houses
more durable and weatherproof.

Housing Sector BackgroundIn terms of Vanuatu’s constitution, all land belongs to the indigenous kastom (customary) owners andtheir descendants. The ownership and use rights to land follow customary systems, of which there
are a large number, though very few are legally codified. With some exceptions, land allocations toVanuatu | Post-Disaster Needs Assessment 35

Damge to Makura Village,
Shepard Islands. © Michael
Bonte-Grapentin, World Bank
Group.

members of the family and clan are patriarchal and in some cases disadvantage women, althoughboth men and women typically can enjoy usufruct (use) rights to land, including for the purposes ofa dwelling. On the outer islands, land pressures for residential use are not overly constrained, andsettlement patterns have evolved over time and with local knowledge to adapt to extreme weather
events. However, tenure in the Greater Port Vila area is more complex. All land within the designatedmunicipal boundary was acquired by the state from the indigenous owners and any freeholdowners in the 1980s, and the Department of Lands now formally leases it to individuals for 50–75
years (renewable). According to the 2009 census, some 51% of households in Port Vila, largely
the higher-income individuals and households, hold direct long leases. However, the remainderof the population live as “renters” (39%) or with no recognized use rights (10%) in the more than
30 informal settlements within the Port Vila municipal boundary, or within a further number ofsettlements located in the peri-urban periphery kastom lands. Here, some 19% of residents legallyrent land through their native or kastom procedures; 18% have informal residency agreements withthe private land owners; and an unknown percentage reside on (predominantly government/state)land illegally in “squatter” settlements.26
Responsibility for housing and related land delivery and infrastructure services is scattered among
many different agencies, including the Department of Lands (for formal land registration), thePhysical Planning Unit, Ministry of Internal Affairs, MIPU, Port Vila municipality (elected), andLenakel municipality (appointed), as well as the provincial governments (deconcentrated arms ofthe central government). Through the Vanuatu Housing Authority, the government provides fully
serviced units, but supply has dwindled, and production costs typically are affordable only by
26

The percentages shown are extrapolations of the 2009 census; there is a dearth of recent official and verifiabledata available.

36 Tropical Cyclone Pam, March 2015

medium- to high-income groups. The Building Act was passed in late 2014, and a draft building code
has been prepared by MIPU, but it awaits approval. Other than a draft urban master plan (zoning
codes) for Port Vila (which is rather outdated), no planning or building codes are applied in either
outer islands or urban settings.
As a result, the emerging housing stock typology27 in all affected outer-island, peri-urban, and urban
settlements28 can be summarized as follows:■■

Traditional housing (43%) is constructed from local materials such as thatch, natangura(woven palm fronds), woven cane, or other naturally available material. Key features
include a concrete or crushed coral gravel floor; lightweight timber frame with local
material wall cladding; roof sheeting made from locally grown material, sometimes withchicken wire covering the thatch (predominantly outer island and peri-urban).

■■

Semipermanent housing (30%) is incrementally constructed from traditional materials thatare replaced or supplemented over time with salvaged or secondhand materials. Key features
include concrete or crushed coral rock floor, inadequately designed timber-framed walls;
natangura grass or corrugated galvanized iron (CGI) roof on nonengineered roof members(predominantly informal settlements or rural communities).

■■

Permanent housing (27%) comprises single- and double-story structures that were likely
designed to be comparatively durable. Key features include engineered concrete or timberframed floor; concrete block or timber-framed walls; and CGI on trussed roof structure or roof
tiles.

Assessment of Disaster Effects on Housing Sector
Rapid, cross-sectoral “harmonized provincial assessments” were organized and deployed by the
National Disaster Management Office (NDMO) across all affected islands to set the baseline.29 For
the housing sector, data regarding the extent of totally destroyed houses and partially damaged
houses30 were derived from the provincial data and, where possible, verified with other albeit
limited sources, including satellite imagery (Copernicus), dedicated footage from unmanned aerial
vehicles (UAVs—which covered around 10% of the affected areas) used in crowd-sourced mapping,assessments from NGOs, and firsthand accounts from people who had visited affected areas. Data
provided by the harmonized assessment confirmed the expected extent of damage to housing basedon the path of the cyclone. However, there was not adequate information at the time of the PDNA to
The typology of the house is dictated by the location, access to markets, materials, and vulnerability of the occupier. On Tanna Island (in Tafea Province), the proximity to the active volcano precludes use of corrugated galvanized
iron, so most houses on this island are made from locally available materials such as thatch and woven cane,which allows repairs to be undertaken as required with minimal cost. Housing around Efate is much more developed due to its proximity to the capital, Port Vila. There are a number of informal settlements within the urban
and peri-urban area around Port Vila that are generally poorly constructed using recycled materials. Anecdotal
evidence indicates there is a relatively significant rental market in these communities, which could be impacted
by damage to the housing stock. On the smaller islands of the Shepherd group, most housing is semipermanent, as
there is not adequate space for growing and harvesting materials such as natangura. Accordingly, most houses areconstructed using timber frames with lightweight cladding and CGI roofing. The affected islands in Penama andMalampa Provinces have a higher percentage of traditional houses, which are constructed using natangura.
28
The typology of the houses and the distribution through area councils was derived from the 2009 census.
29
The 2009 National Population Census (VNSO 2009) was used to determine the baseline for populations in eachof the affected areas, then extrapolated by the NDMO to approximate 2015 numbers.
30
For the purpose of this PDNA, houses were assumed to be totally destroyed in cases where there was more than
40% damage. Houses were considered partially damaged if there was less than 40% damage.
27

Vanuatu | Post-Disaster Needs Assessment 37

Timber frame house being
rethatched. © David Womera,
World Bank Group.

definitively quantify damage to the various types of construction typology; for this, the 2009 census
was used.

Damage to the housing sector
Due to its vulnerability and exposure to high cyclone winds, the housing stock of the Shepherd
group was seriously impacted. Although the cyclone travelled closer to Efate and the islands
immediately offshore, the damage to the housing sector on these islands, which used more resilient
types of construction materials, was less severe. Damage to the informal sectors around Port Vila
was widespread (although the early level of self-recovery here is extraordinarily high).
Reports from the more southerly Erromango in Tafea Province indicated extensive damage on
the west coast, while UAV footage revealed moderate damage to isolated areas on the east coast.
Tropical Cyclone Pam lingered over the Tafea group, particularly over the western side of Tanna,
which resulted in extensive damage to traditional housing in the area. Analysis of satellite imagery
and UAV footage indicates that as much as 80% of housing may have been totally destroyed. The
eastern coast, while relatively close to the eye of the cyclone, appears to have been protected by themountain range that runs along the length of the island.
A clear observation from the early assessments was that communities, particularly those in theouter islands, have their own time-tested methods of coping with extreme weather events, seeking
refuge in caves, within densely vegetated areas, or in structurally sound public buildings.31 In part,these practices would have contributed to the remarkably low loss of life among the population.
31

Identification and documentation of these practices would be invaluable in planning resilience-strengthening
activities in other provinces.

38 Tropical Cyclone Pam, March 2015

Not only were house structures themselves damaged or destroyed. Household goods within thehouses were equally affected. For the purposes of the damage assessment, and extrapolating fromthe 2009 census, the cost of damage to household goods was assessed and included as 5% of total
housing.32 For the primarily rural communities affected by Tropical Cyclone Pam, the possessions
lost represent a significant portion of the family’s wealth and will be difficult to replace.

Losses to the housing sector
Loss as a result of the cyclone represents loss of potential income through home-based livelihood
activities, which in particular affects women,33 and loss of rental income. Within greater Port Vila,
50% of households own their own house and 50% rent one or more rooms (VNSO 2009). Outside of
the urban areas, on customary land the rental market is assumed to be insignificant.

The psychosocial effect on the affected population (in particular on those internally displaced)is difficult to measure, as are the losses associated with not only reduced productivity, but
personal grief and bereavement. In particular, lower-income households or those on outerislands that do not have insurance will face the double burden of self-rebuilding and depleting
personal savings. The losses that cannot be easily measured include issues with personal
security (in particular for women and young children), loss of land (in the absence of registered
tenure), disruption to schooling for children, displacement from friends and family, and thedisappearance of routines that provide an overall sense of security. Damage and loss to the
housing sector are summarized in Table 20, and are broken down into housing type in Table 21.
Provincial damage and losses are presented in Table 22.
Table 20. Total
Damage and Loss in
Housing Sector(VT 1,000)

Subsector

DamageLossesTotal Effects

Private (%)

Public (%)aTotally Damaged Houses

5,737,622

286,8816,024,503

100

0Partially Damaged Houses

3,072,179

153,6093,225,788

100

0Damaged Household Goods

440,532

440,532100

0Water Tanks

201,842

201,8421000Sector Total

9,452,175

9,892,665

100

0440,490

a. Publically owned government housing is covered under the public buildings sector assessment of this PDNA.

Table 21. Total
Damage and Loss by
Housing Type(VT 1,000)

Total Damage
Typology

Partial Damage

NumberValue

NumberValue

Permanent House

2,205

3,968,773

3,489

2,512,306

Semipermanent House

2,445

733,5233,131

375,723

Traditional House

3,451

1,035,366

1,535

184,151

Total

8,101

5,737,662

8,155

3,072,179

This percentage reflects the low incomes of the population and the very minimal ownership of electrical goods, as
there is little to no electricity supply outside of Efate.
33
In situations where livelihood activities were undertaken at home, destruction of the house will have a major
effect on a family’s capacity to earn money to pay for children’s schooling, purchase seeds for crops, or even purchase essentials such as food or medicine.
32

Vanuatu | Post-Disaster Needs Assessment 39

Table 22. Distribution
0 of Damage and Lossin Housing Sector by
0
Province (VT 1,000)

DamageLossesTotal Effects

Private (%)

Public (%)

Malampa

558,143

24,495

582,638

100

Penama222,705

10,605

233,310

100

Shefa

6,558,236

305,020

6,863,256

100

Tafea

2,113,091

100,370

2,213,461

100

0

Total

9,452,175

440,490

9,892,665

100

0

0

Recovery Strategy and Needs for the Housing Sector
In a country as vulnerable as Vanuatu to frequent extreme weather events and geohazards, theearly recovery and longer-term reconstruction strategy rests on the need to recognize and safeguard
the self-resilience of communities and individuals and to enhance existing coping mechanisms.
A second underlying principle of recovery is that individual households, in particular the very
poor, may not be able to fully meet all reconstruction needs on their own. The government (withassistance where appropriate from external support partners) has a role to play in ensuring that
individuals and communities are provided with necessary technical and social support throughout
the reconstruction phase and that any additional support is clearly and transparently targeted forthe benefit of the most vulnerable, i.e., those who may not be able to self-recover at the same paceas the wider community. Finally, a critical aspect of the recovery strategy will be a well-coordinatedcommunication strategy to ensure that all households (including households that include people
with disability) are aware of and have access to information about any support being provided.
A large number of NGOs have assisted the government with the emergency and early recovery
phase,34 and it is anticipated that they will continue to be involved in the short-term and medium- tolong-term recovery activities, as set out in Table 23 and Table 24 respectively. For the longer-term
recovery and reconstruction needs, it is anticipated that the agencies and communities might beassisted if needed by larger bilateral and multilateral support partners.
Destroyed and severely
damaged homes mappedfrom UAV footage. Source:
Humanitarian Open Street
Map.

34

NGOs include Adventist Development and Relief Agency (ADRA), Association for Aid and Relief Japan, Australian
Red Cross, Caritas, French Red Cross, International Federation of Red Cross and Red Crescent Societies,
International Organization for Migration, Oxfam, Salvation Army, Samaritan’s Purse, Save the Children, Vanuatu
Red Cross, and World Vision.

40 Tropical Cyclone Pam, March 2015

Table 23. Short-Term
Recovery Needs for
Housing Sector

Program of Activity

Value (VT 1,000) Agency

Increase resilience through “building back better” principles,and by supplementing self-recovery with additional
bracing material and technical guidance, trainings, and IEC(information, education, and communication) material

VRC, FRC, IFRC, Save the300,000 Children, Care, Oxfam, ADRA,Salvation Army, Caritas, IOM

Develop and integrated response with the water sector, andensure WASH needs are addressed

VRC, FRC, IFRC, Save the5,000 Children, Care, Oxfam, ADRA,Salvation Army, Caritas

For islands in Shepherd group hit by cyclone, source natangura
from northern provinces—stimulating livelihoods and sharing
knowledge

To be confirmed VRC, FRC, and IFRC

Develop building standards/practices and promote behavior
change—e.g., start community consultation to revise building
standards and “deemed to comply” construction ; work withsmall builders and professionals to ensure voluntary uptake of
improved standards

To be confirmed Government

Promote land tenure recognition by mapping of all occupation
situations, developing an integrated recording system (registerof informal occupancy arrangements), and undertaking
information and awareness campaigns of rights under different
arrangements

To be confirmed Government

Undertake salvage and reuse of debris by providing means
to harvest fallen trees for rebuilding; process should include
asbestos awareness and safe bunding and disposal

20,000 IOM

Total

325,000

Note: VRC = Vanuatu Red Cross; FRC = French Red Cross; IFRC = International Federation of Red Cross and Red CrescentSocieties; ADRA = Adventist Development and Relief Agency; IOM = International Organization for Migration; WASH = water,
sanitation, and hygiene.

Table 24. Medium- to
Long-Term Recovery
Needs in the Housing
Sector

Program of Activity

Value (VT 1,000) Agency

Multihazard mapping of urban areas and action plan
identifying safe areas for future growth, installation of tsunami
warning systems

291,896

Training in risk to promote risk awareness

500,000 NGOs

Informal settlement study, including mapping of housing andtenure status in selected informal settlements
Construction of community safe structures, including
identification of buildings for new construction or
reinforcement
Consultative preparation and adoption of a National Housing
PolicyOwner-led/self-reliant incremental housing reconstruction in
all areas, making use of simple, low-cost measures to improve
resilience of new housing stock
Identification of locations and structures suitable for safe
evacuation sites in all areas and preparation of a costed action
plan to retrofit such buildings (access by people with disability,
lighting for security for women and children, WASH facilities)
Total

Government, World Bank(MDRR project)

77,000 UN-Habitat
400,000 World Bank, NGOs
37,50010,594,887a

Government, World Bank
(to be confirmed)
Private households (mayinclude some sector
assistance, e.g., with watertanks)

Government, World Bank
30,000 (in urban areas only, rural tobe confirmed)
11,931,283

Note: MDRR = Mainstreaming Disaster Risk Reduction; WASH = water, sanitation, and hygiene.
a. This figure includes an additional 15% above replacement costs, in order to incorporate the cost of BBB. It excludes any provision for house insurance, as only houses with Category 5 cyclone certificates are eligible for insurance payments. The total
number of such houses is understood to be less than 10.

Vanuatu | Post-Disaster Needs Assessment 41

Gender considerations for recovery strategy
Consideration should be given to female-headed households (FHHHs), which often have noownership of the land they are on and face huge constraints in accessing finance and manpower torepair or reconstruct their homes. The 2009 gender census monograph (VNSO 2011) indicates that
20% of the households in Vanuatu are female-headed, which can be extrapolated to approximately
3,200 households that suffered damage and losses in the amount of VT 1.9 billion (based on the
total effects presented in Table 20).
Housing rehabilitation and reconstruction/recovery programs should be positively adjusted toprioritize FHHHs as well as people living with disabilities and the elderly. Similarly, early recovery
and livelihood programs should also provide specific support to FHHHs to enable them to findresources for rebuilding. With regard to evacuation centers, disaster preparedness planning should
address the needs of women and girls by ensuring adequate lighting and segregated wash facilities.
Future planning and building of evacuation camps should also ensure accessibility for people livingwith disability.

3.2.2 HealthSummary

As a result of
Tropical Cyclone
Pam, the Ministryof Health
The cyclone’s total effect on the health sector is estimated to be approximately VT 976.7 million,
sustained major
split between VT 869.8 million (89%) for damage and VT 106.9 million (11%) for losses.
damage andlosses to health
Health Sector Backgroundfacilities in Shefa
There are 132 formal, publicly managed health facilities in Vanuatu, comprising 6 hospitals, 34 and Tafea andhealth centers, and 92 dispensaries. In the four affected provinces, there are 96 formal health minor damage
facilities, comprising 4 hospitals, 23 health centers, and 69 dispensaries. Community aid posts and losses tolie outside of the direction of the Ministry of Health. Responsibility for the management of the health facilities
204 village health workers (community volunteers) who staff the 200 aid posts that are currently in Malampa andactive rests with Save the Children. There are a further 18 clinics that are run either by the Port Vila Penama. The
Municipal Council or by private providers.
cyclone’s total
Prior to the cyclone, many of the formal health facilities were in poor condition. This was confirmed effect on theby the recently completed Provincial Resource Review (Ministry of Health and Australian DFAT health sector is2015), which surveyed all the formal health facilities in Vanuatu and which provides an excellent estimated to beapproximately VT
baseline.
976.7 million.
As a result of Tropical Cyclone Pam, the Ministry of Health sustained major damage and losses tohealth facilities in Shefa and Tafea and minor damage and losses to health facilities in Malampa
and Penama. The health sector was unaffected in the remaining two provinces of Torba and Sanma.

The distribution of health facilities by affected province and population is shown in Table 25.

42 Tropical Cyclone Pam, March 2015

Table 25. Distributionof Health Facilities by
Affected Province

Province

Population

Number ofCommunity Aid
Posts

Number of Health
Number of
Dispensaries Health Centers

Malampa

40,19146

20

8Number of
Hospitals

Total Number
of Health
Facilities

175

Penama34,551

43

23

6

1

73

Shefa

101,440

40

13

5

1

59

Tafea

35,131

29

13

4

1

47

Total

211,313

158

69

23

4

254

Assessment of Disaster Effects on the Health Sector
Damage to the health sector
Assessments conducted on site following Tropical Cyclone Pam revealed damage to the majorityof health facilities in Shefa Province, to around half in Tafea Province, and to a minority in bothMalampa and Penama Provinces. In total, 39 of the formal health facilities were damaged—two
hospitals, 15 health centers, and 22 dispensaries. In addition, there was damage to the healthadministration buildings in Shefa (both the national headquarters and provincial-level buildings).
Looking at the proportion of damaged facilities relative to total stock shows that health centers were
the worst affected.
The total monetary damage across all health facilities, including administration buildings in the four
affected provinces, is estimated to be VT 869.8 million. The breakdown is shown in Table 26.

Table 26. Distributionof Damage by HealthFacility and Province(VT 1,000)

Province

Community Aid
Post

HealthDispensary

Health Center

Hospital

SupportBuildings

Total HealthFacilities

Malampa

2,100

10,30041,100053,400Penama10,50062,20016,800089,500Shefa

22,500

1,19,100

137,400

136,500

Tafea

5,300

37,70046,500124,100

Total

40,4002,29,200

241,700

260,700

97,900513,300
213,600

97,900869,800

The total damage is by far the highest in Shefa Province, with VT 513.3 million of damage
occurring across all health facilities. Tafea is the next highest, with VT 213.6 million of damage,including VT 124.1 million at Lenakel Hospital.
The total damage to health dispensaries listed in Table 26 includes damage to public health facilities,
and to private/municipal clinics. In Malampa, no damage was sustained to private/municipal clincs.
For private/municipal clinics in Penama, VT 2.8 million of damage was sustained, in Shefa, VT 41.7
million was sustained, and in Tafea, VT 11.6 million was sustained.
Assessment findings revealed that six health facilities were completely destroyed by the cyclone, witha further seven suffering major damage. Around one month after the cyclone, all but seven facilities
were open, although around one-third of open facilities were operating with a reduced service.

Losses to the health sector
Losses totaling to VT 106.9 million have been identified in the areas of increased health careprovision, health sector revenues, health sector coordination, and additional outreach interventions.
These are set out in Table 27.

Vanuatu | Post-Disaster Needs Assessment 43

DomainCategory

Medical referrals covered

Increased Health Care
Provision

Health Sector Revenues

Health Sector Coordination

Additional OutreachInterventions

Amount (VT 1,000)

917

Further medical referrals expected

5,560

Staff overtime

7,811

Staff wages (additional staff)

18,247

Drug requirements

38,891

Emergency lodging of critical staff at Port Vila Central

1,043

Hospital rations required

2,670

Subtotal

75,149Inpatient fees waived

8,331

Outpatient fees waived

8,000

Subtotal

16,331

Building repairs required

1,140

Fuel supplied

318

Fuel required

650

Vehicle hire undertaken

85

Communications

508

Stationeries

253

Subtotal

2,955

Replacement of broken mosquito nets

11,478

Health facility assessments conducted

188

Psychosocial support conducted214

Reproductive health outreach undertaken

10

Oral health outreach required

85

General outreach required

500

Subtotal
Total

12,475
106,910Impacts on health sector service delivery
Overall availability. Multi-cluster assessments conducted in all four affected provinces show thatthe availability of service has declined in the six key areas: general clinic services, child health,communicable diseases, STI/ HIV, maternal and child health, and noncommunicable diseases andenvironmental health. The fall is sharpest in the areas of child health and communicable diseases,
where service levels are reported to be under half of pre-cyclone levels. Because data are lacking,the reductions in these services have not been monetized as losses.
Vulnerable groups. Again because good data are lacking, gender- and disability-specific impacts
cannot be quantified. It is important to note, however, that given the high birth rate (32.5 per
1,000 women [VNSO and SPC 2014]) and a reduced health facility base, there is likely to be
an adverse impact on expectant mothers and their children. It is estimated that 900 women
will require specialized medical assistance over the next nine months. One early response
measure taken in Shefa is to focus more explicitly on high-risk pregnancy cases; nurses inhealth facilities are encouraged to update Vila Central Hospital each day by telephone if any
cases are problematic.

Table 27. Distributionof Losses to Health
Sector by Facility andProvince

44 Tropical Cyclone Pam, March 2015

Data on disability from the Vanuatu Demographic and Health Survey 2013 (VNSO and SPC 2014)
reveals that the prevalence of disability is higher in rural areas and among lower-income groups.
Ensuring access to services is an important challenge.
Table 28 and Table 29 show the total effect of Tropical Cyclone Pam by subsector and by province
respectively.

Table 28. Total Effectof Tropical Cyclone
Pam on Health Sector
by Subsector(VT 1,000)

Subsector

DamageLossesTotal Effects

Private (%)

Public (%)

Infrastructure and Equipment

869,7930869,793

1

99

Health Care Provision

075,14975,1490100

Health Sector Revenues

0

16,331

16,3310100

Health Sector Coordination

0

2,955

2,955

0

100

Additional OutreachInterventions

0

12,475

12,4750100

869,793

106,910

976,703

1

99

Sector Total

Table 29. Total Effectof Tropical Cyclone
Pam on Health Sector
by Province(VT 1,000)

Province

DamageLossesTotal Effects

Private (%)

Public (%)

Malampa

53,3796,740

60,1190100

Penama89,521

6,232

95,753

1

99

Shefa

513,320

59,832

573,152

0

100

Tafea

213,573

34,106247,679

4

96

Total

869,793

106,910

976,703

1

99

Recovery Strategy and Needs
Short-term recovery needs for the health sector
The short-term recovery needs cost to the Ministry of Health’s infrastructure, covering the next 12months, has been calculated as VT 566.8 million. The estimate reflects several inflation factors
under the BBB principle. A capital works plan will be produced to confirm all funding priorities.
The success of the short-term recovery strategy also depends upon funds being made available andscale-up of personnel within the next three months; otherwise the plan will slip to the long term.
Given the very tight funding situation that faces the Ministry of Health, it is judged that 100% of
the VT 106.9 million in losses will need to be recovered within the next 12 months in order to meet
expected health care needs. Support from development partners is already forthcoming to enhance
the capacity to manage public health risks. Included in the funding is support for expansion ofroutine childhood immunization across the whole country. As the costs of these public healthactivities are already covered, they are not included as short-term recovery needs.
The total short-term needs covering the next 12 months amounts to VT 673.7 million, as represented
in Table 30.

Vanuatu | Post-Disaster Needs Assessment 45

Sector

HealthProgram of Activity

Value (VT 1,000)

Reconstruction of infrastructureand equipment

566,822

Health care provision

75,149Health sector revenues

16,331

Health sector coordination

2,955

Additional outreachinterventions

12,475

Total

Responsible Agency

Table 30. Total ShortTerm Recovery Needs
in Health Sector

Ministry of Health(all recovery programs)a673,732

a. Exceptions are short-term reconstruction of community aid posts, valued at VT 21.5 million; municipal clinics, valued at VT 16.4
million; and private clinics, valued at VT 9.0 million. Save the Children, Port Vila Municipal Council, and private providers are
the respective responsible parties.

External funding of VT 31 million is currently available as a resource for the short-term plan forreconstructing infrastructure.

Medium- to long-term recovery needs for the health sector
An understanding, including quantification, of recovery needs beyond a 12-month time frame will
require further assessment of the impact of the cyclone on Vanuatu’s health sector.

Gender considerations for recovery strategy
In a pre-disaster situation, it is estimated that 6,800 ni-Vanuatu women would be pregnant in thefour affected provinces at any given time. Damage to health facilities means more women will find
it difficult to reach emergency obstetric care. It is estimated that some 900 women will require
specialized medical assistance over the next nine months. In addition, the post-disaster context
places women at increased risk of sexual violence. Reproductive health services and outreach by
government and NGOs should be strengthened to provide critical services, including maternal
health/family planning, response to sexual violence, and adolescent sexual reproductive healthservices and information.

3.2.3 Education
Summary
The impact of Tropical Cyclone Pam on the education sector is catastrophic, totaling VT 3.9 billion indamage. Immediate attention is required to allow children to return to school. The return to routine
and the familiarity of the school environment have been proven to assist children in recovering fromdisasters.
The cyclone severely damaged education facilities such as classrooms, staff houses, kindergartens,
and water and sanitation facilities as well as all the associated school furniture, books, and otherresources. Specifically:■■

187 classrooms were totally destroyed, 279 had major damage, and 152 had minor damage.

■■490 staff houses were damaged to some extent.

■■

218 kindergartens were damaged or destroyed.

■■

School resources and furniture were damaged or destroyed.

■■

Tafea Province is the most affected.

The impact ofTropical Cyclone
Pam on the
education sector
is catastrophic,
totaling VT 3.9
billion in damage.
Immediate
attention isrequired to allow
children to returnto school.

46 Tropical Cyclone Pam, March 2015

UAV footage of damages toschools on Tanna. Source:© HeliWest. Reproduced withpermission; further permission
required for reuse.

Destroyed school at South East
Ambrym. © Brecht Mommen,
UNICEF. Reproduced withpermission; further permission
required for reuse.

The number of damaged school buildings highlights the issue of poor construction standards andlack of maintenance of existing facilities. Initial damage assessments indicated that up to 34,614
children have been impacted by damaged school facilities, with 54% of early childhood careeducation (ECCE) centers damaged and 46% of all primary and secondary facilities completely
damaged also. In many cases, buildings that were totally damaged had been built by the community
in order to meet the need for more classrooms, or to provide accommodation for teachers. In these
instances the buildings had generally been constructed on a very limited budget and not according
to any building standard.
Learning supplies such as exercise books, textbooks, and writing instruments, along with schoolsupplies such as furniture and blackboards, have been damaged or completely destroyed in many
schools. In addition, the initial assessment and in-depth assessment undertaken as part of this
PDNA show that most affected schools will need access to water and sanitation in order to ensure
public health and safety. Currently, children in boarding schools are in need of water and food.

Subtotal

Tafea

Shefa

Malampa

PenamaProvince

246

94

111

22

19

34614

11928

19425

1653

1608

Total cost of education infrastructure work (VT 1,000)

Total (VT 1,000)

NumberTotal (VT 1,000)

NumberTotal (VT 1,000)

NumberTotal (VT 1,000)

NumberTotal (VT 1,000)

NumberNo. of Schools
Assessed

No. ofStudents
Enrolled

404

20

281

31

72

UsableTable 31. Overview of Assessed Education Facilities by Province

279
955,575

611,864

452,100

132

445,250130

34,25010

23,975

7

Major Damage

187

422,088129

137,42442

32,720

10

19,632

6

Totally
Destroyed

Classrooms

105,640

152

71,585103

27,800

40

3,475

5

2,780

4

Minor
Damage1,158,850

490

778,085329

127,71054

70,95030

182,105

77

Staff Houses

654,000

218

324,000

108

258,000

86

30,00010

42,00014

Kindergarten

322,080976

194,700

590

74,580226

23,10070

29,70090

WASH (VT3,808,009

2,242,558

1,070,764

194,495

300,192

Total for
Province(VT 1,000)

Vanuatu | Post-Disaster Needs Assessment 47

48 Tropical Cyclone Pam, March 2015

Figure 6. Primaryand Secondary School
Facilities: Extent of
DamageNo data available 10%
No damage 36%
Minor damage 13%

Major damage 25%

Totally destroyed 16%

Education Sector Background
The Ministry of Education and Training (MoET) is one of the largest government ministries,
overseeing a total of 1,093 schools (ECCE centers, primary schools, and secondary schools)35 and
18 Rural Training Centres.36 The sector covers enrollments for a total of around 80,000 students in
ECCE, primary and secondary schools, and Rural Training Centres.
The education system offers three years of ECCE, one year in child care and followed by two years
in kindergarten; primary school consists of years 1–6; junior secondary school consists of years
7–10;37 and senior secondary school consists of years 11–13/14.
Education plays a key role in addressing children’s need for normalcy and routine following a disaster,and can help children cope with the effects of trauma. Education spaces also can be used to provide
psychosocial support to children who have been through traumatic experiences. School repairs
and rebuilding, training of teachers, and provision of basic school and learning materials are allnecessary to enable children to continue their schooling and learning without further interruption.

Assessment of Disaster Effects on Education Sector
Assessment of the school buildings was undertaken by MoET staff in conjunction with other ministries
and external agencies. Damage was not limited to school buildings but also affected staff houses,
both those within the grounds of the schools and those built by communities outside the grounds.
The damage was calculated based on the type of construction of the damaged asset, but the needs
have been based on replacing and repairing buildings with durable engineered structures inaccordance with the principle of BBB. As can be seen from Table 32 and Table 33, the damage andlosses to the education sector are significant.

As recorded in the Vanuatu Education Management Information System (VEMIS), the numbers for each type areas follows: ECCE (568), primary (433), and secondary (92).
36
The figure applies to Rural Training Centres that are registered with the Vanuatu Qualification Authority.
37
Years 7 and 8 are also offered at a few primary schools known as Center schools.
35

Vanuatu | Post-Disaster Needs Assessment 49

Subsector

DamageLossesTotal Effects

Private (%)

Public (%)

3,808,009

66,8193,874,8280100

Curriculum Materials

59,782

11,61071,3920100Curriculum Equipment

40,609406

41,0150100

3,908,400

78,835

3,987,235

0100

School Buildings and Furniture

Sector Total

DamageLossesTotal Effects

Private (%)

Public (%)

Malampa

306,202

4,711

310,9130100

Penama200,930

6,943

207,873

0

100

Shefa

1,091,542

18,9991,110,541

0

100

Tafea

2,309,726

48,182

2,357,9080100

Sector Total

3,908,400

78,835

3,987,235

0100

Table 32. Total
Damage and Losses
for the Education
Sector (VT 1,000)

Table 33. Distributionof Damage and Losses
for the Education
Sector by Province(VT 1,000)

Recovery Strategy and Needs
Full access to formal and informal education, including early childhood care education, needs tobe fully reestablished for all children affected by Tropical Cyclone Pam. This requires extensive
repair, rehabilitation, and rebuilding of government and nongovernment schools, including waterand sanitation facilities, or provision of transitional/temporary facilities. UNICEF and Save theChildren have provided tents for continuing schooling in some cases where school buildings havebeen totally damaged. MoET is exploring the option of tents for staff while awaiting reconstructionof staff houses. Short-term and medium- to long-term recovery needs are set out in Table 34 andTable 35 respectively.
Sector

Education and Training

Program of Activity

Value (VT 1,000)

Responsible agency

Reprinting curriculum
materials (primary andsecondary)

59,782

Not yet identified

Replacing science andtechnology equipment(curriculum materials)

40,607

Not yet identified

Total

Table 34. Short-Term
Recovery Needs for
the Education Sector

100,389

Sector

Program of Activity

Value (VT 1,000)

Responsible Agency

Education and Training

Reconstruction of schools

6,748,764a

Not yet identified

Total

6,748,764

a. This value assumes reconstruction of all schools and associated facilities to appropriately engineered standards, in accordance with the principle of BBB. However, the MoET is aware of the need to rationalize the number of schools in Vanuatu, and
it is therefore unlikely that all school buildings will need to be repaired and reconstructed.

Gender considerations for recovery strategy
After disasters, children are more likely to stay out of school than under normal circumstances,
not only because schools have been destroyed, but because demands for family labor (e.g., house
clearing and crop planting) and reduced household income mean that children may need to assume

Table 35. Mediumto Long-Term
Recovery Needs for
the Education Sector

50 Tropical Cyclone Pam, March 2015

Woman surveys destroyed
kindergarten in Port Marvin,
Erromango. © Karen Bernard,
UNDP. Reproduced withpermission; further permission
required for reuse.

domestic duties. Although the literacy gap between women and men is very small, more girls thanboys usually support water fetching, cooking, and home cleaning. Thus the disaster impact across theaffected provinces could have a temporary negative impact on girls’ education. This is of particularconcern in Tafea Province, where only 9 out of 120 ECCE schools are operational.
This impact has serious implications for the work burden of women, as kindergartens play a criticalrole in freeing mothers’ time for pursuit of economic activities. Women report that young children
are the most vulnerable in the community because they are hard to take care of and need to bewatched, and these duties can be in conflict with women’s need to clean and rebuild their houses.
In addition, because more women than men are employed by the education sector, the closure ofschools will have an unequal impact on men’s and women’s incomes. Finally, loss of income fromagricultural and other income-generating activities means that parents will struggle to pay school
fees. Interviewed female vendors in Shefa Province indicated that they were most worried aboutfood security and school fees for their children.
A temporary waiver of school fees could alleviate the burden on rural households and reduce thenumber of children pulled out of school. In addition, recovery should support both public and private
ECCE schools for rehabilitation and rebuilding. Provisional day-care facilities should be established
to help alleviate the burden on females.

3.2.4 Culture
Summary
The peoples of Vanuatu have faced a changing environment and history for centuries, and adaptation
to change is part of their lifestyle. Traditional knowledge, skills, and practices, along with thepeople’s tangible and intangible cultural heritage, underpin their ability to live and thrive.

Vanuatu | Post-Disaster Needs Assessment 51

The PDNA cultural survey covered significant traditional and western buildings, the Vanuatu Cultural
Centre (VCC) complex, and an archaeological site. Subcenters of the VCC—i.e., the public library, theMalekula Cultural Centre, and the Tafea Cultural Centre—are damaged and need urgent repair andreconstruction assistance. The Further Arts Centre and Alternative Communities Trade in Vanuatu(ACTIV) Centre are significantly damaged; this will affect production and sales of handicrafts, which
are a significant contributor to tourism and the national economy. The Malvatumauri chief nakamal(traditional structure), a national treasure, sustained significant damage to its thatched roof andwalls but the main structure survived. The performance of nakamals during Tropical Cyclone Pam
demonstrates why traditional knowledge remains relevant and must be preserved as part of living
heritage and culture. At the time the PDNA was being drafted, Chief Roi Mata’s Domain, Vanuatu’s only
World Heritage site, remains badly affected by the cyclone’s impacts, with livelihoods threatened bysuspension of revenue-generating activities. Damage to selected government and privately owned
heritage buildings in Port Vila was identified from the National Heritage Register.
As reconstruction is planned, it is important to recognize that fibro cement sheets used for external
cladding are likely to contain asbestos, and that maintenance regimes are poor. It is recommended
that current building codes be reviewed and enforced; that appropriate maintenance be undertaken
regularly; and that the VCC and other cultural facilities develop a disaster risk management (DRM)
plan and a disaster risk reduction strategy with professional organizations, such as the International
Council on Monuments and Sites, the International Scientific Committee on Risk Preparedness,
the International Council of Museums, the International Council of Archives, the International
Federation of Library Associations, and the Blue Shield.

Culture Sector Background
Vanuatu’s “ethnic, linguistic and cultural diversity,” its “struggle for freedom,” and its “traditional
Melanesian values, faith in God, and Christian principles” are enshrined in its constitution. The
VCC works under the authority of the Vanuatu National Cultural Council, and its role under the
Preservation of Sites and Artifacts Act [CAP139] dictates that the work of the Centre is to protect,promote, and preserve the cultural, historical, and artistic values of Vanuatu. The VCC is also
responsible for the National Heritage Register. Vanuatu is party to the World Heritage Convention(1972) and the Convention for the Safeguarding of the Intangible Cultural Heritage (2003), andVanuatu sand drawing is inscribed on the Intangible Cultural Heritage Representative List. Several
NGOs and foundations actively engage in promotion of arts and culture in Vanuatu, supporting thedevelopment of an emerging cultural industry.

Assessment of Disaster Effects on the Culture Sector
Cultural heritage underpins community identity and plays a critical role in social cohesion. The
cyclone has had a tremendous impact on community facilities, which are living heritage, and on
historical records.
The cyclone damage highlighted the fact that construction of traditional nakamals has come toinclude western materials and techniques—which contributed to their collapse. Traditional building
techniques are in use in some villages, but elsewhere they are being lost. The building of nakamals
using traditional skills is a part of ni-Vanuatu culture that is under threat.

Vanuatu Culture Centre Complex and facilities
The VCC is the custodian of Vanuatu’s national cultural collections (archives, library, and museum).
The VCC buildings in Port Vila were partially damaged, and some cultural objects were affected by

Cultural heritage
underpins
community
identity and playsa critical role insocial cohesion.
The cyclone has
had a tremendous
impact oncommunity
facilities, which
are living
heritage, and on
historical records.

52 Tropical Cyclone Pam, March 2015

water. Posts of the Farea Tabu were destabilized and the thatched roof was partially damaged. The
public Library (Port Vila) and the Malekula Cultural Centre need new roofs. The Tafea Culture Centre
was destroyed and its equipment damaged.

Nakamals
The nakamal (also sometimes known as farea), a significant traditional community shelter datingback several centuries, is used for decision making, governance, teaching, and dispute resolution.
Traditionally every village had a nakamal, and traditional knowledge-based skills have adapted thistypology to resist cyclones.
Nakamals often provide community refuge during storms or cyclones and are critical in disasterrisk reduction. Windborne impact caused significant damage to the thatched roof and woven
bamboo walling of the Malvatumauri chief nakamal, but the lightweight materials and flexible
framing enabled it to survive. A number of other nakamals also incurred some damage: strong winds
damaged the long ridge of the Tikilasoa Farea (Nguna Island), causing water ingress. The roof of the
Nikoletan Council of Chiefs office (Tanna) sustained significant damage, and the structure and roofof the Takara (North Efate) nakamal was damaged principally by tidal surge.

Chief Roi Mata’s Domain (Lelema area, northwest Efate, Shefa Province)
Chief Roi Mata’s Domain, inscribed on the World Heritage List (2008), is a cultural site of profoundnational and international significance as well as a significant tourism destination. It is managed
by Lelema World Heritage Committee in collaboration with the VCC. Tours to the site are led by Roi
Mata Cultural Tours, a community-owned cultural tourism business that has been in operation since2008.
A preliminary visit on March 23, 2015, established that the cultural landscape, the Roi Mata Cultural
Tours facilities at Mangaliliu and Aupa, the tour boat’s engine, the World Heritage signage, and theoffice on Lelepa Island are significantly damaged. Obvious threats include potential deterioration,
damage to the gravesites of Artok Island, damage to culturally significant vegetation and stone remains
at Mangaas, and ongoing threats to the geological stability of Fels Cave. Landslides and fallen trees
prevent access and need a carefully managed works program to protect cultural values. Impacts on
local livelihoods threaten the community’s capacity to manage the heritage place. Cultural tours are
the primary mechanism to transmit the values of the place within and beyond the community.

Historic buildings including churches
In Port Vila, 17 places of general cultural and cultural heritage significance (churches, former
residences, archway, and public library and art galleries) that are included in the National Heritage
Register were surveyed during April 7–12, 2015. These places variously have aesthetic, historical,
technological, or social significance and are tangible links with Vanuatu’s history and culture. Twoplaces support the arts and crafts industry.
Damage sustained by Port Vila heritage buildings was assessed as not significant, and all of thebuildings have been reoccupied, are repairable, and should not be demolished. Importantly, the
PDNA assessment survey identified the following within historic buildings: (i) the probable use offibro cement sheet containing asbestos; (ii) a widespread poor maintenance regime (corrosion, rot,
probable termites); and (iii) probable use of materials inadequate for purpose, lack of appropriate
roof bracing, and inattention to rainwater. The BBB approach should address these shortcomings
wherever possible.

Vanuatu | Post-Disaster Needs Assessment 53

Alternative Communities Trade in Vanuatu (ACTIV)
ACTIV headquarters is located at the Centre in Second Lagoon, Port Vila, with the handicrafts centerand the chocolate factory. The handicrafts center opened in October 2014 and worked with women’sgroups and craftswomen across the islands to support handicrafts and agriculture production andmarketing.
The Tropical Cyclone Pam affected the structure, roofs, and electrical system of the ACTIV building,plus stock and income. Tourism essentially ceased after the cyclone, and the handicrafts centerremains closed as of April 9, 2015.

Further Arts Centre including Nesar Studio (community-access multimedia studio and library)
Further Arts is a registered charitable association in Anamburu, Port Vila, and Luganville (Espritu
Santo). Its focus is on promotion and development of cultural activities in Vanuatu and Melanesia. Nesar
Studio, opened in 2013, is a space for community voices, citizen and social media, and storytelling via
creative digital media. It runs educational and technical courses, engages members in projects andproductions, and provides support for external training, conferences, and employment opportunities.
Tropical Cyclone Pam significantly damaged the Anamburu office, along with multimedia equipment,
educational materials, significant raw film footage, hundreds of hours of culturally significant
documentation of Vanuatu’s heritage, and thousands of digital photos. The Nesar Studio’s revenue
has diminished because of this damage.

Assessment of Damage and Loss
An overview of the economic damage and losses to the cultural buildings assessed as part of this
PDNA is provided in Table 36.
Subsector

DamageLossesTotal Effects

Private (%)

Public (%)

Malvatumauri Council of Chiefs
and Other Nakamals

19,200019,2000100

Libraries/Archives, MKS, TKS

6,975

0

6,975

0

100

Chief Roi Mata Domain(World Heritage Site)

1,698

1,728

3,426

40

60

Historical Buildings in Port Vila

1,306

0

1,306

100

0

Further Arts Centre

7,500

1,000

8,500

100

0

ACTIV Centre

2,500

700

3,200

100

0

Churches of Port Vila

69,472069,742100

0108,651

3,428

112,349

75

25

Sector Total

Note: TSK = Tafea Cultural Centre (Tafea Kaljoral Senta); MKS = Malekula Kaljoral Senta.

Recovery Strategy and Needs
The estimated recovery needs for the cultural sector incorporate the principle of BBB.

Short-term needs for the culture sector
Restoration of the chief’s nakamal is a priority; it represents an iconic opportunity for collaboration
with and encouragement of affected communities, along with economic recovery through employment
generation. Priorities for Chief Roi Mata’s Domain are (i) full assessment of impacts and needs; (ii)

Table 36. Economic
Cost of Damage andLoss to the Cultural
Sector (VT 1,000)

54 Tropical Cyclone Pam, March 2015

restoration of site access; (iii) repair or restoration of site; and (iv) repair or replacement of facilities
and infrastructure for Roi Mata Cultural Tours. Priorities for the VCC are the assessment of nakamals
and assessment of the World Heritage site, along with reconstruction and maintenance of VCC
subcenters to enable them to resume services. Short-term recovery needs are presented in Table 37.

Table 37. Short-Term
Recovery Needs for
the Cultural Sector

Program of Activity

Value (VT 1,000) Responsible Agency

Emergency conservation of the Malvatumauri Council ofChiefs nakamals

12,000Emergency assistance for inventorying intangible
cultural heritage related to nakamals (phase 1)

2,500 VCC, UNESCO

Emergency repair works relating to VCC facilities in Port
Vila and Tafea Cultural Centre

6,975 Vanuatu government and VCC

Full loss and damage assessment of Chief Roi Mata’s
Domain (World Heritage site)

2,000 VCC, UNESCO World Heritage Centre

Emergency repairs and conservation of historicbuildings and churches
Development of action plans for the reconstruction of
Further Arts Centre
Emergency repairs of ACTIV Handicrafts Centre

1,306

Vanuatu government andMalvatumauri Council of Chiefs

Private owners and in-kind support
from VCC and government

8,500 Further Arts Centre
3,200 ACTIV

Emergency repair and improvement of churches

66,792

Total

103,723

Medium- to long-term recovery needs for the culture sector
Once the condition of the affected nakamals and associated stories during the cyclone are documented,
the priority is to recommend the best safeguarding measures. These include recording and teaching
traditional building skills and the processes of procuring traditional materials, as well as youth training,development of a disaster risk reduction strategy for nakamals, and potentially sourcing of funding
for reconstruction. BBB strategies should be implemented so as to combine best-practice traditional
knowledge with contemporary standards. Consideration should be given to capacity-building training
courses to revitalize traditional craft skills (e.g., weaving) by training trainers from other islands whowill share their learning with other village women and men. A strategic review of the management
plan for Chief Roi Mata’s Domain should incorporate a disaster risk reduction strategy, specificallyby documenting traditional community strategies for disaster management, including responses tocyclones. Medium- to long-term recovery needs are presented in Table 38.

Table 38. Mediumto Long-Term Recovery
Needs for the Cultural
Sector

Program of Activity

Restoration of Council of Chiefs nakamal
Inventory of intangible cultural heritage relating
to nakamals, capacity building for revitalization ofindigenous architecture and traditional building skills
Capacity building for cultural heritage risk management
Safeguarding of Chief Roi Mata’s Domain
Preservation and enhancement of historic buildings andchurches in Port Vila
Reconstruction of Further Arts Centre
Empowerment of craftswomen through sustainable
development
Total

Value (VT 1,000) Responsible Agency

12,000

Malvatumauri and Vanuatu
government

7,000 VCC, Christensen Fund
2,000 VCC
7,000 VCC, UNESCO WHC
7,000

Vanuatu government, municipal
government; VCC and private owners

8,500 FAC
5,000 ACTIV
48,500Vanuatu | Post-Disaster Needs Assessment 55

Gender considerations for recovery strategy
Women play a critical role in preserving the ni-Vanuatu culture. They are skilled craftspeople who
weave mats and baskets used in homes and bamboo walls for houses and nakamals, and they also
contribute to income generation in homes and communities. The network of VCC fieldworkers, which
comprised an equal number of men and women, has played and will continue to play an importantrole in incorporating a substantive gender-equality component and process in the intangible cultural
heritage post-recovery process.
One of the key needs identified by the culture sector for women is ensuring that they are able toreplant trees, such as pandanus and natangura, which are essential in their homes and also a sourceof income. It is also important to ensure that the markets promoting local handicrafts, such as
ACTIV, are functioning, so that women who create these handicrafts have a market for them.

3.3 Infrastructure Sectors
3.3.1 Transport
Summary
The transport infrastructure networks and facilities throughout Vanuatu suffered severe physicaldamage as a result of Tropical Cyclone Pam. Most damage was recorded in the provinces of Malampa,
Penama, Shefa, and Tafea, which were located directly in the cyclone’s path. The immediate effecton the transport sector was to (i) sever all modes of transportation, (ii) hamper access to markets
in Port Vila and other business centers and the surrounding communities, and (iii) hinder accessto education and health facilities in villages and communities. Even though the cyclone path itself

Damaged approach toTeouma bridge outside
Port Vila. © Michael BonteGrapentin, World Bank
Group.

56 Tropical Cyclone Pam, March 2015

missed the northern provinces of Torba and Sanma, the associated rain caused flooding damage toculvert crossings, road pavements, and aerodromes in these two provinces.38
Losses in the sector were the result of delays in travel time at blocked sections of major and heavily
trafficked paved roads and bridge-approach washouts; loss of revenue to the aviation sector as aresult of cancelled flights; and loss of business to the maritime sector resulting from ships’ inability
to sail (in particular, the staying away of cruise liners) and the salvage costs of those passenger
vessels that either sunk or ran aground during the cyclone.
Damage and losses in the transport sector constitute 13.5% of the total damage and losses sufferedacross all sectors.

Transport Sector Background
Vanuatu’s transport sector is of critical importance to—and underlies—its economic and social
development. For example, 70% of rural communities live near the coastline, and 66% of ruralcommunities rely on artisanal and subsistence fishing to meet a portion of their subsistence andincome needs. Thus the transport systems not only support the country’s economic life; they also
affect the ease and cost with which government administration and businesses operate, and withwhich households and communities interact and access markets and social and cultural facilities.
The aviation system, supporting both domestic and international travel, underpins public
administration of services for the dispersed populated provinces and the important tourism
sector. The country has 29 aerodromes, including three that are internationally certified (CategoryA): Bauerfield International Airport in Port Vila, Pekoa International Airport in Luganville, andWhitegrass International Airport in Tanna. There are three certified domestic aerodromes (CategoryB), which are at Norsup, Longana, and Lonorore, and a further 23 certified remote aerodromes(Category C) serving the domestic routes through all provinces.39 In 2013, 318,964 domestic andinternational passengers were transported by air carriers registered in the country.
The maritime sector comprises multipurpose (carrying passengers and cargo) international seaports
at Forari Bay, Luganville, and Port Vila under the responsibility of the ports authorities. Other
maritime infrastructure consists of around 36 small wharves, jetties, and landing stages, of which
22 are public ports and wharves. Marine transport is not only critical to international tourism but isparticularly important to domestic passenger and cargo movement within the country. The merchantmarine fleet of 77 vessels includes 38 bulk carriers, eight cargo vessels, and 24 refrigerated cargovessels.
The public road network comprises 2,233km across 24 islands, with 83% of the network constructedon eight main islands. The paved network, around 5% of the total, is restricted to Efate and Santo.
The remaining 95%—the primary network on all other islands—is unpaved gravel and earth roads,
typically island ring roads that follow the settlement patterns near the coastlines.

38
39

For consistency, damage and losses in Torba and Sanma have been omitted from the PDNA transport assessment.
There are also a small number of minor aerodromes: two for remote unscheduled operations (Category D) and two
private (Category F).

Vanuatu | Post-Disaster Needs Assessment 57

Assessment of Disaster Effects on the Transport Sector
Table 39 summarizes the cost of damage to the transport infrastructure and the value of thelosses incurred due to the cyclone. The cost of the damage is taken to be the replacement costsof the structures to the pre-disaster state40 using soundly engineered designs—which, in a country
as vulnerable as Vanuatu to natural hazard risk, necessarily incorporates strengthened design
measures. BBB is also a priority of the government for the entire network, but it is assumed that, in
time, the costs associated with BBB will be addressed through a number of ongoing development
projects.

Damage to the transport sector
Vanuatu’s transport infrastructure was severely damaged by Tropical Cyclone Pam. Partial damage
was incurred at all three international airports and at 11 or more of the minor domestic airports
and airfields. Partial damage was also recorded to wharves and jetties, and there was significant
damage to marine vessels, in particular the smaller fleet. Damage to roads and bridges was confined
to bridge-approach, culvert, and pavement washouts and blocked drains. About 80% of the road
network was completely blocked due to fallen trees.
The damage assessed as of April 19, 2015, is summarized in Table 39. The table captures thoseassets managed by MIPU and the activities of the major air and sea carriers. At the time of the
PDNA preparation, only limited verifiable information was available for those assets managed
by provincial authorities or owned by the private sector. The damage data therefore include anassumed margin of error.

Loses to the transport sector
The losses assessed as of April 19, 2015, are summarized in Table 39. Within available constraints,
loss assessment has been limited to losses associated with delays in travel time at blocked sectionsof major and heavily trafficked paved roads and bridges in the Port Vila vicinity; loss of revenue tooperators and government (MIPU) as a result of cancelled flights and cancelled departures of cruise
liners and cargo vessels; and the salvage costs of those passenger vessels that either sunk or ran
aground during the cyclone.
DamageLossesTotal

2,358,718

84,9882,443,706

Aviation

617,103905,315

1,522,418

Maritime

41,6001,147,046

1,188,646

3,017,421

2,137,349

5,154,770

Roads and Bridges

Total

Source: Ministry of Infrastructure and Public Utilities.
Note: Figures include allowance for rapid assessment margin of error. At the time the PDNA was being prepared, assessment oflosses had been undertaken only with regard to the following: losses of revenue by the major national airline carrier, Vanuatu
Airports Authority, and a private locally registered carrier (which had ceased operations for three days around the time of thecyclone); loss of piloting and wharfage for nonarrival of cruise ships over the initial 10-day period and an assumed three-month
slowdown in arrivals; salvage and towing costs of grounded vessels; and estimated revenue losses by inter-island cargo vessels anda large stevedore. Delays in travel time on the affected road network in Port Vila (only) also have been costed. Further disruptions
in transport services as they affected businesses and household livelihoods are captured in the commerce and industry sector
assessment and by the social and household impact assessment.

40

Where necessary, these costs include phased reconstruction, including emergency repairs and medium- and longterm (<4 years) reconstruction.

Table 39. Damageand Loss Summary
for Transport Sector(VT 1,000)

58 Tropical Cyclone Pam, March 2015

Table 40.
Distribution of
Damage and Losses inTransport Sector by
Province (VT 1,000)

DamageLossesTotal Effects

Private (%)

Public (%)aMalampa

162,4640

162,4640100

Penama74,847074,847

0

100

Shefa

2,506,730

2,137,349b

4,644,079

48

52

Tafea

273,3800273,380

0100

Sector Total

3,017,421

2,137,349

5,154,770

43

57

Note: For consistency with other sectors, Torba and Sanma Provinces have been excluded. However, MIPU has carried out assessments for these two provinces, and figures are available.
a. Includes state-owned enterprises.
b. Only assessed (major) losses are recorded and have been assigned to Shefa Province. The distribution of the losses across thesubsectors is shown in Table 39.

Potential impact of disaster effects on service delivery
Access to essential services was cut off to all the major centers around the country, and quality ofservice suffered because of cancelled flights, vessels not sailing, and inaccessible roads. Lack of allweather access on most of the road network has also restricted the delivery of emergency supplies
after the cyclone. Maritime services ceased for 10 days and airports were closed for 3 days during
the cyclone, and these interruptions have severely impacted tourism and other services. While theairports and seaports themselves are now largely operational, it is assumed that inbound air and sea
passenger (tourist) traffic will be disrupted for at least two more months.

Increased risks and vulnerabilities resulting from the cyclone
Transport infrastructure remains vulnerable to further damage and total failure unless emergency
protective repairs are carried out immediately and restoration work is designed with soundengineering solutions to make the infrastructure climate resilient. Emergency attention is required
to address (i) the airport at Lamen Bay on Epi Island; (ii) the landslide at Klems Hill on the Efate
ring road; and (iii) the washed-out sections to the north of the Efate ring road. Proper engineeringsolutions that include climate-proofing measures need to be implemented immediately before
further damage is inflicted by heavy rain.

Recovery Strategy and Needs
The total cost of the damage assessed to date is VT 3.02 billion, with the distribution across thethree modes of transportation shown in Table 39 above. Even though the cost includes a 30%
allowance for error taking into account the very rapid nature of the assessment, this figure may
increase slightly after MIPU is able to visit and assess damage in the islands that have not yet been
visited (as of April 2015).
MIPU will continue with repair works to roads and bridges using its 2015 budget allocation formaintenance as bridging finance, but the available funds fall well short of the total needs forrecovery. Ongoing planned maintenance of other assets not damaged by the cyclone should continue
at the same time. Supplementary funding therefore needs to be secured quickly to facilitate fullconstruction of the emergency works and to ensure a smooth transition from the emergency phase
to medium-term restoration and the application of BBB principles or long-term measures.
The losses as incurred by MIPU and the state-owned enterprises are unlikely to be recovered
through own-source revenues and would need supplementary budgetary provision. Operation losses
incurred by private sector operators are unlikely to have been covered by insurance. As private air

Vanuatu | Post-Disaster Needs Assessment 59

Cyclone damage to outerisland domestic terminal
in Epi. © Michael BonteGrapentin, World Bank Group.

and marine operators are expected to return to pre-disaster service levels in the coming weeks, therecovery strategy concentrates on reconstruction of airports, port facilities, and roads and bridges
to ensure that travel can be brought back to normal levels as soon as possible and ongoing losses
minimized. Given the extreme vulnerability of Vanuatu to natural hazard risk, all construction will
be done to a soundly engineered standard, and phased as necessary.

Short-term recovery needs for the transport sector
The priority for the transport sector is to restore connectivity to essential services such as hospitals,
schools, markets, and the main commercial centers around the country in the shortest possible
time. This will benefit the entire population and in particular the poorer and more vulnerable
groups, who have limited buffers for longer travel times on alternative routes. The expenditure on
the emergency phase after one month of operation was in excess of VT 124 million, and at thetime of this PDNA it was continuing to increase as clearing operations and emergency repairs wereongoing. It is expected that the emergency phase—during which assets are temporarily restored
to function safely—will take up to six months. A number of private contractors located within thecyclone-affected islands have also assisted with the clearing works.
The reinstatement of the damaged transport assets to the pre-cyclone condition, applying soundengineering designs, will be a priority during the six-month to one-year time frame. More delay insuch reinstatement will result in an increase in the losses and the cost of the repairs, as current
damage will further deteriorate. Due to the vast area affected by Tropical Cyclone Pam, it is notpossible to effectively carry out restoration work using the limited resources, both equipment and60 Tropical Cyclone Pam, March 2015

manpower, that MIPU has in its force account operation and contract management. Therefore a
combination of force account and contracting out needs to be carefully planned, with assistancefor detailed engineering designs, environmental and social safeguards, and a project management
team to be established within MIPU. Total short-term recovery need is VT 2.2 billion, as shown in
Table 41.

Table 41. Short-Term
Recovery Needs for
the Transport Sector

Program of Activity

Value (VT 1,000) Responsible Agency

Roads and bridges: Temporary repair of bridges and clearing ofdebris from roads, landslides, and waterways

422,523 MIPU/PWD

Aviation: Repair of airport terminal building and hangers andreplacement of damaged equipment

66,088 MIPU, AVL, Private

Maritime: Replacement of damaged navigation aids

1,014 MIPU/P&Ma

Road and bridges: Restoration of road sections, repair of bridges,
restoration of drainage and professional engineering services

909,776 MIPU/PWD

Aviation: Repair of runways, installation of navigational aids andenvironmental safeguards, rebuilding of terminals, restoration of
professional engineering services

736,145 MIPU, AVL

Maritime: Replacement of fenders to improve design at wharves;
provision of additional bollards, lighting, and professional
engineering services

53,066 MIPU/P&M

Total

2,188,612

Note: PWD = Public Works Department; AVL = Airports Vanuatu Limited; P&M = Ports and Marine Department.
a. Private moorings have largely been replaced by the private sector.

Medium- to long-term recovery needs for the transport sector
To minimize the detrimental effect of natural disaster on transport infrastructure, the mediumand long-term restoration efforts should apply the BBB principle governed by soundly engineered
designs for climate proofing using MIPU’s Vanuatu Resilient Roads Manual: A Design Guide for Low
Volume Rural Roads in Vanuatu Based on Accessibility, Security and Sustainability (PWD and MIPU
2014). For the aviation and maritime sectors, it is anticipated that ongoing sector development
projects will incorporate such principles in all designs to be undertaken.41 The total estimatedcost for direct Tropical Cyclone Pam–related long-term response (BBB) is VT 1.7 billion, as shownin Table 42.

Table 42. Mediumto Long-Term
Recovery Needs for
the Transport Sector

Program of Activity

Reconstruction of main highway sections

Value (VT 1,000) Responsible Agency

1,734,035 MIPU

Aviation0 Ongoing development projects

Maritime

0 Ongoing development projects

Total

41

1,734,035

Transport-related projects currently being implemented by MIPU that might be drawn on to meet some of the recovery needs are the Vanuatu Aviation Investment Project, Port Vila Urban Development Project, Port Vila Tourism
Infrastructure Project, Roads for Development (R4D) Program, Vanuatu Inter-Island Shipping Program, Shipping
Subsidy Support Mechanism, Tanna Road Phase I and II, Malekula Road Phase I and II, and Port Vila Temporary
Domestic Wharf.

Vanuatu | Post-Disaster Needs Assessment 61

The following principles and approaches are endorsed by MIPU (see PWD and MIPU [2014]) for
future reconstruction activities:■■

Due to the terrain and high rainfall, it is important for road designs and maintenance toemphasize drainage, such as by provision of scour checks, line drains, relief culverts, andoutlets and soakaway pits. Consideration might also be given to elevating low spots (wherepractical) and sealing shoulders. Drainage structures should also rely more on in situ buildingof concrete pipe culverts rather than the use of corrugated pipes, given the aggressive
environment and corrosion.

■■Community consultations will be a key part of the implementation approach. Strong
community ownership will be essential to ensuring longer-term sustainability of investmentsin the road network, particularly as communities are expected to play a substantial role infuture routine road maintenance. As different groups (men, women, those with disability)
may have different needs, the pre-construction engineering designs should be informed bymeaningful engagement with communities, and with different groups within the communities,
to identify needs, risks, and adaptation measures.

■■

Labor-based methods are very well suited for the construction of drainage structures,
excavation of drainage channels, construction of soil berms, stone pitching, scour protection,etc. As part of the MIPU inclusive approach, both men and women will be provided with
opportunities for participating in construction and planned maintenance employment.

■■

Roads should be built to be sustainable and climate resilient. All decisions made on thelevel of intervention must be based on the principle of no regrets. Whatever decision ismade should allow for further modifications to be made in the future without excess cost or
difficulty. The climate change design interventions should be reviewed every 5 to 10 years.

■■

As part of its ongoing institutional reforms, MIPU is focusing more on the setting of policy
and oversight functions and wishes to facilitate the involvement of the private sector to theextent possible in the reconstruction effort. This involvement may be by way of construction
contracts, community-based activities, or formal public-private partnerships as appropriate.

Gender considerations for recovery strategy
Transport infrastructure with strong linkages to women’s needs include the roads that facilitate
access to public infrastructure such as health facilities, courthouses, primary schools, child carefacilities, and markets. Women are also frequent users of secondary and tertiary road networks
because they are more likely than men to do connective trips.
Clearance of debris from secondary or tertiary roads should be considered when prioritizing recovery
needs. Paid debris clearance programs should ensure that both women and men can benefit fromthem.

62 Tropical Cyclone Pam, March 2015

3.3.2 Public Buildings
Summary

Generally
public buildings
performed wellduring Tropical
Cyclone Pam,
although anumber ofbuildings werein a weakened
condition prior
to the cyclone
due to poor cyclic
and routine
maintenance,
which limited
their capacity towithstand evena moderate wind
event.

Generally public buildings performed well during Tropical Cyclone Pam, although a numberof buildings were in a weakened condition prior to the cyclone due to poor cyclic and routine
maintenance, which limited their capacity to withstand even a moderate wind event. Such buildings
have in many cases been damaged, and the damage is considerably worse than for those with arobust, sound construction. For damaged buildings, the damage is typically associated with roofing
and the roof structure and has arrisen from poor construction standards in many of the colonial-age
buildings. The major mode of failure is roofing iron, followed by roof structures not being securely
fastened. There have been few examples of wall failures in the public buildings.
Buildings that were designed in the modern era generally performed well, as they were designed
and constructed to a higher standard for cyclonic wind and seismic events. An emerging issue is
exposure of asbestos sheeting used as a construction cladding in the past. This is obvious in a
number of locations. As an issue of public health, this should be addressed as soon as possible.
Forty public buildings were identified by the Public Works Department for assessment. After
categorizing the levels of damage, 11 were assessed as being more than 40% damaged, and thebalance of the buildings were assessed as being superficially damaged (less than 40% damage).
Two buildings in particular have been identified as requiring immediate reconstruction action:■■

The National Disaster Management Office building under the Vanuatu Meteorology and GeoHazards Department (VMGD). The NDMO is designated as the controller for response andrecovery operations under the National Disaster Act (Cap 276) of 2000. The building requires
special attention given its essential pre- and post-disaster functions. The building was flooded
during the cyclone event. The flooding occurred because of preexisting poor construction
standards and building design detailing, and because of the abnormal nature of the rain
event. Recommendations have been made as part of this PDNA to rectify the problems.

■■Malvatumauri Council of Chiefs building has been damaged and needs restoration. Thisparticular building has been highlighted here due to its important cultural and traditionallands tribunal function. However, the costs associated with the damage and recovery needs
are included within the cultural sector assessment as part of this PDNA (Chapter 3.2.4).

Public Buildings Sector Background
There has been an ad hoc application of building codes and building standards, and this increases
risk to public (and private) buildings during a disaster event such as Tropical Cyclone Pam.
Public buildings in and around Port Vila are a mixture of contemporary design and construction
and colonial construction. The same mixture is found across the four provinces considered within
this PDNA. In many cases, the buildings have not been designed for cyclonic wind events of any
nature. The colonial-era buildings generally are not of good construction, especially the metal roof
structures. There are also examples of concrete cancer within this building group associated withthe age of the buildings and the lower construction standards at the time.42 Poor routine and cyclic
maintenance left these public buildings vulnerable to the cyclone. Buildings constructed according
42

Concrete cancer is concrete degradation caused by the presence of contaminants or the action of weather
combined with atmospheric properties.

Vanuatu | Post-Disaster Needs Assessment 63

to contemporary design and construction standards are of a more resilient stock, having been
specifically designed and constructed for cyclonic conditions and seismic activity.
Public (government staff) housing appears to have been constructed to a much lower standard thanthe other contemporary public buildings. Public/staff housing construction has suffered from thebuilding profession’s lack of knowledge of standards appropriate for cyclonic and seismic events.
The construction industry would greatly benefit from future capacity building, technical assistance,
and targeted changes in professional practice to make use of standards appropriate to robust
construction for severe cyclonic and seismic events. Public/staff housing also appears to havesuffered from neglect (i.e., poor cyclic and routine maintenance), which left the roofing and roof
structures particularly vulnerable to cyclonic events, and then once damaged vulnerable to rain.

Assessment of Disaster Effects on Public Building Sector
The effects of Tropical Cyclone Pam on public buildings varied across the islands of Vanuatu. Whilethe damaging effects of the wind were limited in the northern provinces, they resulted in significant
damage to public buildings in the southern provinces of Shefa and Tafea. Damage to buildings,
furniture, and equipment were also incurred due to inundation from rain. The total cost of thedamage to public buildings was estimated to be VT 532 million.
Losses are linked to costs associated with lost rental income, removal of rubble and mud fromdamaged buildings, and retrieval of public data/records that were damaged or lost during Tropical
Cyclone Pam. The total loss was estimated to be VT 12 million.
A summary of the damage and loss associated with public buildings is presented in Table 43. The
distribution of damage and loss by province is presented in Table 44.
Subsector

Damagea

LossesTotal Effects

Private (%)

Public (%)

Government offices

274,441

9,000

283,441

0100

Government Staff Housing

136,829

3,000

139,8290

100

121,0890100

544,359

0100

VMGD Emergency Warning Centre
Sector Total

121,089
532,359

12,000

Table 43.
Quantification of
Damage and Lossin Public Buildings
Sector (VT 1,000)

a. The Ministry of Infrastructure and Public Utilities divided damage into four categories: 0 for a structure habitable with only
cosmetic damage; 1 for a structure damaged and currently fully or partly uninhabitable but repairable (10–15% of total asset);
2 for a structure temporarily uninhabitable and needing major repairs (15–40% of total asset); and 3 for a structure permanently
uninhabitable and condemned.

DamageLossesTotal Effects

Private (%)

Public (%)

Shefa

227,536700

228236

0

100

Tafea

117,396200

1175960100

Geographic Location of Data Not
Available

187,427

11,1001985270100

Sector Total

532,359

12,000544,3590100aNote: Although buildings in the province of Torba have been excluded from the PDNA figures, they were especially affected by theweek-long rain event and flooding associated with Tropical Cyclone Pam.
a. Data for Shefa include the VMGD Early Warning Centre.

Table 44.
Distribution of
Damage and Losses
for Public Building
Sector by Province(government officesonly) (VT 1,000)

64 Tropical Cyclone Pam, March 2015

Increased risks and vulnerabilities resulting from disaster
An emerging issue related to public buildings following Tropical Cyclone Pam is the exposure ofasbestos sheeting, which was used as a construction cladding in the past and has been uncovered
in a number of locations. As an issue of public health, this damage should be addressed as soon as
possible.
A significant ongoing issue at the time of this PDNA is the damage from the original rain event aswell as from subsequent periods of rain. The inundation of buildings after damage to the roof has
resulted in loss of records and data. Two examples of this issue are the Ministry of Finance andEconomic Development building and the archive store in the Provincial Affairs Department in the
Ministry of Internal Affairs.

Recovery Strategy and Needs
The total monetary value of recovery needs, in the short term (12 months) and in the mediumto long-term (12–48 months) is shown in Table 45 and Table 46. Needs have been calculated inaccordance with the principle of BBB, to ensure that reconstructed public buildings can withstandCategory 5 cyclones in the future.43 A close examination of this event in terms of wind speed andreturn period needs to be undertaken, to determine if Category 5 is to become the new normal.
The NDMO and associated first-responder buildings should be closely examined, possibly reverseengineered, to ensure that they are able to withstand cyclones and other hazards. Less importantbuildings, with a shorter building life expectation, can be designed and constructed for a lower
cyclone category.
Adhering to the principle of BBB will add between 10% and 15% to construction costs. The significant
reconstruction issues for Vanuatu are a better standard for roof structure tie-down to walls, betterand heavier members sizes for rafters and purlins, and better and more robust metal roofing decks
fixed with heavy gauge screws and storm washers. It was found that due to the seismic conditions
in Vanuatu, building walls in permanent construction generally have a default standard of original
construction that is robust, with considerable redundancy for cyclonic wind action.

Short-term recovery needs for public buildings sector
At the time of this PDNA, reconstruction of damaged public buildings has generally proceededwith little or no regulation or supervision. There is a real need to ensure that construction work on
government buildings is carried out to an appropriate standard. Recovery needs in the short term
include the need to ensure that the emergency repairs and the rapid rebuilding of public buildings
is properly supervised. There is also a need to ensure containment of any threat from asbestos
cladding. The short-term recovery needs are presented in Table 45.

Table 45. Short-Term
Recovery Needs for
the Public Buildings
Sector

Sector

Program of Activity

Value (VT 1,000)

Responsible Agency

Public Buildings: Offices

Emergency repair

181,061

PWD

Public Staff Housing

Emergency repair

47,559PWD

VMGD

Emergency repair

68,624

Total
43

297,245

The building standard varies depending on the importance of the building. A policy for future hazard events andbuilding standards needs to be determined.

Vanuatu | Post-Disaster Needs Assessment 65

Medium- to long-term recovery needs for public buildings sector
Proposed medium- to long-term needs include capacity building and technical assistance forpromotion of better building standards (Table 46).
Regarding government public buildings and public staff housing, a concerted effort is needed toincrease awareness and practical application of better building standards and better regulation ofbuilding practices. There are no building control standards in Vanuatu, although the Building Act wasrecently passed (2014) and a draft building code has been prepared and is awaiting approval. Its
practical application would be most appropriately focused on the formal building stock—government
and public building and facilities, along with commercial and high-value residential buildings.
Technical assistance within the Public Works Department (PWD), the three urban municipalities,
and the professional institutes is recommended to address this issue in practical form.
Sector

Program of Activity

Value (VT 1,000)

Responsible Agency

Public Buildings: Offices

Rebuild

93,380

PWD

Public Staff Housing

Rebuild

89,269PWD

VMGD

Improvement works

52,465

Capacity building/technicalassistance for building standards

45,000

PWD

Identification of asbestos threat
hazard15,000

PWD

Public Works Department

Total

Table 46. Medium- to
Long-Term Recovery
Needs for the Public
Buildings Sector

295,1143.3.3 Water, Sanitation and Solid Waste
Summary
Strong winds and intense rain from Tropical Cyclone Pam damaged water and sanitation
infrastructure, which in turn has affected health, protection, and education. Damage to rural andperi-urban water supply networks has primarily impacted rainwater catchment systems, with roofs,
guttering, and pipework the most affected. Rainwater-dependent islands have been most vulnerable
in the aftermath of the cyclone, as communities have limited water source alternatives. Urban
water infrastructure managed by the private company UNELCO suffered no major damage, and thecompany anecdotally reported minimal losses. Sanitation superstructures (i.e., structures above
the ground) made from bush materials suffered considerable damage. As a result, women, children,and vulnerable people now lack privacy and, in some cases, safe access to sanitation facilities.
Education and health facilities also suffered substantial damage to water and sanitation facilities,
primarily associated with rainwater catchment systems and bush toilets.
Solid waste management suffered substantial losses due to the large amounts of green waste
and building material debris that need to be collected, transported, and processed. This has put
additional pressure on the landfill space and waste management resources.

Water, Sanitation and Solid Waste Sector Background
Water. Currently there are many actors in the water sector. The Department of Geology, Mines andWater Resources (DGMWR) under the Ministry of Lands and Natural Resources (MLNR) is responsible
for rural water supply and water resources management. The Department of Public Health, under the
Ministry of Health, is responsible for health promotion and sanitation messaging. The Department

Strong winds
and intense rainfrom Tropical
Cyclone Pam
damaged waterand sanitation
infrastructure,
which in turn has
affected health,protection, andeducation.

66 Tropical Cyclone Pam, March 2015

People developing immediate
solutions to the destroyed
housing and rainwater
harvesting systems on Mataso
Island. © Brecht Mommen,
UNICEF. Reproduced withpermission; further permission
required for reuse.

of Public Works, under the Ministry of Infrastructure and Public Works, is responsible for peri-urban
water supplies in provincial centers. The regulation of water in Vanuatu is controlled by the Utilities
Regulatory Authority (URA) under the Ministry of Finance. The Ministry of Education and Training is
responsible for ensuring access to water and sanitation facilities and integrating hygiene promotion
into curriculum at schools. UNELCO is a private enterprise and the utilities concession holder for the
production, transport, and supply of water (in addition to electricity). Access to improved drinking
water in Vanuatu is on track to meet the 2015 Millennium Development Goal indicator 30—that is,
84% national coverage (WHO/UNICEF 2014).44 The four provinces covered by this PDNA each havea unique composition of water supply systems including piped (gravity fed and pumped), borehole,
protected well or spring, and rainwater.
Sanitation. The percentage of the population using sanitary means of excreta disposal in Vanuatu isslightly under the 64% target of Millennium Development Goal indicator 31 (WHO/UNICEF 2014).
Sanitation coverage is achieved predominately through ventilated improved pit (VIP) latrines andbasic pit latrines. Both take advantage of local bush material superstructures that make themsignificantly susceptible to damage from high winds.45
Solid waste. The Port Vila Municipal Council (PVMC) and the Lenakel Municipal Council areresponsible for solid waste management and report to the Department of Local Authorities
under the Ministry of Internal Affairs. PVMC is responsible for providing municipal solid waste
collection service for all residences, businesses, and government offices within the boundaries
Improved drinking water sources include sources that, by nature of their construction or through active intervention, are protected from outside contamination, particularly fecal matter.
45
The superstructure consists of a simple 1m x 1m square building, approximately 2m tall, made of local bush materials such as bamboo and coconut leaves.
44

Vanuatu | Post-Disaster Needs Assessment 67

of the municipality. Before Tropical Cyclone Pam, the waste management within PVMC was bothunderstaffed and underresourced, with aging infrastructure. Public (weekly or biweekly) and private
collection provide limited coverage, with about 60% of waste generated collected and depositedat the Bouffa landfill. There is little or no waste collection at the edges of the municipality or in theperi-urban informal settlements, where waste is dumped or burnt. Prior to Tropical Cyclone Pam,
four of PVMC’s eight collection vehicles were in need of repair, as was heavy equipment at thelandfill. On Tanna, the Lenakel Municipal Council was struggling to collect waste before the cyclone.
Without its own collection vehicle, it was resorting to hiring taxis to pick up waste around Lenakel
and drop it off at a temporary, unsanitary dump site. The waste management budget for Tanna Islandin 2015 is reportedly only VT 100,000.

Assessment of Disaster Effects on the Water, Santiation and Solid Waste Sector
Damage to the water, sanitation, and solid waste sector
Water. The major damage to water infrastructure was to rainwater catchment structures andassociated pipework, as can be seen in Figure 8. The systems were damaged in both urban andrural settings due to strong winds, flying debris, and fallen trees. Gravity pipeline systems havebeen damaged due to falling trees and landslides, with the damage exacerbated by pipelines not
being buried. Damage to pumped systems is predominately related to the pump failure throughdirect impact, surge damage, or loss of power. Groundwater sources have been contaminated fromdebris and seawater in coastal areas. The impact of the damage was exacerbated by systems being
unprotected but also through poor hygiene practices such as open defecation, resulting in fecal
contamination of wells.
Urban water infrastructure damage to the UNELCO network include isolated and limited
pipeline washouts and damage to one large storage tank. The UNELCO urban water network was
predominately unaffected, and the company was able to get the system online within the week using
its self-insurance reserves. Within the urban municipality of Port Vila, there is little knowledge ofdamage to private systems that are not a part of the UNELCO network. The same is true for the peri-

35

Figure 7. Damage
to the Public Water
Subsector by System
Type and Province

Damage (million VT)

30
25

Sources: DGMWR 2015;
Shelter 2015; UNICEF 2015.

20
15
10
5
0
Rainwater catchment

Direct gravity piped

Indirect gravity piped

Water supply system typen Shefa n Tafea n Penama n Malampa

Hand pump/well

68 Tropical Cyclone Pam, March 2015

urban private water networks on the boundaries of Port Vila. The damage to these private networks
was not established as part of this PDNA.
Sanitation. Sanitation infrastructure suffered considerable damage, with nearly 70% of sanitation
superstructures destroyed. The superstructures are predominantly constructed from bushmaterials, which increases their vulnerability to strong winds and flooding. There has been minimal
substructure/below-ground damage due to inundation. The only urban piped wastewater system—atthe national hospital in Port Vila—was not reported as damaged. The majority of urban sanitation
systems are septic tanks that reportedly incurred no damage.
WASH for health and education facilities.46 Damage to water and sanitation assets in the healthsector have been estimated at approximately VT 113 million (Chapter 3.2.2). Damage to water andsanitation assets in the education sector have been estimated at VT 270 million (Chapter 3.2.3).
Even before Tropical Cyclone Pam, the water, sanitation, and hygiene (WASH) infrastructure in placeat health care facilities fell short of internationally recognized standards for such facilities (WHO2015). There are currently no national standards or recognized guidelines for WASH in the healthor education sectors. This omission will need to be addressed in both short-term and medium- tolong-term recovery and rehabilitation plans.
Solid waste. There was minor partial damage to a number of roof structures on workshops andoperational buildings related to solid waste management. There was also 100% damage to waste
collection receptacles in Lenakel.

Losses to the water, sanitation, and solid waste sector
Water and sanitation. Communities with limited sources of water have increased vulnerability tonatural hazards such as cyclones, storm surges, and floods, which can destroy or contaminate
their primary water source. Once these primary improved drinking water sources are damaged
or destroyed, there is a considerable loss to individuals, who are forced to use secondary andtertiary sources. Up to 80% of this loss is attributable to lost productive time,47 which results
when additional time is needed to collect, transport, and store water. Secondary sources are also
generally of lesser quality, quantity, and reliability, and are used for activities such as washing. They
are also predominantly unprotected and hence likely to become contaminated. This increases thedisability-adjusted life years48 of individuals and results in losses in terms of additional medical
treatment costs, lost productive time for disabled individuals, and lost productive time for those(predominately women) who nurse them. Losses to UNELCO have not been disclosed so have notbeen covered in this PDNA.

WASH damage and loss estimates for health and education facilities have been considered within the health andeducation chapters of this PDNA (Chapter 3.22 and chapter 3.23 respectively). These figures are discussed here
for information only, and have not been considered within the total damage and loss estimates for the water, sanitation and solid waste sector.
47
The method used to estimate these losses to individuals from damage to both water and sanitation infrastructure
was derived from the global cost-benefit analysis of water supply and sanitation interventions conducted by theWorld Health Organization (Hutton, Haller, and Bartram 2007; Hutton and Bartram 2008; Evans et al. 2004; OECD2011). The lower benchmark in Western Pacific Region B of US$1 investment equals US$12 increased economic
output was used. The logic was then reversed so that US$1 of asset damage would result in US$12 of economic
loss. It was assumed that the losses would be incurred until the preexisting level of service was recovered (3months) and the benefit/loss was equally distributed throughout the life of the asset (120 months).
48
The disability-adjusted life year (DALY) is a measure of overall disease burden expressed as the number of years
lost due to ill health, disability, or early death.
46

Vanuatu | Post-Disaster Needs Assessment 69

Solid waste. Losses associated with solid waste management have been due to the large amountsof green waste and building material debris that need to be collected, transported, and processed.
This has put additional pressure on the landfill space, the machinery operating at the landfill, andthe waste collection fleet. Following Tropical Cyclone Pam, the Public Works Department worked for
four weeks clearing green waste from the municipal area at its own cost. It hired six loaders and 13
trucks and had four chainsaw teams operating for the first two weeks; for the next two weeks thedepartment hired three loaders and nine trucks.
The total damage and losses by subsector and province are presented in Table 47 and Table 48
respectively.
SectorDamagea

LossesTotal Effects

Private (%)

Public (%)

Water

198,305b

152,462c

350,767

65

35

Sanitation

210,000

63,000273,000

77

23

5,250

68,25073,5000100

413,555

283,712d

697,267

63

37

Solid Waste Management
Sector Total

Table 47. Total
Damage and Losses in
the Water, Sanitation,and Solid Waste
Sector (VT 1,000)

Sources: DGMWR 2015, Shelter 2015, UNICEF 2015.
a. Damage assessment reports were taken from a number of sources, primarily DGMWR (2015), Shelter (2015), and UNICEF(2015). Replacement costs were estimated directly by UNELCO, DGMWR, and World Bank for damage up to 40%. Damages
greater than 40% were estimated as requiring full replacement. Full replacement costs were estimated from current DGMWR
project budgets of similar assets in the same province.
b. An estimated VT 360 million in damage to private rainwater harvesting infrastructure (typically private household roofs) was
included in the housing sector. This amount has not been double-counted within this chapter.
c. Losses to UNELCO have not been disclosed for the urban water sector so have not been covered in this PDNA.
d. Of total losses, 70% is attributed to private households and is included for information purposes only.

Province

DamageLossesTotal Effects

Private (%)

Public (%)

Malampa

93,15554,497

147,652

68

32

Penama30,60015,18045,780

45

55

Shefa

210,410

168,533

378,943

61

39

Tafea

79,39045,502

124,892

68

32

Total

413,555

283,712a697,267

63

37

Sources: DGMWR 2015; Shelter 2015; UNICEF 2015.
a. Of total losses, 70% is attributed to private households and is included for information purposes only.

Increased risks and vulnerabilities resulting from disasterA key vulnerability that has emerged concerns those communities that rely solely on rainwater andthat had their systems damaged or destroyed during the cyclone. The islands of Tongariki, Mataso,
Makira, Buninga, Nguna, Moso, Aniwa, and South East Ambrym will require emergency assistanceduring the recovery phase, and consideration should be given to fostering resilience on these islandsin the medium to long term through drilling shallow bores with hand pumps.
Initial rapid assessments indicate that there has been a substantial increase in open defecationand sharing of latrines by multiple people due to lack of private toilets. In the aftermath of thecyclone, 30% of rural communities reported that they are resorting to open defecation, compared toa 2.5% rural open defecation baseline. The increase in this practice aggravates the risk of diarrheal
diseases (VNSO and SPC 2014).

Table 48. Distributionof Combined Damageand Losses for Water,
Sanitation, and Solid
Waste Management by
Province (VT 1,000)

70 Tropical Cyclone Pam, March 2015

Recovery Strategy and Needs
Short-term recovery needs for water, sanitation, and solid waste management
Water and sanitation. In the short term, the WASH sector will focus on preventing the outbreakof communicable diseases by providing immediate access to basic water, sanitation, and hygiene
services and restoring protective environments. Due to the volume of work needed to reestablish
access to safe drinking water and sanitation systems, especially in Shefa and Tafea Provinces,
the WASH sector, led by DGMWR, will focus on increasing the capacity for project delivery at thenational and provincial levels. This will require additional logistical support as well as resources forcommunication. Strong linkages will be required with the Ministry of Health regarding sanitationand hygiene activities and with the Ministry of Education and Training to provide access to WASH
in schools. Recovery activities will reinforce effective collaboration between government andpartners to deliver a coordinated set of WASH activities. Recovery activities will be informed by andresponsive to health, education, protection, and other sector priorities and trends, with a strong
focus on disaster risk reduction principles. DGMWR, as the lead agency for water supply and water
resources management in the country and as WASH Cluster lead agency, will coordinate WASH
recovery activities with all partners; this approach will ensure cohesion, quality, and prioritizedaction as well as systematic and continued monitoring. Support provided to DGMWR for WASH
Cluster coordination will reinforce DGMWR’s nonemergency sector coordination role.
Solid waste. Due to the extreme volumes of green waste being received at Bouffa landfill, the current
landfill cell is now overflowing, and an additional cell will be required. A similar situation exists at
Lenakel, where the landfill site is now overflowing and a new site will need to be located and built.
Transport trucks in Lenekal are hired to collect the household and business house waste each week.
Transport trucks are now in high demand, and a dedicated waste management collection vehicle isrequired for the future. The short-term needs are presented in Table 49.

Table 49. Short-Term
Recovery Needs for
the Water, Sanitation,and Solid Waste
Sector

Sector

Program of Activity

Water and
Sanitation
Solid Waste
Management

Provide the most vulnerable displaced and disaster-affected
women, girls, men, and boys with timely and dignified accessto safe and appropriate WASH services according to assessedneeds, including schools and health centers
Provide effective coordination within the WASH Cluster andstrengthen capacity for high-quality implementation throughgovernment mechanisms
Effectively coordinate within the WASH sector and strengthen
capacity for high-quality implementation
Add additional cell to Bouffa landfill, including safe disposal of
additional hazardous medical waste

Solid Waste
Management

Build an appropriate-size engineered landfill and purchase acamion for waste collection

Water and
Sanitation
Water and
Sanitation

Total

Value (VT 1,000)

Responsible
AgencyMLNR
200,000

MoH
MoET

50,000

MLNR

3,000

MLNR

60,160PVMC

52,000

LenakelMunicipal
Council

365,160

Note: MoH = Ministry of Health: MoET = Ministry of Education and Training.

Medium- to long-term recovery needs for the water, sanitation, and solid waste management
sector
Water, sanitation, and hygiene recovery activities will be used to reinforce the long-term sector
outcomes of providing sustainable and equitable access to WASH facilities and increasing theVanuatu | Post-Disaster Needs Assessment 71

practice of safe hygiene behaviors in Vanuatu. Activities will be led by the DGMWR and will focus on
improving the quality of implementation, planning, coordination, and monitoring within the sector.
In the medium term, recovery will focus on ensuring that communities have access to, and areable to manage and sustain, WASH services for enhanced resilience to future disasters. In order tocomplement planned sector development programs, recovery activities should help communities
reduce their vulnerability to WASH-related health risks, and ensure that people return to protective
environments with WASH services in communities, schools, and health care facilities. Rather thanreplacing damaged infrastructure to the same design standard, rehabilitation activities will use
a BBB approach to community water supply systems with the aim of improving their resilience
to future disasters. This effort will have to be accompanied with the preparation of infrastructure
standards and guidelines, combined with monitoring and audits of designs and construction by the
DGMWR. Community planning and management tools like drinking water safety and security plans
will reinforce normal operations and maintenance trainings at the village level.
The extensive damage in four provinces of the country means that the main WASH sector muststrengthen its collective capacity for high-quality program delivery in order to restore services.
All actors (i.e., government, NGOs, and the private sector) should focus on establishing strong
subnational management, technical, planning, and implementation capacity, which will reinforce
the implementation of the 2008–2018 National Water Strategy. To guide the recovery process,the WASH sector should strengthen its use of evidence-based bottom-up planning and budgeting
processes, with attention to vulnerable groups and communities.
In collaboration with the Ministry of Education and Training and the Ministry of Health, recovery
activities should aim to restore and improve access to (and information about) water, sanitation,and hygiene facilities at schools and health care facilities. Some of these facilities were damaged
by Tropical Cyclone Pam, although it is recognized that many did not meet established standards
before the cyclone. Rebuilt facilities will be improved to a higher level of service.

An equity focus in planning may also warrant attention to peri-urban areas and informal
settlements. Vanuatu has the advantage of effective private sector utility provision in urban
areas. The government and the Utilities Regulatory Authority should work to provide a legal orcontractual arrangement that enables private sector involvement in the ongoing maintenanceand operation of any new rural water systems established as part of the post-cyclone recovery
program. Medium- to long-term needs are presented in Table 50.

Sector

Program of Activity

Value (VT 1,000)

Water and
Sanitation

Rehabilitation of damaged water systems in communities using a
BBB approach to reduce disaster risk (in rural and peri-urban areas)

Water and
Sanitation

Rehabilitation of damaged water and sanitation systems in healthand education sector using a BBB approach to reduce disaster risk(in rural and peri-urban areas)

200,000

Water and
Sanitation

The creation of legal and contractual environment to enable private
sector in operation and maintenance of rural water supplies

2,000

Total
Note: MoH = Ministry of Health; MoET = Ministry of Education and Training; MoF = Ministry of Finance.

360,845

Responsible
Agency

MLNR
MLNR
MoH
MoET

570,845

MoF
URA

Table 50. Medium- to
Long-Term Recovery
Needs for the Water,
Sanitation, and Solid
Waste Sector

72 Tropical Cyclone Pam, March 2015

The following will also be considered during recovery activities for the water, sanitation, and solid
waste sector:■■

The midterm review of the 2008–2018 National Water Strategy in February 2015 identified
four core issues for implementation of the strategy, which are also relevant to post–Tropical
Cyclone Pam recovery and rehabilitation activities: (i) improved coordination between all
stakeholders (government, nongovernment, and development partners) at all levels (nationaland subnational); (ii) stronger leadership by the DGMWR, including the establishment ofpriority development plans and strengthening of monitoring; (iii) increased human resources
capacity, especially at the subnational level, where limited capacity was identified as abottleneck to delivering services on the ground; and (iv) closer partnerships between
government and nongovernmental organizations. It is important that these core issues are
addressed and appropriately resourced in the medium to long term.

■■

The DGMWR national office currently operates out of a condemned building that has beenfurther damaged by the cyclone. In order for any institutional reform and strengthening
program to be effective, the necessary physical resources—and the funding for them—must also
be considered. Assets such as offices, vehicles, boats, drilling capacity, and communications
all require additional human and financial resources.

Gender considerations for recovery strategy
Traditionally, women are the main users, providers, and managers of water in households, as wellas the guardians of household hygiene, which means that they are the most affected when water
systems break down. The cyclone has made the situation for vulnerable communities, who depend
entirely on rainwater harvesting, even more dire. The extensive destruction of roof water-catchment
systems along with pollution of water tanks, rivers, and springs means that previously clean water
sources are no longer usable, and that alternative water sources are inaccessible—and thus thatwomen and girls are now spending more time collecting water. The economic analysis of the watersector shows that women and children have lost about VT 295,180,356 due to the extra time used
for water collection. This time could have been used for income generation or for schooling. Almost
50% of this economic loss is borne by women in Shefa Province.
Given the destruction of 90% of sanitation superstructures across the four provinces consideredwithin this PDNA, there has been an increase in the number of people using the few remaining
sanitation facilities and in the number of those without access to facilities. Inadequate accessto safe, hygienic, and private sanitation facilities is a source of shame, physical discomfort, andinsecurity for women and girls, particularly those menstruating, pregnant, or lactating. Defunctwater and sanitation systems mean that women and girls have to walk further distances for watercollection or for ablution privacy, thereby putting themselves at an increased risk of sexual andgender-based violence. Likewise, there has been an increased use of untreated water for cooking
and drinking, and this, coupled with poor sanitation conditions, has the potential to increase thespread of vector-borne diseases and further increase the burden of work for women, who are theprimary family caregivers.
The restoration of potable water is an urgent need in order to save lives, prevent the spread of
diseases, reduce the burden of work for women and girls, and prevent an increase in gender-based
violence. Women have a strong incentive to acquire and maintain improved, conveniently locatedwater facilities, as they and their families benefit most when water quality and quantity improves.
Given their long-established and active role in water management, women should play a key role inidentifying long-term measures and solutions related to access to and use of water.

Vanuatu | Post-Disaster Needs Assessment 73

Men walk by damaged
power lines in Port Vila.
© Becky Last, Vanuatu Dept.
of Tourism.

3.3.4 Energy
Summary

The energy
sector in Vanuatu
encompasses
the subsectors
Electricity. Electricity was the energy subsector most affected by Tropical Cyclone Pam, particularly inof electricity,
Efate and Tanna Island, although minimal damage was recorded in Malekula and Santo. Disaster risk
petroleum,
reduction measures for the electricity subsector must be considered as part of recovery activities.
and liquefied
These could include the introduction of underground cabling and other disaster-resilient features,
petroleum gas
as well as backup generators to prevent disaster-related interruptions for customers and agencies.
(LPG). Damage
Petroleum. The Pacific Petroleum Company, the only petroleum supplier in Vanuatu, reports minor and loss to thedamage to its building infrastructure. No major damage was identified for its vital infrastructure/assets. energy sector
following TropicalLiquefied petroleum gas. Origin Energy, the only LPG supplier in Vanuatu, shows no record of damage Cyclone Pam
to its main terminals in Efate and Santo. However, its retail shop in Tanna was totally destroyed, and totaled almost VT
some of its major assets—mainly cylinders and fittings—were lost.
0.3 billion.
The energy sector in Vanuatu encompasses the subsectors of electricity, petroleum, and liquefied
petroleum gas (LPG). Damage and loss to the energy sector following Tropical Cyclone Pam totaled
almost VT 0.3 billion.

Energy Sector Background
Electricity. Only one-third of the population of Vanuatu has access to electricity. Electricity accessis primarily through a connection to the regulated grid in the two main urban areas (Port Vila andLuganville), in addition to Tanna and Malekula. The share of those without access to electricity
remains high, with 24% of the population not connected to electricity on Efate, 65% on Santo,
86% on Tanna, and 84% on Malekula. Percentages are also high in rural areas: 83% to 85% of the
population in Tafea and Shefa Provinces are not connected to electricity, and 92% are not connectedin Malampa Province.

74 Tropical Cyclone Pam, March 2015

Outside the concession areas, the Department of Energy (DoE), within the Ministry of Climate Change
and Natural Disasters, is responsible for electrification. Other government ministries involved in theelectricity sector include the Ministry of Infrastructure and Public Utilities, which is responsible forall public infrastructure, and the Ministry of Education and Training and the Ministry Health, whichhave in the past been beneficiaries of solar energy packages for social institutions through donors.
Power supply outside the concession areas is through some mini-grids, stand-alone solar and diesel
systems, and pico lighting. UNELCO is the private company that operates the electricity concession
for Efate, Malekula, and Tanna. The electricity services in the concession areas of Vanuatu are
regulated by the URA under the Ministry of Finance.
Petroleum and LPG. The Pacific Petroleum Company is the only petroleum supplier in Vanuatu. Origin
Energy is the only LPG supplier in Vanuatu.

Assessment of Disaster Effects on the Energy Sector
Damage to the energy sector
Electricity. UNELCO’s records show that Efate and Tanna islands were the most affected locationsin its concession areas. The predominant damage was to the transmission and distribution lines,of which a total of 65,000m was partially damaged or destroyed. An estimated 12,000 customers
were affected, representing approximately 5% of UNELCO’s base load.
The off-grid portion of the electricity sector shows no or minimal damage and losses. The assessmentssuggest that owners of individual solar home systems prepared before the cyclone by removing
the systems and securely storing them. Damage and losses to private household solar systems areincluded in the housing sector of this report.
It should be noted, however, that people outside of the concession areas have been severely
affected. Many rural communities have seen most houses destroyed, along with their household
effects. Currently most of the aid is focused on food, water, and shelter, and little is being done toaddress energy needs, especially in the Shepherd Islands, Tanna, and Erromango, as well as parts ofAmbae, Ambrym, and Banks Islands, where the effects of the cyclone were severe.

Damaged power lines in Efate.
Source: Government of
Vanuatu.

Vanuatu | Post-Disaster Needs Assessment 75

Losses to the energy sector
It is estimated that there will be VT 5 million in losses to the LPG sector from the closure of major
hotels and businesses, assuming these recover within three months. There were no losses estimatedfor the petroleum subsector. The total damage and losses are presented in Table 51 (by subsector)
and in Table 52 (by province).
Subsector

DamageLossesTotal Effects

Private (%)

Public (%)

Electricity

165,900

100,000

265,900

100

0Petroleum

10,0000

10,000

100

0

LPG

3,500

5,500

9,000

100

0

179,400

105,500

284,900

1000Sector Total

Province

DamageLossesTotal Effects

Private (%)

Public (%)

Malampa

N/A

N/A

N/A

N/A

0

Penama

N/A

N/A

N/A

N/A

0

Shefa

140,030

85,000225,030

100

0

Tafea

39,37020,50059,870

100

0

Total

179,400

105,500

284,900

100

0

Table 51. Total
Damage and Losses
in Energy Sector by
Subsector (VT 1,000)

Table 52. Damageand Losses in Energy
Sector by Province(VT 1,000)

Note: N/A = not applicable.

Recovery Strategy and Needs
Short-term recovery needs for the energy sector
In the short term, the electricity sector will need backup generators for some specific areas where
there are still electricity outages. UNELCO has proposed the use of standby generators of 25KVa
capacity, which cost approximately VT 1 million each. This type of generator can provide power for
40–60 households, depending on the type of customers. There are no short-term needs that havebeen identified in regard to the petroleum and LPG subsectors. The short-term recovery needs arepresented in Table 53.

Subsector

Program of Activity

Electricity

Backup generator sets for the few areas (peri-urban
areas specifically) still without electricity

Total

Value (VT 1,000)

Responsible
Agency3,000

DoE/UNELCO

3,000

Medium- to long-term recovery needs for the energy sector
Longer-term recovery needs include the provision of backup generators for critical infrastructure,such as hospitals, pharmaceutical storage sites, airports, and wharves. In order to ensure anequity-based focus on recovery planning, greater attention should be given to peri-urban areasand informal settlements. There are no medium- to long-term needs that have been identified
in regard to the petroleum and LPG subsectors. The medium- to long-term recovery needs arepresented in Table 54.

Table 53. Short-Term
Recovery Needs for
the Energy Sector

76 Tropical Cyclone Pam, March 2015

Table 54. Medium- to
Long-Term Recovery
Needs for Energy
SectorSubsector

Program of Activity

Electricity

Backup generators for vital customers including
hospitals, pharmaceutical storage sites, airports,
wharves, etc.—25KVa generator sets recommended

Total

Value (VT 1,000)

Responsible
Agency10,000

DoE/UNELCO

10,000Gender considerations for recovery strategy
Renewable energy (such as solar energy) has the potential to spur rural economic development.
For example, it can allow women to more efficiently process and preserve food for sale, or engage
in other economic activities. In consultation with women, restoration of energy services should
explore mechanisms for making community and household energy resilient to disasters. Light inevacuation camps and WASH facilities can play a critical role in preventing violence against womenand should be part of a comprehensive recovery strategy.

3.3.5 Communication
Summary

Damage andloss to thecommunication
sector following
Tropical Cyclone
Pam totaled overVT 2.6 billion.

Damage and loss to the communication sector following Tropical Cyclone Pam totaled over VT 2.6
billion. The data collected as part of this PDNA show that the worst impacts from Tropical Cyclone
Pam on the communications sector were incurred in Shefa Province, followed by Tafea and thenMalampa.
The most substantial damage was sustained by the communication distribution networks.
Transmission towers in Shefa and Tafea were partly or totally destroyed, and equipment on towers
in all four affected provinces was damaged. This damage resulted in a loss of service across both
mobile phone and data services operators as well as radio and TV broadcasting. As a result of theinitial damage, no communications services were available outside of Port Vila on the morningof March 14. For the outer islands, services were unavailable for approximately a week. In Tafea
Province, it took up to three weeks to restore some services, and at the time of this PDNA, work still
remained to be done to finalize this repair. While operators have restored most services to date,some islands still face downtime in crucial telecommunications service.
Services to the Vanuatu government provincial offices have been repaired temporarily with thesupport of equipment from the Emergency Telecommunications Cluster. The iGov network repair forthe area servicing the northern island is based on an interim IP radio solution. A more substantial
rebuild is planned as funds become available.
Both the private sector and the government showed excellent immediate disaster coordination andrapid response. Emergency satellite communications were established to many islands within 5days, and approximately 80% of the networks were functioning (with some loss in service quality)
after 10 days.
The Vanuatu Post network sustained losses in revenues due to business interruption for large clientsin Vanuatu (e.g., pharmaceuticals) and had significant water damage to stamps and stamp archives.
The two greatest hindrances affecting the speed of recovery are (i) the logistics, time, and effort
required to ship required materials to locations throughout Vanuatu; and (ii) the fact that electricity—needed to power telecommunications systems—has been unavailable in badly damaged areas (suchas Tanna) or slow to be reestablished.

Vanuatu | Post-Disaster Needs Assessment 77

Destroyed satellite dish on
Tanna Island, Taefa Province.
© Anacle Namen, the Officeof the Government Chief
Information Officer.

As a result of the damage sustained, the transmission networks must be rebuilt in the worst-affected
locations, and this process was under way at the time of this PDNA. Significant investment in new
towers and equipment will be required by all communications networks in 2015. These investments
will very likely affect the profitability of the private sector businesses, but it is assumed that thecosts of the damage will in many cases be recovered from insurance coverage held by the operators.
For this reason the recovery needs of the private sector have not been included in this PDNA.

Communication Sector Background
The Office of the Government Chief Information Officer (OGCIO) is responsible for managing theprivate network that services government traffic exclusively. This network relies on a combinationof microwave and satellite technologies. Much of the voice traffic is carried by Voice over Internet
Protocol (VOIP) services.
The Office of Telecommunications and Radio Communications Regulator (TRR) is the independent
statutory regulatory agency responsible for regulating the telecommunications sector and facilitating
telecommunications development. TRR has, to date, issued eight telecommunications licenses forthe provision of telecommunications services in Vanuatu. Two service providers offer mobile andInternet services, and the rest offer Internet services, particularly in the urban areas.
Before Tropical Cyclone Pam, the mobile network population coverage was estimated to be about
93%, which means that many citizens in all provinces were enjoying access to a telecommunications
service before the cyclone struck. That coverage provided for growing uptake of the mobile andInternet services each year; e.g., mobile subscriptions have increased by 18% since 2013, andInternet service subscriptions increased by 34% over the same period. (See TRR’s annual reports forfurther information.49) With increased uptake of services in all provinces, the telecommunications
sector is contributing significantly to the national GDP, at an estimated 5%.50
49
50

See http://www.trr.vu/index.php/en/public-register/publications.
The telecommunications sector contribution to Vanuatu’s GDP can be expected to increase once the implementationof the government’s Universal Access Policy is complete, with service provided to 98% of the population by
January 1, 2018, and uptake of telecommunications services enhanced due to the increased coverage and access.

78 Tropical Cyclone Pam, March 2015

Assessment of Disaster Effects on the Communications Sector
As shown in Figure 9, the worst impacts to the communications sector were incurred in Shefa
Province, followed by Tafea, then Malampa.

Figure 9. Distributionof Damage andLoss for theCommunications
Sector by Province

Tafea 14%
Malampa 3%
Penama 2%

Shefa 81%

For the private sector, just over 70% of damage costs were in Shefa Province; these were due todamaged infrastructure and physical assets such as cellular systems.
At the time of this PDNA, some consumers, such as those on Buninga Island in Shefa Province, werestill without communications. Some people had not yet been able to contact their family members
following the cyclone. For example, on Aneityum Island in South Vanuatu and in areas in Tanna,
there has been very little mobile communication coverage available since the cyclone struck.
Business customers also continue to be impacted; the poor quality of coverage results in higher communications costs because calls often need to be attempted multiple times. Some resorts
and bungalows in the smaller islands of the Shepherd group and Tafea remain without services.
In addition, the degradation of services affecting some areas is causing business interruption andfrustration for users. It is assumed that as the networks are restored, optimization will follow andaddress these issues.

Damage to the communications sector
The most substantial damage in the communications sector was sustained by the communication
distribution networks. This included damage to public and private physical assets within the
distribution networks, such as destroyed or damaged towers for cellular systems and microwave
networks.

Losses to the communications sector
Losses include the loss of sales of telecommunications services, due to the time required toreestablish, replace, or rebuild the system assets, along with the decline in consumer demand whileassets are being rebuilt. This is despite a brief increase in sales of telecommunications services inPort Vila, which was driven by the increased demand during the post-disaster emergency, recovery,
and reconstruction stages. Losses also include higher operational costs, due to the temporary
utilization of alternative telecommunications systems (such as portable transmission equipment)
and to staff overtime within the sector. The figures also include higher costs of operation, due totemporary utilization of alternative sources of electricity where the electrical system had been
destroyed or otherwise affected.

Vanuatu | Post-Disaster Needs Assessment 79

Total damage and loss estimates are presented in Table 55 (by subsector) and in Table 56 (byprovince).
Subsector

Damagea

LossesTotal Effects

Private (%)

Public (%)

OGCIO

712,439

57,201

769,640

0100

Vanuatu Broadcasting andTelevision Corp. and Private
Broadcasting

70,89728,461

99,3585050Vanuatu Post

16,68822,61639,3040100

Private Telecom Operators

1,460,662

278,682

1,739,344

100

0Sector Total

2,260,686

386,960

2,647,646

68

32

Table 55. Damage andLoss to the Communications Sector by
Subsector (VT 1,000)

Sources: OGCIO; Vanuatu Broadcasting and Television Corporation.
a. Damage has been classified as “fully destroyed” if more than 40% of the asset has been damaged or if the replacement cost of
the damage would be more than 40% of the total value of the asset. Damage was classified as “partially damaged” if less than
40% of the asset was damaged, structure was still sound, and repair cost would be less than 40% of the total asset value.

Province

DamageLoss

Total Effects

Private (%)

Public (%)

Malampa

126,376

12,311

138,687

94

6

Penama175,754

8,371

184,125

91

9

Shefa

1,549,454

340,879

1,890,333

60

40

Tafea

409,102

25,578434,680

81

19

Total

2,260,686

387,1392,647,825

67

33

Recovery Strategy and Needs
Short-term recovery needs for the communications sector
The Vanuatu government network. The most immediate need is for emergency funding for OGCIO. This
includes funding for higher-than-normal operational costs in March, due to the losses incurred inreestablishing communications services, and longer-term funding for the rebuilding of the affectedparts of the network. Without access to funds, this work cannot take place.
The repair and recovery of the iGov network is in three phases: (i) reestablishment of basic
communications, which is largely complete; (ii) activation of the interim Internet Protocol (IP)radio solution to reestablish the iGov backbone, which was imminent at the time of this PDNA;
and (iii) design and rebuild of the network. In this last phase, OGCIO will look to include theprinciple of BBB, with enhanced resilience and redundancy. Although an initial needs assessment
has taken place, there are restrictions on the available human resources to perform the required
design work, given that work to establish operational services (the second phase above) is
ongoing. Planning for the third phase will take place from May onward and will require funding
commitments for both the planning and the implementation. The Vanuatu government may
identify additional needs as the assessment of each sector continues and communication needs
come to light. For example, sectors such as education may have a heightened need for informationand communication technology (ICT) as part of their rebuild (i.e., instead of reprinting referencematerials, schools may wish to distribute them electronically). The short-term recovery needs arepresented in Table 57.

Table 56. Distributionof Damage and Loss in
the Communications
Sector by Province(VT 1,000)

80 Tropical Cyclone Pam, March 2015

Table 57. ShortTerm Needs for theCommunications
Sector: Public Sector(Vt 1,000)

Program of Activity

Repair to iGov Network

Value (VT 1,000)a

Responsible Agency

500,000 OGCIO

Repair to Broadcasting Networks

51,800 Vanuatu Broadcasting and Television Corp.

Repair Vanuatu Post Stock and Systems

168,000 Vanuatu Post

Total

719,800

a. Estimated recovery needs are lower than the estimated damage, as it is proposed that recovery activities will utilize newer,
more cost efficient technology.

Private sector. Telecommunications/ICT services are critical enablers and link communications/businesses in all other sectors. Accordingly, it should be noted that before and after any cyclone,tsunami, or state of emergency, telecommunications operators may need the government to support
them through coordination of logistics for an approved period of time, to assist them in returning
telecommunications services following a disaster event.
While telecommunications operators can largely expect to recover the cost of damage frominsurance, there is an immediate impact on their expenditures and a significant loss of revenue inthis period. Telecommunications operators may therefore need assistance—exemptions on duty
and value-added tax as well as prompt processing of relevant permits/legal instruments throughout
2015—to support their rebuilding and to cater for the replacement/upgrade of the technology inthe damaged areas. In order to support prompt recovery, telecommunications operators will need
the government’s support in the swift processing of building and rebuilding permits, land permits,
trenching, ducting, and land authorities. Consideration should also be given to the feasibility of
fast-track processing of the relevant visas/permits allowing international experts entry to Vanuatu
for recovery activities.
Certain business administration or work processes may need to be streamlined or expedited for theprovision of crucial services during the rebuilding stage. For instance, TRR may need to continue
to clear and/or allocate appropriate or additional spectrum for the urgent use of radio apparatus
equipment during the aid and rebuild/restoration works period. (Currently TRR is promptly providing
appropriate access to spectrum to address critical needs).

3.4 Cross-Cutting Sectors
3.4.1 Environment

Key environmental
assets affectedby Tropical
Cyclone Pam
were coral reefs,
mangroves, andtropical forests,
particularly in
Tafea and Shefa
Provinces.

Summary
The environment is inextricably linked to the livelihoods of the cyclone-affected communities
because of their dependence on natural resources. In Vanuatu, a number of sectors and subsectors—
including fisheries, water, forestry, agriculture, and tourism—rely on the sustainable managementof natural resources.
Key environmental assets affected by Tropical Cyclone Pam were coral reefs, mangroves, andtropical forests, particularly in Tafea and Shefa Provinces. Damage to these assets is expected toresult in loss of a range of important environmental services, including but not limited to water
regulation, recreation for tourism, nursery services for subsistence and commercial fisheries, carbon
sequestration, and protection against natural hazard events.

Vanuatu | Post-Disaster Needs Assessment 81

The economic value of many of these service losses is captured in the relevant productive
sector assessments within this PDNA (Chapter 3.1). Losses not included in the productive sector
assessments, and their distribution across provinces, is summarized in Figure 10 below.

Malampa 809,970

Penama 194,529

Tafea 2,771,498

Shefa 1,551,675

Going forward, a concerted and carefully managed effort will be needed to restore affectedenvironmental assets to their pre-cyclone condition. Short-term needs include community outreachprograms to improve understanding of the increased vulnerabilities to the environment during theearly regeneration phase, and removal of fallen trees to reduce pressures on natural forest areas. In
the medium to long term, there will be the need for replanting of affected mangrove and forest areas,
and management of invasive species.
In addition, it is recommended that ecosystem-based approaches to reduce climate risks are
expanded as a key BBB strategy across sectors. Ecosystem-based approaches (e.g., mangrove
planting adjacent to coastal roads) provide communities with the opportunity to manage climate
risks in a way that is financially, socially, and culturally sustainable, and that generates additionalco-benefits important for ni-Vanuatu communities (e.g., nurseries for subsistence fisheries).

Environment Sector Background
Coral reefs. Vanuatu’s coral reef systems cover an area of approximately 75,000 ha51 and mostly
comprise fringing reef structures. Prior to the cyclone event, Vanuatu’s coral reef systems werelargely intact.52
Coral reef systems in Vanuatu support many endemic, rare, and iconic species, including the rocklobster (the Panulirus sp.), green snail (Turbo marmoratus), and hawksbill turtle (Eretmochelys
Imbricata) (Department of Environment 2014). They also support species important for thecommercial and subsistence fisheries (e.g., parrot fish) as well as for culture (e.g., green turtles
and giant clams [Tridancids sp.]) (Department of Environment 2014). These ecosystem services areespecially important in Vanuatu, where approximately half of the rural population engages in fishingactivities (VNSO 2007) and more than 75% of this activity is for personal consumption. Moreover,

The figure is based on an Institute of Marine Remote Sensing (IMARS) coral reef–mapping project undertaken
between 2000 and 2006.
52
The status of the reefs is based on the following survey reports: Dumas et al. (2012); Dumas, Ham, and Kaku
(2014); Dumas, Ham, Amos et al. (2014); Dumas, Ham, Kaku et al. (2014); Kaku et al. (2014); Dumas and Ham(2015).
51

Figure 10. Summaryof Losses forEnvironment Sector(VT 1,000)

82 Tropical Cyclone Pam, March 2015

fish (and other marine invertebrates) are the main source of protein for rural populations (VNSO
2007).
Coral reef ecosystems are also a key attraction for tourism and provide a natural buffer against
cyclones and other natural hazard events (Pascal 2013b). This latter function will become
increasingly important in the future as the frequency and intensity of hazard events change underthe effects of human-induced climate change.
Mangroves. Mangroves constitute the most extensive wetland vegetation in Vanuatu (MESCAL 2013)
and are unique marine habitats that are both forests and wetlands (MESCAL 2013). Around threequarters of Vanuatu’s mangroves (around 2,000 ha) are located in Malampa Province, with the
majority concentrated on the island of Malekula (MESCAL 2013). Prior to Tropical Cyclone Pam,
most mangrove areas were intact or considered to be high-quality ecosystems. Some small areas in
Shefa Province, however, had been partly degraded as a result of infrastructure developments andother human disturbances (MESCAL 2013). Twenty-three species of mangroves have been recorded
in Vanuatu (Department of Environment 2014). Together with coral reef systems, they support a richdiversity of animal species, including saltwater crocodiles (Crocodylus porosus), mangrove mud
crab (Scylla sp.), and mud-shells (Geloina sp.).
Like coral reefs, mangrove ecosystems provide food and nursery services for commercial and subsistence fishery species, act as a buffer against natural hazard events (e.g., storm surge), and are an
attraction for tourists. Mangroves also provide carbon sequestration services, firewood, and building materials (Pascal 2013a).
Tropical forests (natural and mixed-use). As of 1993, approximately 74% (or 940,000 ha) of Vanuatu’s
total land area was categorized as forest.53 Of this area, approximately 36% was primary forest—i.e., closed-canopy forest that has never been logged—and the remaining 64% was secondary or“mixed-use” forest. Tropical forests in Vanuatu contain a rich diversity of animal and plant species.
The Vanuaflora database currently records some 171 families of plants, 842 genera, and more than
1,000 species. Animal species include 37 amphibian and reptile species, as well as 127 bird species.
Of the 127 bird species, 11 are endemic and 8 are listed on the International Union for Conservationof Nature (IUCN) Red List for endangered species (Department of Environment 2014).
A proportion of the mixed-use forest area is used for small-scale timber production.54 In addition totimber, forest areas also produce tubers, fruits, nuts, construction materials, game,55 and firewood
for use by communities. Tropical forest ecosystems further provide important water regulation andcarbon sequestration services and are an attraction for tourists (including for scenic value) (Pascal
2013b).

Assessment of Disaster Effects on Environment Sector
Assessment of the physical damage to environmental assets (coral reefs, mangroves, and tropicalforests) was undertaken as a rapid assessment by field officers from the Department of Fisheries andDepartment of Forestry. The economic value of the disaster is substantial and was calculated using abasic benefits-transfer methodology drawn from available economic valuation studies undertaken in
Vanuatu and Fiji (Pascal 2013a, 2013b; Arche Consulting 2015). The economic value of damage to an
1993 National Forest Inventory.
“Vanuatu Forest Policy: 2013–2023,” http://theredddesk.org/sites/default/files/vanuatu_forest_policy_2013-2023.pdf.
55
Ibid.
53

54

Vanuatu | Post-Disaster Needs Assessment 83

environmental system as an asset is the sum of the discounted present values of the flows of all of theservices.56 For the purposes of this PDNA, the value of the flow of environmental services is reported asa loss.57 Table 58 and Table 59 summarize these losses for environmental service flows not captured in
the productive sector assessments. Findings for each environmental subsector are as follows:
Coral reefs. For coral reef systems, extensive damage occurred in Tafea and Shefa Provinces.
This damage was mostly characterized as breakage to both live and dead corals as well as highre-suspense of sediments. Coral reefs in Malampa and Penama were largely unaffected.58 Some
communities that rely mainly on fisheries for food security and livelihood have asked to use thecoastal resources located within marine protected areas to substitute for subsistence fishery (andagriculture) losses that have been incurred. If not properly managed, this additional pressure may
have long-term impacts on the productivity of subsistence and commercial fisheries, as well as on
the recreational appeal of the coral reefs for tourism purposes.
Mangroves. Large areas of mangroves in Malampa, Tafea, and Shefa have been significantly affected.
Damage in these areas is characterized as uprooting, broken limbs, and defoliation. Mangroves
in Penama were largely unaffected. It appears that mangroves served to reduce damage to roads,
housing, and other assets in some areas. One example observed was on Moso Island, where the only
area to suffer significant coastal erosion was a short strip where mangroves have been removed fora helicopter landing pad. More detailed assessments would be required to robustly evaluate theeffectiveness of mangrove areas in Vanuatu as a disaster risk reduction measure (and learn what has
worked and what has not worked).
Tropical forests. Forest areas in Tafea, and to a lesser extent Shefa, were found to be substantiallydamaged. Damage in these areas was characterized as uprooting, broken limbs, defoliation, andcanopy opening. Some relatively minor damage (broken limbs and defoliation) was also experienced
in Penama, but no significant uprooting was observed. Extensive canopy openings have allowed
for invasive species to enter and propagate in forest areas. If not properly managed, this invasive
growth will substantially restrict the ability of these forests to recover to their precyclone condition.
Hunting of birds and bats has reportedly increased because of food shortages (agriculture andfisheries) and because hunting is made easier by the damaged habitat. In addition, it has beenreported that farmers are relocating gardens to adjacent primary forest areas because fallen trees
have damaged existing garden areas.

Recovery Strategy and Needs
Programs needed to effectively manage the recovery of damaged ecosystems, and to help otherproductive sectors adhere to the principle of BBB, are estimated to cost in the order of VT 127.5
For coral reef assets, environmental service flows included are (i) nursery and food flows to subsistence andcommercial fisheries, and (ii) protection services for coastal infrastructure, etc. against natural hazard events.
For mangrove assets, environmental services included are (i) carbon sequestration, (ii) nursery and food flows to
subsistence and commercial fishery, (iii) protection services for coastal infrastructure, etc., against natural hazard
events, and (iv) flow of firewood. For forest assets, flows included are (i) carbon sequestration, (ii) sedimentcontrol services, (iii) flow of wild game for food, (iv) water regulation services, and (v) flow of medicines andfirewood. Environmental service flows do not include recreation services for tourism, timber values, or services tocommercial fisheries.
57
Economic values of disaster effects have been reported in terms of losses (of environmental services) only. This isbecause the economic value of a resource-environment system as an asset is the sum of the discounted present
values of the flows of all of the services (Freeman 2003). It would be double-counting to include both damage andlosses as measured in this way.
58
A more thorough assessment would be necessary to confirm this is correct for all areas in both provinces. In eachprovince, the rapid assessment methodology sampled only two sites judged as representative.
56

84 Tropical Cyclone Pam, March 2015

million. Of this amount, VT 37.5 million relates to short-term activities (within 12 months) and VT 90
million pertains to medium- to long-term activities. Priority program activities that need financial
support are summarized in Table 60 and Table 61.

Table 58.
Quantification of
Damage and Lossin the Environment
Sector (VT 1,000)

Subsector

DamageLosses

Total
Effects

Private (%)

Public (%)

Services from coral reef ecosystems

N/A

713,045713,0450100Services from mangrove forest ecosystems

N/A

1,132,515

1,132,5150100Services from natural forests

N/A

2,023,923

2,023,9230100Services from mixed-use forests

N/A

1,458,189

1,458,189

0100

Sector Total

N/A

5,327,672

5,327,672

0100

Note: N/A = not applicable.

Table 59. Distributionof Damage and Lossin the Environment
Sector by Province(VT 1,000)

DamageLossesTotal Effects

Private (%)

Public (%)

Malampa

N/A

809,970809,970

0100

PenamaN/A

194,529

194,529

0

100

Shefa

N/A

1,551,675

1,551,675

0

100

Tafea

N/A

2,771,498

2,771,498

0

100

Total

N/A

5,327,672

5,327,672

0100

Note: N/A = not applicable.

Table 60. Short-Term
Recovery Needs for
the Environment
Sector

Program of Activity

Value(VT 1,000)

Responsible
AgencyCommunity outreach and education to improve understanding of both the increased
vulnerabilities of coral reef ecosystems during the early regeneration phase, and the(community) management responses needed to achieve a full recovery

3,000

Fisheries

Community outreach and education to improve understanding of both the increased
vulnerabilities of mangrove ecosystems during the early regeneration phase, and the(community) management responses needed to achieve a full recovery

5,500

Environment,
Forestry

Community outreach and education to improve understanding of both theincreased vulnerabilities of tropical forest ecosystems during the early
regeneration phase, and the (community) management responses needed toachieve a full recovery

9,000

Environment,
Forestry

Detailed assessment of damage to coral reef, mangrove, and tropical forest
ecosystems to identify target areas for replanting and invasive species
management

15,500

Environment,
Forestry,
Fisheries

Removal of fallen trees from agriculture and planted forest areas to reducepressure on primary forest areas

4,500

Forestry

Total

37,500As a long-term management and resilience measure, it is strongly recommended that the scaleand scope of ecosystem-based interventions be expanded—for example, planting and maintaining
mangrove and forest ecosystems to buffer road and other infrastructure; expanding marine protectedareas; and expanding invasive species management in tropical forests. This will help other sectors
to build back better. It is also recommended that a national set of environmental accounts beestablished within the broader government systems.

Vanuatu | Post-Disaster Needs Assessment 85

Bird’s eye view of damage
to village and forest. ©
X-craft. Reproduced withpermission; further permission
required for reuse.

Program of Activity

Value (VT 1,000)

Responsible Agency

Manage invasive species in damaged coral reef areas in Tafea andShefa

15,000Fisheries

Replant affected mangrove areas in Tafea, Shefa, and Malampa

15,000 Environment, Forestry

Replant (nontimber) native tree species in affected tropical forest
areas in Tafea, Shefa, and Penama

20,000 Environment, Forestry

Manage invasive species in damaged tropical forest areas in Tafeaand Shefa to increase the success of replanting programs

40,000Total

90,000

Environment

Gender considerations for recovery strategy
The environment plays a crucial role in supporting communities’ efforts to cope with food deficit andincome stresses. Some of the affected communities have reportedly switched to wild foods following
the cyclone, including wild yams and swamp taro. Women in some areas have also reported thatthey are supplementing their protein intake through mud crabs, which are quite resilient to theimpacts of cyclones. Women also tend to rely on artisanal fishing and the harvest of pandanus innatural forests. However, without the appropriate support, the overharvesting of these resources
could erode communities’ medium- and long-term resilience to disaster impacts.
Women should be engaged in community-based natural resource management. An assessment ofcoping mechanisms should be conducted to better understand the role and value of the environment
in supporting poor households. The use of the natural environment by men and women should also
be assessed to understand the key resources that need to be strengthened in order to support theresilience of affected communities.

Table 61. Medium- to
Long-Term Recovery
Needs for theEnvironment Sector

86 Tropical Cyclone Pam, March 2015

Vanuatu | Post-Disaster Needs Assessment 87

4Social andHousehold Impact

Woman and destroyed store in Port Narvin, Erromango.© Silke Von Brockhousen, UNDP. Reproduced with permission; further
permission required for reuse.

88 Tropical Cyclone Pam, March 2015

4.1 Employment, Livelihoods, and Social Protection
Summary

Tropical Cyclone
Pam has directly
and indirectly
affected thelivelihoods ofabout 40,800
households, or
195,000 people,
across the four
disaster-affected
provinces. A totalof 504,050 workdays and of VT 1.6
billion of personal
income have beenlost.

Tropical Cyclone Pam has directly and indirectly affected the livelihoods of about 40,800 households,
or 195,000 people, across the four disaster-affected provinces. A total of 504,050 work days andof VT 1.6 billion of personal income have been lost. Half of all agricultural households located indisaster-affected provinces have lost the entirety or parts of their crops.
■■

24,191 work days have been lost in the formal economy.

■■

245,110 work days have been lost in the informal economy.

Enabling households to recover their productive and income-generating activities and increasing
the resilience of livelihoods to future shocks must be a key component of the reconstruction andrecovery process. A comprehensive Pacific Advisory Support Information Services and Training(PASIFIK-ASIST) strategy for disaster-resilient jobs is proposed, consisting of a package ofinterrelated downstream and upstream activities to bridge the continuum from immediate income
generation to medium- and long-term employment recovery. The estimated recovery needs for
employment, livelihoods, and social protection (ELSP) amount to VT 1.3 billion.

Pre-Disaster Situation
Although 71% of Vanuatu’s labor force is considered economically active, only 30% receives aregular paid income. The majority of households therefore diversify their productive and incomegenerating activities and engage across the following three layers of the ni-Vanuatu economy:■■

The subsistence economy provides a livelihood to about 52% of Vanuatu’s labor force, throughproductive activities such as growing, gathering produce, or fishing. It is the main source of
livelihoods for 32% of males and 28% of females aged 15 and older—with the proportion ofsubsistence workers being higher in rural areas. In many instances, smallholder households
rely on the labor of their youngest members to contribute to subsistence work. From the ageof 12, school enrolment rates rapidly decrease, and at age 16 only about half of children are
still in school. Young people are therefore inevitably involved in agricultural labor. Reliabledata on this aspect of the rural economy are scant, however, and no comprehensive survey
has been conducted in Vanuatu as of yet.

■■

The formal economy offers employment opportunities to 20% of the workforce in public
institutions and in medium-to-large private sector enterprises. Men are more likely to gain
formal sector employment; 26% of all working-age males are employed formally, compared
to only 14% of all working-age females. While employment in the formal economy comparedto the total labor force may appear to be small, it contributes significantly to government
revenue and to income generation in the informal economy through value chain links withmicroenterprises. According to the Vanuatu National Statistical Office (2000), 80% of all
formal businesses were in the service industry, primarily depending on tourism. While thenumber of women employed in the service industry is above the national average, onlya third of all women in the formal sector are managers. The majority of women work ashousekeepers and waitresses, while men tend to hold managerial posts. The agriculture
sector offers modest formal employment opportunities in commercial farms where a small
number of men and women are employed.

Vanuatu | Post-Disaster Needs Assessment 89■■

The informal economy provides income-generating opportunities to a large number of womenand men, primarily through value chain links with formal sector enterprises in urban and periurban areas. Men typically engage in activities such as minibus/taxi driving (approximately
1,600 across Vanuatu), and women (i.e. “the mammas”) are typically market vendors and/or
operators of roadside stalls along the harbor where they sell handicrafts and other goods totourists. According to the microfinance institution VANWODS (Vanuatu Women Development
Scheme), more than 5,400 mammas currently rely on such income-generating activities tosupport themselves and their families. Informal wage earning opportunities are also foundin the agricultural sector, where a considerable number of smallholder households generatesufficient revenue to employ skilled agricultural workers.

Vanuatu’s labor market is fragile due to soaring population growth and the country’s exposure tonatural hazards. The ni-Vanuatu population is increasing rapidly, and 43% of the current populationis under the age of 15. With the formal economy producing fewer than 700 new jobs per year andabout 5,000 young people joining the labor force each year, Vanuatu’s labor market fails to provide
employment opportunities for the majority of the population.
A limited number of ni-Vanuatu finds low-skill seasonal work opportunities for less than six months
in Australia and New Zealand, and remittances are becoming an increasingly important source ofincome for many households. In 2012, approximately US$ 19 million was sent to Vanuatu. It isestimated that 15% of urban and 38% of rural households receive remittances. In 2010, the averagemonthly amount received was VT 12,000.
The extent to which the Ni-Vanuatu depend on subsistence and informal income-generating activities
renders their livelihoods extremely vulnerable to external shocks and disasters such as Tropical
Cyclone Pam. The paucity of reliable and comprehensive labor market information in Vanuatu
renders it difficult to adequately understand a disaster’s impact on people’s livelihoods. The income
loss suffered by individuals and households as a result of a disaster is therefore likely to be omitted
during data collection and assessments. The ELSP sector assessment is thus an attempt to giveaccumulated damage and loss figures a human face in order to better understand the consequencesof Tropical Cyclone Pam for the daily lives of the ni-Vanuatu people.

Assessment of Disaster Effects on Employment, Livelihoods, and Social Protection
Tropical Cyclone Pam has affected directly and indirectly the livelihoods of about 40,800 households
and 195,000 people across the four disaster-affected provinces. It has resulted in the loss of
504,050 work days and VT 1.6 billion of personal income (Table 62).
Several data extrapolation methods have been used to construct the baseline and to derive an
estimate of the cyclone effect on ELSP, including primary and secondary sources.59 As the ELSP
assessment is based upon cross-sectoral analysis, additional data were obtained from the agriculture
sector (loss of agricultural output), housing sector (ratio of destroyed and damaged dwellings),
tourism sector (estimated duration of business interruption), and manufacturing sector (numberof recorded layoffs) to conduct a quantitative analysis of the cyclone effect on ELSP. The results
were subsequently triangulated and complemented through qualitative observations in the affected
communities, such as interviews with representatives of the Vanuatu National Provident Fund, theChamber of Commerce and Industry, the Workers’ and Teachers’ Union, VANWODS Microfinance,
59

Secondary sources included the 2000 Labour Market Survey, the 2007 Census of Agriculture, the 2009 National
Population and Housing Census, and the 2009–2012 Decent Work Country Programme.

90 Tropical Cyclone Pam, March 2015

and the Port Vila Efate Land Transport Association. An additional rapid survey was conducted by
the Department of Labour to gather data on employment loss in the tourism sector. The effect of thedisaster on civil servants and public employees such as teachers has not been taken into account,as it is reported that wages continue to be paid.

Table 62. Summaryof Lost Work Days andIncome by Province

Province

Work Days Lost

Income Lost (VT 1,000)

Private (%)

Public (%)

Malampa

82,511

81,088100

0Penama27,711

26,796

100

0

Shefa

197,197

1,230,933

100

0

Tafea

196,630

268,305

100

0

Total

504,050

1,607,123

100

0

a

a. Totals include income losses in the agricultural sector, and are for indicative purposes only.

Subsistence economy. Given Vanuatu’s strong dependence on the agricultural sector for subsistence
work, smallholder households have been gravely affected by Tropical Cyclone Pam. It is estimatedthat approximately 50% of all agricultural households located in disaster-affected provinces (i.e.,
11,256 out of 21,184 households) have lost all or part of their crops, including crops such as kava,
copra, and cocoa that will take up to one year to reestablish. The average income loss suffered per
smallholder household is estimated to be VT 412,322.
Formal economy. Based upon rapid surveys conducted in the aftermath of Tropical Cyclone Pam,
97 employees have reportedly been laid off in the manufacturing industry and 70 employees havebeen let go from establishments catering for the tourist industry. No further data exploration was
performed, but given the small number of observations, the actual number of layoffs is expected
to be much higher, with initial estimations from hotel owners ranging from a total of 300 to 500
laid-off employees in the formal economy. Assuming that it will take a laid-off employee on average
six months to obtain new formal sector employment,60 a total of 24,191 work days have been lost,
comprising 17,751 in the manufacturing industry and 6,440 in tourism. On commercial farms,
agricultural workers are facing reduced demand for their labor, resulting in an additional 24,785
lost work days. This equates to a total of VT 46 million in lost wages.
Informal economy. Using the ratio of destroyed and damaged dwellings as a proxy, it was estimatedthat Tropical Cyclone Pam affected approximately 3,600 female microentrepreneurs (the “mammas”)
across the four disaster-affected provinces. Assuming that it would take a microentrepreneur on
average six weeks to reconstruct and four weeks to repair a workplace,61 the mammas have lost
141,110 work days. Additionally, 1,600 minibus drivers and 500 taxi drivers have suffered businessinterruptions due to blocked roads and reduced demand for their services in the absence of tourists,
resulting in an estimated 104,000 lost work days. Agricultural workers hired by smallholder
households are facing reduced demand for their labour, resulting in an additional 209,964 lostwork days. The total personal income loss suffered in the informal sector is thus estimated at VT
1.5 billion.

The assumption is based upon information received from the Department of Industry/Ministry of Trade, Tourism,
Industry and Commerce.
61
The assumption is based upon information received from the Vanuatu Women Development Scheme.
60

Vanuatu | Post-Disaster Needs Assessment 91

Sign erected in Port Vila in
the aftermath of Cyclone Pam.
© Colleen Butcher-Gollach,
World Bank Group.

Work Days Lost

Income Lost
(VT 1,000)

Private (%)

Public (%)

Agriculture

234,749

227,002100

0Commerce and Industry

170,861

487,192

100

0Tourism

98,440892,929

100

0

Total

504,050

1,607,123

1000SectorDisaster Impact on Employment, Livelihoods, and Social Protection
Analyzing a disaster’s impact on the well-being of households and communities in contexts where
economic activity is primarily undertaken through the informal sector, subsistence farming, andunpaid family work is a challenging task, and in this regard, this PDNA provides an indicative rather
than an exact quantification of the impact of Tropical Cyclone Pam. The following analysis of thedisaster’s impact on ELSP therefore outlines the anticipated impact in the short term (up to oneyear), medium term (two to three years), and long term (four years). The actual impact of the disasterwill vary according to the pace and effectiveness of the reconstruction and recovery process.

Short-term impact on employment, livelihoods, and social protection
The majority of the affected smallholder households are unlikely to fully resume their economic
activities within the next three months, depending on climate conditions and the output of thenext harvest. Some agricultural households will therefore be unable to sustain their subsistence
existence in the short term and instead need to purchase products they would otherwise haveproduced themselves. Searching for income-generating opportunities to provide for their families,
some household members may consider relocating permanently or temporarily to urban centerssuch as Port Vila. As a consequence, common trades may be inundated with new workers (e.g.,
people seeking jobs as domestic servants or hawking goods and services on the street). This extra

Table 63. Summaryof Lost Work Days andIncome by Sector

92 Tropical Cyclone Pam, March 2015

supply of labor is likely to drive remuneration down and may result in an aggravation of the disaster’s
secondary impact on ELSP for all households engaged in common trades, even in cases where thesehouseholds were not directly affected by the disaster.
Depending on the pace of recovery in the tourism sector, minibus drivers and the mammas may
face a reduced demand for their services and products for a prolonged period of time, resulting
in an overall reduction of money in the economy. If crucial community organizations, such as the
microfinance provider VANWODS, are not fully operational in due time, female entrepreneurs areespecially likely to struggle to find access to financial capital to rehabilitate damaged workshops
and lost equipment.
Hoteliers are also likely to lay off additional workers until tourist activity has fully recovered. It is
anticipated that hoteliers will keep staff positions typically occupied by men (such as managerial andground staff) on the payroll, while positions typically occupied by women (such as housekeepers)
are more likely to be laid off. Women are thus likely to be the first to lose their jobs. According to
information received from the Department of Labour, 19 cruise ships cancelled their stopover in
Vanuatu following Tropical Cyclone Pam, which will significantly impact Vanuatu’s tourism industry.
A surplus of labor supply is therefore to be expected in the immediate and short term, and thiscreates opportunities for temporary income-generating activities such as emergency employment
programs.
According to the Vanuatu National Provident Fund, 30,000 people are expected to withdraw overVT 2 billion from the retirement fund in the weeks immediately following this PDNA, indicating thathouseholds require substantive financial support to rebuild their homes. An increased demand forconstruction-related work is therefore to be expected and opens up possibilities for short-term skills
training programs.

Medium-term impact on employment, livelihoods, and social protection
Given Vanuatu’s hazard-prone location, there is a high risk that future disasters could affect areasthat have already been impacted by Tropical Cyclone Pam, thus undermining the local economic
recovery. If preparedness mechanisms (e.g., better and more readily available baseline data) are notsufficiently established before future events, the self-employed who operate in the informal economy
are likely to remain vulnerable to external shocks and will experience repeated income losses as aconsequence of disasters. The impacts on new entrants to the labor market will be particularly
critical, as employment outcomes of young people are especially sensitive to the economic cycle.
Youth are generally the first to lose their jobs in times of economic contraction and the last to gain
employment when the economy rebounds.

Long-term impact on employment, livelihoods, and social protection
The expected withdrawal of funds from the VNPF will potentially have a long-term impact on boththe financial viability of the fund and the reduced pensions that participants will receive. According
to the PCRAFI (2011) Vanuatu suffers on average more than US$45 million per year of economic
losses caused by disasters (the third-highest rate in the Pacific region following Papua New Guinea
and Fiji), so continued accessing of the VNFP resources is an unsustainable coping mechanism andrisks depleting Vanuatu’s only social security fund.

Recovery Strategy
Enabling households to recover their productive and income-generating activities as soon as possible,
while also increasing the resilience of livelihoods to future shocks, must be a key component ofVanuatu | Post-Disaster Needs Assessment 93

the reconstruction and recovery process. This component will require a joint effort by national,
provincial, and traditional authorities, along with the private sector, civil society organizations(including workers’ and employers’ organizations), and international agencies. A comprehensive
PASIFIK-ASIST strategy for disaster-resilient jobs is thus proposed, consisting of a package ofinterrelated downstream and upstream activities to bridge the continuum from immediate income
generation to medium- and long-term employment recovery. It is estimated that all program activities
facilitating transition from immediate income generation to medium- and long-term employment andlivelihoods recovery would amount to VT 1.3 billion. The reconstruction process could be used as
an opportunity both to generate income (for example through an emergency employment program)in the short-term and to foster employment recovery and job creation in the medium- to long-term.
The short-term ELSP recovery needs are presented in Table 64 and the medium- to long-term needs
are presented in Table 65.

Program of Activities

Value(VT 1,000)

Responsible Agencies

Training of DoL, VCCI, and VCTU on socially responsible
enterprise restructuring

57,024

DoL, ILO

Rapid training of PWD island-based/community contractors
in labor-based rehabilitation works in Tannaa

65,880

DoL, PWD, ILO

Emergency employment program (i.e., Cash For Work)367,200

DoL, Provincial Council, PWD, ILO,
UNDP, UN Women, UN-Habitat

Emergency employment services

5,400

DoL, ILO

Rapid construction skills training

32,400

DoL, APTC, Youth Challenge,
Oxfam, ILO

Rapid assessment of participation of children in
agricultural labor

1,080

DoL, VCTU ILO

Total

Table 64. Short-Term
ELSP Recovery Needs

528,984

Note: DoL = Department of Labour; VCTU = Vanuatu Council of Trade Unions ; ILO = International Labour Organization; APTC =Australian Pacific Technical College.
a. VT 110,000 has already been funded.

Program of Activities

Value(VT 1,000) Responsible Agencies

Local economic recovery program for microfinanceinstitutions and MSMEs

432,000 DoL, ILO, VCCI, VANWODS,
Commercial banks, UN WomenEIIP contractor development work

216,000 DoL, PWD, R4D, ILO

PDNA training for DoL, NSO, VCCI, and VCTU

1,296 ILO

Multi-hazard business continuity management training for
VCCI, VANWODS, and others

8,640 ILO

CTA with essential support embedded in the DoL for 12months to build up coherent labor market information
system and expand national social protection program

44,712 DoL, VNSO, ILO

CTA embedded in the DoL for 6 months to build up coherent
labor market information system and expand national social
protection program

30,996 DoL, VNSO, ILO

Total

733,644

Note: DoL = Department of Labour; EIIP = Employment Intensive Investment Programme; ILO = International Labour Organization;
EIIP =; R4D = Roads for Development; CTA = Chief Technical Advisor; VCCI = Vanuatu Chamber of Commerce and Industry.

Table 65. Mediumto Long-Term ELSP
Recovery Needs

94 Tropical Cyclone Pam, March 2015

Gender Considerations for Recovery Strategy
The recovery program should strive to strengthen the informal sector, whose low capital requirements
and low entry barriers facilitate women’s active participation in the economy. In the short term,
efforts should be made to facilitate trade by linking the women harvesting pandanus on islands suchas Santos, which were not affected by Tropical Cyclone Pam, with the women in need of pandanus in
the affected areas. Support should be provided to the mammas, through identification of alternate
livelihoods that are less vulnerable to disasters and climate change (e.g., solid waste collection,
recycling) than those they currently engage in. Recovery funds should also provide access to financefor the affected mammas to allow them to restock and restart their business.

4.2 Household and Community Livelihoods
Summary

TropicalCyclone Pam
has very badly
harmed people’s
livelihoods,
severely limiting
their capacities
to generate
income for theirhousehold for the
next few months.
Community
infrastructure wasalso extensively
damaged or
destroyed,
disrupting daily
life and requiringextra expenditures
to repair or
replace, at a time
when incomes
have been lost.

From April 1 to April 8, in coordination with the government of Vanuatu, the United Nations
Development Programme (UNDP) sent a team of 17 assessors—10 women and seven men—to thefour provinces covered by this PDNA. A total of 1,273 people were consulted in the field, 55% ofthem women and 45% men. Respondents included a mix of professions, including chiefs, provincial
officials, health workers, teachers, and many heads of household.
The field visits make clear that Tropical Cyclone Pam has very badly harmed people’s livelihoods,
severely limiting their capacities to generate income for their household for the next few months.
Community infrastructure was also extensively damaged or destroyed, disrupting daily life andrequiring extra expenditures to repair or replace, at a time when incomes have been lost. Damage
and losses are comparatively more apparent and extensive in Tafea and Shefa Provinces than inother provinces. In Tafea and Shefa, field observations found that approximately 95% of incomegenerating activities had been interrupted by the cyclone, with variable time frames for theirreactivation. For Penama and Malampa, which had comparatively lighter damage overall, estimatedloss of income sources is 75%.
A different set of detailed assessments currently under analysis by the Food Security and Agriculture
Cluster shows that food availability, food accessibility, and sources of livelihood remain significantly
affected, particularly for the priority 1 areas, which include the islands of Tanna, Erromango, North
Efate, Shepherd, Pentecost, and Epi.
Data from FSAC assessments show that damage to agriculture is widespread. In the priority 1
areas, as much as 75% of coconut, 80% of coffee, 80% of leaf vegetables, 70% of taro, and 65% of
kumala were so extensively damaged that they will not recover. Agricultural equipment and assets
worth over VT 34.5 million were damaged or destroyed. In terms of small livestock, 69% of thetotal damage was to pigs, 26% was to poultry, and 5% was to beehives. A large amount of fishingequipment was also destroyed. This damage, together with the damage to livestock, will have anegative impact on the availability of protein for households.
Based on available background data, it is likely that women are somewhat more affected than men,
given their higher poverty levels and their disproportionate share of family care work in Vanuatu.
Both of these preexisting factors were aggravated by the cyclone impacts on income; and in theaftermath of the cyclone, women’s unpaid work and family care requirements will increase. Althoughsex-disaggregated information on men’s and women’s incomes and relative poverty levels is scant,the 2013 Vanuatu Hardship and Poverty Report notes that a higher proportion of elderly women live
below the basic needs poverty line than do elderly men (UNDP Pacific Centre 2013).

Vanuatu | Post-Disaster Needs Assessment 95

Logs that will be recycled
through debris management
system in Port Narvin,
Erromango. © Karen Bernard,
UNDP. Reproduced withpermission; further permission
required for reuse.

UN Women (2014, xvi) notes that “over three-quarters (77%) of all economically active women
engage in subsistence agriculture and the production of root crops, fruit and vegetables including
cash crops.” Thus damage and losses in subsistence and cash crops have a substantial impact on
women as well as men.

Assessment of Disaster Effects on Household and Community Livelihoods
Livelihoods
The following observations were made in regard to livelihoods as part of this PDNA:■■

Men and women showed significant differences in their usual livelihoods, and men’s usual
livelihoods were more economically profitable in general.

■■

Usual livelihoods for men include fishing (tuna, marlin, reef fish), trapping lobster, catchingcoconut crabs, farming sandalwood, and (on some islands) raising cash crops such as kava,
copra, and cacao, as well as operating shops.

■■

Usual livelihoods for women include weaving mats and baskets, selling prepared foods at
the markets, sewing clothes for sale, and maintaining vegetable gardens for subsistence andsome sales.

■■

A gender overlap was noted in gardens and farming, in which both men and women tend towork for subsistence and also sell to local and national markets. In a few areas, there was also
some gender overlap in services and accommodation for tourists.

96 Tropical Cyclone Pam, March 2015■■

While fishing is dominated by men, women engage is some fishing from the shore and on the
reef.

The livelihoods that predominate in the communities surveyed are kava and fishing, for men; weaving
for the women; and vegetable sales for both men and women. Small-scale tourism services andlivestock farming are also significant. An overview of the livelihoods across the impacted provinces
is presented in Figure 11.

Figure 11. Livelihoods
across All Four
Affected Provinces
Note: The chart refers to therelative predominance of
these livelihoods in Malampa,
Penama, Shefa, and Tafea,
as reported by communities
during the field assessments
conducted as part of this
PDNA.

Other 4%

Fishing 11%

Cooking 3%

Lobster 3%

Sewing 2%

Livestock 7%

Copra 12%
Sandalwood 4%
Tourism 2%

Kava 18%

Weaving 15%

Veg. sales 19%

As noted in the agriculture section of this report, approximately 80% of Vanuatu’s population relies
on agriculture for their livelihood and food and nutrition security. Vanuatu’s agriculture sector
is dominated by semi-subsistence farmers using mostly household labor, who live in tiny village
communities spread throughout the archipelago. Food is the most important household expenditure
item among rural households, representing 56% of total household expenditure, with the large
share of this expenditure for home consumption among subsistence farmers (HIES 2013). Among
many rural households, kava, copra, or other crops are the source of income, and it is common forhouseholds to raise small livestock, such as chickens (64%), pigs (45%), and cattle (29%) (VNSO
2009). Thus the damage to crops and livestock inflicted by Tropical Cyclone Pam has a severe impact
on household food security in the affected communities, which rely heavily on these subsistence
activities. At the same time, the interruption to subsistence farming is not easily compensated bypurchase of food, as virtually all sources of cash income have also been largely destroyed by thecyclone.
Table 66 summarizes the status of various key livelihood activities undertaken by men and womenin the locations surveyed, their comparative profitability, and estimated timelines for restoring fullproductivity.

Vanuatu | Post-Disaster Needs Assessment 97

Post-Cyclone Status and Issues

Estimated Time to
Full Restoration

Fishing (tuna, marlin, reef fish) High

Cannot be easily located

3 months

Trapping of Lobster andCoconut Crabs

High

Cannot be located, may be gone

6 months

Sandalwood Farming

High

Some seedlings destroyed, but trees
mainly intact

3 months

Kava CultivationHigh

Largely wiped out

4 years

Copra CultivationHigh

Largely wiped out

12 months

Sales of Prepared Foods (local) Low

Not possible in current conditions

6 months

Weaving Handicrafts

MediumPandanus all destroyed

12 months

Sewing (for local sale)

Low

Sewing machine damaged and lost

Variable

Livelihood

Profitability(low/ medium/high)Men’s Activities

Women’s Activities

Activities Shared by Men and Women
Vegetable and Fruit Sales(to Vila and Tanna)

Medium

Mainly destroyed

6 months

Tourist Services

MediumInterrupted due to damage and lackof transport

VariableWork in Guesthouses andRestaurants

MediumMany damaged and closed

Variable

Cultivation of other Crops

MediumOnly root crops left in most locations

3–6 months

Community Infrastructure
The following observations about community infrastructure were made as part of this PDNA:■■

While bigger buildings, such as schools, are already being fixed in most locations, there waswidespread destruction of smaller community infrastructure, which people rely on for their
daily lives and work.

■■

The community infrastructure most often reported as damaged and in need of repair includes(i) water tanks, taps, and wells; (ii) fences and enclosures for small livestock, such as pigs
and chickens; (iii) kindergartens, for children aged three to six; (iv) toilets and latrines; (v)nakamals, community halls, and women’s centers; and (vi) community kitchens.

There were marked differences in the incidence of community infrastructure reported as needing
repair in the four provinces surveyed, as shown in Figure 12.
The highest incidence of damage to community infrastructure was reported in Shefa Province, andthe second-highest in Tafea. Penama and Malampa Provinces reported much lower incidence ofdamage.
An overview of responses about damaged infrastructure is provided in Figure 13, which shows that
community centers, household water systems (water tanks, taps, pipes, and rainwater harvesting
systems), and debris on paths are among the biggest concerns.
A gender-differentiated summary of priorities expressed by survey respondents is included in
Figure 14.

Table 66. Overview
of Status of Affected
Livelihoods

98 Tropical Cyclone Pam, March 2015

Figure 12. Community Infrastructure Reported Damaged by Province
Number of times that each item was indicated

30

25

20

15

10

5

ir

s
Ro
a

d

re

pa

op
Sh

rie
sa
en
sp
Di

pl
ke
t
ar
M

s

ac
es

se
s
es
th
Gu

tc
ki

Co
m

m

un

ity

ity
un
m
Co
m

ou

he

te
ce
n

tri
/la
le
To
i

ns

rs

s
ne

ce
s
ts

ar
rg
de
Ki
n

Fe
n

ns
te

m
sy
st
e
W
at

er

Pa
t

hs

s

0

Types of community infrastructure needing repairn Shefa n Tafea n Penama n Malampa

Figure 13. Community
Infrastructure
Needing Repair Across
All Four Provinces
Note: The figure refers to
the relative predominanceof damage to these items in
Malampa, Penama, Shefa, andTafea, as reported during thefield assessment.

Road repair 6%
Shops 4%

Paths 18%

Dispensaries 3%
Markets 5%
Guest houses 3%
Kitchens 4%
Water systems 20%
Nakamals/centers 22%
Kindergartens 8%
Toilets/latrines 4%

Fences for livestock 3%

Vanuatu | Post-Disaster Needs Assessment 99

Figure 14. GenderDifferences inPrioritization of
Repair to Community
Infrastructure18

Number of times indicated as a priority

16
14
12
10
8
6
4
2

ir

s
d

re

pa

op
Ro
a

sa
en
sp

Sh

rie

s

s
ke
t
Di

ar

ou
es
th

M

se
s

ns
he
Gu

Ki
tc

rs
te

Na

ka
m

al

s/
ce
n

/la

tri

ne

s

ck
ts
le

fo
r
ce
s
Fe
n

To
i

te
ar
rg

liv
es
to

ns

s
m
Ki
n

de

sy
st
e

W
at

er

Pa
t

hs

0

Types of community infrastructuren Men n Women

Women and men showed substantial similarities in their prioritization of community infrastructure
requiring repair after the cyclone, although men had a moderate preference for clearing paths,
repairing roads, and rebuilding shops—the latter are mainly owned by men. Damage to any ofthis community infrastructure creates hardships for people and prevents returning to normalcy.
For example, destruction of kindergartens means that local women must spend much more timeattending to small children. In most locations surveyed, approximately 30 children aged three to
six years old attend each kindergarten. As reported in the education assessment included within
this report (Chapter 3.2.3), Tafea Province had 120 ECCE centers/kindergartens prior to Tropical
Cyclone Pam, only 8 of which are now functioning; the rest were destroyed by the cyclone. Recovery
programming should therefore prioritize repair and rebuilding of kindergartens, to alleviate thisburden on women, and enable them more free time and flexibility to participate alongside men in
temporary employment or other key recovery activities.
It should also be noted that the damage to community infrastructure is hindering the replantingof crops and clearing of garden accessways, which urgently need to be completed. For example,
in Williams Bay, Erromango, the community members consulted stated that the paths to their foodgardens are 5–10km long and are now blocked by debris. Also, in many affected villages, pigs are
now roaming freely due to broken fences, and are eating any crops newly planted. Thus fixing these
two items—enclosures for livestock and clearance of secondary paths—is in many cases essential forreactivation of local agriculture.

Potential for Emergency Employment
Emergency employment initiatives in a post-disaster context are sometimes referred to as “cashfor-work” or rapid or temporary employment. Such programs seek to assist post-disaster recovery
by providing a temporary source of cash income in exchange for work (usually related to clean-up),

100 Tropical Cyclone Pam, March 2015

supplemented by skills training. They provide a quick way to inject cash into the local economy,
and are flexible and empowering in that participants can determine individually on which items tospend the cash earned, based on their family’s specific needs and priorities.
Given the cyclone’s severe impact on incomes, community members were consulted on their interestin participating in any emergency employment scheme if one were initiated in their community. The
overall response was very positive. Among both men and women who were consulted, 98–100%
expressed interest in participating in an emergency employment program, if one were established.
There were just a few exceptions; in Ipota and Umpon Yelongi (Tafea), only 50% of respondents
expressed interest, and in Imaki (Tafea), only 75% of women expressed interest in such an initiative.
In Asanvari village in Penama Province, women explained that they have limited time available for
emergency employment, as they have to care for children and other family members, and must seek
approval from their husbands in order to participate in any paid work in the village.
People consulted in the affected villages indicated what items they would most likely spend moneyon should they participate in an emergency employment program. A gender-differentiated summaryof these findings is set out in Figure 15.

35
Number of times indicated during consultations

30
25
20
15
10
5

l
ho
sp
to

or
t

lb

Tr
a

ns
p

al
sm

Items that people indicated they would purchase with these funds

ita

s
ed
Se

us
in
es
se
s

s
To
ol

s
m

ot
hs

ite
HH

ica
M

ed

Cl

lc
os
t

s
bt
De

r
ai
ep

Ho
us
er

Sc

ho
ol
co
st
s

0

Fo
od

Figure 15.
Comparison of How
Men and Women
Would Spend
Funds Earned
from Emergency
Employmentn Men n WomenAs Figure 15 indicates, women showed substantially greater intention than men to spend cash onhousehold items and clothes for the family. Men gave greater priority to buying tools, housing repair,and transportation to medical facilities. The most common household item people would spend themoney on is soap. In terms of tools and equipment, women would most often purchase gardening
tools, whereas men would purchase chainsaws, fishing gear, and construction tools.

Vanuatu | Post-Disaster Needs Assessment 101

Recovery Strategy and Needs
The short-term and medium- to long-term recovery needs for livelihoods are set out respectively in
Table 67 and Table 68.
Activity

Value (VT 1,000)

Responsible Agency

Repair and reopen marketplaces in Port Vila and other key
locations, for handicrafts, food, and vegetable sales.

To be determined

Municipalities, DLA

Initiate gender-balanced emergency employment programs in
Efate, Tafea, and Shefa

86,400

DLA, UNDP, other donors

Facilitate purchase of pandanus from unaffected islands, so thatwomen in the affected locations can resume weaving

5,400

DLA, donors

Implement debris management programs in affected locations toclear paths and repair community infrastructure

54,000

DLA, UNDP

Establish local carpentry workshops, to recycle useable wooddebris for housing repair and making furniture

19,440

DLA, UNDP

Open sandalwood season early, so that people can sell to earn
incomeNo costMALFFB

Total

165,240

Table 67. ShortTerm Recovery
Needs for Household
and Community
Livelihoods

Note: DLA = Department of Local Authorities.

Activity

Value (VT 1,000)

Responsible Agency

Support rural women with micro-grants to reestablish small
local businesses.

Department of Womenat Ministry of Justice and54,000Community Services, DLA,
UN Women, UNDP

Implement and expand “Markets for Change” program to
improve income and working conditions for women market
vendors in rural and urban areas.

21,600Department of Women,
DLA, UN Women, UNDP

Provide solar-powered freezers for storage of fish for sale

27,000

Ministry of Climate
Change, DLA, donors

To be determined

Ministry of Climate
Change, UNDP Global
Environment Facility
(GEF)

8,100

Ministry of Climate
Change, UNDP GEF

Seek increased quota of ni-Vanuatu seasonal workers forfruit picking in New ZealandNo costDepartment of Labour/
Ministry of Internal
Affairs

Total

110,700

Train men and women in the maintenance and repair of solar
batteries and equipment, as an alternative livelihood
Provide solar-powered systems for copra drying

Table 68. Mediumto Long-Term
Recovery Needs
for Household
and Community
Livelihoods

102 Tropical Cyclone Pam, March 2015

Women in Port Narvininterested in cash-for-workraise their hands. © Silke
Von Brockhausen, UNDP.
Reproduced with permission;
further permission required
for reuse.

4.3 Gender
Summary

Post-disasterrecovery should
create equal
opportunities for
women to benefit
from resource
allocations(in kind, work
opportunities, orcash).

The PDNA undertaken following Tropical Cyclone Pam demonstrates that certain social groups
within the four affected provinces have experienced more severe impacts than others. Widespreadgender inequality and discrimination against women and girls placed them at a disadvantage before
the disaster hit. Women, girls, and FHHHs—as well as people living with disabilities and othervulnerable groups—are overrepresented in the lowest wealth quintiles, and therefore have fewer
resources for coping with disaster impacts. Given the existing division of labor in the agricultural
sector, the impact on subsistence farming means that women’s resources to generate income andprovide food and nutrition for their families have significantly decreased. With limited access topolitical and policy decision making, women may have difficulty influencing, participating in, andbenefitting from recovery interventions and resources, especially at the community level. Postdisaster recovery should therefore create equal opportunities for women to benefit from resource
allocations (in kind, work opportunities, or cash). In this way women’s specific needs and interests
could be taken into account, and disaster recovery would not perpetuate inequality and erode theresilience of women in the long term.

Pre-Disaster Gender Situation
Vanuatu ranks relatively low on the gender inequality scale. It is number 132 out of 187 countries
according to the UNDP Human Development report 201462. Based on the 2009 census, womenmake up 48% of the ni-Vanuatu population, and the total fertility rate per woman is 4.2 births.

62

United Nations Development Programme UNDP (2014): Human Development Report 2014: Sustaining Human
Progress: Reducing Vulnerabilities and BuildingVanuatu | Post-Disaster Needs Assessment 103

Females have a longer life expectancy than males (73 years compared to 70 years). The education
gap between women and men is quite narrow—85% for men having primary school education or
higher and 81% for women63. It is estimated that FHHHs make up 20% of the national households.
Traditionally women are responsible for domestic works and small-scale income-generation
activities, while men engage in community and family decision making and sell cash crops andlivestock for income.
Women remain largely excluded from decision-making processes at different levels. Vanuatu has
one of the lowest rates of women in parliament in the world, reflecting the entrenched traditionalview that leadership is for men. Since independence, only five women have been elected to thenational parliament, and currently the national parliament has no women members. In addition,
women represent just 3% of total senior/executive government positions. The traditionalcustomary structures that are present within all communities are led by male chiefs who holdsignificant decision-making authority over their community and often make decisions about theuse of productive resources. Women do not take part in decision-making process in the publicsphere.
Although women’s participation in the formal economy has increased to around 36%, women still
face many challenges accessing equal opportunities to paid employment in the nonagricultural
sector. More women than men are economically inactive, most being full-time homemakers caring
for children, the elderly, people with disabilities, and other family members. More women than men(49% and 41% respectively) are involved in the subsistence economy, which makes them more
susceptible to poverty, disaster, and other livelihood stresses.
Violence against women in Vanuatu is alarmingly high, widely accepted, and complicated by the
traditional ways of dealing with violence, which often occurs within families. A prevalent study64
on violence against women and girls found that 60% of women between 15 and 49 experienced
physical or sexual violence during their lifetime. Further, prevalence of sexual abuse against girls
under the age of 15 is extremely high, and the majority of perpetrators are male family members or
boyfriends.

Assessment of Effects and Recovery Needs65
Gender Implications of Damage to Infrastructure and Physical Assets
While the destruction of critical infrastructure such as health facilities, water supply systems, andhousing has affected everyone, recovery efforts need to be informed by and respond to differential
impacts based on gender roles at the community level. Data collected by WASH Cluster shows that
58% of all water collection in the affected provinces is done by women and children. Because Tropical
Cyclone Pam has damaged and contaminated sources of drinking water, women and children must
dedicate greater time and effort than men to obtaining water from more distant locations. This
increased workload reduces the time they can allocate to income generation and education. It also

Vanuatu National Statistical Office (2009): National Population and Housing Census; Gender Monograph ‘Womenand Men in Vanuatu’64
Vanuatu Women’s Centre and Vanuatu National Statistics Office (2011): National Survey on Women’s Lives andFamily Relationship.
65
The degree of integration of social issues into sectoral assessments was limited by the different assessment
schedules, the level of field-based humanitarian assessment, and the household data surveys undertaken by thedifferent sectors. The lack of sex-disaggregated data before the cyclone and in humanitarian needs assessment
severely limited the costing of disaster losses by women and men.
63

104 Tropical Cyclone Pam, March 2015

exposes them to hazards such as violence or disease. As shown in Table 69, the effect on womenand children of water supply and sanitation damage and loss is more than 58% (VT 295 million) of
the total effect.66

Table 69. Gendered
Disaster Effects on
Water Supply andSanitation

Province

Total Effects (VT 1,000)

Women and Children
engaged in collection water(%)

Malampa

93,15556

52,167

Penama30,60070

21,420

Shefa

210,410

59

124,142

Tafea

79,39053

42,077

Total

511,900

58

295,180

Total Effects for Women andChildren (VT 1,000)

For reasons of safety, household efficiency, and food production, restoration of water facilities
should be prioritized. Concerning private housing, recovery efforts should target those households
least able to restore homes because of endemic poverty and limited social networks or capital. In
this regard, FHHHs should receive special consideration. The 2009 census indicates that 24% of thehouseholds in Vanuatu are female-headed, which translates into 3,840 households needing VT 1.9
billion (as set out in Chapter 3.2.1) for home restoration (VNSO 2009).
Of particular concern are the landless women in areas like Epi, where communities have to relocate
because of saltwater intrusion and coastal erosion. Compounding this challenge are the barriers
that women face in accessing and controlling productive assets and resources. Targeted assistanceshould be provided to FHHHs in the reconstruction of private housing, given that the support
they normally rely on from the community has been reduced. Furthermore, rehabilitation andreconstruction programs should promote the participation of women so they can benefit from themalong with men.

Table 70. Total Effect(Damage and Loss)
for Female Headed
Households (VT1,000)

Province

Total Effect on Housinga

Total Effect on Female Headed
Householdsb

Malampa

582,638

139,833

Penama233,31055,994

Shefa

6,863,256

1,647,181

Tafea

2,213,461

531,231

Total

9,892,665

2,374,240

a. Housing figures presented in Chapter 3.2.1
b. FHHH figures correspond to 24% of total effect on housing

66

The calculation is based on the World Health Organization methodology (Hutton, Haller, and Bartram 2007;
Hutton and Bartram 2008; Evans et al. 2004; OECD 2011), which estimates that US$1 in damage equals US$5 inlost economic output and that losses would be incurred until the preexisting level of service was recovered.

Vanuatu | Post-Disaster Needs Assessment 105

Gender Implications of Effects and Impact on Production, Supply of, and Accessto Goods and Services
Agriculture. Agriculture is the mainstay for food security and the main source of income for women.
More women than men (49% and 41% respectively) are dependent on subsistence agriculture.
Although subsistence farming is not considered in national accounting, the small scale of these
agriculture products represents an important source of income for women and enables their families
to survive. For men, on the other hand, research suggests that a greater share of income goes topersonal recreation.67 Analysis on the impact on crops, shows that households suffered a total lossof VT 4 billion, VT2 billion of which comes from subsistence crops. This equates to VT 1082 billion
for women compared with VT 0.921 billion for men.
Extensive destruction of food and cash crops has created new challenges for women’s ability bothto provide adequate food and nutrition and to generate income to support their families. Recovery
needs should provide investment to reduce dependence on subsistence cropping for householdincome through skills capacity training and vocational training for women.
Commerce and industry. Women face challenges accessing equal opportunities to paid employment
in the nonagricultural sector. It is anticipated that Tropical Cyclone Pam will disproportionately
impact women who are employed within the private sector, especially the tourism sector, as they
make up the bulk of unskilled workers. Recovery programs should aim to provide laid-off womenwith temporary employment (debris clearance, solid waste management, etc.) until the sector
recovers. Over the medium term, training programs for women should aim to increase their skills
and possibly their access to nontraditional livelihoods. The informal sector and marketplaces offer
important venues to effect social and economic change for women, especially considering thatwomen make up 90% of the market vendors. Strengthening of the informal market sector throughrecovery programs is a very good way to empower women economically and reduce unemployment
because it has low capital requirements and low entry barriers.
Unpaid work. The unpaid work undertaken by women because of the disaster has to be consideredduring recovery. Women normally take on the bulk of unpaid work, 27.2 hours per week (80%),
while men contribute 6.6 hours (20%).68 Women’s care burden has increased dramatically in the
post-disaster context. This includes an increase in working hours for restoring homes and gardens,
fetching water, searching for food, and taking care of children due to the closure of primary andkindergarten schools. These additional tasks have a cost, as they take away from time women could
have dedicated to income generation. Considering that 16,000 houses were affected (Chapter 3.2.1)
it is estimated that by working an additional two hours per day for three months, women could haveearned a minimum of VT 432 million, based on the average domestic worker wage of VT 3,000
per week.69 While it is important to ensure that women participate in and directly benefit frompost-disaster recovery programs, efforts should be made not to increase their already high workburden. Recovery programs can take into account, for example, provision of temporary child carearrangements and prioritization of repair of damaged schools and kindergartens.

Bowman, C, Cutura, J, Ellis, A and Manuel, C 2009, Women in Vanuatu: Analysing Challenges to Economic Participation, World Bank, Washington DC
68
Foundation of the People of South Pacific International (FSPI) Island Consulting (2000): Vanuatu Rural Time Use
Survey: January to March 2000 time use Survey- Report to the Department of Strategic Management
69
Calculated based on the assumption that women are now devoting additional time to domestic work in cleaning
up their homes and kitchens, scouring for food, drawing water, and caring for children. Child care is assumed tohave increased substantially due to destruction of schools and kindergartens (see Chapter 3.2.3).
67

106 Tropical Cyclone Pam, March 2015

Other social impacts
Gender-based violence. Vanuatu already has high rates of sexual and gender-based violence, andvigilance will be needed to prevent any escalation. A lack of separate sanitation facilities following
destruction of existing facilities and an increase in the use of bushes often forces women to perform
ablutions very early in the morning or at night for privacy, which puts them at a greater risk forsexual violence. This situation is made worse because avenues for reporting abuse are lacking.
Given that sexual and gender-based violence is typically anticipated to increase during a crisis,monitoring of incidents and support for key organizations will be important in the upcoming months.
It is also critical that women’s networks, women’s centers, and referral for survivors be rebuilt andstrengthened under the post-disaster recovery program.
Impacts on people living with a disability. According to the 2009 census (VNSO 2009), 5% of theni-Vanuatu population has some form of disability. People living with disability, regardless ofgender, are likely to face and will continue to face increased mobility challenges in light of debris,reconstruction of their homes, and damage to other infrastructure such as health facilities and waterand sanitation facilities. DRM measures need to sensitize disaster response authorities to ensurethat the needs of people living with disability are anticipated and met.

Estimation of the Economic Impact of Tropical Cyclone Pam on Women
Table 69 and 70 paint a partial picture of economic values of damage and loss incurred by women at
the household level. They make visible the differential impact of the disaster on women. Though thequantifiable effect is minimal in the national accounting framework, the impact on women’s lives is
profound. Women’s current social status means that they form the poorest bracket of the population
and will struggle the hardest to recover from the disaster. Their relative lack of opportunities andaccess to resources impedes fast recovery, and the lack of specific focus at the micro level in therecovery programs can contribute to the poorest sectors remaining below the poverty line. At thesame time, equitable post-disaster recovery could help to reduce women’s disadvantaged condition
and increase their overall resilience. In this sense it is very important to orient the recovery resources
toward vulnerable groups and to strengthen the capacities and skills that they are already using tocope with the disaster. Women as well as men must have access to reconstruction and rehabilitation
jobs, as well as public works, investment funds, and income-generating projects, to support theirlong-term economic recovery.

Recovery Strategy
Women’s economic contributions to households have similar relevance to men’s. One of the directconsequences of the disaster is women’s loss of resources and decreased participation in productive
and income-generating activities due to direct loss and time dedicated to emergency and rehabilitation activities as well as domestic and communitarian tasks. Post-disaster recovery strategies andresources must therefore strive to safeguard, restore, and promote women’s economic engagement.
These efforts must seek to redress inequalities and at the very least not perpetuate unequal accessto power and resources. Recovery strategy activities should include the following:■■

Women’s economic recovery under the post-disaster recovery programs must be protected
and accorded the same status and importance as that of men. Sectors that have high a
representation of women—agricultural production, tourism, and the informal economy
including urban and rural markets—must not be neglected.

Vanuatu | Post-Disaster Needs Assessment 107■■

Subsistence agriculture is the current backbone of women’s economy. There is an urgent needfor extension services for women, who are often sidelined in favor of men and cash crops.
Investment to reduce dependence on subsistence cropping for household income throughskills capacity training and vocational training for women is also needed.

■■

Women who have lost jobs in the formal sector must be afforded the opportunity foralternative income through temporary employment such as in debris clearance, solid waste
management, and repair of community infrastructure.

■■

Support should be given to establishing or restoring community child care arrangements,
including temporary mechanisms and the prioritization for the rehabilitation of local
kindergartens, in order to lighten women’s time burden and allow them to participate invarious recovery and reconstruction programs.

■■

To improve safety for women and children, initiatives to repair community infrastructure
should give priority to repair and rehabilitation of damaged toilets and latrines, so thatwomen do not need to resort to ablution in the bush.

■■Considering the high number of female-headed households, priority should be given to efforts
to support FHHHs and widows in relocation and in rebuilding their homes.

■■

Messaging aimed at preventing gender-based violence should be widely disseminated andpsychosocial support made available to families confronting the stresses of dislocation.
Given the likelihood of increased violence against women, local NGOs working in this area
and response protocols should be strengthened.

108 Tropical Cyclone Pam, March 2015

5

Vanuatu | Post-Disaster Needs Assessment 109

Disaster Risk
Management

Member of Williams Bay Community Disaster Council, Erromango, Tafea Province. © Silke Von Brockhousen, UNDP. Reproduced withpermission; further permission required for reuse.

110 Tropical Cyclone Pam, March 2015

Summary
Consultations were undertaken with key national, regional, and global actors that have been
providing support to Vanuatu following the impact of Tropical Cyclone Pam. Based on this feedback,a number of disaster preparedness and response capacity building measures can be undertaken tominimize future risk.

There must
be a soundscientific basis
for predicting
hazards anda reliable
forecasting
and warning
system that
operates without
interruption
around theclock.

The key areas to be addressed are the strengthening of early warning systems (EWSs); strengtheningof post-disaster assessment capacity, communications capability, and information management;
and institutional strengthening and capacity building in disaster management. It is important tonote that monitoring and warning services lie at the core of an effective EWS. There must be a soundscientific basis for predicting hazards and a reliable forecasting and warning system that operates
without interruption around the clock. Continuous monitoring of hazard parameters is essential togenerate accurate, timely warnings. Warning services for different hazards should be coordinated
where possible to gain the benefits of shared institutional, procedural, and communication resources.
The total estimated needs associated with the replacement of early warning infrastructure andequipment managed by the Vanuatu Meteorology and Geo-Hazards department is VT 478 million.

Legislative Framework
The national disaster risk management arrangements are stipulated under two separate legislations:■■

The National Disaster Act (Cap 276) of 2000 sets out the umbrella national arrangements
for the management of disaster arising from natural and other hazards. Following thepromulgation of the act, the NDMO developed in consultation with stakeholders the draft
National DRM Arrangements (National Disaster Plan) in 2008.

■■

The Meteorology Act (Cap 204) (Act No. 4 of 1989) sets out the national arrangement
for monitoring and warning for severe weather, including tropical cyclones and othermeteorological hazards, in Vanuatu. The geohazard responsibilities were transferred to the
VMGD following the Council of Ministers Decision 33/2010 in 2010.

Costs of Damage to the National Multi-hazards Early Warning System
The national Multi-hazards Early Warning System (MHEWS) was severely impacted by Tropical
Cyclone Pam, with observation stations and communication equipment damaged. The cost to
replace the damaged equipment and communication network is estimated at VT 227 million, basedon an assessment conducted by the VMGD.

Experiences and Lessons Learned
In the face of the severe conditions imposed by one of the strongest cyclones ever recorded in the
Pacific Islands, the VMGD was able to keep the public informed on the progress of Tropical Cyclone
Pam and the dangers they faced. While 11 people were killed during the storm, much greater lossof life was likely prevented by the timely and accurate warnings and the public’s responsiveness tothem. The Vanuatu Tropical Cyclone Warning Centre (VTCWC), which is managed and operated by
the VMGD, benefitted from its close proximity to the NDMO (they share the same building). As thecyclone approached, warnings were transmitted via SMS (text messaging), phone calls, HF (highfrequency) radio, and the Internet. The cellular towers and HF radio antennas went down early on,
but warnings were still sent over the Internet. This demonstrates the importance of having a range

Vanuatu | Post-Disaster Needs Assessment 111

of communications options. As of April 10, communications were still down in the hardest-hit areas;
backup communications and spare parts for the HF radio network (a widely used communications
option that can be repaired relatively quickly) are needed. Another issue faced by VMGD, one notunique to the region, was the combination of people’s reliance on alternative information sources(including some that predicted the earlier arrival of Tropical Cyclone Pam) and the reluctance ofsome to heed warnings.

Key Needs and Recovery Strategy
The experiences from Tropical Cyclone Pam have highlighted the need for a complete review of the
DRM arrangements to cover disaster preparedness, response, and early warning as well as DRM
arrangements across all of government, the private sector, and communities. The short- and mediumlong term recovery needs are presented below in Table 71 and 72 respectively. More information isavailable in Annex 5.

Value (VT 1,000)

Responsible
Agencies

Refurbishment of Bauerfield and Outer Islands Observation Stations

274,725

To be confirmed

Total

274,725

Program of Activities

Value (VT 1,000)

Responsible
Agencies

Institutional Strengthening and Development of Regulatory Frameworks

5,494

To be confirmed

Human Resources Development

10,989To be confirmed

Development of Standard Operating Procedures and Warning Protocols

32,967To be confirmed

Information Management

10,989To be confirmed

Communication Infrastructure for DRM & EWS

54,945To be confirmed

Retrofitting of Existing Public Facilities for Evacuation Centers

87,912

To be confirmed

Program of Activities

Total

203,296

Table 71. Short-Term
Recovery Needs andEstimated Costs for
DRM Arrangements
and Early Warning
Systems
Table 72. Mediumto Long-Term
Recovery Needs andEstimated Costs for
DRM Arrangements
and Early Warning
Systems

112 Tropical Cyclone Pam, March 2015

Vanuatu | Post-Disaster Needs Assessment 113

6

Summary of
Recovery andReconstruction
Needs

Damage to sports field in Port Vila. © Becky Last, Vanuatu Dept. of Tourism.

114 Tropical Cyclone Pam, March 2015

The private
sector accounts
for 69% of thetotal disaster
effects, so therecovery andreconstruction
strategy shouldcater for theneeds of both theprivate and the
public sectors inorder to ensure aneffective overall
recovery.

The primary objective of the recovery strategy is to enable all people to improve their overall wellbeing by restoring their physical assets, livelihoods, and socio-cultural and economic status. The
private sector accounts for 69% of the total disaster effects, so the recovery and reconstruction
strategy should cater for the needs of both the private and the public sectors in order to ensure aneffective overall recovery.
Productive sectors, which are predominantly private, account for 39% of the total disaster effects.
Of this, around half is attributable to effects on the tourism sector. Social sectors account for around
31% of the total disaster effects, with most of these effects found in private housing (66% of totalsocial sector effects). Infrastructure sectors follow with 19% of the disaster effects. In infrastructure,
the bulk of the energy and water is provided by the private sector.
The recovery strategy for the public sector should consider short-term financing needs requiredby the government to meet increased expenditures in the services sectors under its purview. The
medium- to long-term needs for reconstruction in the public sector—including health, education,transport, environment, water supply and sanitation, and public buildings—represent the amountrequired both to rebuild destroyed assets so that they meet improved standards of quality andmodernization, and to establish disaster-resilient norms to reduce risk to potential future disasters.
The needs also include any technical assistance activities to support the sectors’ long-term resilience.
The primary focus of the recovery strategy for the private productive sectors (commerce andindustry, tourism, and agriculture) should be to provide access to a line of financing or production
inputs to ensure that the private sector entities and individuals obtain sufficient working capital or
inputs to reinitiate their productive activities. The line of financing would be targeted and support
only a portion of the overall needs of the private sector. The rest is expected to be financed by thebusinesses or individuals themselves. The public sector is also looking into supporting the tourism
revival through enhanced marketing campaigns. Private sector assets in communication, energy,
and water are insured and would be compensated through the market mechanisms. All recovery
needs are net of insurance (where data are available).70
Housing reconstruction was initiated by affected individuals supported by the government of
Vanuatu and humanitarian agencies in the early stage of the recovery phase. Recovery planning isunder way, with the aim to supplement the existing resilience and coping systems of the ni-Vanuatu
people and assist them in BBB, specifically by distributing building materials and offering technicalassistance to make self-repaired houses more durable and weatherproof.
In regard to the social side of the assessment, post-disaster requirements were estimated using
qualitative methods that involved field assessments, interviews with affected persons, and othermeans of identifying needs. Requirements and recommendations for reducing disaster risk were
estimated based on a preliminary risk analysis for Vanuatu and on workshop discussions with key
stakeholders; they include activities that correlate to best practices regionally and globally.
Table 73 summarizes the quantification of short- and medium- to long-term recovery needs for all
the sectors. Please refer to the individual sector chapters for further details.

70

This excludes the recovery needs of the private sector within the communication sector, which have not been
included in this PDNA and will largely be met by insurance coverage.

Vanuatu | Post-Disaster Needs Assessment 115

Sector Name

Short-Term
Activities

Productive Sectors

Agriculture

Commerce andIndustry

HealthActivities

4,510,172
Rehabilitationof damaged
infrastructure

Needs

Total

1,321,378

5,831,550

1,162,378

1,813,440

651,062

Technical assistanceon microinsurance
markets;

2,280,000

N/A

Not
available

2,280,000

1,579,110Marketing

159,000

1,738,110

18,728,547

19,931,382

Cash crops, livestock,and fisheries sector
long-term recovery

Reconstructions costs(partly to be financed
by low-cost line ofcredit and partly bybusiness owners)
Reconstructions costs(partly to be financed
by low-cost line ofcredit and partly by
the business owners)

Social Sectors
Housing

Needs

Inputs and equipment
support for crops,
livestock, andagriculture

MarketingTourism

Medium- to Long-Term

1,235,593
Public sector technicalassistance

325,000

Housingreconstruction

11,931,283

12,256,283

Additional cost ofhealth services

773,723

N/A

N/A

773,723

100,389

Reconstruction ofschools, teachers’
houses, etc.

6,748,764

6,849,153

36,481

Restoration of cultural
assets

48,50084,981

Damage reconstructionand equipment
Curriculum printing

Education

Replacement ofteaching equipment

Culture &Religious
Buildings

Emergency repairs tocultural assets
Church repairs

Table 73. Summaryof Recovery Needs(VT 1,000)

116 Tropical Cyclone Pam, March 2015

Table 73. Continues

Sector Name

Short-Term
Activities

Infrastructure Sectors
Transport
Public Buildings

Water Supply
Sanitation

EnergyActivities

3,573,817

Needs

Total

2,609,994

6,183,811

2,188,612

Reconstructionof road, aviation,and maritime
infrastructure

1,734,035

3,922,647

Repairs

297,245

Reconstruction

295,114592,359

Temporary access towater and sanitation
services

365,160

Reconstruction ofwater supply andsanitation systems

570,845936,005

3,000

Backup generators forcritical facilities

10,00013,000719,800–

719,800

37,50090,000127,500

90,000127,500

844,344

1,538,658

844,344

1,538,658

203,296

478,021203,296

478,021Clearing of roads andtemporary repairs

Additional cells forlandfill
Cost of providing
electricity to periurban areas
Repair to iGov network

Communications

Medium- to Long-Term
Needs

Broadcasting network
repairs
Repairs to Vanuatu
Post damage

Cross Cutting Sector
Environment

Community outreach
Detailed assessments

Social and Household
Employment,
Household andCommunity
Livelihoods

Emergency
employment

Total

Replantation of lost
ecosystems

694,224
694,224Microfinance andmicro-grants

Skill trainings

Skill trainings

Repair andimprovement ofmarket facilities

Provision ofequipment

Disaster Risk Management

Disaster Risk
Management

37,500

Refurbishment ofobservation stations

274,725
274,725

Human Resource
and institutional
development
Retrofitting of
evacuation centers

10,326,031

Note: N/A = not applicable.

23,797,559

34,123,590

Vanuatu | Post-Disaster Needs Assessment 117

7

Way Forward

Preparation for aerial photography survey by remote controlled drone. Source: © UAE. Reproduced with permission; further
permission required for reuse.

118 Tropical Cyclone Pam, March 2015

The recovery needs that have been identified during the PDNA process are not linked to theavailability or form of recovery funding, but are driven by the sectoral needs analyses that havebeen undertaken. Given the extent of identified needs and the limited resources, the first step would
be to prioritize the sectors for recovery and reconstruction based on the available financial envelope
and a number of strategic considerations. A criteria-based prioritization of recovery needs acrosscompeting sectors will be necessary, the principles of which could include the following:■■

Potential for direct and widest humanitarian impact■■

Potential to generate sustainable livelihoods■■

Inclusive (pro-poor and pro-vulnerable strategies)■■

Balance between public and private sector recovery■■

Restoration and rebuilding of critical infrastructure and services

The recovery program, while implemented under the government’s leadership, is anticipated to be
carried out in close and collaborative partnership with the private sector and civil society of thenation as a whole, and should be guided by a detailed recovery framework.
The rehabilitation and refinancing of the private sector will come from savings, debt, grants, subsidies,or duty waivers. Those who can borrow from banks will be faced with repair bills and diminishedincome, or will have extra working capital needs to fund the reconstruction. While the RBV has
eased monetary policy and made available short-term facilities, there is still a significant demand
for funding to meet the VT 17.3 billion (U$157 million) shortfall on insured damage. The amount thatcan be supported will be a determining factor. Listed below are several key considerations to guide
government.

7.1

Low-Cost Debt Facility

Discussions with industry, RBV, commercial banks, and VNPF suggest there is an appetite for a lowcost debt facility that can be made available to the banks to on-lend for reconstruction. The ideal
facility would include VT 1.6 billion–VT 5.4 billion (US$15 million–US$50million), in the form of a
10-year loan that did not distort the market. Retail deposits are raised at 3.5–4.0% interest, andthis would be the benchmark rate for borrowing through the RBV. This rate and funding could beachieved by blending approximately VT 1.1 billion (US$10 million) in International Development
Association (IDA) funding and VT 1.1 billion (US$10 million) in commercial funding. At 3.5–4.0%
interest, the cost of funds would translate to a customer interest rate of 7–8% on the basis that thebanks carry the loss risk. This would reduce current lending rates by 3–4%. This could be further
reduced by putting a first loss of around 10% into the facility. The mechanism of on-lending throughcommercial banks has a number of benefits for the restructure. The money can be targeted at incomegenerating operations, operations that are in need of funding to rebuild, and key sectors (small
and medium enterprises, agriculture, tourism, etc.). The mechanism would ensure that the rebuild
is insured at the appropriate levels and that the governance and reporting is well established, in
accordance with existing RBV practices. The benefit to the government of Vanuatu would be that the
IDA money is payment-free for 10 years, and all costs would be covered by the private sector. After
this period the government could either repay the IDA funding to avoid further debt stress or use it
for other purposes. This facility would target existing bank customers. A portion of this facility could
be reserved for micro, small, and medium enterprises at a different rate.

Vanuatu | Post-Disaster Needs Assessment 119

7.2

Agriculture Recovery

The agriculture sector represented approximately 25% of the VT 75.8 billion GDP in 2013.
Approximately 80% of Vanuatu’s population relies on agriculture (mainly crops, livestock, andfisheries) for livelihood and food and nutrition security, and at least 71% of the rural population
derives some income from agricultural activities. The total value of recovery needs within the
agriculture sector is estimated at VT 1.8 billion, of which VT 0.6 billion is short-term needs andVT 1.2 billion is medium- to long-term needs. The recovery and rehabilitation efforts in agriculture
should primarily aim to support the revival of economic activity across the sector and to strengthen
the capacity of the sector to sustain similar shocks in the future. The bulk of people in the agricultural
sector would not be eligible for credit, and the 20 commercial firms within the sector would becovered under the low-cost facility. The government of Vanuatu would need to provide emergency
assistance of approximately VT 0.6 billion to this sector, and longer-term assistance of VT 1.2 billion
in the form of cash payments for goods, starter stock, food subsidy, and grants for the rehabilitationof the sector. This equates to indirect/direct support to 71% of the population in approximately
46,000 households (based on 2010 HIES) whose average weekly household expenditure was VT
7,259 in 2010. This comes to provision of VT 58,000 per household in affected areas. Various
mechanisms for disbursing these funds to predominantly unbanked rural people can be considered.

7.3

Commerce Recovery

For the Commerce Sector, the total damage following Tropical Cyclone Pam is estimated at VT 1.2
billion, and the economic losses are estimated at VT 2.2 billion and hence the total effect of VT 3.3
billion. The economic cost of recovery is estimated at VT 645 million and reconstruction needs
are estimated at VT 1.6 billion. This brings the total recovery cost for the commerce sector to VT
2.3 billion. For the tourism sector, it is estimated that Tropical Cyclone Pam has produced damageof around VT 5.9 billion and will lead to losses of VT 3.6 billion over the next six months. The
corresponding total effect on the tourism sector is VT 9.5 billion. The tourism rebuild is estimatedat VT 1.5 billion. There are 620 insurance claims across the residential, commerce and tourism
sectors totalling VT 11.2 billion. VT 3.8 billion is allocated to the residential sector, where damages
have been estimated at over VT 11.6 billion. VT 5 billion of claims are accounted for and have been
excluded from the rebuild cost for the tourism and commerce sectors, leaving VT 2.2 billion to covera rebuild of VT 3.8 billion. This gap is before assessment and disputes.
The government of Vanuatu may need to provide some finance in the form of an “insurance” payout
to repay damage to the housing, agriculture, commerce and tourism sectors, at a capped amount. It
would be preferable for the insurers undertake the process of collecting and assessing claims.

7.4 Social Recovery Considerations
Overall, taking into account Tropical Cyclone Pam’s impacts on the population and all sectors, it
should be noted that some groups—such as youth, women in general, women who head households,
and persons living with disabilities—were hit especially hard by the associated shocks and stresses.
Other sectors and groups are less vulnerable, have more resources at their disposal, and will proceed
to self-recover more easily. The government should therefore consider strategically allocating someof its funds and those of donors to directly assist the more vulnerable groups. This can be doneby explicitly requiring that vulnerable groups be equitably included in general activities, such as

120 Tropical Cyclone Pam, March 2015

purchase and repair of community assets and infrastructure as well as any temporary employment
and clean-up activities. These groups are at risk of sliding into poverty or deeper poverty, and given
their disadvantages and scant access to resources, they will most likely not be able to recover theirformer standard of living within this year. Two-year waivers of fees (such as school fees, medical
fees, taxes, etc.) should be targeted to these groups, and they should also be offered micro-grants,
technical assistance, and training to restore income sources or find new employment.

7.5

Longer-Term Housing Reconstruction

In a country as vulnerable as Vanuatu to frequent extreme weather events and geohazards, thelonger-term reconstruction strategy will include the need to recognize and safeguard the selfresilience of communities and individuals and to enhance existing coping mechanisms. However,there is also a role to be played by the government (with assistance where appropriate fromexternal support partners) to ensure that individuals and communities are provided with necessary
technical and social support throughout the reconstruction phase, particularly in regards to housing
reconstruction. Any additional support will be clearly and transparently targeted for the benefit of
the most vulnerable, i.e., those who may not be able to self-recover at the same pace as the wider
community (following the “no person is left behind” principle). This is particularly important inurban and peri-urban settings, where traditional structures may not be as strong as on the outerislands.
In the more dense urban settlements, there is a particular need to identify new lands not prone tohazards that are suitable for future growth and settlement. For example, VNPF has a pilot projectthat will create 2,000 low-cost houses (at a cost of VT 750,000–1,500,000 per structure) for its
members. This scheme relies on access to 20-year money at commercial rates of around 7% anduses members’ contributions as pseudo-equity/collateral. Low-cost housing is important to Vanuatu
and these concepts should be pursued, as they result in affordable cyclone-quality buildings that are
insured through the scheme.

7.6

Proposed Public Sector Recovery Program

The rehabilitation and financing of the public sector will come from public financing with thesupport of the country’s traditional donors. At this stage it is difficult to know the amount of publicresources that will be available to the program. Funding will probably be a mix of grants, credits,and loans along with contributions from the budget. The financing strategy should be based on
the needs assessment summarized below for the proposed public sector recovery program.71 A
donors’ meeting led by the authorities will be held as soon as more details on the specific public
sector needs and geographical locations are better estimated. Table 74 provides and overview ofthe proposed recovery program for the public sector. It amounts to some VT 15.7 billion (about
US$145 million), with 37% for education, 23% for transport, 8% for health, 7% for communication,and the remainder split between other sectors. Based on the amount of resources available, theproposed program could be phased to address the most pressing priorities first, and prepared andimplemented accordingly.
71

To assess the cost of the proposed public sector recovery program, some assumptions have been made: (i) 30%
additional cost to cover the cost of restoring the investment made before Tropical Cyclone Pam to a more-resilient
condition; (ii) 10% to cover detailed design, engineering, and supervision of works; and (iii) 10% of the base costs
for implementation, coordination, and monitoring and evaluation of the proposed program.

Vanuatu | Post-Disaster Needs Assessment 121

Cost without Contingencies
VT millions

US$ millions

Cost with Contingencies(at 15%)VT millions

US$ millions

Percentage
of Total Cost
Estimate

Water, Sanitation, and Solid
Waste Management

160

1

184

2

1%

Communication

990

9

1,139

11

7%

Transport

3,200

30

3,680

34

23%

690

6

794

7

5%

Public Buildings
Health

1,120

10

1,288

12

8%

Education

5,080

47

5,842

54

37%

Culture

40

0

46

0

0%

1,130

10

1,300

12

8%

Engineering and Sector
Support
Program Management
Total

1,240

11

1,426

13

9%

13,650126

15,698145

100%

Preparation of the Proposed Program
One of the key issues to be addressed as a priority will be the identification of quasi-immediate
resources to finance the program preparation (detailed design, preparation of bidding documents,social and environmental safeguard requirements, fiduciary aspects, etc.). These could amount tosome 3–5% of the program cost before contingencies, or around VT 0.4 billion.
The institutional setup and implementation strategy should be defined at an early stage, to enableswift implementation following preparation of the recovery activities. It is important that existing
implementation capacities be taken into consideration and that a mix of skills (in particular for
procurement, financial management, and safeguard requirements) should be made available tosupport the program’s processes and procedures. A specific implementation framework will need tobe discussed with the financiers, but efficient and fast delivery on the ground remains a key priority
for the government.

Implementation Strategy
Several options for implementing public sector recovery activities would be feasible. These include
centralized implementation with a multisector approach and project management support to ensure
quick delivery, or sector-by-sector implementation, which will be slowed down by the lack of existing
capacities and by logistic difficulties. It is estimated that proposed public sector recovery activities
would be dispersed across more than 20 islands in the most affected provinces (Shefa and Tafea).
Not all recovery options present the same rationalization of risks, and as such the government will
devise a strategy that (i) allows efficient and fast delivery; (ii) prioritizes the most affected groups
and population; and (iii) ensures quality of services and integration of improved resilience to future
hazards.

Table 74. Proposed
Public Sector
Recovery ProgramPanoramic view of Efate. © Benkrut | Dreamstime.com.

Vanuatu | Post-Disaster Needs Assessment 123

Annexes124 Tropical Cyclone Pam, March 2015

Annex 1: List of Contributors
Macroeconomic Impact
Michael Busai (MFEM), Michael Hililan (RBV), Alumeci Kaltongga (RBV), Pita Toa (RBV), Henderson
Tagaro (MFEM), Victoria James (RBVRBV), Katharina Hanifnia (MFEM), James Hughes (PMO), RoanLester (PMO), David Smith (UNESCAP)

Agriculture, Livestock, Forestry and Fisheries
James Wasi (DARD), Mark Vurubaravo (DARD), Vincent Lebot (DARD), Peter Pata (DoL), Sompert Rena
(DoFishery), Robert Jimmy (SPC), Jeremie Kaltavara (DoFisheries), Graham Nimoho (DoFisheries),
Kalo Pakoa (DoFisheries), Godfrey Bome (DoForestry), Watson Lui (DoForestry), Jalesi Mateboto(SPC), Gibson Susumu (SPC), Jude Tabi (DoForestry), Viliamu Iese (University of the South Pacific),
Cornelia Wyllie (Vanuatu Direct), Carolyn Ernst (Eden), Terry Adlington (Tanna Coffee) , Jim Batty(Summit), Sandrine Wallez (ACTIV), Francois Japiot (private sector), Joost Bakkeren (EU), Christopher
Bartlett (GIZ), Emma Coll (FAO), Dominique Blariaux (FAO), Kofi Nouve (WBG), Vincent Lebot(CIRAD), Francois Japiot (CANC), Sandrine Wallez (ACTIV), Carolyn Hernz (cattle farm manager),
Cornelia Wyllie (Vanuatu Direct, True Pacific), Jim Batty (South Pacific Sandalwood Ltd.), Terry
Adlington (Tanna Coffee), Michael Louze (Vanuatu kava wholesaler), Lonny Bong (DoLivestock).

Commerce and Industry
Reuben Tafau (DoI), Karldon Sam (DoI), Joe Pakoa (DoT), Karldon Sam (Coop Dept.), Gaute Eielsen(MTTCNB/ODI), Zarak Khan (PIFC), Jack Lowane (MTTCI), Alick Berry (VCCI), Francois Kavirere(VCCI), Kalwajin Skepha (VCCI), Jimmy Andeng (IFC), John Vivian (IFC)

Tourism
Moses Tiro Bani (DoT),Tourism Dept.), Kathy Steven (Tourism Dept.), Becky Last (DoT),Tourism
Dept.), Sara King (IFC)

Private Housing
Peter Pata (DoL), Jeffrey Kaitip (PPU/DLA), Mahit Kalorai (DoL), Tom Bamforth (IFRC), Litea Buikoto(SPC), Tim Gunson (VMGD), David William Omeara (WBG), Colleen Butcher-Gollach (WBG)

HealthJameson Mokoroe (MoH), Scott Monteiro (Vanuatu Health Resource Mechanism), Fred Philemon(MoH), Gideon Mael (UNFPA), Peter Wallace (WBG)

Education
Liku Jimmy (MoET), Julia Whippy (MoET), Gordon Craig (MoET/DFAT/MFAT)Vanuatu | Post-Disaster Needs Assessment 125

CultureBrigitte Laboukly (VCC), Richard Shing (VCCe), Douglas Ngwele (Vanuatu Council of Churches),
Akatsuki Takahashi (UNESCO), Robyn Riddett (ICOMOS ICORP), Kanefusa Masuda (ICOMOS), Elise
Huffer (SPC), Christopher Ballard (ANU), Meredith Wilson (ANU), Wendy Christie (ANU)

Transport
Dick Abel Manuake (MIPU), Uravo Nafuki (MIPU), Jone Roqara (PWD), Ambatha Paraliu (PWD),James Hakwa (PWD), Junior George Shim (PWD), Betty Harry (PWD), Margaret McFarlane (PWD),
Jason Tebbutt (DFAT/PWD), Paula Baleilevika (ADB), Vic Vigneswaran (ADB), Colleen ButcherGollach (WBG)

Public Buildings
Dick Abel Manuake (MIPU), Uravo Nafuki (MIPU), Jone Roqara (PWD), Ambatha Paraliu (PWD),James Hakwa (PWD), Junior George Shim (PWD), Betty Harry (PWD), Terence Lawrence (PWD), Ian
Iercet (PWD), Margaret McFarlane (PWD), Jason Tebbutt (DFAT/PWD), Paula Baleilevika (ADB),
Colleen Butcher-Gollach (WBG)

Water
Erickson Sammy (DGMWR), Kalparam Gershom (DGMWR), Mathew Thame (UNICEF)

EnergyAntony Garae (DoE), Louis Wakanumune (UNELCO)

Communication
Fred Samuel (OGCIO), Nicola Barnes (OGCIO), Dabie Baniala (TRR), Ron Box (TRR), Rosalina Andre(TRR), Warren Robert (VBTC), Andrew Livnamel (VAL)

Environment
Trinison Tari (DEPC), Reedly Tari (DEPC), Donna Kalfatak (DEPC), Vatu Molisa (DEPC), Mark Kalotap(DEPC), Lilly Fatal (DEPC), Kate McPherson (DEPC), Rolenas Baereleo (DoFisheries), Jeremie
Kaltavara (DoFisheries), Rocky Kaku (DoFisheries), Phyllis Kamasteia (DoForestry), Godfrey Bome
(DoForestry), Watson Lui (DoForestry), Phylimon Ala (DoForestry), Presly Dovo (DoForestry), Roger
Tari (Port Vila Municipality), Mary O Reilly (Luganville Municipality/JICA), Aaron Buncle (SPREP),Paul Anderson (SPREP), Catherine Siota (SPREP), Faafetai Sagapolutele (JICA/SPREP), Frank Griffin(SPREP)

Employment, Livelihoods, and Social Protection
Lionel Nasome Kaluat (Commissioner of Labour, Ministry of Internal Affairs), Jean Luc Tawi (DoLabor),
Jean Lop (DoLabor), Steward Sine (DoLabor), Erick Sakou (DoLabor), Lerrain Loughman (DoLabor),

126 Tropical Cyclone Pam, March 2015

Julie Rereman (DoLabor), Mike Shone (ILO), Edward Bernard (ILO), Julian Schweitzer (ILO), Astrid
Boulekone (VCCI), Alick Terry (VCCI), Loreen Bani (VTU), Ephraim Kalsakau (VTU)​, Julie-Ann Sala
(VANWODS)Household and Community Livelihoods
Karen Bernard (UNDP), Matthew Hardwick (UNDP), Asmaa Shalabi (UNDP), Silke Von Brockhausen(UNDP), Osnat Lubrani (UNDP), Tim Walsh (UNDP), Maha Muna (UNFPA), Marc Antoine (UNDP), Olive
Taurakoto (volunteer), Don Bradford (volunteer), Susan Kaltovei (volunteer), Dorah Wilson (UNDP),
Janet Jack (UNDP), Karina Coates (UNOCHA), Yaron Swisa (volunteer), Pip Ross (UNWomen), Leah
Nimolo (UNDP), David Malakay (UNDP), Donald Wolouseje (UNDP)

GenderDorosday Kenneth Watson (Department of Women’s Affairs), Cecilia Aipira (UN Women)

DRM
Mosese Sikivou (SPC), Anthony Blake (SPC), Litea Buikoto (SPC), Shohei Matsuura (JICA/SPC),
Tommy Moore (SPREP), Henry Taiki (WMO), Mike Bergin (Western Australia Bureau of Meteorology),
Andrew Cassells (NSW Australia Bureau of Meteorology), Misaeli Funaki (Fiji Meteorological Weather
Forecasting Center & Regional Specialized Meteorological Center Nadi)

Mapping Support
Martin Sokomanu (DoL), Tim Gunson (VMGD), Litea Buikoto (SPC), Mereoni Ketewai (SPC), Herve
Damlamian (SPC), Amrit Raj (SPC), Karae Vurobaravu (OGCIO), Rodson Aru (DoL), Uravo Nafuki(PWD), Jason Andrews (PWD), Nathan Eaton (NGIS), Copernicus EMS Team, UNOSAT Univar Mapping
Team, Patrick Meier (WBG), Keiko Saito (WBG), Qatar Computing Research Institute, Standby Task
Force, Humanitarian OpenStreetMap, MapBox, HeliWest, XCraft

Coordination
Johnson Naviti (PMO), Nancy Wells (ADB/WBG), Ioannis-Pavlos Evangelidis (EU), David Smith(UNESCAP); Karen Bernard (UNDP), Tevi Obed (WBG), Michael Bonte-Grapentin (WBG), Simone
Esler (WBG), Samantha Cook (WBG); Keiko Kaneda (WBG), Tahir Akbar (WBG)

Vanuatu | Post-Disaster Needs Assessment 127

Annex 2: Details on Damage and Losses Summary Results
DamageLossesTotal Effects

VT(millions)

Percentage
of total

VT (millions)

Percentage
of totalVT(millions)

Percentage
of total

Productive Sectors

8,526

29

10,40354

18,92839

Agriculture

1,421

5

4,641

24

6,062

12

Commerce and Industry

1,196

4

2,152

11

3,348

7

Tourism

5,908

20

3,610

19

9,518

20

Social Sectors

14,33949630

314,969

31

9,452

32

440

2

9,893

20

Health

Housing (Private)869.7933

106.91

1

977

2

Education

3,908

13

79

0

3,987

8

Culture108.651

0

3.428

0

112

0

Infrastructure Sectors

6,403

22

2,926

15

9,329

19

Transport

3,017

10

2,137

11

5,155

11

532.359

2

12

0

544

1

Water

414

1

284

1

697

1

Energy

179.4

1

105.5

1

285

1

Communication

2,261

8

387

2

2,648

5

0

0

5328

28

5328

11

Public Buildings

Cross-Cutting Sector
Environment

0

0

5,328

28

5,328

11

Grand Total

29,268100

19,286100

48,554100

Private Sector

Public Sector

Total Damage

VT million

Percentage of
total damage

VT million

Percentage of
total damage

VT million

%

41

97

1

8,526

Agriculture

1,324

6

97

1

1,421

Commerce and Industry

1,196

6

0

0

1,196

Tourism

5,908

28

0

0

5,908

Social Sectors

9,571

46

4,768

56

14,339Housing (Private)

9,452

45

0

0

9,452

Productive Sectors

Health

10

0

860

10

870

Education

0

0

3,908

46

3,908

Culture

109

1

0

0

109

2,776

13

3,627

43

6,403

841

4

2,176

26

3,017

Infrastructure Sectors
Transport

0

0

532

6

532

Water

Public Buildings

260

1

154

2

414

Energy

179

1

0

0

179

1,496

7

765

9

2,261

0

0

0

0

0

Communication
Cross-Cutting Sector
Environment
Grand Total

0

0

0

0

0

20,776

100

8,492

100

29,268

Table A3-1.
Summary ofDamage and Lossby Sector

Table A3-2.
Summary ofDamage by Public/
Private Ownershipfor Sectors

128 Tropical Cyclone Pam, March 2015

Table A3-3.
Summary of Losses
By Public/Private
Ownership for
Sectors

Private Sector

Productive Sectors

VT million

10,086

Total Loss

VT million

Percentage
of total loss

VT million

86

317

4

10,403

Agriculture

4,324

37

317

4

4,641

Commerce and Industry

2,152

18

0

0

2,152

Tourism

3,610

31

0

0

3,610

Social Sectors

520

4

109

1

630

Housing (Private)

440

4

0

0

440

Health

1

0

106

1

107

Education

79

1

0

0

79

Culture

0

0

3

0

3

Infrastructure Sectors

1,173

10

1,753

23

2,926

Transport

596

5

1,541

21

2,137

0

0

12

0

12

Public Buildings
Water

178

2

106

1

284

Energy

106

1

0

0

106

Communication

293

2

94

1

387

0

5,328

71

5,328

0

0

5,328

71

5,328

11,778

100

7,507

100

19,286

Cross-Cutting Sector
Environment
Grand Total

Table A3-4.
Summary of Total
Effects by Public/
Private Ownershipfor Sectors

Public Sector

Percentage
of total loss

Private Sector

Public Sector

Total Effect

VT million

Percentage
of total effect

VT million

Percentage
of total effectProductive Sectors

18,514

51%

414

3%

18,928Agriculture

5,648

16%

414

3%

6,062

Commerce and Industry

3,348

9%

-

0%

3,348

Tourism

9,518

26%

-

0%

9,518

Social Sectors

13,891

38%

1,078

9%

14,969Housing (Private)

9,893

27%

-

0%

9,893

VT million

Health

11

0%

966

8%

977

Education

3,987

11%

-

0%

3,987

-

0%

112

1%

112

Infrastructure Sectors

3,944

11%

5,385

44%

9,329

Transport

1,437

4%

3,718

30%

5,155

-

0%

544

4%

544

Water

438

1%

259

2%

697

Energy

285

1%

-

0%

285

Communication

1,784

5%

864

7%

2,648

-

0%

5,328

44%

5,328

CulturePublic Buildings

Cross-Cutting Sector
Environment
Grand Total

-

0%

5,328

44%

5,328

36,349100%

12,205100%

48,554

Vanuatu | Post-Disaster Needs Assessment 129

Private Sector Damage

Productive Sectors

Total Private
Sector EffectPrivate Sector Loss

VT million

Percentage of
total private
sector damage

VT million

Percentage of
total private
sector loss

VT million

8,429

0

10,08686

18,514Agriculture

1,324

6

4,324

37

5,648

Commerce and Industry

1,196

6

2,152

18

3,348

Tourism

5,908

28

3,610

31

9,518

Social Sectors

9,571

46

520

4

10,091

Housing (Private)

9,452

45

440

4

9,893

Health

10

0

1

0

11

Education

0

0

79

1

79

Culture

109

1

0

0

109

2,776

13

1,173

10

3,949

841

4

596

5

1,437

Infrastructure Sectors
Transport
Public Buildings

0

0

0

0

0

Water

260

1

178

2

438

Energy

179

1

106

1

285

1,496

7

293

2

1,789

0

0

0

0

0

Communication
Cross-Cutting Sector
Environment
Grand Total

020,7760100

011,778Public Sector Damage

0
100

0
32,554

Total Public
Sector EffectPublic Sector Loss

VT million

Percentage of
total public
sector damage

VT million

Percentage of
total public
sector loss

Productive Sectors

97

0

317

4

414

VT million

Agriculture

97

1

317

4

414

Commerce and Industry

0

0

0

0

0

Tourism

0

0

0

0

0

4,768

56

109

1

4,878

0

0

0

0

0

Health

860

10

106

1

966

Education

3,908

46

0

0

3,908

Social Sectors
Housing (Private)

Culture

0

0

3

0

3

Infrastructure Sectors

3,627

43

1,753

23

5,380

Transport

2,176

26

1,541

21

3,718

Public Buildings

532

6

12

0

544

Water

154

2

106

1

259

EnergyCommunication
Cross-Cutting Sector
Environment
Grand Total

Table A3-5.
Summary of Total
Effects by Public
Ownership for
Sectors

0

0

0

0

0

765

9

94

1

859

0

0

5,328

71

5,328

0

0

5,328

71

5,328

8,492

100

7,507

100

15,999

Table A3-6.
Summary of Total
Effects by Public
Ownership for
Sectors

130 Tropical Cyclone Pam, March 2015

Table A3-7.
Summary of Total
Effects by Sector
for the Affected
Provinces

DamageVT million

Malampa% of total
Province

5

49

1,435

Total Effects

VT million% of total
loss% of total
Province

VT million% of total
effects

1,481

8

51

2,916

6

Penama

909

3

29

2,174

11

71

3,083

6

Shefa

20,55870

64

11,38959

36

31,947

66

Tafea

6,178

21

60

4,137

21

40

10,315

21

Sanma

0

0

0

94

0

100

94

0

187

1

94

11

0

6

199

0

29,268100

60

19,286100

40

48,554100

Geographic
location notavailable
Total

Table A3-8.
Summary Total
Effects by Sector
for Shefa Province(most affected
province)

Losses% of total
damageDisaster Effects(VT million)

Percentage share ofdamage and loss for
sector in Province

Disaster Effects
Percentage of Total

DamageLosses

Total

DamageLosses

Total

DamageLosses

7,652

6,718

14,370

26%

35%

30%

53%

47%

Agriculture

715

1,151

1,866

2%

6%

4%

38%

62%

Commerce and Industry

1,161

2,112

3,273

4%

11%

7%

35%

65%

Tourism

5,776

3,455

9,231

20%

18%

19%

63%

37%

Social Sectors

8,272

387

8,659

28%

2%

18%

96%

4%

Housing (Private)

6,558

305

6,863

22%

2%

14%

96%

4%

Health

513

60

573

2%

0%

1%

90%

10%

Education

1,092

19

1,111

4%

0%

2%

98%

2%

Culture

109

3

112

0%

0%

0%

0%

0%

Infrastructure Sectors

4,634

2,732

7,367

16%

14%

15%

63%

37%

Transport

2,507

2,137

4,644

9%

11%

10%

54%

46%

Public Buildings

228

1

228

1%

0%

0%

100%

0%

Water

210

169

379

1%

1%

1%

56%

44%

Energy

140

85

225

0%

0%

0%

62%

38%

Communication

1,549

341

1,890

5%

2%

4%

82%

18%

Cross-Cutting Sector

0 1551.68 1551.68

0%

8%

3%

0%

100%

Environment

0

1,552

1,552

0%

8%

3%

0%

100%

20,558

11,38931,947

70%

59%

66%

64%

36%

Productive Sectors

Grand Total

Vanuatu | Post-Disaster Needs Assessment 131

Disaster Effects(VT million)

Percentage share ofdamage and loss for
sector in Province

Disaster Effects
Percentage of Total

DamageLosses

Total

DamageLosses

Total

DamageLosses

Productive Sectors

623

1,091

1,714

2%

6%

4%

36%

64%

Agriculture

463

1,020

1,483

2%

5%

3%

31%

69%

Commerce and Industry

33

38

72

0%

0%

0%

46%

54%

Tourism

127

32

159

0%

0%

0%

80%

20%

Social Sectors

4,636

183

4,819

16%

1%

10%

96%

4%

Housing (Private)

2,113

100

2,213

7%

1%

5%

95%

5%

Health

214

34

248

1%

0%

1%

86%

14%

Education

2,310

48

2,358

8%

0%

5%

98%

2%

0

0

0

0%

0%

0%

0%

0%

Infrastructure Sectors

919

92

1,010

3%

0%

2%

91%

9%

Transport

273

0

273

1%

0%

1%

100%

0%

CulturePublic Buildings

117

0

118

0%

0%

0%

100%

0%

Water

79

46

125

0%

0%

0%

64%

36%

Energy

39

21

60

0%

0%

0%

66%

34%

Communication

409

26

435

1%

0%

1%

94%

6%

0

2771.52771.5

0%

14%

6%

0%

100%

Cross-Cutting Sector
Environment
Grand Total

0

2,771

2,771

0%

14%

6%

0%

100%

6,178

4,137

10,315

21%

21%

21%

60%

40%

Table A3-9.
Summary of Total
Effects by Sector
for Tafea Province(second-mostaffected Province
after Shefa)

132 Tropical Cyclone Pam, March 2015

Annex 3: Map of Vanuatu

3.2%

3.2%

2016

2.9%

2.9%

2017

GFS description

Revenue
Taxes

GrantsA13

0

A145 Capital Claims

1,613
0

Other revenue

0

A144 Voluntary transfers other than grants - current

A14

A131 Grants from foreign Governments

0Social contributions

A12
0

0

A116 Other taxes

8,871
2,580

A115 Taxes on international trade and transactions

0
548

0

0

0

1,506

0

0

0

0

2,638

10,0710360

014,574
13,069

0

0

1,638

0

0

0

0

2,717

10,5440354

015,253
13,615

2014

13,612
12,000

Budget2012

2013

Actual Preliminary

A114 Taxes on goods & services

A112 Taxes on payroll and workforce
A113 Taxes on property

A111 Taxes on income, profits, and capital gains

A1
A11

Transactions affecting net worth

GFS
code

2015

Budget

0

0

1,166

0

0

0

0

1,884

8,042

0
336

0

0

0

2,029

0

0

0

0

2,696

10,8530520

011,428 16,097
10,262 14,069

2014

Jan-Sept

Pre-Cyclone

0

0

2,029

360

360

0

0

2,696

9,903

0
520

0

15,507
13,1192015

Revisedbudgetafter Hong
Kong PR
Programmesuspension

0

0

2,147

360

0

0

0

2,852

11,4150551

016,965
14,8182016

Forecast

0

0

2,220

360

0

0

0

2,949

11,7650569

017,503
15,2832017

Forecast

202

0

2,231

360

360

0

0

2,696

9,903

0
520

0

15,70913,1192015

Budget

0

0

2,185

0

0

0

0

2,903

10,5010560

016,14913,9642016

Forecast

Post-Cyclone

Table A4-2. Statement of Government Operations using GFS01 Classification: Pre-Cyclone and Post-Cyclone Scenarios for Budget 2015

Source: RBV estimates, 2014-2017

3.1%

1.1%
1.1%

Pre Tropical Cyclone Pam

Post Tropical Cyclone Pam

3.6%

2015

2014

Table A4-1. Consumer Price Inflation forecast – Pre and Post Tropical Cyclone Pam

Annex 4: Macroeconomic Assessment

0

0

2,313

0

0

0

0

3,073

11,0210593

017,00014,6872017

Forecast

Vanuatu | Post-Disaster Needs Assessment 133

GFS description

Net acquisition of financial assets

Domestic
Foreign
Monetary gold and SDRs
Net incurrence of liabilities
Domestic
Foreign

A321
A322
A323
A33
A331
A332

Transactions in financial assets and liabilities (financing)

A32
478
0
0
1,052
1,389
-336

478

0
0
0
-574

Change in inventories
Valuables
Non-produced assets
Net lending / borrowing

A312
A313
A314
NLB

311
311

Net Acquisition of Nonfinancial Assets

2012
13,876
8,164
2,930
0
465
0
1,459
310
549
-263
-263

231
0
0
-159
306
-465

231

0
0
0
390

248

248

2013
13,936
8,183
2,981
0
555
0
1,384
248
585
638
638

Actual Preliminary

A311 Fixed assets

A31

A2
ExpenseA21 Compensation of employees
A22 Use of goods and services
A23 Consumption of fixed capital
A24 Interest
A25 Subsidies
A26 Grants
A27 Social benefits
A28 Other expense
GOB Gross operating balance
NOB Net operating balance
Transaction in nonfinancial assets

GFS
code

0
0
0
-591
0
-591

0

0
0
0
591

448

448

2014
14,214
8,303
2,990
0
597
60
1,423
210
631
1,039
1,039

Budget

-93
0
0
-269
263
-532

-93

0
0
0
177

169

169

2014
11,082
6,012
2,544
0
509
0
1,197
229
590
346
346

Jan-Sept

0
0
0
-614
163
-776

0

0
0
0
614

213

213

2015
15,271
8,488
3,555
0
684
0
1,239
467
837
826
826

Budget

Pre-Cyclone

-590
0
0
-614
163
-776

-590

0
0
0
23

213

213

2015
15,271
8,488
3,555
0
684
0
1,239
467
837
236
236

Revisedbudgetafter Hong
Kong PR
Programmesuspension

500
0
0
-537
0
-537

500

0
0
0
1,037

219

219

2016
15,709
8,743
3,662
0
684
0
1,276
481
863
1,256
1,256

Forecast

581
0
0
-537
0
-537

581

0
0
0
1,117

226

226

2017
16,160
9,005
3,772
0
684
0
1,315
495
888
1,343
1,343

Forecast-6,052
0
0
-614
163
-776

-6,052000-5,439

5,315

5,315

2015
15,833
8,632
3,663
0
684
0
1,239
519
1,096
-124
-124

Budget-8,510
0
0
-537
0
-537

-8,510000-7,974

7,033

7,033

2016
17,090
9,349
3,967
0
684
0
1,342
562
1,187
-941
-941

Forecast

Post-Cyclone-6,679
0
0
-537
0
-537

-6,679000-6,143

5,331

5,331

2017
17,812
9,760
4,142
0
684
0
1,401
586
1,239
-812
-812

Forecast

134 Tropical Cyclone Pam, March 2015

GFS description

1,187.6
0.0
0.0
0.0
430.0
1.8
14.3
296.7
296.7

Use of goods and services
Consumption of fixed capitalInterest
Subsidies
GrantsSocial benefits
Other expense
Gross operating balance
Net operating balance

A22
A23
A24
A25
A26
A27
A28
GOB
NOB

0.0
0.0
2,176.3
0.0
0.0
0.0
0.0
1,879.6
245.8

Other taxes
Social contributions
GrantsGrants from foreign Governments

A116
A12
A13
A131

1,171.3
0.0
0.0
0.0
219.6
96.4
32.1
26.5
26.5

0.0
0.0
0.0
1,773.4
254.1

0.0
0.0
1,799.9
0.0

1,799.9
0.0
0.0
0.0
0.0
0.0
0.0

2013

2012
2,176.3
0.0
0.0
0.0
0.0
0.0
0.0

Preliminary

ActualA14 Other revenue
A144 Voluntary transfers other than grants - current
A145 Capital Claims
A2
ExpenseA21 Compensation of employees

Revenue
Taxes
Taxes on income, profits, and capital gains
Taxes on payroll and workforce
Taxes on property
Taxes on goods and services
Taxes on international trade and transactions

A1
A11
A111
A112
A113
A114
A115

Transactions affecting net worth

GFS
code

1,244.1
0.0
0.0
0.0
302.3
31.7
18.3
0.0
0.0

0.0
0.0
0.0
1,827.8
231.4

0.0
0.0
1,827.8
0.0

1,827.8
0.0
0.0
0.0
0.0
0.0
0.0

2014

Budget

715.5
0.0
0.0
0.0
176.9
0.2
10.9
590.2
590.2

0.0
0.0
0.0
1,046.8
143.3

0.0
0.0
1,637.0
0.0

1,637.0
0.0
0.0
0.0
0.0
0.0
0.0

2014

Jan-Sept

2,068.0
0.0
0.0
0.0
448.9
3.4
15.5
0.0
0.0

0.0
0.0
0.0
2,891.7
355.8

0.0
0.0
2,891.7
0.0

2,891.7
0.0
0.0
0.0
0.0
0.0
0.0

2015

2,068.0
0.0
0.0
0.0
448.9
3.4
15.5
0.0
0.0

0.0
0.0
0.0
2,891.7
355.8

0.0
0.0
2,891.7
0.0

2,891.7
0.0
0.0
0.0
0.0
0.0
0.0

2015

Revisedbudget after
Hong Kong PR
Programme
Budgetsuspension

Pre-Cyclone

1,282.5
0.0
0.0
0.0
278.4
2.1
9.6
0.0
0.0

0.0
0.0
0.0
1,793.3
220.6

0.0
0.0
1,793.3
0.0

1,793.3
0.0
0.0
0.0
0.0
0.0
0.0

2016

Forecast

1,243.9
0.0
0.0
0.0
270.0
2.1
9.3
0.0
0.0

0.0
0.0
0.0
1,739.3
214.0

0.0
0.0
1,739.3
0.0

1,739.3
0.0
0.0
0.0
0.0
0.0
0.0

2017

Forecast

2,068.0
0.0
0.0
0.0
448.9
334.5
15.5
141.9
141.9

68.8
68.8
0.0
3,222.7
355.8

0.0
0.0
3,295.8404.1

3,364.6
0.0
0.0
0.0
0.0
0.0
0.0

2015

BudgetTable A4-3. Statement of Donor Operations using GFS01 Classification: Pre-Cyclone and Post-Cyclone Scenarios for Budget 2015

1,282.5
0.0
0.0
0.0
278.4
2.1
9.6
0.0
0.0

0.0
0.0
0.0
1,793.3
220.6

0.0
0.0
1,793.3
0.0

1,793.3
0.0
0.0
0.0
0.0
0.0
0.0

2016

Forecast

Post-Cyclone

1,243.9
0.0
0.0
0.0
270.0
2.1
9.3
0.0
0.0

0.0
0.0
0.0
1,739.3
214.0

0.0
0.0
1,739.3
0.0

1,739.3
0.0
0.0
0.0
0.0
0.0
0.0

2017

Forecast

Vanuatu | Post-Disaster Needs Assessment 135

GFS description

A32 Net acquisition of financial assets
A321 Domestic
A322 Foreign
A323 Monetary gold and SDRs
A33 Net incurrence of liabilities
A331 Domestic
A332 Foreign

Transactions in financial assets and liabilities (Financing)

A31 Net Acquisition of Nonfinancial Assets
A311 Fixed assets
A312 Change in inventories
A313 Valuables
A314 Non-produced assets
NLB Net lending / borrowing

Transactions in nonfinancial assets

GFS
code

-545.1(545.1)
0.0
0.0
0.0
0.0
0.0

826.8
0.0
0.0
0.0
296.7

2013

2012

-435.3-435.3
0.0
0.0
0.0
0.0
0.0

461.8
461.8
0.0
0.0
0.0
(435.3)Preliminary

Actual

0.0
0.0
0.0
0.0
506.4
0.0
506.4

506.4
506.4
0.0
0.0
0.0
(506.4)2014

Budget

2015

491.2
491.2
0.0
0.0
0.0
0.0
0.0

0.0
0.0
0.0
0.0
5,858.1
0.0
5,858.1

99.0 5,858.1
99.0 5,858.1
0.0
0.0
0.0
0.0
0.0
0.0
491.2 (5,858.1)

2014

Jan-Sept

2016

Forecast

0.0
0.0
0.0
0.0
5,858.1
0.0
5,858.1

289.4
289.4
0.0
0.0
7,234.3
0.0
7,234.3

5,858.1 6,944.9
5,858.1 6,944.9
0.0
0.0
0.0
0.0
0.0
0.0
(5,858.1) (6,944.9)

2015

Revisedbudget after
Hong Kong PR
Programme
Budgetsuspension

Pre-Cyclone

326.5
326.5
0.0
0.0
8,139.6
1.0
8,138.6

7,813.1
7,813.1
0.0
0.0
0.0(7,813.1)

2017

Forecast

2016

Forecast

0.0
0.0
0.0
0.0
5,858.1
0.0
5,858.1

289.4
289.4
0.0
0.0
7,234.3
0.0
7,234.3

6,000.0 6,944.9
6,000.0 6,944.9
0.0
0.0
0.0
0.0
0.0
0.0
(5,858.1) (6,944.9)

2015

BudgetPost-Cyclone

326.5
326.5
0.0
0.0
8,139.6
1.0
8,138.6

7,813.1
7,813.1
0.0
0.0
0.0(7,813.1)

2017

Forecast

136 Tropical Cyclone Pam, March 2015

GFS description

A1
Revenue
A11 Taxes
A111 Taxes on income, profits, and capital gains
A112 Taxes on payroll & workforce
A113 Taxes on property
A114 Taxes on goods & services
A115 Taxes on international trade & transactions
A116 Other taxes
A12 Social contributions
A13 Grants
A131 Grants from foreign Governments
A14 Other revenue
A144 Voluntary transfers other than grants - current
A145 Capital Claims
A2
ExpenseA21 Compensation of employees
A22 Use of goods and services
A23 Consumption of fixed capital
A24 Interest
A25 Subsidies
A26 Grants
A27 Social benefits
A28 Other expense
GOB Gross operating balance
NOB Net operating balance

Transactions affecting net worth

GFS
code

15,78912,000
0
0
548
8,871
2,580
0
0
2,176
0
1,613
0
0
15,755
8,410
4,117
0
465
0
1,889
312
563
33
33

2012

Actual

16,374
13,06900360
10,071
2,638
0
0
1,800
0
1,506
0
0
15,710
8,437
4,152
0
555
0
1,603
345
617
665
665

2013
17,08013,61500354
10,544
2,717
0
0
1,828
0
1,638
0
0
16,042
8,534
4,234
0
597
60
1,725
242
649
1,039
1,039

2014

Preliminary Budget

13,065
10,262
0
0
336
8,042
1,884
0
0
1,637
0
1,166
0
0
12,128
6,155
3,259
0
509
0
1,374
229
601
937
937

2014

Jan-Sept

18,98914,06900520
10,853
2,696
0
0
2,892
0
2,029
0
0
18,163
8,844
5,623
0
684
0
1,688
470
853
826
826

2015

Budget

Pre-Cyclone

18,39913,119
0
0
520
9,903
2,696
0
0
3,251
360
2,029
0
0
18,163
8,844
5,623
0
684
0
1,688
470
853
236
236

2015

Revised budget
after Hong Kong
PR Programmesuspension

18,75814,81800551
11,415
2,852
0
0
1,793
360
2,147
0
0
17,502
8,964
4,945
0
684
0
1,555
483
872
1,256
1,256

2016

Forecast

19,242
15,28300569
11,765
2,949
0
0
1,739
360
2,220
0
0
17,899
9,219
5,016
0
684
0
1,585
497
898
1,343
1,343

2017

Forecast

Table A4-4. Consolidated Operations using GFS01 Classification: Pre-Cyclone and Post-Cyclone Scenarios for Budget 2015

19,074
13,119
0
0
520
9,903
2,696
0
0
3,655
764
2,300
69
202
19,056
8,988
5,731
0
684
0
1,688
853
1,111
18
18

2015

Budget17,943
13,96400560
10,501
2,903
0
0
1,793
0
2,185
0
0
18,883
9,569
5,250
0
684
0
1,620
564
1,196
(941)
(941)

2016

Forecast

Post-Cyclone

18,73914,68700593
11,021
3,073
0
0
1,739
0
2,313
0
0
19,551
9,974
5,386
0
684
0
1,671
588
1,248
(812)
(812)

2017

Forecast

Vanuatu | Post-Disaster Needs Assessment 137

GFS description

Net Acquisition of Nonfinancial Assets
Fixed assets
Change in inventories
Valuables
Non-produced assets
Net lending / borrowing

A32
A321
A322
A323
A33
A331
A332

Net acquisition of financial assets
Domestic
Foreign
Monetary gold and SDRs
Net incurrence of liabilities
Domestic
ForeignTransactions in financial assets and liabilities (financing)

A31
A311
A312
A313
A314
NLB

Transactions in nonfinancial assets

GFS
code

(67)
(67)
0
0
1,052
1,389
(336)

311
1,137
0
0
0
(277)

2012

Actual

(204)
(204)
0
0
(159)
306
(465)

710
710
0
0
0
(45)

2013

(0)
(0)
0
0
(85)
0
(85)

954
954
0
0
0
85

2014

Preliminary Budget

399
399
0
0
(269)
263
(532)

268
268
0
0
0
668

2014

Jan-Sept

0
0
0
0
5,245
163
5,082

6,071
6,071
0
0
0
(5,245)2015

Budget

Pre-Cyclone

(590)
(590)
0
0
5,245
163
5,082

6,071
6,071
0
0
0
(5,835)

2015

Revised budget
after Hong Kong
PR Programmesuspension

790
790
0
0
6,698
0
6,698

7,164
7,164
0
0
0
(5,908)2016

Forecast

907
907
0
0
7,603
1
7,602

8,039
8,039
0
0
0
(6,696)2017

Forecast(6,052)(6,052)
0
0
5,245
163
5,082

11,315
11,315000(11,297)2015

Budget(8,221)(8,221)
0
0
6,698
0
6,698

13,978
13,978000(14,919)2016

Forecast

Post-Cyclone(6,353)(6,353)
0
0
7,603
1
7,602

13,144
13,14400
0(13,956)2017

Forecast

138 Tropical Cyclone Pam, March 2015

Vanuatu | Post-Disaster Needs Assessment 139

20,000Figure A4-1. Pre
Tropical Cyclone
Pam Government
Revenue,
Expenditure andFiscal Balance

Million VT

15,00010,000n Total revenue
and grants

5,000

n Total expenditure0n Fiscal balance
2011

2012

2013

2014

2015

2016

2017

Calendar year

Source: Treasury.

Estimate

Forecast

2,012

2013 (p)2014 (p)

2015

2016

2017

Agriculture, fishing and forestry

12,386

12,97813,492

14,011

14,333

14,696

A1

Crop production

9,390

9,715

10,007

10,375

10,53910,737

A2

Animal production

1,695

1,886

2,027

2,117

2,212

2,312

A4

Forestry

809

866

928

967

1,008

1,051

A5

Fishing

492

511

530

551

573

596

4,064

4,461

4,617

5,276

6,181

7,358

IndustryB

Mining and quarrying

19

16

46

75

121

196

C

Manufacturing

1,751

1,642

1,714

1,748

1,792

1,845

D

Electricity and water supply

1,222

1,245

1,270

1,353

1,440

1,534

F

Construction

1,073

1,559

1,587

2,101

2,827

3,783

38,76138,80539,592

41,27542,97744,277

820

828

820

848

877

907

Services
G1

Wholesale and retail trade andrepair of motor vehicles

G2

Other wholesale trade

2,371

2,254

2,277

2,309

2,341

2,374

G3

Retail trade

7,050

7,081

7,251

7,664

7,909

8,083

H

Transport

4,475

3,463

3,546

3,693

3,894

4,011

IJ

Accommodation and food services

2,973

3,084

3,100

3,277

3,523

3,636

J

Information and communication

3,101

3,359

3,633

3,941

4,135

4,268

K

Finance and insurance

3,954

4,273

4,191

4,377

4,593

4,824

L

Real estate

4,653

4,739

4,845

5,147

5,488

5,772

M,N

Professional, scientific, technicaland administrative services

1,520

1,506

1,529

1,576

1,636

1,685

O

Public administration

6,764

7,199

7,350

7,357

7,456

7,556

P,Q,R,S,T

Education, health, recreation andother services

1,080

1,019

1,051

1,087

1,124

1,162

6,114

6,292

6,436

6,604

6,868

7,129

(2,468)(2,517)(2,718)(2,936)( 3,102)(3,242)58,85760,01961,41964,23067,25770,218

1.8%

2.0%

2.3%

4.6%

4.7%

4.4%

Plus taxes, less subsidies on production
Less imputed bank service charge
Gross Domestic Product

Table A4-5.
Constant Price
GDP by Industry(VT millions, 2006
Base Year)

140 Tropical Cyclone Pam, March 2015

Table A4-6. Revised
post Tropical
Cyclone Pam
Constant Price GDP
by Industry (VTmillions, 2006 BaseYear)

Estimate

2,014

2,015

2,016

2,017

Agriculture, fishing and forestry

13,492

13,632

13,976

14,362

A1

Crop production

10,007

10,027

10,212

10,431

A2

Animal production

2,027

2,104

2,199

2,300

A4

Forestry

928

958

999

1,042

A5

FishingIndustry

530

544

566

589

4,617

5,700

7,199

8,084

46

130

190

244

B

Mining and quarrying

C

Manufacturing

1,714

1,462

1,812

1,859

D

Electricity and water supply

1,270

1,275

1,440

1,534

F

Construction

1,587

2,833

3,757

4,447

39,59239,26043,71644,815G1Services
Wholesale and retail trade andrepair of motor vehicles

820

851

891

917

G2

Other wholesale trade

2,277

2,307

2,341

2,374

G3

Retail trade

7,251

7,616

7,982

8,136

H

Transport

3,546

3,377

4,382

4,369

IJ

Accommodation and foodservices

3,100

2,401

3,598

3,691

J

Information and communication

3,633

3,717

4,135

4,268

K

Finance and insurance

4,191

4,319

4,578

4,808

L

Real estate

4,845

5,000

5,494

5,777

M,N

Professional, scientific, technicaland administrative services

1,529

1,286

1,660

1,702

O

Public administration

7,350

7,357

7,456

7,556

P,Q,R,S,T

Education, health, recreation andother services

1,051

1,029

1,197

1,217

Plus taxes, less subsidies on production

6,436

6,604

6,868

7,129

Less imputed bank service charge

2,718

2,936

3,102

3,242

61,41962,25968,656

71,149

1.4%

10.3%

3.6%

Gross Domestic Product1,250

91.6
94.6

Average Vatu/USD

1,158

2,129

-184

Average Vatu/AUD

Exchange rate

Reserve assets% of GDP

Public external debt

Capital Account

Secondary Income DR

2

1,294

Secondary Income CR

Grants% of GDP

-5,804

Primary Income DR

3

1,652

RSE

% of GDP

3,711-12,357

Primary Income CR

Services DR

34

19,924

Tourism earnings% of GDP

25,302-40-23,290

Services CR%of GDPGoods dr. (Imports)

10

6,011

Goods CR (exports)% of GDP

5,318

Current Account

2011

16

92.64

95.36
90.5

95.4

932

17
504

9,830

1,986

-420

2

1,189

2,373

-3,544

3

1,870

3,101

-14,09345

27,20733,399-42-25,481

6

3,653

1,013

2013

10,126

2,096

-261

3

1,798

1,855

-7,780

3

1,746

3,368

-13,51438

22,347

27,942-40-23,453

9

5,071

6,773

2012

97.07

87.58

1,220

21

12,646

3,083

-548

3

1,751

3,624

-3,434

3

2,037

3,457

-13,757

41

24,97932,396-44-26,735

10

6,160

1,163

2014

Table A4-7. Pre and Post Tropical Cyclone Pam Balance of Payments (VT millions)

-385

26

17,001

3,500

-500

2

1,500

4,000

-3,500

3

2,150

3,700

-1,40040

25,50034,000-47-30,000

8

5,000-1,300

2015

-800

33

22,132

3,000

-500

2

1,400

4,300

-3,500

3

2,300

3,700

-1,40040

27,00036,000-48-32,000

7

4,600-1,400

2016

7

5,000

-500

2017

-350

35

24,261

2,500

-500

2

1,400

3,800

-3,500

4

2,500

3,700

-1,40038

26,50039,000-48-34,000

Pre-Tropical Cyclone Pam

1,800

3,000

-500

5,000

10,000-3,000

2,150

3,800

-1,50023,00031,000-33,000400-2,7002015-2,300

3,000

-500

35,0008,000-3,200

2,300

3,900

-1,40026,00032,000-35,000

4,200-4,6002016

Post-Tropical Cyclone Pam

-550

3,000

-500

3,000

5,000

-3,400

2,500

4,000

-1,40027,00034,000-36,000

4,300-6,6002017

Vanuatu | Post-Disaster Needs Assessment 141

142 Tropical Cyclone Pam, March 2015

Annex 5: Disaster Risk Management in Vanuatu
Key Issues and Challenges
The experience with Tropical Cyclone Pam highlighted key issues and challenges to effective
disaster risk management (DRM) and use of the Multi-hazards Early Warning System (MHEWS).
They are as follows:

National Multi-hazards Early Warning System
1.

2.
3.
4.
5.
6.

7.

8.

9.

Vanuatu Tropical Cyclone Warning Centre (VTCWC) Internal Instruction 2014–2015 Season
outlines the criteria for when information, advisories, and warnings are issued for atropical depression or a tropical cyclone. However, some communities or individuals raised
concern that before the Vanuatu Meteorology and Geo-Hazards Department (VMGD) had
issued information on Tropical Cyclone Pam, they were already receiving or accessing suchinformation from other sources.
It was noted that DRM and the MHEWS, including the VTCWC, are generally not set up to
deal with vulnerable members of society, especially those with disability.
Several weather observation stations (including communication capacities) have been
severely damaged or destroyed.
The upper-air weather observation station and equipment at the Bauerfield Airport aredamaged.
The damaged upper-air weather station building has exposed historical climate paper
records to deterioration.
The rain gauge network, which is part of the national MHEWS and critical for climate andflood warning services, has also been severely impacted; over 170 manual and 12 automaticrain gauges, plus six agro-meteorological stations, need to be replaced.
The geohazards network, which is also part of the national MHEWS, sustained significant
damage, and essential monitoring stations and communications networks will have to be
replaced to ensure effective volcanic and seismic monitoring can be sustained.
The VMGD weather forecasting processing system, which is also used to generate
information, advisories, and warnings on tropical cyclones, was not completely operational
during Tropical Cyclone Pam.
The main VMGD building needs significant repairs and the forecasting office area requires
installation of cyclone shutters.

Assessments
1.

In terms of initial assessments, it was apparent that language barriers and the sensitivityof some of the questions (e.g., related to issues of protection of women and children)
prolonged survey interviews, as more time was required to fully explain the intent of suchquestions. In turn, the need for such explanations created additional challenges, given thatenumerators were not fully conversant with the assessment rationale. Some considerationneeds to be given to addressing these issues in responses to future events.
2. The use of a variety of assessment templates by teams—rather than those developed by the
National Disaster Management Office (NDMO) in consultation with stakeholders prior to theevent—created confusion in communities affected by Tropical Cyclone Pam.

Vanuatu | Post-Disaster Needs Assessment 143

Communications and Information Management
1.

Communication remains a challenge. Communication from the national level to theprovincial and community levels was problematic in the immediate post-impact period.
2. The flow of information between clusters and the central coordination apparatus and thecommunity needs to be improved.

Governance1.

It was noted that the NDMO staff were unable to perform effectively in their assigned
roles. This was due in part to the massive influx of external humanitarian personnel in
the National Emergency Operations Centre (NEOC). A further part of the challenge is thatthe current established national operational system is not consistent with developmentsthat have taken place—e.g., the cluster system and the need to strengthen interoperability
between key response agencies. Given that the NDA is not reflective of the developments in
DRM since 2000, a comprehensive review of the national arrangements is required, and a
new system should be introduced.

Operational Effectiveness1.

The introduction of an additional mechanism (central agency unit) to manage the response
to Tropical Cyclone Pam required an adjustment in the established system, so that reporting/accountability lines needed clarification.
2. Heavy reliance on external assistance raises questions about the capability of national
agency resources and suggests a need for more innovative approaches to preparedness
and response.
3. There was apparent duplication of roles in some areas. For example, while a Logistics
Cluster is in existence, the NEOC also provides for a logistics role (among others). Clarity
needs to be provided in terms of the scope of responsibility of each.
4. There is a lack of understanding of operational protocols. Standard operating procedures(SOP) should be documented, and the relevant personnel need to be trained in them.
5. There is no monitoring and evaluation system to enable the NDMO to provide feedback to
the government on the effectiveness of operations.
6. The timely movement of relief supplies was hindered by logistics that were at times
uncoordinated. There were limited resources available to move supplies around where andwhen they were needed. This was a challenge particularly at some provincial locations.
7. In terms of assisting communities with early recovery, the process of distributing seedlings
needs to be improved, including the formula for calculating distribution to households,
which was not defined.
8. The lack of appropriate safety gear and equipment put those involved in assessments andrelief distribution at risk of injury.
9. The cluster system needs to take into account the needs of the most vulnerable, both interms of the focus of the work and (wherever possible) the representation. It was notedthat the Protection Cluster did not have representation from the group(s) representing thedisabled.
10. Government and other organizations do not have business continuity plans to enable themto function effectively in the immediate post-disaster period.
11. There was limited operational coordination and tasking between the NEOC and the Police
Joint Planning Operational Centre.
12. The NDMO was storing and distributing relief items, but should not have needed to do so;there is a need for a single logistics setup.

144 Tropical Cyclone Pam, March 2015

13. There is a need to improve messaging to the public to provide clarity about the purposeof relief items. For example, the initial 15-day food ration distribution was intended tosupplement and not replace local food sources.

Lack of Public Experience with Category 5 Cyclones
1.

Although preparedness is an ongoing activity supported by the NDMO, VMGD, and otherorganizations, the majority of the population had not experienced a large cyclone and so
could not fully anticipate potential impact. The last major cyclones of widespread impact
were Tropical Cyclones Eric and Nigel in 1985, which were assessed to have impacted
117,500 people at that time (P. Dalo 2015), and Tropical Cyclone Uma in 1987. Basedon statistics provided by the Vanuatu National Statistics Office (VNSO), of the overall
population of approximately 270,000 (as of March 2015), only 23% (adults over 30) would
have some recollection of the impact of Tropical Cyclones Eric and Nigel.

Human Resources Development
1.

There is a need for more training and awareness across the government’s agencies and thewider system(s) of disaster/emergency response. This would facilitate greater understandingof the roles and responsibilities of structures and key personnel, thus supporting a morestreamlined and coordinated approach in the future.
2. Training of the NDMO staff, personnel of other agencies, and other stakeholders needs tofocus on developing competencies in the various preparedness and emergency responseroles. Generalist training in DRM is inadequate to properly prepare individuals for the roles
they are expected to perform.

Traditional Coping Capacity
There is a concern that the availability of food relief following events may create a senseof dependency and thus less reliance on traditional food preservation, which can sustain
especially rural communities following cyclones.

Building CodeThe resilience of buildings and infrastructure to withstand Category 5 winds requires amore serious consideration of the development, implementation, and enforcement of anational building code.

Emergency Shelter
There are no purpose-built emergency shelters, so the public takes shelter in publicbuildings such as schools and community halls. Given resource constraints, attempts must
be made at minimum to retrofit designated shelters to cyclone-proof standard.

Recommendations
Taking into consideration the practices that worked well during the response to Tropical
Cyclone Pam and the key issues and challenges that arose, a series of recommendations has
been developed. The recommendations are for three different time frames:■■

Short term: To be implemented within 6 to 12 months■■

Medium term: To be implemented within one to two years■■

Long term: To be implemented within two to five years

Vanuatu | Post-Disaster Needs Assessment 145

The recommendations are categorized under a series of strategic themes as follows:
1. Multi-hazards Early Warning System
2. Assessments
3. Communication and information management
4. Governance
5. Operational effectiveness6. Lack of public experience with Category 5 cyclone
7. Human resources development
8. Traditional coping capacity
9. Building codes
10. Emergency shelters

Multi-hazards Early Warning System
Short Terma.

VMGD and NDMO should work with relevant stakeholders, including the media, to review
the VTCWC Directive and Internal Instruction for each cyclone season, in particular thecriteria for when information, advisories, and warnings are issued for a tropical depression
or a tropical cyclone, to ensure effective communication to the communities.
b. VGMD and NDMO should work with the relevant stakeholders to address the fact that DRM
and the national MHEWS are generally not set up to deal with vulnerable members ofsociety, especially those with disability.
c. There are seven synoptic stations throughout Vanuatu that play an important role in thenational MHEWS. Two of these stations will be upgraded to automatic observations stations
within the next three months. The remainder ought to be replaced with similar capability
to provide a modern and comprehensive surface observation network. In particular thiswill ensure security and continuity of observations while keeping staff safe during severe
weather events.
d. The upper-air weather observation station at the Bauerfield Airport needs to be repaired
and upgraded to withstand future severe cyclonic impact.
e. Communications from the outer stations needs to be replaced and upgraded, and backup
communications need to be put in place.
f. Manual and automatic rain gauges and agro-meteorological stations are severely damaged
and need to be replaced.
g. There is a need to restore and replace the geohazards network, including monitoring stations
and communications networks, to ensure effective volcanic and seismic monitoring is sustained.
h. The main VMGD building needs significant repairs and the forecasting office area requires
installation of cyclone shutters.
i. The national MHEWS experiences and lessons learned should be documented.
j. Historical climate paper records stored at the upper-air weather station building at the
Bauerfield Airport should be salvaged and digitized.

Medium Terma. Repair VMGD headquarters building and install cyclone shutters.
b. Review the VTCWC Tropical Cyclone Information, Advisories and Warnings Summary ofProcedures and Internal Instruction, through stakeholders consultation process.
c. Conduct a post–Tropical Cyclone Pam assessment of impacted island communities.

146 Tropical Cyclone Pam, March 2015

d. Review the national MHEWS lessons learned and implement necessary changes.
e. Install forecasting/visualization software and hardware such as SmartMet, a tool that collates,
views, analyzes, and interprets weather data and also composes, edits, disseminates, andarchives weather forecasts in graphical and text formats.

Long Terma.

Review MHEWS lessons learned in a regional context; evaluate strength, weaknesses,
opportunities, threats (SWOT analysis) regionally.
b. Introduce impacts and risks-based tropical cyclone information, advisories, and warnings.

Assessments
Short Terma.

Improve the NDMO national assessment form template to address potentially sensitive
questions for some community members.
b. Strengthen the assessment process to more comprehensively cover immediate relief needs
at the community level, especially to include the needs of the most vulnerable groups, suchas women, children, the elderly, and the disabled.
c. Streamline the flow of assessment data to enable thorough analysis and timely decision
making for response and early recovery.
d. Strengthen the information management system to allow for standardized compilation ofsurvey data and a faster turnaround time of information compiled during assessments.

Medium Terma.

Strengthen the conduct of initial damage assessments and follow-up comprehensive damage
and loss assessments by using relevant methodologies in partnership with stakeholders.

Communication and Information Management
Short Terma.

Develop a functional inventory of communication infrastructure and a directory ofcommunication services/channels that can be used during emergencies.
b. Review the information management setup in the NEOC, including the use of information
technology.

Medium Terma. Develop and resource a maintenance plan for communications infrastructure.
b. Develop a centralized information system, building on existing databases (such as thosemaintained by the VNSO) and others (like the Pacific Risk Information System maintainedby the Secretariat of the Pacific Community), to capture all relevant data and information forsupport of post-disaster assessment and subsequent relief and early and long-term recovery.
Such data should include sex disaggregation and identify those living with disability.
c. Clearly establish communication protocols and ensure personnel of the relevant
agencies and organizations at national and provincial levels are fully trained to manage
communications in the period before and after disaster events.
d. Establish an improved layout for the NEOC to allow for the use of a standardized incident
management system, which can then be mirrored at subnational levels as appropriate.

Vanuatu | Post-Disaster Needs Assessment 147

Governance
Short Terma. Undertake a comprehensive review of the national arrangements of the NEOC.
b. Develop SOP for the NEOC and its coordination with other national agencies.

Medium Terma.

Undertake a comprehensive review of the current DRM arrangements to achieve thefollowing:i.
Streamline and strengthen links and operational relationships between the national
mechanisms, for example the NDC, NDMO, national Cluster system, National
Advisory Board for Climate Change & DRM (NAB), and regional/international
humanitarian and development community.
ii.
Develop and strengthen the alignment and relationships between key emergency
service organizations such as the NDMO and Fire Services currently under the
Vanuatu Mobile Force.
iii.
Strengthen relationships between the government and the regional andinternational humanitarian community through the NDMO, VHT, and establishedclusters and ensure clarity in the roles of each stakeholder group.
iv.
Strengthen information management between all parts of the emergency
management apparatus.
v.
Institute the formal establishment of a national emergency services volunteer
scheme that will augment capacities at national and provincial levels for disaster
preparedness and response.
b. Develop new legislation to support a more relevant and flexible system of DRM arrangements.

Operational EffectivenessShort Terma. Develop innovative approaches to preparedness and response to disaster.
b. Develop clear Terms of Reference and scope of responsibilities for the Logistics Cluster andthe NEOC in relation to logistics; develop a single national logistics setup.
c. Develop and improve understanding of operational protocols such as SOP.
d. Develop a monitoring and evaluation system to enable the NDMO to provide feedback to
the government on the effectiveness of operations.
e. Develop SOP for movement of relief supplies.
f. Review processes and roles for monitoring relief distribution at national and provincial
levels.
g. Develop methodologies for distributing seedlings to households.
h. Provide appropriate safety gear and equipment for all who are involved in assessments andrelief distribution.
i. Government and other national organizations should develop business continuity plans toenable them to function effectively in the immediate post-disaster period.
j. Develop and implement a coordination mechanism between the NEOC and the Police Joint
Planning Operational Centre.

148 Tropical Cyclone Pam, March 2015

k. Undertake a comprehensive review of the national arrangements of the NEOC.
l. Develop SOP for the NEOC and its coordination with other national agencies.
m. Review current SOP to improve interoperability among clusters based on experiences andlessons learned.
n. Review the NDMO and NEOC layout with a view to providing ample space for NEOC
operational functions, cluster liaison, and cluster teams.
o. Review and update NDMO SOP.
p. Update SOP for collaboration between the NDMO and the PJPOC .

Human Resources Development
Short Terma.

Undertake a comprehensive “lessons learned” exercise within one month of major
events and ensure that any resulting recommendations approved by the government are
implemented.
b. Strengthen the involvement of traditional chiefs in the disaster preparedness and response
activities.
c. Ensure gender balance and inclusion of people with disabilities in training and membershipof committees.
d. Improve agency understanding of roles and responsibilities for preparedness, response,and early recovery phases of a disaster.
e. Train the VMGD staff to assist the NDMO and NEOC during emergencies.
f. Retrain NDMO and VMGD staff in the management of the NEOC.
g. Conduct regular training between the NEOC and the JPPOC staff.
h. Develop and implement the training of personnel from NDMO and related agencies in
specialist NEOC roles such as logistics, planning, and communications.

Medium Terma.

Introduce a competency-based system of training in order to strengthen the performance ofindividuals in designated roles at the national and provincial levels.
b. Strengthen community participation in all facets of DRM and provide greater and moremeaningful recognition of the contribution of the most vulnerable groups, including women,children, the elderly, and people with disability.

Long Terma. Develop, implement, and enforce a national building code.
b. Strengthen police capability in maritime search and rescue.

Traditional Coping Capacitya.

Increase the awareness and practice of traditional coping mechanisms to help build
community resilience and lessen dependency on organized food relief following disasters.

Vanuatu | Post-Disaster Needs Assessment 149

Implementation
In order to ensure the implementation of the above recommendations (subject to the approval of
the government), the following outlines an approach for an integrated program of capacity building.
1. Form a steering group to guide the implementation program. Such a group should be a
subcommittee of the NAB. This will help to ensure the consistency and complementarity ofplanned activities with existing DRM and EWS initiatives currently under way.
2. Develop a communications strategy (or public relations strategy) to clearly indicate to
the public and wider stakeholder community the government’s intentions to bring about
improvements in the overall system of DRM and EWS in the wake of Tropical Cyclone Pam.
Such a strategy should ensure ongoing publicity in relation to the various institutional
strengthening and capacity-building interventions and facilitate feedback in order tostrengthen ownership of the impending changes among the members of the community.
3. Develop an implementation plan and a monitoring and evaluation framework.
Under the guidance of the steering group, a core team of relevant government officials
and representatives of selected partner organizations should develop a detailed
plan to implement approved recommendations. Part of the process of developing theimplementation plan will involve mapping of proposed interventions against existing/funded initiatives. This will provide the government with a realistic indication of the costs
related to the capacity building exercise. Linked to the implementation plan, a monitoringand evaluation framework should be set in place for a capacity-building program. Ideallythis will use the system already established by the government through the NAB.
4. Establish a donor/partner liaison to galvanize support for implementation. Preliminary
indications are positive of partner interest and support on this front. For example, theEDF10 ACP-EU project “Building Safety & Resilience in the Pacific” is managed by the
Secretariat of the Pacific Community and the Pacific Risk Resilience Programme supportedby the UNDP, which are keen to explore opportunities to facilitate their support.

Vanuatu | Post-Disaster Needs Assessment 151

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B

etween March 12 and 14, 2015, Tropical Cyclone Pam struck Vanuatu as an extremely destructive
Category 5 cyclone, with estimated wind speeds of 250 km/h and wind gusts that peaked ataround 320 km/h. An estimated 65,000 people were displaced from their homes. Approximately
17,000 buildings were damaged or destroyed, including houses, schools and medical facilities. Crops
were destroyed on a large scale and the livelihoods of at least 80% of Vanuatu’s rural population werecompromised. The Government of Vanuatu conducted this Post-Disaster Needs Assessment in order toassess the impact of Tropical Cyclone Pam on key sectors, gain a full understanding of the scale of theeconomic impact, and assist in mobilizing the resources needed for recovery and reconstruction.

Government of Vanuatu
Vanuatu Prime Minister’s Office
PMB 9053, Port Vila, Vanuatu

1818 H Street, N.W.
Washington, D.C. 20433
www.worldbank.org