S A M OA CO U N T RY ST U DY i Economics of Adaptation to Climate Change SAMOA
ii E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G EEACC Publications and Reports1. Economics of Adaptation to Climate Change: Synthesis Report2. Economics of Adaptation to Climate Change: Social Synthesis Report3. The Cost to Developing Countries of Adapting to Climate Change: New Methods and EstimatesCountry Case Studies:1. Bangladesh: Economics of Adaptation to Climate Change2. Bolivia: Adaptation to Climate Change: Vulnerability Assessment and Economic Aspects3. Ethiopia : Economics of Adaptation to Climate Change4. Ghana: Economics of Adaptation to Climate Change5. Mozambique: Economics of Adaptation to Climate Change6. Samoa: Economics of Adaptation to Climate Change7. Vietnam: Economics of Adaptation to Climate ChangeDiscussion Papers:1. Economics of Adaptation to Extreme Weather Events in Developing Countries2. The Costs of Adapting to Climate Change for Infrastructure3. Adaptation of Forests to Climate Change4. Costs of Agriculture Adaptation to Climate Change5. Cost of Adapting Fisheries to Climate Change6. Costs of Adaptation Related to Industrial and Municipal Water Supply and Riverine Flood Protection7. Economics of Adaptation to Climate Change-Ecosystem Services8. Modeling the Impact of Climate Change on Global Hydrology and Water Availability9. Climate Change Scenarios and Climate Data10. Economics of Coastal Zone Adaptation to Climate Change11. Costs of Adapting to Climate Change for Human Health in Developing Countries12. Social Dimensions of Adaptation to Climate Change in Bangladesh13. Social Dimensions of Adaptation to Climate Change in Bolivia14. Social Dimensions of Adaptation to Climate Change in Ethiopia15. Social Dimensions of Adaptation to Climate Change in Ghana16. Social Dimensions of Adaptation to Climate Change in Mozambique17. Social Dimensions of Adaptation to Climate Change in Vietnam18. Participatory Scenario Development Approaches for Identifying Pro-Poor Adaptation Options19. Participatory Scenario Development Approaches for Pro-Poor Adaptation: Capacity Development Manual
S A M OA CO U N T RY ST U DY iEconomics of Adaptationto Climate ChangeSAMOA Ministry of Foreign Affairs Government of the Netherlands
S A M OA CO U N T RY ST U DY iiiContentsAcronyms viiAcknowledgments ix1 Overview 12 Vulnerability To Climate Change 5Background 5Projections of Climate Change—Global Scenarios 8Sea Level Rise 93 Impacts Of Climate Change And Natural Hazards 11Historical Experience 11Modeling the Frequency of Extreme Events 12Economic Damage Caused by Natural Disasters 13Estimating the Costs of Adapting to Climate Change 14The Potential Impact of Climate Change on the Agricultural Sector 16Model of Climate-Economy Interactions 174 Adaptation Plans And Costs 19Strategy for the Development of Samoa (SDS) (2008–12) 19National Adaptation Programme of Action (NAPA) (2005) 20Coastal Infrastructure Management (CIM) Strategy and Plans 22Evidence of Prioritization and Sequencing—Donor Influence 23Adaptation and Design Standards for Infrastructure 24Coastal Protection 27NAPA Adaptation Options 28Agriculture 32Adaptation Costs and Benefits 32
iv E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G E5 Institutional and Social Analysis 39Incorporation of Existing Data on Potential Risks and Hazards 39Consistency Across and Within Sector Plans 40Local Perspectives 40Implementation: How Is It Working in Practice? 416 Lessons and Future Work 437 References 44Annex 1. Storm Return Periods and Economic Damages 47Annex 2. El Niño Events and Agricultural Production 49
S A M OA CO U N T RY ST U DY vTables1. Projected Changes in Climate Variables by GCM and Region 82. Economic Damage Caused by Recent Natural Disasters in Samoa 143. Losses Due to Climate Change Without Adaptation 174. Adaptation Costs by Infrastructure Category for 10 Year Standard 265. Adaptation Costs as Percent of Baseline Expenditures 276. Adaptation Costs by Infrastructure Category for 50 Year Standard 287. Costs of Coastal Protection and Residual Damage from DIVA Model 298. Priority Adaptation Activities Based on the NAPA 309. Potential Adaptation Options for NAPA And CIM Plans 3110. Dates for Implementation of NAPA Adaptation Measures by Region 3211. The Impact of Climate Change with and without Adaptation 3412. Total Cost of Adaptation for 10 Year Design Standards by Scenario and Decade 3413. Total Cost of Adaptation for 50 Year Design Standards by Scenario and Decade 34Figures1. Main Islands in Samoa 52. Thirty-Year Climate Averages for Rainfall and Wind Distribution 63. Monthly Temperatures in Apia 1993-2008 74. Regions of Samoa Used in the Climate-Economy Model 75. Illustration of Cyclone Return Periods by Peak Wind Speed 136. Links Between the NAPA and the SDS with Reporting Relationships 217. Approval Process for Adaptation Projects 22
vi E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G E
S A M OA CO U N T RY ST U DY viiAcronymsADB Asian Development BankCIM Coastal infrastructure managementCSIRO Commonwealth Scientific and Industrial Research OrganisationDIVA Dynamic and interactive vulnerability assessmentENSO El Niño southern oscillationGCM General circulation modelIFPRI International Food Policy Research InstituteMNRE Ministry of Natural Resources, Environment, and MeteorologyMWCSD Ministry of Women, Community and Social DevelopmentNAPA National Adaptation Program of ActionNCAR National Center for Atmospheric ResearchNCCCT National Climate Change Country TeamNOAA National Oceanic and Atmospheric AdministrationSDS Strategy for the Development of SamoaSLR Sea level riseSPSLCMP South Pacific Sea Level and Climate Monitoring ProjectSRES Special Report on Emissions ScenariosNote: Unless otherwise noted, all dollars are U.S. dollars.
viii E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G E
S A M OA CO U N T RY ST U DY ixAcknowledgmentsThe EACC study was conducted by a partnership coordinated production, and Hugo Mansilla pro-consisting of the World Bank (leading its techni- vided editorial and production support.cal aspects); the governments of The Netherlands,The United Kingdom, and Switzerland (funding The study team would like to thank the part-the study); and the participating case study coun- nership, which initiated, funded and activelytries. The EACC study includes a global study and engaged with the study team through its mul-seven country studies including the Samoa study. tiyear journey. The team is also grateful for the active engagement throughout the study of theThe Samoa Country Study was coordinated by government of Samoa, in particular the Min-Laurent Cretegny, Sergio Margulis, and Kiran istry of Natural Resource, Environment, andPandey. This report was written by Gordon Hughes Meteorology, Ministry of Finance, Ministry ofwith contributions and other material provided by Agriculture and Fisheries, Ministry of Women,Laurent Cretegny, Simon Bannock, Michele Daly, Community and Social Development, MinistryErwin Kalvelagen, Peter King, Thakoor Persaud, of Works, Infrastructure and Transport, SamoaIsikuki Punivalu, Graeme Roberts,and Fernanda Water Authority, Samoa Bureau of Statistics,Zermoglio (consultants). The peer reviewers were Samoa Tourism Authority, and the Land Trans-Jan Bojo, Kirk Hamilton, Ian Noble, and Michael port Authority. We would also like to thank Rob-Jacobsen. Robert Livernash provided editorial ser- ert Livernash for editorial services and Hugovices, Jim Cantrell contributed editorial input and Mansilla for production support.
x O NE E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G E
S A M OA CO U N T RY ST U DY 1OverviewOver the last two decades Samoa has suffered with the greater wind stresses and more intensemajor damage from two cyclones in 1990–91, precipitation associated with worse storms.minor damage from a third cyclone in 2004,and an earthquake tsunami in 2009. Changes The impact of climate change on agriculture isin the scale and impact of these types of nat- uncertain. Historical data show that variations inural disasters are likely to be important con- ENSO indices are correlated with variations insequences of climate change for the country precipitation in the following months. There isbecause the increases in sea level and in aver- also a weaker correlation between El Nino eventsage sea surface temperatures will increase the and declines in production of taro (the staple cropintensity and damage from major storms. Other of Samoa) and rises in agricultural imports. If cli-potential impacts are linked to changes in the mate change increases the magnitude and/or fre-weather patterns associated with El Niño South- quency of strong El Niño events, this would haveern Oscillation (ENSO) events. The primary an effect on agriculture. Still, the potential scaleconcern focuses on the impact on agriculture, of the impact seems likely to be small relative toespecially in periods of lower precipitation fol- existing risks due to weather variability, disease,lowing strong El Niño episodes. and external market conditions.This study examines the consequences of an A macroeconomic model of the interactionsincrease in average temperatures of up to 1°C between climate and the economy suggests thatby 2050 and up to 2.75°C by 2100 for the fre- the present value of the damage to the Samoanquency and intensity of major cyclones that hit economy through 2050 due to climate change—the islands. Estimates of the economic damage and without additional adaptation—may becaused by storms in the past have been used to $104–$212 million; this is equivalent to 0.6–1.3calibrate a damage function that yields an esti- percent of the present value of GDP over themated increase in the expected value of economic same period. The model assumes that sounddamage as the peak wind speeds for storms with development policies are adopted to minimizereturn periods of 10, 50, or 100 years rise over the impact of existing weather risks and othertime. In this framework the key element of adap- natural hazards along with those from climatetation is to ensure that buildings and other assets change. The loss of income falls on consump-are designed to standards that enable them to cope tion rather than investment, so the reduction in
2 E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G Ethe present value of consumption is estimated at For agriculture the key element of an adaptation0.9–1.9 percent. strategy is to increase expenditures on research, development, and advisory services to mitigate theThe starting point for examining adaptation higher risks that are likely to be associated withoptions is the observation that the Samoan econ- climate change. Again, this is building upon poli-omy is resilient to storms with a return period of cies that would form part of a sound development10 years but suffers significant damage from storms strategy. Samoan agriculture was hit hard by thewith a greater return period, i.e., storms of greater taro blight in the mid-1990s, which devastated taroseverity. This 10-year threshold is low by interna- production and eliminated taro export revenuestional standards. The analysis suggests that raising for nearly 15 years. Vulnerability to disease, pests,the threshold to 50 years would generate benefits and storm damage means that diversification ofthat greatly outweigh the costs involved even with- both crop varieties and crops is an important ele-out any consideration of climate change, reducing ment in any policy to limit the impact of these risksthe expected annual value of storm losses from on agricultural households. Since climate change is5.5 percent to 0.7 percent of GDP. Implementing likely to reinforce these risks, the appropriate levelmeasures to ensure that buildings, infrastructure, of expenditure will be higher to reflect the greaterand similar assets are able to withstand storms with value placed upon risk reduction.a return period of up to 50 years is a clear “noregrets” strategy. It is justified even without climate The Government of Samoa has undertakenchange, but it will also greatly reduce the economic extensive consultations to identify community pri-impact of climate change under the climate sce- orities for adaptation to climate change under thenarios that were examined. These actions can National Adaptation Program of Action (NAPA).quicken the attainment of development of goals These include protection of community water sup-including the MDGs. plies, support of agriculture and forestry sectors, implementation of coastal infrastructure man-The corollary of this strategy is to ensure that agement plans and integrated catchment man-design standards are adjusted to take account of agement. This study applies a cost-benefit test toprospective changes in the distribution of storms assess the appropriate timing of adaptation proj-as a consequence of climate change. This leads ects identified in the National Adaptation Programto the adoption of forward-looking design stan- of Action (NAPA). Some of these projects—e.g.,dards rather than ones based on current climate upgrading water systems—are good developmentconditions as an adaptation strategy. In practi- projects under current climate conditions. How-cal terms this means that buildings and other ever, large investments in relocating coastal infra-assets constructed in the near future should be structure should only be implemented if and whendesigned to withstand wind speeds up to 160 the reduction in the expected value of storm dam-kph —the projected 50-year storm in the decade age exceeds the annualized costs. If a 50-year storm2050–59 under the Commonwealth Scientific design standard were implemented, the analysisand Industrial Research Organisation (CSIRO) suggests that this type of adaptation may not bescenario—rather than 148 kph (the 50–year justified before 2050 based on climate change con-storm under current climate conditions). Strictly, siderations because the general gain from reducingthe design standards will vary for different cli- storm damage is not sufficient to warrant addi-mate scenarios, and the additional costs of com- tional expenditures. However, these actions mayplying with the worst scenario may be viewed be justified as a measure to reduce the risks associ-as a form of insurance against uncertainty over ated with non-climate hazards (for instance risk offuture climate outcomes. tsunamis associated with earthquakes).
S A M OA CO U N T RY ST U DY 3The overall cost of adaptation is much higher change, especially with respect to activities whichunder the CSIRO scenario than under the have a large overlap between development andNational Center for Atmospheric Research adaptation benefits. On the other hand, imple-(NCAR) scenario because the former projects a menting an overall approach to adaptation basedmuch greater increase in the severity of flood- on an assessment of the risks associated withing and storms. Under the CSIRO scenario, the storms and other natural hazards is hamperedcost of adaptation would rise from $3.3 million by limitations in the collection and interpreta-per year in 2010–19 to $10.9 million per year tion of consistent and relevant information. Itin 2040–49. The main cost arises from looking will be important to focus on strengthening theforward to the end of the century in setting the government’s capacity to develop early warn-design standards for buildings and infrastructure ing systems, to effectively utilize these warningconstructed in the 2030s and 2040s. systems to prepare for and prevent losses, to develop, update and implement design stan-The Government of Samoa, with external assis- dards, and other measures required to mitigatetance, is implementing a program to act on the damage caused by projected changes in thecommunity priorities for adaptation to climate frequency and severity of storms.
4 T WO E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G E
S A M OA CO U N T RY ST U DY 5Vulnerability toClimate ChangeBackground is projected to increase slowly to about 210,000 by 2050. Average life expectancy at birth was 72.8Samoa is a small island country located in the years in 2006, which is higher than the medianSouth-West Pacific between latitudes 13°–15°S for Pacific Island countries. About 76 percent ofand longitudes 168°–173°W. It has four main the population live on the island of Upolu. Theinhabited islands and six small uninhabited islands capital and only significant urban center is Apia inwith a total land area of 2,935 sq. km. The two North Upolu with a population of about 40,000.main islands are Savai’i (the larger of the two butmuch less densely populated) and Upolu (Figure The islands are volcanic in origin, so the topog-1). The population is approximately 183,000 and raphy includes mountains up to 1,850 m as well Figure 1 Main Islands in Samoa
6 E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G E Figure 2 Thirty-year Climate Averages for Rainfall and Wind DistributionSource: MNRE, Meteorology Division - Figure 2 in Government of Samoa (2005)as low-lying coastal areas. About 70 percent of occur in the period from December to February.the country’s population live in the coastal zone. The islands are also affected by dry spells thatThe coastal zone is vulnerable to sea level rise, coincide with the El Niño Southern Oscillationand all areas are subject to damage caused by the (ENSO). Figure 2 shows the geographical distri-high winds, storm surges, and torrential rainfall bution of annual precipitation and wind speedsassociated with severe tropical cyclones. It is esti- based on historic averages from 1961 to 1990,mated that two cyclones—Ofa in 1990 and Val in while Figure 3 shows temperatures in Apia over1991—caused damage to agriculture, infrastruc- the last two decades.ture, and other assets valued at 2.5 to 3 times thecountry’s GDP in 1990. A review of historical climate trends for Apia suggests that the daily maximum temperatureThe climate is tropical with a wet season from increased by about 0.7°C over the 20th centuryNovember to April and a dry season from May while the daily minimum temperature increasedto October. Temperatures vary little over the by 0.2°C. Average annual precipitation decreasedyear with a typical daily range of 24° to 32°C. by about 49 mm over the century. There is someAverage annual rainfall is high at 3,000 mm; evidence that the severity and/or the frequencyabout two-thirds of annual rainfall falls in the of tropical cyclones have increased in the SWwet season. Severe tropical cyclones tend to Pacific; see Chapter 1 of World Bank (2006).
S A M OA CO U N T RY ST U DY 7 Figure 3 Monthly Temperatures in Apia, 1993-2008 33° 32° 31° MAXIMUM 30° 29° 28° 27° MEAN 26° 25° 24° MINIMUM 23° 22° 21° 20° 19° 18° 1990 1992 1994 1996 1998 2000 2002 2004 2006 2008 2010Source: SPSLCMP data; Figure 18 in SPSLCMP (2008). Figure 4 Regions of Samoa used in the Climate-Economy Model CLIMATIC HAZARDS: WINDS, LIMITED OR ERRATIC RAINFALL KEY ECONOMIC ACTIVITY: TOURISM SAVAII NORTH SAVAII SOUTH KEY ECONOMIC ACTIVITY: TOURISM KEY ECONOMIC ACTIVITY: MAJOR ECONOMIC ZONE ECONOMIC GROWTH: HIGH UPOLU NORTH UPOLU SOUTH Source: World Bank. KEY ECONOMIC ACTIVITY: TOURISM ECONOMIC GROWTH: MODERATEThis study has divided the country into four climate-economy model. Figure 4 illustrates theregions: Savai’i North (SN), Savai’i South (SS), regional division and highlights the major eco-Upolu North (UN), and Upolu South (US). This nomic characteristics of each region. Upoluallows for regional differences in climate sce- North contains Apia and has the highest popu-narios, economic activity, and incomes in the lation, including all of the urban population.
8 E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G E Table 1 Projected Changes in Climate Variables by GCM and Region Baseline values for NoCC Deviations in 2050 relative to NoCC Precipita- Precipita- Mean Precipita- Precipita- Mean Total pre- tion tion tempera- Total pre- tion tion tempera- Climate cipitation Dec–Feb Nov–Apr ture cipitation Dec–Feb Nov–Apr ture model Region (mm) (mm) (mm) (°C) (mm) (mm) (mm) (°C) NCAR Savai’i North 2,958 1,062 1,921 26.87 -17 -39 5 0.99 NCAR Savai’i South 3,002 1,107 1,971 26.86 -19 -41 3 0.99 NCAR Upolu North 3,048 1,154 2,024 26.83 -21 -42 0 0.99 NCAR Upolu South 2,929 1,090 1,942 26.67 106 -8 118 0.97 CSIRO Savai’i North 2,958 1,062 1,921 26.87 277 43 197 0.81 CSIRO Savai’i South 3,002 1,107 1,971 26.86 343 65 215 0.83 CSIRO Upolu North 3,048 1,154 2,024 26.83 344 68 218 0.83 CSIRO Upolu South 2,929 1,090 1,942 26.67 335 66 213 0.83 Source: World Bank analysis; see World Bank (2009); NoCC= no climate change The situation is rather more complicated forProjections of Climate precipitation. Notwithstanding its name, theChange – Global Scenarios Global Wet scenario projects changes in total annual precipitation by region in the range ‑21 to +106 mm by 2050 with a value of -21 mm forSamoa is covered by four of the 0.5° grid cells for Upolu North. In contrast, the Global Dry sce-which projections of climate variables have been nario projects changes in the range +277 to +344downscaled from the results of the general circula- mm by 2050 with a value of +344 mm for Apia.tion models (GCMs) used in this study. These can There are also changes in the seasonal distribu-be mapped to the four regions shown in Figure 4 tion of rainfall. For example, total precipitationwith the largest population in the grid cell cen- for December–February—the prime period fortered on 13.75°S, 171.75°W, which corresponds cyclones—falls by about 40 mm by 2050 in theto Upolu North and covers Apia. The Global Wet Global Wet scenario, whereas precipitation dur-(NCAR) and Dry (CSIRO) scenarios differ little ing the rainy season from November to April iswith respect to the increase in the annual average stable or increases slightly in Upolu South. Thus,temperature (Table 1). The Global Wet scenario the dry season becomes drier while the transi-projects an increase of 0.97–0.99°C by 2050 for tional months of the wet season become wetterthe four regions, while the Global Dry scenario in this scenario. The shift is not as marked for thefor 2050 projects an increase of 0.81–0.83°C by Global Dry scenario but still roughly one-half of2050 for the four regions. Since the differences the increase in annual precipitation occurs duringbetween regions are much smaller than the stan- the transitional months of the wet season.dard errors of the projections, it is reasonableto assume a uniform increase of about 1°C for Observation and modeling suggest that higherthe Global Wet scenario and about 0.8°C for the global temperatures, including sea surface tem-Global Dry scenario. Changes in average daily peratures, will mean that the peak wind speedsmaximum and daily minimum temperatures (not and probably precipitation and flooding associ-shown) are almost identical to the changes in aver- ated with severe cyclones will increase. This isage daily mean temperatures. equivalent to a shift in the tail of the distribution
S A M OA CO U N T RY ST U DY 9of extreme weather events (see Annex 1). These scenario in the coastal protection component ofconsiderations point to a more frequent return the global study. The main scenario included inperiod of cyclones with the severity of Cyclones the global estimates assumes a rise of 87 cm fromOfa and Val, which had a devastating impact on 1990 to 2100. Other forecasts for sea level riseSamoa in 1990–91 (see Section 3). However, since in the South Pacific are considerably more pes-these cyclones rank second and third in the list of simistic. Evidence about changes in the height ofthe most damaging cyclones in the South Pacific storm surges is even more difficult to obtain, butregion as a whole in the last 50 years, it is very dif- recent trends indicate that the difference betweenficult to quantify the potential change in exposure average sea level and the maximum value ofto extreme storm damage for different scenarios. hourly sea level measured in each year has been increasing at about 3 cm per decade (Young 2007).There is a separate but less well–documentedconcern that the severity—and perhaps the fre- The main earthquake zone in the South Pacificquency—of ENSO cyclical variations in weather lies about 200 km south of Samoa, with moreconditions will increase. This could mean that than 12 earthquakes of magnitude 7 or greaterthe severity of ENSO dry periods may increase, since 1900. This means that the risks to coastalespecially under the Global Wet scenario for infrastructure associated with climate changewhich average precipitation during the dry sea- must be assessed in a framework of vulnerabilityson is expected to fall. This is discussed further to other natural shocks.in Section 3. Data collected by SPSLCMP show 18 separate tsunami events over 15 years, with the largestSea Level Rise trough-to-peak height of 570 cm after an earth- quake near the Kuril Islands in November 2006.The South Pacific Sea Level and Climate Moni- The tsunami that followed the magnitude 8.1toring Project (SPSLCMP) has collected sea level earthquake, which occurred about 190 km southand climate data for Samoa since 1993. The most of Apia in September 2009, is reported as hav-recent country report published in December 2008 ing a trough-to-peak height of 140 cm in Apia.gives an average increase in sea level of 4.9 mm per The waves that struck parts of South Upolu wereyear at Apia.1 If sustained over the 21st century much greater; for example, the tsunami generatedthis would imply an increase of 54 cm from 1990 a trough-to-peak height of 314 cm in Pago Pagoto 2100, which is a little greater than the assump- (American Samoa), and there were reports oftion of 40 cm used for the low sea level rise (SLR) waves of up to 450 cm in parts of Upolu.1 Figures for another sea level gauge yield an average increase of 2.1 mm per year over a longer period, but this estimate is regarded as less reliable because of less precision and poorer datum control.
10 TH REE E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G E
S A M OA CO U N T RY ST U DY 11Impacts of Climate Changeand Natural HazardsHistorical Experience the Apia Observatory suggested a return period of about 25 years with a storm surge of 1.6 m andOver the last two decades Samoa has suffered onshore sustained wind velocity of 130 kph.serious economic shocks caused by four majornatural disasters. The worst of these were twosevere cyclones in successive seasons—1989–90 Cyclone Val (December 1991)and 1990–91—which caused massive damage toinfrastructure and other assets. Cyclone Val was classified as a Category 5 hur- ricane with wind speeds up to 240 kph. It wasCyclone Ofa (February 1990) judged to be the most destructive storm to hit the Samoan islands in the 20th century because ofCyclone Ofa was classified as a Category 4 hur- its intensity, irregular path, and slow speed (Fair-ricane with wind speeds up to 215 kph. It struck bairn 1997). Damage was caused by a combina-Samoa as the storm was strengthening and con- tion of high winds, heavy rains, and wave action.tinued to affect Samoan waters during the worst The duration of the cyclone and the shifts in windphase of the storm. Extensive damage occurred direction exacerbated the destructive effects ofalong the northern coasts of both Upolu and high winds, so that crops and plantations, naturalSavai’i. A review of the damage on Upolu caused vegetation, buildings, and other structures all suf-by the storm reported seven deaths; major dam- fered extensive damage. The main effects of highage to buildings and infrastructure caused by waves were felt on the south coasts of Upolu andwaves that inundated coastal zones and high Savai’i, an unfortunate complement to the impactwinds inland; disruption to shipping and commu- of Cyclone Ofa. The storm was reported as hav-nications, partly caused by damage to infrastruc- ing caused 12 deaths in Samoa. It defoliated ature and partly as a consequence of the beaching high proportion of trees on the main islands, andof the country’s main passenger/cargo ferry; and caused the complete loss of nearly 50 percent ofloss of reclaimed land, plus damage to agricultural coconut trees. Analysis of wind speeds and theassets such as plantations caused by flooding and associated storm surge suggested that the stormwind (Rearic 1990). A comparison of the severity had a return period of about 100 years, with anof the storm with a theoretical 100–year storm by onshore sustained wind velocity of 165 kph.
12 E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G ECyclone Heta (January 2004) systems can minimize loss of life, though they cannot prevent widespread structural damageCyclone Heta passed near to or struck Samoa, with high economic costs.American Samoa, Tonga, and Niue over a periodof about a week from January 2 to January 8,2004. Samoa was relatively fortunate, since the Modeling the Frequencycenter of the storm passed about 110 km west of of Extreme Eventsthe country at a point when it was still classed asa Category 2 hurricane. Even so, sustained windspeeds of 110 kph were reported in Apia with Statisticians and others interested in analyzinggusts up to 145 kph. Damage on Samoa included natural hazards such as tropical storms, floods, orthe loss of or disruption to power, water, and tele- earthquakes have developed standard methods ofcommunications on Savai’i plus limited flooding modeling the distribution of extreme events overin Apia. On the other hand, Alofi—Niue’s capi- a period of time. Suppose that the severity oftal city—was devastated by the direct impact of tropical storms is measured by its peak wind speedCyclone Heta, which at that stage was classified measured over a period of 10 minutes and that St*as a Category 5 hurricane. denotes the peak wind speed for the worst storm in year t. This is closely correlated to the amountTsunami (September 2009) of wind damage caused by the storm and is likely to provide a reasonable proxy for storm damageIn the early morning of September 29, 2009, an caused by rain and flooding since higher windearthquake of magnitude 8.1 in the Kermadec- speeds tend to be associated with more intenseTonga Subduction Zone (part of the Pacific Ring precipitation over periods of 6 to 12 hours.of Fire) generated a tsunami that struck the south-ern coastal areas of Samoa about 10 minutes The probability that a storm with a wind speedafter the earthquake. It is reported that the waves greater than S will occur in year t at a particu-caused damage up to 14 m above sea level on the lar location—prob (St* ≥ S)—is usually assumedcoast of South Upolu and traveled up to 0.7 km to follow the cumulative distribution function forinland. Twenty coastal villages in the south and some variant of the generalized extreme valuesoutheast of Upolu were mostly destroyed, with (GEV) distribution (Annex 1). The return periodwidespread damage to transport, power, and tele- of a cyclone with peak wind speed S is the recipro-communications infrastructure. About 5,300 peo- cal of this probability. Carter (1990) examines theple were affected, with 3,000 losing their homes. return period for cyclones in the South Pacific, the Samoa 5-degree square, and Apia.2The reported death toll caused by the tsunamiin Samoa was 155—more than 5 times the total The “historic” curve in Figure 5 shows the esti-number of deaths caused by cyclones from 1990 mated return periods for peak wind speeds ofto 2010. One lesson is that loss of life and eco- cyclones during the 20th century, while thenomic damage caused by natural disasters arenot closely correlated. Geological events such as 2 Unfortunately, the expressions given in the paper for peak wind speed, wave height, etc., as a function of the return period—earthquakes and tsunamis, which are concen- equations (4) to (8)—are clearly wrong, though the graphs appeartrated in their impact and occur with little or no to be correct. For example, using Figure 4 the text states that the wind speed with a 40–year return interval is 77 knots, whereaswarning, cause much heavier loss of life relative equation (4) yields a value of 438 knots (p. 15). Thus, the returnto their economic costs than weather events for periods quoted in the text have been used to derive correct values of the Gumbel distribution parameters used for the calculationwhich effective disaster planning and warning of historic return periods in Figure 5.
S A M OA CO U N T RY ST U DY 13 Figure 5 Illustration of Cyclone Return Periods by Peak Wind Speed RETURN PERIOD (YEARS) 200 180 160 140 120 100 80 60 40 20 0 100 110 120 130 140 150 160 170 180 190 200 210 220 WIND SPEED (KPH) HISTORIC CLIMATE FUTURE CLIMATE - LOW FUTURE CLIMATE - HIGH“future” curve illustrates how the return periods infrastructure, and other assets shortly after themight fall if it is assumed that both the location event, and (b) the present value (using a real dis-and scale parameters of the storm distribution count rate of 5 percent) of the shortfall in GDPincrease by either 10 percent (Future climate– relative to the trend rate of economic growthlow) or 25 percent (Future climate–high) due to prior to the shortfall in economic growth.3climate change. These increases correspond tothe range for the year 2100 discussed below. The Such figures must be treated with some caution.changes have the effect of reducing the return It is often unclear how the value of damage toperiod of a storm with a peak wind speed of 165 capital assets is obtained. The usual procedurekph (89 knots) from 100 years to approximately is to estimate the cost of repairing or replacing55 years for the low scenario and 26 years for the damaged assets, but this is rarely carried out onhigh scenario. a like-for-like basis. Existing assets may be old and will have been partly or fully depreciated. They are usually less efficient or they may be lessEconomic Damage Caused suitable for current requirements. Indeed, own-by Natural Disasters ers may decide that it is not economic to replace them. Hence, the economic value of assets thatTable 2 summarizes estimates of the economic 3 For example, over the years 1992–94 GDP fell 7–8 percent belowdamage—expressed as one-off capital losses— the cyclically adjusted trend in GDP, apparently as a consequence of the combined effects of Cyclones Ofa and Val. The shortfallcaused by the natural disasters that have affected was about 12 percent for agricultural GDP in 1994 since agricul-Samoa over the past two decades. The estimates tural assets, particularly coconut palms, were severely affected by Cyclone Val. However, by 1996 both total and agricultural GDPare based upon (a) reports of damage to buildings, had recovered to match the pre-disaster trends.
14 E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G E Table 2 Economic Damage Caused by Recent Natural Disasters in Samoa Return Asset damage Loss of GDP Total GDP Loss as period US$ million, US$ million, US$ million, percent Event Years 2005 prices 2005 prices 2005 prices of GDP Notes Cyclone Ofa 25 166 15 161 113 Buildings & infrastructure Cyclone Val 100 388 36 163 260 30% agricultural assets Cyclone Heta 10 1 4 236 2 Limited damage Tsunami 2009 50 54 50 277 38 Buildings, infrastructure & tourism Source: World Bank estimatesare damaged is likely to be significantly less than Estimating the Costs oftheir replacement or even repair costs. Adapting to Climate ChangeSimilarly, the estimates of the loss of GDP causedby Cyclones Ofa and Val shown in the table are The technical basis for calculating the change insomewhat overstated, because they include the the expected value of storm damage as a conse-impact of the taro blight, which affected crop pro- quence of a shift in the probability distribution ofduction from 1994 onward and delayed the full cyclones is set out in Annex 1. This focuses atten-recovery from the disasters by up to two years. tion on two components of the costs of adaptingFurther, the higher rate of economic growth asso- to climate change:ciated with recovery from the damage causedby the storms persisted after the recovery and A. The changes in design standards required tothe long-term rate of economic growth clearly ensure that new or upgraded assets can resistincreased in the late 1990s. The storms were cer- the higher wind speeds to which they are likelytainly not a benefit in disguise, but their long-term to be exposed as a consequence of the shift inimpact has been reduced by pushing the Samoan the distribution of storms hitting Samoa. Thiseconomy toward sectors that appear to support a approach is built into the estimates of the costshigher long-term rate of economic growth. These of adaptation for infrastructure and related assetsconsiderations mean that the estimates shown in prepared for Samoa under the global analysis ofTable 2 set an upper bound on the economic losses the cost of adaptation. These global estimatesassociated with storms of different return periods. include an allowance for the increased costs of maintenance and/or accelerated replacementPolicies to minimize the economic damage caused of existing assets because they were built toby cyclones will require the adoption of building lower design standards and are more likely to bestandards capable of withstanding much greater damaged by storms with higher wind speeds.wind stresses or relocating infrastructure so thatit is less susceptible to damage caused by flood- B. Expenditures and investments for other mea-ing and/or wave action. These measures will also sures to adapt to climate change that werereduce the impact of geological events, though identified in the NAPA. These are discussed inthe attraction of coastal areas for tourism will more detail in Section 4 below.inevitably mean that people and assets are vulner-able to events triggered by earthquakes. There is, however, an important constraint on any detailed examination of the impact of
S A M OA CO U N T RY ST U DY 15climate change or the costs of adaptation. It is scenario for Samoa—it has been assumed thatclear that a key feature of climate change for the key parameters of the distribution increaseSamoa is the possibility that the distribution of by 4 percent to 2050 and by 10 percent to 2100.extreme weather events—primarily cyclones but These figures fall within the range identified byalso ENSO droughts—will shift to more frequent Knutson, et al. (2010) and they correspond toor severe cyclones hitting the islands. Unfortu- the increases in average temperatures for thisnately, the empirical evidence on how the distri- scenario combined with the middle of the rangebution might shift over time for different climate of the sensitivity of cyclone intensity to oceanscenarios is very limited (IWTC 2006). temperatures.4 As a high estimate—linked to the relatively wet CSIRO scenario for Samoa—The damage caused by tropical cyclones is due it has been assumed that the key parameters ofto a combination of high winds and precipitation the distribution increase by 8 percent to 2050 andleading to flooding. Both Emanuel (2005) and by 25 percent to 2100. These figures allow for aKnutson, et al. (2010) emphasize the link between strong shift toward more intense cyclones and asea surface temperatures and cyclone intensity, greater intensity of precipitation associated withwith higher ocean temperatures being associ- such cyclones. The assumptions for the CSIROated with both higher sustained wind speeds and scenario are intended to provide a worst-casehigher rainfall. Generally, changes in sea surface scenario for the change in the distribution oftemperatures follow changes in average land tem- cyclones given current knowledge.peratures but with a considerable lag. For thisanalysis there is little alternative other than to rely The analysis has also taken account of a signifi-upon changes in average land temperatures as the cant change in the distribution of precipitationbasis for distributing changes in storm intensity over the year, especially for the CSIRO scenario.up to 2050 and 2100. Total precipitation during the rainy season aver- aged over the grid cells is 1,965 mm for theIn the most recent assessment of probable shifts NoCC scenario and increases to 2,175 mm forin the intensity and frequency of cyclones as a the CSIRO scenario. This is likely to increase theresult of climate change, Knutson, et al (2010) overall probability of severe flooding during thesuggest that the overall intensity of cyclones rainy season and will require higher design stan-may increase by 2–11 percent in the period to dards for buildings, roads, storm water drainage,2100, with the main driver being the increase in and similar infrastructure to cope with an increaseocean temperatures. This change may involve a in the intensity and volume of rainfall. Hence, thedecrease in the frequency of cyclones but with a calculations of the cost of adaptation include anlarge margin of uncertainty (6–34 percent) off- allowance for the costs of providing greater resil-set by an increase in the frequency of the most ience to flooding linked to precipitation in theintense cyclones. In addition, increases on the rainy season. This is separate from and additionalorder of 20 percent are likely in the intensity of to the costs associated with the increase in precip-precipitation within 100 km of the storm for the itation intensity associated with severe cyclones.most severe cyclones.To capture the uncertainty about changes in boththe peak wind speeds and precipitation associated 4 The statement prepared by a WMO expert group (IWTC 2006) states that both theory and observation support a conclusion thatwith any shift in the distribution of cyclones by the intensity of tropical cyclones will increase by 3–5 percent perintensity, a range of values has been used. As a 1°C rise in sea surface temperature. Emanuel (2005) uses a figure of 5 percent in considering changes in his power dissipationlow estimate—linked to the relatively dry NCAR index for tropical cyclones.
16 E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G EThe Potential Impact of Annex 2 provides details of a statistical analysis of the links between ENSO events, precipitation,Climate Change on the and agricultural production. This confirms thatAgricultural Sector strong El Niño periods lead to a reduction of about 18 percent in precipitation in the months that fol-The agricultural sector in Samoa is a crucial source low, with little difference between the impact inof employment—providing the main occupation the wet and dry seasons. If climate change werefor 32 percent of the workforce in the 2006 Cen- to lead to a 50 percent increase in the variationsus—but is a much smaller contributor to GDP. between normal and extreme ENSO conditions,Agriculture and fishing accounted for 10 percent then strong El Niño periods might be associatedof GDP at constant prices in 2008, down from 20 with a reduction of up to 27 percent in precipita-percent in 1988, before hurricanes Ofa and Val tion. However, there is one important qualifica-and the taro blight. Value-added in agriculture tion. The analysis also indicates that the influenceand fishing at constant prices reached a peak in of ENSO events on precipitation may have been1996 and fell by 30 percent from 1996 to 2004. declining since 1950. If this apparent trend is realSince 2004 agricultural output has grown but less and continues in future, the impact of climaterapidly than the rest of the economy, so that value- change on the variability of ENSO-related pre-added in agriculture on its own has fallen from 8.1 cipitation would be small.percent to 6.2 percent of GDP over the five-yearperiod 2004–09. This share is likely to fall below 5 In any case, the relationship between ENSO-percent in the decades up to 2050. related changes in precipitation and agricultural production has not been large in the past. TheResearch into the potential impacts of climate second part of the statistical analysis looked at thechange on crop yields and viability in Samoa and extent to which ENSO events have been associ-other South Pacific islands is very limited. The ated with fluctuations in crop production, cropgeneral assessment seems to be that an increase of yields, and trade in agricultural products. Again,1°C in average temperatures and minor changes the results confirm that there is a link primarilyin total precipitation up to 2050 will not have a driven by the impact of ENSO events on tarolarge effect on yields of the main crops such as production. A typical strong El Niño event hastaro, bananas, and coconuts; see, for example, the been associated with a decline of 5–8 percent inanalysis for Vita Levu, Fiji in World Bank (2000). taro production and an increase of 3–5 percentThe changes are within the range of variation in the value of agricultural imports. The effectsobserved across countries where the same or simi- might rise to a decline of 8–12 percent in tarolar varieties are grown.5 Nonetheless, uncertainty production and a rise of 5–7 percent in agricul-about the effects of climate change would war- tural imports if the climate change were to leadrant expenditures on agricultural research and to a 50 percent increase in the variation betweendevelopment as an insurance policy. normal and extreme ENSO conditions.A separate concern has been expressed about the To put these potential changes in context, the trendprospect of more severe dry periods associated with rate of growth in agricultural imports has been 6.2ENSO events. Again, the evidence on this issue percent per year over the last two decades, whileis limited and open to different interpretations. variations in agricultural production caused by the cyclones in 1990–91 or the taro blight were an5 This is documented in the relevant data sheets from FAO’s order of magnitude greater than the potential vari- Ecocrop database, which can be accessed at: http://ecocrop.fao. org/ecocrop/srv/en/home. ations associated with the effect of climate change
S A M OA CO U N T RY ST U DY 17 Table 3 Losses due to Climate Change without Adaptation No adaptation NCAR (1) CSIRO (2) Present value @ 5 percent, $ million 103.9 212.4 Annualized equivalent, $ million per year 5.9 12.1 Loss/benefit as percent of baseline GDP 0.6% 1.3% Loss/benefit as percent of baseline consumption 0.9% 1.9% Source: World Bank estimates.on the intensity of ENSO events. This means that (c) Growth rates for population and GDP withouta sound strategy for reducing the effects of existing climate change correspond to the baseline dataweather and agricultural risks on farmers and the used for the Global Track estimates. Theseeconomy should be the starting point for adapt- assumptions determine the growth in capitaling to climate change. Crop diversification, reli- stock and total factor productivity.ance upon varieties that can cope better with dryperiods or resist wind damage, the development of (d) Gross investment is calculated assuming a stan-alternative sources of employment and income, dard depreciation rate applied to the currentand similar measures will limit the damage caused capital stock plus net capital accumulation.by existing risks and facilitate adaptation to climatechange. It will then be easier and less expensive (e) Total consumption is equal to total outputto implement additional measures to reduce vul- minus climate damage, adaptation costs, andnerability to risk if concerns about changes in the gross investment. The present value in 2010 ofseverity of ENSO events due to climate change are total consumption from 2010 to 2050 is usedsustained by evidence from experience over the to assess the impact of climate change and thecoming decades. effects of adaptation. The expected value of the economic damageModel of Climate-Economy caused by cyclones is calculated in the mannerInteractions described in Annex 1 using the shifts in the prob- ability distribution of storms by 2050 for the NCAR and CSIRO scenarios based on changesA simple climate-economy model has been used to in average temperature. To maintain investmentexamine the impact of climate change on economic and economic growth, the damage caused byactivity and the effects of spending on adaptation storms has the effect of reducing consumption,measures. The key features of the model are: so that the cost of climate change for each sce- nario is measured as the reduction in the pres-(a) There are four regions, North and South ent value of consumption in USD at 2005 prices Upolu/Savai’i, with populations and value- over the period 2010–50. Without any adapta- added derived from the 2006 census. tion, Table 3 shows that the loss of consumption is $104 million for the NCAR scenario or $212(b) Total output in each region is calculated using million for the CSIRO scenario. The annual- a Cobb-Douglas production function in capital ized equivalent is $5.9 million per year for the and labor, with the capital share calibrated to NCAR scenario and $12.1 million per year for match input shares and investment in 2006. the CSIRO scenario.
18 FO UR E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G E
S A M OA CO U N T RY ST U DY 19Adaptation Plansand CostsSamoa has a rapidly developing and increasingly Development of Samoa (SDS) (2008–12), whichsophisticated framework of strategies, plans, and seeks to “ensure sustainable economic and socialregulations that have developed over time to meet progress.” The SDS provides a framework oninternational conventions, international monitor- national priorities under key development sectors.ing and reporting requirements, and governance The government has identified seven goals underbest practice goals. Many of the older national- this framework. Climate change is mentioned inlevel strategies have been developed at different Goal 7: Environmental Sustainability and Disas-times as a result of different drivers, but an effort ter Risk Reduction.has been made to integrate planning in differentsectors with a broad development strategy. An insti- In the SDS under Goal 7, climate change adapta-tutional reform in 2003, which merged 26 depart- tion is identified as a cross-cutting issue alongsidements into 13 ministries, provided the opportunity environmental sustainability. Adaptation to climateto review and update some of the legislation. change is linked with deforestation and cyclone fre- quency (natural disasters). Mitigation activities areAdaptation to climate change as a concept and also identified and linked to renewable energy pri-priority is reflected through all government and orities. The primary focus is on the link betweenplanning levels, most noticeably in high-level plans climate change and disaster management, whichand strategies. Translating these general goals into reflects the critical concern that climate change willregular corporate and departmental plans is more lead to increased frequency and intensity of storms.difficult, though the programs and projects under Coastal communities in Samoa are already at highway are consistent with development priorities and risk from cyclones, and their vulnerability to coastalcould be considered as adaptation activities. inundation and erosion has already been assessed. Priority activities to address Goal 7 in the relatedStrategy for the Development areas of climate change and disaster managementof Samoa (SDS) (2008–12) are to “implement the Disaster Management Act 2007 through various programs and projects aimed at both climate mitigation (greenhouse gas reduc-The overarching document in Samoa that guides tions) and disaster readiness.” Increasing resilienceall other development is the Strategy for the to the adverse impacts of climate change will be
20 E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G Eaddressed through continued work on coastal Significantly, NAPA led to:management and adaptation programs for vulner-able villages and other coastal locations, as well ■■ The creation of the Samoa National Climateas activities such as promotion of energy-efficient Change Country Team (NCCCT) and NAPAbuilding design. Task Team, both cross-sectoral teams compris- ing representatives from mainly governmentThe environment is to feature prominently as a departments but also NGOs and other interestscross-cutting consideration in all planning activities,including the formulation of sector plans. There ■■ The preparation of a Climate Synthesiswill be a focus on improved environmental man- Report, which assessed the current vulnerabil-agement, compliance, and monitoring in 2008– ity and potential increase in climate hazards2012, with the Ministry of Natural Resources, and associated risks of critical sectorsEnvironment and Meteorology (MNRE) the keyimplementing agency (including for climate change ■■ Discussion of adaptation needs and prioritiesadaptation). The Planning and Urban Manage-ment Act 2004 aims to “implement a framework ■■ Consideration of whether and how to sepa-for planning the use, development, management rate climate change adaptation activities fromand protection of land in Samoa in the present and other development activities.long-term interests of all Samoans and for relatedpurposes.” Under the act, any development activ- The relationship of the NAPA to the SDS andity requires a development consent with a support- its potential for influence on the development ofing environmental impact assessment (EIA) unless sector plans is shown in Figure 6.a sustainable management plan or regulations pro-vide otherwise. The capacity of the Planning and From interviews with participants and others, aUrban Management Agency to enforce the regula- number of issues were identified:tions and undertake or facilitate a greater level ofcommunity consultation will need to be strength- ■■ The original Climate Risk Profile was based onened for this to occur. fairly limited climate data available at the time. This has been identified as an issue and improv- ing climate monitoring features as a priorityNational Adaptation program area. An updated Climate Risk ProfileProgram of Action (NAPA) has now been prepared (Young 2007).(2005) ■■ The ranking of activities was based on a con- sensus approach rather than a more objectiveNAPA and its development were discussed in multicriteria analysis or similar method outlinedthe desk-top study by Beca (2010). NAPA is the in the annotated guidelines for the preparationkey document for the identification of the most of NAPA. In part, this was a consequence ofurgent and immediate adaptation needs from the the lack of good information on both the eco-adverse impacts of climate change. Samoa was nomics and effectiveness of adaptation options.one of the first countries to receive funding from A consensus-based approach fitted in well withthe Global Environment Facility (GEF) to develop the cultural norms of working together. Lim-its NAPA, which took two years of comprehensive ited understanding among the community ofinformation and data collection, as well as exten- climate change and of the effect of differentsive countrywide consultation. adaptation activities influenced the ranking of
S A M OA CO U N T RY ST U DY 21 Figure 6 Links between the NAPA and the SDS with Reporting Relationships STRATEGY FOR DEVELOPMENT OF SAMOA (SDS) 2008-2012 NATIONAL ADAPTATION SECTION PLAN FOR EACH PROGRAMME OF ACTION OF 15 SECTORS, EACH (NAPA) 2005 PLAN BASED ON THE SDS. CORPORATE PLAN FOR MINISTRY EACH MINISTRY STRATEGIC ANNUAL MAY HAVE LINKS TO MORE MANAGEMENT PLAN THAN ONE SECTION PLAN SERVICE MINISTRY CHARTERS BUDGET CAPABILITY NATIONAL PLANS BUDGETSource: Beca International Consultants Ltd (2010) alternatives. For example, construction of sea- sooner or later. Projects are designed so that walls features as an urgent community need, they clip onto existing programs largely funded even though other strategies emphasize the role through bilateral agreements and sector pool of more cost-effective measures. funds. Figure 7 illustrates the approval process. Assistance in setting priorities—stages 1 to 3—■■ Economic assessments were limited to analyses would improve the allocation of funds. of cost-effectiveness, feasibility, and long-term sustainability by activity rather than overall. ■■ The significance of the energy sector has been downplayed, possibly as a result of a lack of■■ There was an extensive series of countrywide information but also possibly due to responsi- workshops, but some were not particularly bility for it being in another ministry (Minis- well-attended. try of Finance). While energy featured on the original list of sectors, it was dropped from the■■ The ready availability of donor funds for final ranked list. The comment was made that adaptation projects has been a disincentive to energy priorities were being met through a dif- develop clear priorities among potential proj- ferent strategy and as part of climate change ects and programs. Everything gets funded mitigation programs.
22 E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G E■■ The NAPA has a high level of awareness among and awareness-raising, use and management agencies and there is commitment to, and sup- of resources, and for undertaking intervention port for, its implementation by MNRE. actions. The CIM Strategy set out the need for coastal infrastructure management plans (CIM Plans) and defined goals, objectives, policies, and implementation methods across a broad range ofCoastal Infrastructure coastal considerations (Daly et al. 2010).Management Strategy The CIM plans were supported by the compila-and Plans tion of data on the state of coastal resources based upon (a) a survey of Samoa’s 403 km coastline;The Samoa Coastal Infrastructure Management (b) mapping the extent and condition of natural(CIM) Strategy (2001) provided a series of national environments (such as landforms, mangroves, andand local priorities for coastal management. The lagoons); (c) identifying natural resources (such asstrategy developed objectives, policies, and imple- aggregate and offshore sand resources); and (d)mentation methods for hazard and environmental mapping coastal hazards (coastal inundation andinformation-gathering and monitoring, education erosion). The analysis of coastal hazards focused Figure 7 Approval Process for Adaptation Projects NATIONAL ADAPTATION PROGRAMME OF ACTION (NAPA) 2005 A S S I S TA N C E W I T H P R I O R I T I Z AT I O N R E Q U I R E D PRIORITY PROFILES SELECTED CABINET AID 1 ADAPTATION 2 DEVELOPMENT 3 CO-ORDINATION 1. Securing community ACTIVITIES COMMITTEE COMMITTEE APPROVED FOR EACH (FOR APPROVAL (DETERMINE water resource. & SDS REVIEW) FUNDING) PRIORITY IF 2. Reforestation, PROFILE rehabilitation and community forest ﬁre protection. 3. Climate health program. INTERNAL CRITERIA 4. Climate early warning (MET BY GOVERNMENT system. EXTERNAL RESOURCES- EXISTING CRITERIA PROGRAMS) 5. Agriculture & food security/sustainability. 6. Zoning and strategic management planning. 7. CIM plan PARALLEL POD FINANCING FINANCING implementation. (BILATERAL SECTOR (INDIVIDUAL PODS) 8. Marine and terrestrial DONORS) concession programs.Source: Beca International Consultants Ltd (2010)
S A M OA CO U N T RY ST U DY 23on reducing tsunami risks as well as climate- ■■ Coastline monitoring at a number of pointsrelated hazards. was established as a baseline to measure coast- line morphology changes. There was no evi-The project resulted in a total of 41 CIM plans dence that this monitoring was continuing.highlighting vulnerable areas and identifying pri-ority actions to reduce community vulnerability. Updating and implementing the CIM plansAdaptation activities took account of community should be a priority. This would include updatingconsultations and fa’a Samoa: a traditional model of the plans, prioritizing the actions, and undertak-community decision making by consensus under ing actions of high priority.the leadership of the matai (chief). Communitypriorities were based on strong anecdotal (historyand traditional knowledge) and physical evidence Evidence of Prioritization(such as hazard zone mapping). “Hard”, i.e. physi- and Sequencing:cal, measures—such as coastal protection and road Donor Influencerelocation—were subjected to an economic analy-sis to determine their level of viability. NAPA provided a ranked list of sectors and pre-Implementation of the CIM plans—progressively ferred adaptation actions for each. There was noworking through the list of prioritized mitigation attempt to prioritize the actual adaptation actionsand adaptation options per village—has been themselves. Activities were grouped into pro-identified in the NAPA as a priority. The next stage grams, some of them cross-cutting, and all havewill be to develop a prioritization tool to rank proj- been funded (or partially funded) through avail-ects within villages and between districts. able donor funds.The interviews highlighted the following points: Donors are engaging more in partnership with government, whereby donor support is guided■■ Implementation of the CIM strategy and and designed by the government. There is con- plans is viewed, particularly by MNRE, as a siderable effort on building capacity to allow for key element in adapting to climate change. the proper management of provided resources, although capacity remains an issue. There are■■ The CIM plans have been used to guide recov- also numerous country strategies (some specific ery in the regions of Samoa affected by the to climate change) and donors have organized 2009 tsunami. themselves into supporting specific sectors based■■ The CIM plans are being referred to during on their country strategies; for example, the Euro- the consenting process for new developments pean Union (EU) for water sector projects. in order to ensure they are not located in pre- viously identified hazard zones. Currently there is little incentive to prioritize or sequence beyond the level currently afforded by■■ Awareness of the CIM plans and the value of the NAPA process, as most projects eventually the outcomes of the consultation is declining get funded through available funding mecha- in other ministries and agencies due to staff nisms. However, both the government and the changes, time, and other project priorities. donors spoken to recognize the need for better There is a likelihood of duplication of effort in prioritization to make the best use of the avail- other (smaller) projects if awareness of the CIM able funds. plans and value of the consultation is lost.
24 E C O N O M I C S O F A D A P TAT I O N T O C L I M AT E C H A N G EAdaptation and Design ■■ Does a return period of 10 years offer the right balance between actual costs of constructionStandards for Infrastructure and the expected damage caused by storms now and in the future? Or, would it be bet-As discussed in Section 3, the key component of ter for Samoa to adopt a higher value for theadaptation to climate change is the revision of return period—say 20 or 50 years—when set-design standards and associated planning require- ting minimum design standards?ments to ensure that buildings and infrastructureare capable of coping with the peak wind speeds ■■ What will be the additional costs of construct-and precipitation associated with storms that have ing public assets—buildings and infrastruc-a return period of X years under future climate ture—in compliance with the efficient designconditions. The reference to X rather than some standard—that is, a return period of 10, 20 orspecific number makes the point that choosing 50 years—under the future climate scenarios?an appropriate value of X involves an economictradeoff that needs detailed investigation. Build- The time and resources required to answer theseings that will withstand storms with a higher value questions in detail are beyond the scope of thisof X—that is, higher wind speeds—cost more, case study. Nonetheless, it is possible to give anbut the expected annual value of damage will be initial assessment on the evidence that is available.lower. Rich countries tend to use return periods Since the issue is critical for Samoa’s response toof 50 or 100 years in setting design standards for climate change, the initial analysis should be con-most infrastructure and buildings, but the addi- firmed and/or refined by more detailed investiga-tional cost may not be warranted in Samoa. tion in future.A reasonable interpretation of the damage caused Managing climate risks. A simple test can beby cyclones that have hit Samoa in the past is that used to consider whether the current design stan-the average design standard for the country’s dards based on a 10-year period (peak wind speedcapital stock was rather low—a return period of 108 kph) is appropriate. This is based on com-of about 5 years—up to 1990, so that Cyclones paring the reduction in the expected annual lossesOfa and Val caused massive damage. Following from storm damage if a higher design standardthose cyclones, the replacement assets are capable were adopted with the annualized value of theof withstanding storms with a return period of additional investment and operating costs required10 years—such as Cyclone Heta—with mini- to construct and maintain assets to the higher stan-mal damage.6 Estimating the cost of adaptation dard. If new design standards were based on pro-depends on answering two questions: tecting buildings and other assets from storms with return periods up to 50 years (peak wind speed of 148 kph) the model indicates that the expected6 It is important to be careful in interpreting what this means. annual value of storm losses would fall from about Many buildings in Samoa have been built to design standards that enable them to withstand storms with a historic return 5.5 percent of GDP to about 0.7 percent of GDP, period of 50 or more years. However, this is not true of the country’s entire capital stock. In practice, the design standard for giving an expected annual benefit of 4.8 percent some buildings and infrastructure is much lower, so that a storm of GDP or about $30 million per year in 2008. like Cyclone Ofa with a historic return period of 25 years would cause substantial damage if it were to occur now. What matters is In the long run, the cost of adopting such design the minimum design standard across either all assets or the public standards, calculated using the methods described assets that are covered by this study. Hence, the focus is on those assets that are most vulnerable to storm damage rather than below, will be 2–3 percent of the annualized cost those that have already been built to a standard that will enable of the capital stock, which is less than $5 million them to cope with storms with a historic return period of 50 or 100 years. per year in 2008.
S A M OA CO U N T RY ST U DY 25It is clear that moving to a design standard of 50 (a) upgrading design standards over a period ofyears will generate benefits that outweigh the costs 40 years, and (b) adapting to climate change overby a large margin. On the other hand, applying the same period. The first of these componentsthe same method to a move from design stan- involves an increase in the peak wind speed fordards based on a 50-year return period to ones which buildings are designed from 108 kph to 148based on a 100-year return period yields results kph, while the second component extends this tothat are much less clear. The additional benefits 170 kph in 2050.would only be $3–4 million per year, while theadditional costs would be $2–3 million per year. The costs of adaptation. The infrastructureOn this basis, the analysis of the costs of adapta- analysis carried out for the global study—seetion considers two scenarios: chapter 5 in World Bank (2009)—has been modified to take account of the specific circum-Scenario A: Adaptation takes place on the basis stances of Samoa, particularly in the use of (a)of maintaining design standards at their exist- average temperature as a proxy for the shift ining level—for storms with a return period of 10 the probability distributions of storms under theyears—up to 2050. However, there is one fur- two climate scenarios, and (b) total precipitationther aspect of adaptation to reflect the impact during the rainy season as a proxy for the dam-of climate change. Instead of being designed to age caused by flooding. The key concept is thatwithstand current storms with a return period building standards are updated in discrete stepsof 10 years, which might be appropriate without to take account of expected changes in weatherclimate change, it is assumed that they are con- stresses over the life of a building or other asset.structed to withstand equivalent storms over the For each update in building standards, addi-life of the assets; for simplicity, a period of 50 tional costs of construction and maintenance areyears ahead is used. This forward-looking basis incurred and these make up the costs of adapt-for setting design standards confers significantly ing to climate change. For Samoa it has beengreater protection today than at the end of the assumed that building standards are updated forlife of the assets, which is appropriate since the each 10 kph increment in peak wind speeds withdestruction of an asset is much more costly when a 50-year return period. The extra costs coverit is new than when it is near the end of its eco- both improvements in resistance to wind damagenomic life. Under this scenario, the peak wind and protection against flood damage. For assetsspeed for which buildings and other assets are in place in 2010, it has been assumed that thedesigned increases gradually from 115 kph now annual cost of maintenance over the remainderto 125 kph in 2050. of their life is increased by 50 percent of the base cost of maintenance for each 10 kph incrementScenario B: Adaptation is combined with the in the current 50-year wind speed. This assump-gradual implementation of forward-looking tion is designed to reflect additional spending ondesign standards based on storms with a return measures to strengthen buildings to make themperiod of 50 years. Part of the gross cost of more resilient to potential storms in the imme-adaptation that is calculated by the model arises diate future, and is based on recommendationsbecause of the progressive shift from a 10- year for Caribbean countries with histories of severebasis for design standards to a 50-year basis hurricane damage.between now and 2050. This component is esti-mated by applying the same method of analysis to This modified approach has been used for allthe development baseline with no climate change. buildings including housing. The standardHence, it is possible to assess the separate costs of assumptions—reflecting changes in maximum