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Vanuatu Climate Change and Disaster Risk Reduction Policy
2016-2030
VANGO
Vanuatu Association of Non-Government Organization
Vanuatu ClimateChange and DisasterRisk Reduction Policy
2016-2030
GOVERNMENT OFTHE REPUBLIC OFVANUATU
Suva, Fiji, 2015
© Copyright Secretariat of the Pacific Community (SPC) 2015
All rights for commercial/for profit reproduction or translation, in any form, reserved. SPC authorises the partialreproduction or translation of this material for scientific, educational or research purposes, provided that the Vanuatu Ministry of Climate Change and the source document are properly acknowledged. Permission to reproduce the document and/or translate in whole, in any form, whether for commercial/for profit or non-profit purposes, must be requested in writing.
Original text: English
Secretariat of the Pacific Community cataloguing-in-publication data
Vanuatu Climate Change and Disaster Risk Reduction Policy 2016-2030 / Government of the Republic of
Vanuatu
- Climatic changes — Vanuatu.
- Environment — Management — Vanuatu.
- Climatic changes — Management — Vanuatu.
- Climatic changes — Government policy — Vanuatu.
- Disasters — Prevention — Vanuatu.
- Emergency management — Vanuatu.
I. Title II. Vanuatu III. Secretariat of the Pacific Community
577.22 099595 AACR2
ISBN: 978-982-00-0938-7
Prepared for publication at SPC’s Suva Regional Office, Private Mail Bag, Suva, Fiji, 2015 Printedby Quality Print, at Suva, Fiji, 2015
ACKNOWLEDGMENTS
This Vanuatu Climate Change and Disaster Risk Reduction Policy has been developed with support from the United NationsDevelopment Programme, Secretariat of the Pacific Community – German Agency for International Cooperation (SPC/GIZ), and the Australian Government.
The policy draws on work undertaken over a three-year period, including programs from 2011 funded by SPC/GIZ and the RiskGovernance Assessment of the National Advisory Board on Climate Change and Disaster Risk Reduction.
A wide range of national government ministries and departments have contributed to the development of this policy,
including participation in delivering provincial consultation workshops.
The advice and assistance of provincial governments and area councils in arranging and participating in provincial workshopsand providing feedback is acknowledged.
Many stakeholders, including the Council of Churches, Chamber of Commerce, and civil society organizations including the Vanuatu Climate Action Network and the Vanuatu Association of Non-Government Organizations have made contributions to this policy.
The policy working group guided the development of the policy, with membership from the Prime Minister’s Office, VanuatuMeteorology and Geo-Hazards Department, Department of Energy, Department of Environment, National Disaster Management Office, Vanuatu Climate Action Network, Vanuatu Humanitarian Team, Vanuatu Association of Non-GovernmentalOrganisations, United Nations Development Programme and SPC/GIZ.
Vanuatu Climate Change and Disaster Risk Reduction Policy • 2016-2030 iii
FOREWORD BY THE PRIME MINISTER
Vanuatu’s society, environment and economy are highly vulnerable to climatechange and disaster risks. The devastating consequences of the category 5 tropical cyclone in March 2015 and the subsequent severe El Nino eventhighlight our country’s risk from natural disasters. Predicted increases in extremeweather from climate change means we will face even greater impacts in the future. We also live with the threat of volcanic eruptions, earthquakes and tsunamis.
A key priority for the Vanuatu government is achieving sustainable and resilient development across all levels and sectors in our small island nation, by addressing the risks we face from climate change and disaster impacts. We needto collaborate with our partners to plan and prepare for, and respond to, these challenges.
It is vital that we make the best use of our human, natural and financialresources. For decades, climate change and disaster risk reduction were treated at global, regional and national levels as separate policy issues, leading to duplication of structures and funding. The Vanuatu Climate Change and Disaster Risk Reduction Policy is an important advance in integrating work in these overlapping fields, placing Vanuatu at the forefront of innovative approaches in the Pacific and internationally. The contributions of partnersin government, private sector, international agencies and especially civil society is acknowledged in the development of this policy.
This policy promotes good governance and establishes clear priorities for future action. It will deliver better information on andassessment of our climate change and disaster risks. Our key strategies are set out transparently to all stakeholders, including the community we serve, international donors and agencies. The policy builds on our existing systems and cultural heritage toimprove Vanuatu’s resilience, and incorporates monitoring and evaluation of projects and outcomes, and capturing experienceand lessons learned to inform planning and good practices.
Coordination and communication at all levels of government and across sectors and communities are crucial to the effective implementation of this policy. Provincial authorities and area councils play key roles, in line with decentralization.
The policy promotes active participation and engagement of all groups in society, recognizing their different priorities, skills and knowledge in addressing climate and disaster risks. Women and vulnerable groups — including the elderly, disabled and youth — will share in planning, decision-making and community action. I welcome this initiative to build Vanuatu’s resilience andsupport the sustain development of our community, environment and economy.
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7.5 Low carbon development........................................................................................................................................................................ 20
7.5.1 Energy road map, renewable energy and energy efficiency.......................................................................................... 20
7.5.2 Mitigation and REDD+.................................................................................................................................................................. 21
7.6 Response and recovery........................................................................................................................................................................... 22
7.6.1 Planning............................................................................................................................................................................................. 22
7.6.2 Preparedness.................................................................................................................................................................................. 23
7.6.3 Community awareness................................................................................................................................................................ 24
7.6.4 Early warning systems................................................................................................................................................................. 24
7.6.5 Post-disaster assessment........................................................................................................................................................... 25
7.6.6 Recovery........................................................................................................................................................................................... 25
8 Cross-cutting issues........................................................................................................................................................................................... 26
8.1 Capacity building........................................................................................................................................................................................ 26
8.2 Gender and social inclusion................................................................................................................................................................... 26
8.3 Multi-hazard approach............................................................................................................................................................................. 27
8.4 Partnerships................................................................................................................................................................................................. 27
8.5 Mainstreaming............................................................................................................................................................................................. 27
9 Implementation.................................................................................................................................................................................................... 28
9.1 Integration into corporate and business plans................................................................................................................................ 28
9.2 Monitoring and evaluation....................................................................................................................................................................... 28
9.3 Reporting....................................................................................................................................................................................................... 28
9.4 Policy review................................................................................................................................................................................................ 28
Sources consulted................................................................................................................................. 30
Attachment 1 — Glossary of terms used in this Vanuatu Climate Change and Disaster Risk Reduction Policy................ 31
Attachment 2 — Functions and membership of the National Advisory Board on Climate Change & Disaster Risk
Reduction and the NAB Secretariat..................................................................................... 32
Attachment 3 — Stakeholder roles and responsibilities........................................................................................................................... 34
Attachment 4 — Diagram of the structure of the Vanuatu Climate Change and Disaster Risk Reduction Policy............... 36
Attachment 5 — Consultation schedule......................................................................................................................................................... 37
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ABBREVIATIONS
CSOs | Civil Society Organisations |
GIZ | Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH (German Agency for InternationalCooperation) |
MCC | Ministry of Climate Change |
NAB | National Advisory Board on Climate Change and Disaster Risk Reduction |
NDMO | National Disaster Management Office |
NSDP | National Sustainable Development Plan |
PMO | Prime Minister’s Office |
PRRP | Pacific Risk Resilience Program |
SPC | Secretariat of the Pacific Community |
SRDP | Strategy for Climate and Disaster Resilient Development in the Pacific |
UNDP | United Nations Development Program |
UNFCCC | United Nations Framework Convention on Climate Change |
Vanuatu Climate Change and Disaster Risk Reduction Policy • 2016-2030 vii
EXECUTIVE SUMMARY
Vanuatu is one of the most vulnerable countries in the world to climate change and disaster risks. The island nation experiences cyclones, storm surges, landslides, flooding and droughts, which may become more intense as a result of climate change. Vanuatu is also highly exposed to geophysical threats such as volcanic eruptions, earthquakes and tsunamis, as well as human,animal and plant diseases, and human-caused disasters.
The vision of this Climate Change and Disaster Risk Reduction Policy is for Vanuatu to be a nation whose communities,environment and economy are resilient to the impacts of climate change and disaster risks. Risks cannot be completelyeliminated, however this policy provides a framework through which risks can be identified, assessed, reduced and managed.
At the global, regional and national levels, disaster risk reduction and climate change agencies, activities and funding have been previously managed separately. A recent shift in philosophy now views the integration of climate change and disaster riskreduction initiatives as the best way to make use of resources and avoid duplication of effort. Vanuatu started this processwith the establishment of the National Advisory Board on Climate Change and Disaster Risk Reduction in 2012.1 Thegovernment undertook a risk governance assessment to analyse Vanuatu’s climate change and disaster risk governancecapacity and needs at both national and local levels.2 The policy incorporates recommendations from that assessment anddraws on local, provincial and national consultations.
The policy will apply six principles: 1) accountability, 2) sustainability, 3) equity, 4) community focus, 5) collaboration, and 6) innovation. It aims to be accessible to and implemented by all government agencies and non-governmental stakeholders. Thepolicy takes a practical approach, taking into consideration Vanuatu’s resources, exposure to risks, and demographic situation. Itseeks to strengthen existing capacity at national, provincial and area council levels, drawing on the country’s rich heritage, traditional knowledge and the lessons learned from the broad range of initiatives regarding climate change and disaster riskreduction.
The government of Vanuatu is committed to six key priorities to direct the country’s climate change and disaster risk reductionefforts. These priorities fall into two categories — systems and themes.
Systems include governance, finance, knowledge and information, while themes include climate change adaptation and disasterrisk reduction, low carbon development, and response and recovery.
A number of cross-cutting issues have also been considered in developing this policy and will be applied duringimplementation, including social and gender inclusion, capacity building, multi-hazard approaches, partnerships andmainstreaming into the business of a broad range of agencies and sectors. While the policy includes high-level strategies, detailedactions, lead and support agencies, resources and timelines will be further developed for implementation.
1 The National Advisory Board on Climate Change and Disaster Risk Reduction was officially established by the Council of Ministers Decision in 2012, and is supported in its design andestablishment by the Secretariat of the Pacific Community-German Agency for International Cooperation (GIZ) ‘Coping with Climate Change’ programme.
2 The risk governance assessment, which resulted in the ‘Risk Governance Assessment Report: Strengthening Climate and Disaster Risk Governance in Vanuatu’, was undertaken from August to December 2013 by independent consultants supported by the United Nations Development Programme’s Pacific Regional Risk Resilience Programme and Australian Aid,and endorsed by the National Advisory Board in February 2014.
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1 PURPOSE
The purpose of this policy is to:
- articulate Vanuatu’s vision, principles, strategic goals, priorities and strategies for climate change and disaster risk reduction;
- provide the framework for mainstreaming climate change and disaster risk reduction into sustainable developmentprocesses;
- improve coordination and planning of programmes, projects and funding across ministries, departments, development
partners, academia, civil society organisations (CSOs) and the private sector;
- ensure that stakeholders, including donors, CSOs, the private sector and communities understand and align themselves and their actions with Vanuatu’s policy direction;
- strengthen the ability of governance and financial systems to access additional funds, enabling more equitable
sharing in resourcing relative to Vanuatu’s high level of vulnerability; and
- facilitate accountability through monitoring, evaluation and reporting.
2 VISION
The vision for the Vanuatu Climate Change and Disaster Risk Reduction Policy is: ‘Vanuatu is a resilient community, environmentand economy’.
3 PRINCIPLES
The principles guiding development and implementation of this policy are:
- Accountability – incorporating rigorous processes, transparent decision-making and public reporting to ensure appropriate use of resources, and steering the climate change and disaster risk reduction agenda;
- Sustainability – strengthening existing systems through building on experience, learning from events, activities and good practice to ensure continuity beyond the short and medium term;
- Equity – providing opportunities for meaningful participation by all groups in society, including women, youth, the elderly, people with disabilities, remote communities; valuing traditional practices; and engaging with all levels of government,industry sectors, development partners, donors, academia, regional and international bodies;
- Community focus – empowering communities at the local level through a bottom-up approach, drawing on local skills, values and traditional knowledge, and enhancing decentralisation in planning, programmes and projects;
- Collaboration – partnering among government, regional, global and national CSOs, private sector, development partners, donors, and academic institutions to build networks and share knowledge and information; and
- Innovation – enabling dynamic systems that are science and evidence based, adaptable to changing situations,incorporating traditional knowledge and practice, emerging trends, technological advances and local contexts.
4 DEFINITIONS
To avoid confusion surrounding the terminology for climate change and disaster risk reduction, definitions used in this policy are in line with those that have been internationally and regionally agreed upon. While nationally relevant terminology has been developed for Vanuatu for disaster risk management, climate change terms will be addressed through the National Advisory Board on Climate Change and Disaster Risk Reduction (NAB). For the purpose of this policy, climate change termsare defined in Attachment 1.
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5 CONTEXT
5.1 POLICY CONTEXT
5.1.1 GLOBAL
At the global level, the United Nations Office for Disaster Risk Reduction (UNISDR) Sendai Framework for DisasterRisk Reduction 2015–2030 seeks to prevent new and reduce existing disaster risks, and aims to achieve a substantial reduction of disaster risk and losses in lives, livelihoods and health and in the economic, physical, social, cultural and environmental assets of people, businesses, communities and countries over the next 15 years. The Sendai Framework carries forward from the UNISDR Hyogo Framework for Action 2005–2015: Building the Resilience of Nations and Communities to Disasters.
The four priorities for action under this framework are:
- understanding disaster risk reduction;
- strengthening disaster risk governance to manage disaster risk;
- investing in disaster reduction for resilience; and
- enhancing disaster preparedness for effective response, and to build back better in recovery, rehabilitation and reconstruction.
The United Nations Framework Convention on Climate Change (UNFCCC) was endorsed in 1992. Since that time, a largenumber of climate change mitigation and adaptation measures and approaches have been agreed to at the international level. Tools to achieve these goals include national adaptation plans (NAPs) for priority activities to address climate change adaptation needs and priorities.
Under the UNFCCC, national communications are required to report on national greenhouse gas emissions and actions taken or to be taken to reduce these. These communications also report on current and expected climate change on various sectors, and include implemented and anticipated adaptation activities. The document is valuable for planning and development related to climate change. Vanuatu’s priority actions related to climate adaptation and mitigation are contained within the IntendedNationally Determined Contribution document.
The UNFCCC provides a number of climate change funding initiatives. Implementing entity accreditation enables countries to directly access substantial funding under the Adaptation Fund and the Green Climate Fund. A new international agreement onclimate change is expected to be made in 2015 and will include enforceable actions to be undertaken by all parties of developedand developing nations.
5.1.2 REGIONAL
At the regional level, the Secretariat of the Pacific Community (SPC) and the Secretariat of the Pacific Regional EnvironmentProgramme have jointly facilitated the development of a proposed Strategy for Climate and Disaster Resilient Development in thePacific (SRDP) 2016, with an overall goal to strengthen the resilience of Pacific Island communities to the impacts of slow and sudden onset natural hazards by developing more effective and integrated ways to address climate and disaster risks, within thecontext of sustainable development. The new strategy is proposed to replace the Pacific Islands Framework for Action on ClimateChange 2006–2016 and the Pacific Regional Disaster Risk Reduction and Management Framework for Action 2005–2016.
The proposed SRDP identifies three goals:
1) strengthened integrated risk management to enhance climate and disaster resilience;
2) low carbon development; and
3) strengthened disaster preparedness, response and recovery.
The Vanuatu Climate Change and Disaster Risk Reduction Policy is aligned with these goals through its themes of climate changeadaptation and disaster risk reduction, low carbon development, and response and recovery. The strategies
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under this policy have been developed in light of the regional direction provided in the SRDP. This policy is also aligned withthe Melanesian Spearhead Group Declaration on Environment and Climate Change 2012.
5.1.3 NATIONAL
In 2012, the government of Vanuatu established institutional arrangements for joint governance of climate change and disaster risk reduction through the NAB and a Climate Change and Disaster Risk Reduction Project Management Unit within the Vanuatu Meteorology and Geo-Hazards Department. This represents a proactive approach to integrating key governancestructures at the national level.
As a further key step, the NAB commenced a risk governance assessment in 2013 to strengthen systems and provide a way forward in implementing climate change and disaster risk reduction measures. The risk governance assessment report was endorsed in February 2014 and its recommendations are being implemented. Dedicated NAB Secretariat positions are being established under a key recommendation to support NAB oversight of climate change and disaster risk reduction initiatives across Vanuatu. Representation of a broad range of agencies, together with CSOs on the NAB, provides a framework formainstreaming across sectors and inclusive planning and decision-making.
Functions and membership of the NAB and Secretariat are found in Attachment 2.
The proposed governance structure of the National Advisory Board on ClimateChange and Disaster Risk Reduction.
The government of Vanuatu is currently preparing a 15-year National Sustainable Development Plan (NSDP) for endorsement. The NSDP is proposed to come into operation in 2016, and will incorporate three pillars: economic, environment and social, underpinned by a focus on culture. Like its predecessor — the Priorities and Action Agenda 2006–2015 and its Plan Long Act Short 2013–2016 document — the new NSDP identifies climate change and disaster risk reduction as key priorities forgovernment. This policy is aligned with the directions of the NSDP.
Climate change and disaster risk reduction interventions are relatively new and rapidly growing areas that require increasing levels of planning and coordination. This is particularly evident given the large number of stakeholders involved in this
Vanuatu Climate Change and Disaster Risk Reduction Policy • 2016-2030 4
work in Vanuatu, including government at all levels, various sectors, donors, regional bodies, academic institutions, CSOs andcommunities. As a country that is highly vulnerable to climate and disaster risks, and one that has limited resources and competing needs, it is crucial for Vanuatu to use existing and potential resources more strategically and effectively. Agencies commonly have climate and/or disaster human resources now in their structure as well as dedicated sectoral units; for example,the Ministry of Agriculture’s newly launched Risk and Resilience Unit3.
Vanuatu has had great success with mainstreaming climate change and disaster risk reduction into sector policies,4 including theOverarching Productive Sector Policy, National Forest Policy, Agriculture Sector Policy, National Curriculum Statement, National Environment Policy, Tourism Strategic Action Plan, National Land Use Planning Policy, and the National LivestockPolicy. Vanuatu’s Disaster Risk Reduction and Disaster Management National Action Plan 2006–2016 maps out priorities and apathway for disaster risk reduction and management, although it has not yet been fully revised to address climate changeconsiderations.
Vanuatu’s National Adaptation Plan of Action 2006 listed priority adaptation strategies for the country. The plan focused on immediate actions — without taking a strategic approach — by compiling project concepts, many of which have now been implemented, around agriculture and food security, sustainable tourism development, community-based marine resourcemanagement, sustainable forestry management and integrated water resource management.
The draft Vanuatu Climate Change Strategy 2007 and draft Climate Change Adaptation Strategy 2011 aimed at providing high-level direction and addressing policy gaps in the climate change adaptation space, but neither strategy was formally endorsed.
This policy incorporates key elements of all pre-existing plans, and builds on progress previously made in these fields. Further work is proposed to develop a new National Adaption Plan to replace the National Adaptation Plan of Action. This policy andits implementation documents will integrate climate change and disaster risk reduction policy under one framework, effectivelysuperseding all previous documents.
3 Mainstreaming climate change and disaster risk reduction into sector policies, plans and strategies has been supported by the Secretariat of the Pacific Community-German Agency for International Development (GIZ) Coping with Climate Change in the Pacific Islands programme.
4 The Ministry of Agriculture, Livestock, Forestry, Fisheries and Biosecurity established the Risk and Resilience Unit under its corporate structure with six full-time officers supported bythe Secretariat of the Pacific Community-German Agency for International Development (GIZ) and the United Nations Development Programme. The role of this unit is to liaise with theNational Advisory Board and to further strengthen climate change adaptation and risk reduction among its line departments through to the grassroots level, including coordinating the food security cluster’s responsibilities in response to disasters.
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This policy takes into consideration the perspectives, needs and capacities of diverse groups of people across Vanuatu, includingwomen, youth, the elderly, people with disabilities and remote communities by recognising their importance in acting as agents of change to manage climate and disaster risks. These groups will also be meaningfully involved in planning and implementation.
5.1.4 LOCAL
Vanuatu has a rapidly growing population in both urban and rural areas, and there is a high level of reliance on natural resources for livelihoods and food security. Subsistence farming is a major feature of life in Vanuatu’s villages. These factors add to thevulnerability of communities to the impacts of climate change and disaster risks.
The nation’s many small islands spread across vast areas of ocean, and diverse cultures and languages and limited infrastructuremake their remoteness a challenge.
Traditional knowledge remains highly valued and well used in Vanuatu. Traditional coping and early warning mechanismscontribute to existing community resilience, which must be built on, promoted and empowered through climate change and disaster risk reduction initiatives. Modern technology has been embraced in Vanuatu, with wide uptake of mobile phones and Internet resources assisting in communications and reaching a high proportion of the population. However, some remote areasremain excluded from modern communications coverage.
Vanuatu’s diverse local governance systems include traditional chiefs as leaders at the village level, along with village, area and island councils. Each province has a Technical Advisory Commission of provincial and national government representativesestablished under the Decentralisation Act to coordinate government services at the provincial level.
Many programmes and projects are being undertaken by government and partner agencies to build resilience at the local level. Development frameworks at global, regional and national levels need to build on existing capacities and link with communityaspirations and initiatives to achieve the grassroots objectives of sustainable development.
All stakeholders are expected to play a part in the implementation of this policy, and so their indicative roles and responsibilities in Vanuatu are outlined in Attachment 3.
5.2 RISK CONTEXT
A 2012 United Nations report assessed Vanuatu as one of the most highly exposed countries in the world to disaster risks5.Vanuatu is vulnerable to a range of hazards, including volcanic eruptions, earthquakes, tsunamis, cyclones, climate variability,storm surge, landslides, droughts and flooding.
A profile of risks due to climate change and geohazards in Vanuatu has been developed and is available to guide planning anddecision-making. Some of these climate change-related hazards include the following:
- by 2040, daily temperatures will increase from 1995 levels by 1.2°C;
- sea level rise will continue and accelerate;
- ocean acidification will degrade 80% of coral reefs within 20 years;
- extreme temperatures will reach higher levels and become more frequent;
- extreme weather events, including cyclones and storms, will increase in intensity but not necessarily infrequency;
- dry periods will last longer; and
- extreme rainfall will be more frequent and intense.
Potential impacts of climate change on Vanuatu’s agriculture, fisheries, forestry, tourism, health, transport and infrastructuresectors were considered. Projected consequences of climate change include:
- reduced availability of fresh water;
5 The World Risk Report 2012 was published by Alliance Development Works (Bündnis Entwicklung Hilft) in collaboration with the United Nations University Institute forEnvironment and Human Security and The Nature Conservancy.
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- shifts in crop seasonality of harvest, planting and fruiting;
- more pests and diseases of animals, crops and trees;
- saltwater inundation and intrusion of coastal land and groundwater;
- compromised food security;
- coral reef deterioration;
- reduced fisheries productivity;
- increased risk of human disease and health problems, including vector-borne disease transmission and heat-related illness;
- damage to infrastructure;
- loss of coastal land; and
- reduced economic growth and revenue generation.
The risk profile also found that risks from geo-hazards in Vanuatu are well understood, but major challenges exist due touncertainty of frequency and intensity.
5.3 FINANCIAL CONTEXT
Although Vanuatu is one of the most vulnerable countries in the world to climate change and disasters risks, it receives
little funding for climate change adaptation and disaster risk reduction actions.
Over the next decade, industrialised countries are expected to provide increasing amounts of funding for adaptation, mitigation and disaster risk reduction actions in developing nations. To obtain its share of this funding, it is important that Vanuatu demonstrates effective systems of governance and financial management. In the past, many donors have bypassed governmentsystems and set up stand-alone units to manage projects. This practice does little to develop and strengthen systems of nationalgovernance and is wasteful in duplicating efforts.
A priority of this policy is to strengthen the current system of governance and financial management so that development partners and Vanuatu communities have confidence that available funding is used cost-effectively. In line with this objective, this policy sets the specific target of achieving implementing entity accreditation under the Adaptation Fund and Green Climate Fund.
This accreditation will help maximise the resources available to adapt to climate change and reduce disaster risks, and deliver a significant upgrade to Vanuatu’s systems of governance and financial management. This will enable the country’sdevelopment and resilience building needs to be met more effectively.
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6 STRATEGIC GOAL
Vanuatu’s strategic goal for climate change and disaster risk reduction is resilient development.
Resilient development includes activities that enable and strengthen capacities to absorb and quickly bounce back from climate and/or disaster shocks and stresses. This goal will drive planning, decision-making, programming and project deliveryacross government and its partners, and is aligned with the Vanuatu government’s National Sustainable Development Plan 2016–2030.
7 STRATEGIC PRIORITIES
Six strategic priorities for this policy that will contribute to achieving the strategic goal are grouped under two categories:
systems and themes.
Strategic priorities that are categorised as systems include governance, finance, and knowledge and information. The strategic priorities that are categorised as themes include climate change adaptation and disaster risk reduction, low carbon development,and response and recovery.
Subsequent strategies are intended to deliver on each strategic priority. In implementing the strategies, key actions are identified and supported by lead and support agencies, resources and timelines. A summary table of all actions in this policy is found in Attachment 4.
An overview diagram of the policy structure is in Attachment 5.
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7.1 GOVERNANCE
This policy’s objective with regard to governance is to enhance strategic frameworks and institutional structures to deliver effective climate change and disaster risk reduction initiatives in a coordinated, integrated and complementary manner.
The vulnerability of ni-Vanuatu (i.e. indigenous Vanuatu people) communities to disaster and climate change impacts draws attentionto the human dimensions of risk management. Vulnerability levels are influenced by: 1) the consideration of risk and resilience aspart of policy and planning processes; 2) consistency in approaches; 3) compliance with or enforcement of policy and standards; 4)inclusion of vulnerable groups; and 5) unified pilot or sector entry point approaches to building whole-of-government capacitiesand resilience. Effective governance is vital to ensure accountable decision-making and responsible use of resources. Elements of good governance include strong institutions, transparent processes, robust financial management, and participation from varioussocietal groups.
7.1.1 INSTITUTIONAL STRUCTURES
Issues of leadership, sectoral buy-in, clarity of roles and flexibility to stakeholder demands present governance challenges in Vanuatu. Many stakeholder agencies are not fully engaged with the NAB due to limited resources at the sector level,unregulated participation in the fields of climate change and disaster risk reduction, and a limited sense of ownership in the NABprocess.
Actions
Establish and strengthen institutional structures to effectively undertake their functions through:
- strengthening the government and NAB Secretariat’s capacity to effectively perform NAB strategic supportroles, and the Project Management Unit to undertake project management functions;
- establishing and strengthening coordination mechanisms for climate change and disaster risk reductioninitiatives at the provincial level via the NAB, particularly through the Department of Local Authorities, toguide community-based activities;
- strengthening climate change and disaster risk reduction capacity of provincial, municipal and area councilpersonnel;
- facilitating the equal and active participation of vulnerable groups in decision-making bodies at all governance levels via all partners and stakeholders;
- building and strengthening the capacity of government and partners to actively engage and participate in majorinternational or regional framework processes;
- strengthening the capacity of local groups such as the Vanuatu Association of Non-Government Organisations,Vanuatu Climate Action Network, and the Vanuatu Humanitarian Team through government assistance, inrecognition of their key role in representing local CSOs in the climate and disaster space;
- strengthening provincial disaster and climate change committees and community disaster and climate change committees and municipal committees, such that bottom-up planning is acknowledged and considered in national decision-making;
- strengthening traditional governance systems through partnerships among government, civil society,development partners, academia and the private sector;
- strengthening faith-based governance systems to implement climate change and disaster risk reduction activitiesvia multi-stakeholder collaboration; and
- acknowledging and encouraging CSOs, the private sector and networks (including Vanuatu Climate Action Network and the Vanuatu Humanitarian Team) in contributing to climate change and disaster risk reductiondecision-making and implementation.
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7.1.2 LEGISLATION AND POLICY FRAMEWORKS
Given developments internationally, regionally and locally in the governance and disaster risk contexts, and the emergence of global warming and climate change as key policy challenges, it is crucial that Vanuatu’s legislation is reviewed and updated with contemporary practices.
In reviewing and developing new legislation, consistency with Vanuatu’s Constitution and existing legislation must beconsidered. Arrangements between the government of Vanuatu and the international community must be made to ensure timely and appropriate provision of support for disaster response and recovery efforts. Approaches must be developed to facilitate effective international disaster response assistance.6
6 International Federation of Red Cross and Red Crescent Societies (2012) International Disaster Response Laws, Rules and Principles in Vanuatu: A study on Vanuatu’s Legal and Policy Framework for Managing Foreign Disaster Response. Through the lens of the Cyclone Pam response, several locally based non-governmental organisations produced a report entitled ‘One Size Doesn’t Fit All: Tailoring the International Response to the National Need Following Vanuatu’s Cyclone Pam with a view to informing the Pacific Regional Consultation forthe World Humanitarian Summit’. The paper suggests four key areas for action to reduce vulnerability, how to manage risk, and how to more effectively respond to disasters throughoutthe Pacific.
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7.1.3 INTERNATIONAL AND REGIONAL OBLIGATIONS
The government of Vanuatu, as a member of the global and regional community, must take a proactive role in climate change and disaster risk reduction negotiations as well as fulfil its obligations under the related climate change and disaster international agreements.
7.1.4 STRATEGIC AND BUSINESS PLANS
The preparation of Vanuatu’s NSDP has provided an opportunity to integrate climate change and disaster risk reduction activitiesinto the country’s highest development planning framework. Ministries and line agencies will similarly integrateimplementation activities under their corporate and business plans. Provincial and area councils, guided by the Department of Local Authorities, will ensure that climate change and disaster risk considerations are incorporated into local developmentplanning and budgeting processes.
7.1.5 MONITORING AND EVALUATION
Effective monitoring and evaluation (M&E) systems are crucial to good governance. Vanuatu must progress effective, nationallyaligned and relevant monitoring, evaluation and learning processes for the wide range of climate change and disaster risk reduction projects and initiatives currently being implemented through various government agencies, development partners and CSOs.
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7.2 FINANCE
This policy’s objective with regard to finance is to ensure that adequate resourcing is available for climate change and disaster risk reduction activities, build financial capacity to manage resources, and enable access to increased international funding. Robust financial systems must be in place and operating effectively for Vanuatu to gain access to and ensureaccountable management of substantial climate change and disaster risk reduction funding.
7.2.1 FUNDING ALLOCATIONS
For Vanuatu to achieve progress on the full range of priorities identified in this policy, it willneed the support of development partners and donors, and commitment from all levels ofgovernment and stakeholders. Given the cross-cutting nature of climate change and disasterrisk reduction, funding from the budgets of ministries, departments, provincial governments,area councils, CSOs and industry sectors will be required to enable and implement climate change and disaster risk reduction measures.
7.2.2 IMPLEMENTING ENTITY ACCREDITATION
Implementing entity accreditation provides direct access to finance, enhances harmonisation with national plans, builds capacity, improves ownership and accountability, and avoidsduplication with national systems, plans and priorities. It would also better target national priorities and reduce transaction costs under other financing modalities.
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It is difficult for smaller countries to gain implementing entity accreditation given their capacity constraints; therefore,substantial work is needed across a range of areas to meet the requirements. In implementing Vanuatu’s National ImplementingEntities Accreditation Roadmap, provincial, municipal and area councils must be engaged with the support of developmentpartners.
7.2.3 SMALL GRANTS SCHEMES
A goal of this policy is to establish small grants schemes that channel funding to approved community-based organisa- tions and individuals for adaptation and disaster risk reduction projects.
Small grants schemes can provide incentives for communities to develop and implement climate change and disaster risk reduction plans, and allow communities to direct funds to local priorities, thereby improving awareness and owner- ship. Thisapproach is aligned with the government’s policy on decentralisation, and builds capacity at the provincial and
area council level.
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7.3 KNOWLEDGE AND INFORMATION
This policy’s seeks to meet stakeholders’ needs for climate change and disaster risk knowledge and information, and improvecommunication-related interventions that empower appropriate climate and disaster risk management actions.
Vanuatu’s information management for climate change and disaster risk management will be improved to enable informed decision-making for planning, development and disaster operations and development of accurate community awareness tools.
7.3.1 INFORMATION MANAGEMENT
7.3.2 TRADITIONAL KNOWLEDGE
People in Vanuatu have long-held traditional practices to deal with temperature and rainfall variability, cyclones and geologicalhazards. These have started to be systematically documented and incorporated into planning processes, and further work is urgently required. Stakeholders at provincial and community levels place high importance on respecting, recording and sharingtraditional knowledge, including traditional early warning and coping mechanisms.
7.3.3 KNOWLEDGE SHARING
Much progress has been made in collaboration among agencies and the use of networks to collect and disseminate information,and further work is required, particularly in building linkages with regional educational and learning networks. Awareness sessions provide useful information to small audiences at the provincial and community levels, and this approach can be strengthened with the use of new information and communications technology tools, more effective resource use and collaboration acrossorganisations.
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7.3.4 LESSONS LEARNED
Learning from experience is an essential element of continuous improvement for organisations, and this is particularly important in the context of disaster risk reduction. Systems must be developed to document experiences and lessons learned during and after a climate or disaster related impact.
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7.3.5 DATA ANALYSIS
Up-to-date, accurate climate change and disaster risk reduction data and technical analysis of that data are essential for the government of Vanuatu and relevant parties to make informed decisions for development planning, targeted communityawareness, preparedness and response.
7.3.6 RESEARCH
In addition to furthering climatological research, efforts also need to be made in researching social and economic elements ofclimate and disaster resilience, including community vulnerability and capacity, and adoption of appropriate adaptationapproaches.
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7.3.7 RISK ASSESSMENT
Risk assessment is essential to disaster risk reduction and climate change adaptation processes, and involves a process of establishing hazard exposure, sensitivity, consequences, vulnerable elements, scale and adaptive capacities. Risk assessmentenables informed decision-making and communication to stakeholders, and should be the basis of all climate change and disaster risk reduction activities. Technical assistance may be required to augment the risk assessment expertise available within Vanuatu.
7.4 CLIMATE CHANGE ADAPTATION AND DISASTER RISK REDUCTION
The objective here is to integrate and strengthen climate change adaptation and disaster risk reduction initiatives across national,provincial and local levels, and across all sectors.
Successful climate change adaptation and disaster risk reduction actions in Vanuatu require co-implementation that is inclusive and builds on both indigenous and externally derived knowledge. It is essential that activities are coordinated among multiplepartners. Priority climate change adaptation and disaster risk reduction policy directives can be found at the sector level in a rangeof sector policies, plans and strategies.
7.4.1 CLIMATE AND DISASTER VULNERABILITY AND MULTI-SECTOR IMPACT ASSESSMENT
Vanuatu’s urban and rural communities are diverse requiring that climate adaptation and disaster risk reduction action be tailored to the unique characteristics of each individual community. Climate and disaster risk vulnerability assessments shall be undertakenwithin communities to inform the design of effective projects and programmes, considering all
utilising nationally available expertise for vulnerability assessments,incorporating |
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utilising vulnerability assessments, multi-hazard and social risk mapping and approachesas the basis of all adaptation and risk reduction actions; conducting participatory vulnerability assessments prior to implementation; |
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sectors relevant to the local context, and inclusive of all stakeholders.
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7.4.2 INTEGRATED CLIMATE CHANGE ADAPTATION AND DISASTER RISK REDUCTION
Vanuatu is leading a regional shift in the way it integrates climate change and disaster risk reduction governance and
implementation, which in turn leads to more efficient service delivery and streamlined approaches.
7.4.3 COMMUNITY-BASED ADAPTATION AND DISASTER RISK REDUCTION
Enabling communities to increase their capacity to adapt to ongoing and uncertain changes requires active collaboration among government, partner agencies, CSOs, and particularly vulnerable and marginalised groups, in developing and deliveringcommunity-based adaptation and risk reduction programmes.
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7.4.4 LOSS AND DAMAGE
Vanuatu will establish mechanisms to assess and redress loss and damage incurred as a result of climate change. Dialogue hasbeen undertaken on a broader concept of risk reduction, sharing and transfer, insurance and rehabilitation, through internationalplatforms such as the Warsaw International Mechanism for Loss and Damage.
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7.4.5 ECOSYSTEM-BASED APPROACHES
Vanuatu’s diverse ecosystems are being threatened by climate change as are the livelihoods and wellbeing of the ni- Vanuatu people who rely on them for income and food. Ecosystems provide cost- effective adaptation services, and effective naturalresource management can minimise the risks of climate change and disasters while enhancing livelihoods resilience. This policy is aligned with the National Environment Policy that prioritises climate change adaptation and disaster risk reduction measures.
7.5 LOW CARBON DEVELOPMENT
The objective of low carbon development is to expand sustainable development opportunities that reduce carbon emissions and simultaneously contribute to resilient livelihoods and wellbeing. In the global context, Vanuatu’s actions have a minimal impacton climate change. However, renewable energy and energy efficiency investments have significant benefits in terms of minimising negative impacts on the environment, and mitigating climate change. Conservation of the natural environment is vital to reducing emissions from deforestation and forest degradation. Sustainable tourism and other green development activities can bring substantially higher social, economic and environmental benefit and resilience than high carbon developments.
7.5.1 ENERGY ROAD MAP, RENEWABLE ENERGY AND ENERGY EFFICIENCY
The government of Vanuatu endorsed the Vanuatu National Energy Road Map 2013–2020, implemented by the Department ofEnergy, which commenced in March 2013. This document provides for Vanuatu’s future strategic direction on energy, includingclimate change mitigation, through increased use of renewable and geothermal energy. The road map will play a vital role inshaping renewable energy demand, energy efficiency and carbon dioxide emissions, and meeting proposed carbon intensitytargets and climate commitments in the NSDP. A mid-term review of the road map will outline the energy sector’s implementationplans to achieve the climate change and disaster risk-reduction commitments.
An energy sector priority identified in the road map is mitigating climate change through renewable energy, energy efficiencyand conservation. A further objective is to reduce reliance on imported diesel and petroleum products through efficiency improvements in the transport sector and investment in renewable energy in the power generation sector. Many of Vanuatu’s specific priorities are also outlined in the Intended Nationally Determined Contribution document submitted to the United Nations Framework Convention on Climate Change.
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7.5.2 MITIGATION AND REDD+
The government of Vanuatu is undertaking REDD+ (Reducing Emissions from Deforestation and Forest Degradation)Readiness to enhance mitigation efforts in forest management. Its objective is to strengthen Vanuatu’s capacity todesign a socially and environmentally inclusive national strategy for reducing emissions from deforestation and forestdegradation. It will also provide for conservation, sustainable forest management, and enhancement of forest carbonstocks. National mitigation considerations should equally consider forest and terrestrial (green) carbon sinks, as well asoceanic, coral reef, and seagrass (blue) sinks.
7 “Green Carbon” refers to Carbon which is incorporated into plant biomass and the soils below, while “Blue Carbon“ refers to Carbon which is captured by oceanic and marine
organisms including by coastal habitats such as coral reefs, sea grasses and marine sediments
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7.6 RESPONSE AND RECOVERY
The objective here is to strengthen and build capacity in the areas of disaster preparedness, planning, response and recovery.
The broad range of disaster risks facing Vanuatu creates many challenges. This is heightened by the isolation of many islands,diverse languages, low education levels and lack of infrastructure. There is an urgent need to build the resources and capacity of the disaster management system in Vanuatu to avoid gaps in planning, coordination, community awareness and engagement with other government agencies and stakeholders. Mainstreaming disaster response and recovery requires a holistic approach atthe international, national, provincial and community levels.
7.6.1 PLANNING
Planning is a key tool to articulate direction and guide future activities within government and with stakeholders. Strong networks across sectors are vital to ensure inclusive participation in planning processes and effective implementation. Plans should be regularly reviewed and updated to align with emerging trends and changing circumstances in local, national, regional and global environments.
8 “Cluster” refers to the humanitarian coordination system used by the United Nations and includes groups of humanitarian organizations (UN and non-UN) working in the main sectors ofhumanitarian action, e.g. shelter and health. They are created when clear humanitarian needs exist within a sector, when there are numerous actors within sectors and when national authorities need coordination support. Vanuatu Clusters include gender/protection, logistics, food security, education, health, shelter, water, sanitation hygiene.
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7.6.2 PREPAREDNESS
Disaster preparedness is the business of a broad range of agencies and across all levels of government to the provincial and area council levels, depending on the nature of the event. Non-governmental organisations, international agencies and the private sector play key roles.
The remoteness of many of Vanuatu’s islands and communities presents challenges in preparedness and response coordination. Training is an important element of disaster risk management to ensure that agencies and stakeholders have the necessary skills and systems to support them. Training needs to be regularly reinforced, and collaboration should be promoted across partnerorganisations as part of comprehensive training programmes.
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7.6.3 COMMUNITY AWARENESS
Accurate, timely and relevant information must be available and accessible to a broad range of stakeholders and at agency and/ororganisational levels for effective disaster risk management. Given the remoteness of many of Vanuatu’s islands and the diversity of languages across the country, it is essential that communication reaches the entire population. Women, youth and people whoare elderly or have disabilities must be considered and engaged in targeting messages to these vulnerable groups within the community. Awareness and education needs to be carried out at all levels of society with appropriate contextual adjustments in content, to meet the specific requirements of target groups. This should include the use of multiple modes of communication including FM/HF radio, mobile phones, the Internet and social media.
7.6.4 EARLY WARNING SYSTEMS
Early warning systems must enable actions to be taken ahead of disaster impacts to reduce deaths, serious injuries and propertydamage. These systems should include sirens, public address messages, signage on shorelines and evacuation routes, and mobilephone, radio, television and Internet broadcasts. Traditional mechanisms must be incorporated in novel systems. The Vanuatu government has recently established an early warning system within the Vanuatu Meteorology and Geo-Hazards Department, using state-of-the-art technology and alongside the National Disaster Management Office) is mapping tsunami risks in urbanareas.
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7.6.5 POST-DISASTER ASSESSMENT
It is essential to make rapid assessments of impacts on communities following disaster impacts. This enables adequate resourcesto be applied to those most in need as soon as practicable through response and early recovery efforts.
The remoteness and diversity of many of Vanuatu’s islands and communities makes this particularly challenging. Post- disaster assessment teams must be well trained and equipped to undertake this task. Multiple partner agencies should work collaboratively in these roles in Vanuatu as part of the Vanuatu humanitarian team, including the NDMO, and other sector (cluster) agencies.
7.6.6 RECOVERY
Well-coordinated and resourced recovery efforts are needed to ensure the return of affected individuals, communities,government and other organisations to normal functioning as soon as possible following the initial response phase. The clustersystem should play a key role in recovery activities in Vanuatu.
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8 CROSS-CUTTING ISSUES
Cross cutting issues are those that by their nature are relevant to and impact all aspects of climate and disaster policy. Theytherefore need to be integrated into all programmes and activities undertaken in relation to those fields. The cross- cutting issues for this policy are to be considered and applied in planning, designing and implementing climate change and disaster risk reduction initiatives.
8.1 CAPACITY BUILDING
Vanuatu currently has very high technical climate change and disaster risk expertise, both within government and among itspartners. A needs and gap analysis is needed to assess current capacities and highlight areas where work is required from the national to provincial government and area council levels. Based on that analysis, a comprehensive national capacitydevelopment plan should be developed, setting out skill sets, technology and functional competencies required for the efficientimplementation of this climate change and disaster risk reduction policy.
There is a strong desire on the part of many Vanuatu-based CSOs and other players involved in environmental, social andeconomic development initiatives to engage with and operate within government systems and frameworks. Government seeksstrongly coordinated efforts and alignment with government priorities. CSOs and other players should be engaged and up skilledto enable them to comply with these government policy and processes.
8.2 GENDER AND SOCIAL INCLUSION
The Revised Pacific Platform for Action on Advancement of Women and Gender Equality 2005–2015, and a Regional Chartersets the direction for the Pacific Islands region in improving outcomes for women. A new regional policy document is expected tobe developed during 2015. Vanuatu’s Department of Women’s Affairs is preparing a gender policy.
Climate change and disaster risks impact greatly on the lives of women and their social and economic wellbeing. In disaster preparedness, as well as response and recovery, women make enormous contributions to the welfare of their communities. It is vital that women have full opportunities to participate in policy development, decision-making and implementation at all levels. Initiatives are under way to ensure that gender considerations are mainstreamed into all climate change and disaster risk reduction efforts, and efforts should be increased.
Women have historically been excluded from participating on committees and other decision-making forums, and their fullrepresentation needs to be assured. The interests of other social groups, particularly vulnerable community members, also need tobe represented in climate change and disaster risk reduction policy implementation. People with disabilities, the elderly, youth, those in remote locations and from diverse cultural groups need to be able to participate and receive the unique services beingprovided to meet their needs.
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8.3 MULTI-HAZARD APPROACH
The Sendai Framework for Disaster Risk Reduction at the global level states that an integrated, multi-hazard approach to disaster risk reduction should be factored into policies, planning and programming related to sustainable development, relief,rehabilitation, and recovery activities in post-disaster and post-conflict situations in disaster-prone countries.
Where resources are limited, a multi-hazard approach ensures that all available personnel, equipment and expertise can be utilised to address the full range of disaster risks: economic, environmental and social. This is the case whether these risks are weather or climate related, arise from geo-hazards, biosecurity based, or are human made. When used effectively in planning and preparedness activities, this approach leads to: 1) better coordination across agencies, 2) increased ability to draw on a broad and diverse range of resources, and 3) information sharing among stakeholders, which can improve response and recoveryefforts to the benefit of the community.
A multi-hazard approach has been adopted by NDMO in its planning, preparedness, response and recovery activities. Thisapproach will continue to be used in further initiatives to strengthen Vanuatu’s disaster risk management capacity. The past andcurrent use of a cluster system across government agencies and CSOs for disaster management demonstrates that Vanuatu’sstakeholders are committed to multi-stakeholder and multi-hazard approaches.
8.4 PARTNERSHIPS
A vast array of stakeholders are involved in climate change and disaster risk reduction activities in Vanuatu. Government at thenational, provincial, municipal and area council level must work together, alongside CSOs and industry sectors, to address these challenges. CSOs currently complement government initiatives by implementing and contributing to various sectoral policy directions. This effort needs to be strengthened. Development partners, regional organisations and academic institutions also have key parts to play in planning, research, outreach and project delivery. Collaborative mechanisms need to work effectively to ensure the alignment of goals, reduced duplication of effort, and efficient use of resources.
8.5 MAINSTREAMING
Mainstreaming can be an effective means of integrating cross-cutting issues into policy, plans and processes across levels of government and broad ranging sectors. It is widely used in the climate change and disaster risk reduction fields. Global and regional policy instruments adopt key concepts to describe how mainstreaming is achieved, including creating and operationalising a culture of risk management, resilience and safety; comprehensive analysis of risk; and access to informationfor the design of evidence-based solutions to reducing underlying risks and managing residual risk through people-centredpreparedness.
The means by which climate change and disaster risk reduction considerations are integrated across other fields include crosssector dialogue, leadership, policy guidance, capacity building, monitoring and evaluation, advocacy and education. Planning, budgeting and practice are also mechanisms to deliver mainstreaming objectives. In the climate change and disaster riskreduction contexts, national, sector and community risk and vulnerability assessments, as well as standard operating procedures,are vehicles for mainstreaming.
Planning is a key tool for mainstreaming climate change and disaster risk reduction across the government and its partners. Considerable progress has been made in integrating these considerations into the planning of other ministries and departments, including in forestry and tourism. Notably, the Ministry of Infrastructure and Public Utilities Corporate Plan 2015–2017 identifies climate change and disaster risk management as one of five objectives driving planning and operations. As new corporate and business plans are developed, climate change and disaster risk reduction needs to be incorporated to ensure that activities are aligned with risk reduction and sustainable development policy, and that roles and responsibilities are clear.
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9 IMPLEMENTATION
All stakeholders in the climate change and disaster risk reduction field in Vanuatu have responsibility for implementing thispolicy. The strategies under the policy should be integrated into the planning, budgeting and business operations of all levels of government, CSOs, industry sectors and stakeholders. Related policies and plans within the responsibilities of a range of agencies across government provide their own governance mechanisms, which are not replaced by NAB, but are complementary.
NAB will coordinate and oversee implementation of the policy. NAB will meet regularly in accordance with its terms ofreference to fulfil its roles and responsibilities, including providing leadership and oversight of the policy’s implementation. The NAB Secretariat will develop tools, including a decision making framework, to assist in managing NAB’s business. Supportfrom government and development partners would be needed to assist in these activities.
Under the strategies in this policy, actions, lead agencies, support agencies, resources, timelines, and monitoring and
evaluation measures will be developed.
9.1 INTEGRATION INTO CORPORATE AND BUSINESS PLANS
The directives of this policy should be mainstreamed into the business and corporate plans of all ministries and line agencies within the government. In addition, policy directives should be integrated into the planning documents of all non-governmentpartner organisations.
9.2 MONITORING AND EVALUATION
NAB will develop an M&E framework for this policy, aligning with the requirements of the Prime Minister’s Office and theproposed NSDP. The M&E system for the policy will measure and monitor changes over time, track the effectiveness ofclimate change and disaster risk reduction efforts, and guide future planning efforts. The intention of this policy is to move away from stand-alone, project-based M&E systems and move towards a single, integrated national climate change and disasterrisk and resilience M&E framework.
9.3 REPORTING
The NAB will oversee reporting on the policy at its regular meetings, supported by the NAB Secretariat. NAB will determine the frequency, form and level of detail of reporting it requires on activities under the strategies in this policy. An annual report onthe implementation of the policy will be prepared by NAB and made available to the public.
9.4 POLICY REVIEW
The time period of this policy is 2016-2030, which is aligned with Vanuatu’s National Sustainable Development Plan. A review of the policy will be undertaken every three to five years to assess whether it continues to be relevant to contemporary contexts and other developments in Vanuatu, the region and globally. NAB will oversee and consider the outcomes of the reviewof the policy and determine if and when it is to be amended or replaced.
Vanuatu Climate Change and Disaster Risk Reduction Policy • 2016-2030 28
29 Vanuatu Climate Change and Disaster Risk Reduction Policy • 2016-2030
SOURCES CONSULTED
Alliance Development Works, UN University Institute for Environment and Human Security (UNU-EHS) and The Nature Conservancy. 2012. The World Risk Report
International Federation of Red Cross and Red Crescent Societies. 2012. International Disaster Response Laws, Rules andPrinciples in Vanuatu: A Study on Vanuatu’s Legal and Policy Framework for Managing Foreign Disaster Response
Republic of Vanuatu. 2006. Vanuatu Disaster Risk Reduction and Disaster Management National Action Plan 2006–2016 Republicof Vanuatu. 2006. National Adaptation Plan for Action
Republic of Vanuatu. 2011. National Climate Change Adaptation Strategy (draft) Republic ofVanuatu. 2013. National Energy Road Map 2013-2020
Republic of Vanuatu. 2014. National Environment Policy (draft)Republic of Vanuatu. 2011. National Forest Policy 2011–2020 Republicof Vanuatu. 2012. National Land Use Planning Policy 2012
Republic of Vanuatu. 2015. National Sustainable Development Plan (draft)Republic of Vanuatu. 2012. Overarching Productive Sector Policy 2012–2017Republic of Vanuatu. 2006. Priorities and Action Agenda 2006–2015 Republicof Vanuatu. 2013. Plan Long Act Short 2013 – 2016
Republic of Vanuatu. 2014. Second National Communication to the United Nations Framework Convention on Climate Change(draft)
SPC. 2005. Revised Pacific Platform for Action on Advancement of Women and Gender Equality 2005–2015: A Regional
Charter
SPC. 2005. Pacific Regional Disaster Risk Reduction and Management Framework for Action 2005–2015 SPC and SPREP. 2015. Draft Strategy for Climate and Disaster Resilient Development in the Pacific (SRDP) SPREP.2006. Pacific Islands Framework for Action on Climate Change 2006–2015
SPREP and UNDP. 2013. Mainstreaming Climate Change Adaptation in the Pacific: A Practical Guide
UNDP. 2014. Risk Governance Assessment Report: Strengthening Climate and Disaster Risk Governance in Vanuatu UNDP. 2014.Climate Public Expenditure and Institutions Review, Vanuatu Report
UNISDR. 2005. Hyogo Framework for Action 2005–2015: Building the Resilience of Nations and Communities to Disasters UnitedNations. 1994. United Nations Framework Convention on Climate Change
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ATTACHMENT 1 - GLOSSARY OF TERMS USED IN THIS VANUATUCLIMATE CHANGE AND DISASTER RISK REDUCTION POLICY
CLIMATE CHANGE
Any change in climate that can be attributed directly or indirectly to human activity, and which alters the composition of the global atmosphere. Climate change also affects the hydrosphere, biosphere, cryosphere and lithosphere, and in addition tonatural climate variability, can be observed over comparable time periods. Climate change leads to a number of effects, including but not limited to:
- temperature variation;
- rainfall variation;
- sea level rise;
- extreme weather events (e.g. cyclones and storms) increasing in intensity, but not necessarily in frequency;
- ocean acidification; and
- an increase in sea surface temperature.
CLIMATE CHANGE ADAPTATION
In human systems, the process of adjustment to actual or expected climate change and its effects, in order to moderate harm or exploit beneficial opportunities. In natural systems, the process of adjustment to actual climate and its effects; human intervention may facilitate adjustment to expected climate. It is a response to the impacts of climate change, including addressing adverse effects arising from climate change or the possibility of change on any part of the environment (e.g. water resources and rainfall, coastal and foreshore areas, reefs and marine habitats), or from harmful weather events and any otherevent or impact on the environment or human health.
DISASTER
A serious disruption of the functioning of a community or a society involving widespread human, material, economic orenvironmental losses and impacts, which exceeds the ability of the affected community or society to cope using its ownresources.
DISASTER RISK REDUCTION
The concept and practice of reducing disaster risks through systematic efforts to analyse and manage the causal factors of disasters, including through reduced exposure to hazards, lessened vulnerability of people and property, wise management of land and the environment, and improved preparedness for adverse events. It is a risk management philosophy that enables governments and communities to build sustainability through the identification of evidence- based resilience and adaptation solutions. It is underpinned by rigorous risk and vulnerability analysis and the use of traditional coping capabilities.
PREPAREDNESS
The knowledge and capacities developed by governments, professional response and recovery organisations, communities and individuals to effectively anticipate, respond to, and recover from, the impacts of likely, imminent or current hazard events orconditions.
RECOVERY
The immediate and long-term restoration of physical, social and psychological damage.
RESILIENCE
The ability of a system, community or society exposed to hazards and/or climate change to resist, absorb, accommodate, andrecover from the consequences of a hazard event or from climate change in a timely and efficient manner, including through thepreservation and restoration of its essential basic structures and functions.
RESPONSE
The provision of emergency services and public assistance during or immediately after a disaster in order to save lives,
reduce health impacts, ensure public safety and meet the basic subsistence needs of the people affected.
VULNERABILITY
The characteristics and circumstances of a community, system or asset that make it susceptible to the damaging effects of a hazard.
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ATTACHMENT 2 - FUNCTIONS AND MEMBERSHIP OF THE NATIONAL ADVISORY BOARD ON CLIMATE CHANGE &DISASTER RISK REDUCTION AND THE NAB SECRETARIAT
NATIONAL ADVISORY BOARD CORE STRUCTURE AND FUNCTIONS
The National Advisory Board (NAB) membership should consist of a small core group with agencies or organizations secondedas need be. Meetings should be held quarterly or more frequently as specified by the Chairperson(s). Ownership and engagement with ministries, departments and non-governmental organisations (NGOs) should be driven from the Secretariat level given thatthe NAB does not meet regularly. This overcomes the challenges of down-sizing the NAB.
As an advisory board, NAB’s primary role is to oversee the development of a detailed risk-based plan of action for climate changeand disaster risk reduction, to inform the government’s annual budget. The priorities for 2015 are to:
- enhance protection of natural resources and biodiversity, taking climate change into account;
- provide sustainable, resilient, and appropriate infrastructure and services;
- enable continuous political reform, decentralisation and human and institutional strengthening; and
- broaden economic capacity.
In regard to this, the NAB should:
- advise government agencies and donors on the priority actions;
- coordinate climate change and disaster risk reduction activities across the country (through the NAB Secretariat);
- coordinate delivery of multi-agency and/or sector projects in cooperation with line ministries and departments, localgovernment, non-governmental organisations, private sector and communities (through the Project Management Unit, PMU); and
- facilitate implementation of projects at the provincial, area and village level, including through a programme of small grants.
While the NAB Secretariat is attached to the Ministry of Climate Change for administrative purposes, its whole- of-government role means that it will operate at the strategic level, with operational activities being carried out by departments and otherimplementing agencies, including where appropriate, the PMU.
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Proposed NAB membership
NAB | Member |
Co-Chairpersons | Directors General: Ministry of Climate Change & Prime Minister’s Office |
Core members | Director, Vanuatu Meteorological and Geo-hazards Department |
| Director Finance |
| Director Department of Local Authorities |
| Director Vanuatu Project Management Unit |
| Chamber of Commerce |
| Representative of non-governmental organisations |
| Manager NAB Secretariat |
SECRETARIAT
The Secretariat takes on a very strategic whole-of-government leadership, coordination, stakeholder relationship andinformation management role and, therefore, should comprise a core staff that can be supported either by short-termsecondments, technical assistance and/or advisory groups. The Secretariat should be positioned within the Ministry of ClimateChange structure under the office of the Director General and be seen as a separate and clearly identifiable entity to otherdepartments including the Corporate Services Unit and PMU.
The Secretariat Manager should be a dynamic and inspirational leader who would report directly to the Director General of the Ministry of Climate Change . The Secretariat’s business plan should reflect NABs priorities and be approved by NAB. Staffingof the Secretariat as a separate entity will be critical during the transition period. For sustainability, the skills and competencies of staff must be very high and it is important that there is both continuity and a career progression strategy. A sustainabilityoptions paper is urgently required to detail long-term funding for the NAB Secretariat.
There are important roles for advisors and volunteers to play in supporting the Secretariat; however, the scope of theirengagement should be clearly defined so that fast-tracking of initiatives and guidelines and capacity building remain theirprimary objective.
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ATTACHMENT 3 - STAKEHOLDER ROLES AND RESPONSIBILITIES
The roles and responsibilities of key stakeholders in climate change and disaster risk reduction in Vanuatu for the purposes ofthis policy are set out below.
VANUATU NATIONAL GOVERNMENT
Vanuatu’s national government is responsible for the administration of climate change and disaster risk reduction activities throughout the country, and it has established the National Advisory Board (NAB) as its key decision-making and advisory body. The national government through the Parliament enacts legislation, including the Meteorology Act 1989 and National Disaster Act 2000 and many other acts that impact on the areas of climate change and disaster risk reduction. Through theCouncil of Ministers, the national government endorses policies and plans that implement national priorities. The national government also engages at the global and regional level on negotiation and implementation of multi-lateral agreements, andenters into agreements with international governments and donor partners on the provision of assistance to Vanuatu’s climatechange and disaster risk reduction efforts.
MINISTRY OF CLIMATE CHANGE
The Ministry of Climate Change (MCC) will lead the implementation of this policy. It currently hosts the NAB Secretariat and the Project Management Unit under the Vanuatu Meteorology and Geo-Hazards Department (VMGD). MCC will develop a five-year strategy to drive the implementation of the policy within the ministry. VMGS departments and agencies, Department of Energy, Department of Environment and the National Disaster Management Office undertake business planning that is aligned with the policy and MCC strategy. MCC administers the Meteorology Act 1989 and National Disaster Act 2000, which will be reviewed as set out under actions within this policy. MCC engages with other government agencies, provincial governments, local stakeholders, civil society organizations (CSOs) and the private sector in undertaking climate change anddisaster risk reduction activities.
OTHER NATIONAL GOVERNMENT AGENCIES
A broad range of national government agencies are represented on the NAB and play key roles in developing and implementing climate change and disaster risk reduction policies, plans and initiatives. In view of the cross-cutting nature of climate changeand disaster risk reduction, other government agencies lead relevant activities within their own portfolios, including agriculture,forestry, fisheries, infrastructure, tourism, health, education, information technology and others.
PROVINCIAL GOVERNMENTS AND MUNICIPAL AND AREA COUNCILS
Provincial governments, municipal councils and area councils play key roles in implementing and engaging with other players on climate change and disaster risk reduction activities. Provincial plans are increasingly integrating climate change and disaster risk reduction into the business of provinces. Actions need to be implemented with provincial and area councils as major players, in line with the Decentralization Act.
TRADITIONAL CHIEFS
The governance role of customary chiefs is recognised under the Vanuatu constitution and by the National Advisory Board on Climate Change & Disaster Risk Reduction. Chiefs play leadership roles within their communities in engaging with and informing their people on key issues impacting on their wellbeing, including climate change and disaster risk reduction. Chiefs also act as spokespersons for their villages in forums, representing the perspectives and interests of their people.
COMMUNITIES
Vanuatu’s diverse communities are important stakeholders in climate change and disaster risk reduction efforts. They have muchto contribute with their existing capacities, governance systems, knowledge of their own contexts, traditional knowledge andcoping mechanisms. Communities need to play key roles in drawing on and strengthening their resilience, enabling inclusive participation in decision-making and activities, and engaging with other stakeholders on their needs and aspirations.
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CIVIL SOCIETY ORGANISATIONS
CSOs play key roles in climate change and disaster risk reduction efforts in Vanuatu. International CSOs have developednetworks such as the Vanuatu Climate Action Network and Vanuatu Humanitarian Team networks, while local CSOs join inthe Vanuatu Association of Non-governmental Organisations network, incorporating councils of churches, chiefs, women and youth. CSOs partner with government and other players to develop and implement climate change and disaster risk reductionprogrammes and activities. The Vanuatu Climate Action Network and Vanuatu Association of Non- governmental Organisations are members of the NAB, and recognise their roles in advocating and influencing decision- making. They also take roles in othernetworks such as the cluster system for disaster response and recovery. CSOs need to align their activities with governmentpolicies and plans, and ensure that information is shared and endorsements are obtained from appropriate government agencies and levels on initiatives undertaken. Vanuatu Red Cross plays a unique role in partnering with government on humanitarianefforts in disaster preparedness, response and recovery.
DONORS AND DEVELOPMENT PARTNERS
Donors and development partners are essential partners with government and other stakeholders in climate change and disaster risk reduction in Vanuatu, and include international governments (that donate funds), and global and regional organisations (including various agencies of the United Nations). They provide substantial resources to supplement Vanuatu’s own resources.This funding should be aligned with Vanuatu’s priorities and policy direction, and be appropriate to Vanuatu’s context. Programmesand activities should be endorsed through Vanuatu’s national government processes. International governments provide assistanceto the Vanuatu government for proactive climate change and disaster risk reduction initiatives, as well as for urgent response andrecovery efforts when needed.
PRIVATE SECTOR
The private sector plays a vital role in the development of Vanuatu. Public–private partnerships have been entered into and implemented across a range of sectors. Many more opportunities exist for the private sector to partner with the Vanuatu government, donors and international development bodies to invest in projects that address climate change and disaster risks. These opportunities include investment in renewable energy, energy efficiency, agriculture, forestry, fisheries, infrastructure, health, education and tourism. The private sector should ensure its development applications and practice are in line with environmental standards, climate-proofing principles, building codes and other government regulation for sustainability. Productsand services supplied by the private sector can assist the government in addressing challenges in communications with communities and individuals across the country, including remote areas, and in disaster preparedness, response and recovery efforts.
35 Vanuatu Climate Change and Disaster Risk Reduction Policy • 2016-2030
ATTACHMENT 4 - DIAGRAM OF THE STRUCTURE OF THEVANUATU CLIMATE CHANGE AND DISASTER RISK REDUCTION POLICY
Vision Vanuatu is a resilient community,environment and economy |
Sustainability | Accountability | Equity | Principles Community focus | Collaboration | | Innovation |
Systems | Strategic Goal Resilientdevelopment StrategicPriorities | Themes |
Strategies |
Governance | Finance | Knowledge &Information | CCA/DRR | Low CarbonDevlpt | Response &Recovery |
- Institutional structures
- Legislation and policy
- International
obligations planning - M & E
- Funding allocation
- NIE accreditation
- Budgets
- Financial statements
- Procurement
- Project management
- Small grants scheme
- Information
| | management - Traditional knowledge
- Knowledge sharing
- Lessons learned
- Data analysis
- Research
- Risk assessment
- Vulnerability and
| impact assessment adaptation approaches | - Energy Road Map
- Renewable energy
- Energy efficiency
- Mitigation and REDD+
- Blue Carbon
- Planning
- Preparedness
- Communityawareness
- Early warning systems
- Post-disaster
| assessment |
Capacity building Multi-hazard approach | Cross CuttingIssues Mainstreaming | Gender and social inclusion Partnerships | |
Integration into corporate and business plans | Implementation Monitoring andevaluation | Reporting | Policyreview |
| | | | | | | | |
ATTACHMENT 5- CONSULTATION SCHEDULE
Consultation meetings, workshops and processes conducted in developing the policy included the following:
- Consultation workshops in all six provinces in 2011 to formulate the draft National Climate Change
Adaptation Strategy
- Inception workshop held in Port Vila on 13 November 2014
- Provincial consultation workshops held in:
- Tafea Province on 18 November 2014
- Sanma Province on 21 November 2014
- Malampa Province on 24 November 2014
- Penama Province on 27 November 2014
- Torba Province on 4 December 2014
- Shefa Province participated in the inception workshop in Port Vila
- Policy working group meetings held on 30 November, 11 and 18 December 2014, and 12 and 19 February 2015
- Civil society consultation workshop held on 9 December 2014
- National Advisory Board briefing and circulation of the draft policy on 19 December 2014
- Public consultation process circulating the draft policy from 30 January to 13 February 2015
- National validation workshop held in Port Vila on 17 February 2015
- Meetings with government ministries and departments, including the Prime Minister’s Office, Ministry of Foreign Affairs, Ministry of Finance and Economic Management, Department of Local Authorities, Ministry of Infrastructure and Public Utilities, Ministry of Agriculture, Ministry of Health, Department of Women’s Affairs and agencies within the Ministry of Climate Change and Natural Disasters during October through to December 2014
- Meetings with the Council of Churches and the Chamber of Commerce in October 2014
37 Vanuatu Climate Change and Disaster Risk Reduction Policy • 2016-2030