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Proposal for Funding for the Preparation of
A National Adaptation Program of Action (NAPA)
Country Name:
Republic of Vanuatu
Project Title:
Programme of Action for Adaptation to Climate Change
GEF Implementing Agency:
United Nations Development Programme
GEF operational focal point:
Department of Economic and Social Development
Climate change focal point:
Department of Meteorological Services
National executing agency:
National Advisory Committee on Climate Change Secretariat,
Department of Meteorology
Country eligibility:
(i)
LDC status
Vanuatu is listed as an LDC
(ii)
Date of UNFCCC
Ratification
March 25, 1993
GEF financing:
US$200,000
Government contribution:
US$20,000 (in-kind)
Estimated total budget:
US$220,000
Estimated starting date:
March 2003
Duration:
18 months
1. Background
The Y-Chain archipelago of Vanuatu stretches over some 1,300 km in the centre of a
quadrangle marked by Fiji (to the west), Australia (to the east), Solomon Islands (to the north) and
New Caledonia (to the south). The 80 islands, of which 65 are inhabited, cover a total land area of
12,190 km2 and give rise to an exclusive economic zone of 680,000 km 2. The diverse island forms
range from atolls to mountainous volcanic islands with towering cliffs. Espiritu Santo is the largest
island in the chain and has the highest peak, with an elevation of 1,800 metres. The mean annual air
temperature for the country is 25C, with a mean minimum and maximum of 15C and 31C,
respectively. The annual mean rainfall is 2,000 mm. The country's geographical location renders it
susceptible to extreme climate variability, including cyclones, drought and heavy rainfall.
The population of Vanuatu is concentrated in coastal areas. The coastal environment plays a
vital role in the subsistence and commercial life of the ni-Vanuatu, the indigenous peoples of
Vanuatu. Increased human activity in the coastal environment is placing greater pressure on sensitive
areas such as beaches, coral reefs and mangroves. The atolls, low-lying islands, and low-lying coastal
areas of Vanuatu are particular susceptible to erosion, flooding and inundation during storm surges,
high seas and periods of intense rainfall.
Already the economic and social costs of climate-related disasters have become a recognized
impediment to national development. Among them, tropical cyclones Uma, Anne and Bola that
traversed Vanuatu during 1987-88, caused a major disruption to people’s lives and to the economy,
with 50 deaths, the sinking of 40 coastal trading vessels, massive damage to the copra and tourism
industries, and destruction of property valued at approximately $US 152 million. In 1999 heavy rains
associated with tropical cyclone Dani caused serious damage to infrastructure such as roads and
bridges, requiring repairs costing some $US 8 million1.
Of the estimated population of 177,400 people, around 70% live in rural settlements, ranging
from single families to villages of several hundred people. Almost 70% of the population lives on
seven islands. Population growth and changing attitudes are placing increasing pressure on the
coastal environment. These pressures are greatest in, but not exclusive to, the two main urban areas
of Vanuatu, Port Vila and Luganville. Exploitation of marine resources, over-fishing, destruction of
mangrove forests, and enhanced coastal erosion are some of the key consequences of these changes.
Urban and infrastructure developments are, at present, occurring in an ad hoc manner. A lack of
planning and environmental legislation creates potential for adverse environmental and social effects
in the future. Urbanisation and economic development have also contributed to an increasing
problem of pollution in urban areas.
The main contributors to the cash economy of Vanuatu are agriculture, forestry and tourism.
Subsistence agriculture continues to play a significant role in reducing demands for imported foods
and sustaining rural communities. Alongside this, however, is a growing commercial agriculture
sector, which is rapidly changing land use and rural life. Logging of natural forests continues to be
important to the economy, and there are increasing controls to minimize the adverse environmental
impacts of logging. The rapid growth of the tourism industry is placing increasing pressure on natural
resources, particularly in coastal areas.
1
Unpublished reports, Department of Meteorological Services, Republic of Vanuatu
2
The developing cash economy, together with increased aspirations for material wealth, has
been the main driver of change in Vanuatu. The most significant impact has been a shift in social
values, leading to loss of the traditional barter and reciprocity system, as well as changing attitudes to
the environment in Vanuatu. The land resource is integral to the sustainable livelihoods of niVanuatu. The rapid shift in land use practices is integrally related to rapid social and economic
changes. Historically the major land use changes occurred with the clearing of forests for copra and
beef production. The clearance of forests is continuing. While commercial logging is now controlled
through the Code of Logging Practice, the first of its kind in the Pacific region, there is no
mechanism to control land clearance by individual landowners. Whereas in the past land clearance
would occur as part of a traditional system, the increased perception of land as a resource to exploit is
leading to rapid changes in land use. The greatest land use changes in the present are being driven by
the rapid growth of kava monocultures, for both local and foreign markets. Such changes are leading
to a shift away from traditional subsistence livelihoods.
Travel and communications between and within islands are difficult and expensive. Within
islands the rugged terrain and tropical forest isolate villages. Consequently, the limited road networks
are mainly in the lowland areas of larger islands. Coastal shipping services the central islands on a
regular basis, but irregularly in the outer islands. Daily passenger and cargo flights are operated
between the four main islands, but many smaller or remote islands are served on a weekly basis, if at
all. While telephone communications are available in most of the larger islands, and many smaller
ones, there may be only two or three telephone sets on an island. Radiotelephones are unreliable and
there are at most only a few sets on any island. For most rural villagers their only regular
communication with outside areas is via public radio broadcasts.
In the past there have been several factors, which have helped the ni-Vanuatu to cope with
adverse circumstances and environmental stresses. These include an abundant and diverse natural
resource base and a traditional social support system that was well adapted to the environment and
local circumstances. While traditional structures and values are in a state of transition, there are still
many positive aspects which ni-Vanuatu retain. These aspects, coupled with the strong and diverse
subsistence base economy, give the ni-Vanuatu potential capacity to cope with environmental stress
and change.
In March 1993, Vanuatu ratified the United Nations Framework Convention on Climate
Change (UNFCCC). Studies completed as part of the preparatory activities for Vanuatu’s Initial
National Communication2 showed that Vanuatu, like all other Pacific Island Countries, is susceptible
to the effects of climate and sea-level variations, particularly in the coastal zone where the main
settlements and vital economic infrastructure are concentrated. There is also a range of socioeconomic and environmental sectors that are sensitive to climatic variations and change. Those
identified as being of greatest importance are agriculture (including food security), human health and
settlements, coastal environments and infrastructure, and water resources.
Over 70% of the Vanuatu population live on their traditional lands, growing food crops and
harvesting forest and marine resources for personal consumption, exchange and gifting. All the
2
Republic of Vanuatu, Initial National Communication to the Conference of the Parties to the United Nations
Framework Convention on Climate Change, July 1999.
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necessities of life are available locally. Participation in the cash economy is limited to earning
income from marketing copra, cocoa, other cash crops, shells and handicrafts, or by granting a
logging company access to their timber. The small cash income is primarily directed to school fees,
transport to school and purchases of household items. Both commercial and subsistence agriculture
are based on rain-fed agricultural production systems. The crops, on which rural people depend
highly, such as taro, yam, sweet potato, banana and vegetables, are often affected by adverse weather
conditions such as droughts, heavy rainfall and cyclones. Commercial agriculture, including kava,
beef and copra, is also affected by extreme weather conditions such as flooding due to heavy rainfall,
droughts and cyclones. Any decrease in agricultural production due to climate change would
adversely affect both the national economy and food security.
There is a high incidence of mosquito borne diseases in Vanuatu, with a consequent
reduction in the well being and productive capacity of the people. Epidemics of malaria can occur
during both the dry and wet season, with outbreaks occurring when rainfall and floods provide pools
of water that are favourable breeding sites for the anopheles mosquito that transmits this disease.
During the dry season, breeding sites occur in pools of water that are formed along river and stream
beds.
Increased human pressures on coastal environments are enhancing the vulnerability of coastal
areas to climate and sea-level variations and change. National investments in infrastructure have been
primarily in low lying coastal areas, with the commercial centres of both Port Vila and Luganville
built on land only a few metres above sea level. The infrastructure and fixed assets of both centres
are vulnerable to cyclone damage and associated storm surges, and may be affected by quite small
increases in sea level or increased frequency and intensity of tropical cyclones. Human activities,
such as sand extraction and mangrove removal, have also increased the sensitivity of the coastal
margins to climate and sea-level variability and change, including extreme events. Coral reef systems
fringe most islands in Vanuatu and are important sources of economic and subsistence resources.
Coral reefs are also an important asset for tourism, protecting adjacent coastlines from extreme
marine events. Reefs are vulnerable to the projected changes in climate and marine conditions.
Higher intensity cyclones will cause physical disturbance to reef systems, while coral bleaching is
also likely to occur with greater frequency and intensity. Coral morbidity is associated with a decline
in productivity of associated fish species, and increased incidence of ciguatera. Both have important
consequences for human health and well-being.
Vanuatu has limited surface water. Villages on many islands and residents in the two main
urban areas are dependent on ground water. Water shortages are already apparent in dry seasons and
salt water contamination of fresh water lenses is already a problem in some small, low-lying islands.
Vanuatu’s Initial National Communication, and other documents3, identify both broad
initiatives to enhance the adaptive capacity of Vanuatu and specific sectoral adaptation measures.
The latter are detailed in Annex 1. The former include:
3
Vanuatu National Strategy for the Implementation of the United Nations Framework Convention on Climate
Change (Draft), Vanuatu National Statement on Vulnerability and Adaptation (prepared by Nelson Rarua,
Patricia Mawa, Russell Nari and Atchinson Marav Smith) and draft reports on second vulnerability and
adaptation assessments of critically vulnerable islands of the Torres Group, Paama, Shepherds Group and Tafea
outer islands.
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Institutionalize and mainstream climate change preparations:
Discussions during preparation of the Initial National Communication gave high priority to
low cost initiatives to institutionalize and mainstream climate change, and to increasing national
capacity to prepare for and adapt to climate change. These have become high priorities in the national
action plan for climate change. High priority has also been allocated to training and information
gathering that will assist national organizations to prepare for longer-term climate change. As more
information becomes available it will be important to have the skills to allow preparation of climate
change action plans on a both provincial and island by island basis.
Improving networks for information transfer and coordinated adaptation and mitigation measures:
As more information becomes available it will be necessary to translate this from scientific
formats to messages appropriate for government agencies and planners and to inform the public. An
initial information sharing network needs to be strengthened and expanded. Initial emphasis should
be on information sharing and creating linkages for data transfer between departments and provinces.
Increase national capacity to prepare for and adapt to climate change:
Currently Vanuatu lacks the capacity to respond to climate change due to a low level of
understanding of climate change issues and limited information describing the country’s vulnerability
to climate change and limited technical and financial capacities. It is necessary to develop skills and
financial and human resource support to prepare for climate change.
Enhance community understanding of climate change, and their preparedness
Planning and preparedness are not unique to climate change. The same participatory planning
skills will be of general benefit, as local communities resume control for local development and
ensure local disaster preparedness. There is a need to establish a network of skilled trainers within
government and non-government organizations that will be able to conduct preparedness and
planning training at the local level. Existing government networks (National Disaster Office, cultural
centre, rural field workers, Forestry, Fisheries and Agriculture extensions, schools) should be used in
preference to establishing new training networks.
More importantly, Vanuatu’s National Implementation Strategy on Climate Change places
emphasis on:
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A strong institutional structure to ensure sustainability;
Increasing understanding on climate change;
Pursue sustainable development through opportunities under the UNFCCC and its Kyoto
Protocol; and,
Effective national responses to the impacts of climate change.
The Implementation Strategy also recognizes that:

Vanuatu cannot bear the full costs of implementing the national programmes to address
greenhouse gas mitigation and adaptation to climate change;
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Effective national effort in addressing climate change concerns depends largely on the success of
human resource development initiatives, institutional strengthening and effective integration of
science and policy;
Adaptation is an on-going process and requires Government, private sector and nongovernmental organization involvement; the process should be pursued in light of the sustainable
management plans of Vanuatu, and for the benefit of the local communities in the longer term;
Public and community awareness and participation are prerequisites for an effective national
effort to address climate change;
Mitigation of anthropogenic emissions of greenhouse gases is important as it will also help
counter the current trade imbalance that results from the importation of large quantities of fossil
fuels, and in light of the increasing national energy need, at all levels;
Through further research and improved documentation and dissemination of information, training
and mainstreaming initiatives, Vanuatu will be in an improved position to implement measures to
reduce vulnerability and to foster adaptation to climate and sea-level change, as well as
mitigating greenhouse gas emissions; and,
The time lag between cause and effect of human induced changes to environmental systems
should not compromise the need to pursue sustainable development practices at all levels.
The Seventh Conference of the Parties to the UNFCCC resolved to support the work
programme for least developed countries (LDCs) to prepare and implement national adaptation
programmes of action (NAPAs), including meeting the agreed full cost of preparing the NAPAs. The
NAPAs will communicate priority activities (including projects, integration into other activities,
capacity building and policy reform) addressing the urgent and immediate needs and concerns of
LDCs relating to the adverse effects of climate change. The rationale for developing NAPAs rests on
the low adaptive capacity of LDCs, which renders them in need of immediate and urgent support to
start adapting to current and projected adverse effects of climate change. Activities proposed through
NAPAs are those whose further delay could increase vulnerability, or lead to increased costs at a
later stage.
2. Institutional Context
The principal goal of the present Government is to improve the welfare of the general
population of Vanuatu, through a number of measures: first, by instilling macroeconomic prudence
and policy stability so as to create a stable investment climate; second, through enhancing income
earning opportunities for the general population, principally by lowering the cost of doing business in
the country such that entrepreneurial and employment opportunities are improved; and third, by
raising the standard of service delivery, particularly to the rural and outer regions, to improve access
to basic health services, primary education and other government services, as well as lowering costs
of internal trade.
The Medium Term Development Framework (MTDF) is replacing the Comprehensive
Reform Programme and the National Development Plan that preceded it. The MTDF will be used to
translate the developmental intentions of the Government into a serious of priorities that are
sequenced for action taking. The implementation of the recommendations, followed by on-going
monitoring and fine tuning of actions, will be undertaken to realise the national developmental goals
identified above. Given severe resource constraints, including limited internal capacity to institute
and monitor programmes, a conservative approach to framing the MTDF is being taken.
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In 2001 the Government of Vanuatu, with the assistance of the Asian Development Bank and
AusAID, commissioned a comprehensive study of the Vanuatu economy with a view to strengthening
development policies. The resulting report made several recommendations to raise the rate of growth
of output and enable improved public service delivery. A subsequent diagnosis of the reasons for
persistent revenue shortfalls of the state, and of potential remedies to this problem, has added to an
already large list of recommendations as yet to be implemented by the authorities. The goal,
therefore, of the MTDF is to formulate and articulate medium term priorities of Government, and to
sequence and resource policy interventions so as to realise the developmental goal of the State.
Vanuatu has prepared a draft National Strategy for the Implementation of the UNFCCC. This
is currently under consideration by Government. The Strategy outlines the country’s development
roadmap on the climate change front, and provides guidance to Government departments and other
stakeholders on the way forward, through a unified system of work, to maximize sustainable
development opportunities, to minimize the vulnerabilities of the rural population and to meet
Vanuatu’s reporting requirements to the UNFCCC. Through the National Strategy, the Government
of Vanuatu recognizes the greater benefits in acting now, and the importance of institutionalizing
appropriate sustainable development structures, through which to facilitate an integrated approach to
meet both the immediate and longer-term needs for improving the quality of life for all ni-Vanuatu.
The National Advisory Committee on Climate Change (NACCC) was established in 1989, to
advise the Government on matters relating to climate change. It drew on expertise available within
relevant Government departments. The Committee facilitated the work of a technical team, including
staff drawn from appropriate sectors. In 1997, with commencement of Vanuatu’s involvement in the
Pacific Islands Climate Change Assistance Programme (PICCAP), the Committee was strengthened
so that it could support the necessary technical and policy-related studies being conducted as part of
Vanuatu’s enabling activities. PICCAP was a three-year regional project, funded by the Global
Environment Facility (GEF), implemented by the United Nations Development Programme (UNDP)
and executed by the South Pacific Regional Environment Programme (SPREP).
In a decision of the Council of Ministers in June 2000, the NACCC was given further
recognition, and mandated:
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To foster the mainstreaming of national climate change activities, in order to maintain continuity
and progress in addressing local climate change concerns; and
To implement the UNFCCC and its Kyoto Protocol.
The Vanuatu Meteorological Services Department was instructed to coordinate and integrate the
institutional arrangements, including hosting the NACCC Secretariat as part of a newly established
Climate Change Section. The Department was given responsibility for institutional, financial and
logistic support arrangements.
The institutional structure is shown in Fig. 1.
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Government
of Vanuatu
Council
of Ministers
Government
Departments
Development
Committee of Officials
Private
Sector
National Advisory
Committee on
Climate Change
Non-governmental
Organizations
National Project
Coordinator
and
NACCC Secretariat
Technical
Team
Consultants
Figure 1: Current institutional structure for Vanuatu’s climate change activities.
Membership of the NACCC includes the Meteorological Services Department, Foreign Affairs
Department, Environment Unit, Department of Fisheries, Department of Economic and Social
Development, Department of Agriculture, Energy Unit, Department of Land Survey, Land Use
Planning Office, Department of Forestry, Department of Health, National Disaster Management
Office, Department of Quarantine and Inspection Services, Department of Education, National
Statistics Office, Chamber of Commerce, Department of Provincial Affairs, Vanuatu National
Council of Women, and a representative of Vanuatu non-governmental organizations.
Currently the Head of the Environment Unit chairs the NACCC, which in turn is part of the
Department of Land Survey.
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3. Objectives, and linkages to on-going activities
a)
Project Objectives
As stated in the NAPA Guidelines4, the rationale for NAPAs “rests on the low adaptive
capacity of LDCs, which renders them in need of immediate and urgent support to start adapting to
current and projected adverse effects of climate change”.
The objective of the proposed NAPA project for Vanuatu is to develop a country-wide
programme of immediate and urgent project-based adaptation activities in priority sectors, in order to
address the current and anticipated adverse effects of climate change, including extreme events.
In the context of Vanuatu, this NAPA project will provide an opportunity to facilitate
dialogue and consultations designed to identify and elaborate the immediate and urgent adaptation
issues and appropriate activities, by conducting a comprehensive assessment of the available and
necessary information on Vanuatu’s vulnerability to climate change and of the response measures
and other activities needed to enhance the resilience of the most threatened parts of Vanuatu’s natural
heritage, society and economy. Given Vanuatu’s vulnerability status with regards to climate change
and sea-level rise, the NAPA will provide an avenue to raise awareness and understanding at all
levels in society, with respect to vulnerability and adaptation issues of greatest significance to the
country. The initiatives that must be undertaken to identify and implement appropriate activities to be
implemented in priority sectors, in order to enhance the resilience of Vanuatu to climate change
(including extreme events), through adaptation, will also be identified and documented.
b) Priority Sectors
As part of the preparations for submitting its Initial National Communication, Vanuatu
undertook a comprehensive assessment of the country’s vulnerability to climate and sea-level
variability and change, including extreme events. Subsequent to submitting its Initial National
Communication, Vanuatu embarked on a second phase of vulnerability and adaptation assessments.
These studies, which are now all but completed, focused on more remote communities that the first
phase assessments had identified as being highly vulnerable.
The two phases of vulnerability and adaptation assessments have allowed Vanuatu to identify
priority sectors for urgent and immediate implementation of adaptation activities. These sectors are:
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4
Water resources, especially rural water supply;
Coastal zone;
Infrastructure, of national, provincial and community importance;
Human settlements, both urban and rural; and
Food security, including subsistence and commercial agriculture and also fisheries.
Operational Guidelines for Expedited Funding for the Preparation of National Adaptation Programmes of Action
by Least Developed Countries, Global Environment Facility, April, 2002.
9
c) Linkages to Previous and On-going Activities
This section is intended to outline the synergies and explain the complementarities between
the NAPA preparation and implementation process and other activities being undertaken in Vanuatu.
Steps to avoid any possible duplication of effort will also be indicated, as appropriate. In the years
leading up to and following UNCED, several important international and regional environmental
conventions, agreements and other legal instruments have been negotiated and concluded. The
Government of Vanuatu, since UNCED, has shown its interest and commitment by adopting various
international and regional environmental related instruments.
The Environment Unit oversees international responsibilities and national projects related to
the multilateral environmental agreements, which Vanuatu has signed, ratified or acceded to. In
addition to the UNFCCC, these include the following:
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United Nations Convention to Combat Desertification (acceded on 28 May, 1999);
Kyoto Protocol to the Framework Convention (ratified on 17 July, 2001);
Stockholm Convention on Persistent Organic Pollutants (signed 21 May, 2002);
United Nations Convention on Biological Diversity (ratified on 25 March, 1993)
Convention on International Trade in Endangered Species of Wild Fauna and Flora (ratified on
15 October, 1989)
International Tropical Timber Agreement (ratified on May 1, 2000);
Vienna Convention (ratified on 21 November, 1994);
Montreal Protocol (ratified on 21 November, 1994);
London Amendment (ratified on 21 November, 1994);
Copenhagen Amendment (ratified on 21 November, 1994); and
Basel Convention on the Control of Transboundary Movements of Hazardous Wastes and their
Disposal, (acceded on 22 March, 2002).
A number of committees have been established to coordinate and facilitate implementation of
these agreements, and to ensure an integrated contribution to the sustainable development of
Vanuatu. These include the National Biodiversity Advisory Committee (responsible for
implementing the National Biodiversity Strategy and Action Plan) and the National Water
Committee (responsible for implementing the Vanuatu Strategic Action Programme for International
Waters Project).
Vanuatu is currently implementing, or about to implement, several GEF projects that will
reduce its vulnerability to climate change, while also contributing to the country’s wider sustainable
development goals. The projects include:
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Capacity Building for the Development of Adaptation Measures in Pacific Island Countries – a
project designed to support the people and Government institutions Vanuatu, to strengthen and
improve their capacity to adapt to the adverse impacts of climate change;
Pacific Islands Global Climate Observing System – a project designed to establish a robust and
sustainable climate observing system that meets the climate change and variability observations
and related needs of the Pacific Islands Region while also meeting the requirements of the Global
Climate Observing System;
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Promotion of Renewable Energy, Energy Efficiency and Greenhouse Gas Abatement – a project
designed to promote investment in renewable energy, energy efficiency and greenhouse gas
abatement technologies, in order to increase access to energy services by the poor, realize other
strategic development objectives and help reduce greenhouse gas emissions; and
Pacific Islands Renewable Energy Project – a project designed to facilitate promotion of the
widespread implementation and, ultimately, commercialization of renewable energy
technologies, through the establishment of a suitable enabling environment.
The NACCC is responsible for implementing the first two projects, and it works closely with
the Energy Unit on implementation of the last two projects. Efforts are continually made to exploit
inter-project synergies and avoid duplication.
As a party to the Convention on Biodiversity, Vanuatu is required to formulate plans and
strategies that address biodiversity issues, as stipulated in section 8(j) of the Convention. Thus, under
the UNDP/GEF funded biodiversity enabling activity for Vanuatu, a number of tangible outputs were
produced at the end of the initial phase of the project. These included Vanuatu’s First National
Report to the COP, the National Biodiversity Strategy and Action Plan (NBSAP), technical reports,
and information materials. The NBSAP was conducted through a participatory approach involving
many stakeholders in the process. This phase of the enabling activity is now completed and the
second phase is currently under implementation.
Lessons learnt from the enabling activities on climate change and biodiversity will provide
very useful guidance to the implementation of the NAPA activities. This is because the framework
used to guide coordination and implementation of the aforementioned projects is very similar to the
one proposed for the NAPA. Furthermore, information already collected and synthesized as part of
these two projects will provide a useful foundation on which the NAPA can build.
Vanuatu will soon submit a proposal for UNEP/GEF funding for its National Capacity Self
Assessment (NCSA) project. The project, to be overseen by the NACCC and the Biodiversity
Committee, will involve a comprehensive assessment of capacity needs in all the different
environment thematic areas, including climate change and adaptation. Where there are obvious and
practical synergies, development of the NAPA will take into account any available information and
recommendations arising from the NCSA project.
In preparation for the World Summit on Sustainable Development (WSSD), Vanuatu
produced a National Assessment Report. Stakeholders, including civil society organizations,
contributed to preparation of the report and made very valuable inputs through a participatory
process. The decision to submit a NAPA project proposal was based on the priority issues identified
in Vanuatu’s WSSD National Assessment Report, which notes that vulnerability and adaptation to
climate change are amongst the key priorities. The WSSD Report recognizes the need to fully
integrate adaptation to climate change and sea-level rise into relevant national policies. In this regard,
the NAPA is envisaged to play a fundamental role in addressing a number of vulnerability and
adaptation issues, particularly in relation to the strengthening of relevant national policies and plans,
as well as raising awareness on adaptation issues nation wide.
The WSSD Report also notes that ni-Vanuatu have an in-depth knowledge of their local
environments and are familiar with subtle changes in climate, resource stocks and coastal conditions.
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Adaptation to these changes, and management of their impacts, is crucial to the success of the
population in subsistence farming and fishing, and modern agriculture and other activities. The
current capacity of the community in terms of their in-depth knowledge of their local environments is
the nation’s greatest asset in responding to global changes, as long as the scale, frequencies and
intensity are not beyond the current ability to cope.
The Report goes on to urge that it is vital for all parties engaged in Vanuatu’s sustainable
development initiatives recognize, appreciate and appropriately incorporate traditional knowledge,
approaches and practices, to ensure true sustainability.
Vanuatu has a National Disaster Management Office, and a National Disaster Management
Plan is currently under development. This is based around the comprehensive hazard and risk
management (CHARM) guidelines5. There is a need to integrate and harmonize these tools and
procedures with initiatives related to undertaking adaptation activities in order to reduce vulnerability
to climate and sea-level variability and change (including extreme events). The NAPA formulation
project will have this as a high priority.
4. Project Activities and Outputs
Figure 2 presents the four components of the proposed project, and describes the activities
associated with each component.
Project Implementation
and
Management
Strengthen Methodologies
Ensure Adequate Information
Provide Decision Support
Identify and Prioritize
Adaptation Activities
Preparation
And Endorsement
of the NAPA
• Establish institutional and management arrangements
• High-level mainstreaming and support
• Awareness raising/consultation for stakeholders
• Mobilising Technical and Other In-country Support
• Monitoring, review, evaluation and reporting
• Review & Strengthen V&A Methodologies
• Methods and Criteria to Prioritize Adaptation Activities
• Compilation and Assessment of Existing Information
• Filling Information Gaps
• Prepare List of Potential Adaptation Activities
• Identification and Prioritization of Adaptation Activities
• Analysis and Synthesis of Priority Adaptation Activities
• Preparation of the Draft NAPA
• Review and Revision of NAPA
• Endorsement of the NAPA
• NAPA Document Dissemination
Figure 2: The four project components and the associated activities for preparation of Vanuatu’s
National Adaptation Programme of Action (NAPA).
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Regional Comprehensive Hazard and Risk Management (CHARM). Guidelines for Pacific Island Countries,
SOPAC Secretariat, Suva, Fiji, 42pp
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Component 1: Implementation and Management of the NAPA Process
Activity 1.1: Establish Institutional and Management Arrangements
A proposed organizational chart for Vanuatu’s NAPA Formulation Project, and climate
change activities in general, is provided as Figure 3.
Government
of Vanuatu
Council
of Ministers
Development
Committee of Officials
Government
Departments
Sustainable
Development Committee
Private
Sector
Climate Change
Working Group
Non-governmental
Organizations
NAPA
Team
NAPA
Working Groups
NAPA Project
Coordinator
Secretariat
Consultants
Figure 3: Proposed organizational chart for Vanuatu’s NAPA Formulation Project
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Government, through the NACCC, will be asked to strengthen the existing Climate Change
Section of the Meteorological Services Department so that it can assume the added responsibility of
managing the NAPA project. The current NACCC, supported by its Secretariat, will prepare Terms
of Reference (TOR) for key project personnel, including the NAPA Project Coordinator. Once
appointed, the Projector Coordinator will work with the NACCC Committee and current members of
the NACCC, and other stakeholder representatives, to strengthen the NACCC in ways that will
enhance its ability to oversee implementation of the NAPA project and ensure successful project
outcomes, through the mainstreaming of immediate and urgent adaptation activities. The
strengthening will be conducted in an open and flexible manner, through a process that is inclusive
and transparent. The end result will be a strengthened NACCC, institutionalized formally as a
Working Group of a newly established Sustainable Development Committee (see Activity 1.2 and
Figure 3). The NACCC will comprise representatives of key Government departments and other
significant players, including stakeholders such as members of relevant government agencies, and
representatives of donor institutions, regional and local authorities, the production, consumption and
service sectors and civil society organizations. Active participation of key government stakeholders
from departments of planning and finance will be essential. Under the guidance and with the
assistance of the NAPA Project Coordinator, the NACCC will have ultimate responsibility for
preparing the NAPA and ensuring its eventual endorsement by Government, and for ongoing
coordination and oversight of NAPA activities. This will include developing a detailed work plan.
The NAPA Project Coordinator will be recruited to work full time in the coordination and the
implementation of the prescribed work plan. He/She will work closely with the existing National
Project Coordinator. An element of the work plan will include close liaison with the Least Developed
Countries Expert Group for overall technical and policy guidance, and with the UNDP/National
Communications Support Unit (NCSU) for implementation support.
Outputs:




TOR for, and appointment of NAPA Project Coordinator
Strengthened NACCC to ensure active participation of NGOs and key government counterparts,
such as finance and planning
Detailed implementation plan for the NAPA project
TORs for all project inputs, personnel and activities
Activity 1.2: Ensuring High Level Mainstreaming and Support for the NAPA Process
A Sustainable Development Committee (SDC), possibly chaired by the Prime Minister or
Minister for the Environment and comprising senior politicians with portfolios related to sustainable
development and senior private sector and NGO representatives, will be established to ensure
complementarity between various initiatives related to implementing international and regional
environmental agreements and other sustainable development activities, and to provide guidance and
support to the project activities and outputs. The Committee is viewed as essential to mainstreaming
adaptation activities, and if there is to be full coordination and integration with the many other
sustainable development initiatives being undertaken by Vanuatu, with the support of the
international community.
14
At least twice during the project, all Cabinet Ministers will be briefed on project aims and
status. The Cabinet will be expected to formally endorse the main project output, Vanuatu’s NAPA.
Outputs:



National Sustainable Development Committee
At least two ministerial level briefings
NAPA endorsed by Government
Activity 1.3: Awareness Raising and Consultation Amongst Stakeholders in Priority Sectors
An analysis to identify key opinions leaders and representatives of the stakeholders in the
priority sectors (see Section 3(b), above) will be undertaken, using as input information and
understanding developed through activities undertake during preparation of the Initial National
Communication and the second phase of vulnerability and adaptation assessments. Awareness raising
materials will be prepared in Bislama and English languages, taking into account the general
capacities, needs and concerns that will also be identified in the stakeholder analysis. A national
conference, with multi-stakeholder participation, and associated media campaigns, will be conducted
in order to ascertain and reflect the concerns of the entire Vanuatu society regarding climate change.
However, emphasis will be placed on interacting with those in the priority sectors and who are most
vulnerable and least able to cope with the adverse consequences of climate variability and change.
The consultations will serve the purpose of introducing and promoting the project (objectives,
activities and outputs), receiving guidance and feedback from the provinces, and identifying target
groups and participants in future project activities. Information related to the NAPA project will be
shared with related initiatives (see Section 3) and mechanisms to ensure ongoing interactions will be
established.
Outputs:







Awareness raising materials in Bislama and English languages
National conference on climate change
Media campaign
Documentation on key stakeholders and relevant initiatives that complement the NAPA process
Briefings for, and consultation with, key stakeholders in the priority sectors
Guidance and feedback from key stakeholders in the priority sectors
Information shared with related initiatives and ongoing linkages established
Activity 1.4: Mobilizing Technical and Other in-Country Support
The NAPA Project Coordinator, working with the NACCC Secretariat, and with the NACCC
itself, as appropriate, will establish a multidisciplinary Working Group for each of the priority sectors
(see Section 3(b), above), comprising relevant members of the NACCC, and other individuals as and
where required. These NAPA Working Groups are equivalent to the “National Group of Experts”
described in the Vanuatu National Strategy for the Implementation of the UNFCCC.
By drawing on many disciplines and on the expertise of individuals familiar with the priority
sectors as well as with their interactions, the final NAPA will be more relevant, integrated and cross-
15
cutting. It will capture all the components of sustainable development, including social, economic
and environmental. The membership and responsibilities of the Working Groups will evolve over the
life of the project, as the project progresses from undertaking broad consultation and technical
assessments of vulnerability and adaptation within the priority sectors, to preparing project profiles
for the specific adaptation activities to be undertaken within priority sectors. Amongst other
activities, the Working Groups will draw on existing information in order to advise the NAPA Team
with respect to:






Methodologies and criteria to be used in developing the NAPA;
Available information resources, information gaps and how these gaps might best be addressed;
Capacity building requirements;
Findings arising from a synthesis of all available information on the adverse effects of climate
change for Vanuatu, and on coping strategies (local, national, regional and international);
Findings of a participatory assessment of the vulnerability of Vanuatu’s priority sectors to current
climate variability and extreme weather events, and of an assessment as to where climate change
is likely to cause increased risks to society, the economy and the environment; and
A survey of possible climate change adaptation activities for selecting the most urgent and
immediate adaptations.
Based on advice from its Working Groups, outputs from an initial consultations with key
stakeholders in the priority sectors (see Activity 1.3), and from consideration of relevant information
available through the National Capacity Self Assessment and similar initiatives, the NAPA Project
Coordinator will develop an action plan designed to enhance the capacity of the Government and
private sectors, and of civil society, in order to ensure that key players and stakeholders can play an
appropriate, meaningful and productive role in the development and ultimate implementation of the
NAPA. The draft action plan will be submitted to the NACCC and through it to the National
Sustainable Development Council, for their consideration and eventual approval. Emphasis will be
on the following:




Ensuring all stakeholders in the priority sectors, and especially those representing local
communities, can engage in the participatory process leading to the preparation of the NAPA;
key roles will be as sources of information on the current coping strategies the NAPA will seek to
enhance and as people who can articulate the needs and capacities of the potential beneficiaries
of the NAPA;
Ensuring the appropriate technical information is available, and in a form that facilitates quality
and timely decision making;
Ensuring a complementary approach that builds on existing plans and programmes, and
especially such initiatives as those under the Convention on Biological Diversity where a bottomup participatory process has been followed to establish priorities for action based on a thorough
and comprehensive knowledge and stakeholder involvement;
Building capacity in ways that result in:
o
o
o
o
Enhanced technical competency in relevant Government departments;
Synergies among multilateral environmental agreements;
The mainstreaming of climate change adaptation policies and plans;
Sound environmental management and sustainable development;
16


Recognizing that women and the poor are disproportionately affected in adverse ways by climate
change and women are often the main repository of vital local and traditional knowledge; and
A cost effective, needs-driven approach with large multiplier effects.
Essential activities to address shortfalls in the ability to implement the NAPA Formulation
Project will be undertaken, consistent with the action plan and building on the initial, broad
awareness raising activities undertaken under Activity 1.3. These activities will be undertaken to
ensure that key players and stakeholders will play an appropriate, meaningful and productive role in
the development and ultimate implementation of the NAPA.
It is also important to ensure that Vanuatu is well placed to implement adaptation activities.
Experience has shown that it takes considerable time to enhance national and local capacity to
implement adaptation measures. Later in the project cycle activities will focus on addressing two
needs associated with the specific adaptation activities that are designated as urgent and immediate.
These activities are as follows:


Address the urgent need for personnel who have the technical understanding of vulnerability to
climate change and of possible adaptive responses, who are competent in applying methodologies
for vulnerability and adaptation assessment, who can translate their technical knowledge and
skills into recommendations for policy- and decision-makers and who can assist in providing
long- term and continuous assistance towards implementing project-level adaptation activities,
including project design, implementation and monitoring; and
Address the need for enhanced awareness at both high (e.g. political) and community levels, in
relation to the current vulnerability of Vanuatu to climate and sea-level variability, to the
potential increase in climate hazards and associated risks as a result of climate change, and to the
opportunities to reduce the vulnerability and risks through adaptation, including the specific
adaptation activities to be included in the NAPA.
Training activities will be undertaken to build the technical knowledge and skills of relevant
individuals in government, the private sector and community-based organizations, including project
design, implementation and monitoring. Targeted awareness raising materials will be prepared in the
Bislama and English languages, taking into account the capacities, needs and concerns of the
stakeholders in the urgent and immediate adaptation activities. These materials will be disseminated
through conventional information pathways, including targeted media campaigns.
Outputs:






Multidisciplinary Working Groups (National Group of Experts), to support the work programme
of Vanuatu’s NAPA project.
Action plan for building the capacity of Government, private sector civil society stakeholders in
climate change adaptation
Key players and stakeholders better able to play appropriate, meaningful and productive roles in
development and ultimate implementation of the NAPA
Personnel who have enhanced technical- and policy-relevant knowledge and skills related to
adaptation
Awareness raising materials in Bislama and English languages
Media campaigns
17


Enhanced awareness at high and community levels, in relation to vulnerability and adaptation to
climate change
Initial steps carried out towards to facilitation of the incorporation of adaptation to climate
change in the national development planning.
Activity 1.5: Monitoring, Review, Evaluation, and Reporting
In conjunction with the UNDP, the NACCC, the NAPA Project Coordinator and the National
Project Coordinator will be responsible for monitoring, reviewing, evaluating and reporting on the
project implementation and achievement of the specific outputs. These procedures will be consistent
with those required by the Government of Vanuatu, after consultation with the Implementing
Agency. Reporting requirements will include an annual review, mid-term review, and final
evaluation. The purpose of these reviews will be to ensure that the project is conforming to all
Government of Vanuatu project implementation requirements, developed in consultation with the
GEF and UNDP. The UNDP office will provide assistance for monitoring and evaluation.
All relevant stakeholders will be involved in project monitoring and evaluation. This includes
relevant national agencies and institutions, the GEF, UNDP and the Government of Vanuatu.
Outputs:



Required and optional information on project implementation and performance
Findings of project reviews and evaluations
Required and optional reports
Component 2: Adaptation Assessment Methodology, Information and Decision Support
Activity 2.1:
Identification and Establishment of Appropriate Vulnerability and Adaptation
Methodology
The ultimate success of the NAPA is contingent on being confident in identifying i) the
aspects of Vanuatu society, economy and environment that are most at risk to current climate
variability and extreme weather events; ii) where climate change is likely to cause further increases
in these risks; and iii) the key components of an integrated risk-based approach to reduce the
potential for, and impacts of, disasters resulting from extreme climatic events and for adaptive
measures that will lessen the adverse consequences of climate variability and change. The experience
gained during the vulnerability and adaptation assessments that underpinned Vanuatu’s Initial
National Communication (INC), and the second phase of such assessments, will be used to assess the
extent to which the methodologies employed at that time need to be strengthened in order to reflect
recent international and regional understanding and experiences, such as those documented in the
Third Assessment Report of the Intergovernmental Panel on Climate Change (IPCC), as well as the
need for nationally and locally-relevant assessment methodologies and supporting information.
This activity will identify and establish the appropriate methodology for vulnerability and
adaptation assessment. The emphasis will be placed on strengthening the participatory and rapid
assessment components of the existing methodologies (including those used in the previous V&A
assessment in line with the INC, so that expedient methods to assess current vulnerabilities and
18
potential increases in climate-related hazards and associated risks will be available for use by the
NAPA Working Groups, and ultimately by the NACCC.
Attention will also be given to the need to integrate and harmonize the hazard and risk
management tools and procedures with initiatives related to undertaking adaptation activities, which
reduce vulnerability to climate and sea-level variability and change (including extreme events).
General information on methodologies for vulnerability and adaptation assessments, as well
as for the formulation of NAPAs will also be consulted, including the NAPA Primer (Paul Desanker)
and the Adaptation Policy Framework (www.undp.org/cc/apf_outline.htm).
Activities will be undertaken to foster the sharing of work plans, success stories, lessons
learned, and “best” practices with other LDCs that are engaged in preparation of NAPAs. While the
focus will be on sharing and exchanging information, experience, methodologies, criteria and project
outputs with LDCs from the Pacific Islands Region, such cooperation will extend to LDCs in other
regions, as and when appropriate. In addition, Vanuatu will encourage other LDCs to share the cost
of experts and other project inputs, where it is possible to achieve economies of scale without
compromising national priorities and requirements. Coordination and cooperation of these activities
can best be fostered through LDC dialogues that may lead to joint implementation of project
activities. Contingent upon the agreement of the other Pacific LDCs at least, it is proposed to hold
three such dialogues, with one being held very early in the project cycle. UNDP/NCSU will assist in
the dissemination of information to facilitate this activity
The established V&A assessment procedure will also include procedures for identifying and
prioritizing urgent and immediate adaptation activities. Given the information already acquired
through the two phases of vulnerability and adaptation assessment conducted within Vanuatu, it has
been possible to identify priority sectors where adaptation activities should be implemented as a
matter of urgency. However, since there are very strong interactions between sectors, it is unwise to
take an entirely sector-based approach, especially for small islands. It will be more appropriate to
take an integrated approach by focusing on urgent and immediate adaptation activities that cut across
sectors. For this reason, in addition to prioritizing adaptation activities for given priority sectors,
some effort will also be given to prioritizing specific adaptation activities that reflect vulnerabilities
which cut across sectors; in this way Vanuatu can make a giant leap forward, building on the very
preliminary sector-based assessments undertaken for the Initial National Communication and
maximizing the use of information obtained during the second phase of vulnerability and adaptation
assessments; the latter studies highlighted the need for a more integrated, cross-sector approach.
Currently available vulnerability and adaptation assessment methodologies lack procedures
for prioritizing activities designed to negate or reduce the risks associated with climate and sea-level
variability and change (including extreme events) while at the same time taking account of such
considerations as national and local development goals, plans and frameworks. The difficulty of
prioritizing such activities cannot be overstated.
It is proposed that initial screening of potential adaptation activities involve a transparent and
accountable two-step process, as follows: i) the NACCC, in conjunction with the National
Sustainable Development Council, the NAPA Project Coordinator and the Working Groups, will
consider all potential adaptation activities and subsequently develop a list of proposed activities to be
19
undertaken in order to negate or reduce the identified risks associated with climate and sea-level
variability and change (including extreme events); and ii) the NAPA Project Coordinator will
organize national consultative workshops to solicit views on the list of proposed NAPA activities that
would be subject to a more comprehensive and detailed prioritization and selection process.
The agreed and more manageable list of potential adaptation activities will be subject to a more
detailed and comprehensive prioritization process. Building on the recent work of the IPCC and others, a
risk-based prioritization methodology6 will be adapted and used. The methodology will be based on
risks being assessed and ranked in an integrated manner, across the continuum of potential climaterelated events that may all be classed as hazards, ranging from extreme events of short duration (e.g.
a tropical cyclone), through events associated with variations in atmospheric and marine conditions
(e.g. ENSO-induced drought), to events resulting from long term changes, such as accelerated coastal
erosion as a consequence of sea-level rise. Regardless of their magnitude, frequency or duration, the
methodology will allow for the potential significance of these hazards to be prioritized using a
conventional risk assessment approach, involving exposure assessment (risk analysis) and risk
characterization (risk evaluation). The methodology will thus allow for an integrated risk-based
approach to determining the need for actions to reduce the potential for, and impacts of, disasters and
for adaptive measures that will lessen the adverse consequences of climate variability and change.
Decision support tools such as multi-criteria analysis, shared vision planning, consensus building,
conflict management and cost-benefit analysis will be incorporated in the methodology, as necessary
and appropriate, in order to ensure a robust, transparent and accountable procedure will be available
to the NAPA Team for prioritizing the adaptation activities.
The risks to be considered in the methodology will include those related to, amongst others:










loss of life and livelihood;
human health;
food security and agriculture systems;
water availability, quality and accessibility;
essential infrastructure;
cultural heritage;
biological diversity;
land use management;
other environmental amenities; and
coastal assets.
As part of the approach the findings of the risk-based prioritization process will be moderated
through a participatory and consultative process in order to take into account such additional
considerations as poverty reduction to enhance adaptive capacity, synergies with multilateral
environmental agreements and cost effectiveness. Decision support tools such as multi-criteria
6
See i) “Integrating Disaster Risk Management and Adaptation to Climate Variability and Change: Needs, Benefits
and Approaches, from a South Pacific Perspective”. Paper presented at the UNDP Expert Group Meeting –
Integrating Disaster Reduction and Adaptation to Climate Change, Havana, Cuba, June 17-19, 2002; ii) “Is Global
Warming a ‘Sword of Damocles’ for Pacific Island States?” Tiempo, Vol 44/45, September 2002; and iii) Footnote
5.
20
analysis, shared vision planning, consensus building, conflict management and cost-benefit analysis
will be incorporated in the methodology, as necessary and appropriate, in order to ensure a robust,
transparent and accountable procedure will be available to the NAPA Team for prioritizing the
adaptation activities. The participatory approach and other relevant approaches involved in
implementing projects under the National Biodiversity Strategy and Action Plan will also be used
incorporated in the process, to inform and strengthen the prioritization methodology developed under
this Activity.
A national expert on vulnerability and adaptation assessment will be recruited to support and
facilitate the multidisciplinary teams that will carry out the required assessments. Preferably, the
national expert is somebody who has been involved in the previous climate change enabling
activities undertaken by Vanuatu. He/She will review related international and national
documentation (in particular all NAPA-related documents prepared by UNFCCC and GEF) with
regards to V&A assessments, and propose the strengthened assessment methodologies most suited to
Vanuatu.
Outputs:



Appropriate V&A methodology that will be used for the NAPA, which is an improved and
strengthened method, especially with respect to their participatory and rapid assessment
components and integration of hazard and risk management tools and procedures, in order to
ensure that all are capable of reflecting the special circumstances of Vanuatu, including its high
vulnerability to climate and sea-level variability and change, including extreme events
Improved methodology for initial screening of potential adaptation activities
Improved methodology for detailed and comprehensive risk-based prioritization of potential
adaptation activities
Activity 2.2: Compilation and Assessment of Existing Information
With the assistance of the Working Groups, the NAPA Project Coordinator and the NACCC
will review the findings of both phases of the vulnerability and adaptation assessments that have been
undertaken in Vanuatu. The NAPA Project Coordinator will also assemble the findings of all other
impact and vulnerability assessments. The aim of the review will be to lay a foundation for
identifying the social, economic and environmental systems and assets most vulnerable to current
and projected climate-related events and changes and as well as the most vulnerable localities. The
review will also seek to identify trends in the vulnerability of these systems, assets and localities, in
an attempt to judge the urgency of adaptive interventions.
To complement these reviews of vulnerability, all available and relevant information on past
and current practices for coping with climate variability and change in Vanuatu and in other relevant
countries, particularly LDCs and Small Island Developing States, and results of past consultations
with Vanuatu stakeholders (both national and local) will be studied, along with such documents as
the Comprehensive Reform Programme, the Medium Term Development Plan, the National Strategy
for Implementation of the UNFCCC, the National Disaster Mitigation Plan and other relevant
information on national strategies for sustainable development. Where possible and relevant,
additional external information such as the Programme of Action for Least Developed Countries, the
Barbados Plan of Action, and poverty reduction strategy papers will be reviewed.
21
The ultimate aim of Activity 2.3 is to assemble a body of relevant and credible information
on the vulnerability of Vanuatu’s social, economic and environmental systems and assets to climate
and sea-level variability and change (including extreme events), on past and current practices used
within Vanuatu and elsewhere to cope with the consequences of climate variability and change, and
on the barriers to successfully coping with climate variability and change. A key output will also be a
documented list of information gaps, based in part on feedback provided by stakeholders. These gaps
will be addressed in Activity 2.4, where possible.
Outputs:




Reports on the vulnerability of Vanuatu’s social, economic and environmental systems and assets
to climate variability and change (including extreme events)
Reports on past and current practices used within Vanuatu and elsewhere to cope with the
consequences of climate variability and change
Report on the barriers to successfully coping with climate variability and change in Vanuatu
Report on information gaps
Activity 2.3: Filling the Information Gaps through Participatory Assessment of Vulnerability
and Identification of Potential Adaptation Activities
The information gaps identified in Activity 2.2 will be filled to the extent possible and
appropriate, given the timeframe and technical, financial and other constraints. Since not all
information gaps should or could be filled, priorities will be set by the NACCC, on the basis of
expert judgment and other inputs from relevant Working Groups. The NAPA Project Director, on the
advice of the NACCC and the Working Groups, will produce a detailed work plan for this activity,
and ensure that the appropriate resources are available for its implementation and review. The
established vulnerability and adaptation assessment methodology in Activity 2.1 will be used to help
fill the identified information gaps, as will targeted reviews and assessments of past consultations,
the coping and adaptation literature and existing development frameworks, policies and plans.
Totally new investigations and consultations will not be conducted under the NAPA.
An initial task under this activity will be a three day training/planning workshop, attended by
all members of the Working Groups, and on an optional basis by members of the NACCC. The
workshop will ensure participants have the requisite skills to undertake the participatory assessment
of vulnerability and identification of potential adaptation activities. The national vulnerability and
adaptation expert will facilitate this workshop.
In order to produce the required outputs from this activity, existing coping practices and
potential adaptation measures will be compared with the findings of the participatory assessment of
vulnerability to current and projected climate and sea-level variability and to climate change,
including extreme events. The Working Groups, the NAPA Project Coordinator and the NACCC will
evaluate how and to what extent the identified coping practices can address the vulnerabilities
identified for Vanuatu’s social, economic and environmental systems and assets, and what additional
adaptation interventions will be required.
22
Outputs:




Three day training workshop on undertaking participatory assessments of vulnerability and
identification of potential adaptation activities
Work plan for participatory assessment of vulnerability and identification of potential adaptation
activities
Reports on the findings of the participatory assessment of vulnerability
Reports on the findings of the participatory identification of potential adaptation activities
Activity 2.4: Preparation of a List of Potential Adaptation Activities to be Included in the
NAPA
In a transparent and accountable two-step process the NACCC, in conjunction with the
NAPA Project Coordinator and the NAPA Working Groups, will consider all potential adaptation
activities identified in Activity 2.3 and develop a list of proposed adaptation activities to be
undertaken in order to negate or reduce the identified risks associated with climate and sea-level
variability and change (including extreme events). The NAPA Project Coordinator, working with the
NACCC, will organize national and provincial consultative workshops to solicit views on the list of
proposed NAPA activities. The output of the consultative process will be a list of potential adaptation
activities that would be subject to a detailed prioritization and selection process. The NAPA Project
Coordinator will facilitate the workshops, with the assistance of members of the NACCC. This
process will allow adequate dialogue between the NACCC, the National Sustainable Development
Council and various stakeholders.
Outputs:

Documented and annotated list of proposed adaptation activities to be undertaken in order to
negate or reduce the identified risks associated with climate variability and change (including
extreme events)
Component 3: Prioritization of Urgent and Immediate Adaptation Activities
Activity 3.1: Identification and Prioritization of Urgent and Immediate Adaptation Activities
The risk-based methodology and criteria developed in Activity 2.1 will be applied to the
output of Activity 2.4 in order to identify and prioritize the urgent and immediate adaptation
activities. As noted under Activity 2.2, a fundamental aspect of the methodology is consultation with
key stakeholders to ensure that locally-focused information and views on vulnerable social,
environmental and economic systems and assets, and on potential risk reduction strategies involving
disaster management, coping practices and adaptation, are incorporated into the ranking process. In
this way, traditional knowledge and practices will be given appropriate recognition. The participatory
and other approaches involved in implementing projects under the National Biodiversity Strategy and
Action Plan will also form an integral part of the methodology and will be used to ensure that the
prioritization of adaptation activities is conducted using sound and appropriate procedures.
The findings of the risk-based prioritization process will be moderated through a
participatory and consultative process in order to take into account such additional considerations as
23
poverty reduction to enhance adaptive capacity, synergies with multilateral environmental
agreements and cost effectiveness.
Outputs:

Prioritized, documented and annotated list of urgent and immediate adaptation activities
Activity 3.2: Detailed Analysis and Subsequent Synthesis of Priority Adaptation Activities
In order to provide more comprehensive information on which to base the preparation of
detailed action agendas for adaptation, including specific activities, thorough more investigations will
be undertaken. For each of the priority adaptation activities, the hazards and associated risks to be
addressed through integrated disaster risk management and adaptation will be examined in greater
detail, as will the potential adaptation strategies, including specific adaptation measures together with
supporting activities including financial and other resource requirements, capacity building,
monitoring and review procedures. Descriptions of the specific activities required to address the
barriers identified during Activity 2.3 would be an output of this activity. With the support and
guidance of the NACCC, relevant Working Groups will be assigned to examine one or more of the
priority adaptation activities. Each Working Group will, among others:





Assess vulnerability to current climate variability and extreme weather events;
Assess where climate change is likely to cause increases in associated climate risks;
Identify key climate-change adaptation measures, based, to the extent possible, on the
vulnerability and adaptation assessments;
Identify activities required to address the barriers identified during Activity 2.4; and
Identify measures that explore links and synergies with other established and/or planned national
action plans under the United Nations Convention to Combat Desertification, national
Implementation Plan for the POPs under the Stockholm Convention, and the national
biodiversity strategies and action plans under the Convention on Biological Diversity.
The NACCC, the National Sustainable Development Council, the NAPA Project Coordinator
and designated experts will review the analysis of each of the priority adaptation activities and
provide feedback and guidance to the NAPA Project Coordinator. She/he will subsequently prepare a
draft synthesis report discussing priority activities addressing needs to cope with adverse effects of
climate change, drawing on expert guidance from relevant members of the NAPA Working Groups.
The report will include a major section describing links and synergistic opportunities with relevant
existing and/or planned national action plans on sustainable development, land degradation and
biodiversity conservation, for example. The draft synthesis report will be distributed for stakeholder
comment and reviewed during a national consultation workshop.
Outputs:

Report for each of the priority adaptation activities, describing the hazards and associated risks to
be addressed through integrated disaster risk management and adaptation, and the potential
adaptation strategies, including the specific activities required to address the barriers identified
during Activity 2.3
24


Synthesis report describing the priority activities that are needed in order to address the adverse
effects of climate change
National consultation workshop
Component 4: Preparation and Endorsement of the National Adaptation Programme of Action
Activity 4.1: Development of the Draft NAPA, including Specific Proposals for Adaptation
Activities
Based on outputs from Component 3, an integrated adaptation strategy and action plan will
be prepared. The strategy/action plan will identify prioritized activities to address the adverse
impacts of climate change. It will also indicate how each priority activity is related/linked to ongoing
and/or planned activities supporting sustainable development and those related to, for example, land
degradation and biodiversity conservation. It will also include a strategy for monitoring and
evaluating the outcomes of the action-oriented adaptation activities. Furthermore, it will describe
stakeholder roles/responsibilities; partners and partnerships; financing options; and time lines.
The proposed adaptation programme will include: i) capacity building such as human
resources development, institutional strengthening and information acquisition and management; ii)
policy reform; iii) integration of adaptation into sectoral policies and decision making; and iv)
specific proposals for priority project-level activities to address needs arising from the adverse effects
of climate variability and change, including extreme events. As part of the process of preparing the
draft NAPA, the NAPA Project Coordinator, on the advice of the NACCC and the National
Sustainable Development Council, will:




Develop a framework for the proposed adaptation programme, based on the information
assembled during the vulnerability and adaptation assessments;
Draw on the results of the national consultative workshops, and use the ideas expressed at those
workshops to help frame, elaborate and strengthen the descriptions of the specific adaptation
activities that will be included in the NAPA as a result of their high priority;
Ensure that the proposed adaptation activities, as well as the overall Programme of Action, have
complementarity with Vanuatu’s Medium Term Development Plan and with national, sectoral
and local policies and action plans, including those related to land degradation and biodiversity
conservation; and
Prepare profiles of priority activities for adaptation in Vanuatu, including objectives, description
of activities, required inputs, short-term outputs, potential long-term outcomes, institutional
arrangements, risks and barriers, evaluation and monitoring, and the financial and other resources
required.
Output:

Draft NAPA document, including specific proposals for adaptation activities
Activity 4.2: Review and Revision of National Adaptation Programme of Action
The NAPA document will be prepared in an iterative manner. All drafts will be reviewed in a
participatory manner through a series of provincial and national workshops participated in by all
25
stakeholders. After each consultation, the draft will be revised accordingly. The NAPA Project
Coordinator, advised by the NACCC and through it by the National Sustainable Development
Council, will be responsible for reviewing and responding to the proposed revisions.
The relevant media will be encouraged to report on all the provincial and national
consultations, in order to facilitate the flow of information to key players and all stakeholders.
National and international stakeholders will review the final draft NAPA document, at a national
workshop convened for that specific purpose. The final draft will be sent to all participants in
advance of the national workshop, to allow for their timely review.
The final version of the NAPA will be prepared. It will be no more than ten pages in length,
with two to three additional pages for each project profile.
Outputs:



Provincial and national consultative workshops
Media reports on the consultation process and on the outcomes, including the content of the
NAPA itself
Final version of the NAPA, reflecting the results of an extensive, consultative and participatory
review process
Activity 4.3: Endorsement of the National Adaptation Programme of Action
Through the NACCC and the National Sustainable Development Council, the finalized
NAPA will be submitted to the Cabinet of the Government of Vanuatu, and other key stakeholders,
for their approval and endorsement.
Outputs:

A NAPA document endorsed by the Government of Vanuatu and key stakeholders
Activity 4.4: NAPA Document Dissemination
Dissemination of the NAPA document will reflect the two main reasons for its preparation, namely:


To make information on the actions and activities required to address Vanuatu’s urgent needs for
adaptation available to the entity that will operate the LDC fund, and to other sources of funding,
in order to secure the provision of financial resources to implement the proposed adaptation
activities; and
To inform stakeholders in Government, civil society and the private sector, as well as the public
at large, of the urgent need for action to reduce the current vulnerability of Vanuatu to climate
and sea-level variability and to address the potential increase in climate hazards and associated
risks as a result of climate change, and to inform them of the opportunities to reduce these
vulnerabilities and risks through adaptation, including implementation of the specific adaptation
activities that are included in the NAPA.
26
The NAPA, with Government endorsement, will be submitted to relevant international (e.g.
GEF) and bilateral organizations, for their consideration to fund and/or co-finance specific adaptation
activities. The Government of Vanuatu will also provide copies of the endorsed NAPA document to
the UNFCCC and to the Least Developed Countries Expert Group, among others.
In order to ensure wide awareness and acceptance of the NAPA, the NAPA document will be
translated into Bislama. Bislama and English versions of the NAPA document will be distributed, as
appropriate, to local governments and stakeholder groups, including those which studies showed are
especially vulnerable to the adverse effects of climate and sea-level variability and change, including
extreme events. Media campaigns and awareness raising workshops will also be conducted, making
use of key players and opinion leaders to convey key messages to the main target groups in order to
provide a constructive enabling environment for the ultimate implementation of the proposed urgent
and immediate adaptation activities.
Outputs:



The endorsed NAPA document, submitted to relevant international and bilateral organizations for
their consideration
Bislama and English versions of the NAPA document
Widespread awareness and acceptance of the NAPA, by Government, the private sector and civil
society, assisted by the efforts of key players and opinion leaders
5. Institutional arrangements for oversight and coordination
A proposed organizational chart for the NAPA Formulation Project is provided as Figure 3.
a) High level political oversight, coordination and policy integration
Currently there are two high level policy-setting and decision-making bodies within the
Government of Vanuatu – the Council of Ministers and the Development Committee of Officials.
Currently neither is able to provide the required level of integration of economic development,
environmental protection and social mobilization initiatives consistent with sustainable
development goals. Thus the desired complementarity between major national initiatives, such as
the proposed NAPA formulation project, and the resulting synergies, are not being achieved. The
proposed National Sustainable Development Council, with its high level oversight, will be
established to in order to achieve the desired integration and realize the potential synergies.
Information, advice and decisions will flow between the NAPA Project Coordinator and the
National Sustainable Development Council, via the NACCC.
b) Project management and operational coordination
The Secretariat to the NACCC has formal responsibility for coordinating climate change
activities in Vanuatu. In fulfilling its mandate, the Secretariat is advised and supported by the
NACCC, and in turn by the proposed National Sustainable Development Council. The National
Project Coordinator plays a pivotal role in executing the work programme of the Secretariat. The
NAPA Project Coordinator will be responsible to the NACCC, through the National Project
Coordinator.
27
c) Involvement of the National Climate Change Country Team and Relation to Vanuatu’s National
Communications to the UNFCCC
The NACCC serves as Vanuatu’s National Climate Change Country Team, and has formal
recognition and support of the Government. Currently the NACCC advises Government through
the Development Committee of Officials, but it is proposed that the main line of reporting be to
newly established National Sustainable Council. The NACCC has ongoing responsibility for the
preparatory activities related to Vanuatu’s National Communications to the UNFCCC.
d) Coordination with other teams for the preparation of national reports (CBD, CCD, others).
It is proposed that complementarity of activities related to implementation of multilateral
environmental agreements, both international and regional, be assured by establishing the
National Sustainable Development Council. At present complementarity is facilitated by the
Environment Unit, the Head of which currently chairs the NACCC. In either of these ways,
coordination and complementarity with related policies, plans, programmes and action plans will
be assured.
e) Coordination with other NAPA projects in the Pacific Region
Vanuatu’s NAPA project will take advantage of the unique opportunity for sharing experience
and expertise with the four other LDCs in the region. The implementation of some joint activities
will be explored together with these countries, whereby inputs may be shared in order to achieve
economies of scale; the Vanuatu NAPA project staff could participate in meetings to plan and
coordinate activities and share experience and expertise.
f) Monitoring and Evaluation
UNDP-Suva will monitor and support implementation of the NAPA formulation project in line
with standard procedures. Further details of monitoring and evaluation are provided in Annex 3.
6. Timetable:
The preparation, endorsement and dissemination of the Vanuatu National Adaptation
Programme of Action are expected to take 18 months. Estimated start of project is 01 January 2003
and completion is 01 August 2004. A detailed time line is presented in Annex 2.
28
7. Budget (US $)
ACTIVITY
STOCKTAKING
PROCESS:
(ASSESSMENTS,
CONSULTATIONS,
WORKSHOPS,
ETC.)
PRODUCT:
ASSESSMENT
REPORTS/ STRATEGY
TOTAL
2,000
5,500
2,500
10,000
1,000
2,500
4,000
7,500
15,500
5,500
21,000
3,000
5,000
11,000
7,000
4,000
11,000
7,000
4,000
11,000
40,500
25,000
71,500
AND ACTION PLAN
Assessment and prioritization
1) Information gathering and synthesis,
assessment of vulnerability
i) Gathering of available
information on adverse effects of
climate change and coping
strategies
ii) Synthesis of available
information on adverse effects of
climate change and coping
strategies
iii) Participatory assessment of
vulnerability to current climate
variability and extreme weather
events, and associated risks
2) Identification of adaptation
measures, and criteria for priority
activities
i) Identification of past and current
practices for adaptation to climate
change and climate variability
3,000
ii) Identification of key climate
change adaptation measures
iii) Identification and prioritization of
criteria for selecting priority
activities
TOTAL
(Assessment and prioritization)
6,000
Development of proposals for priority activities
29
ACTIVITY
STOCKTAKING
1) National consultative process for
short listing potential activities
2) Selection and identification of
priority activities on the basis of
agreed criteria
3) Prepare profiles of priority activities
in the prescribed format
TOTAL
(Development of proposals for priority
activities)
PROCESS:
(ASSESSMENTS,
CONSULTATIONS,
WORKSHOPS,
ETC.)
PRODUCT:
ASSESSMENT
REPORTS/ STRATEGY
TOTAL
2,750
1,750
4,500
6,600
3,100
9,700
8,000
1,200
9,200
17,350
6,050
23,400
10,000
4,200
14,200
AND ACTION PLAN
Preparation, review and finalization of the NAPA
1) Public review
2,550
2) Final review by government and civil
society representatives
15,000
15,000
10,000
5,000
15,000
22,550
25,200
47,750
3) Printing, publishing and translation of
the final NAPA document
4) Dissemination
TOTAL
(Preparation, review and finalization
of NAPA)
3,550
Technical assistance
1) Assistance requested from LDC
expert group
2) Other technical assistance7
7
2,500
2,500
20,050
20,050
Technical assistance will be provided through use of various in-country experts and will relate to the following
areas of activity: awareness raising, consultation, capacity building, reviewing and strengthening V&A
30
ACTIVITY
STOCKTAKING
TOTAL
(Technical assistance)
PROCESS:
(ASSESSMENTS,
CONSULTATIONS,
WORKSHOPS,
ETC.)
PRODUCT:
ASSESSMENT
REPORTS/ STRATEGY
TOTAL
AND ACTION PLAN
22,550
22,550
34,800
34,800
Project coordination and management
TOTAL
(Project coordination and
management)
TOTAL
6,000
137,750
56,250
methodologies, developing and applying methods and criteria to prioritize adaptation activities, compilation and
assessment of existing information, filling of information gaps, analysis and synthesis of priority adaptation
activities and preparation of profiles for adaptation projects. The LDC Expert Group and UNDP/NCSU will
provide technical advice as appropriate.
31
200,000
Annex 1
Assessment of Adaptation Opportunities8
1.

Diversification of cash crops, if aimed at reducing dependence on a few monocultural crops, will
help reduce adverse effects on the environment and increase the resilience of such systems to
climatic extremes.
Enhancing of traditional agriculture systems by diversifying subsistence crops, promoting
agroforestry, encouraging sustainable practices, and developing economic opportunities, would
contribute to environmental protection and resilience.
Encouragement of sustainable land-use practices would provide long-term benefits to the
economy and environment of Vanuatu.
Introduction of drought resistant crops is a specific adaptation measure, which could be
introduced to drought affected areas. However, this is a higher cost, more reactive, adaptation
option.
Increased shift to imported food would be a less desirable adaptation measure, because it is not
cost-effective and would increase dependency of Vanuatu on external support, particularly in
times of stress.




2.




3.


8
Human Health
Awareness programmes would help reduce public health risk of diseases such as malaria. This is
an on-going, low cost, adaptation measure, which benefits both humans and the environment.
Mosquito nets as protection against malaria have proven to be effective and their continued use
should be encouraged and supported.
In most areas a mosquito eradication programme is not a practical option and may have high
environmental and public health costs.
Reduction of artificial breeding sites would be an effective measure to reduce the risk of malaria
in some areas with the added benefit of improving the environment.
Improvement of medical facilities and services provides health benefits to local communities but
is presently, and is likely to continue to be, dependent on foreign aid.


Agriculture
Water Resources
Increased rainwater storage capacity through the use of water tanks and small-scale dams is
expensive, but will benefit the community in times of water shortage especially extreme events
such as cyclones and droughts.
A wide range of methods could be implemented to maintain and enhance quality of surface and
ground water resources.
Measures to enhance and protect sensitive watersheds would both maintain water quality and
moderate the impact of extremes in rainfall. There would also be wider environmental benefits,
such as reduced erosion and soil loss and maintenance of biodiversity and land productivity.
From “Vanuatu National Statement on Vulnerability and Adaptation”, prepared by Nelson Rarua, Patricia Mawa,
Russell Nari and Atchinson Marav Smith.
32

4.





Improved water supply in urban areas, being relatively low cost, would help reduce health
problems from poor water quality.
Coastal Environment
Conservation of mangrove systems would help increase the ability of these systems to cope with
the stresses of climate change and sea level. It will also maintain the natural storm and erosion
protection that they offer and their productivity as a resource.
Conservation of coral reef systems would also help increase the ability to cope with the stresses
of climate change and sea-level rise. This may involve a range of both direct and indirect
measures that could be implemented from watersheds to the coast.
Sustainable use of marine resources would ensure maintenance of ecological integrity and thus be
of benefit to the marine environment as a whole in protecting against adverse effects from
climate and sea-level change.
Replanting of littoral forests would help protect sensitive coastal environments.
Building of sea walls is a high cost option, which would only be of value for very specific areas
and would be impractical on large scale.
33
Annex 2; NAPA Formulation Project Schedule of Activities
Module/Activity
Year 1
Year 2
1 2 3 4 5 6 7 8 9 10 11 12 1 2 3 4 5 6
Module No. 1: Implementation and Management
Establish Institutional and Management Arrangements
Ensuring High Level Mainstreaming and Support for the
NAPA Process
Awareness Raising and Consultation Amongst
Stakeholders
M
M
M
Mobilizing Technical and Other In-country Support
R
Monitoring, Review, Evaluation, and Reporting
Module No. 2: Methodologies, Information and
Decision Support
Review & Strengthen Vulnerability and Adaptation
Methodologies
Methods and Criteria to Prioritize Adaptation Activities
Compilation and Assessment of Existing Information
Filling Information Gaps
Prepare List of Potential Adaptation Activities
Module 3: Prioritize Urgent and Immediate Adaptation
Activities
Identification and Prioritization of Adaptation Activities
Analysis and Synthesis of Priority Adaptation Activities
Module No. 4: Preparation and Endorsement of the
NAPA
Development of the Draft NAPA
Review and Revision of NAPA
Endorsement of the NAPA
NAPA Document Dissemination
M = Meeting
R = Report
34
R
R
Annex 3
Vanuatu NAPA Formulation Project: Monitoring and Evaluation
The project will be monitored and evaluated following UNDP-GEF rules and procedures. The
Executing Agency (NACCC) will be required to prepare quarterly and annual work plans and to
report to UNDP on progress in achieving targets. The Quarterly Progress Reports (QPRs) would
provide a brief summary of the status of project inputs and output delivery, explain variances from
the work plan, and present work plans for each successive quarter for review and endorsement. These
quarterly reports will include financial statements and the work plan for the subsequent quarter.
Annual Progress Reports (APR’s) would provide a more in-depth summary of work-in-progress,
measuring performance against both implementation and impact indicators. APR’s would inform
decision-making by the Project Steering Committee, which would evaluate whether any adjustment
in approach is required. A terminal report would be completed prior to the completion of the project
detailing achievements and lessons learned.
The Secretariat of the NACCC will undertake continuous, self-monitoring. After GEF approval of
the NAPA proposal brief it will be converted into a UNDP Project Document. Among the important
items that will be included in the project document will be a detailed work program that will include
the success indicators or objectively verifiable indicators for each activity that will be carried out
under the NAPA formulation project. These indicators, which will be reviewed for their practicability
and completeness prior to project implementation, are the parameters that have to be monitored by
the NACCC under the NAPA formulation project. Additional activities may be included (if
necessary) to verify the attainment of some specific indicators. The extent by which the NAPA
formulation project goal is achieved can be evaluated from the monitored results.
The NACCC and UNDP-Suva shall be responsible that the overall monitoring and evaluation
framework for the NAPA formulation project and together will appropriately and holistically assess
the quality and appropriateness of the various outputs/results of the project activities vis-à-vis the
adaptation and national development goals of the country.
The project will be subject to a Tri-partite Review (TPR) organized by UNDP-Suva. The NACCC
will prepare and submit to UNDP an Annual Project Report (APR) two months prior to the TPR
meeting. APRs would provide a more in-depth summary of work-in-progress, measuring
performance against both implementation and impact indicators. APRs would inform decisionmaking by the NACCC, which would evaluate whether any adjustment in approach is required. A
Terminal Report would be completed prior to the completion of the project detailing achievements
and lessons learned. UNDP will also undertake annual monitoring visits to the country to assess
project developments in accordance with UNDP procedures for Monitoring and Evaluation.
Financial Reports will be prepared by the NACCC and submitted to UNDP on a quarterly basis in
accordance with the Guidelines for National Execution.
UNDP/NCSU will provide backstop the NAPA project as part of its normal services to ensure
technical quality of its projects. Assistance can be provided as needed, including for the review of
draft documents.
35