Tonga: Cyclone Ian Recovery Project

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Lessons

Including the recruitment of project management consulting services in the design of disaster response projects will promote immediate post-disaster recovery and avoid further overstretching government capacity during the post-disaster period.

At appraisal, the project was designed to use existing implementation arrangements under two ongoing Asian Development Bank (ADB) projects in Tonga. Support for the restoration of the electricity distribution network in the Ha’apai island group, damaged 90%−95% by tropical cyclone Ian, was linked to the Outer Island Renewable Energy Project (OIREP) while support for school reconstruction was linked to the Climate Resilience Sector Project (CRSP). This arrangement was executed well with the OIREP project management unit (PMU) but was not successful in CSRP’s case. The CRSP PMU consulting services contract was not signed until 17 months after project effectiveness in September 2014. To minimize delays, a national project coordinator was recruited under the CRSP. The project additionally used the services of the CRSP accountant and national social safeguards officer but did not involve the full CRSP PMU staff even after the PMU was recruited. Drawing on this experience, it is important for future post-disaster reconstruction projects to consider incorporating into their design the recruitment of separate project management consulting services even if there are ongoing ADB initiatives in the project sites. This would help ensure timely startup and avoid adding to the pressures on executing and implementing agencies that, in the aftermath of disasters, are usually overstretched to meet the needs of simultaneous, multiple donor-funded reconstruction works.

Project Cycle Stage:

Preparation

Implementation

Using the procurement procedural flexibilities provided under ADB’s Disaster and Emergency Assistance Policy can boost the effectiveness and efficiency of post-disaster response projects.

Use of force account for works and direct contracting for repeat order supplies from frequently used suppliers facilitated the early start of this project’s physical works. As a result, most outputs were delivered ahead of schedule, allowing the rehabilitated services and facilities to be used much earlier than expected. For projects spread over remote locations, the project has shown that breaking packages into smaller sizes, instead of using a single international competitive bidding package, diffuses the risks and fosters faster completion of civil works. Overall, the project experience has demonstrated the advantages of the procedural flexibilities provided under ADB’s Disaster and Emergency Assistance Policy and how they can be maximized to ensure project effectiveness and efficiency. (Implementation: post-disaster rehabilitation/reconstruction projects, procurement post-disaster rehabilitation/reconstruction projects, procurement DEAP)

Project Cycle Stage:

Implementation

Navigating challenging logistics and site conditions can be facilitated by tapping into existing local knowledge and practices.

Several project facilities were in remote island locations that lacked jetties for unloading construction materials and/or lacked any means of road transportation to cart materials from the coast to the construction sites. Hiring local contractors from these islands minimized delays associated with these logistical dilemmas, as they were able to overcome these obstacles using their knowledge of tides and traditional methods of unloading and carting materials to construction sites.

Project Cycle Stage:

Implementation

Building back better requires innovation.

The Ministry of Infrastructure (MOI), the implementing agency for this project’s school reconstruction component and the Ministry of Education and Training (MET) had high praises for the cyclone shutters installed in classrooms and staff quarters, which can easily be placed over windows during cyclone alerts and stored below the windows when not in use. The two agencies were also appreciative of the folding partitions between two classrooms that could be opened with ease to create a mini hall for bigger school events and regular meetings of parent–teacher associations. The renovated school buildings also have wider roofing areas for rainwater harvesting; in addition, the project ensured that no opportunity was missed for rain harvesting in the freshwater-scarce outer islands by providing them with water tanks with adequate plumbing infrastructure. These design features maximized the benefits of the project’s building back better approach to post-disaster reconstruction. The MET and the MOI replicated the shutters and folding partitions in the reconstruction of schools in the island group of Tongatapu damaged by cyclone Gita in February 2018.

Project Cycle Stage:

Preparation

Implementation

Background

The World Risk Report 2012 ranked Tonga, a country of 176 islands and four island groups, second only to Vanuatu in terms of vulnerability to natural disasters. Natural disasters such as tropical cyclones and storm surges have been inflicting significant losses on Tonga’s economy while also depleting its cash reserves. Rising sea levels and ocean temperatures and other climate change-related occurrences have played a major role in increasing the country’s exposure to natural disasters. Because of climate change, Tonga is experiencing increased rainfall variability, more frequent flooding and droughts, and rising coastal erosion.

Tropical cyclone Ian, a Category 5 system and the most powerful recorded cyclone to hit Tonga, passed directly over the Ha’apai island group on 11 January 2014. The cyclone caused substantial damage to homes, schools, and vital public infrastructure. It directly affected 5,000 people or 66% of Ha’apai’s population who comprise about 7.5% of Tonga’s population. Total damages and losses were initially estimated at $55.3 million or 12.1% of the country’s gross domestic product.

The government declared a state of emergency on the day the cyclone hit and requested for international assistance from donor partners. In response, the Asian Development Bank (ADB) and the government of New Zealand agreed to jointly fund the reconstruction needs of the education and energy sectors through the Cyclone Ian Recovery Project. The project, which was based on the government’s Tropical Cyclone Ian Response Plan, was approved in May 2014 for a grant of $4.52 million from ADB and another grant of $4.27 from New Zealand. Its envisaged impact was more climate- and disaster-resilient electricity, education, and government services for the people of Ha’apai. Its expected outcome was the restoration of electricity supply and pre-disaster education and government services in the project area.

At appraisal, the project planned to deliver three key outputs: (i) reconstruction and climate- and disaster-proofing of the electricity network, (ii) reconstruction and climate- and disaster-proofing of school facilities, and (iii) removal and safe disposal of asbestos from damaged buildings in Ha’apai. ADB was to finance all three outputs while New Zealand would cofinance output 2. During implementation, a minor change in scope was made to accommodate government’s request to have 3 more public buildings in Lifuka—the Ha’apai Court House, the public market, and the Ministry of Infrastructure (MOI) garage—restored.

Project outcome and output targets were met, and some were exceeded. In most cases, outputs were delivered ahead of schedule, allowing the use of project rehabilitated services and facilities much earlier than expected. By January 2016, 95% of the electricity restoration works under output 1 were completed and officially handed over to the government in February 2016. Domestic consumers were thus able to connect to the network after their dwellings were reconstructed under the World Bank’s housing reconstruction project. Reconnected larger commercial customers with a permanent three-phase power supply were able to resume operations in full. The remaining 5% of electricity distribution restoration works was completed in June 2018 and included laying of 1.5 km high-voltage underground cable in the new public hospital in Lifuka.

Twelve primary and four secondary schools, and the Ministry for Education and Training (MET) office in Ha’apai were restored. Material containing asbestos was removed from two damaged schools, Niu’ui Hospital, government offices, and residential buildings. Due to limited local knowledge on safe handling and lack of disposal sites for asbestos in Ha’apai, an international asbestos removal specialist supervised all asbestos removal activities and safely carted contaminated materials to a landfill in Tongatapu for disposal. Completion of this output in early 2015 allowed reconstruction works on these buildings to proceed safely.

Because of highly successful output and outcome deliveries, the project fully achieved its desired impact, in some cases exceeding targets. Economic recovery was facilitated, overall quality of life was improved, and classes resumed in a safe environment conducive to learning. The number of days that schools in Ha’apai must close because of extreme weather or natural disasters was reduced.

The project had the Ministry of Finance and National Planning as executing agency. The Tonga Power Limited was the implementing agency for output 1 and the Ministry of Infrastructure the implementing agency for outputs 2 and 3.

Project Information

Project Name:

Cyclone Ian Recovery Project

Report Date:

November, 2019

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