POST DISASTER
RAPID ASSESSMENT
TROPICAL CYCLONE GITA // FEBRUARY 12, 2018
GOVERNMENT OF TONGA
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Currency and equivalents: Currency unit = Pa’anga (T$)
T$ = US$1. Fiscal year: July 1 – June 30
PREPARED BY THE GOVERNMENT OF TONGA, WITH THE SUPPORT OF
ACP-EU Natural Disaster Risk Reduc
on Program
An ini�a�ve of the African, Caribbean and Pacific Group, funded by the European Union and managed by GFDRR
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Executive Summary 3
ABBREVIATIONS 6
ACKNOWLEDGEMENTS 8
1. EXECUTIVE SUMMARY 11
Summary of Damage and Losses 11
Summary of Macroeconomic Impact Assessment 12
Human and Social Impacts 13
Summary of Recovery and Reconstruction Needs 13
Way Forward 15
Development of a Disaster Recovery Framework 15
Institutional and Policy Setup (including Goods and Services) 15
2. INTRODUCTION 17
Disaster Risk Profile of Tonga 17
Socioeconomic Context of Tonga 18
Tropical Cyclone Gita 18
Government and Humanitarian Response 19
Methodology 19
Assessment of Disaster Effects 20
Assessment of Disaster Impact 20
Recovery Strategy and Needs 20
Specific Context of This Rapid Assessment 20
Limitations of This Rapid Assessment 20
4
3. ECONOMIC AND SOCIAL IMPACTS 23
Macroeconomic Impact 23
Gross Domestic Product 23
Prices 23
Trade and Balance of Payments 24
Fiscal Position 24
Post-Disaster Economic Outlook 24
Social Impact 26
Summary 26
Employment 27
Gender 29
Social Protection 32
Recovery Strategy and Needs 35
4. DAMAGE, LOSSES, AND NEEDS 41
Productive Sectors 41
Agriculture 41
Commerce and Industry 51
Tourism 60
Social Sectors 69
Housing 69
Education 77
Health 83
Infrastructure Sectors 87
Energy 87
Executive Summary 5
Public Buildings 91
Transport 95
Water and Sanitation 100
5. DISASTER RISK MANAGEMENT:
EARLY WARNING AND PREPAREDNESS FOR TC GITA 105
Disaster Risk Management Sector Background 105
Performance of the Tonga DRM System during TC Gita 106
Tropical Cyclone Forecasting 106
Performance of Early Warning System 106
Damage to the National Multi-Hazard Early Warning System 108
Conclusion 108
6. SUMMARY OF RECOVERY AND RECONSTRUCTION NEEDS 111
Modalities for Recovery and Reconstruction 112
Overview of Recovery and Reconstruction Needs 112
7. WAY FORWARD 115
Development of a Disaster Recovery Framework 115
Institutional and Policy Setup (including goods and services) 116
8. REFERENCES AND MATERIALS CONSULTED 119
ANNEXES 120
Annex 1: Map of Tonga 120
Annex 2: Commerce Sector Estimation 121
Annex 3: List of Contributors 122
6
ABBREVIATIONS
ADB Asian Development Bank
BBB Building back better
BNPL Basic Needs Poverty Line
DFAT Department of Foreign Affairs
and Trade
DRF Disaster recovery framework
DWS Disability Welfare Scheme
ECE Early childhood education
EIIP Employment Intensive Infrastructure
Programs
FTWC Fua’amotu Tropical Cyclone
Warning Centre
FY Fiscal year
GBV Gender-based violence
GDP Gross domestic product
GWh Gigawatt hour
HIES Household Income and
Expenditure Survey
ISPS International Ship and Port
Facility Security
JICA Japan International Cooperation
Agency
kph Kilometers per hour
kV Kilovolt
MAFFF Ministry of Agriculture, Food, Forests,
and Fisheries
MCCTIL Ministry of Commerce, Consumer,
Trade, Innovation and Labour
MEIDECC Ministry of Meteorology, Energy,
Information, Disaster Management,
Environment, Climate Change and
Communications
MFAT Ministry of Foreign Affairs and Trade
(New Zealand)
MIA Ministry of Internal Affairs
MLSNR Ministry of Lands, Survey and
Natural Resources
MOET Ministry of Education and Training
MOFNP Ministry of Finance and National
Planning
MOI Ministry of Infrastructure
MORDI Mainstreaming of Rural Development
Innovation
MW Megawatt
NEMO National Emergency Management
Office
NGO Non Government Organization
NNUP Nuku’alofa Network Upgrade Project
NRBS National Retirement Benefits Scheme
OIREP Outer Islands Renewable
Energy Project
PAT Ports Authority Tonga
PSA Public Service Association
Executive Summary 7
PV Photovoltaic
RSMC Regional Specialized
Meteorological Centre
SME Small and medium enterprise
TAL Tonga Airports Limited
TC Tropical Cyclone
TCCI Tonga Chamber of Commerce
and Industry
TDB Tonga Development Bank
TNCWC Tongan National Centre for Women
and Children
TNYC Tongan National Youth Congress
TPL Tonga Power Limited
TVNUP Tonga Village Network Upgrade Project
TWB Tonga Water Board
TWMF Tapuhia Waste Management Facility
UN Women United Nations Entity for
Gender Equality and the
Empowerment of Women
VWC Village Water Committee
WAD Women’s Affairs Division
WAL Waste Authority Limited
WASH Water and sanitation
9 Acknowledgements
ACKNOWLEDGEMENTS
This Post Disaster Rapid Assessment of the impacts
of Tropical Cyclone Gita was a labour-intensive
exercise that would not have been possible without
the support of various Ministries who have contributed
their expertise to this report. The government-led
approach to disaster risk management has been
underscored by the drive and dedication of Ministry
staff who have provided both time and expertise to
this rapid assessment, which is a model for improved
coordination while working together for a more
resilient Tonga.
Special acknowledgement is extended to Hon. Samuela
‘Akilisi Pohiva, Prime Minister of Tonga, Hon. Poasi
Tei, Minster for Meteorology, Energy, Information,
Disaster, Environment, Communications, and Climate
Change (MEIDECC), and Hon. Pohiva Tu’i’onetoa,
Minister for Finance and National Planning for their
leadership throughout the assessment. The support
and cooperation extended by Mr. Leveni ‘Aho (Director
for the National Emergency Management Office),
Mr. Paula Ma’u (Chief Executive Officer for MEIDECC),
Mrs. Balwyn Fa’otusia (Chief Executive Officer for
Finance and National Planning), and Mrs. Natalia
Palu (Deputy Chief Executive Officer for Finance and
National Planning) is also acknowledged.
The Post Disaster Rapid Assessment team is
grateful for the technical and financial support
from the Africa Caribbean Pacific–European Union
(ACP- EU) Natural Disaster Risk Reduction Program,
the Asian Development Bank (ADB), the Global
Facility for Disaster Reduction and Recovery (GFDRR),
the European Union (EU), the Pacific Community
(SPC), United Nations Entity with the gender equality
and empowerment of Women (UN Women), the
International Labour Organization (ILO) and the World
Bank Group, which provided the overall guidance for
the process.
The Post Disaster Rapid Assessment greatly
benefitted from the dedicated involvement and
valuable contribution by the following individuals:
Keiko Saito (Disaster Risk Management Specialist,
World Bank), Simone Esler (Disaster Risk Management
Specialist, World Bank), Michael Bonte-Grapentin
(Senior Disaster Risk Management Specialist,
World Bank), Andrew Hurley (Consultant Engineer,
World Bank), Nathan Hale (Program Assistant,
World Bank), Elizabeth Ika (ADB/World Bank), Asha
Kambon (Consultant Rapid Assessment Methodology
Specialist, World Bank), Siosaia Faletau (Liaison
Officer, World Bank), Tatafu Moeaki (Liaison Officer,
ADB/World Bank), and the Project team of the Pacific
Resilience Program (MEIDECC).
Photo: Malani Wolfgramm/World Bank. Undertaking home repairs in Havelu, Tongatapu.
Executive Summary 11
1EXECUTIVE SUMMARY
Tropical Cyclone (TC) Gita passed over the Tongatapu
and ‘Eua island groups around 11 pm on Monday
February 12, 2018. Anticipating the storm to be a
destructive Category 5 system, the acting prime
minister preemptively issued a Declaration of a
State of Emergency on the morning of February 12.
Upon landfall, TC Gita had not reached the expected
intensity, but it is still the strongest tropical cyclone
to impact Tongatapu and ‘Eua since TC Isaac in March
1982, with average wind speeds of 130 kph and gusts
of up to 195 kph1. An accompanying storm surge
reached 1 m above normal high-tide levels, and
200 mm of rainfall fell over a 24-hour period,
resulting in localized flooding.
Following TC Gita’s passage from Tonga, there
were reports of significant damage on both
Tongatapu and ‘Eua. The storm impacted
approximately 80,000 people, which is around
80 percent of Tonga’s population. The storm brought
down power lines; damaged and destroyed schools,
resulting in closures; destroyed crops and fruit
trees; and damaged public buildings, including the
domestic airport, the Parliament building, and Tonga
meteorological services. TC Gita also significantly
impacted housing, with over 800 houses destroyed
and a further 4,000 damaged.
SUMMARY OF DAMAGE
AND LOSSES
The total economic value of the effects caused
by TC Gita was estimated to be approximately
T$ million (US$ million). This is equivalent
to percent of the nominal gross domestic product
(GDP) in Tonga2 and suggests the scale of impact.
Of these effects, T$ million (US$ million)
is attributable to damage and T$ million
(US$ million) is attributable to losses.
Table 1 shows the breakdown of the damage
and losses by
TC Gita produced different effects across the
different economic and social sectors. The sector that
sustained the highest level of damage was the housing
sector, which accounts for 53 percent of the total
damage cost, followed by the tourism sector, which
accounts for 13 percent. The largest level of economic
losses is expected in the agriculture sector, which is
estimated at 63 percent of the total losses.
1. MEIDECC, “Tropical Cyclone Gita Meteorological Report,”
February 23, 2018.
2. The share is calculated for the nominal 2017 GDP,
which is estimated at T$ million.
3. All data shown in tables and figures were collated by the Post-
Disaster Rapid Assessment teams unless otherwise noted.
Photo: Malani Wolfgramm/World Bank. Damaged home in Hofoa, Tongatapu.
12
Source: Estimations by Assessment Team based on government figures.
TABLE 1. Summary of Disaster Effects by Sector (T$ millions)
Although the cyclone destroyed physical assets in
February 2018, production losses and associated
higher costs of production will linger for some
time. The negative impact of the disaster on overall
economic conditions in the country will thus be felt for
several years to come.
SUMMARY OF MACROECONOMIC
IMPACT ASSESSMENT
Growth has remained relatively robust in Tonga in
recent years, averaging over 3 percent during the
three years from FY2013/14 to FY2015/16 (fiscal
years end in June). Growth was projected to be to
around percent in FY2017/18 and percent in
FY2018/19 before moderating to around 3 percent
in FY2019/20. Over the medium term, growth was
expected to ease to around 2 percent as construction
projects wound down.
The outlook for economic activity over the next two
to three years is now likely to be significantly affected
by Cyclone Gita–related recovery and reconstruction
activities and the extent to which losses in the
agriculture and tourism sectors persist. Losses are
expected to be substantial in both FY2017/18 and
FY2018/19 but to diminish rapidly from FY2019/20
onward. Over the next three to four years, losses will
be partially offset by reconstruction and repair activity
for housing, public buildings, and schools, which is
projected to begin in the last few months of FY2017/18
and ramp up over the two following years before
scaling back in FY2020/21 and after. Growth is now
expected to slow to around percent in FY2017/18,
before a strong rebound in FY2018/19 and FY2019/20.
DAMAGE LOSSES TOTAL
Productive Sectors
Agriculture
Commerce and Industry
Tourism
Social Sectors
Housing
Education
Health
Infrastructure Sectors
Energy
Public Buildings
Transport
Water and Sanitation
TOTAL
Executive Summary 13
Given the proportion of the population living in rural
areas, the cyclone is likely to have had substantial
impacts on Tonga’s poorest and most vulnerable,
mainly through its effect on small-scale and
subsistence farming activities. While reconstruction
activities are expected to provide a substantial boost
to the economy, these should be carefully sequenced
and prioritized, given domestic capacity and financing
constraints. Overall, in light of the limitations of the
Rapid Assessment, which reflects only the information
available at the time of writing, the projections for
domestic economic activity should be treated with a
substantial degree of caution.
In the wake of TC Gita, imports will rise markedly above
the levels forecast before the cyclone, while exports
of agricultural produce will likely decline, in line with
the projected effects on economic activity in the
agricultural sector. Looking forward, imports will likely
remain higher than previously expected, in line with the
additional reconstruction activity now forecast to take
place over the next three to four years.
In the immediate aftermath of the cyclone, donor
contributions and insurance payouts contributed
significantly to the government’s Emergency Fund
(in the order of T$23 million), and this will be used to
finance many of the most urgent recovery needs. The
cabinet has approved exemptions to the consumption
tax and various excise taxes for individuals and
businesses affected by the cyclone. Some ministries
have reallocated some resources to cyclone recovery
activities, which will require additional spending to
ensure the continued delivery of important services.
In FY2018/19 and over the next few years, the budget
position will be critically affected by the total cost
of cyclone recovery and reconstruction needs, the
proportion of these needs that are financed by
government, and the extent of financial assistance
from development partners. If it is assumed that
around half of the projected T$ million in
recovery needs is ultimately financed through the
government budget, this could create an additional
fiscal need of up to 6 percent of GDP per year over
the next three fiscal years (FY2018/19 to FY2020/21).
On the other hand, domestic revenue collection is
likely to be lower than previously thought, in line with
the projected decline in economic activity (relative to
pre-cyclone forecasts), and given the tax exemption
measures mentioned above.
HUMAN AND SOCIAL IMPACTS
Communities and individuals affected by TC Gita
will require continuous support, intervention, and
monitoring to recover. Vulnerable groups in particular
will require intervention. Disaster events can also
create new vulnerabilities by impacting employment
and livelihood-generating abilities, personal safety,
public health and sanitation, household efficiency, and
food production. Accordingly, restoration of schools,
housing, and water supply is considered a priority to
minimize the cyclone’s social and human impacts.
In response to the cyclone, the Government of Tonga
for the first time used existing social protection
systems to disburse emergency disaster assistance to
the most vulnerable. Under the government’s two core
social assistance programs, namely the Social Welfare
Program for the Elderly and the Disability Welfare
Scheme, existing beneficiaries received a one-time
top-up payment, in addition to their regular monthly
payment, to help them meet their most pressing
needs. It is estimated that the disaster assistance
reached over 3,500 beneficiaries, or 20,000 people
(20 percent of the population), totalling T$800,000.
SUMMARY OF RECOVERY AND
RECONSTRUCTION NEEDS
Table 2 provides a summary of the estimated costs
for recovery and reconstruction. Total recovery
and reconstruction is estimated at T$ million
(US$ million). Of this amount T$ million
(US$ million) is required for immediate recovery
(to June 30, 2018), T$ million (US$ million)
is required for short-term recovery (FY2018/19),
and T$ million (US$ million) is required for
medium-term recovery (FY2019/20–FY2020/21).
14
IMMEDIATE
RECOVERY
NEEDS
SHORT-TERM
RECOVERY
NEEDS
MEDIUM-TERM
RECOVERY
NEEDS
TOTAL
RECOVERY
NEEDS
Productive Sectors
Agriculture
Commerce and Industry
Tourism NA
Social Sectors
Housing
Education
Health NA NA
Infrastructure Sectors
Energy
Public Buildings NA
Transport
Water and Sanitation NA
Employment, Gender,
and Social Protection
TOTAL
Source: Estimations by Assessment Team based on government figures.
Note: NA = not applicable. A detailed breakdown of needs is included in each sector assessment.
TABLE 2. Recovery Needs by Sector (T$ millions)
Executive Summary 15
WAY FORWARD
The recovery needs that were identified during the
Post-Disaster Rapid Assessment process are not
linked to the availability or form of recovery funding,
but are driven by the analyses of sectoral needs.
Given the extent of identified needs and the limited
resources, the first step should be to prioritize the
sectors for recovery and reconstruction based on
the available financial envelope and a number of
strategic considerations. A criteria-based prioritization
of recovery needs across competing sectors will be
necessary and could include the following principles:
• Potential for direct and widest
humanitarian impact;
• Potential to generate sustainable
livelihoods;
• Inclusiveness (pro-poor and
pro-vulnerable strategies);
• Balance between public and
private sector recovery; and
• Restoration and rebuilding of critical
infrastructure and services.
The recovery program, while implemented under the
government’s leadership, will be carried out in close
collaboration and partnership with international
donors, the private sector, civil society, and the
community as a whole.
DEVELOPMENT OF A DISASTER
RECOVERY FRAMEWORK
The Post-Disaster Rapid Assessment and similar
disaster assessments are an essential component
of a successful disaster recovery framework (DRF),
which should (i) develop a central vision for recovery;
(ii) define guiding principles; (iii) identify primary
recovery sectors; (iv) assess government capacity to
manage recovery; (v) appoint an appropriate recovery
leader; (vi) establish appropriate institutional
arrangements; (vii) clarify institutional roles and
responsibilities; and (viii) establish coordination
mechanisms, conduct funding gap analysis, and
mobilize funds.
The DRF will outline needs for the first three years
of recovery (2018–2021) as identified in this Post-
Disaster Rapid Assessment, including immediate
needs (for the first three months), short-term
needs (for FY2018/19), and medium-term needs
(FY2019/20–2020/21).
INSTITUTIONAL AND POLICY SETUP
(INCLUDING GOODS AND SERVICES)
Policy and institutional gaps related to
implementation can cause challenges for agencies
involved in recovery in affected communities. The
government will need to immediately identify and
address these gaps in order to support an efficient
and effective recovery. Currently, there is the need to
• Finalize the housing policy/strategy and
other recovery-related policies that have
yet to be finalized;
• Confirm coordination mechanisms on the ground
among government stakeholders, the private
sector, development partners, communities, and
civil society organizations;
• Ensure the availability and on-time release
of funds to line ministries for implementing
projects; and
• Increase implementation capacity within
ministries to support reconstruction activities.
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Introduction 17
2
DISASTER RISK PROFILE
OF TONGA
Tonga is exposed to a range of natural hazards and
is frequently impacted by severe weather. It is ranked
second (behind Vanuatu) as most disaster-prone
country in the world, according to the 2016 World
Risk The country is located in an area known
for the occurrence of frequent tropical cyclones
with damaging winds, rain, and storm surge. It is
also located within the Pacific Ring of Fire, which
aligns with the boundaries of tectonic plates and is
associated with extreme seismic and volcanic activity,
and hence with strong earthquakes and tsunamis.
Tonga has been affected by multiple devastating
disasters in the last few decades, the most recent
being Tropical Cyclone Ian in 2014, which destroyed
almost 1,000 homes and buildings in the Ha’apai island
group. In 2009, a magnitude offshore earthquake
generated a tsunami that resulted in nine fatalities and
destroyed over half the houses on the Tongan island of
Niuatoputapu.
The effects of natural hazards in Tonga are far-
reaching and pose a threat to (among other things)
social infrastructure and well-being, agriculture,
housing, transport infrastructure, public utilities,
and tourism.
Tonga is expected to incur, on average, US$ million
per year in losses due to earthquakes and tropical
cyclones. In the next 50 years, Tonga has a 50 percent
chance of experiencing a loss exceeding US$175
million and more than 440 casualties, and a 10 percent
chance of experiencing a loss exceeding US$430
million and more than 1,700 casualties (World Bank
2011). These figures could increase if the impacts
of climate change are taken into account.
INTRODUCTION
4. This index uses “globally available data” to measure every
country’s exposure and susceptibility to natural disasters,
together with their coping and adaptive capacities. It
is available at
uploads/2016/08/.
Photo: Malani Wolfgramm/World Bank. Damage to comercial facility, Tongatapu.
18
TROPICAL CYCLONE GITA
TC Gita passed over the Tongatapu and ‘Eua island
groups around 11 pm on Monday February 12, 2018.
Anticipating the storm to be a destructive Category 5
system, the acting prime minister preemptively issued
a Declaration of a State of Emergency on the morning
of February 12. Upon landfall, TC Gita had not reached
the expected intensity, but it is still the strongest
tropical cyclone to impact Tongatapu and ‘Eua since
TC Isaac in March 1982.
The center of the tropical cyclone system was
approximately 100 km in diameter and passed just to
the south of Tonga’s capital, Nuku’alofa. Nuku’alofa
sustained constant winds and was affected by the
strongest section of the cyclone’s eyewall, with
average wind speeds of 130 kph, and gusts of up to
195 kph recorded. An accompanying storm surge
reached 1 m above normal high tide levels, and
200 mm of rainfall fell over a 24-hour period, resulting
in localized flooding. The preemptive State of
Emergency declared the morning of February 12
was accompanied by a 9 pm curfew in Nuku’alofa’s
central business district. Over 4,000 people self-
evacuated to 120 evacuation centers, of which 108
were in Tongatapu and ‘Eua. Owing in part to these
precautionary measures, there was no loss of life.
Following TC Gita’s passage from Tonga, there were
reports of significant damage on both Tongatapu
and ‘Eua. The storm impacted approximately 80,000
people, or around 75 percent of Tonga’s population. It
brought down power lines; damaged and destroyed
schools, resulting in closures; destroyed crops and
fruit trees; and damaged public buildings, including
the domestic airport, Parliament building, and Tonga
meteorological services. TC Gita also significantly
impacted housing, with over 800 houses destroyed
and a further 4,000 damaged.
SOCIOECONOMIC CONTEXT
OF TONGA
Situated in the South Pacific, the Kingdom of Tonga
consists of 172 islands (36 of which are inhabited)
with a total population of around 107,000 people.
Almost two-thirds of the population lives on
Tongatapu, home to Nuku’alofa, the country’s
capital. The country stretches over a distance
of approximately 800 km from north to south,
covering a total land area of 748 km2.
Over the last 20 years, per capita GDP has grown
by around 1 percent a year; current GDP is
US$428 million (FY2016/17 estimate) and current
gross national income is US$4,060 per capita
(FY2015/16 estimate).
Tonga faces many of the geographic and structural
challenges common to countries in the Pacific
region. Its remoteness, combined with its small size,
geographic dispersion, and limited natural resources,
provides a narrow economic base and imposes
additional costs of trade and transportation. These
factors mean that domestic markets tend to be too
small for industries to benefit from economies of scale.
Tonga is highly dependent on remittances from abroad
(estimated at around 30 percent of GDP) and donor
aid flows. Agriculture, fishing, and tourism account for
most export earnings.
Tonga remains vulnerable to external shocks (due
in part to its narrow economic base), and this
vulnerability has been compounded significantly
by a number of recent natural disaster events,
including TC Ian in 2014, which resulted in total
damage and losses of approximately US$50 million
(11 percent of annual GDP). In any given year, Tonga
is likely either to be hit by a major natural disaster
or to be recovering from the previous one.
The government has been successful in controlling
debt in recent years, with the ratio of public and
publicly guaranteed external debt in present value
terms to GDP gradually declining, from percent
in FY2011/12 to percent in FY2014/15.
Introduction 19
GOVERNMENT AND
HUMANITARIAN RESPONSE
On February 12, before TC Gita made landfall, the
government issued a 28-day Declaration of a State
of Emergency and encouraged people to seek shelter.
This declaration was later extended to April 9, 2018.
In total, 108 shelters were activated in Tongatapu
and ‘Eua, while 12 were activated in the Ha’apai
group of islands. Other precautionary measures were
undertaken as well, such as shutting down the power
grid on Tongatapu, and imposing an evening (9 pm)
curfew in the Nuku’alofa central business district on
February 12. The curfew was extended to April 9.
In the wake of TC Gita, the Government of Tonga
has led and continues to lead response efforts,
with the assistance of 10 humanitarian clusters led
by government ministries: these clusters include
shelter, education, water and sanitation (WASH),
food security and livelihood, safety and protection,
telecommunications, essential services (primarily
electricity), logistics, economic and social recovery,
and infrastructure and transportation. Humanitarian
partners, international and national Non Government
Organizations (NGOs), foreign governments, donors,
and civil society are supporting the government-led
response. The government has also implemented
a range of social protection programs to support
households, including provision of additional funds
to the elderly and people with disabilities.
To assess the socioeconomic impact of TC Gita
and assist in mobilizing the resources needed for
recovery and reconstruction, the Government of Tonga
requested that a Post-Disaster Rapid Assessment
(Rapid Assessment) be conducted. The assessment
was supported by the European Union, United Nations,
World Bank, and Asian Development Bank (ADB),
as well as other regional organizations and bilateral
partners, including the Pacific Community (SPC).
METHODOLOGY
This assessment was led by the Government of
Tonga, and was conducted by a multidisciplinary,
multi-agency team comprising the World Bank, ADB,
UN agencies, and other relevant stakeholders. The
Post-Disaster Rapid Assessment methodology is
based on World Bank damage and loss assessment
guidelines (Jovel and Mudahar 2010). It is an approach
to analyzing disaster effects and disaster impacts for
the purpose of identifying recovery needs, as they are
understood from human, sociocultural, economic, and
environmental perspectives. The methodology has
three main elements: assessment of disaster effects,
assessment of disaster impact, and recovery strategy
and needs.
Source: Wikimedia Commons
FIGURE 1. TC Gita as it approaches Tonga on February 12, 2018.
20
RECOVERY STRATEGY AND NEEDS
The assessments of disaster effects and disaster
impacts collectively assist with the determination
of recovery needs and incorporate the concept of
“building back better” (BBB).6 The Government of
Tonga has reiterated the importance of BBB to ensure
avoidance of a similar disaster event in the near future.
BBB has been selectively applied across sectors and
within sectors to ensure a cost-optimized multi-hazard
reconstruction.
The identified recovery needs form the basis for
determining recovery and reconstruction interventions
through a recovery framework. Accordingly, the
main goal of this Rapid Assessment is to assist the
Government of Tonga in assessing the full extent of
TC Gita’s impact on the country and, on the basis
of these findings, to produce an actionable and
sustainable recovery framework for mobilizing financial
and technical resources. Recovery time frames
considered within this assessment are as follows:
• Immediate (to be completed prior
to June 30, 2018)
• Short term (to be completed during
the 2018/19 financial year)
• Medium term (to be completed between
July 1, 2019, and June 30, 2021)
SPECIFIC CONTEXT OF THIS
RAPID ASSESSMENT
The geographical context of this Rapid Assessment
covers the two island divisions of Tongatapu and ‘Eua,
which were impacted by TC Gita. Annex 1 provides
a map of Tonga that shows these two islands.
LIMITATIONS OF THIS
RAPID ASSESSMENT
This assessment was completed 38 days after the
cyclone event of February 12–13, 2018, and reports
only on data received at the time of writing. The
estimates of damage, losses, and needs may
therefore be underestimated.
ASSESSMENT OF DISASTER EFFECTS
The assessment of the disaster effects is based on a
bottom-up approach; it captures information about the
effects of the event on a sector-by-sector basis, and
then aggregates the data to arrive at the total effect of
the event on the society and the economy. Assessment
of disaster effects is based on the quantification of
damage and losses.
• Damage to infrastructure and physical assets
is the quantification of public and private sector
infrastructure and assets destroyed in the
disaster. Damage includes either total or
partial destruction of the assets.
• Losses due to disruption of access to goods
and services are defined as changes in economic
flows and higher costs in production arising
from the disaster. They occur until full economic
recovery and reconstruction is achieved, in some
cases lasting for several years. Typical losses
include the decline in output in productive sectors
(., agriculture, industry, commerce, mining,
and tourism).
ASSESSMENT OF DISASTER IMPACT
The assessment of the impact of a disaster
encompasses the impact on the macro economy,
employment, livelihoods, and households.
• Economic impact at the macro level includes
the estimation of the disaster’s likely effects
on economic performance and the temporary
macroeconomic imbalances that may arise
from the disaster.
• Social and household impact includes the impacts
of the disaster on household and community
livelihoods and employment, gender-specific
impact, and impact on vulnerable groups such
as people with disabilities and the elderly .
6. BBB is an approach to reconstruction that seeks to reduce
vulnerability and improve living conditions while promoting
more effective and sustainable reconstruction. BBB uses
the opportunity of having to rebuild following a disaster
event to examine the suitability and sustainability of
reconstruction practices.
Photo: Malani Wolfgramm/World Bank. Damaged homes, Tofoa.
Economic and Social Impacts 23
MACROECONOMIC IMPACT
GROSS DOMESTIC PRODUCT
Growth has remained relatively robust in Tonga in
recent years, averaging over 3 percent during the
three years from FY2013/14 to FY2015/16 (fiscal years
end in June). Growth in FY2016/17 was estimated
at percent, a slight slowing from the percent
growth observed in FY2015/16, but still relatively fast
in historical terms; it was supported by infrastructure
construction and strength in the agriculture and
tourism sectors. In addition, private consumption
growth has been strong in recent years, supported
by remittance flows, in line with the growing number
of Tongans participating in seasonal worker programs
in Australia and New Zealand.
Prior to Tropical Cyclone Gita, it was projected that
the economy would continue to show robust growth
over the next few years; the mid-year (December)
forecast was for percent growth in FY2017/18
(down from the percent projected in the FY2017/18
budget), with construction (including of sports
facilities), agriculture, and tourism continuing to
be the main drivers.
Growth was projected to pick up to around
percent in FY2018/19 before moderating to
around 3 percent in FY2019/20, underpinned by
continued strong growth in tourism receipts and
construction related to government- and donor-funded
investment projects. Over the medium term, growth
was expected to ease to around 2 percent
as construction projects wound down.
PRICES
Inflation was very subdued during the four years
from FY2012/13 to FY2015/16, averaging around
percent, reflecting lower global food and fuel
prices. However, it spiked to percent in year-
average terms in FY2016/17, due to policy-driven
tax increases on fuel, alcohol, tobacco, and less-
healthy foods and drinks, as well as the effects of
dry weather, which pushed up domestic food prices.
Prior to Tropical Cyclone Gita, the outlook was for
inflation to ease in FY2017/18 with the passing of
one-off effects that pushed up prices in 2017. Over the
medium term, the International Monetary Fund (IMF)
expected inflation to moderate to around percent.
3ECONOMIC AND SOCIAL IMPACTS
Photo: Malani Wolfgramm/World Bank. Preparing for market, Tongatapu.
24
POST-DISASTER ECONOMIC OUTLOOK
Gross Domestic Product
The outlook for economic activity over the next two to
three years is now likely to be significantly affected by
TC Gita–related recovery and reconstruction activities
and by the extent to which losses in the agriculture and
tourism sectors persist. Growth is now expected to
slow to around percent in FY2017/18, a substantial
drop from the mid-year projection of 3 percent and
the FY2017/18 budget projection of percent.
This change reflects the impact of the cyclone on
agricultural production, tourism, and the commercial
sector, which together account for a percentage
point reduction in FY2017/18 growth relative to the
pre-cyclone baseline. Losses in these sectors are also
expected to be substantial in FY2018/19, but then to
diminish rapidly from FY2019/20 onward. Over the
next three to four years, these losses will be partially
offset by reconstruction and repair activity for housing,
public buildings, and schools, which is projected to
begin in the last few months of FY2017/18 and ramp
up over the next two years before scaling back in
FY2020/21. The forecast profile depicted in red in
Figure 2 accounts for each of these effects.
TC Gita’s impact on economic activity is expected to
be most heavily felt in the agriculture sector. Perennial
crops, such as fruit trees, kava, and vanilla, were the
most impacted by the cyclone, but annual crops, such
as cassava, yam, and taro, also suffered significant
losses, while the effects on forestry, livestock, and
fisheries were more minor. With around three-quarters
of the population living in rural areas, the cyclone is
likely to have had a particularly serious impact on
some of the poorest and most vulnerable Tongans
through its effect on small-scale and subsistence
farming activities.
While reconstruction activities are expected to provide
a substantial boost to the economy (as shown in
Figure 3 and Figure 4), these should be carefully
sequenced and prioritized given domestic capacity
and financing constraints. The forecast profile
assumes that the bulk of housing and public building
reconstruction activities will be completed in
FY2018/19 and FY2019/20, which would be somewhat
faster than the historical experience (., after TC
Ian), but still possible if sufficient attention is paid to
planning and execution.
Overall, the projections for domestic economic activity
should be treated with a substantial degree of caution,
with wide error bands around these central estimates.
Given the information collected during preparation of
this Rapid Assessment, the economic impacts of the
cyclone are quite difficult to estimate with any degree
of certainty, particularly for service industries.
TRADE AND BALANCE OF PAYMENTS
The current account deficit has remained sizeable
over recent years, driven by construction-related
imports, which have largely been financed by capital
grants. In FY2016/17, the deficit was estimated to
remain at around 12 percent of GDP. Notwithstanding
the increase in imports, the strong performance of
exports (particularly squash) increased donor grants,
and rising remittances have kept foreign reserves at
relatively comfortable levels, at around six months
of imports.
Prior to the cyclone (., as of the end of 2017),
the current account deficit was projected to remain
large in FY2017/18, mainly due to capital imports
related to construction. Reserves were expected to
decline slightly in the medium term due to continued
strength in imports and large principal repayments
of external debt.
FISCAL POSITION
Despite some volatility, Tonga’s fiscal balance has
averaged a modest deficit of 1 percent of GDP over
the eight years to FY2016/17. This reasonably prudent
fiscal stance has been supported by the government’s
continued focus on increasing domestic revenues,
which have risen by over five percentage points of GDP
from FY2012/13 to FY2016/17, supported by a series
of policy and administration reforms. At the same
time, total public expenditure has also increased,
including for civil servant wages and government-
financed capital spending. The government has
successfully maintained a stance of avoiding any new
nonconcessional borrowing.
The FY2017/18 budget was modestly expansionary,
estimating a deficit of percent of GDP for the
year, while being based on quite optimistic domestic
revenue projections. Fiscal results received up to
mid-December 2017 indicated that both tax revenues
and public spending had been lower than projected in
the FY2017/18 budget. Prior to the impact of Tropical
Cyclone Gita, the government forecast a broadly
balanced budget for FY2018/19 with growing revenues
and stable expenditure, although this reflected lower
productive spending due to an increase in debt
repayments A much larger fiscal deficit, of about
percent of GDP, was projected for FY2019/20,
however, due to projections of declining grants and
higher capital expenditure.
Economic and Social Impacts 25
Source: Pre-cyclone projections
by government and post-cyclone
estimates by the Assessment Team.
Source: Pre-cyclone projections
by government and post-cyclone
estimates by the Assessment Team.
Source: Pre-cyclone projections
by government and post-cyclone
estimates by the Assessment Team.
Agriculture, forestry
and fishing
Construction
Secondary (excluding
construction)
Services
Other
Total
Pre-cyclone
Post-cyclone, ex. cyclone
reconstruction
Post-cyclone, inc. cyclone
reconstruction
Pre-cyclone
Post-cyclone, ex. cyclone
reconstruction
Post-cyclone, inc. cyclone
reconstruction
FIGURE 2. Pre– vs. Post–TC Gita GDP Growth Projections (%)
-1
0
1
2
3
4
5
6
7
8
FY21FY20FY19FY18FY17FY16
FIGURE 3. Pre– vs. Post–TC Gita GDP Projections (constant FY2010/11 T$ millions)
800
850
900
950
1000
FY21FY20FY19FY18FY17FY16
FIGURE 4. Contributions to Growth, Post-Cyclone Projections, Including Cyclone Recovery (%)
0
1
3
4
5
6
7 Other
Services
Secondary (excluding construction)
Construction
Agriculture, forestry and fishing
-3
-2
-1
FY21FY20FY19FY18FY17FY16
2
0
1
2
3
4
5
6
7 Other
Services
Secondary (excluding construction)
Construction
Agriculture, forestry and fishing
FY21FY20FY19FY18FY17FY16
-7
-6
-5
-4
-3
-2
-1
0 Other
Services
Secondary (excluding construction)
Construction
Agriculture, forestry and fishing
FY21FY20FY19FY18FY17FY16
0
1
2
3
4
5
6
7
0
5
10
15
20
25
30
35
40
26
If it is assumed that around half of the projected
T$ million in recovery needs is ultimately
financed through the government budget, this could
create an additional fiscal need of up to 6 percent
of GDP per year over the next three fiscal years
(FY2018/19 to FY2020/21). On the other hand,
domestic revenue collection is likely to be lower than
previously thought, in line with the projected decline in
economic activity (relative to pre-cyclone forecasts),
and given the tax exemption measures mentioned
above.
In this light, it will be important for the government to
• Prioritize recovery and reconstruction activities
based on needs, given limited financial resources
and domestic capacity;
• Transparently account for the projected cost of
these activities in the budget projections (in part
to send a clear message to donors on the scale of
cyclone-related financing needs);
• Seek support from development partners to cover
these needs, to the extent possible on grant terms
so as to avoid adding to Tonga’s already substantial
public debt burden;
• Preserve fiscal space for critical social spending,
including in health and education; and
• Ensure that any policy responses that could hurt
revenues are carefully targeted at those affected
by the cyclone and are time-bound to contain their
fiscal impact.
SOCIAL IMPACT
SUMMARY
Tonga faces high unemployment, particularly
among youth and women. Gender disparities exist
in employment (across all activities) and income
distribution. In the 2016 census (Tonga Statistics
Department 2017), the primary reasons given for
being unemployed were disability, the belief that no
paid work was available, and discouragement about
by the labor market. There are relatively higher rates
of informal sector employment; however, this affords
workers little social protection and is most vulnerable
to shocks such as disasters.
In response to TC Gita, the Government of Tonga for
the first time has used its existing social protection
system to disburse disaster assistance to the most
vulnerable. Under the government’s two core social
assistance programs, the Social Welfare Program for
the Elderly and the Disability Welfare Scheme, existing
beneficiaries received a one-time top-up payment in
addition to their regular monthly payment.
Prices
Over the short to medium term, TC Gita is likely to put
upward pressure on food prices; there is anecdotal
evidence of local market shortages of some fruits and
vegetables. While inflation should eventually return to
more modest rates as domestic production picks up,
year-end inflation may remain somewhat faster than
the National Reserve Bank’s inflation reference rate of
5 percent a year over the coming quarters, particularly
if the prices of imported food and fuel continue to rise
relatively quickly.
Trade and Balance of Payments
Compared with the pre-cyclone forecasts, imports
will rise markedly in the wake of TC Gita, while exports
of agricultural produce will likely decline, in line
with the projected effects on economic activity in
the agricultural sector. In the near term, imports of
building materials will pick up to meet the most urgent
repair and reconstruction needs, while shortages of
locally produced fruits and vegetables will also cause
imports of food to increase. Looking forward, imports
will likely remain higher than previously expected in
line with the additional reconstruction activity now
forecast to take place over the next three to four
years. Foreign exchange reserves had been projected
to decline in the medium term even before TC Gita,
so there could be some additional pressure on the
balance of payments, to the extent that foreign
currency needs are not met by increased aid and
remittance flows.
Fiscal Position
In the immediate aftermath of the cyclone, donor
contributions and insurance payouts enabled
substantial contributions to the government’s
Emergency Fund (in the order of T$23 million), which
will be used to finance many of the most urgent
recovery needs over the next three months. The
cabinet has approved exemptions to the consumption
tax and various excise taxes for those individuals and
businesses affected by the cyclone, though the fiscal
cost of these measures (in terms of reduced revenue
collection) is not yet clear. A number of government
ministries have also reallocated some resources to
cyclone recovery activities, so there may be a need
for additional spending to ensure the continued
delivery of important services.
In FY2018/19 and over the next few years, the budget
position will be critically affected by the total cost
of cyclone recovery and reconstruction needs, the
proportion of these needs that are financed by
government, and the extent of financial assistance
from development partners.
Economic and Social Impacts 27
The top-up payments were intended to help
beneficiaries living in the two affected areas
(Tongatapu and ‘Eua) meet their most pressing needs
in the immediate recovery phase. It is estimated that
the disaster assistance has reached over 20,000
people (20 percent of the population), entailing a
budget amount of approximately T$800,000.
EMPLOYMENT
Labor Market
According to the 2016 census (Tonga Statistics
Department 2017), Tonga’s total population is
100,651, with youth (those aged 15-24 years)
comprising percent of the total. People of
working age make up 63 percent (63,754 people).
Some 40,623 people, most of them living in the
disaster-effected islands of Tongatapu and ‘Eua, are
economically active. Of these, 33,973 are employed
and 6,650 are not; hence the national unemployment
rate of Among those who are employed
(including those who are self-employed), the majority
are in the private sector and reside in Tongatapu.
6. If subsistence workers are included, the
unemployment rate is percent (of this share,
percent are male and percent are female).
Pre-disaster statistics in Table 3 show that the majority
of those in paid employment reside on Tongatapu, the
island most affected by the disaster. The data indicate
the risk that those affected by Gita could transition
to informal employment. They also indicate that the
majority of the recovery efforts need to focus on rural
areas of Tongatapu.
Income
According to the 2015/16 Household Income and
Expenditure Survey (HIES) (Kingdom of Tonga 2017),
total annual household income in Tonga is estimated
at T$586 million. The average per household income is
T$32,530, with average per capita income of T$5,890.
Around three-quarters of total income earned in Tonga
is earned by households on Tongatapu (26 percent in
urban areas and 52 percent in rural areas) and about
4 percent is earned in ‘Eua.
The 2015/16 HIES shows further that only percent
of those employed are in paid work. The majority are
unpaid family workers or workers who receive in-kind
gifts, etc. in lieu of cash payment. The majority of
those in paid employment live on the disaster-affected
islands of Tongatapu and ‘Eua. Wages and salaries,
business profits, and subsistence (the net value of
home-produced and consumed items) generate
65 percent of household income; 20 percent of income
is generated from remittances and gifts, 12 percent is
generated through rents; and the remainder is made
up of income from capital (dwelling and land lease),
transfer income (pension, social security, grants, and
scholarships) and casual receipts (sale of assets).
MAIN ACTIVITY
(PAID EMPLOYMENT)
TOTAL TONGATAPU ‘EUA NATIONAL
(NUMBER OF PEOPLE)
NUMBER NATIONAL
LABOR
FORCE (%)
NUMBER NATIONAL
LABOR
FORCE (%)
URBAN RURAL
Employer 710 580 15 300 410
Self-Employed 6,262 4,313 67 381 904 5,358
Private Sector
Employee
7,055 5,398 76 296 2,118 4,937
Public Sector
Employee
9,296 7,818 84 241 3,251 6,045
Source: Tonga Statistics Department 2017.
TABLE 3. People in Paid Employment in Tongatapu
and ‘Eua by Activity, Rural/Urban Split
28
Only percent of women are in paid employment,
compared to percent of men. In the informal
sector, women make up 33 percent of those working
in agriculture, fisheries, and handicrafts, while men
make up 67 percent.
Table 4 indicates that gender disparities in all activities
predated TC Gita in the disaster-affected islands.
There is a risk that women and youth affected by the
disaster may transition into informal employment
and/or unpaid work. Recovery efforts need to tailor
programs to focus on women and youth.
Marginalization of persons with disabilities
According to Tonga’s 2016 Population and Housing
Census (Tonga Statistics Department 2017),
approximately percent of the population has some
form of disability. Approximately percent of the
working age population with some form of disability
(641 people) is unemployed, approximately 59 percent
of which are male and 41 percent of which are women.
In addition, 77 percent of persons with disabilities
who are of working age and unemployed live in
Tongatapu, and percent live in ‘Eua. Given the lack
of employment opportunities in the formal sector, it
can be assumed that most working age persons with
disabilities would be engaged in the informal sector,
particularly as home-based/own-account workers.
Because the majority live on Tongatapu, the island
most affected by the disaster, it is imperative that
recovery efforts include persons with disabilities.
In terms of cash-based income, wages and salaries
make up 66 percent of income (ranging from
40 percent in ‘Eua to 73 percent in Tongatapu),
followed by sales of agricultural produce and
handicrafts at 18 percent (Kingdom of Tonga 2017).
High youth unemployment
The total youth labor force participation rate is
percent, which includes both paid and unpaid
work (the rate for males is percent and for
females percent). Youths comprise about
53 percent of the total labor force (Tonga Statistics
Department 2017). Among people aged 15 to 24
engaged in employment, approximately percent
are engaged in waged labor; this group is divided about
equally between the public and private sector. While
only percent of young people are engaged in
self-employment, the majority of self-employed youths
reside in the disaster-affected islands of Tongatapu
and ‘Eua. The particularly high youth unemployment
rate for those seeking work— percent for 15- to
19-year-olds and 21 percent for 20- to 24-year-olds—
is concerning, especially since it could be further
exacerbated by the cyclone.
High gender disparities
Not only are there significantly fewer young
women than young men in the labor force, there
are also significant national aggregate disparities
between employed men and women. The national
unemployment rate for women is percent,
compared to percent for men.
MAIN ACTIVITY
(PAID EMPLOYMENT)
TONGATAPU ‘EUA
MEN WOMEN YOUTH
(15–24
YEARS)
MEN WOMEN YOUTH
(15–24
YEARS)
Employer 355 213 37 12 3 0
Self-Employed 2,587 1,726 440 196 185 22
Private Sector Employee 3,472 1,926 1,203 225 71 48
Public Sector Employee 4,508 3,310 1,231 151 90 34
TOTAL 10,922 7,175 2,911 584 349 104
Source: Tonga Statistics Department 2017.
TABLE 4. Total Number of People in Paid Employment
in Tongatapu and ‘Eua by Gender and Youth
Economic and Social Impacts 29
Though conducted in ‘Eua, the survey provides a
case study of the impacts of TC Gita on both ‘Eua
and Tongatapu. The survey found that the effects of
TC Gita pose potential risks to the lives of women,
girls, and other minority groups, in particular their
rights to economic independence, safety and security,
and food and nutrition. Women’s livelihoods were
and continue to be affected by TC Gita, which caused
extensive damage to the plants women use in making
their handicrafts. Affected women and children will
remain at risk if the impacts of the cyclone are not
properly addressed.
Assessment of Disaster
Effects on Gender
Economic empowerment
‘Eua’s economy is driven both by handicrafts and
agriculture, with handicrafts predominantly practiced
by women. The agricultural and commercial farming in
‘Eua is shared by both men and women. The impacts
of TC Gita caused extensive damage to the fau,
lou’akau (pandanus), hiapo (mulberry trees), lafo, and
alu (Epipremnum pinnatum), which women use to make
their handicrafts. The majority of the women in ‘Eua
sell their crafts locally, regionally, and internationally,
and the sales contribute to the family income.
Although some women stated that they were able to
salvage some needed plant materials, those materials
will eventually be depleted, forcing women to explore
other options for producing handicrafts or to consider
other small business ventures.
Large informal sector
Approximately 78 percent of the labor force works
in rural/informal sectors. Out of the total employed
(33,973), the largest group—comprising 46 percent—is
engaged in professions related to agriculture, fishing,
and handicraft. Approximately 15 percent of youths
(aged 15–24 years) are engaged in these areas.
At the household level, 48 percent of households
derive all or some income from agriculture, and
25 percent derive all or some income from handicrafts,
with women dominating the handicraft professions
(5,199 women obtain income from this area). Of people
in professions related to agriculture, fishing, and
handicrafts, 9,475 reside in Tongatapu, while
1,312 reside in ‘Eua.
GENDER
Summary
The Women’s Affairs Division (WAD) of the Ministry
of Internal Affairs collaborated with the safety and
protection cluster to assist in the planning and
conduct of the Rapid Assessment in Tongatapu
immediately after TC Gita struck. The findings of the
Rapid Assessment made clear that a more detailed
survey was needed to capture in detail both the
immediate and longer-term needs of women, girls,
and children, and in particular the needs of pregnant
women, lactating women, and women with disabilities.
With close reference to the findings from the safety
and protection cluster Rapid Assessment, the
situational reports, and other cluster reports produced
immediately after TC Gita, the WAD collaborated with
UN Women in conducting an assessment in ‘Eua with
the intention of filling in data gaps related to safety
and other sensitive The survey was conducted
on March 13 and 14, 2018, and sought to identify key
issues for and needs of women, girls, and persons
living with disabilities; identify and connect women and
girls with needs arising from gender-based violence
(GBV) and support them with services available; and
provide informed recommendations for support based
on the real needs and issues of women and girls
The survey intended to explore women’s
and girl’s views, experiences, and practices in the post-
disaster situation in relation to key aspects of their
livelihoods, including economic empowerment, safety
issues (GBV, services and psychosocial support),
disabilities, social cohesion and integration, and
displacement/separation.
7. The participants were identified in part through a list (compiled
by Mainstreaming of Rural Development Innovation, or MORDI)
of immediate relief distributions in ‘Eua to affected women
and girls. The Women’s Affairs Division identified the number
of participants to include in its assessment. The total general
population of the overall 15 villages was also considered. A
total of 60 participants were identified; however, only 39 were
able to attend the four focus group discussions.
8. This section of the Post-Disaster Rapid Assessment report
has been informed by the safety and protection cluster
initiative for assisting women and girls immediately after TC
Gita, which was funded by UN Women and WAD. The project
was managed by WAD for the Ministry of Internal Affairs.
30
Displacement/separation
For most of the families that moved to evacuation
centers in response to TC Gita, the main concerns
were personal safety, access to food and water, and
access to working bathrooms. There were reports
following the cyclone that shelters often lacked
adequate supplies to support the number of evacuees
housed there, or did not have the means to provide
safe and private spaces for women, children, and
lactating mothers. There were also reports that many
centers ran out of drinking water quickly, forcing
families to ration out what supplies were available.
Evacuation centers and church and community halls
were often unable to provide facilities such as ramps,
bathrooms, or toilets that cater for the specific needs
of the elderly and those with disabilities.
Gender based Recovery Needs
Economic empowerment
Recovery efforts aimed at rebuilding agricultural
livelihoods for both women and men are needed.
Plans should be designed not only to quickly support
recovery of economic livelihoods, but also to identify
mutually beneficial ways for men and women to work
and support each other. New skills need to be taught
to women and other craft-producing members of
the community using alternative natural materials,
recycled materials, or nontraditional materials; skills
for producing other types of marketable products
should also be taught. WAD should work with key
partners such as the Ministry of Agriculture, Food,
Forests, and Fisheries (MAFFF), Mainstreaming of
Rural Development Innovation (MORDI), and relevant
NGOs to address this need.
Seedling programs that distribute non-forest materials
used for traditional handicrafts should target women.
Programs should seek other plant alternatives to
alu, fau, hiapo, and lou’akau, which are in low supply.
To aid women who rely on raw materials in making
handicrafts, there is a need for coconut replanting
as well as sourcing of raw materials from unaffected
islands. It may take up to two years to produce
enough coconuts for handicrafts. For the women
most affected by the crop devastation, microloans
and financial literacy assistance will help promote
recovery of economic livelihoods. Microlending can
provide needed capital to source raw materials
needed for handicrafts from unaffected islands.
Immediate support should be provided to women to
empower them to pursue alternative means of income
generation and promote economic independence.
Women farmers and female-headed households
should receive training in new farming techniques that
can accelerate production of fast-growing crops and
should be educated on new varieties of food crops that
can generate income.
Safety for women and girls (GBV, services
and psychological support)
There are no service providers in ‘Eua that offer
psychosocial support or counseling. Community
members must rely on Tongatapu to access these
services, assuming that personal funds are available
to cover this expense. Health care providers noted
that when women are physically injured through
family violence, nothing is reported to the health care
system; victims prefer to seek medical treatment
in a Tongatapu hospital to avoid the shame and
lack of privacy experienced closer to home. This
is also the case for sexually transmitted infections
or other sensitive health care needs. Following the
cyclone, female-headed households reported they
felt particularly vulnerable when on the outskirts of
town due to lack of power for lighting or charging of
phones and the resulting difficulty in calling for help/
police. Women in ‘Eua noted that following TC Gita,
they sometimes did not feel safe due to their physical
location close to the edge of the village and bush area,
or due to nearby gatherings with alcohol consumption.
Female students also felt unsafe walking home from
school after dark. Many female-headed households
reported that the damage and loss caused by TC Gita
increased their level of stress, which caused them to
become easily irritated.
People living with disabilities
Some feedback from ‘Eua following TC Gita indicated
that the needs of people living with disabilities were
not met during the emergency response, in particular
the need for communication and information. Many
evacuees with disabilities did not want to be moved to
shelters that lacked facilities to cater for their needs;
this situation caused added anxiety and stress. Some
female-headed households had the added anxiety of
finding extra income to support their families as well
as provide for those with disabilities who were not
receiving benefits.
Social cohesion and integration
While repairs to homes are ongoing, reports following
TC Gita indicated that the distribution of tarpaulins
and other materials did not always meet demand,
and that female-headed households were often
overlooked. Female-headed households are vulnerable
to being overlooked by aid distribution because town
officers and district officers record only households
headed by widows; they do not record households as
female-headed if the women in question have been
abandoned or are divorced or separated from their
partner. Lactating and young mothers commented on
the lack of consideration for their needs in distribution
of necessary items such as powdered milk and nappies
for babies.
Economic and Social Impacts 31
Social cohesion and integration
There is a need for improved social mapping, including
updated lists of people with disabilities female-headed
households, and elderly people. This information
should be shared among town officers, police, the
Ministry of Internal Affairs, and aid partners prior
to every cyclone season to aid with community
preparedness and response. Disaster preparedness
training should be made available to the public to
help them prepare for future disaster events. This
could include training in how to understand and
respond to disaster warnings, or what essential
items should be stocked by the community in
advance of a disaster event.
Feedback from ‘Eua indicates that better mechanisms
need to be in place to inform the population of
what types of items will be distributed and to whom
following a disaster event. In the future, such
mechanisms will allow impacted communities to better
understand why more vulnerable members of the
community are targeted first for aid distribution. For
those distributing aid, it will be important to ensure
in the future that the needs of lactating and young
mothers are considered and items such as milk and
nappies for babies are distributed. If powdered milk
is discouraged because of limited access to clean
water, this decision needs to be communicated.
Training should be made available to those responsible
for distributing humanitarian relief, such as town/
district officers.
Displacement/separation
During TC Gita, particularly in ‘Eua, church halls were
commonly used as evacuation centers. These buildings
were not designed or built to house the numbers
of people that inhabited them during and after the
cyclone. There is a long-term need to ensure that
evacuation centers are adequate for their purpose. All
shelters should ideally be wheelchair accessible, and
they should include well-lit toilet facilities, with clearly
delineated showers for both men and women. Each
evacuation center should have a radio available to
commuicate updates and keep evacuees informed.
Safety for women and girls (GBV, services
and psychological support)
Many community members were traumatized by the
effects TC Gita. Communities need more information
about providers of psychological support services—
specifically what providers are available, what type
of support they can provide, and how to reach them
in times of urgent need. Awareness and outreach
programs on GBV and its causes are needed to
provide information, remove the stigma and shame
surrounding GBV, and increase reporting of incidents.
Given that many people turned to church and
community leaders following TC Gita, offering those
leaders specific training on victim-centered support
would be beneficial, as would training for students in
school. Counselors are needed in the community and
in schools to provide psychosocial support to women
and to children returning to school who need individual
attention following the cyclone. There is also a need
for increased policing of areas where female-headed
households are close to the edge of the village and
bush areas. Distribution of solar-powered torches for
all female-headed households or families with many
women under the age of 25 will increase personal
safety and avoid risk.
People living with disabilities
A strong communications network should be created
for people living with disability and the elderly.
For example, town officers, the Ministry of Police,
the Disability Division of the Ministry of Internal
Affairs, and other relevant stakeholders should
share information on people with disability and the
elderly in order to assist with disaster preparedness
and response. This effort requires that relevant
stakeholders collaborate closely to identify the needs
of those with a disability. Workshops and training in
disaster preparedness and response should be made
available to those with disabilities and the elderly so
that they know how to prepare for disasters such as
TC Gita. There is also a need for programs that involve
disabled persons in socializing and meeting people;
this will increase their safety network in preparation for
future disaster events. People with disabilities should
be invited to information sessions on what government
benefits are available to them to assist with disaster
recovery. Currently, only a small portion of people
living with disabilities in Tonga receive monthly
financial assistance from the government,
and most disabled people are not entitled to
a financial allowance.
32
REGION HOUSEHOLDS (%) POPULATION (%)
2001 2009 2015 2001 2009 2015
Nuku’alofa 14
Rest of Tongatapu 17
Other Islands 47
NATIONAL AVERAGE 25 25
TABLE 5. Percentage of Households and Population Living in Poverty in Tonga
Source: Tonga Bureau of Statistics, March 2018.
Note: The Tonga Department of Statistics is currently estimating population poverty figures for the regions.
REGION POOR HOUSEHOLDS
(%)
TOTAL HOUSEHOLDS HOUSEHOLDS LIVING
BELOW THE POVERTY
LINE 2015/16
Tongatapu 16 13,096 2,095
Nuku’alofa 14 4,175 585
Rest of Tongatapu 17 8,921 1,517
Other Islands 47 5,102 2,398
NATIONAL AVERAGE 25 18,198 4,550
TABLE 6. Households in Poverty in Tonga by Region (2015/16)
Source: Tonga Bureau of Statistics, March 2018.
Note: The household figure for Nuku’alofa is based on aggregating the household figures for Kolofo’ou, Ma’ufanga, and Kolomotu’a.
SOCIAL PROTECTION
TCs Gita’s impact on the population has created an
increasing demand on the social protection system
to introduce new poverty-targeted social assistance
programs and to expand the coverage of existing
programs, such as the disability program.
Recommendations for recovery highlight the need
to develop a Poverty Registry, create cash-for-work
and public works programs for engaging unemployed
youth in rebuilding homes, and promote literacy on
climate change and resilience through the social
protection programs.
Social Protection Sector Background
Poverty profile
The Government of Tonga is in the process of
calibrating a new national poverty line using the latest
(2015/16) HIES data. For the purpose of the TC Gita
Rapid Assessment, the Tonga Department of Statistics
has provided preliminary results, which show that the
average incidence of poverty has risen to 25 percent
of households in Tonga. The population of individuals
in poverty has also risen to roughly the same rate and
is estimated at 25 percent of the total population, or
about 26,000 people. It should be noted that this year
the government is using the consensual approach for
poverty estimation, which provides design-consistent
(., representative) household-level poverty estimates
for the country (both urban and rural areas).
Economic and Social Impacts 33
9. To form the quintiles, households are ranked by their level
of total annual income and divided into five groups. The
20 percent of households with the lowest annual income
are in quintile 1, while the 20 percent of households with
the highest income are in quintile 5.
Social protection system
Tonga’s well-functioning social protection system,
while small, has provided social assistance to its
poor and vulnerable people for over five years. There
are two core social assistance programs currently
being implemented:
The Social Welfare Program for the Elderly was
introduced in September 2012 for Tongans aged
70 years and above. The program is administered
by the Tonga National Retirement Benefits Fund
(NRBF) on behalf of the government; it currently has
4,043 active beneficiaries and last year paid them
roughly T$ million, percent of GDP. Under
the program, beneficiaries receive monthly cash
payments according to the following age brackets:
ages 70–74 years receive T$70 per month; ages
75–79 receive T$75 per month; and ages 80 and
above receive T$80 per month. This cascading
payment structure was introduced in July 2017.
Originally the scheme offered a single monthly
payment of T$65 to all beneficiaries over the age
of 75; this was changed to age 70 in July 2014.
The Disability Welfare Scheme (DWS) was introduced
more recently (in March 2015) for severely disabled
persons. The program is managed and implemented
by the Division of Social Protection and Disability,
which was created specifically for this purpose under
the Ministry of Internal Affairs. The DWS caters to
the needs of people with severe physical, intellectual,
psychological, or sensory disabilities by providing
them with regular cash payments of T$75 per month
(since July 2017); this is an increase from the original
payment of T$65. The scheme currently has 849 active
members and in 2017 paid out T$ million—roughly
percent of GDP—to its beneficiaries.
Since the introduction of the two programs, the
number of beneficiaries for both programs has
steadily increased, since the first one was initiated
in 2012 (Table 7).
In previous years (2001, 2009), the poverty estimates
were calculated using an approach known as the
Basic Needs Poverty Line (BNPL), which is a caloric
measure. The two methodologies are very different,
and the poverty results cannot be compared. However,
the historical poverty rates from 2001 and 2009,
along with current poverty estimates for 2015, are
shown in Table 5.
The latest poverty calculations show the distribution of
poverty to vary significantly in Tonga, with over half of
total households in the outer islands (comprising ‘Eua,
Ha’pai, Nius, and Vava’u) estimated to be poor (.,
falling below the poverty line and/or unable to access
a basic basket of goods), compared to only 16 percent
of households in Tongatapu (Table 6). Tongatapu also
comprises 70 percent of the total households in Tonga.
Analysis shows rural households are more likely to live
in poverty than those in urban areas. To analyze the
distribution of poverty for each island, the government
is undertaking additional surveys and expanding the
sample size of small islands; this should make the data
more representative for reporting and address a gap in
the HIES data.
The distribution of income and expenditure among
households in the 2015/16 HIES shows the outer
islands to have a higher proportion of households in
the lower income quintiles9 than those in Tongatapu
(both urban and rural), implying that Tongatapu-based
households have higher income than those in the outer
islands. A large degree of inequality can be apparent,
with the average annual household income estimated
to be T$75,000 for the highest quintile and T$8,500 for
the lowest quintile. There is an unequal distribution of
income, with around 50 percent of the lowest income
households accounting for only 20 percent of national
income, and subsequently half of the highest income
earning households accounting for 80 percent of
national income. It is also important to note that the
composition of household income is far more diverse
in lower quintiles, with a higher proportion of income
derived from other sources, such as remittances
and subsidies. The proportion of household income
derived from remittances is more significant in the
lower-income households than the higher-income,
demonstrating the importance of this income source
for the poor in Tonga.
34
A needs assessment survey of 230 persons with
disability was carried out by the Pacific Disability
Forum in Tongatapu during the first week of March
The survey highlighted some of the issues
being faced by people with a disability following the
cyclone, such as assistive devices being damaged and
needing replacement. Over 60 percent of the disabled
people surveyed had suffered partial damage to their
homes, while 7 percent reported destruction of their
homes and 30 percent no damage to their homes.
Following TC Gita, the Government of Tonga for the
first time used its existing social protection system to
disburse disaster assistance to the most vulnerable.
On March 8, 2018, existing beneficiaries received a
one-time top-up payment of T$225,13 which was in
addition to their regular monthly payment. The top-up
payments were intended to help beneficiaries living
in the two affected areas (Tongatapu and ‘Eua) meet
their most pressing needs and to assist in the recovery
process. It is estimated that the disaster assistance
has reached over 3,500 beneficiary households, or
almost 20,000 people (20 percent of the population),
through a financial envelope of approximately
T$ million (Table 8).
10. The safety and protection cluster is led by the Ministry of
Internal Affairs (MIA), with representation from local and
international NGOs, civil society, and development partners.
11. Interviews conducted by Women’s and Children’s Crisis Centre,
as reported in Safety and Protection Cluster (2018).
12. The survey was funded the New Zealand Ministry of Foreign
Affairs and Trade (MFAT).
13. The payment was funded by the Australian Department
of Foreign Affairs and Trade (DFAT).
The Government of Tonga is currently finalizing the
design of a youth employability project. This will involve
a cash transfer program for secondary school children
and will include the development of a Poverty Registry
of poor beneficiaries, which will facilitate the targeting
of assistance during disasters.
Assessment of Disaster Effects
on Social Protection
Within a week after the occurrence of TC Gita, the
safety and protection cluster10 carried out a Rapid
Assessment to understand the immediate needs of
people residing in the affected areas of Tongatapu
and ‘Eua. The Rapid Assessment included new
data collected in the field through interviews with
displaced households in residential and evacuation
centers, as well as disability data provided by the
Tongan Red Cross and field observations from sector
partners (Safety and Protection Cluster 2018). There
were a number of important findings from the Rapid
Assessment. First, women would like to be more
actively involved within the first 72 hours after a
cyclone (this view was expressed by respondents
in more than 80 percent of evacuation centers).11
Women would also like to be more prepared for and
involved in decision making. Second, families felt the
pressure of having to prioritize emergency supplies
in their household spending, which in some instances
compromised the special needs of vulnerable family
members such as the disabled and the elderly. Third,
the evacuation centers were inaccessible for people
with limited mobility, especially the elderly and
disabled. Lastly, there was a lack of counseling and
psychosocial support services available to people
facing trauma due to the disaster.
DISABILITY WELFARE SCHEME SOCIAL WELFARE PROGRAM FOR THE ELDERLY
NUMBER OF
BENEFICIARIES
BENEFIT
PAYMENTS
NUMBER OF
BENEFICIARIES
BENEFIT
PAYMENTS
OPERATIONAL
EXPENSES
2012/13 - - 1,307 1,384,097 150,154
2013/14 - - 2,274 1,760,265 130,652
2014/15 576 500,000 3,784 2,653,550 94,160
2015/16 747 675,000 3,964 2,850,362 96,000
2016/17 894 810,000 4,095 2,896,888 96,000
TOTAL (T$) 1,985,000 11,545,161 566,966
TABLE 7. Social Protection Beneficiaries and Welfare Payouts Since Program Inception
Source: Compiled by the Assessment Team based on government data.
Note: The data point for the two programs is different. The Social Welfare Program for the Elderly is from July to June,
while for the Disability Welfare Scheme is from January to December.
Economic and Social Impacts 35
Tonga has a sizeable youth population, which
generally faces poor labor market outcomes. Over
half (56 percent) of the country’s population is aged
24 years or younger, with a total of about 19,200
Tongans between the ages of 15 and 24. The majority
of these youth (76 percent) reside on the main island
of Tongatapu, and only 25 percent live in what could
be classified as urban areas (., Greater Nuku’alofa).
A large proportion of youth fail to transition into
employment. There is a need to engage these
individuals in meaningful employment and skill-building
activities to assist with disaster recovery. With a
significant number of homes damaged or destroyed
due to TC Gita, there is an opportunity to introduce
cash-for-work or public works programs that utilize
this available pool of unemployed youth for the
reconstruction of homes (discussed further in
Section of this report).
RECOVERY STRATEGY AND NEEDS
The total funds needed to recover from the social
impacts of TC Gita are estimated at T$ million,
of which T$ million is needed for immediate
recovery (Table 9), T$ million for short-term
recovery (Table 10), and T$ million for medium-
term recovery (Table 11).
The social protection top-up payments have played
a critical role in reaching the two most vulnerable
groups, the elderly and persons with disabilities,
who have been identified as severely impacted and
immobilized by the disaster. The disaster effects
could have been much worse had it not been for the
government’s coordinated approach to humanitarian
assistance and the introduction of the top-up
payments.
Disaster Impact on Social Protection
While the government currently has two social
assistance schemes in place, a wider poverty-targeted
social assistance program for the poorest populations
has yet to be established. The latest estimates
indicate there are 26,000 Tongans living below the
poverty line and in need of assistance, particularly
following disaster events. There is a pressing need to
expand the coverage of social protection in Tonga, and
the government has been working to design a cash
transfer program that is conditional on children’s being
admitted to and attending secondary school. The
program will also see the development of a registry
of poor households.
The 2016 census estimates that the rate of disability
in Tonga is percent of the total population (Tonga
Statistics Department 2017). While the DWS considers
cases of extreme disability only, it is estimated that
the program currently covers only percent of the
total cases of disability within the country14. Given the
disabled population’s high vulnerability to disasters,
there is a need to expand the coverage of the DWS
and increase the number of beneficiaries under from
the program.
14. This means DSW covers % of the total %
disabled population.
PROGRAM TONGATAPU ‘EUA TOTAL
BENEFICIARY
HOUSEHOLDS
REACHED
TOTAL PEOPLE
REACHED
TC GITA TOP-
UP PAYMENTS
(T$ MILLIONS)Number of
Beneficiary
Households
Number of
Beneficiary
Households
Disability Welfare
Scheme
493 41 534 2,937
Social Welfare
Program for Elderly
2,811 213 3,024 16,632
TOTAL 3,304 254 3,558 19,569
TABLE 8. TC Gita Social Protection Top-Up Payments in 2018
Source: Compiled by the Assessment Team based on government data.
Note: Total household size of people is used to approximate the number of people reached.
36
SUBSECTOR PROGRAM OF ACTIVITY VALUE (T$) RESPONSIBLE
AGENCY
Employment Institutional strengthening for preparedness
and resilience for private sector and related
government and workers’ institutions, including
microenterprise
200,000 TCCI, MCCTIL,
PSA, Skills Tonga
Response to skills demand in the construction
sector through recognized qualifications and
competencies (includes transport sector workers)
430,000 TCCI, MCCTIL,
MOET, MIA, Skills
Tonga
Gender Gender recovery initiatives, including training for
handicrafts, agriculture, and microfinance and
learning exchange to diversify livelihood options
for women whose livelihoods have been impacted
by TC Gita
290,000 MIA, Langafonua,
MAFFF, Skills
Tonga, Tonga
Chamber of
Commerce, MOI
Promotion of awareness on GBV issues (media,
audio, workshops, leaflets, posters, brochures)
and provision of counseling services for women
impacted by TC Gita
105,000 MIA, MOI, Tongan
National Centre
for Women and
Children (TNCWC)
Assessment of and recommendation on safety
measures in evacuation centers (to ensure the
safety of women—especially pregnant, lactating,
disabled, or elderly women—and children)
80,000 MIA, MOI
Social Protection Provision of psychological support training
sessions for disabled persons
20,000 MIA and DPOs
Parternership and coordination consultations with
the private sectors to facilitate vendors to support
purchasing power of cash assistance beneficiaries
Provision for basic livelihoods such as food
packages including, water, food, disability
technical devices etc.
100,000 MIA and National
Retirement Fund
Board
Cash assistance top ups on existing government
benefit schemes to Disability Welfare and Social
Welfare Schemes benefit
4,000,000 MIA and National
Retirement Fund
Board
TOTAL MILLION
TABLE 9. Immediate Recovery Needs in the Social Protection Sector
Note: GBV = gender-based violence; MAFFF = Ministry of Agriculture, Food, Forests, and Fisheries; MIA = Ministry of Internal Affairs;
MOET = Ministry of Education and Training; MOI = Ministry of Infrastructure; MCCTIL = Ministry of Commerce, Consumer, Trade,
Innovation and Labour; PSA = Public Service Association; TCCI = Tonga Chamber of Commerce and Industry; TNCWC = Tongan National
Centre for Women and Children.
Note for Table 10: MEIDECC = Ministry of Meteorology, Energy, Information, Disaster Management, Environment, Climate Change and
Communications; MAFFF = Ministry of Agriculture, Food, Forests, and Fisheries; MIA = Ministry of Internal Affairs; MCCTIL = Ministry of
Commerce, Consumer, Trade, Innovation and Labour; MOI = Ministry of Infrastructure; NEMO = National Emergency Management Office;
TCCI = Tonga Chamber of Commerce and Industry; TNCWC = Tongan National Centre for Women and Children; TNYC = Tongan National
Youth Congress.
Economic and Social Impacts 37
SUBSECTOR PROGRAM OF ACTIVITY VALUE (T$) RESPONSIBLE AGENCY
Employment Improving business confidence through
access to financial services and value chain
efficiency, particularly for microenterprises
headed by youth, women, and persons with
disabilities in agriculture and handicraft
sectors
350,000 TCCI, MCCTIL, MIA,
Langafonua 'a Fafine Tonga
(Handicraft Association),
farmers associations,
Tongan National Youth
Congress (TNYC), Tonga
Mental Health & Disability
Organisation
Promoting employment intensive
infrastructure programs (EIIP) to support
reconstruction and jobs
480,000 MIA, private contractors,
communities, Skills Tonga
Gender Gender recovery initiatives to diversify income
of women impacted by TC Gita through
participation in Women’s Handicraft Expo
in ‘Eua & Tongatapu and Women’s regional
exchange (knowledge exchange on handicraft
making)
300,000 MIA, MAFFF (women’s
extension), Tourism,
Langafonua ‘a Fafine
Tonga, Tonga Chamber
of Commerce
Training to facilitate disaster response and
preparedness for women impacted by TC
Gita (including training in food preservation,
farming practices, and budgeting). Training
and media campaigns to raise awareness of
family responsibilities during emergencies
260,000 MIA, MAFFF, Skills
Tonga, Tonga Chamber of
Commerce, local experts,
MEIDECC, NEMO
Continuing awareness programs and referral
system (training of counterparts and relevant
stakeholders in primary prevention strategy
specifically focused on time of emergency)
50,000 MIA, TNCWC, Women and
Children’s Crisis Centre,
Talitha Project, TNYC
Psychosocial needs assessment for
communities of ‘Eua and Tongatapu;
continued funding of counselor; establishment
of a crisis center branch at ‘Eua
50,000 MIA, TNCWC
Consideration/implementation of
recommendations from the safety assessment
of the evacuation centers (Tongatapu and ‘Eua)
800,000 MIA and MOI
Social
Protection
Development of a Poverty Registry to target
assistance to poor and vulnerable households
in future disasters (funding already committed
through a GoT-World Bank funded project)
36,000 MIA
Expansion of the Disability Welfare Scheme
to increase coverage of the exiting beneficiaries
by 20 percent
160,000 MIA
Promotion of literacy on climate change
and resilience through the social protection
programs, including creation of knowledge
products suited to the skill set and needs of
the poorest population, in particular women,
children, the elderly, and disabled persons.
35,000 MIA
TOTAL MILLION
TABLE 10. Short-Term Recovery Needs in the Social Protection Sector
38
SUBSECTOR PROGRAM OF ACTIVITY VALUE (T$) RESPONSIBLE AGENCY
Employment Transitioning informal businesses/workers
to formality, ensuring social security and
employment/disaster protection
200,000 Tonga Retirement
Benefits Fund, MCCTIL,
PSA
Improving labor market information for
disaster preparedness and long-term labor
market outcomes
150,000 National Statistics
Office, MCCTIL, TCCI,
PSA
Gender Continuing gender recovery initiatives to
diversify income of women impacted by
TC Gita through participation in women’s
national and regional exchanges
300,000 MIA, MAFFF (women’s
extension), Ministry of
Tourism, Langafonua
Chamber of Commerce
Continuing training to facilitate disaster
response and preparedness for women
impacted by TC Gita (including training in
farming practices, budgeting); continuing
training and media campaigns to raise
awareness of disaster preparedness and
family responsibilities during emergencies
220,000 MIA, MAFFF, Skills
Tonga, Tonga Chamber
of Commerce, local
experts, MEIDECC,
NEMO
Continuing support for counselor and
crisis center branch at ‘Eua
60,000 MIA, TNCWC
Social Protection Introduction of a poverty-targeted cash
assistance program (for which funding is
already committed through a GoT-World
Bank– funded project)
14 million MIA
Development of an emergency policy
framework on Cash Transfers in time of
Natural disasters to vulnerable populations
50,000 MIA
TOTAL MILLION
TABLE 11. Medium-Term Recovery Needs in the Social Protection Sector
Note: MAFFF = Ministry of Agriculture, Food, Forests, and Fisheries; MCCTIL = Ministry of Commerce, Consumer, Trade, Innovation
and Labour; MEIDECC = Ministry of Meteorology, Energy, Information, Disaster Management, Environment, Climate Change
and Communications; MIA = Ministry of Internal Affairs; NEMO = National Emergency Management Office; PSA = Public Service
Association ; TCCI = Tonga Chamber of Commerce and Innovation; TNCWC = Tongan National Centre for Women and Children.
Photo: Malani Wolfgramm/World Bank. Clearing debris
at the site of a destroyed home, Kolofo-ou, Tongatapu
P
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to
: M
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la
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i W
o
lf
g
ra
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m
/W
o
rl
d
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a
n
k
Damage, Losses, and Needs 41
PRODUCTIVE SECTORS
Damage and losses to
productive sectors totaled
T $ million
AGRICULTURE
Damage and losses to the
agriculture sector totaled
T $ million
15. GDP figures for 2016 are from the Ministry of Finance
and National Planning.
16. Kingdom of Tonga, “Tonga Agriculture Sector Plan
2016–2020,”
574-tonga-agriculture-sector-plan-2016-2020.
Summary
The agriculture sector includes the following four
subsectors: crops, livestock, fisheries, and forests. In
total, the four subsectors made up 17 percent of 2016
Crops and livestock constitute percent of
the sector’s contribution to GDP, followed by fisheries
( percent), and forestry ( percent). About 75
percent of Tonga’s population lives in rural areas,
with agriculture and fisheries as the main source of
livelihoods. Tonga has one of the highest rates of
subsistence food production among Pacific Island
Countries,16 largely based on traditional production of
root crops, which provide food security, employment,
and income for many households.
4DAMAGE, LOSSES, AND NEEDS
Photo: Malani Wolfgramm/World Bank. Yam harvest, ‘Utulau Village, Tongatapu.
42
Overall, about 5 percent of the agriculturally active
households engage in commercial agricultural
activities, while 95 percent are still engaged in
subsistence and semi-subsistence agricultural
activities. Crop cultivation and raising of livestock
continue to be the main agriculture activities in
Tonga. Handicraft activity has also become a major
agricultural activity, particularly in rural areas and
the outer islands. Export of handicrafts in FY2014/15
accounted for as much as T$4 million (MAFFF, TSD,
and FAO 2015).
Agriculture exports have steadily increased since
FY2009/10, when about 90 percent of the country’s
exports consisted of agricultural and fishery products,
with a value estimated at T$14 million. The growth
in total agricultural exports is due to an increase in
exports of non-squash commodities, particularly root
crops, coconuts, watermelons, and kava. Squash
exports declined by 12 percent in FY2013/14, reflecting
the withdrawal of a major exporter from the market
(MAFFF, TSD, and FAO 2015).
Fish dominated Tonga’s exports in FY2013/14,
accounting for 22 percent of domestic exports,
followed by crustaceans and other aquatic
invertebrates (20 percent), root crops (18 percent),
kava (9 percent), and squash pumpkins (7 percent).
Together, these products made up 76 percent of all
of Tonga’s domestic exports. Exports of tuna, which
constitute 40 percent of fisheries exports, more than
doubled in the first half of FY2014/15.
Crops and livestock. Crops and livestock represent
an average of percent of total agricultural GDP.
A total of 10,296 households were engaged in crop
cultivation during 2015, while 12,859 households
engaged in livestock rearing.
Dominant subsistence crops include cassava
(manioke); this was the largest annual crop cultivated
in 2015, occupying 10,207 acres (18 percent of the
total cultivated land area). Other crops include yam
(ufi) (5,315 acres); yautia (talo futuna) (2,565 acres);
sweet potato (kumala) (1,901 acres); and swamp
taro (talo Tonga) (1,627 acres). The largest perennial
crops cultivated during 2015 were kava (1,257 acres),
mulberry (757 acres), and vanilla (632 acres). A
significant number of farming households derive
income from taro, cassava, and kava. Pigs continued
to be the dominant type of livestock raised during
2015. The number of cattle in 2015 was 18,762, an
increase of 81 percent over the 2001 total of 10,354.
Of the four subsectors, the crops subsector was the
most affected by TC Gita (contributing to 88 percent
of total damage and losses for the sector), followed by
forestry (7 percent), livestock (3 percent), and fisheries
(2 percent). Perennial crops, including trees (fruit trees
and handicraft trees such as mulberry and pandanus),
kava, and vanilla, were the most impacted by the
cyclone, but annual crops, such as cassava, yam, and
taro, also suffered significant losses. Damage and
losses in the livestock subsector occurred mainly in
Vaini district and ‘Eua Fo’ou and mostly involved beef
cows (32 dead) and dairy cows (four dead) but also
included damaged fences. In the forestry subsector,
the timber industry was impacted by high winds
that damaged infrastructure and trees, mostly in
Nukunuku and Tatakamotonga districts. The fisheries
subsector was also impacted, with the greatest effect
on artisanal fisheries and commercial snapper fishing
boats, mostly in Tokofou district.
The total value of damage and production losses in
agriculture amounts to T$ million. Recovery needs
should focus on supplying resilient fruit tree and
timber seedlings and should support development
of food-preservation techniques for fruits and root
crops; the goal is to promote a resilient agriculture
sector able to withstand future shocks. In the fisheries
subsector, training should be provided in techniques
to repair boats and fishing gear such as nets and to
promote resilience against future shocks (prevention,
mitigation, and preparedness techniques). In the
livestock subsector, the loss of fruit trees, especially
coconuts, had a negative impact on feed availability for
livestock, hence the need for provision of feeds.
Reconstruction needs will focus on the short-term
infrastructural works (incorporating BBB techniques)
and on repair of livestock fences.
Agriculture Sector Background
For the four subsectors crops, livestock and forestry
are managed by the Ministry of Agriculture, Food,
Forests, and Fisheries (MAFFF).
Agricultural land in Tongatapu comprises 42,497
acres, which is 64 percent of the total agricultural
land in Tonga. ‘Eua comprises 4,981 acres of
agricultural land, which is 8 percent of the country’s
total (Figure 5). About 86 percent of households and
organizations in Tonga are agriculturally active. About
71 percent of these are based in Tongatapu, and about
4 percent are in ‘Eua. Of the agriculturally active
workforce, 34 percent are employed in agriculture,
forestry, and fishing, and women comprise about
14 percent of those employed in the sector (MAFFF,
TSD, and FAO 2015). Agriculture continues to be the
predominant economic activity in Tonga, although its
relative importance has dwindled in recent The
main purpose of household engagement in agriculture
continues to be subsistence and semi-subsistence. 17. FAOSTAT, “Tonga,”
Damage, Losses, and Needs 43
Fisheries
Fisheries represented an average of percent
of total agricultural GDP in 2016. In 2015, a total of
2,360 households in Tonga were engaged in fishing
activities, mainly focused on reef finfish and tuna
and to a lesser extent on shellfish, lobster, and sea
cucumber. The Tongatapu and Vava’u regions had the
largest number of households involved in fishing.
Forestry
Forestry represented an average of percent of total
agricultural GDP. In 2015, a total of 2,469 households
were engaged in forestry activity across the country.
Most of the forest trees grown are for building
purposes, although sandalwood trees are grown for
their high market value.
FIGURE 5.
Agricultural Land Use in Tonga (2015)
Source: MAFFF, TSD, and FAO 2015.
Perennial crops 5%
Annual crops 36%
Pasture 7%
Livestock 1%
Fallow 51%
A total of 344 households, or 14 percent of households
involved in forestry, engaged in forestry mainly for
commercial purposes. About 64 percent of the
commercial forestry households lived in the Vava’u
region and were not impacted by TC Gita. ‘Eua and
Tongatapu also have some commercial forestry
households.
Assessment of Disaster Effects
on the Agriculture Sector
Damage to assets and production losses were
assessed and estimated for the four agricultural
subsectors. The total effects of TC Gita on crops,
livestock, fisheries, and forestry is T$ million,
of which T$ million is attributable to damage
and T$ million is attributable to loss (Table 12,
Figure 6). Table 13 shows the breakdown of damage
and loss by districts.
FIGURE 6.
Share of Damage and Loss
between Agriculture Subsectors
Source: MAFFF, TSD, and FAO 2015.
Agriculture 88%
Forestry 7%
Livestock 3%
Fishery 2%
44
DAMAGE LOSSES
Private Public Private Public
Crops
Crops
Fruit trees
Cash crops (kava, vanilla)
Infrastructure
Forestry
Handicraft/medicine
Infrastructur
