Samoa – City Development Strategy

6.6 CULTURAL HERITAGE 42 Executive Summary 4 6.7 RECOMMENDED ACTIONS - CULTURE 43 PART 1: Background 6 7. Environment and Natural Features 45

7.1 SENSITIVE ECOLOGICAL AREAS 46 1. Introduction 6

7.2 RECOMMENDED ACTIONS - ENVIRONMENT 46

1.1 STRATEGIC LAND USE PLANNING IN SAMOA 6 7.3 WATER RESOURCES 49

1.2 AIM AND OBJECTIVE OF THE CITY DEVELOPMENT STRATEGY 6 7.4 RECOMMENDED ACTIONS – WATER RESOURCES 51

1.3 VISION AND GOALS FOR THE DEVELOPMENT OF APIA 7 7.5 LAND RESOURCES 54

1.4 THE CDS AND SUSTAINABLE MANAGEMENT PLANS 8 7.6 RECOMMENDED ACTIONS – LAND RESOURCES 55

1.5 OTHER PLANNING FRAMEWORKS AND TOOLS 9 7.7 LANDSCAPE 55

1.6 THE FORM OF SMPS 10 7.8 RECOMMENDED ACTION - LANDSCAPE 55 2. Approach 12 8. Hazards & Vulnerability 56

2.1 GENERAL 12 8.1 GEOTECHNICAL HAZARDS 56

2.2 METHODS 13 8.2 CONTAMINATION HAZARDS 56

2.3 KEY ELEMENTS TO THE APPROACH 13 8.3 EXTRACTIVE AND MINERAL RESOURCES 56

2.4 CLIMATE CHANGE AND DISASTER RISKS 14 8.4 LAND USE HAZARDS AND BUFFERS 57 2. 5 PURSUING ADAPTATION AND RISK REDUCTION 16 8.5 RECOMMENDED ACTIONS – RESOURCE HAZARDS 57

2.6 PARTICIPATORY APPROACH 17 9. Risks, Constraints and Opportunities 59

2.7 SEQUENCING OF WORK 17

9.1 OVERALL RISKS AND CONSTRAINTS 59 3. Governance 19

9.2 FROM CONSTRAINTS TO OPPORTUNITIES 59

3.1 CHOICES FOR DEVELOPMENT MANAGEMENT 19 9.3 USE OF CONSTRAINTS DATABASES FOR SMPS 61

3.2 OPTIONS FOR GOOD URBAN GOVERNANCE 20 10. Economic Development 63

3.3 PROMINENCE OF PUMA 22

10.1 LAND SUPPLY & DEMAND 64 Part 2: Situation Analysis 23

10.2 RESIDENTIAL LAND SUPPLY 64 4. Existing Situation 23 10.3 RURAL RESIDENTIAL LAND SUPPLY 65

10.4 COMMERCIAL LAND 65

4.1 EXISTING LAWS, REGULATIONS, PLANS & POLICIES 23 10.5 RECOMMENDED ACTIONS – LAND SUPPLY AND STRUCTURE 67

4.2 THE CITY AREA 23 10.6 ENHANCING LIVELIHOOD OPPORTUNITIES 69

4.3 PRESENT ISSUES 24 10.7 RECOMMENDED ACTIONS – LIVELIHOODS & CENTRES 71

4.4. RESOURCE INVENTORY & ASSESSMENT 25 10.8 COMMUNITY SERVICES NEEDS 71 5. Settlement, Tenure and Land Use 27 10.9 OPEN SPACE & RECREATION 72

10.10 ACCESS & MOVEMENT 72

5.1 LAND PATTERNS 27

10.11 ROAD HIERARCHY 72

5.2 SETTLEMENT PATTERNS 27

10.12 PUBLIC TRANSPORT PROVISION 74

5.3 LAND TENURE 28

10.13 RECOMMENDED ACTIONS – MOVEMENT NETWORKS 74

5.4 RECOMMENDED ACTIONS – LAND TENURE 29

10.14 INFRASTRUCTURE & ESSENTIAL SERVICES 78

5.5 LAND USE 32

10.15 STORMWATER DRAINAGE 80

5.6 RECOMMENDED ACTIONS – LAND USE 33

10.16 EFFLUENT 81 6. Social and Cultural Assessments 37

10.17 TELECOMMUNICATIONS AND RENEWABLE ENERGY 81

6.1 POPULATION AND SOCIAL ANALYSIS 37 10.18 WASTE MANAGEMENT 82

6.2 URBAN POPULATION TRENDS 37 10.19 RECOMMENDED ACTIONS – INFRASTRUCTURE & SERVICES 82

6.3 DEMOGRAPHIC PROFILES 40 PART 3: Implementation 84

6.4 SOCIAL ASSESSMENTS FOR SMPS 41 11. The Structure Plan 84 2 SAMOA – CITY DEVELOPMENT STRATEGY

11.1 LAYOUT AND URBAN FORM OF APIA 85

11.2 KEY STRUCTURE PLAN FEATURES 86

11.3 USE OF THE STRUCTURE PLAN 97

11.4 BENEFITS OF THE STRUCTURE PLAN 98 12. Development Standards and Guidelines 101

12.1 STRATEGIC PLANNING 101

12.2 DEVELOPMENT CONTROL 102

12.3 URBAN DESIGN AND BUILDING CONTROL 103

12.4 ADAPTATION AND RISK REDUCTION PRIORITIES 103 13. Implementation of the Strategy 105

13.1 ROLE OF THE CDS: 105

13.2 LAND TO WHICH IT APPLIES 105

13.3 CAPACITY DEVELOPMENT & INVESTMENT PLAN 105

13.4 IMPLEMENTATION SCHEDULE 106 13. 5 CITY MANAGEMENT UNITS 106

13.7 PRIORITY SMP SCHEDULING 107

13.8 STRATEGIC TECHNICAL ASSESSMENTS 107

13.9 LAND USE AND GOVERNANCE 110

13.10 FINANCING URBAN DEVELOPMENT 110

13.11 HUMAN RESOURCE CAPACITY NEEDS 111

13.12 MONITORING AND EVALUATION (M&E) 111 REFERENCES 115 ANNEX 1: CDS DEVELOPMENT PROCESS 117 ANNEX 2: FUNCTIONS OF PUMA & GOVERNANCE 118 ANNEX 3: CAPACITY DEVELOPMENT & INVESTMENT PLAN 124 ANNEX 4: PROGRAMME SCHEDULING 131 ANNEX 5: INTRODUCTION TO ‘NEIGHBOURHOOD PLANNING” 134 ANNEX 6: PREFERRED USE AREA – LAND USE ALLOCATION CRITERIA 141 ANNEX 7: FINANCING URBAN DEVELOPMENT 163 ANNEX 8: DISASTER RISK MANAGEMENT – RELEVANT TO LAND USE PLANNING 166 ANNEX 9: HUMAN RESOURCE CAPACITY NEEDS 168 3 SAMOA – CITY DEVELOPMENT STRATEGY Executive Summary  Goal 2: to Create and Enhance Employment Opportunities  Goal 3: to Improve Accessibility and Travel Connection Samoa is witnessing significant urbanization which has placed  Goal 4: to Respect and Protect the Natural Environment and burgeoning pressures on the physical, environmental, social, cultural, Heritage legal and institutional systems and financial resources of the Government. Corresponding with this, the capital city of Apia has The City Spatial Plan reflects on the community’s aspirations for the experienced extreme and extensive impacts from climate change and future of the city and surrounds, defining key development principles, natural disaster events. objectives to meet the goals and a series of key initiatives to assist with the long term planning and coordination of the city and its The rapid change in the urban fabric and catchment conditions has infrastructure. The spatial focus was far broader than the current city reduced the city’s natural resilience to climate change, natural and bounds. human induced disasters. Continued unstructured and ad-hoc urban development has severely affected the ability to reduce the The generation of this City Development Strategy (CDS) is cumulative impacts of land cover and catchment change. Without accommodated under the Planning and Urban Management coordinated and orderly physical development, Government has been Authority’s Land Use Planning and Management Programme. The unable to secure the investment required for capital improvements, intent is to take the high level commitment of the National Urban Policy urban revitalization and theefficient provision of essential infrastructure and the long term visions for the city under the City Spatial Plan to and services. This situation has entrenched urban poverty and led to provide a framework which enables implementation over the coming conflicts over land use and nuisance activities. There has been a lack 20 years. Its coverage is the greater urban area of the City as defined of awareness of the implications of unfettered development and this by the inclusion of four Districts: Vaimauga East, Vaimauga West, has affected general community support to address the situation. Faleata East and Faleata West. In October, 2013 the Government of Samoa released the Samoa The role of the City Development Strategy is to provide the strategic National Urban Policy, to provide a high level commitment to framework for land use planning, development and environmental strategically address urban land use and development management. management decision-making for the City of Apia (as currently This has set in train the pursuit of a “Sustainable, Resilient and Inclusive defined). It is accommodated by the PUM Act, 2004 and will City” through a long term strategic framework to guide urban particularly rely on the subsequent generation of Sustainable development, growth and change. To support this very high level Management Plans (SMPs) under Part IV of the Act. These SMPs will policy the City Spatial Plan was released in December, 2014 to provide provide the interface between national advocated forms and location a clear long term strategic direction for the physical development of of development and the communities’ needs. The CDS will guide the Apia. This provided conceptual picturing of the future development of SMPs for them to successfully manage and direct future land use and the city over the next 50 plus years based on present patterns, pressures development, and guide decision-making within the City area. and needs of the community. Those needs were captured in the key values expressed through community engagement and turned into The Planning and Urban Management Act, 2004 provides the legal strategic goals: mechanisms for strategic urban planning (Part IV Sustainable Management Plans). The lack of an overall spatial plan for the  Goal 1: to Create a Unique City development and management of the City was identified as a key 4 SAMOA – CITY DEVELOPMENT STRATEGY shortcoming to using the strategic land use provisions of the Act. As such (c) Improved sustainability of Samoa’s natural and built the City Development Strategy is spatially focussed both in the environment through better resource allocation and risk comprehensive analysis of key urban, social, cultural and environmental reduction measures; issues, as well as in the forwarding of an overall City Structure Plan and (d) Enhanced appreciation of the prospect of community provisions to guide future planning and infrastructure provision. The CDS will wellbeing through better land use allocation, introduction of guide the generation of SMPs scheduled over a three to five year urban design, planning and access to amenity facilities. programme. There will be fundamental supporting technological and (f) Avenues for enhanced cultural identity within the Apia city. human resource capacity building that will correspond with this programme – some delivered through commensurate Government Apia is a unique City with traditional villages located within the urban area. programmes. Maintaining this cultural identity is a fundamental goal of Apia’s urban planning activities. Further stratification of decision-making tools and The CDS supports a number of the aims of The Samoa National Urban processes through the implementation of the CDS with the collaboration of Policy:- the village fono in the generation of the subsequent SMPs will assist with recognizing customary values and ownership. (a) It supports the introduction of the strategic planning processes of Part VI of the PUM Act, 2004 through the implementation of The CDS delivers the following: Sustainable Management Plans (SMPs); (b) It provides a spatial plan and implementation initiatives to a) A Structure Plan representing the spatial guide to future City support SMP implementation to improve planning and development based on multi thematic and sectoral planning coordination of the urban land use, infrastructure and services; analysis and risk assessments; (c) It accommodates the Waterfront development - central / civic b) The first full Land Use Plan and database for the City, as now revitalization initiative; defined; (d) It provides the pathway for developing zoning/precinct plans c) A Combined Risks and Hazards database, using GIS with multiple and regulations through the subsequent SMPs; and, layers and fields to enable multi query retrieval and analysis for (e) It progresses institutional capacity and new governance future strategic planning as well as ongoing Development Consent arrangements. processes; d) A table of land use and development controls for hazard areas Use of a ‘ridge to reef’ approach afforded the opportunity to incorporate related to various land use categories. Table 3 supports the aspects of climate change adaptation and disaster risk reduction with land Structure Plan, and is designed as an intervening tool until SMPs are use planning considerations. The anticipated benefits of this approach are completed and further modelling and hazard classifications are as follows: completed across the City; (a) An agreed Structure Plan that reduces the risk of future key e) A programme for the roll-out of SMPs to cover the City over a 4-5 infrastructure by provision of a primary Infrastructure Corridor; year period; (b) Improved efficiencies in urban infrastructure and services by f) Nomination of some key strategic technical inputs that are required characterizing hazard risks about the City based on present either prior to or co-jointly with the roll-out of SMPs; and foreseeable land use; g) Nomination of some key governance and institutional (b) Improved productivity within urban centres through development matters that need follow-up; nomination of key centres around which better allocation of h) A capacity development and investment strategy to progress the land uses, activities and infrastructure can be planned; land use planning programme of MNRE-PUMA. 5 SAMOA – CITY DEVELOPMENT STRATEGY PART 1: Background The generation of the CDS is funded by the United Nations Human Settlements Programme (UN-Habitat) under a Grant from the Cities Alliance and executed by the Ministry of Finance and implemented by 1. Introduction Ministry of Natural Resources and Environment (MNRE). The CDS work is currently managed by the MNRE PUMA Strategic Planning Section. The City Development Strategy (CDS) has been developed by the Ministry of Natural Resources and Environment’s (MNRE), Planning and Urban Management Agency (PUMA) to further the work of the National

1.1 Strategic Land Use Planning in Samoa Urban Policy (NUP) and the City Spatial Plan (CSP), released in The Government of Samoa (GoS) notes the importance of aligning the December, 2014. implementation of the City Development Strategy with associated plans and strategies primarily as guided by the National Strategy for the The intent is to provide PUMA and the community with a planning Development Samoa 2012-2016 (NSDS). This project supports the NSDS framework to address the future urban development of the City in a Priority Area 4 - the Environment and Key Outcome 13; ensuring manner that is sustainable, provides for a low-carbon future and Environmental Sustainability. It particularly relates to Strategic Area 7: incorporates both climate change and disaster risk reduction measures. Development of an urban agenda and policy. The secondary alignment is with Key Outcome 14: Climate and Disaster Resilience. The CDS sets a long term vision for the city’s growth over a 20 year timeframe. It has built on community engagement over the last 2 years It is anticipated that the CDS will be the roadmap document that with a participative approach involving key stakeholders since augments investments, infrastructure and environmental service December, 2014. delivery for the City of Apia, advancing discussions on governance, land management, development, investment needs, and strategies for This report has been generated to inform of the process followed and urban improvements to stimulate investment. This City Development the inputs provided for the CDS. It incorporates both the rationale and Strategy will then inform more detailed area and thematic based the reasoning for choices and options for future development structure Sustainable Management Plans under the Planning and Urban of the city. Management, Act, 2004 (PUM Act, 2004). This report is structured as follows: Outcomes, outputs and suggested actions of the CDS will facilitate the a) Part 1 – provides background to strategic land use planning in ongoing land use planning and development management Samoa with particular reference to the City of Apia; programme, and consequentially inform MNRE’s future corporate plans and the National Strategy for the Development of Samoa 2017-2021. b) Part 2 – provides a summary of the detailed multi-sectoral and thematic analyses that have taken place with information provided by multiple agencies and/or generated through the

1.2 Aim and Objective of the City Development development of the CDS; Strategy The aim of the CDS is to provide the Government of Samoa (GoS) with c) Part 3 – incorporates the Implementation strategies. an improved institutional and technical capacity to plan and manage land use, coordinate development and ensure sustainable management of existing resources for the City of Apia. The aim is to 6 SAMOA – CITY DEVELOPMENT STRATEGY work toward generating an integrated Sustainable Management Plan provide the means for achieving Apia’s development potential while (SMP) for the greater Apia urban area under the Planning and Urban pursuing resilience and sustainability outcomes. Management Act, 2004 (PUM Act, 2004) to facilitate “climate and Consistent with this objective the CDS offers the Government of Samoa disaster proofed” sustainable urban development. The CDS will provide the ability to: the pathway for this integrated SMPthrough the scheduled generation of the more detailed Sustainable Management Plans (SMPs). 1. Strengthen institutional arrangements, promote partnerships and share lessons that support growth of Apia City; To climate and disaster proof a city is a complex task requiring long 2. Encourage and engage stakeholder contribution, participation term visions and actions based on clear pathways that amalgamate and support of CDS activities and identify their inputs into multi-thematic, sector and cross-sector analysis. Climate and disaster addressing issues; risk compatible development is development that minimizes the harm 3. Enhance urban development, growth and change for the caused by climate change impacts and natural and human induced greater Apia area through a climate proof CDS approach to disasters, while maximizing the human development opportunities ensure that the benefits are not limited to the Apia Central Area (CDKN)1. Transitioning to a resilient future is a major challenge for all but flow to neighbouring districts; countries and this challenge is exacerbated with urban development 4. Promote streamlined decision making based on technical issues. Planning for resilience building needs to involve poverty knowledge, forward planning and co-ordination of government reduction through securing human development in a manner which activities through the Strategy. helps societies adapt to inevitable change. Charting of various pathways toward climate and disaster resilient development does 1.3 Vision and Goals for the development of Apia require a master plan approach to bring together complex threads of human development. Medium to longer term actions will require The Vision for the development of Apia has been set by the National ongoing research, urban and environmental information Urban Policy, 2013: enhancement, institutional changes, ongoing community engagement A “Sustainable, Inclusive and Resilient City” and collaboration as well as the development of tailored decision support tools and mechanisms. The National Urban Policy articulates the overall objectives and directions for building a more resilient city and reinforces the need for The objective of the CDS is to: urban planning to act as the conduit to coordinate land management with infrastructure, natural resources, and hazard risk reduction. “Provide a spatially orientated strategic framework for land use planning, development and environmental management for the City of To support this very high level policy the City Spatial Plan was released Apia to transition to a more resilient climate and disaster proofed city”. in December, 2014. It provides a clear long term strategic direction for the physical development of Apia beyond its current bounds. This The CDS shall set the scene for the future development and conceptual picturing of the future development of the city targets a 50 management of the City at a strategic level. It shall help inform future plus year period based on present patterns, pressures and long terms decisions about the role and function of the land, its use and will needs of the community. Those needs were captured in the key values expressed through community engagement and turned into strategic 1 goals: Climate and Development Knowledge Network. http://cdkn.org/project/carbon-and-water- footprint-assessments-andean-cities-phase-2/  Goal 1: to Create a Unique City 7 SAMOA – CITY DEVELOPMENT STRATEGY  Goal 2: to Create and Enhance Employment Opportunities Sustainable Management Plans (SMPs) 2 .The CDS will guide the  Goal 3: to Improve Accessibility and Travel Connection generation of these more detailed SMPs scheduled over a three to five year programme. These will provide the interface between nationally  Goal 4: to Respect and Protect the Natural Environment and advocated types, forms and location of development and the Heritage communities’ needs. There will also be fundamental supporting technological and human resource capacity building that will The City Spatial Plan reflects on the community’s aspirations and visions correspond with this programme – some delivered through for the future city and surrounds. It defines key development principles, commensurate Government programmes. objectives to meet the goals and a series of key initiatives to assist with the long term planning and coordination of the city and its A Sustainable Management Plan is a land use policy document that infrastructure. can provide an overarching guide to future physical, social and resource use developments. Under the PUM Act, 2004 the plan can be

1.4 The CDS and Sustainable Management Plans generated through participatory methods to support traditional forms The role of the City Development Strategy (CDS) is to provide a more of local governance. It can make provisions for any use, development, detailed and city wide spatial base for the strategic frameworks and protection or conservation of any land, as well as provide guidance for principles set by the National Land Use Policy and City Spatial Plan. It is public uses and utility services. accommodated by the PUM Act, 2004 and will particularly rely on the subsequent generation of Sustainable Management Plans (SMPs) under Land use planning systems and approaches are recognized Part IV of the Act for its fuller implementation. The amalgam of SMPs internationally as providing systems of urban governance that can covering various areas of the city will form the basis of the future address poverty, reduce land based conflict and induce sound Integrated City wide SMP. environmental management. A SMP is a product of the strategic assessment and forward planning aspects of the land use planning The Planning and Urban Management Act, 2004 provides the legal system in Samoa. They can therefore have far-reaching influence on mechanisms for strategic urban planning including through zoning urban governance and compliment traditional systems if approached provisions (Part IV Sustainable Management Plans). sensibly. By being able to affect future development - matters of security, equity, confidence and certainty can be addressed. These are The lack of an overall spatial plan for the development and important elements in the pursuit of good urban governance and management of the City was identified as a key shortcoming to using poverty reduction. the strategic land use provisions of the Act. As such the City Development Strategy is spatially focussed both in the comprehensive analysis of key urban, social, cultural and environmental issues, as well as in the forwarding of an overall City Structure Plan and provisions to 2 Section 15. Of the Planning and Urban Management Act, 2004 indicates the contents of guide future planning and infrastructure provision. sustainable management plans (SMPs) as the strategic plan making part of the decision- making process. SMPs can make provision relating to the use, development, protection or More specificity may be required for each unique part of the City, or conservation of any land in a specific area. By virtue of Section 12, in terms of scale, SMPs may where local complexities dictate and this shall be the role of the range to cover a national, regional, district, village or site specific matter. They can include specific strategic plans, policy statements, codes or guidelines relating to the use or development of land and the provision of public utility services. 8 SAMOA – CITY DEVELOPMENT STRATEGY

1.5 Other Planning Frameworks and Tools function and quality of development. For instance land use plans may direct where within the City, the scale of development may vary There are existing land use planning frameworks and tools generated depending, for instance on whether they are within the central business and used under the PUM Act, 2004. This includes a SMP for Vaitele with district (CBD) or within a quiet residential area. Planning instruments (or accompanying ‘how to’ manuals that provides a useful model for tools) can also incorporate guidelines for different location, intensity or additional SMPs over the coming years. PUMA has a number of policies, forms of development. For instance offices in the CBD may need to including a Noise Control Code, Draft Planning and Development contribute to city parking (either on-site or in public areas) at a rate of Guidelines for Housing (2003), Environmental Impact Assessment one (1) space for every 20 sqm of office space, whereas industrial guidelines and the Samoa Codes of Environmental Practice (2007), the development within a general industry park may need to provide latter generated to assist with road building. parking at one (1) space per 100 sqm of building area. In addition to these planning frameworks and tools used by PUMA are With respect to climate and disaster risk reduction, planning instruments sector plans for the various agencies of Government (Trade, can identify areas of hazard within a City, classify the risk in terms of Commerce & Manufacturing Sector, Agriculture Sector, Health Sector, human response or investment and informmeasures which would: a) Water Sector Plan; Energy Sector Plan; Transport Sector Plan; avoid the risk; b) decrease the risk; c) defend against the risk; d) Communications Sector Plan; Tourism Development Plan and the protect people and/or investments from the risk, or e) increase the National Environment Sector Plan). Many of these have a component coping capacity (or resilience) of ‘assets’ - people, places and which impacts land use and the urban development of Apia. The CDS ecosystems. and its chief spatial output, the City Structure Plan now provides a consistent framework for the Sector Plans and the collaborative Figure 2 pictures the functional means by which planning tools can decision-making that will be needed in the future. control or enhance development for the mutual benefit of all citizens. The CDS primarily addresses the locational functions of land use The CDS therefore provides the strategic pathway for development and planning through provision of the Structure Plan at the city wide level, urban environmental management on the ground. In the first instance it while the SMPs will include locational, scale and intensity matters at the provides a strategic Structure Plan for the city which presents the ‘big district, village or neighbourhood scale. Development standards and picture’ and enables relevant provisions of sector plans to be actioned. the urban design manual can inform the specific scale and intensity Through this collaborative framework itdirects the way forward for requirements as well as ‘quality of inputs’ – and the ‘quality of outputs’ integrated decision-making. expected at the site development level. Figure 1below depicts the general relationship of the CDS with respect to the present frameworks and tools for land use decision-making and urban development. Land use planning tools (sometimes referred to as instruments) primarily aim to direct the location and intensity of development about urban and rural areas. People often recognize planning instruments as being the platforms for determining ‘zoning’ of an area. But they can and do have other functional advantages in how they influence the form, 9 SAMOA – CITY DEVELOPMENT STRATEGY

1.6 The Form of SMPs PUMAAct, 2004 The practical end of land use planning tools, in terms of directing or assisting the location, form, intensity, scale and quality of development, comes about in Samoa through the generation of the SMPs. SMPs can Pol i cy/ Pl ans PUMA Tool s be generated to deal specifically with the functional matters shown in Figure 2, either individually or in a combined manner. They can address single or multiple thematic matters and can be at any spatial scale (i.e. City wide or sub-sets of the City). In terms of what a SMP at this level would look like, key components incorporated to address the range of functions are shown in Figure 3. The primary parts are the plans and maps which determine the key location and form of development and can characterize the area or Guidel ines theme to be covered by the SMP. Guidelines correspond with the maps in terms of setting out controls andguidance on the types of uses, the scale, intensity, inputs and outputs. Graphic based guidelines and images of desired outcomes are preferred in contemporary planning instruments. Part IV of the Planning and Urban Management Act, 2004 provides for the making (Section 12-14) and the contents (Section 15) of Sustainable Figure 1: Context of the CDS Management Plans (SMPs). Providing the right procedures have been followed under the PUM Act, 2004 strategic plans, policies, codes and guidelines as are contained in the CDS can be approved under Scale & Section 15 (e)3. Intensity Quality of Location lnpuits _____,, '\ /~ Sus tainab le Qu ality of Timing Developm~n L Out o 1e& Outputs / - - - - ~./ 3 The CDS could also be approved by the Planning Board under Section 46 (e) of the PUM Act, Figure 2: Function of land use tools and instruments 2004 for use in determining development consents as a ‘strategic plan, policy, development standard or guideline’. 10 SAMOA – CITY DEVELOPMENT STRATEGY To unde rstand curre nt & fut ure Patterns To characterize issues To eva luate opt ions Ma ps give the functiona l a llocation pi ct ure Cont rails & Gui des give t he locationa l, sca le intensity cont rols Incent ive based Gui des can consist of qua litative & quanti tative criteria Images based specific gui des a re preferred Figure 3: Usual Generic Components of a SMP 11 SAMOA – CITY DEVELOPMENT STRATEGY 2. Approach hazards, to assist with consideration of equitable access and the efficient use of land resources.

2.1 General Given the relationship of land, customary tenure, resources and land use – information generation and provision will be key to enabling practical actions in a flexible community orientated planning system. The method employed for the CDS is centred on a two way process, based around a framework of an objective based decision system, reliant on input from prior engagement of the community by PUMA and a number of engagement and participation events during its development. Enhanced information layers were used to representcommunity based, physical, environmental and economic data. Combining layers enabled the ‘characterization’ of social data and information with the bio-physical - to provide suitable bases for analysis and evaluation (see Figure 4 below). Initially the multiple sector and thematic data and information were aggregated then subject to cross-disciplinary review, enhancement and correlation. Composite bases were used in the generation of general constraints and risk mapping. Multiple data-sets were used to present to the stakeholders a picture of ‘where things are up to’ - the intent being for their input to outline ‘where we wish to go’ through a series of engagement events and follow-up one-on-one meetings. Figure 4: GIS used to aggregate and correlate data Stakeholders were able to discuss scenarios of present problems and possible solution ideas. Further refinement of data and information The engagement process progressed work with community through cross-analysis was guided by planning ‘criteria’ geared initially representatives commenced by PUMA as part of itsLand Use Planning toward confirming overall constraints, hazards and to outline and Management Programme. The aim is to establish a prominent role ‘opportunity areas’. The results were then used to canvass and of village elders and village councils in day to day land use decision- delineate strategic land use planning options. Engagement forums making, so gaining their support and understanding was essential. were used to validate options to address crucial issues or elements by the key stakeholders including a number of village pulenu’u. Given time and data constraints, the outlining of ‘opportunity areas’ for city development is best completed at two scales – at the city wide The approach was designed to provide a means to reconcile land and scale and at local village levels. The latter may entail the aggregation development conflict issues, to characterize the extent of various of like village areas based on practical ‘city management units’. The outlining of these ‘units’ will assist with the delivery of SMPs over the 12 SAMOA – CITY DEVELOPMENT STRATEGY ensuing years. As this CDS was developed over a 3 month period the village boundaries, form and characteristics need to be consideration of constraints, hazards, risks and opportunities was considered in assessments and evaluations and incorporated in completed at the strategic city wide level. Shortcomings faced due to the forwarded options for longer term planning; limited data availability were circumvented through use of surrogate b) Spacious residential settlements incorporating traditional use information. Data collection, aggregation, creation, enhancement areas and urban agriculture shall be maintained. The nature of and modelling was organized within an interactive GIS framework. semi-traditional village settings where gardens are a key part of Synthesis of data will enable query based mapping at the city wide, the urban landscape and small scale agrarian systems are district, village and site levels. This accommodates subsequent use in maintained, has many benefits for social cohesion, sustainable SMPs or as a reference base in ongoing decision-making. food supply and maintenance of cultural norms. The plots of land within the flat urban systems where localized flooding and The approach shall assist villages in generating rational and effective poor drainage continues to be a problem can be Sustainable Management Plans (SMPs) that suit local circumstances. opportunitiesfor instituting water sensitive urban design (WSUD) measures. That is, the larger open areas used for urban

2.2 Methods vegetable and crop gardens can double up as water retention A rational planning approach was employed using a combination of and quality control areas to improve water management. the landscape analysis method (McHarg 1962); and ‘concentric ring’ Conversely there needs to be controls in the keeping and and threshold analysis approach to land use planning. This integrated husbandry of livestock within the city bounds. While some approach is assisted by GIS and derivations have been widely used livestock such as cattle can be ideal for weed management on globally. It can be easily adapted to assist with pursuing low-carbon large land parcels, excessive numbers or types of livestock can and disaster risk reduction approaches to urban development. cause amenity, environmental and health issues; Features of the integrated approach are as follows: c) The best means to ensure that the CDS contends with climate change and the need for disaster risk reduction is to approach  Employs graphical mapping techniques to assist community all assessments from a ‘ridge-to-reef’ or ‘whole of landscape’ engagement; scale. This can ensure urban structure and form addresses  Enables evaluation of multi-layers of information from various prospect creeping climate change implications as well as the sources; more dramatic and short term disaster hazards and risks;  Allows interactive ‘what if’ scenarios in developing solution d) Urban systems need to be energy efficient. Pursuit of options. development which is efficient in terms of satisfying demand for various land uses in a manner which enables effective and

2.3 Key Elements to the approach sustainable essential services – invariably will see efficiencies in terms of sustainable energy supply and use. For instance a Fed by the established goals and sub-objectives outlined in the City planned road transport network that uses a road network Spatial Plan the progress of the work was cognizant of some key hierarchy should see the right type of road construction for the messages derived frompast community and stakeholder engagement: relevant threshold of dwellings or other land uses. a) The CDS is to be driven by the unique physical and cultural systems of Samoa and in particular those of Apia. Present 13 SAMOA – CITY DEVELOPMENT STRATEGY management can lead to healthy and pleasing places to live Ridge to Reef and Landscape scale assessment: Essentially with a range of work opportunities close by. these approaches consider matters from the largest spatial For instance grouping non-residential uses in local or district scale as possible or relevant - rather than from a locality or site commercial centres can lead to more variety in land use types, stand point. For instance when considering water which stimulates cross-use economic activity – leading to management and flooding, water increases in volume and additional work opportunities in that centre. Some uses need a velocity from the top ‘ridges’ with variables changing at threshold of convenience ‘shoppers’ to survive. Grouping a various places down the catchment. To consider only the number of retail shops can provide a threshold of people to local conditions at site levels would be inefficient, be subject attract, for instance, barber shops or small commercial offices in to too many assumptions, rely on insufficient data and result in small urban centres, thereby increasing the incidence of local poor responses and decisions. employment close to where people live. Continued scattered small shops about residential areaswill not aggregate sufficient people in a locality to provide the thresholds needed to This will result in efficient energy use for construction and broaden the employment base. maintenance. Energy use per capita can be reduced over time as good road and connectivity systems are introduced. Good Additionally coordinated land use planning and development road hierarchies canreduce traffic congestion – which in itself management will reduce the incidence of nuisance uses, such will limit superfluous energy use. as car repair places or heavy noisy industry in close proximity to dwellings. Urban development types, location and form canalso promote good design and siting to accommodate better use of renewable sources, such as wind and sunlight. 2.4 Climate Change and Disaster Risks e) More efficient urban systems, with coinciding infrastructure and Some of the benefits of good land use planning for climate change essential service provision will rely on effective relationship and disaster risk reduction have been introduced in section 2.3. There building and collaboration between government and are many more opportunities that will be realized through coordinating traditional village governance. Stakeholders agreed for the development, freeing up network systems and implementing more need to improve coordination in development planning and efficient delivery of infrastructure and essential services. Better service management. PUMA has a strategic land use planning coordination of data, strategic land use allocation and integrated and development consent (administrative) role however other decision-makingwill lead to a more resilient City. For the CDS the Government agencies alsohave a critical role in land planning, primary focus is on climate change adaptation and disaster risk service provision and development management. The Ministry reduction. This underpins all sector and cross-sector data aggregation of Works, Transport and Infrastructure, the Land Transport and analysis documented within this strategy. Authority and Samoa Bureau of Statistics, among others – have a critical role in land use planning and development The Australia Bureau of Meteorology & CSIRO Samoa Country Reports management. (ABM & CSIRO, 2011) identifies the latest projected key changes to conditions from climate change over the next, 20, 50 and 100years. UN- f) Communities need to be provided with quality places to live Habitat produced the Apia, Samoa Climate Change Vulnerability and work. Coordinated land use planning and development Assessment in 2014. This set the context of the general implications of 14 SAMOA – CITY DEVELOPMENT STRATEGY the impacts from climate change on various sectors of the City. The flooding, with the inability of the natural/modified channels of vulnerability assessment is limited to general appraisal and observations waterways to accommodate the depth of flooding. with reference to past assessments. The lack of geo-physical and For existing urban areas residential development over much of landscape data, especially the limitations to landscape, elevation and Apia is of very low density. The tendency over the next 20 years fluvial geomorphological information limited the characterization and will be the intensification of development within these areas, quantification of impacts. However within these two sources there were which will also add to the generation of run-off and pertinent messages to guide further assessments for land use planning:- uncontrolled flood waters. a) The medium protection forecasts that Samoa will experience a Low lying and very flat urban areas close to the coast where 2 ºC increase in warmer weather with a corresponding increase defined channels have long been filled or overwhelmed with in the number of days of extreme heat. The CDS needs to pooling of water even in smaller rainfall events, will face regular ensure the urban form, layout and design elements of the City inundation. The climate changes will even affect the local accommodates more cooling environs, especially through drainage patterns with small rainfall events causing nuisance provision of more open space and landscaping (shading & water run-off and pooling. This in turn affects people’s quality of general softening of hard surfaces) close to peoples living areas life and interrupts sustainable investments in the City. and in the city centres; d) While Samoa will face warmer weather with more intense and b) While the statistics show a probable decline in the number of severe events, little change in drought patterns is expected. The tropical cyclones, there is expected to be an increase in their current estimated return period of once to twice every 20 years intensity. While ‘planned retreat’ options are preferred for built for moderate to severe drought will be retained but given that up central areas including the CBD, more resilient coastlines rain is expected in more intense systems, water security is still a through defence and protection mechanisms will be required. medium to longer term issue. These measures should be a mix of ‘hard’ and ‘soft’ engineering e) Ridge to reef approaches to firstly classifying the nature of and non-engineering options that suit the circumstances of the urban and landscape forms and processes are needed in the geomorphology of the coast. Development and building CDS development to contend with the likely climate change designs need to adapt to the new threats and be consistent implications. Evaluation of the current flooding and other with international best practice. associated hazards needs to consider options for Water c) Samoa will be >5% wetter, with most rainfall increases expected Sensitive Urban Designs (WSUD) measures at the strategic in the wet season and with little change in the dry season assessment, subdivision design and final dwelling or building rainfall. Combined with this will be increases in the number of application stage days of extreme rainfall. There will be dramatic impacts for f) Water efficiency options and water harvesting capabilities Apia, where the waterways are already unable to handle much need to be brought into development approval processes to of the quantity and velocity of flood waters. Exacerbating the ensure water security in future development areas. This is situation is the tendency for urban extension to progress up into especially important in higher elevated areas where the the steeper catchments. A change of land cover in these steep satisfactory service from existing reticulated water supply and higher environs combine with the expected climate systems cannot be efficiently achieved. Again it is important change parameters will see increases in the incidence of flash that these matters be addressed at environmental assessment 15 SAMOA – CITY DEVELOPMENT STRATEGY and preliminary design stages of subdivisions and new Digital Terrain Model, contours at 0.5-1metre level) the models cannot development areas. contemplate future land use changes. If there is unfettered land use and land cover change, massive changes will occur in the 2. 5 Pursuing Adaptation and Risk Reduction catchmentsinfluencing the water run-off quantity, velocity and depth. Without controls on the location, density and scale of development In terms of pursuing sustainable outcomes, addressing climate change these significantwater balance process changes – cannot be adaptation and disasters risk reduction across the whole City requires predicted by the modelling. Even if modelling, which is expensive, is holistic approaches.This can be accommodated in ‘Ridge to Reef’ repeated bi-annually, unrestrained development will increase flooding approaches. Land use planning requires a coordinated, plausible and over and above what is predicted in catchment models.The best water integrated approach, with a synthesis of constraints, hazards and engineering modelling using very good datais still reliant on good land opportunities leading to suite of plausible options for urban use planning systems to ensure that risk reduction occurs. management. Land use planning for adaptation features highly in the United Nations The community is in the unique position of being able to agree to a Framework Convention on Climate Change(UNFCCC)advocacyand pathway that leads to a low-carbon city of the future. Good land use policy, as it is known to have a significant role to play in terms of both planning and urban management will lead to reduced emissions as mitigation and adaptation responses.In terms of reducing green-house well providing the basis for the effective and efficient implementation gas emissions noted methods can be employed at the strategic level: of adaptation measures that will work in unison.A coordinated land use e.g. clusters of more denseurban development with efficient traffic and planning system will enable ‘planned retreat’, protection and movement linkages between the clusters; a well-coordinated accommodation/defence response. transport/road hierarchy over the city; ‘place-making’ 4 ; subdivision designs that focus parcel orientation to the north to facilitate renewal For the CDS the mapping, analysis and evaluation under various energy installations, and increasing vegetatedgreen spaces about the thematic, sectoral and technical areas has incorporated climate city. Landscaped open spaces, including urban gardens, or retention change and disaster risk variables and use of best practicecriteria. ofrural development options between the urban clusters can be used Many best practice risk characterization models already incorporate to sequester carbon, mitigate against the expected rise in heat as well climate change and contemporary disaster risk factors (e.g. flood risk as being employed to reduce flooding. analysis following IPCC 5 outcomes). The shortcoming for the CDS was the limited data and modelling of terrestrial flooding and inundation in Mapping, assessments and evaluation of thematic and specific most catchments of the city. In these circumstances, surrogates were technical sectors has incorporated climate change and disaster risk applied and/or limitations were nominated. reduction considerations throughout the CDS. Some care needs to be taken in use of models and technical approaches (especially those that employ software). For instance in the case of surface water management, use of water engineering 4 Place-making is a people-centred approach to planning, design and management of public models adapted to take on the Intergovernmental Panel on Climate spaces. It can be used to improve all of the spaces that comprise the gathering places within a Change, Fifth Assessment Report (IPCC 5) outcomes, still have community—its streets, parks, buildings, and other public spaces…so they invite greater limitations where landscape and geo-physical data is not available. interaction between people and foster healthier, more social, and economically viable Even if the latest geo-physical data of the landscape is available (e.g. communities. http://www.placemakingchicago.com/about/ 16 SAMOA – CITY DEVELOPMENT STRATEGY

2.6 Participatory Approach The work commenced with strategic assessments at the ‘landscape scale’ using available information or that which could be enhanced For much of the work a participatory approach was used with the through existing layers. A ‘ridge to reef’ approach was followed intent to impart as much knowledge on the process of planning as in consistent with the systems methods of contemporary land use planning. the inputs and outputs of various assessments and outcomes. Activities Figure 5 below depicts the key considerationsin the CDS development includedcommunity visioning exercises and deliberations on process. governance choices through workshops and participatory forums. Stakeholders and community representatives were given the opportunity to convey their visions of their communities in 20 or 30 Employment La d Mob·1;ty and Ace ess years time. The choices for land use zoning versus nomination of preferred use areas tied to incentivization of development control Public Transport Recreauo .1needs were debated. Participants were regularly informed of the mapping ............. outputs of the various physical, social, environmental and landscape assessments. These were used to stimulate inputs on choices for future Active Spa ·ng fields land use planning and controls. The outputs and outcomes of the participatory eventswere also used to drive the focus of the technical assessments, land use, lifestyle and livelihoods evaluations. Local Shops / Retail Service lnftas ructure _. \ ~ Corwenie ceRetail Land use planning of existing cities is by nature quite complex. There are many matters, disciplines, sectoral and multi-sector issues to l Heritage and Cultu,e / / consider. Participatory approaches were essential to ensure the eventual recipients were not confused by the inputs and outputs. Main Streets / Ho.usfng Cholc,e The intent of the integrated approach driven by participatory and Public Realm City Centre Design learning forums is the advancement of a CDS which assists the subsequent SMP in forwarding optimal land use development scenarios that cement the pathways to sustainable community Response to Clima e developmentwhere lifestyle choices and livelihood opportunities Figure 5: City planning – multiple facets to consider prevail.

2.7 Sequencing of Work Data, information and mapping were assembled using GIS. Bio-physical, human &culture, economic and hazards layers were created, enhanced Annex 1 provides a step-wise depiction of the approach used in the and aggregated to enable correlation. This firstly assisted with gaining an work. This scheduling of work follows the ‘rational’ approach to land understanding of what is currently happening about the city, knowledge use planning and it is particularly useful in inter-related evaluation of which assisted later evaluations. social, cultural, environment and economic aspects of development planning. It also caters for the climate proofing and disaster risk reduction approach to modern city planning. 17 SAMOA – CITY DEVELOPMENT STRATEGY Data enhancement, synthesis and evaluation were undertaken by thematic assessments and cross-sector assessments. This enabled the demonstration of the pressures and impacts. Criteria were established by theme to assist with risk and constraints analysis. These were used with standard best practice planning criteria to assist with opportunity analysis. Criteria assisted the socio-economic evaluations performed to document the ways forward. From the analytical work the City Structure Plan options were mappedfrom multiple layers and reviewed by Stakeholders. The preferred land use allocationswere guided by existing land use patterns and networks. These became the focus of documenting for the Structure Plan, a key outcome of the City Development Strategy. Figure 6 shows the simple sequence of the CDS work whereas Annex 1 provides the detail of the approach. Figure 6: Simple sequence of CDS work 18 SAMOA – CITY DEVELOPMENT STRATEGY 3. Governance relinquish the right to central government to provide the overarching guidance. Some suggested that the churches could also have a role to playwhilst others did not have strong opinions. Many times the

3.1 Choices for development management discussions were linked to the fiscal responsibilities required to govern. Equity was also a common concern. Some expressed the desire for the Land use planning system development invariably introduces the Government to continue its role but to act fairly in identifying village matter of governance. Land, its use and development that proceeds initiatives for financial support. from it – can lead to conflict, nuisance, poor service delivery and poor accessibility – if not coordinated efficiently and effectively. Good The prospect of an overarching City Council comparable to other governance is essential and the principle of subsidiarity should also be international capital cities was discussed – to assist with coordinating contemplated (enabling governance at the lowest practicable level in decisions among village fonos and to act as the conduit between the society). national and local interests. However many were unclear on the role There are over 80 villages in the greater Apia urban area (AUA) with acity council could haveand how various village councils could have many roles and responsibilities still being addressed at the national representation. Generally, in terms of coordination, comments noted level. Choices in governance to support effective land use and the lack of planning and collaboration between the key agencies at development management include: the national level which led to the loss of resources, poorly coordinated development and lack of accountability. Remarks questioned whether  Centralised decision-making and the role of national agencies; another arm of government would exacerbate some of these matters,  Opportunities for a future City Council; rather than improve the situation. The operation of another tier of government would also come at a significant cost.  Opportunities for a joint governance arrangement, with roles and responsibilities sharedbetween national agencies and Stakeholders acknowledged that PUMA has and should continue to village councils; and have a central planning role. However many questioned its  The continued role of the village councils. effectiveness in providing the strategic urban management functions (e.g. strategic land use planning and coordinating the delivery of At a number of meetings there was comment on the opportunity for urban services). In this respect, several stakeholders stressed the need PUMA to foster leadership, institute change and a new approach to to strengthen the Agency’s coordination and regulatory role. Many felt planning for the urban area through the new framework (i.e. the City that PUMA should be given sufficient authority and resources in Development Strategy). Stakeholders noted that the new framework government decision-making processes to cause better coordination comes at an important juncture in the planning system, where change between Government agencies responsible for land management, is occurring (e.g. significant urban drift to outer areas, major economic urban planning, infrastructure planning and essential service provision. developments etc.). They suggested the new framework should set bold statements to address the decisive issues that are likely to Some suggested that this should centre on strategic land use planning, determine Apia’s future. linking implementation of pertinent parts of the Sector Plans and coordinating implementation mechanisms for infrastructure provision. In some instances, representatives expressed a desire for village Many suggested the status of the PUMA should be raised by either councils to have a role to play with central government; some saw becoming an independent Authority or reporting directly to the Prime specific roles only by village councils; and others still saw the need to Minister’s Office. This would help deliver key urban renewal projectsand 19 SAMOA – CITY DEVELOPMENT STRATEGY minimiseindividual agency interestsadversely affecting urban planning to adequatelyrespond to the challenges of urbanization, climate decisions. An alternate suggestion was for the role of the Agency to be change and the need for disaster risk reduction. primarily focussed on strategic planning and direction for the delivery of sustainable growth scenarios, with other control functions being 3.2 Options for Good Urban Governance shared among urban development management agencies. It was hoped that such an option would ensure agencies worked Annex 2 provides further information on current and prospective collaboratively to be more proactive in identifying infrastructure needs governance options.Sections 8 and 9 of Annex 2 discuss the and delivering infrastructure prior to or concurrently with development. existingand likely roles of village councils and PUMA (and thereby other national agencies). The Village Fono Act, 1990 and the Internal Affairs The majority of the village consultations confirmed that the traditional Act, 1995 both inform theroles of village fonosas well as the roles of governance systems should not be interfered with. The Village Councils national government institutions in servicing village fonos. While the should continue to regulate village and family activities on customary PUM Act objectives may introduce new mechanisms, the flexible land. It was recognised that traditional authorities need to be nature in which Sustainable Management Plans (SMPs) can be formed consulted on government projects that affect their respective villages. and implemented enables opportunities to support existing roles and responsibilities in a manner which strengthens local governance. Community discussions did signal support for some type of zoning 3.2.1 Structure mechanisms that incorporate traditional practices (such as evening While there is no provision in the Constitution for a system of elected curfews). However it was confirmed that those village fonos interested local government, the Village Fono Act, 1990 validates the authority of in following this option up should progress it through the scheduled the village fono to have authority “in accordance with Samoan SMPs. custom and tradition”. The Internal Affairs Act 1995 establishes the [Ministry] Division of Internal Affairs, whose purpose among other things In terms of improving local governance, planners, urban managers and is to make provisions to recognize and organize village authority, and traditional village representatives were torn between the desire to to advance local government through the development of village maintain tradition and conventional practices, and the rational authority (s5(1)). “Local Government” is defined as including the introduction of measures to address the mounting pressures that were Government of Samoa and the administration of a village by its fono. It beyond local village councils’ means to manage. The challenge is to advocates a partnership in governance. consider how traditional mechanisms can work and be utilized as planning tools in a modern planning system. It was agreed that the So in effect there are mechanisms already that recognize a system of good resourcing and timely scheduling of more detailed SMPs could local government. There has been some question whether non- be used to broach choices at the local level, rather than being traditional areas like Vaitele fall under the provisions of both the Village conceptual matters discussed at the national level. Fono Act, 1990 and the Internal Affairs Act 1995. It was accepted that by using environmental planning approaches Reference to a city council or council is in effect reference to a local that appreciated human rights and social justice principles, traditional government authority, usually charged with delegated authority to based local governance could be accommodated through the SMPs. perform State functions (UK Westminster system) aligned with urban The bottom-up local decision-making and top down guidance through development and management. In Australia and New Zealand there the broader operation of the PUM Act, 2004 provides the mechanisms is a question of the efficacy of multiple local government authorities in managing urban development, and over the last 20 years in both 20 SAMOA – CITY DEVELOPMENT STRATEGY countries there has been an effort to amalgamatelocal authorities (or Without the use of strategic spatial plans, generated under the Act (like “Councils”) into larger authorities. Other than cost savings the the City Spatial Plan and this CDS), the PUMA has functioned more as a argument has been that geographically larger local authorities would development control agency rather than a land use planning agency. have a broader vision of development and environmental pressures .Administrative application processes have often relied on limited and would be able to respond more strategically. However, Australia or guidelines and criteria. These wereoften delivered through short-term New Zealand do not havethe defined and socio-cultural roleof the foreign development assistance projects; were not very existing village fono structure, whichis a fundamental consideration to comprehensive or relevant – failing to assist with strategic land use land use planning in Samoa. planning.Despite the best efforts of PUMA, the system has become bureaucratic and costly in terms of the levels of input required by Formation of a City Council, for Apia would entail gaining agreement personnel and the delays to decision-making. among the 80+ village fonos. In addition to the administrative

3.2.3 Roles complexities, the process would effectively bring in a third tier of PUMA’s role is stipulated in thePUM Act, 2004, and key areas are governmentwhich may require constitutional and national legislative summarised as follows: amendments. The ongoing costs for this in a relatively small city would be extremely high, and there is insufficient evidence that any better A. Strategic spatial planning coordination and form of urban development would result. Under this core function, PUMA is responsible for land-use planning. This is to be achieved through guidingland use and decision-making Supporting an improved urban governance structure will lead to better through the production of strategic plans, including SMPs. Land use coordination of infrastructure and essential services; improved vertical planning should examine the potential best location and mix of use links in governance and the coordination of ‘bottom up’ and ‘top that could be achieved to facilitate orderly use of land and to down’ decision-makingconsistent with the principles of subsidiarity. . maximise economic returns of uses and activities while maintaining

3.2.2 Coordination social equity and inclusiveness. It is noted by many that PUMA has significant competing demands betweenApia city and national responsibilities. These frustrations may B. Development control partly be linked to administrative (and possibly legislative shortcomings) PUMA is also responsible for the regulation and control of theuse of in a quickly changing environment. land to ensure sustainability and assessing potential environmental impacts of development. To achieve this outcome PUMA is mandated More so than ever before development and environmental pressures to issue development consents for certain development forms and at the local community level are beyond the traditional governance activities. role of village fonos and each call upon the national government for greater assistance. Annex 2 notes that there were challenges with the C. General environment pollution control introduction of the PUM Act, 2004 in terms of cross government PUMA also has a function specific to amenity and nuisance control coordination and decision-making. Although significant advances through ensuring environmental protection and in controlling pollution. have been made, many stakeholders in government noted there As part of their monitoring and enforcement role, the Agencyis remained room for improvement. responsible for measuring and controlling many forms of pollution and nuisances,such asnoise, odour and waste. 21 SAMOA – CITY DEVELOPMENT STRATEGY While PUMA is responsible for urban development and management,as ensure the success of the SMPs’ implementation.However, it is intimated in Annex 2 both the Internal Affairs Act, 1995 and the Village understood that the CCSDP did not target any Apia base villages. Fono Act, 1990 deal more specifically with local governance. The Ministry of Women Community Services and Development (MWCSD)is Coastal Infrastructure Management Plans (CIMPs) were also generated mandated to manage and assist villages through these legislative by some districts/villages through the Coastal Infrastructure frameworks. One of the issues that needs clarification is the role of Management Strategy work of 2001 and 2005. These CIMPs are PUMA and the MWCSDwith respect to governance in local areas. The currently being reviewed under the large PPRC and Adaptation Fund current institutional arrangement enablesMWCSD to engage climate change projects. Where this work coincides with Apia based ingovernance in traditional villages but not within non-traditional areas villages there is an opportunity to ensure that SMPs benefit from the like Vaitele. There would be benefits for all if the institutional framework improved source of information on coastal processes and to implement all three legislative frameworks were integrated. vulnerabilities. It is understood that Government is considering use of the PUM Act, 2004 and other legislative platforms to institute the revised Other than local governance facilitation there may be other CIM Plans. This will effectively givethe revised CIMPslegislative-based worthwhile benefits. The MWCSD has the mandate to implement the implementation capability, missing in 2001 and 2005 and which resulted the Community-Centered Sustainable Development Programme in varied levels of implementation. (CCSDP). The project evolved from an Early Recovery Programme Strategyfollowing the tsunami in 2009 and Cyclone Evan in 2012. It continues to assist rural communities by encouraging communities to

3.3 Prominence of PUMA be self-reliant, both economically and socially, through improving and As a decision-making unit within the Ministry of Natural Resources and supporting livelihood and economic options. The programme supports Environment (MNRE), PUMA is currently viewed as lacking the ‘teeth’ to villages that were severely affected by the tsunami and cyclone ensure effective coordination among government development through the formulation of Village Sustainable Development Plans agencies and authorities. Additionally, there is a lack of human (VSDPs). It commenced with pilot projects in 3 villages in 2009, and was resource capacity to assist with strategic planning and ensure extended to assist 25 villages in 2010 – mostly those severely affected compliance with and enforcement under the PUM Act, 2004. by the events of 2009 and 2012. Stakeholders recognised that transfer of PUMA to an independent One of CCSDPs objectives is to build gender-sensitive community authority, under its own Ministry or under the Prime Minister’s Office, capacity to sustainably manage environmental and income could improve coordination of development and urban management. generating initiatives that result from inclusive community-led planning processes. The project also supports communities in building an eco- Given the coordination role of PUMA, it was recognised asimperative friendly economy that incorporates adaptation and risk-reduction that PUMA has adequate resources and the right institutional setting to measures (MWCSD). ensure success in its role and responsibilities in rolling out and implementing the SMPs effectively and efficiently. As the generation of Village Sustainable Development Plans has synergies with SMPs, there may be lessons learned that would assist PUMA in providing an effective village level governance framework to 22 SAMOA – CITY DEVELOPMENT STRATEGY The population growth rate for the Apia is currently 0.4% per annum Part 2: Situation Analysis with the national average being 0.63% per annum. The average age is 21.9 years with the National average being 20.7 years. The explanation for these lower than national average statistics are not conclusive but 4. Existing Situation have been linked to: the strong urban and rural-residential growth west of the City toward the airport; the high emigration rate of young students and qualified people from the City area.

4.1 Existing Laws, Regulations, Plans & Policies Annex 2 provides a summary of the status of the PUM Act, 2004, The strong population growth in the north-west Upolu Island now sees referring to laws and regulations, plans and policies related to land use this area account for over 55% of the population of Samoa. This planning in Samoa. It gives some further context to Sections 1 to 3 urbanization of previously dominant villages along the coast was above. recognized in the Apia Spatial Plan, with the nomination of a potential future urban centre to the west of Vaitele.

4.2 The City Area The CDS area covers four (4) districts including Vaimauga East, Vaimauga West, Faleata East, and Faleata West. There have been numerous metrics used previously to define the City, from offset measurements from certain intersections, to aligning with statistical return districts such as Vaimauga East and Faleata West. The defined City area was recently extended to capture the prime urban land use changes that have occurred over the last 10 years. Within this new city area there are 84 villages and a total population of some 63,000 people. This is 35% of Samoa’s total population of 180,000. In terms of numbers the Vaitele is the biggest village with a population at the last census of 7,180 people, the smallest being Matafele with 7 people. The City area is some 139 km² (13,900 ha) which represents 5% of Samoa. Approximately 65% of this area is mid-slope to upper catchments of rural and forested areas, with much of the city occupying the coastal plains. The population density of this area is approximately 4.5 persons/ha, which is considered low. However this is skewed by the majority of the City area being rural and forested upper areas. Figure 7: The City Area for the CDS 23 SAMOA – CITY DEVELOPMENT STRATEGY

4.3 Present Issues Participants of forums from the National Urban Policy, the City Spatial Plan and this work contemplated whether there was indeed a need for better land use planning at this juncture of Apia’s growth. Overall there was consensus on the needs for better coordination and joint visions for the future. Identified issues with the present progress of urban development included: • complexity in resolving conflicting traditional and urban aspirations; • continuing land-use conflicts; • infrastructure conflict and inefficiency in provision; • Inappropriate use of land (ecologically sensitive; very steep; flood proneetc.); • uncoordinated response to climate change impacts; • limited control over energy efficiency; • poor responses to population/demographic changes; Plate 1: Old VaiteleSLC Subdivision – poor access and drainage • urban economic inefficiencies; • Little control over urban identity/character (built form, views/vistas, etc.) It was recognized that some positives have come about since the introduction of the PUM Act, 2004. Reference was made to the Vaitele subdivision area (Samoa Land Corporation) which in 2006 featured spasmodic take up of land, poor servicing, limited sealed roads, poor drainage and lack of defined access ways to properties. There were few jobs in the vicinity and crime especially by youth was prevalent. Since then the residential areas have seen much progress in investment, roads are all sealed, water issues are not as profound and gardens and urban agriculture has been well established. The Vaitele SMP has set a solid framework for investment and coordinated development in the Vaitele Industrial Area. There has also been the setting aside of land for a bus terminal and public open space and communal areas. Plate 2: New Subdivision areas – improved table drains 24 SAMOA – CITY DEVELOPMENT STRATEGY

4.4. Resource Inventory & Assessment To get a better understanding of the existing situation and to assist with the recognition of the key pressures and drivers, the work aggregated as much geographic and related data and information as was available. Use of GIS has enabled the generation of a multi-layer database that will provide a decision-support tool for the planners at PUMA. The multiple layers of GIS data with tied relational databases have been incorporated into a grid system over the whole city. Simple and advanced queries by location or area will reveal the nature of all constraints, hazards and features within a defined area.Figure 8 provides a representation of the broad approach in terms of mapping of constraints, risks and opportunities as well as the spatial analytical process used to date. These assessments cover the bio-physical, social, cultural, economic Plate 3: Old VaiteleSLC Subdivision – unsealed roads prevalent elements of society and surroundings. They firstly identified the existing situation, characterizing the issues and location of hazard areas. Combining constraints and hazard mapping was used to identify opportunity areas. It also provided the pathway for more in-depth cross-sectoral analysis. These assessments formed additional layers of data that were used to inform the CDS. This part of the CDS outlines the technical assessments and associated outputs that were prepared. As the range of information and data continues to be assembled, PUMA continues to use the Geographic Information Systems (GIS) with associated databases to assemble, aggregate and manage the data. This allowed consistent and linked data and information to be used in the generation of the CDS, but also it will assist in the later generation and implementation of SMPs. Plate 4: New Subdivisions – sealed roads 25 SAMOA – CITY DEVELOPMENT STRATEGY ~ Land Area Growt!h Pattern& on Regi:o:n.al . Key .'"'C C .,.... a, .., .-.,....:::, Linkages VI .,.... Pro RI Gel .., L. - Land Use & Land VI -..cE ~ Tenure & Biu~ldin~ C ~ RS Structunt Patterns m C V, .., C Neighbourhood Units It Centres criteria a, "' - Open Space ft Comm Faci lities <( d:t 1q, a Core L - RS D.. a, E a. ~ Socio Eco:no mi:a a: Pol) ."'.,.... a, L. -~ 0 Refine Potential use units by .., RI "' a, ..c :::, .., Vi IIage Ar-ea RI .., u :::, a, clusters C C C I Na.tu r al Systems ~ .., L. -a, V, Cut offs - buffers V, .., ~ .u.,.... Outline "' RS c ultural He ritage T raffi:c -a,I Hazards Aooding& -- I I Strategic actions to assist ..c with role out of D.. 1nfr a/Structure& s.,ervices "' RS ..c Coastal a, IA RI -.............................. ->a, SMPs ............... D.. Infrastructure a ..c IA wast e& Po llution D.. RS Networks ..c H.azardi D.. Figure 8: Managing data analysis to assist with the CDS 26 SAMOA – CITY DEVELOPMENT STRATEGY 5. Settlement, Tenure and Land Use

5.1 Land Patterns Review and analysis of land use and settlement patterns was the starting point for City Development Strategy, consistent with any land use planning strategy orMaster Plan. Key aspects considered were: land ownership, land use, land trends / changes in use over time, land supply and development activity (whether Development Consents (DC’s)) have been applied or not). Each of these aspects providedthe insight into: how the surrounding land is currently being used; the nature of Plate 5: Apia, 1954 change in land use, the success of development, where the problems are, and how land can be better used in the future. People function in patterns. The natural systems function in patterns and economic development takes pattern form. Sustainable development pathways are created by bringing these realms together. Land use history and patterns enable some comprehension of how vulnerabilities and risks to natural and human induced hazards eventuated.

5.2 Settlement Patterns The prevailing settlement patterns were reviewed using aerial/remotely sensed imagesover a period since 1954 (see Plates 3-5). From an early time development has been concentrated about the present CBD and Plate 6: Apia, 1970 harbour foreshores. Spines of commerce and western forms of housing sprung up along key main roads in the central area, along Vaitele Road and up toward Lotopa as residents sought the mix of urban opportunities and urban farming. Expat residents were seeking elevated views as far back as the early 1960s and this set the precedent for the clearing of steep forested areas.The settlement pattern pre-1980s was very much of a dispersed nature, at a very low density within the urban areas, concentrated along key routes and confined to the coastal plains. Up to the 1970s there was some retention of natural coastlines and wetlands. However from 1970, reclamation of the port area, the Government offices land, wetlands south of Mulinu’u and the coast around and to the east of Taumasena had begun. Plate 7: Apia, 2006 27 SAMOA – CITY DEVELOPMENT STRATEGY

5.3 Land tenure by community engagement and consensus is essential. A balance between community driven decision-making and national based Land tenure within Apia continues to be a mix of customary land guidance has been foreseen in the PUM Act, 2004, through the (traditional areas), customary with ‘freehold’ mix, government and generation of the SMPs. Government is keen to see the continued freehold land. Tenure (i.e. whether traditional customary or ‘freehold’) involvement of village fono in urban development decision-making. will have a significant bearing on the level of influence that the CDS Reduced effectiveness of village fono roles’ can impact negatively on and its recommendations will have on much of the community as most national government resources as public agencies are called upon to land is still held in customary use-hold. The Constitution, the land laws, assist with local village based matters. as well as many international conventions and agreements give protection to customary tenure, use and management. The CDS will In traditional village settings the Government has been able to rely on therefore need to lead to incentivized change rather than change systems that have been used for: consensus building; maintaining basic based on prescriptive decision-making systems. social justice; providing harmony with development; assisting with community services/support, and strong respect for the environment Governance is a key matter in implementation of land use planning and basic lawfulness. However societal changes from subsistence to systems, and noting where traditional customary versus Government cash-crop and commercial enterprise; combined with population subdivided land is located is essential in understanding past patterns density increases, urbanisation and the dominance of ‘individualism’ and the influence for future development scenarios. Relating the over communal sharing – has placed pressures on existing villages and nature of different forms of customary use and historic development national level governance. also informs where ‘zoning’ of land may be appropriate (or readily considered by villages) under the subsequent Sustainable Management Plans (SMPs). Moreover reviews, surveys and continued As communities’economic base and aspirations change, land use and engagement will enable the recognition of village fonos or areas development scenarios become more complex. Development types, where members continue to be sensitive as regards loss of their scale and intensityare increasing and impacts are becoming more customary rights. These areas will required more flexible policy extensive with wider community implications. Changes in living approaches centred on incentivization and guidance. preferences are placing pressure on the sharing and consensus based fa’asamoa. Natural and human induced hazards have villages facing As with many traditional societies in Pacific Island Countries, the new challenges. Population growth and pressures from a development customary rights of the indigenous are ‘absolute’ and any future economy have national government agencies under pressure to decisions on introducing formal zoning regimes need to contend with maintain basic human services especially in urban areas. this. Annex 2 provides additional information on land tenure, customary rights and other relevant human rights. The pressures and driving forces have culminated in the appearance and growth of non-traditional village settings. The Government is Many village fonos, matai and community members continue to be increasingly required to provide additional services that sensitive as regards loss of their customary rights - which they feel, may weretraditionally covered by village councils. People are settling in peri- be promulgated through Westminster style prescriptive land use urban settings, often away from good transport, basic services and planning systems. Conversely many understand that the complexities employment opportunities. The communities often comprise people of modern urban development and pressures are beyond the village originating from different villages, living on freehold land with less social capacity to manage. An equitable system of land use planning driven obligations to their neighbours, as would be the case in traditional 28 SAMOA – CITY DEVELOPMENT STRATEGY village settings. In these circumstances where national government has 5.4 Recommended Actions – Land Tenure been unable to keep pace with the greater demand for dispersed services and infrastructure, unemployment has increased, especially The community engagement preceding and during the roll out of the among the high percentage of youth. With low economic activity SMPs should strive to address the following in terms of land tenure: which stifles employment opportunities, as well as poor services and community activities (such assport, arts and cultural events) often crime 1) Communities should be encouraged to confirm the nature of has escalated. ‘freehold’ arrangements on customary land within key areas of the City; Figure 9 shows the land tenure as best as can be determined at this 2) Along with this the communities should strive to differentiate the stage as there are difficulties in confirming the status of freehold land in various forms of tenure within their village fono areas; many areas including the CBD. Anomalies are known to exist in the 3) Within customary tenure areas identify those particular areas where plans included in the City Spatial Plan. The engagement required traditional use only should be pursued versus areas where villages are during the role out of the SMPs is seen an opportunity for villages and supportive of non-traditional forms of development; their communities to confirm forms of tenure. More importantly it is an 4) Communities should debate how families within high to critically high opportunity for communities to identify areas where traditional use and hazard areas can be afforded traditional tenure flexibility to re-locate therefore tenure is important to be maintained versus areas where they or re-build in less hazardous areas. are happy to explore non-traditional development. In this Figure 9 the area shown as the central business area in blue is known to be mostly customary but with many uses agreed in ‘freehold’ form. It is therefore often referred to as freehold, whereas the underlying form of tenure remains as customary. In the central business area this sometimes becomes an impediment to Government trying to stimulate economic growth Figure 10 shows the extensive number of villages within the City bounds. It also shows the location of the four (4) Political Districts which make up the Apia City Area: Vaimauga East, Vaimauga West, Faleata East and Faleata West. Given the status of customary land and the importance of governance in future implementation it was important that the evaluations and the recommendations that stemmed from them were cognizant of the various village boundaries. The sheer number of villages within the City provides some difficulty in reaching consensus in land use and governance choices. This was one of the drivers for the City Development Strategy to be information based. 29 SAMOA – CITY DEVELOPMENT STRATEGY Figure 9: Indicative Apia Land Tenure Types Figure 9 Land Tenure (Interim) Cu,tomory l l l l customary/ffeehokt . ,,. .hold 1111 Gov~menl [=:J cosaoundary ..,.,..., Scale155.000 30 SAMOA – CITY DEVELOPMENT STRATEGY Figure 10: Village and District boundaries Figure 10 District and Village Boundaries Districts ~ faleoto West c=l foleoto fast c:::J cos aounda,y C=:J Voimougo West ~ Volmougo West - Scalt 1.55.000 31 SAMOA – CITY DEVELOPMENT STRATEGY - Community.

5.5 Land Use - Institutional / education. - Conservation / Environmental Areas. Aland use plan was generated for the City, using aerial photographs, PCRAFI5 building layer files (SOPAC project) and the findings of an initial Standardised international land use colours were used in final mapping. land use survey. Many of the data sources were dated and validation of land uses and activities at the city-wide level was limited by time. The Aerial photographs and brief records can only provide a certain level of City Spatial Plan had updated land use maps within the central business information regarding land use. It is important the Land Use Plan (and area of the City; however the building and dwelling GIS layers upon database), now available to PUMA be fully validated and kept up to which this was based were also dated. The land use validation surveys date for the MNRE and other Ministries involved in land use and planning undertaken in February, 2015 concentrated on identifying areas where and development management. Correlation with building information collections of new commercial and new non-standard residential uses from MWTI would be invaluable for future auto-updates of the database. were appearing – to try and characterize the drivers for such change. Land use assignation was based on building ‘use’ nomination through The full validation of land uses and development activities about the the PCRAFI project. There are many anomalies where there are multiple City is important for the future land use planning programme, especially buildings and uses on one parcel of land. The buildings GIS layer upon to support the roll out of the SMPs. This work will be undertaken by which the work was originally based is over 10 years old, and will not PUMAin the lead up to and during the generation of SMPs. include many new buildings including significant changes in the central business area and the hospital precinct. Considering the existing land use was critical in getting a full understanding of the type, location and form of current urban For SMP production a land use survey (and updated Land Use Plan) is development, to characterize hazards and levels of risks and to required to accurately document land uses. This can be a resource- identifyconstraints and opportunities for future urban development. Land intensive process butis the key to supporting the effective roll out of uses were designated consistent with international practice with SMPs. The land use survey should identify the location, size of lot, type of variation to suit the unique circumstances in Samoa: uses, interface issues, building form/type and site cover. This information can be documented in a table or spreadsheet to be linked with the GIS - Agriculture system. This has occurred at a high level for the CDS and shouldbe - Forestry improved during the production of subsequent SMPs. The receipt of the - Rural Residential LiDAR base should enable updatesto the buildings layer within the GIS. - Residential - Office / Commercial. A validated land use plan canreveal currentconstraints to development - Industrial. and make ‘risk’ areas more immediately identifiable. For instance, with - Open Space / Recreation. flood modelling (see below) known flood prone land and waterways can be mapped against known land use, buildings, infrastructure, 5 Pacific Catastrophe Risk Assessment and Financing Initiative (PCRAFI) is a joint initiative of easements, structures and known habitation. SOPAC/SPC, World Bank, and the Asian Development Bank with the financial support of the Government of Japan, the Global Facility for Disaster Reduction and Recovery (GFDRR) and the ACP-EU Natural Disaster Risk Reduction Programme, and technical support from AIR Worldwide, New Zealand GNS Science, Geoscience Australia, Pacific Disaster Centre (PDC), OpenGeo and GFDRR Labs. 32 SAMOA – CITY DEVELOPMENT STRATEGY

5.6 Recommended Actions – Land Use Assisted by the active input of village communities preceding and during the SMP roll-out, PUMA shall address the following in terms of land use: 1) Complete a land use survey and update land use maps and databases to accurately document land uses about the City. The land use survey should enable differentiation of various uses on one parcel of land which often is the case in Apia; 2) The land use survey should identify the location, size of land parcel, type of uses, interface issues, building form/type, and condition and site coverage. This information can be documented in a table or spreadsheet to be linked to mapping within the GIS system; 3) The LiDARbase which has been commissioned by the Government shall be used to update of the buildings layer within the GIS. This in turn shall be used to assist with finalizing the land use survey and mapping updates. LiDAR shall assist with nominating the relative level (RL) of the ground in a gridded format, to enable future minimum floor levels to be applied (see Flooding, section 7.3); 4) The updated land use mapping and buildings layers shall be used with the latest population statistics to quantify the numbers of people and buildings in each hazard classification area applied to the City (low, medium, high and critical hazards). This shall become the baseline for future reviews of the CDS and Structure Plan. The work should reveal the extent of current encumbrances to development and make ‘risk’ areas more immediately identifiable – so will also entail updating the Combined Risks and Constraints GIS database. 33 SAMOA – CITY DEVELOPMENT STRATEGY Figure11: Land Use for the CBD – showing Waterfront Precincts Figure 11 Central Business Area Land Use - COMMERCIAl/lNDUSTRIAl - INDUSTRIAl/COMMERCIAl MIXED RESIDENTIAL EDUCATION HEALTH PU!LIC/ COMMUNITY CRITICAL FACILITY OPEN SPACE PUBLIC SPORTS GROUND 1111 UIIBAN RESERVE 1111 ENVIRONMENTAL PROTECTION §§ HAZARDOUS FAClllrY 34 SAMOA – CITY DEVELOPMENT STRATEGY Figure 12: Land Use for the CDS Area Figure 12 CDS Land Use ~ COMMEIICIA L/ IUSINESS ~ INDUSTRIAL/COMMERCIAL MIXED RESIDENTIAL L J EDUCATION C ) HEALTH UC/ COMMUNITY TICAl FACILITY EN SPACE UC SPORTS GROUND lfCOURSE URBAN RESERVE FORESTS l ECOLOGICAL AREAS AGR ICULTURE 35 SAMOA – CITY DEVELOPMENT STRATEGY Figure 13: Land Use for the Urban Areas Figure 13 Urban Land Use 36 SAMOA – CITY DEVELOPMENT STRATEGY  The matching of village boundaries District boundaries can be 6. Social and Cultural Assessments completed. Some of the urban fringe villages have small portions within the ‘urban’

6.1 Population and Social Analysis area and larger portions that extend into the surrounding ‘rural’ areas. Statistics for these areas are therefore skewed in terms of determining It was important that population and social matters beincorporated in the land use planning assessments. Social needs drive the urban key land use planning and statistical parameters. With improved bases planning needs in terms of the location, type and form of development. these anomalies can be addressed. Data and information was drawn from the Statistic Office to provide an overview of demographic changes and to characterize the potential While the focus for the CDS is on population ‘living’ dynamics, the future social impacts for village, urban and rural land use options. enumeration of commercial, jobs and economic data at the Village and District levels will also provide the bases for improved socio- Social assessment for the CDS was limited to population and economic analyses for future land use planning. demographic representation to determine city widepatterns distinguishable in terms of past development, social changes and likely 6.2 Urban Population Trends future needs. Statistical data enumerated at the village level was Population and demographic statistics from the Statistics Office were coupled with GIS layers including the buildings database. The quality correlated with various GIS layers including the map of village fono and availability of corresponding physical data limited the useability of areas to gain an understanding of past growthand location trends for the statistical information. the City. Population comparisons by village between the census of 2011 and 2001 were able to be performed, as was the determination of Addressing these physical data shortcomings assisted by the receipt of population densities by village (noting the anomalies in building data the LiDAR data should assist with the roll out of the SMPs with the and differences in village sizes. From the strategic review of population correlation of physical built form with population and land use statistics: statistics by Village the following was produced:  The buildings and structure GIS files can be updated, will see the  Map of population numbers by Village in 2011 (Figure 14) detailed validation of multiple uses on land and enable reliable  Map of population change by Village, 2001-2011 (Figure 15) correlation with population statistics and demographics;  The buildings database will be able to accurately differentiate  Map of population density by Village, 2011 (Figure 16) between building types (i.e. dwelling, fale, commercial, vacant,  Map of predicted population by Village to 2035 (Figure 17) other buildings) to determine accurately population densities and numbers of people within various risk categories etc.; The key population and demographic findings for the City were as  Will assist with completion of a fully validated land use plan that follows:- will accommodate the correlation population dynamics with the level of service provision; - Of a population of 186,340 (Census, 2011), a total of 63,360  With the engagement of communities during the generation of people or 35% of the national population are living in or very SMPs the correlation of statistics’ enumeration boundaries with close to Apia; known village boundaries can be completed; 37 SAMOA – CITY DEVELOPMENT STRATEGY - The north-west Upolu area has only 311 sq. km (11%) of the total - A growing number of those living in the outer areas of Apia and land area of Upolu (2827 sq. km) but accommodates over 50% beyond are now living outside traditional village and community of the population of the country. The growth of Apia City and governance settings. Where traditional Village fono is not in the influence of the location of the International Airport drives practice, there would seem to be a corresponding increase in much of this. There is major population growth along the coastal demand on Government services; strip between Apia and the airport. This will drive land use - Significant emigration has slowed overall population growth change and physical development along the coast, and the rates but there continues to be significant internal migration from demand for services from this vantage will also influence the rural to urban and between urban settings. location of land uses within Apia. As much of the pressure is - The growth patterns have been influenced by the availability of along the coast care needs to be taken to ensure new government property being subdivided to the City east and development areas are outside of high coastal hazard areas; west. - Figure 14 shows the large population numbers to the immediate There are significant economic and social implications of these patterns west of the City area. Options for future land use planning and of development for Apia and the country as a whole in terms of infrastructure development will need to contend with the infrastructure provision and supply of essential services. The need for an demands that will prevail from this population. The present City east-west infrastructure corridor was proposed under the City Spatial area has been determined on geo-politic grounds; however the Plan, which will have broader impacts on commerce and employment City Spatial Plan incorporated this area. Further review of this nodes to the west and south-west of Apia. Premature expansion of the area in a land use planning sense should be included in the roll- city will increase the costs of urban development, and could affect the out of SMPdelivery; functionality of the central business area. Conversely well planned - Within the City area Figure 15 shows the population changes expansion in a south-west direction with the use of a multi-nodal city between 2001 and 2011. The biggest growth in population has structure can accommodate a‘planned retreat’approach to been in the outer areas of Vaitele to the west and Vailele to the adaptation and disaster risk reduction approach to development; east. Focus in the recent past has been on Vaitele. The needs of the growing population of Vailele cannot be dismissed in future The city has a young population with the younger age groups planning. dominated by males. The over 50s age group is dominated by females. These population trends are notable and will affect future planning of - There has been a decrease in population within the inner city services. High youth numbers as a percentage of the total population is areas. This is possibly due to the extension of non-residential uses significant. Land use planning and development management should within and outside the core central business area. Higher levels focus on facilitating employment opportunities. In the first instance this of available free-hold Government land to the west and east of direction can be achieved through accepting a ‘hierarchy of centres’ the City has attracted many. The increase in flood liable land within the city to concentrate commerce and increase market and degree of risk within established inner city areas has thresholds for employment opportunities. Urban development deflated interest in redevelopment. While there is a decrease in investments in district centre infrastructure and services would stimulate the population numbers within the core city centre, Figure 16 this economic move; shows that the population density in these areas is still high. A falling population in the high hazard areas of the inner city can The average household size was 7.2 persons per dwelling in 2011. While be beneficial given the expected rise in risk due to climate the residential building density per hectare is low, the very high average change; occupancy rate should be noted in future planning. 38 SAMOA – CITY DEVELOPMENT STRATEGY Figure 14: Population by Village, 2011 Figure 16: Population Density, 2011 Figure 15: Population change – 2001 to 2011 Figure 17: Predicted Population by Village, 2035 39 SAMOA – CITY DEVELOPMENT STRATEGY and community facility needs e.g. school children, young adults,

6.3 Demographic Profiles and older people.6 Demographic profiles of areas (by village) will be targeted in the roll out - Education level – the level of education obtained by the of SMPs and will be built initially using the available statistics data as the population will provide an insight into the social profile and job baseline. This can be enhanced by using community profiling templates prospects of the local people. to add to these baselines. An analysis of key data is undertaken to - Employment / Job Type – This will provide knowledge on how understand who, where and what we are planning for in terms of and where people are employed, the types of jobs that are providing services, providing economic opportunity and understanding pursued and the level unemployment in each area. This work the marketability of various land use options. It will also assist in should incorporate gender differentiations, education levels and determining the current community needs and that for the future people’s skills. If jobs in the area do not match the skill sets of the population. Most importantly the demographic profiles, with improved people it is likely a higher percentage of people are looking land use and physical development data will provide more accurate outside the area for jobs, or are taking on jobs that do not suit information on the numbers of people in various hazard and risk areas. them. Characterizing the type of jobs available in a locality This is an essential baseline in pursuing a climate and disaster risk proof enables the characterizing of the types of business enterprises planning system. that exist. This can be compared to best practice land use allocation criteria – and responses can be made i.e. provision of The following characteristics of a population garnished through more commercial areas within a neighbourhood area. community profiling shall be useful for the more advanced land use planning for SMPs: - Household income – This enables the social profiling of the economic status residents and their service needs (usually  Accessibility enumerated as household or individual income of residents).  Serviceability Household income ranges can be matched against basic health  Demographic change and well-being criteria to determine gaps and needs. The level  Community issues of income will influence the type of services and activities that  Community services & facilities are required in the area.  Recreation, sport, park and open space needs  Economic trends - Household Size & Type – Analysis of data relating to the  Housing affordability and diversity household size and type is analysed against the age profile. For  Land management (administrative) options instance if there are on average 10 people per house and the age profile shows that over 50% of the population are under 10 For the subsequent SMP delivery, improved databases and land use years old - it can be concluded that households in that area are maps at the local level shall enable the following demographic trends to be reviewed and analysed: 6 Land use allocation criteria generated to suit the conditions in Samoa are needed. While work - Age and gender: to gain an understanding of the population is proceeding in enhancing demographic profiles with physical data sets – to enable the profile by determining how many people are in each age group correlation of population needs and provision rates, Annex 5 and 6 can be used as surrogate or cohort (5 year intervals i.e. 0-5, 5-10 years etc.). This will assist references. They have been generated based on land use provision rates used in multiple states with correlating population characteristics with future service of Australia, moderated in part to suit Pacific Island Countries through work in Niue, Cook Islands and regional level capacity building. 40 SAMOA – CITY DEVELOPMENT STRATEGY made up of young families. Community facilities and services in and transport infrastructure; and tourism, recreational and social that area should respond with an adequate number of places in amenities; primary school, with sufficient local health services to cater for  Assessments need to cover the potential for landholders in the child health issues. The type of household relates to whether it is vicinity of the development to be indirectly affected through a family, a couple, or an extended family. This is important reduction of their amenity, in relation to visual amenity, noise and information to enable the forecasting of the needs of the the character of the area –with any change to land use or population in terms of services, open space, education etc. development patterns. With improvements to coinciding data sets such as the buildings GIS  Assessments need to consider potential impacts on places with layer and land use classification, key population planning parameters particular cultural, recreational or aesthetic values, particularly with can be determined by each village and aggregated for the whole City. regard to significant locations and including impacts on tourism. For instance during the production of SMPs it would be useful to be able to characterize village sizes (ha), with population densities (pop/ha),  Assess potential impacts of the construction workforce on housing household numbers, household sizes and household densities demand, community services and community cohesion and the (households/ha). This would provide a powerful planning tool to capability of the existing housing stock, including rental determine the level of adequate servicing for communities. It would also accommodation, to meet any additional demands created by the be useful for infrastructure and essential service providers in the planning proposed development. of their asset augmentation. Most importantly it would enable more  Assess local community attitudes towards proposed development accurate characterization of the number of people and assets within and concerns expressed during community consultation processes medium to high hazard and risk areas. as part of the generation of the SMPs.

6.4 Social Assessments for SMPs  Assess the residual short-and long-term beneficial and adverse social impacts that are likely to result from proposed land use change. The population and demographic profiling completed at the strategic level for the CDS has revealed some important patterns for spatial The potential social issues, both positive and negative, associated with planning at the city-wide scale. It has also revealed some important population growth and city expansion includes the following: gaps in base data layers that should be addressed prior to or coinciding  Expanded residential population in the community generally, with the role out of SMPs. The following outlines some important aspects and in specific localities – and the allocation of land use areas to that will need to be addressed through the SMP productions: accommodate this;  The settlement pattern, demographics, existing community  Corresponding need to upgrade water, sewerage services, infrastructure, services, access and mobility elements of the local provide new public facilities and road improvements; community need to be evaluated with stakeholders and addressed in the SMPs;  Potential employment opportunities during planning, construction, and final development and implications for future  Assessment of population and demographics need to consider the schools and training centres and operation of those centres; likely direct and indirect social and community impacts of land use change, including impacts on schools; nursing homes; medical facilities; emergency services and policing requirements; transport 41 SAMOA – CITY DEVELOPMENT STRATEGY  Traffic impacts on the road network from increased demand, percentages of built up areas versus vacant areas about the City. alternate access requirements, as well as increased through This work should note the very high average household size of 7.2 traffic to many areas; persons per dwelling (2011). The outcomes of this correlation work will be:  Noise and dust impacts on present residents during construction phases; o The confirmation of population dynamics by Village Council area;  Direct increase in economic activity due to building work, new commerce and increased demand for industrial and support o The differentiation of ‘built up’ areas of villages versus vacant services as well as health and other community services; rural areas – so that land supply databases can be developed.  How access and mobility for all within the community (especially people with disability) is to be accommodated in urban design – 7) During the roll-out of SMPs undertake social assessments highlighting e.g. wheelchair access, ramps, wider footpaths etc. population and demographic patterns and needs consistent with section 6.4.

6.5 Recommended Actions - Social PUMA shall instigate the following prior to and during the production of 6.6 Cultural Heritage SMPs: Cultural history, folklore, assets and places are important matters for future planning. There is a need to understand the implications of cultural heritage assets on affecting future urban structure and land 1) Correlate population statistics and demographics at the SMP and uses. Cultural heritage sites, areas, places and practices should be villages levels with the update of the land use, buildings and protected and celebrated via the SMPs(or subsequent planning tools) structures GIS database as recommended in section 5.6 Land Use. as an important feature of local identity and sense of place. 2) Use the updated land use and buildings database to determine accurately population densities and numbers of people within Figure 18provides a preliminary map of key known cultural heritage various risk categories by village; places, buildings and monuments within Apia. Further investigation of places and practices of cultural and historic heritage significance 3) Commence Population Profiles for nominated priority SMP areas and should be undertaken as part of the SMP process. villages consistent with section 6.3 to assist with SMP generation. 4) With the engagement of communities during the generation of SMPs Additionally it is also important for PUMA to gain a better understanding correlate statistics’ enumeration boundaries with validated Village from stakeholders of the location of traditional village areas within each Council boundaries; of the village fono boundaries. For many of the urban villages there is a mix of modern development and traditional ‘fale’ areas within the one 5) Using the input of the village communities’ match confirmed Village village. There is little mapping of these important areas at this time and it Council boundaries with the District boundaries to assist with future is unlikely that this information can be distilled at the City widescale. It governance options. should be targeted as part of subsequent and follow-on SMP 6) Correlate village boundaries, statistical data, land parcel areas, generation. There is an important link to urban design matters covered nominated urban preferred use areas, built up areas map layer, in Section 11. dwellings/buildings – to confirm populations, densities and 42 SAMOA – CITY DEVELOPMENT STRATEGY

6.7 Recommended Actions - Culture The community engagement preceding and during the roll out of the SMPs should strive to address the following in terms of cultural heritage management: 1) Work with the village communities to differentiate between traditional village areas of cultural significance (uses and physical form) within each of the Village fono boundary areas. 2) Where there is a mix of modern development and traditional ‘fale’ areas within villages use community engagement to confirm options of enabling future development as nominated by the participants and protecting culturally significant traditional areas. 43 SAMOA – CITY DEVELOPMENT STRATEGY Figure 18: Key Cultural and Historic Heritage Places Figure 18 Cultural Heritage Sites and Places (Interim) 44 SAMOA – CITY DEVELOPMENT STRATEGY Approximately 80% of the country’s 403km coastline has been classed 7. Environment and Natural Features as either ‘sensitive’ or highly sensitive to coastal erosion, flooding or landslip. Much of this has been as a result of the degradation pressures that continue. Apia is located within a unique setting on the island of Upolu. Approximately 40% of Upolu is comprised on steep slopes related to the The mapping for the CDS of environmentally sensitive areas has relied volcanic geological formation of the country. The peaks rise to about on existing information. Much more work on ecological classification is 1000m in Upolu along a central island ridgeline. It is this ridgeline that needed especially as regards to urban ecology and aquatic ecology. provides the backdrop to Apia. The coastal plains of the City have Thefollowing key matters need to be addressed through the role out of historically accommodated urban development, however over the last SMPs, or as strategic separate City wide assessments: 15 years there is a tendency to see urban drift through the mid-slopes and up into the elevated steep areas. - Flora and Fauna: Identify any existing and potential fauna & habitat areas/zones within the City. What are the flora and In terms of ecology and habitats there a 5 major common vegetation fauna features of the particular areas? Are there any areas types present in Samoa’s terrestrial ecosystem: littoral vegetation, where flora and fauna should be conserved / protected? What swamp and herbaceous marsh, rainforest, volcanic vegetation and is the overall biodiversity quality of the areas? Are there any sites secondary or disturbed forest. The lowland and upland rainforests, with that should be rehabilitated to improvebiodiversity? wetlands and mixed upland swamps – have slowly been reduced since - Waterways: Identify any waterways (natural springs, pools, the introduction of agriculture in the mid-1800s. Many forests were rivers, wetlands, waterholes etc.), as well as all drainage paths cleared for coconut and rubber plantations, and more lately for in the existing built up areas. In addition to locations the work intensive farms and logging. Cyclones since the 1990s have been needs to assess how they interact with or service the built attributed to further decline in the native vegetation cover. The decline environment and the capability for rehabilitation to assist with has been to the point where most of the forest cover in the mid to flood and water quality management. Are there any higher elevated steep slopes are degraded regrowth or are dominated contamination or pollution issues for waterways from urban by non-indigenous species. development? What quantity and quality controls can be used as part of the development layout and form? Upolu is surrounded by coral reefs, sea grass beds, coastal marshlands and mangrove forests within the intertidal zones. While common to the - Groundwater: Groundwater systems are significant in terms of Pacific the marine environment in terms of biodiversity is not rich or potential to supply additional water resources in times of need. diverse. However isolation has led to high levels of species endemism, It will also be important that development does not lead to leaving an ecological fragile marine environment – with many species longer term impacts on the groundwater resources. The having limited defensive mechanisms to ward against invasive species. location of present and future groundwater extraction points, About Apia there has been much modification of the coastal hydro-geological features and implications from urban environment over many years, from reclamation, to blowing channels development need to be characterized. through the coral reefs to filling mangroves and developing over - Landscape Values: What are the key landscape features and coastal plain waterways. topographic features of the study area i.e. views to ranges / high points, key views through and about the village. Identify 45 SAMOA – CITY DEVELOPMENT STRATEGY any key view lines i.e. to landmarks, natural features etc. that catchments from uncontrolled subdivisions; degraded wetlands; and can be advanced through layout and built form assisted by the reclamation of mangroves and pollution of the coastal interface suitable landscaping. area. From these analyses, PUMAwould be in a better position to determine Other concerns identified were: the general encroachment of how to protect natural features, or rehabilitate landscapes etc. Future unregulated development on higher and steeper slopes of Mt. Vaea land use planning via the SMPs needs to determine where and how and associated hillslopes; the erosion and localised flooding this developmentshould be restricted due to natural features: to enhance causes; declining water quality of the waterways, the receiving bay overall ecological systems; improve amenity and facilitate better and harbour, and solid waste management. The feedback suggested stormwater and flood management – to reduce climate change as that more needed to be done at the strategic level as well as during well as disaster risks. development consent processes to control development and protect natural urban assets.

7.1 Sensitive Ecological Areas Existing literature and mapping data was used to depict the In terms of increasing resilience to climate change, maintenance of the ecologically sensitive areas about the City of Apia. While this reflects quality of catchments, waterways and land cover is essential. Healthy biodiversity values in a regional context, there are extensive gaps with ecosystems increase coping capacity, and enable quick rebound after regard to urban ecology and aquatic systems within the urban areas. disasters. Major changes to land cover of catchments will exacerbate Such information would be invaluable to assist with the identification of flooding of mid to lower slopes. Clearance of mangroves and wetlands viable local and regional corridors and possible habitat for threatened reduces the resilience of the coastlines and inhibits species biodiversity. regeneration and survival after disasters. Waterways are the conduits of stormwater and runoff from urbanized and hardened surfaces. They The wetlands and mangroves of the MoataaBay area are significant are also the conduits of the pollution to the coastal environs. Healthy assets that need to be protectedand enhanced. Wetlands and waterways can provide healthy landscaped features for social mangroves such as these and those about the Vaiusu Bay can assist cohesion and accommodate open space spines which can include with stripping pollutions from water run-off and can buffer against the recreation facilities and bike paths and walk paths. thermal stresses upon reefs from ocean warming and acidification. Agreed definition of urban waterways especially within the coastal 7.2 Recommended Actions - Environment plain urban areas is a major shortcoming for planning for the future. There are a number of priority needs for future planning to assist with Ecologically healthy waterways provide the linkages between the ecosystem based adaptation and to buffer against disasters. The ridges to the reefs. Re-defining urban waterways can provide sufficient following actions need to be addressed either prior to or during the roll areas for measures to improve run-off water quality; to reduce water out of the SMPs: quantity and velocity during floods and to provide the social linkages between urban villages (i.e. through pathways ana bike-paths co- 1) Filling of mangroves, wetlands, waterways and drainage-ways located along waterway corridors. continues over the coastal plains of the City. Community education is needed to address these issues and relate the implications to The majority of comments received during consultations were focused catchment and flood management. The wetlands and mangroves on the ecosystem degradation, including: primarily in the upper 46 SAMOA – CITY DEVELOPMENT STRATEGY of Moataa Bay and Vaiusu Bay are of significance and should be the priority for rehabilitation and protection; 2) Ecological assessments and classification of urban ecology and aquatic ecology within the City shall be prioritized. As an initial important step the engagement of village communities through the SMP production should: - Identify habitat areas/zones within the City; - Identify any waterways (natural springs, pools, rivers, wetlands, waterholes etc.), as well as all drainage paths in the existing built up areas; - Agree on which waterways and drainage-ways (urban waterways) need to be protected and free of development. This will entail communities identifying the setbacks of development from waterways/drainage-ways (flood assessments/modelling will dictate a required setback from the major waterways); 3) Once waterways and drainage-ways are identified by the community the Waterways mapping layer shall be updated in the GIS; 4) The Water Resources Division of MNRE with the Samoa Water Authority shall assist by reviewing the Structure Plan and identifying implications for groundwater protection. This should commence with the locating of all present and future groundwater extraction points, hydro-geological features and determination of needs as regards suitable setback buffers between urban development and groundwater priority areas. 47 SAMOA – CITY DEVELOPMENT STRATEGY Figure 19: Sensitive Ecological Areas Figure 19 Sensitive Ecological Areas Reef Systems 1111 Coastal Borrler Reef Complex fringing of coastal barrier complex 48 SAMOA – CITY DEVELOPMENT STRATEGY Figure 20: CIMS, 2005, showing Coastal Flood Hazards

7.3 Water Resources Apia Hazard Zones (Draft) t:=1 - - ~ ~~~tdZONI There is much synergy between the water resources and the land c:::::J Conial Flood ttamnt Zone resources’considerations for the City, especially as regards ‘ridge to ~ Al... ~-IOf',Nfllooditlg reef’ processes. The review of work on waterways, local flooding, coastal inundation and drainage follows the landscape approach of integrated water resource management principles established by the Global Water Initiative (among others). In terms of stormwater, hydrology, local flooding and drainage assessments the Coastal Infrastructure Management Strategy work of 2001 and 2005 remains the only reference work that covered flooding and inundation hazards for the whole City area. The CIMS nominated coastal flooding; coastal erosion and landslip hazards along the u coasts of Upolu (see Figure 20 below). 0 5 The recent modelling of the Vaisigano Catchment by Water kilometres Technology Pty Ltd (Watertech) represents the most advanced work for the City. It included the determination of the 1:20, 1:50 and 1:100 Figure 21: Water Technology Flooding & Inundation – present scenario flooding and coastal inundation levels for the lower catchment. The work accounted for terrestrial run-off and coastal processes jointly incorporating climate change scenarios (e.g. 1 in 100 river + 1 in 20 coastal inundation; 1 in 20 river + 1 in 100 coastal inundation). Figure 21shows the current flooding and inundation areas under the present climate scenario. Figure 22shows the inundation areas based on the climate scenarios for 2100. The red areasare the high volume, high velocity and high depth areas representing the extremely high hazard flood and inundation areas (critical hazard areas). The orange, yellow, green then blue represent the high, medium, low and very low hazard areas. Figure 23 shows the 1 in 100 Annual Exceedance Probability (AEP) levels for the lower catchment with nominated floor levels (above sea levels - ASL) for future dwellings/buildings (floor levels related to flood depths). Such information is a powerful contribution to land use planning. 49 SAMOA – CITY DEVELOPMENT STRATEGY The work by Water Technology for the MNRE onlycovered the lower Figure 22: Water Technology Flooding & Inundation – 2100 Scenario Vaisigano Catchment, as part of pilot work and training. It therefore has limited utility in determining flooding and inundation risks for climate change and disastersfor the rest of the City. Kellogg Brown Root (Engineering Consulting firm) undertook flood modelling work for parts of the City in 2006, although the original modelling and reporting source is unknown. Another reference was work done for the EU and SOPAC, by HR Wallingford (UK) also in 2006. However these flood assessments were again only for part of the City. There was close association between the results of the CIMS and Water Technology’s modelling for the lower Vaisiganocatchment which incorporated coastal inundation in extreme events. The work also uncovered GIS layers of 1 in 100 year flood zones for the whole City dated about 2005. However the authorship could not be determined. Cross correlation between this mapping with that completed by Water Technology Pty Ltd again shows some synergy, to the point it was agreed that it represented the best available data on terrestrial flooding for the balance of the City. It has been combined with Watertech’s outputs as the surrogate flooding and inundation layer in the Combined Risks and Constraints database in Figure 23: 1 in 100 AEP - Floor levels related to Flood Depths the GIS. In terms of other disaster risk assessments there was separate work completed by the Australian Bureau of Meteorology and CSIRO on coastal inundation and wave run-up near the Mulinu’u Peninsula. Data was not made available on this work. GNS Science also completed tsunami modeling for the Disaster Management Office (DMO) to assist with evacuation planning (‘Inundation Modelling and Evacuation Mapping Report for Samoa’, 2011). While reports were available, GIS based data is progressing. All GIS layers and related databases on inundation hazards (i.e. terrestrial flooding, storm surge, wave run-up and tsunami modelling) are either not fully available or there are synergy issues with the data sources due to the various modelling tools used. 50 SAMOA – CITY DEVELOPMENT STRATEGY The relatively low quality and low-resolution of topography data had The barriers to integrated modelling and classification of hazards will limited integrated flooding and coastal inundation modelling and be assisted by: vulnerability assessments in the past.  the receipt of the high-definition LiDAR bases; Poor base data inhibits the required level of modelling to accurately  the updating of the land use maps and databases demonstrate (in a consistent form) the levels of flooding and  the updating of the buildings and structures layers; inundation hazard about the City. The current information available in GIS form is either patchy (covers only parts of the City), or nominates  the completion of population and demographic profiles only broad areas of hazard (i.e. does not classify the levels of hazard based on improved land use and building layers; and, based on universally accepted criteria). Where there are nominal  The extension by the Water Resources Division of the flood and classes, these do not enable merging of hazard classes (e.g. Q100 inundation modelling carried out by Watertech – to the catchment mapping does not include sub-classes which would remaining catchments covering the City. enable synergy with coastal inundation hazard mapping). As such there is no universally consistent and accepted classification of flooding and inundation hazards for the whole City. 7.4 Recommended Actions – Water Resources The work on the CDS was able to be aligned with that of the NIWA Flooding, inundation and the implications of sea level rise are critical team completing the project, ‘Strengthening Disaster and Climate matters in the determination of the levels of hazards for the future Resilience in Urban Development in the Pacific’ funded through the development of the City. The recommended actions below are ADB with support by MNRE. This project aims to promote the use of therefore extensive. available data, tools and information, including datadeveloped under the Pacific Catastrophic Risk Assessment and Financing For subsequent SMPs the following work shall be completed. In some Initiative(PCRAFI), to effectively address climate change and natural parts of the City this is best undertaken on a catchment basis rather disaster risks in urban planning. than individual SMP area basis. Apia, Samoa has been chosen as one of six (6) potential country case studies centred ondeveloping and demonstrating suitable risk Hydrologic Investigations reduction approaches for urban development planning. As one of  The LiDAR bases shall be registered and used via GIS to the preliminary exercises the aim was to merge hazard classifications improve the topographic and coastal bases for modelling; based on existing data sources (the nominated gap to land use planning mooted above). This would assist future land use planning by  initial mapping shall define the extent of external catchments taking the general merging of hazard assessments completed for the impacting on the urban development areas; CDS to a more finer grained level suitable for use in the generation of  Modelling and vulnerability assessments similar to that SMPs. completed for the Vaisigano catchment will be undertaken With the agreement to merge and use the terrestrial flood mapping for the remaining catchments covering the City. This work data (2005) and outputs from Watertech’sVaisigano modelling shall nominate the 200, 100, 50 and 20 year annual sufficient characterization of hazards was achievable to suit the City exceedance probability (AEP) levels for the catchments wide land use planning for the CDS. combined with the coastal inundation hazard levels. This shall be completed for the present scenario and IPCC 2100 51 SAMOA – CITY DEVELOPMENT STRATEGY projections. It will utilize the enhanced catchment drainage ways to reduce hazards and risks in the lower flood information (i.e. LiDAR. Land use and landcover); prone areas of the City;  Modelling outcomes are to assist in defining suitable Groundwater waterways buffers, based on quantity, velocity and depth outcomes of the modelling;  Groundwater resource assessments should be undertaken for the western catchments of the City to determine their status in  Quantity, velocity and depth outcomes of the modelling shall terms of quality, yield potential and potential threats based on be used to nominate future floor levels of buildings to assist prospect land use changes. This work should be guided by the with reducing risk over time; NSW ‘Guidelines for the Assessment and Management of Groundwater Contamination’ (200) 7 or similar internationally Water Sensitive Urban Design (WSUD) accepted guidelines and generic requirements forEnvironmental Impact Statements under the PUM Act, 2004; (Integrated water quantity and quality control devices)  The review of groundwater resources is to cover: estimates of  The hydrologic modelling will be used to address integrated aquifer capacity, numbers and location of bores, catchment management, and conceptualise the form and groundwater recharge points and rates, potential impacts of location of catchment based water quantity and quality development, main water users and their uptake volumes; measures for the upper catchments and mid-slopes of the City;  The work should highlight the specific land uses and activities  These WSUD measures will aim to reduce present flooding which pose the most significant threats to groundwater conditions at the source, and lower mid-slopes to minimize resources and infrastructure. It shall confirm suitable buffers for velocities and depths before water flows to the lower flood a range of land use types and categories; prone areas of the coastal plains.  The work shall identify the areas that should be protected from  The substantial catchment based WSUD measures shall be land use change to protect potential future groundwater costed and incorporated into Government Sector Plans and resource extraction. These areas will be included in the programming for implementation. catchment protection areas;  The outcomes of the WSUD modelling and assessments will assist the Division of Water Resources (MNRE) confirm  In areas where existing groundwater resources exist a network catchment protection areas. of observation points to satisfactorily monitor groundwater resources shall be recommended;  Catchment strategies for the catchment protection areas should identify the best location for water retention and control facilities elsewhere in the catchments to address hydrological changes from changes to land use;  The work shall also determine the best location, form and 7 The NSW guidelines are the most comprehensive and used in a number of states across sizes of appropriate Water Sensitive Urban Design (WSUD) Australia. They cover for a range of geo-climes in NSW from dry desert through to tropical measures and devices along urban waterways and areas of northern NSW. 52 SAMOA – CITY DEVELOPMENT STRATEGY Figure 24: Composite Flooding and Inundation Hazard Map Figure 24 Composite Flood & Inundation Hazards Waterway high hazard flood buffer - - (lnlerim) - Coastal flooding High Hazard Catchment flooding Area (Interim) Samoa Water Authority SUSTAI ABLE DEVE LOPME T 53 SAMOA – CITY DEVELOPMENT STRATEGY Figure 25: Slope classifications

7.5 Land Resources Land resource capability analysis was completed at the Apia Slopes ...-- .., ---, reconnaissance level using available information. This mapping was •• . .., 20 originally completed for rural and agricultural development processes. In subsequent reviews of the CDS, when better information is availed, assessments should consider the following: the geomorphology of the region; the base geology; soil landscape units; soil series mapping with land degradation characterization (including stability, erosion and sedimentation). Soil characteristics are be important to correlate the relationships with ecological units, area water hydrology and landscape conditions for future land use allocation. It is also important information to support the determination of the suitability of the soils for various agricultural, agro-forestry, effluent re-use and open space provision. More specific land resource capability/suitability assessments at the subsequent SMP stages will also be useful to evaluate options for stormwater harvesting and specific re- 0 use options, especially for treated or partially treated effluent. Figure 26: Land Elevation Levels Basic land related data does exist in GIS form however this needs to be enhanced so that it is multi useable for urban development planning purposes. Landslip risk assessments have been completed but the work was limited to the coastal zones for the CIM Plans in 2001 and 2005. Lack of landslip and land capability analysis for the non-coastal areas is a .... .. _c,,,, ■- •■ - 501) major shortcoming for urban and rural development planning. In light of the gaps in land resources information, there is sufficient data for ..• •. • • JOO 200 surrogates for land stability and basic landscape analysis to be applied. Figure 25 shows the slope classification for the CDS area in percentages. -..... This was generated using QGIS and imported to the CDS database (based on MapInfo GIS software). Slope classes can be used to define areas susceptible to hazard (landslip, erosion etc.). 54 SAMOA – CITY DEVELOPMENT STRATEGY Urban land capability hazard classes are principally a reflection of For subsequent more detailed SMPs, the work should involve: geotechnical stability and erosion risks based on modeling using the  Mapping prominent view-sheds (spatially); Revised Universal Soil Loss Equation (RUSLE). The aggregation of soil characteristics (physical and chemical) will be important for the urban  Identifying the visual elements of the landscape; capability assessments. Outputs based on RUSLE modelling can be  Describing the visual landscape context and character; useful in establishing relationships between land resources, ecological  Undertaking a very broad ‘scenic quality assessment’ (SQA) to units, hydro-geology, fluvial and landscape conditions. These determine areas/places where layout, form and type of relationships are useful for evaluating future land use allocation options. development should be consistent with community visions.

7.6 Recommended Actions – Land Resources The SQA process is based on the United States Bureau of Land The following actions shall be commenced prior to the roll out of the Management’s Visual Resource Management (VRM) system. It involves SMPs in regards to land resources: inventorying scenic values and establishing management objectives for those values through management planning process. Proposed uses are 1) The Land Resources mapping database shall be enhanced to then evaluated to determine whether they conform to the enable its use for urban land capability assessments. The database management objectives i.e. retention of view-sheds, screening, etc. The should be sufficient to evaluate and map physical constraints to scenic quality assessment for each ‘city management unit’ should focus urban development, such as: areas susceptible to landslip and soil on: erosion, local waterlogging, rockiness, fertility and depth to rock etc.  Landform; 2) The urban fringe areas and rural lands about the City shall be  Vegetation ; classified into broad classes of urban capability. The mapping will be  Key road and access corridors ; underpinned by soil mapping using available tabular information on  Colourand shape of built form; soils, LiDAR bases, remote sensing and aerial photo interpretation.  Influence of adjacent scenery ;  Cultural modifications (e.g. Transmission lines, water

7.7 Landscape pumps/pipes) Work with stakeholders considered the broad landscape and scenic quality of the backdrop to the City. While not a significant parameter in 7.8 Recommended Action - Landscape terms of identifying quantifiable constraints for development – For each of the city management units scenic quality assessments (SQA) landscape analysis has a useful purpose. shall be undertaken by PUMA to confirm the landscape units that should It provides a data layer on significant landscape features – that should be protected from urban intrusion. be retained in future development scenarios. It can be used to save unique landscapes where other forms of constraints do not prevail. For the CDS the depiction of elevation as shown on Figure 26 enabled the identification of the key landscape features. The prominent blue, brown and dark red-brown shading – indicates the landscape units that should trigger specific controls as regards visual impact. 55 SAMOA – CITY DEVELOPMENT STRATEGY assessments may be required during the development consent process. 8. Hazards & Vulnerability This should be tackled at the SMP generation stage. Finer grained validation of the Land Use plan generated for the CDS, through village In addition to climate change and natural disaster hazards and risks based field surveys, will realize additional areas for nomination as there are a number of other hazards and associated risks that need to potential contamination areas. This information can be added to the be considered in City planning. Combined Risks and Constraints GIS Database for on-going use in SMPgeneration and in the development consent processes.

8.1 Geotechnical Hazards Limited information was made available on geotechnical hazards such Potential contamination over the areas may have resulted from past as landslip mapping and reporting.Such information does exist in the activities associated with rural, emergency, fuel storage or community form of brief coastal mapping for the CIM Plans 2001 and 2005. land use. Vagrant activities such as waste dumping – could also lead tocontaminants affecting the status of land. There may be a number of An appraisal of geotechnical and contamination hazards for the whole other sources including: City was not required for this strategic planning work. In the future  imported fill used to raise or form site levels; geotechnical constraints and risks can be incorporated as part of land  potential landfilling using waste materials; resources assessments. Contamination assessments can be informed  application of pesticide chemicals; through data collected during the SMP roll out programme. Despite  on-site storage of chemicals; shortcomings in data availability the work on slopes and elevation has  contamination resulting from the effluent disposal ponds; been used as a surrogate to rule out steeper unstable land from future  movement of contaminated groundwater beneath the site; urban development. Follow-up work at the City scale after the  asbestos in demolition and construction waste materials, soil or completion of the finer grained mapping for the SMPs can be used to sediments. consider land capability and suitable for various uses based on physical Preliminary assessments for SMPs can include a review of databases, and chemical soil conditions and base geology. review of historical information and site walkover inspection. The review

8.2 Contamination Hazards can be undertaken for each land management or SMParea. This work will normally be done simultaneously with the Land Resources In order to determine the potential for land contamination as an assessments in order to gain time and cost efficiencies. Potential environmental constraintto urban development, usually a preliminary contamination is also considered on a site-by-site basis in the contamination assessment is conducted. This will include an appraisal of development consent process. the potential for site contamination that may have resulted from past and present land uses. However as such assessments could require multiple soil and water assessments, not all land in the City can be 8.3 Extractive and Mineral Resources assessed. Understanding where dirty or hazardous uses and activities are The status of extractive and mineral resource development can bring being carried out is useful in highlighting prospect areas of negatives and positives to the table. Development of quarries in the contamination. surrounding rural areas west of Vailima can affect land use pressures within the CDS area. Validating further the land uses and activities at the village level is essential in flagging prospect contamination areas where further 56 SAMOA – CITY DEVELOPMENT STRATEGY Little information was availed on the location of present quarries or mineral resource extraction sites. This can be addressed during the Land Use Plan validation follow-up work.

8.4 Land use Hazards and Buffers Certain land uses require minimum safety, health or amenity setbacks to protect people or to protect assets from inadvertent damage.Annex 6 includes land use allocation objectives and criteria (performance and quantitative criteria). Among other matters it nominates suitable buffer areas for certain land uses, activities and facilities. Figure 27 shows the known hazard areas about the City, some showing the buffers that may need to be enforced in the future.

8.5 Recommended Actions – Resource Hazards The following actions shall be pursued to correspond with the SMP roll out programme: 1) Land resource assessments (see section 7.4) shall distinguish geotechnical hazards and areas subject to landslip as well as areas susceptible to erosion; 2) The Land use validation surveys and update of mapping in the GIS shall identify areas where past uses may have led to contamination. These areas shall be added to the Combined Risks and Constraints database; 3) Areas of potential extractive resources such as minerals or quarry materials shall be mapped. This information shall be used to consider the likely impact on urban systems such as road access to facilitate extraction; 4) The land use mapping survey work shall identify dangerous uses and activities within the urban area where setbacks and safety buffers should be employed in the future (Annex 6 can be used to determine suitable buffers for various land use categories). 57 SAMOA – CITY DEVELOPMENT STRATEGY Figure 27: Indicative Land Use Hazard Buffers Hazardous Facilities (with buffers in metres) • Airstrip (500m buffer from ends, 50m from sides) • Fuel Storage (200m buffer) • Land fill (500m buffer) • Power plant (500m buffer) Sewage Treatment Works (500m buffer) Shooting Range (500m buffer) • Telecom Tower (100m buffer) 58 SAMOA – CITY DEVELOPMENT STRATEGY land uses or development themes, e.g. setback buffers for hazardous 9. Risks, Constraints and Opportunities land uses. Theyare provided for reference for future SMP production and zoning plans or more detailed preferred use plans if this is the choice of the village communities require this.

9.1 Overall Risks and Constraints Having evaluated the biophysical, socio-cultural and economic The results of the technical data reviews, the synergy and cross-sectoral considerations and mapping (sections 4-8) were synthesized to develop patterns and constraints, the spatial overlay of each or multiple the overall risk and constraints database and associated maps. discipline outputs were manipulated to develop land use development footprint options. Some of these were discussed with the stakeholders The GIS based Combined Risks and Constraints overlay maps are during engagement events as the data enhancement and outputs extracts from the database generated as a ‘grid’ query based system. It progressed. Figure 28 was produced from stakeholder feedback regarding the urban drift into the elevated hill-scapes and the conflicts contains all the base GIS layers generated and used for the technical assessments and related mapping. It can be adapted and upgraded as between industrial development and existing residential areas. data is improved, enhanced or created. The gridded system (currently at 100m grids due to processing power of the IT used in its development) A series of clear constraints and opportunities emerged from the can be refined over time as finer grained data layers are produce (e.g. technical assessments, the socio-economic profiling and economic LiDAR layers, SMP mapping). The MapInfo GIS system on which it was (land use) assessments. These constraints and opportunities were used togenerate strategic land use planning options, consider multiple risks to created enables more refined grid cells introduction over part of the City i.e. greater detail grid cells can be introduced within the broader cementrecommendations for the Structure Plan. cells. This has provided MNRE – PUMA with a powerful base to use in future strategic planning, as well as immediately in Development Figure 29 is derived from population and demographic analysis and Consent processes under Part V of the PUM, Act, 2004. environmental constraints (e.g. environmental areas, water supply limits, slope and geo-hazards) to identify extant and potential growth area For this CDS work at the strategic city-wide scale, the synthesis of options for the City. The ‘established central Apia area’ shows areas with individual constraints mapping was assisted by GIS work. Evaluations high population densities and a high proportion of built up area, derived were broadly based on spatial connectivity and identification of from the population and demographics database. The ‘established conflicting matters that required trade-offs. This approach is effective in residential areas’ are those that have shown medium to high population multi-scaled and multi-disciplined assessments at a landscape scale, growth, but are still at low to medium density with lower proportion of and allows for analysis of the outcomes in relation to the management and built up area as a percentage of the total areas of the village. of the land for sustainable development. ‘Current growth areas’ are villages currently experiencing high population growth and increased intensity of development.

9.2 From Constraints to Opportunities For the subsequent SMPS, at a technical level, each disciplinary The synthesis of constraints from individual theme or sectors, against assessment will reveal both ‘constrained’ areas where risks for urban principles, objectives and targets (criteria) for land use allocation can development are high and corresponding opportunity areas that are reveal Opportunities for urban development. Annex 6 was compiled as not constrained. Where constraints are relative – risks can be reduced a reference of possible land use allocation objectives based on various through the application of certain design inputs (e.g. ground floors in land use categories. It also contains specific criteria for certain types of flood prone areas being used as car parking). 59 SAMOA – CITY DEVELOPMENT STRATEGY Figure 28: Development Options – Upper Areas and Commerce Figure 29: Development Potential –Growth Areas Figure 29 Development Potential - Growth Pressures l and Su s.c•ptlb4e lo f load!nv - l'ol•ntiol CID f:xt•mlon Cun'enl Gfowth A re-a• Ja l'o tenffal future Urban t:xtenllon C:J Customary Outer 1/IKoge A,eo, - :~~=~!.~~!:.~:7;;~~) - Urbon O.velapment Cut Off Un• ..........,..,, DlrecKon ot urbon development ~ growth pressure. -J l and le11 subject la risks and V d•velapment conslraln ts. X ~:~=;~~!!::::. . ~~~:,~nd 60 SAMOA – CITY DEVELOPMENT STRATEGY Best practice may dictate that residential development not occur on be incorporated within the database to enable a finer grained risk land with a slope greater than 20%. However the Village may accept suitability classification through GIS query functions. there will be demand for rural residential development (i.e. larger parcel development >2ha) in certain areas which may have a slope gradient Figure 31 below shows the composite key Risks and Constraints laid over of 23%. In this circumstance development standards made under the Land Use Plan. This output has been used also in the subsequent Section 46 (e) of the PUM Act, 2004 could be employed for example: to sections of the CDS. restrict the size of the building, the cut and fill used and/or require the application of comprehensive erosion and sediment control measures.

9.3 Use of Constraints Databases for SMPs At a higher level of detail during subsequent SMP generation, the base maps and multi-layers of data now contained with the GIS database at PUMA can be produced at Village scale. A series of plans can be prepared illustrating individual constraints or all the constraints and opportunities 8 .These can be used to inform the Village community members of the land use and planning options to highlight optimum land uses, socio-cultural and livelihood opportunities that suit the specific village area/s. The various plans can be annotated with notes describing the constraints and opportunities e.g. interface issue between residential and industrial land uses, buffer requirements etc. The work can also include the outcomes of the statutory planning, development and environmental instrument reviews for the particular areas of the City. Figure 30 shows an extract from the Combined Risks and Constraints GIS gridded database – now housed in PUMA. Note that the pixel sizes represent 100metre x 100metre cells due to the processing power of the IT at the time of production. GIS Multi-layer inputs are at a finer scale. As Figure 30: Extract from the Combined Risks and Constraints database mentioned in section 7.2 further work is needed on refining a joint classification system of inundation risks covering terrestrial flooding, coastal inundation and storm surge. This new classification system can 8 NB: the ‘opportunities’ from the CDS work to date is at a very broad scale, given the high strategic level of land use planning, i.e. City wide level. 61 SAMOA – CITY DEVELOPMENT STRATEGY Figure 31: Combined Risks and Constraints over Land Use (2014) Figure 31 Combined Risks and Constraints . . . land above 30 percent Slope 11111 Coastal flooding High Hazotd m:::J Catchment flooding Are-a (Interim) Waterway High HozOfd Aood Buffer - - (Interim) •- ...... Urban Development Cut-off Une lturollond Open Space ,ublk:/Communlty 62 SAMOA – CITY DEVELOPMENT STRATEGY not usually be swayed by individual events and can also be the sectors 10 Economic Development that provide more consistent and long term employment opportunities. It is widely recognized that the urban centres of countries account for Coordinated urban development and structure, orderly development significant proportions of the national income, and that is said to be the (timing) and efficient supply of infrastructure and essential services can situation for Apia 9 .The following section provides commentary and assist in providing healthy physical settings for commerce and business. associated mapping about economic development parameters in It can also assist the construction and other industries sector by relation to the structure of the City, its components and interactions. reducing development costs (e.g. lowering transport costs) and Further specific studies in urban economics on the quantitative and through associated institutional changes reduce costs of approval. qualitative changes in theeconomy can be undertaken to support this These benefits in turn provide benefits for the broader community (e.g. section. higher quality living areas) with increasedlivelihood opportunities (e.g. decrease business costs can be conveyed to higher levels of The current enumeration of economic information is geared toward employment). macroeconomics in that Samoa Bureau of Statistics data regarding GDP is generated for national reporting. There are however some key The CDS through this part aims to assist with economic development messages that can be drawn by reviewing the quarterly GDP overview opportunity by guiding the location of land use so that economies of reporting (December, 2014 report is referred). The economy overall scale and market thresholds (locational criteria) can be better slowed since the corresponding 2013 period, which was mostly assisted achieved. It canvasses the need for better connectivity and transport by key events like the UN SIDS Meeting, 2013. The report signals that networks that are efficient and effective. It also incorporates sections there were declines in the construction, agriculture and other on land use (supply and demand) with reference to land use ‘supply’ manufacturing sectors, the public administration sector, and thefood criteria taken from best practice in the international arena. and beverage and accommodation and restaurants sectors. Many of these sectors would have received unusual spikes due to the This part also considers the economic investments required for effective preparatory and operational incomes from the SIDS Meeting in 2013. Of and efficient urban management through infrastructure and essential interest the transport, electricity and water, personal and other service provision. As urbanization has increased, the lack of a local services, Commerce and Business Services sectors showed healthy planning base has resulted in uncoordinated utility service and growths over most of 2014. Transport, electricity and water were known infrastructure provision, which can involve poor sequencing of to be positively assisted by reduced energy costs (e.g. power development, breakages caused among service providers and poor generation) and the introduction or increase in supply fees. However water management undermining existing services even during minor growth in the personal and other services sector andcommerce and rainfall events. As urban management budgets are limited, initiatives to business services sectors are positive. These are the sectors that would remediate the situations are often reactive and based on inadequate information. 9 The Samoa National Urban Policy states that Apia accounts for 75% of the national income, although the reference made “(GOS, 2003)” cannot be found. 63 SAMOA – CITY DEVELOPMENT STRATEGY

10.1 Land Supply & Demand needed to quantify the types of buildings, their use (i.e. commercial office, retail, services, industrial etc.) and age. So that there is better The purpose of the land supply and demand analysis in urban planning correlation with the recently availed hazards mapping, the field work is to determine the quantity of land that is being used (and will should also measure or record, floor levels, and note whether buildings continue to be needed), that which is currently available for are single or two storey (or above). Such data will also assist with newdevelopment, and those areas that may be available for future disaster risk analysis and response. needs. It gives the picture of the potential spatial needs of key development forms. It can also be used to identify timeframes for land A good residential land supply land bank will enable PUMA and others development (i.e. a land development programme). Against this to understand: demand analysis based on physical trends, population and economic development projections can be overlayed using demographics and  The quantity of land required to accommodate projected other metrics. residential needs of the community over a 20 – 30 year timeframe to provide appropriate housing diversity and choice There is inadequate physical data and microeconomic enumeration to to meet demographic needs and projected growth (this task provide a robust land supply and demand analysis. The advent of the needs to link with the socio-economic mapping/profiling); Land Use Plan, with an improved buildings GIS base, will provide the basis for this work through the SMP roll-out period.  Where new residential development is taking place or should take place taking into consideration: – road network capacity;

10.2 Residential Land Supply – water supply capacity; Many data sources, including the building locations, were dated and – sewerage disposal capacity; did not correlate with statistical information to enable robust analysis. – environmental constraints; However, through reliance on the population and demographic work – climate and disaster related hazards & risks describedin Section 6, it was demonstrated that while residential – potential regulatory requirements; densities were high in the central CBD areas, overall the urban living area densities for the City are very low to low. Even in the new  The demand for residential development based on patterns in Government land development areas of Vaitele and Vailele, the the broader Apia area. Reverting this to forecast demand for residential land supply capacity is reasonably highas the estates are housing for community members, and outlying communities. not yet fully developed. It is strongly recommended that future provision of urban residential It is recommended that PUMA with the Statistics Office work with MWTI development follow the Neighbourhood Planning principles that are on an update of the buildings data layer for the City so that follow up described in Annex 5. UN Habitat has much information on work can monitor the residential take up of land (the monitoring neighbourhood planning principles although much of these are systems for urban development land uptake are often referred to as geared toward the mega-cities of Asia http://unhabitat.org/wp- ‘land bank’ databases). content/uploads/2014/05/5-Principles_web.pdf. The new LiDAR remotely sensed data set can enable the update of building locations on GIS maps. Additional field survey work will be 64 SAMOA – CITY DEVELOPMENT STRATEGY

10.3 Rural Residential Land Supply o Areas can efficiently be serviced by social and physical infrastructure, at an acceptable and sustainable The term ‘rural residential’ refers to residences in rural settings often with community cost. larger than usual land parcels (e.g. greater than 5,000 sq. metres). They are not customary usehold settlement areas, but specific sub-divisions that cater for lifestyle house settings. 10.4 Commercial Land The Land Use Plans and Composite Risks and Constraints database and While the CDS concentrates on urban development within the City plans were used to review core land use areas or features of the City (see area the continued demand for rural residential dwellingscannot be Figure 32).The purpose essentially was to confirm the core land use dismissed. Simply this will be the land which is beyond the reasonable changes and features of the City where there had been emerging cut off level for urban development (higher elevated lands) or lands changes in land use. Identifying these areas can often determine the currently outside the built up areas which are above sensitive relationships between key centres - commerce versus industrial, residential environmental receptors such as significant waterways or deep ravines. versus community lands etc. Humans follow a natural pattern of living and working which has been the feature of urban centres for thousands of The acceptance of rural residential use would only be on land which year. To plan existing Cities the starting point is often to understand these had reasonable slopes and conditions that could accommodate large existing patterns and trends. Centres of commerce are usually the land parcel developments. There is a need to be cognizant of the prominent features, but over the last century other structural elements following: have also become significant such as open space and education nodes.  how much rural residential development is required within the The key choices in terms of city form to direct its ‘structure’ in simple region over a 20 year timeframe; terms is either one of:  whatdemand is there to provide appropriate housing diversity a) Radial development from a central node; and choice to meet housing needs having consideration of demographic and lifestyle trends in the locality; b) Multi-nodal (or polycentric) – consisting of multiple centres.  in what areas would new rural residential development be Modern city planning favours the later, as radial development often preferred: spawns urban sprawl and congestion. The multi-nodal structure of the o Land does not compromise the sustainable future use of city is determined by the location of key centres. existing natural and land resources, including productive agricultural land, water, mineral and energy resources; The Central Place Theory (CPT) was documented by German o It is not subject to social – cultural constraints such as geographer Walter Christallerin 1923. It was one of the first attempts to heritage assets, existing visual and environmental explain the spatial arrangement, size, and number of centres in urban qualities of the area areas. He determined it was possible to model the pattern of o It satisfies the need to protect environmental values: settlement locations and sizes based on geometry.Modern landscape, water quality, native vegetation, habitat concepts,some referred as the ‘hierarchy of centres’, have linked and biodiversity values; quantitative land use provision rates to different sizes of centres. This o Potential areas avoid predictable adverse enables the confirmation of the different class of centres but also environmental processes and effects, such as flooding, enables the review of the right population threshold that is needed to erosion, or bushfire; make the centre work. 65 SAMOA – CITY DEVELOPMENT STRATEGY Figure 32: Core Land Areas over existing Land Use Figure 32 Core land Areas over existing land Use - COMMERCIAL/ BUSINESS - INDUSTRIAL/ COMMElCIAL MIXED RESIDENTIAL [=::J eouCAIION c:::J HEALTH [:=J PUBLIC / COMMUNITY - CRITICAL FACILITY - OPEN SPACE - PUBLIC SPORTS GROUND - GOlfCOURSE - UHAN RESERVE - FORESTS & ECOLOGICAL AREAS AGRICULTURE OTHER (Akflelds elc} ~ HAZARDOUS FACILITY • Emerging Commerce Areas 66 SAMOA – CITY DEVELOPMENT STRATEGY The hierarchy of centres approach enables the identification of existing centres(following the ‘concentric ring model, Burgess, 1923). These or emerging centres. Their class within a hierarchical system is concentric rings in part also represent the economic thresholds of certain determinedby the range, size and intensity of uses and activities. For commercial centres/uses. Some however have anthropogenic origins. For Apia the land use mapping confirmed the known centres of the CBD instance the walking distance of a person generally to get basic food and the Vaitele Industrial area. However a few other key observations stuffsor to catch public transport is on average 400-500m. were made: Figures 33 to 35 show the outputs of the centres threshold analysis for key  the emergence of the hospital precinct, since redevelopment, as Centres, District centres and local neighbourhoodcentres. a major development precinct;  theLotopa area having land uses reflective of an emerging commercial centre; 10.5 Recommended Actions – Land Supply and  the north-west part the sports centre of Siusega emerging as a Structure prospect district centre; The following key actions are recommended:  usesimmediately east of the gaol and Tafaigatawaste disposal site showing signs of emerging industrial use and/or heavy 1) PUMA with the Statistics Office work with MWTI on an update of the industry; Buildings data layer for the City so that follow up work can monitor the residential take of land (as a ‘land bank’ system). New releases  The regional level education centres of the National University of of government land should be based on meeting certain take up Samoa and the University of the South Pacific as prime attractors levels (e.g. 70% of available new leases) to personal serviceand associated commercial uses. 2) That future provision of urban residential development follow the Determining the best location and likely size of industrial and commercial Neighbourhood Planning principles that are described in Annex 5 land to assistwith economic development (and enhance employment and through UN Habitat(see http://unhabitat.org/wp- generating uses in a locality) can be based on the use of common land content/uploads/2014/05/5-Principles_web.pdf). use planning criteria/metrics – that have roots in the ‘hierarchy of centres’ approach. The ‘distribution of centres’ also follows common metrics in 3) That the pursuit of a multi-nodal (or polycentric) city structure based terms of distance between the centres: on the planning for multiple centres be supported.  CBD’s will have a zone of influence (inner area) of 1-2 kms  District shopping areas will have a threshold of approximately a 1.5km radius, and  Local neighbourhood centres will have a threshold of 500m (radius). There are also relationships between the distances between the CBD and district centres. Using general criteria or metrics, mapping focussed on existing known centres and identified the likely location of intermediary 67 SAMOA – CITY DEVELOPMENT STRATEGY Figure 33: Core Centres distribution Figure 34: District Centres distribution Figure 35: Local (Neighbourhood) Centres distribution \ IC/c:0- H l l " I C ALPACtut" lll'S .. l!COl.00.C- Al A .• OlAS ,e uu,.,.e 68 SAMOA – CITY DEVELOPMENT STRATEGY opportunities throughout the City. Residents would not need to travel

10.6 Enhancing Livelihood Opportunities to the bigger central core commerce areas such as the Apia City CBD or Vaitele for goods and services, or employment. Keeping a higher Co-locating like land uses through a hierarchy of centres approach in percentage of job opportunities about the residential areas reduces the City of Apiacan have positive economic impacts in improving the travel to work time (amenity, lifestyle and emissions advantages), livelihood opportunities. Anumber of discrete centres reduces the volume of traffic on key transport routes that are within locatedthroughout the City can help with servicing, road and transport high hazard areas and keeps jobs close to the home of more people network planning, development and maintenance (reducing capital which strengthens the sense of place of localities and in time can lead and whole of life costs). It can also reduce greenhouse gas emissions to better community cohesion. by ensuring smoother traffic flow, less congestion and less fuel/kilometre consumption (also a saving for families). One key advantage of dispersed opportunities in goods and service provision and employment is stemming the concentration of Grouping or concentrating similar land uses together provides development along the coast, particularly the CBD which is within the advantages to businesses and local communities. The concentration of extreme to high hazard areas. This can assist in building in climate commercial activity can increase the demand for employment, change adaptation and disaster risk reduction. primarily by creating larger thresholds for the demand of goods and services. This benefit of co-location does not occur with scattered The following parts explain the hierarchy of centres, giving an development. As an example with the ad-hoc opening up of small explanation of the situation in the City of Apia. shops scattered about the City, small single purpose shops would dominate. These small shops are often staffed by the families that live in Urban Core Centres (Figure 33) the same building. Single trip essential shopping (i.e. small purchases) Urban core centres act as the focal point of the City, providing the would prevail as people drive or walk past. If shops are concentrated widest range of services, facilities, commercial, retail, and residential this would lead to a larger threshold of people visiting the locationfor uses – particularly at the higher order of scale and expense. At the core more extensive shopping and expenditure. There will be demand for centres there is the highest mix of uses and density of development, other goods and services such as commerce, retail, health and with the primary core area (often referred to as the Central Business personal service uses. District [CBD]) having the highest density and mix in the city and usually located with the most major transport nodes. Mutually beneficial uses such as food shops, service shops, hardware, restaurants, public service outlets, health services, financial services etc. Indicative primary and intermediate core centresare shown in Figure encouraged to locate in the same place can create demand or 33. These includethe CBD, the Vaitele industrial area and the emerging market thresholds for increased employment. People would travel area in Tafaigata. there not only for larger convenience food shopping, but would stay on for other professional and/or personal services and shopping. This Core centres often act as the key business and employment areas for demandcan attract more commerce for selling of goods and services, the City (sometimes referred to as employment nodes). A CBD central which then creates additional demand for employment. core for a small city will usually have a 1km radius of higher level business, office, personal services and retail uses. It is usual to also have A hierarchy of centres from core centres to district centres to outer CBD influence areas, sometimes referred to as the intermediate neighbourhood centres would support a spread of employment core and outer core centre (1.5km and 2km radius respectively). In 69 SAMOA – CITY DEVELOPMENT STRATEGY these areas are found scattered office developments, lower order Indicative district centresare shown in Figure 34. These include the commerce, large floor area retailing, city service trades uses and retail. Hospital Precinct, the Lotopa centre, theVailele area, the Suisega area, and the area west of theVaitele Industrial area. The intermediate core centres can be found within a1.5km radius of the primary core centre thresholds. . These concentric ring thresholds The level of investment in the hospital precinct has seen major land use have been used to nominate the likely future CBD bounds that are change in this locality with a range of higher density residential, service shown on the Structure Plan (see Section 11). trades, medically orientated professional services, shops, restaurants and personal service uses usually associated with a district centre. The Industrial centres like Vaitele which have a range of mixed uses but are subtle changes in a mix of land uses about the Lotopa Village area also primarily related to servicing industrial and service trades uses – can be reveals signals of a potential district level centre. Out near Siusega the classed as core centres. However these are not as high in order in terms development of the sporting and major playing fields near the new golf of mix, density and costs of land and services – and therefore are seen course, combined with the location of the essential emergency as intermediate core centres. The area between the new SBC Brewery services and new nearby commercial uses – has revealed this locality and the Tafaigatawaste disposal site is attracting a mix of heavy as a potential key district centre. With expansive areas of government industry, processing industry and other mixed commercial uses, some of land available for development and land use change, as well as which are often featured as large land uses usually located on the possible augmentation of arterial roads to service this area, the Siusega fringe of urban areas. This too could become an intermediate level centre has the potential to service the whole of west Apia. The centre core centre which could become a significant employment node. would also be free of significant hazards. However if the area is not planned, conflicting and disparate land uses may eventuate. With reference to the concentric ring mapping of district centres (see Core centres are located adjacent to arterial and key arterial roads for Figure 34) further opportunity areas for the siting of district level centres access and mobility. are possible outside of hazard constraint areas near Vailele and further west of Vaitele. For this later area the Samoa Land Corporation will District Centres (Figure 34) need to consider this likely core use in its programme for subdivision of District centres offer a range of commerce, retail and service trades government land. uses that are predominantly centred on medium to higher order shopping, medical and associated health as well as finance services. It Local Neighbourhood Centres is at district centres that professional service offices also appear outside The next level of centres is the neighbourhood centres which provide a of the CBD core centres. District centres offer a wider range of goods range of services and activities that meet the day to day needs of and services than local neighbourhood shopping centres, but not the nearby residents. They are usually located on collector or sub-arterial level of urban core areas. District centres are characterized by roads with good local access. Connectivity between neighbourhoods surrounding denser uses than say usual residential areas and service a is desired with the location of key off-road open space and networks collection of neighbourhoods. They are usually located close to sub- (e.g. paths, tracks and cycle paths) connecting centres with schools, arterial and arterial roads to enable appropriate levels of mobility. Land local playing fields and community spaces. use change patterns in Apia can distinguish areas that are likely to generate into District Centres. The local neighbourhood centres distribution is shown in Figure 35 over the District Centres. The concentric ring configuration was mapped by firstly identifying the location of existing retail areas scattered 70 SAMOA – CITY DEVELOPMENT STRATEGY throughout the City (it should be noted that a full land use survey may 2) That the hierarchy of centres cascade from the Core CDB, to Core reveal more local shops than currently shown on the 2014 Land Use Centres (non-core CBD), to District Centres, to local Neighbourhood map). Using the neighbourhood principle criteria (see Annex 5) the centres, distributed about the City based on well practice metrics concentric service thresholds of 500m radius was used to delineate the (concentric ring approach); location of likely centres. Locations where residential areas are poorly 3) That by following the hierarchy of centres the City provides serviced by shopping/retail uses are shown in a lighter colour. The area dispersed opportunities in goods and service provision and between Magiagi and Vailele is particularly poorly serviced, as it employment, with centres distributed as far as practicable away appears not to be serviced by either a Local or District Centre service from high to critical hazard areas; threshold. The west Vaitele area will also require better planned local centres to service the growing population, before the advent of the West Vailima District Centre. 10.8 Community Services Needs To support effective SMPs and development consent processes PUMA

10.7 Recommended Actions – Livelihoods & should undertake community services and infrastructure needs assessments. These can be completed through the engagement Centres required for SMP preparations, or may be best arranged for each of the The work on city centres for the CDS concentrates on the location city management units (see Section 13). The objective is to: parameters and relationships of and between centres as a key input to  determine the social infrastructure and service needs of the city structure planning. Given that there are some discrepancies with various communitiesover a 20 year timeframe; population statistics related to enumeration (growth since 2011 and  identify the levels of physical and social services that will shortfalls with household (building) details) demographic and land use provide an adequate level of community service having review will be necessary in time to determine the size criteria for the consideration of: various centres. Annex 6 provides general metrics from Australian and New Zealand references; however the suitability of these to the Samoa – the future demographic characteristics of the City; situation will need to be determined. Key choices will also need to be – future demographic characteristics of the population; made by the communities as regards the acceptance of district and – the projected population figures; local centres – and this will enable choices on the right size and make – the intended settlement patterns; up of centres. This feedback is best completed via the roll-out of SMPs. – cross-regional service provision; – opportunities for training within the community, and Given the current size and form of the city and noting key core land likely budgetary capacity. use changes and patterns the number of core and district centres as Standard land use planning criteria/metrics exist to determine the shown on Figures 33 and 34 should suffice for the city over the next 20 suitable level of community services and infrastructure for a particular years. number of residents in a given area. Indicativeland use allocation objectives and criteria are provided in Annex5and Annex 6. Supporting the work on livelihoods and centres the following is recommended: 1) That to support a multi-nodal city structure a hierarchy of centres be supported; 71 SAMOA – CITY DEVELOPMENT STRATEGY

10.9 Open Space & Recreation Plans can identify any proposed road projects or upgrades. Over time work can also assess the quality of the road condition PUMA can undertake an assessment of the open space and recreation / surface. Where possible, traffic modelling can be undertaken provided in each of the city management units or SMP area (see based on the preferred use concepts to determine future traffic Section 13). The aim of these assessments is to determine: volumes and capacities, with the nomination of any required - Type of open space: Identify the types of open space i.e., improvements to the road network. formal playing fields / sports grounds; informal green spaces; - Public Transport Network: While the intent was to document the sport complexes; parks and reserves; and, school grounds that public transport network including key bus routes and bus stops, are used by the public for playing games etc.; information was not available. Follow-up work with LTA can lead - Distribution of open space: The location of open space. Try to to maps and the characterization of public transport systems in establish any patterns in the distribution of open space, and and about Apia. This can identify current limits to the services, determine if there are areas that don’t appear to have enough with an assessment of the service frequency and need for open space for residents. Open space should be generally improved service coverage based on type of service. provided within easy walking distance of most houses. - Development Potential: Identify any sites that could be - Pedestrian Environment: The pedestrian environment was developed for new open space and recreation purposes to assessed based on field observations, to understand if it is easy serve the community. for people to walk in and around the City. There was a lack of comprehensive data to enable such evaluation. Future field Standard land use planning criteria/metrics exist to determine the work with LTA can identify issue areas including where there are suitable level of open space for a particular number of residents in a no footpaths, and problems with linkages and connections to given area. These are also provided in the Land Use allocation key services, retail, open space and schools. This assessment objectives and criteria within Annex 5 and Annex 6. can be done by walking around the study area during the SMP roll-out programme or tied to the further validation of the Land

10.10 Access & Movement Use Plan. Review of access and movement networks was based on the data At the SMP level traffic, parking and access requirements of existing and information supplied by the Land Transport Authority (LTA). An and potential uses of the land can be assessed in accordance with the evaluation of the present situation was undertaken on the access and AustRoadsand/or New Zealand Institute of Engineers best practices, movement networks, including: guidelines and requirements. Parking needed for various land use types - Road Network: Identification of the hierarchy of roads and trip rates can be checked against traffic management criteria. (distributor roads, arterial roads, collector, local roads), and Public transport requirements can also be assessed. assessment from available information the level of use and traffic volumes. While some data was available from counts, the 10.11 Road Hierarchy data was restricted to some arterials in part of the City. Follow- The confirmation of the present and desired future road hierarchy is up work can continue the road traffic counts on all major roads one of the key parameters for spatial land use analysis and structure about the City so that a road hierarchy can be confirmed. planning. As mentioned in Section 10.8 there is a lack of sufficient road Evaluation work using this data can also identify key problem count data to confirm the present land transport road hierarchy. Figure areas; any issues at intersections or need for improvements. 36 shows atypical hierarchy for road network systems. 72 SAMOA – CITY DEVELOPMENT STRATEGY A well-formed road hierarchy will reduce emissions, provide energy  efficient for more cost effective public services such as police, efficiencies and reduce overall impact of traffic by:- hospitals, emergency response, public transport etc.;  concentrating longer distance flow onto routes in less sensitive  decreases car dependency and increases support for public locations; transport.  ensuring land uses and activities that are incompatible with The road hierarchy principles will assist planning agencies with:- traffic flow are restricted from routes where traffic movement  orderly planning of heavy vehicle and dangerous goods routes; should predominate;  planning and provision of public transport routes;  preserving areas where through traffic is discouraged;  planning and provision of pedestrian and bicycle routes;  ensuring activities most closely related to frontage development, including social interaction and parking, can be  identifying the effects of development decisions in and on surrounding areas and roadways within the hierarchy; Figure 36: Concept of the Road Hierarchy  facilitates urban design principles such as accessibility, connectivity, efficiency, amenity and safety;  enables the assigning control over access onto traffic carrying roads to ensure safe and efficient operation for traffic;  enables the identification of treatments such as barriers, buffers and landscaping to preserve amenity for adjacent land uses.  accommodating the need for pedestrian access and movement by the more vulnerable in the community (i.e. physically and mentally impaired, elderly and youth) through better public transport provision, wheelchair accessibility (especially to public transport and car parking spaces) and crossings of major roads and intersections. Table 1, below shows potential classification criteria to determine a road hierarchy based on road counts and desired speed levels. Again this information is from Australian and New Zealand references and suitable criteria should be developed for Samoa.  given more space within precincts where environmental and access functions should predominate;  efficient land use provision slows down urban sprawl;  reduces infrastructure & essential service costs – especially after disasters; 73 SAMOA – CITY DEVELOPMENT STRATEGY Table 1: Road hierarchy classification criteria  the network incorporates an off-road movement system and Type of Volume Speed Notes riparian corridors – to accommodate bike paths and walking, Road establishing corridors for walking and to accommodate WSUD 1. Local <300 vpd <15km/hr Not needed for Strategic protection measures access Planning (small) 10.12 Public Transport Provision 2. Access 0-2000 vpd <40 km/hr Not needed for Strategic Planning for public transport provision also requires adequate land use, Planning population, building/occupancy data, so that thresholds can be 3. Collector 2000-3000 <50 km/hr Desired max volume in determined to satisfy various public transport options. Confirming the vpd ‘residential areas’; Within road hierarchy would also be a necessary input. Table 2 below 500x500m grids provides some guidance on criteria for public transport provision, 4. Trunk 3000-6000 Based on Not best for residential areas, based on UK examples. Collector vpd engineering but maybe mixed areas Table 2: Public Transport thresholds standard 5. Sub- 6000 – Based on Based on 1x1km grid, or Stop lnte,val Corridor v.idth Catchmettt per ,m eawwd ,., arterial 10,000 vpd engineering 500m-1km apart standard 200M 200M Arterial or <20,000 Based on Use 2x2m grid to overlay Main Road vpd engineering desired arterial pattern JOOM standard 600M 1.00 n ~ Compmoom (wwLf1f!wlwn.gov.uklr.torumen Figure 37 over shows the depiction of the available LTA data based on two-way traffic counts. The heavy concentration of traffic about the sports field area of Siusega gives an indication that these counts were taken about the time of the UN SIDS meeting.Figure 38 was generated based on field observations and local knowledge of road use. It was

10.13 Recommended Actions – Movement confirmed as being representative of the current informal road Networks hierarchy and used in subsequent planning analysis. The following key actions are recommended: Bearing in mind the road hierarchy system, demographics and the 1) That the Land Transport Authority (LTA) continues the road traffic expressed need to accommodate pedestrian/cycling systems in future counts on all major roads about the City so that a road hierarchy planning the Movement Network Plan was produced, as shown in can be confirmed; Figure 39. Two particular features of this plan are: 2) That the LTA confirm the desired road hierarchy classifications  the plotting of the East-West Corridor, which should double as the (including confirmation of desired terminology) aligning counts to Infrastructure Corridor for the City; and the hierarchy; 74 SAMOA – CITY DEVELOPMENT STRATEGY 3) That once the road counts are completed and a road hierarchy is confirmed, the Structure Plan be amended to suit and subsequent SMPs note the agreed hierarchy; 4) That PUMA work with LTA to undertake field work to identify issue areas including: where unsealed roads service residential areas, streets have no footpaths, and where there are problems with linkages and connections to key services (e.g. retail, open space and schools). This assessment can be done by walking around the study area during the SMP roll-out programme; 5) That once the road hierarchy is confirmed and statistical data is improved (assisted by the updated land use plan and building layers) PUMA work with the villages to determine the best routes for public transport to service village areas; 6) That as the main custodian of public lands associated with roadways the LTA confirm the location and use of the off-road network system, especially as regards the opportunities it provides in implementing WSUD measures to ensure uncontrolled flows of water do not damage LTA assets. 75 SAMOA – CITY DEVELOPMENT STRATEGY Figure 37: Indicative LTA Data from Traffic Counts Average Traffic Flows/Day Road Class Apia Road Network (one direction only) Minor road 10,000 to 14,300 Minor2 lane Major2 lane 8,000 to 10,000 Major4 lane 6,000 to 8,000 •• 4,000 to 6,000 2,000 to 4,000 Oto 2,000 -•• Average Traffic Flows/Day (both traffic directions) 10,000 to 14,300 8,000 to 10,000 6,000 to 8,000 ••• 4,000 to 6,000 2,000 to 4,000 Oto 2,000 Apia Project Area /,,, .., kilometres Tuae~ Fag(i Seesee t,- · Letogo 76 SAMOA – CITY DEVELOPMENT STRATEGY Figure 38: Present Road Hierarchy (Indicative) Figure 38 Present Road Hierarchy (Indicative) - COMMEJICIAL/ IUSINfSS AGltlCUltUIE - IN0U ST I.IAl/ COMMEI C IAL O THH (Alrflekl1 • I<=) ~ HAlAI0OUS PACILITY - Coastal HozOl'd tone Cote h ~ nt flooding Area c::::J VIiiage Boundary c::::J COS lour,dory - Eo1l •We1IComdor - • Anern ottv• Conk:IOI'/ l"orl Un k Figure 39: Recommended Movement Network – including Indicative road hierarchy Figure 39 Recommended Movement Network (Including Indicative road hierarchy) - COMMUClAL/aUSINUS - FORESTS & ECOLOGICAL AIEAS - INOUSTRIAL/COMMUCIAL AGRICU UUltE MIXED ltfSI0EN TIAL OTHH (Asffeld1 etc:) c::::J ~ HAl.UOOOS PACILITY - East -West COffldor - - AltemoflveC01Tldor/ l"ortUnk - - Arl.,lal/ Sub -ArterioJ = f u ture Art-,1,oi ~tenslotl 77 SAMOA – CITY DEVELOPMENT STRATEGY access to data sets to support the roll-out of SMPs. For each SMP area

10.14 Infrastructure & Essential Services PUMA will need to:- An engineering infrastructure and essential service high-level review,  Determine the current situation regarding services, capacities evaluation and assessment was undertaken.In general terms Samoans and gaps in infrastructure and essential services; are well serviced with infrastructure and essential services. Over 95% of the population has access to electricity, 97% have access to clean  Review the needs with regard to traffic and access; water and 98% have direct road access. 32.8% of power is generated  Identify likely future servicing needs based on possible land from hydro-electric power plants; however Samoa continues to uses/development options; depend on imported petroleum for much of its energy needs. The  Assist with the preparation of preliminary constraints plans to intent is to switch from reliance on fossil duels to renewable energy identify the best corridors for future servicing ; soon, with the opportunities being in solar, wind, coconut oil and urban  Outline likely costings for infrastructure and service needs based waste. on preferred development concepts; For the CDS, the civil engineering input was intended to characterize  Assist with determining the best scheduling of infrastructure and the level of present servicing, to identify gaps and to review the risks to essential service provision; and assets from climate change and natural disasters. Matters for  Identify opportunities for energy efficient development options. consideration included the following: The limited assessments and mapping were undertaken with some  Flood constrained areas – limiting location of essential services discussion with the relevant engineers in the Government or service or infrastructure corridors; providers. It is important that relevant bodies understand that the  Water resource management: bore management, water planning process is underway and that it may/will have implications for security; their asset management and capital works programs in the future.  Trunk power corridors and risks  Water supply trunk corridors and risks Of particular interest would be the quantification of the extent of key infrastructure services that are currently within medium to high risk  Sewer trunk infrastructure location, treatment capacity and areas, as represented in Figure 40. It demonstrates that for EPC and the areas required for land application; beneficial use opportunities SWA much of their present assets are in high to very high hazard areas (of treated or partially treated effluent); especially along the Main West Coast Road.  Telecommunications infrastructure;  Future Infrastructure easement requirements. The nominal location of the East – West Corridor to act as the key infrastructure corridor within the bounds of the City (as planned There was a lack of access to relevant infrastructure and essential schematically in the City Spatial Plan) – should assist with future services with regard to water and electricity services by the Samoa infrastructure and essential service planning. The final Structure Plan Water Authority (SWA) and the Electricity Power Corporation (EPC). provides a rational reference to ensure that any future significant However, schematic maps of current service alignments from both infrastructure programme or project supports essential services to be agencies were obtained from publicly available reports and on-line located in less hazardous areas or in locations where resilience can be maps. Demonstrated benefits of strategic plans may support increased managed. 78 SAMOA – CITY DEVELOPMENT STRATEGY Figure 40: Key Infrastructure Networks and Hazards Figure 40 Key Infrastructure Networks and Hazards Floodlng Hoza,ds Woterwoy high hozord flood buffer - - {lntfltm} 11111 Coastal Flooding High Hazard Catchm.nl Hooding Area (Interim) land above 30Regk>n Slopt EPC Electricity Supply - - El'C l(ey Power Unes Samoa Water Authority - - Feeder Moln WaterMoln - - Trunk Water Main 79 SAMOA – CITY DEVELOPMENT STRATEGY It is important to note that the Land Transport Authority (LTA) under its It is also important to ensure that the existing drainage ways in the built jurisdiction is responsible for management and administration of any up areas are well maintained especially in the lower flood prone areas. infrastructure works within the road reserve. There is a Utility Service Past practices of filling in and reclaiming drainage-ways for Committee (USC) which is made up of representatives from the Utility development should be stopped. LTA has annual maintenance Service Providers such as Bluesky, EPC, SWA, Digicel and PPS. A specific contracts for drainage (within the road reserve) whereby contractors allocation of the road reserve has been assigned to the respective carry out maintenance works. If drainage assets are well maintained, utility service providers. This has been designed to set a standard this contributes to planning of future upgrade works for drainage-ways. allocation for services, so that the assets' location can be consistent It also makes nuisance flooding of lower areas less prevalent in small to within the road reserve thus being easier for identification and medium rainfall events. While proper maintenance plays a vital role in maintenance as most of these services will be underground. The Utility the sustainability and longevity of the drainage infrastructure, priority Service Committee (USC) will therefore play an essential role in ensuring needs to be given to tackling the ‘issue at the source’ by reducing the that future key Infrastructure and Essential services are provided in a velocity and quantity of water coming from higher elevated areas manner which is consistent with theStructure Plan and any further where past and ongoing development has exacerbated run-off. detailed land use plans generated through the roll-out of the SMPs. Any areas required for overland flow paths in new development areas, or through existing built up areas should be identified by the city

10.15 Stormwater Drainage engineers and planners. That is, areas to accommodate surface water In addition to flooding and inundation issues and water supply, the in a standard storm event i.e. swales, rain gardens, roads & associated implications of existing and future land use on stormwater drainage, landscape strips – should be clearly identified in land use plans. This treatment and re-use have been considered. should be taken up at the SMP roll-out phase. Updating information on existing drainage-ways in terms of their Data and information at this juncture is insufficient to be able to capacity, current function, condition and required maintenance characterize the status of all urban waterways and drainage-ways, (including annual costs of rehabilitation) will enable decision-makers to especially within the lower elevated coastal areas of the City. It is determine when upgrades are needed to accommodate land use important to determine the threshold points or triggers for new intensification. Where proponents forward large scale development infrastructure or upgrades to waterways/pipes. New development may proposals that will dramatically affect the capacity of existing be able to be provided for within the current capacity of drainage-ways, with the above quantification – they can be asked to waterways/pipes. It is important to identify where new development upgrade the public system or contribute to its cost in upgrading (this is can be accommodated based on existing service capacity so that similar to the user-pays development contribution systems instituted in land uses can be planned around this parameter. However, if many countries). waterways/pipes are nearing capacity and upgrades are proposed, the efficiency and cost recovery of upgraded infrastructure will be Water sensitive urban design (WSUD) practices should be employed in dependent on the amount of new development that they are both existing drainage and future drainage systems.Strategic planning servicing. In this instance, it will be important to discuss the likelihood of should direct development to locations that create efficiencies in upgrading infrastructure on the basis of long term development infrastructure provision, and enable the sequencing of development to proposals. respond to drainage capacity and upgrade plans. For higher elevated areas above the recommended urban development cut-off line, WSUD measures within all waterways and 80 SAMOA – CITY DEVELOPMENT STRATEGY drainage-lines will be essential. They will also need to be employed of partially treated sewage – without causing health or strategically in the mid elevation areas of the urban development environmental impacts; zones, as it is within these areas that water run-off and flood flows can  Whichever future system is relied upon adequate rural or open be alleviated before they drain to the flood prone lower coastal plains. space areas should be retained within the City or on the The Structure Plan identifies these areas for attention (see Section 11). periphery for the land disposal of treated or partially treated In terms of managing existing drainage-ways and those that will need effluent; to be accommodated in road reserves, again the LTA would be  The re-use potential of partially treated effluent should be instrumental in coordinating work on integrated stormwater recognized and land uses supported which aim to recycle management. Their jurisdiction covers all assets within road reserves. effluent or use it for alternate forms of fertilizer, mulch or soil Many drainage-ways are located within road reserves as prior flow reconditioning mediums; paths and old drainage-ways were built over. This has exacerbated  Partially and fully treated effluent can be used on playing fields drainage and localized flooding in the low lying flat areas of the City. and community gardens under certain circumstances;  There needs to be an effluent re-use policy developed for use

10.16 Effluent by public agencies as well as by residents; Provision of suitable effluent management, treatment and disposal  The Land Resource information and data layers will need to be systems is also of critical importance to the City. As with drainage, it is enhanced to enable the location of suitable areas for land important to understand the extent of the current reticulated network; disposal of partially or fully treated effluent. This should precede the capacity issues;options for the future and any proposed upgrades the SMP roll out phase. and timing. The provision of effluent services is needed for all new development areas and can typically be a trigger for attracting further

10.17 Telecommunications and Renewable development. Creative use of small ‘advanced water treatment systems’ (AWTS) and composting toilets in more sensitive parts of the Energy City should not be ruled out. Even with a formal Sewerage Treatment The location of telecommunication and energy assets, and resultant Plant (or its enhancement) reuse of treated or partially treated waters constraints and opportunities for surrounding land uses need to be for nutrient supply to agriculture and horticulture endeavours should be considered. Additionally, any capacity shortfalls and the need to considered. service future development need to be considered. As information was As much of Apia is not serviced by an augmented sewerage collection not available at the City scale this will need to be taken up during the system (as well as a sewerage treatment plant), a number of strategic SMP stages. land use parameters need to be noted: Opportunities for self-generation of power, use of photo-voltaic and  If a reticulated system is to be implemented in the future, land other energy-efficient measures will also need to be investigated while use planning at the SMP stage should identify the logical working with communities at the SMP stages. location of potential pipeline alignments;  If there is to be continued reliance of home based systems i.e. The work should document telecommunication network coverage and septic systems, the sizes of land parcels needs to be adequate any issues with capacity, including issues related to natural disasters to enable site based absorption trenches (or the like) to dispose and the appropriate location of overhead and underground cables. 81 SAMOA – CITY DEVELOPMENT STRATEGY

10.18 Waste Management 6) That infrastructure and service agencies assist with determining the best scheduling of infrastructure and essential service provision; The Domestic Waste Reduction Initiative being undertaken by the DEC Division of MNRE, commenced in March 2012. This project aims to 7) that the nominal location of the East – West Corridor to act as the reduce household waste and manage the storage of waste through key Infrastructure Corridor within the bounds of the City be participatory approaches to urban waste management. This responds supported by the Utility Service Committee (USC); to issues raised by the community through the Structure Planning 8) That the existing drainage ways in the built up areas are located, process. mapped. Updated information on existing drainage-ways is to be Whatever options prevail, planning at the SMP stage will need to be aggregated in terms of their capacity, current function, condition conscious of the possible need to set aside land for urban waste and required maintenance (including annual costs of rehabilitation). management. This might be to accommodate waste transfer stations The implications for land use intensification about drainage-ways at certain locations about the City. shall be assessed. 9) Past practices of filling in and reclaiming drainage-ways for

10.19 Recommended Actions – Infrastructure development shall be stopped. Any areas required for overland flow paths in new development areas, or through existing built up areas & Services shall be identified by the city engineers and planners The following actions are recommended: 10) It is important to understand the extent of the current reticulated 1) The key infrastructure and service agencies be asked to respond to sewerage network; the capacity issues; options for the future and the implications of a significant amount of their assets being located any proposed upgrades and timing.Creative use of small within high to critical hazard areas (refer to Figure 40); ‘advanced water treatment systems’ (AWTS) and composting toilets shall be required n more sensitive parts of the City; 2) The EPC and the SWAamong other service agencies be asked to advise on present difficulties with service residential areas, 11) If a reticulated sewerage system is to be implemented in the commercial and industrial areas. Information provided should report future, land use planning at the SMP stage should identify the on the current situation regarding services, capacities and gaps in logical location of potential pipeline alignments; infrastructure and essential services; 12) If there is to be continued reliance of home based systems i.e. 3) Infrastructure and service agencies are asked to identify likely future septic systems, the sizes of land parcels needs to be adequate to servicing needs based on possible land uses/development options enable site based absorption trenches (or the like) to dispose of shown in the Structure Plan; partially treated sewage – to minimize health or environmental impacts; 4) Thatinfrastructure and service agencies assist with the preparation of SMPs through preliminary constraints plans to identify the best 13) Whichever future system is relied upon adequate rural or open corridors for future servicing within village areas; space areas should be retained within the City or on the periphery for the land disposal of treated or partially treated effluent; 5) that infrastructure and service agencies outline likely costings for infrastructure and service needs based on preferred use areas and 14) The Land Resource information data layers will need to be structure presented in the CDS; enhanced to enable the location of suitable areas for land disposal of partially or fully treated effluent 82 SAMOA – CITY DEVELOPMENT STRATEGY 15) Utility agencies should be asked to identify all telecommunication systems and assets, nominate the constraints that should be applied to nearby development, identify capacity shortfalls and needs for future development. Much of this will be needed during the SMPdelivery stages. 16) Opportunities for self-generation of power, use of photo-voltaic and other energy-efficient measures will need to be canvassed while working with communities at the SMP stages. 17) Planning at the SMP stage will need to set aside land for urban waste management. This might be to accommodate waste transfer stations at certain locations about the City. 83 SAMOA – CITY DEVELOPMENT STRATEGY PART 3: Implementation thematic analysis. As new and improved data is realised and aggregated through the roll out of SMPs, the Land Use Planning GIS database, including the Combined Risk and Constraints database, can 11. The Structure Plan be updated. Figure 39, the Movement Network Plan incorporates the prospect alignment of the East-West Infrastructure Corridor proposed in the City The Structure Plan, as shown in Figure 43, is the key tool in the delivery Spatial Plan. The Preferred Use Areas map (Figure 42), was primarily of the CDS 10 . The Structure plan has been derived through driven by the objective for future urban development to readily consideration of numerous land use planning and development accommodate climate change adaptation and reduce risks from matters as drawn out from sections 3 to 10. It presents the broad natural and human induced disasters over time. These risks were ‘preferred land use areas’ at the city wide strategic level in a logical elucidated in the multi-thematic, sector and cross-sector analyses spatial plan. It combines the Movement Network Plan (Figure 39) and summarized in Sections 4-10, and incorporated in the combined risks the Preferred Use Areas (Figure 42) to show the main intended structure and constraints mapping. of the City. The Structure Plan promotes a hierarchy of centres across the Apia urban area; differentiates areas of vulnerability across the The GIS database can be used to generated ‘Overlays of Risks and preferred use areas, showing the key roads and infrastructure corridor Constraints’. There was concern that for customary land the usual servicing the land use areas. ‘zoning’ restriction approach of UK derived planning methods was inappropriate. The use of ‘Overlays’ recognizes the basic right of Stakeholder consultations undertaken from December 2014 through to individuals in Samoa to use and occupy lands consistent with May 2015 were used to confirm community values and needs and to traditional use, but provide information on risks and constraints so that inform of the needs for the Structure Plan. The multiple thematic, sector future decisions (individual, village and national based) can work and cross-disciplinary assessments were steered by stakeholder toward reducing risks. This approach is consistent with the ‘planned responses. Outcomes as provided in Sections 4-10 were presented to retreat’ approach to climate change adaptation principles espoused stakeholder forums as they were generated. The feedback, ideas and by the UNFCCC. inputs were used to prepare the final plans. The spatial allocation of preferred land uses depicted generally in the Structure Plan can be adjusted, amended and validated through the Many of the recommendations covered in Section 13 are also derived roll out of SMPs. The SMPs can also add categories of land uses that from the technical assessments, supporting maps, diagrams and can occur within each of the preferred use areas, and align schematics provided in Sections 4-10. The assembled data has been development standards and guidelines for use in decision-making. aggregated into a GIS database, managed by PUMA. Availability of Development standards, plans and guidelines directed at supporting data was a constraint to the level of detail of some technical and the designation of land use have yet to be generated for PUMA. Some exist in the VaiteleSMP however these are more site specific standards. 10 The Structure Plan is a spatially orientated ‘master plan’ at the City level. It should Land use designation or controls are commonly formed as objective guide the planning and development of key infrastructure, should assist with the based provisions and locational or intensity criteria. In the absence of allocation of dominant land uses, nominate the general location and form of guides for Samoa, Annex 5 and 6 have been generated to assist as commercial centres (that become employment nodes) and be used to instigate surrogate provisions. Annex 5 targets ‘neighbourhood planning specific urban wide initiatives to reduce hazards, minimize risk and afford better principles’ – as suggested guides for improving the amenity and environmental outcomes. 84 SAMOA – CITY DEVELOPMENT STRATEGY function of village communities. Annex 6 contains broader land use  Land resources (soil conditions, geology& capability). allocation criteria by type of land use or matters that affect the  Flooding and Water management location and control of land use.  Core Land Use Features As with the anticipated updating of the Structure Plan through SMP  Composite Constraints generation, it is expected that PUMA’s land use planning programme will see the generation of associated development standards,  Movement networks (on-road and off-road) guidelines, codes and manuals to assist decision-making. Annex 5 and  Hierarchy of Centres and Livelihood Opportunities 6 can be used as reference material for these.  Infrastructure and Essential services. The Structure Plan is therefore a ‘living document’ that can be Land use interactions and relationships are important matters for updated as community level land use planning progresses via the SMP strategic land use planning as well as statutory development control. generation phase. As Apia experiences intensification of land uses and increased densities of buildings and people conflicts can prevail between adjacent uses.

11.1 Layout and Urban Form of Apia Clustering like uses together through strategic plans (e.g. Structure Plan, The overall layout and promoted urban form of the City has in part SMPs that may confirm ‘zones’ or preferred use precincts) with been determined by the significant constraints of the steep landscape development standards that control site specific development matters to the south and south-east of the City. Additionally the multi-nodal city – is an effective means to manage urban conflict. approach, consisting of dispersed centres, informs the city structure. The degree of compatibility between land uses and activities is best The nomination of key preferred uses (instead of zoning) has been determined through the roll out of SMPs using essential community captured through collective constraints and opportunities analysis. The engagement processes. Community visioning at the village level can various aspects considered in the generation of the Structure Plan can support consensus on the primary preferred uses in the locality. Land be grouped into three dimensions: use allocation through the nomination of key ‘preferred use areas’ can be supported by development standards and design requirements. a) The bio-physical characteristics of the City setting; b) The environmental characteristics, including socio-cultural The adjustment of the Structure Plan over time will include better aspects; information on and characterization of hazards and risks. Formative work on hydrologic and hydraulic impacts from flooding and coastal c) The existing land use, interactions and relationships. inundation is progressing. The work on the lower Vaisigano river The CDS examined the following types of physical characteristics at the catchment is to be repeated over the other primary catchments city macro scale, and at a finer grain where possible (further detail shall covering Apia. Among other things this will provide discrete come through SMP preparation): classification of hazards and risks from low, medium, high and critical hazards. It will also nominate desired future floor levels of buildings to  Topography and slope. reduce risk over time. This is an important outcome which again is consistent with the ‘planned retreat’ form of adaptation to risks. The  Sensitive ecological areas & vegetation cover. modelling will enable the use of data to determine the best means of  Aspect and orientation. adapting to risks via measures to protect people, or to accommodate 85 SAMOA – CITY DEVELOPMENT STRATEGY known and future hazards. The current installation of protection be used by PUMA in the role out of the SMPs, as well as in the measures along the lower Vaisigano is a practical example of this use. development consent processes in the absence of SMPs and development standards.

11.2 Key Structure Plan Features Limits to Urban Growth The Structure Plan shows a number of key features and spatial The combined risks and constraints work of sections 4-10 culminated representations of Apia to guide delivery of the four key City Spatial with the identification of an urban development cut-off limit to Plan goals through the use of: key ‘preferred use areas’; a logical road development, as shown in Figure 31. This limit was set having regard to hierarchy; an off-road network system and through highlighting areas multiple criteria namely being as follows: where disaster risk reduction should be focussed.  Limits to the ability to supply water from existing sources based Preferred Use Areas on gravity feed (noting that some urban areas already require As future fine grain land use and governance choices are anticipated pumping for supply); to be achieved through SMP development in consultation with local  Steep slopes in excess of 20% and/or location of steep ravines; village fono, formal nomination of land use zones is not proposed as part of the CDS. Rather key ‘Preferred Use Areas’ provide the flexibility  Healthy forested areas that can assist with flood alleviation required before SMPs are generated. Advocating more formal land use through retention and enhancement; control via a Structure Plan would not be conducive to the objective  The expressed need to sustain landscape qualities that prevail based PUM Act, 2004, nor be consistent with ‘prior informed consent’ mostly above the 300 metre contour (ASL). principles. ‘Zoning’ of land within SMPs in the future will also need Creeping of urban development into the foothills, escarpments and hill- careful consideration as UK styled zoning provisions directly conflict with scapes about Apia has caused detrimental impacts including: customary usehold systems.  Increased flooding on lower coastal areas (increased peak Before an SMP is generated for a particular part of the City the flows, reduced climate and disaster resilience); preferred use areas as shown on the Structure Plan can be used in decision-making if the CDS is made under the PUM Act, 2004. For  Increased erosion and sedimentation; instance if a significant industrial development was proposed within a  Loss of natural waterway features and ecological service; rural or residential ‘preferred use area’, the Structure Plan and the information provided in Annex 5 and 6 can be used to identify  Greater pollution of waterways, drainage-ways and the coastal pertinent matters for consideration, with some metrics (such as buffer waters; requirements) that could assist during the development consent  Increased cost of service and infrastructure provision; process.  Higher incidence of service and infrastructure breakages from The work on this CDS has enabled the documentation of a number of limited ability to control stormwater and site drainage; qualitative and quantitative objectives and criteria for a range of land use categories that can be aligned with the various ‘Preferred Use  Greater incidence of traffic congestion from inability to provide Areas’. These are contained within Annex 6 ‘Land Allocation Objectives a rational hierarchy of service roads; and Criteria’. While not generated solely for Samoa, in the absence of  Loss of visual backdrop provided by the treed landscape. Development Standards made under the PUM Act, 2004, these could 86 SAMOA – CITY DEVELOPMENT STRATEGY There are land uses and activities occurring above this level and categorisation on the US Federal Emergency Management Agency existing use rights will prevail. SMPs that cover these areas can (FEMA) guidelines. incorporate development standards (or refer to standalone standards, Plate 8, below is a graph of the combined hazards based on the work plans or guidelines) that place performance measures or controls on of BMTWBM (2015) and GHD (2012). these land uses. They may nominate a range of land use categories that would be supported in these areas, subject to specific . requirements and conditions. 4 Limiting urban extension will have advantages for catchment 3.5 management in this important landscape. 3 Resilience, Disaster Risk Reduction and Community Safety The Structure Plan supports the four goals of the City Spatial Plan ~ 2.5 E through a hazard-risk reduction and resilience lens. The Combined Risk ~ 2 and Constraints Map (Figure 31) and database can be used in ·u 0 conjunction with the Structure Plan and eventual SMPs to effectively manage and minimise development in highand critical hazard areas. J 1.5 Strategic response via land use planning instruments and application of 1 standards is consistent with best practice provisions in flood and coastal inundation policy (see Moreton Bay Regional Council Flood and 0.5 Coastal Hazard Evaluation Report, 2015). This form of table application will only succeed once the flood and inundation hazard mapping 0 completed by Water Technology Pty Ltd for the Vaisigano catchment 0 0.5 1 1.5 2 2.5 3 3.5 4 is extended to the rest of the CDS area. The gradations of risk from Deoth (ml None/Negligible (H1), Low (H2), Medium (H3), High (H4) and Extreme Plate 8: Combined Hazard Classification based on velocity and depth Hazard (H5) can be distinguished in Figures 21 and 22, as the Moreton (flooding and storm surge). Source: BMTWBM, 2015 Bay work guided the basis of risk assessment. Plate 4 below is extracted from the Moreton Bay flood and coastal hazard assessment by Table 3 below relates the hydraulic criteria to land use and BMTWBM (2015). development limitations, as well as access constraints. The combined river and creek hydraulic hazard categories H1-H5 were Table 4over then interprets the combined classifications and criteria to firstly proposed in the Newcastle Concept Flood Planning Report identify various hazard risk classifications by land use category or type (BMTWBM, 2009). This was a modification from the key reference (i.e. this is land use types within a ‘preferred use category), and manual ‘Floodplain Management in Australia’ (CSIRO, 2000) and the provides a framework for applying hazard-relevant standards and NSW ‘Floodplain Development Manual’ (NSW Government, 2005). guidelines that will be needed for assessments and conditions of Separately GHD (2012) proposed the storm tide hydraulic categories consent. The inclusion here in the CDS is partly to assist with the H1-H5, which gave consideration to the potential impacts of combined commitment to generate appropriate development standards for wave action and storm surge. GHD based the hydraulic hazard 87 SAMOA – CITY DEVELOPMENT STRATEGY application with the land use planning system to address climate Table 4 suggests where different forms of development should be change and disaster risks. discouraged;only supported where disaster risk criteria can be supported, or where development may supported depending on the Table 3: Combined Hazard Category & Land Use Limitations hazard category. It is a preliminary and interim land use planning Hazard Suitability/ Description Hydraulic Criteria control mechanism to assist with mitigating hazard risk pending the category adoption of SMPs. The SMPs will need to incorporate the outcomes of H1 Hydraulically suitable for parked or v < 0.5m/s and moving cars; No significant life risk; d<0.3m the balance of the flood and coastal inundation modelling once all property risk only to items that come in the catchments in Apia have been subject to the modelling consistent contact with floodwaters with that completed for the Vaisigano catchment. Table 5 provides the H2 Hydraulically suitable for parked or v < 2m/s , d<0.8m key to the hazard classes and symbols used in Table 4. moving heavy vehicles and wading by and v<3.2-4*d Only in the Vaisigano River catchment has flooding and inundation able-bodied adults; Low life risk; Cars can float and precautions must be assessment work proceeded to the point where the hazards and risks followed to keep assets out of can be classified as negligible, low, medium, high or extreme. The floodwaters Water Resources Division of MNRE plans to extend the flood and H3 Hydraulically suitable for light v < 2m/s, d<2m inundation modelling to the remaining catchments covering Apia. In construction (e.g. timber frame and and v*d <1 the meantime all areas nominated in red hatch as high coastal hazard brick veneer) based on contemporary in Figure 31 or within 10 metres of the top bank of rivers can be building codes; Moderate life risk; deemed as being high to extreme hazard areas for the purposes of abled-bodied adults cannot wade Table 3 and 4. safely; only large trucks can travel safely H4 Hydraulically suitable for heavy v < 2.5m/s, d<2.5 It is intended that the SMPs will not only improve the level of detail of construction (e.g. steel frame, and v*d <2.5 the data, but will enable the refinement of integrated hazard and risk reinforced concrete); Major life risk; classification and the nominated criteria to be addressed through Light frame buildings can fail structurally development standards. The database and Table 3 can be used in the H5 Unsuitable for development; Extreme life v < 2.5m/s, d>2.5 risk; Majority of buildings could fail and v*d >2.5 interim to inform the strategic land use planning and development consent process and over time reduce the number of people subject v = velocity d = depth to medium to high hazard risks. The Urban Design Manual (City Spatial Plan), future development The work on the CDS compared the past coastal flood assessments standards (made under the PUM Act, 2004, the revised National (e.g. BECA, 2001 & 2005) with the outputs of Water Technology Building Code and other planning guidelines can provide further (Watertech), 2015, which was based on BMTWBM, 2015. Of particular provisions to be used in conjunction with the Combined Constraints interest is the fact that much of the lower Vaisigano catchment that database, and Table 3 Land Use and Development Controls for Hazard had previously been nominated as Coastal Flood High Hazard areas Areas, prior to SMPs. (BECA, 2001) are actually of Moderate Risk under the Water Technology Pty Ltd outcomes. 88 SAMOA – CITY DEVELOPMENT STRATEGY Table 4: Land Use and Hazard-Related Development Controls (NB: relates to new development/buildings) No. Use/Activity Extreme High Medium Low None/ Notes (as regards development within High Hazard Hazard Hazard Hazard Negligible and Critical Hazard areas) Levels (H5) Areas (H4) Areas (H3) (H2) (H1) 1 CBD Commercial EIA required EIA required ☻ ☺ ☺ Need to recognize existing CBD is within Extreme, High & Medium Hazard Areas. EIA PEIA DS © © & heavy conditions on approvals based on DS & © Development Standards will be required. No new commercial zoning in extreme or high hazard areas. 2 CBD Retail EIA required EIA required ☻ ☺ ☺ As above. Retail only above Extreme & High hazard levels i.e. 2nd or 3rd levels of PEIA DS © © buildings only approved based on an EIA DS & © which proves the development satisfies global best practice and the Development Standards 3 CBD Residential   ☻ ☺ ☺ High density residential above commerce and located above extreme & high PEIA DS& © hazard levels, only where egress during DS & © extreme events can be guaranteed. Need to ensure there is not the concentration of residents that cannot flee extreme hazards 4 CBD Service  EIA ☻ ☺ ☺ Not desired in Extreme Hazard areas, but Trades required need to note existing CBD use rights in high PEIA DS © hazard areas. Medium hazard areas will DS & © require a PEIA to demonstrate that Development standard criteria have been satisfied. 5 CBD Bulky Goods   ☻ ☺ ☺ As above Retail PEIA DS DS & © 6 Tourism Related EIA required EIA required ☻ ☺ ☺ Existing use rights may prevail in some Extreme and High hazard areas. Tourism PEIA DS © © operators usually pursue coastal & water 89 SAMOA – CITY DEVELOPMENT STRATEGY DS &© feature locations that may be in extreme and high hazard areas. Full EIA will be required to demonstrate the ability to satisfy global best practice and the development standards. Heavy conditions on approvals with site based environmental management plans (SEMPs) requiring annual audits. 7 Residential traditional non- Existing uses only Existing uses only EIA required ☺ ☺ Existing use rights may prevail in Extreme&High Hazard areas – no new © DS& © dwellings. Incentives for dwellings within Extreme and High hazard areas to move. Full EIA will be required to demonstrate the ability to satisfy global best practice and the development standards. Heavy conditions on approvals with site based environmental management plans (SEMPs) requiring annual audits. Heavy conditions for new houses on existing land parcels in medium hazards. 8 Traditional Living & Activities Existing uses only Existing uses only EIA required ☺ ☺ Traditional areas in Critical & High Hazard areas should be respected, but relocation © encouraged. Advocacy incentives to reduce risks. through 9 New Residential   EIA ☺ ☺ No approval in Extreme and High hazard Areas - Single required areas. Note existing property rights where © DS& © proven. Full EIA will be required to demonstrate the ability to satisfy global best practice and the development standards. Heavy conditions on approvals with site based environmental management plans (SEMPs) requiring annual audits. Heavy conditions in High and Medium areas 10 Residential Units:   EIA ☺ ☺ As above Low – medium required density DS& © 90 SAMOA – CITY DEVELOPMENT STRATEGY © 11 Residential Units:   EIA ☺ ☺ As above Medium – high required density © DS& © 12 Business  EIA ☻ ☺ ☺ Business development forms can provide Development required resilience but heavy conditions of PEIA DS Areas © approval are needed. Full EIA will be DS & © required for High and Medium hazard areas to demonstrate the ability to satisfy global best practice and the development standards. Heavy conditions on approvals with site based environmental management plans (SEMPs) requiring annual audits. 13 Employment Areas  EIA ☻ ☺ ☺ As above required PEIA DS © DS & © 14 Industry – General  EIA ☻ ☺ ☺ Full EIA will be required to demonstrate the required ability to satisfy global best practice and PEIA DS © the development standards. Heavy DS & © conditions on approvals with site based environmental management plans (SEMPs) requiring annual audits. Mixed Industry can include some ‘dirty’ industries so heavy conditions required in High and Medium areas. 15 Industry – Bulky  EIA ☻ ☺ ☺ As above. Less likely to incorporate Goods required chemicals etc. Lower employment to size PEIA DS © ratio so less people in high risk areas DS & © 16 Industry – Service  EIA ☻ ☺ ☺ As above Trades required PEIA DS © 91 SAMOA – CITY DEVELOPMENT STRATEGY DS & © 17 Industry - Heavy  EIA ☻ ☺ ☺ As above. Notorious for chemical and required outside storage users. Tight conditions in PEIA DS © High to Medium hazard areas DS & © 18 Industry –   EIA ☺ ☺ Less likely to incorporate chemicals etc. professional required Facilities can be raised with parking DS services © underneath. Heavy conditions in High hazard areas 19 Local Shops   EIA ☺ ☺ Local shops should not be located within required Extreme or High hazard areas. Classes note © DS& © that existing shops have existing use rights. Upon their upgrade heavy conditions will apply. 20 Neighbourhood   EIA ☺ ☺ Neighbourhood centres shall not be Centres required supported in Extreme and High hazard © DS& © areas. Classes note that some may be on the fringe of medium-high hazard areas and measures can be employed to reduce risks. 21 District Centres   EIA ☺ ☺ New District Centres shall not be approved required within Extreme and High hazard areas. © DS& © They shall be discouraged from medium hazard areas. Heavy conditions will be applied to reduce risk. 22 Regional District   EIA ☺ ☺ As above. Centres required © DS& © 23 Local Playing   ☺ ☺ ☺ Not to be supported in Extreme or High Fields hazard areas, but existing facilities can DS assist with flood retention, where human risk can be minimized. Also can provide a buffer between hazards and existing living areas 92 SAMOA – CITY DEVELOPMENT STRATEGY 24 District Playing  EIA ☻ ☺ ☺ As above Fields required PEIA © DS & © 25 Regional Sport/  EIA ☻ ☺ ☺ Can be used as part of flood attenuation Playing areas required works. Usually big investments so water PEIA © management can be included as part of DS & © design. 26 Open Space community - EIA required EIA required ☺ ☺ ☺ More frequent use so care needed to minimize human risk. DS © © 27 Open networks Space ☻ ☺ ☺ ☺ ☺ Networks usually in Extreme and High hazard areas along coasts and rivers. Areas of congregation of people to be avoided where risks cannot be minimized Table 5: Key to Hazard Classes and symbols No. Symbol Location based Limits Design & Siting Based Limits Development Standards, Guidelines & Criteria (Required) 1  Not supported unless extreme reasons based NA NA on customary or existing use rights etc. (based on proof) 2 EIA required Not supported, unless extreme reasons based Applied on merits using global Flood Hazard Risk Assessment on customary or existing use rights etc. (based best practices and guidelines, Coastal Hazard Risk Assessment © on proof). New developments need full EIA but only in extreme cases Landslip Code based on global best practices as well as where risks can be proven to Building Code (Update) Development Standards. Heavy conditions will be acceptable or measures Flood zone building requirements be applied including the need for site employed to reduce risks Footing and foundations environmental management plans (SEMP) without transferring those risks Water Balance Modelling where annual audits are conditionally required to other people or places. Stormwater Management Soil Investigations for Flood prone areas Emergency Evacuation provision Erosion & Sediment Controls Urban Design Guidelines 3 Supported: but only where existing uses Conditions will be applied As above ☻ prevail; risk assessments need to show the where the onus of proof can 93 SAMOA – CITY DEVELOPMENT STRATEGY PEIA means to reduce risk (determined through demonstrate that risks can be Preliminary EIA, which may then lead to full EIA adequately reduced. Heavy DS & © as part of development consent). conditions will apply to Development standards will need to be Development Consents satisfied and conditions of approval will be extensive based on global best practice as well as the criteria contained in the development standards. 4 Supported where area and site conditions Conditions will be applied As above ☺ reveal opportunities to address risks to an where the onus of proof can DS& © acceptable level based on criteria outlined in Development standards. Planning reports will demonstrate that risks can be adequately reduced. Standard have to accompany applications for conditions will apply to Development consent. Conditions of approval Development Consents will relate to criteria in Development standards 5 Supported where planning reports Conditions will be applied Flood Hazard Risk Assessment ☺ (accompanying applications for Development where risk reduction is relatively Coastal Hazard Risk Assessment DS consent) successfully address development simple. Low-medium level Landslip Code standards related to hazards. conditions will apply to Building Code (Update) Development Consents. Flood zone building requirements Footing and foundations Water Balance Modelling Stormwater Management Soil Investigations for Flood prone areas Emergency Evacuation provision Erosion & Sediment Controls Urban Design Guidelines 6 All development accepted in terms of hazards No conditions related to As above, plus ☺ and risks. Other planning criteria may relate to hazards and disaster risk Landscaping Code satisfying other development standards not reduction need to be applied related to hazard and disaster risk reduction. 94 SAMOA – CITY DEVELOPMENT STRATEGY Hazard-specific controls will be further developed as part of CSP Goal 1: Creating a unique City – diverse living and affordability development standards andthe revised National Building Code. Residential areas are recommended to be maintained as shown in the Further community engagement in the lead up to or during the roll out Structure Plan. There may be an increase in density over time where of SMPs should aim for communities to identify those parts of their the land is not within high to extreme hazard areas, if development is village where they wish to retain the traditional village built form and consistent with future development standards. use. In mid to upper elevated areas, below the urban cut-off limit, it is preferred that large physical land parcels be maintained by residents The Structure Plan and subsequent SMPs should strive to stem urban (i.e. greater than 1000 sq. m.). These large parcels can accommodate sprawl along the coast, coastal roads or other main roads. The urban gardens and landscaping which will improve amenity but also encouragement of a hierarchy of centres aims to be instrumental in this provide a land use that helps with water sensitive urban design pursuit. Existing use rights are protected (common law and international (WSUD) 11 that will assist with flood management and water quality law does not enable planning and development law to be management in the lower areas. Land should be set aside in the lower retrospective). Where industrial or commercial uses are already flat areas subject to local inundation and poor drainage (due to ill- located within residential areas for instance, existing use rights prevail. defined drainage paths), to facilitate improved water management. However if there are proposals for major extension to commercial or industrial activities within residential areas, then the Structure Plan and New development within existing preferred residential use areas but subsequent SMPs can be used to discourage and manage such within moderate to high hazard areas are recommended to be subject development. to hazard-specific development and building controls and conditions of consent. The Combined Risks and Hazards GIS database enables the To ensure sustainable development of land to support Apia as a unique generation of ‘Constraint Overlays’ which can be used in conjunction city, any significant subdivision (i.e. subdivisions of ten or more with the Structure Plan to highlight the various risk levels of hazards allotments) should not be approved unless it is consistent with the about the City. These can be used at the SMP generation phase for relevant SMP made for the area. Mechanisms should be put in place communities to decide on: areas that should not be developed; areas for proponents to prepare a SMP consistent with the provisions of the where specific building requirements are necessary; and, areas where PUM Act, 2004. Among other matters the SMP shall ensure appropriate hazards and risks can be accommodated with good site and area land use and adequate servicing and access is provided to the management. All new developments and uses within the high to residential areas, prior to sale or occupancy of the land. extreme hazard areas should be deterred. CSP Goal 2: Enhancing Employment Opportunities The Structure Plan identifies preferred locations where accessible 11 The instigation of water sensitive urban design measures should be implemented employment opportunities can progress about the city through the at strategic land use planning, village development and site development levels instigation of a hierarchy of centres as shown in Figures 33-35. The across the whole City. The Structure Plan nominates two zones at mid elevation and current Apia central business district is expected to remain the core in the upper catchment areas where integrated catchment based WSUD measures commercial area of the city. Where land in the CBD is within high or (i.e. large scale measures) will be essential and will require the support of extreme hazard areas, development standards and design Government to alleviate current and future flooding. requirements will be applied to existing uses if any future proposals are 95 SAMOA – CITY DEVELOPMENT STRATEGY received to further develop the land. New commercial development Vaitele area sports precinct toward the coast is recommended for within extreme hazard areas will be discouraged. Where a proponent is further investigation and its alignment to be validated with the able to demonstrate that a risk can be made manageable, including surrounding villages. It is needed in conjunction with the new port through measures accommodated in development standards or development if that were to proceed. This connection is essential to: design guidelines, conditioned approval may be supported.  Ensure appropriate access to the new port precinct; The planning work currently being undertaken for the Waterfront  Encourage future heavy traffic to be diverted around Development will need to be cognizant of the high to extreme hazard residential precincts; areas.  Discourage the connection of industrial uses and heavy through traffic between the Vaitele Industrial Area and the emerging The industrial centre of Vaitele is anticipated to remain the focus of industrial precinct adjacent to Tafaigata. non-CBD commercial and service trade uses in the medium term (i.e. 10-15 years), while the emerging urban fringe industrial use area The off-road movement system is to be supported to: adjacent to Tafaigata is recommended for further investigation and  Provide walking and bicycle connections between detailed planning (possibly through a discrete SMP) as a future neighbourhoods and key areas of the City; employment node. This area is a high priority as uncontrolled development that is emerging will cause conflict with existing uses and  To accommodate water sensitive urban design features to could have dramatic impacts on groundwater resources in the locality. improve water quality and quantity management, especially in the low-lying areas; In addition to the major and potential district centres located beyond  Enable the co-location of movement corridors and water or adjacent to the bounds of high hazard areas, the regional management features; education nodes of NUS and USP, as well as the hospital precinct can  Provide connectivity between community and district level be encouraged to accommodate greater intensities and mix of land open space, sporting facilities and conservation areas/reserves. uses, including commercial activities and higher density residential development to assist with their growth as employment nodes. Infrastructure Corridor Commercial use within Preferred Residential Areas The East-West Infrastructure Corridor is recommended to be adopted into the key planning polices and sector plans of the key infrastructure Small scale service trades and business uses within the residential and and essential service agencies or their projects. This should increase mixed residential areas should be supported where they do not urban development efficiencies, coordination and the resilience of adversely impact upon the hierarchy of centres or residential amenity, assets over time. including through significant noise, odour or traffic generation. CSP Goal 4: Natural Environment and Cultural Values CSP Goal 3: Accessibility and Connection - Movement Networks Development should follow the Structure Plan to ensure that significant Both the on-road and off-road movement networks as shown in Figure environmental and ecological values are protected. These as far as 39 should be confirmed as the primary networks to service the City in practicable are incorporated in the ‘Environmental Protection Area’ the future. The extension of the arterial road connection from the 96 SAMOA – CITY DEVELOPMENT STRATEGY shown on Figures 42 and 43. The off-road network overlay shown in In addition to these key integrated water resources measures requiring Figure 39 incorporates routes that coincide with rivers and waterways, public investment, water sensitive urban design works will be required and therefore will also incorporate areas of ecological value. as part of private developments through the development consent and building approval processes. Focus should be along waterways to Development and land uses should not adversely impact on water provide flood retention, to channelize natural water flow under near catchments and ensure catchment modification does not exacerbate natural conditions and to provide opportunity for water quality flooding or increase water quality impacts. management facilities to stem the flow of pollutants and sediment to the coastal environs. The remaining wetland and mangrove areas of the City should also be retained to maintain their ecological services as well as to ameliorate 11.3 Use of the Structure Plan expected climate change impacts. As the areas surrounding them will shift from medium to higher hazard in the advent of climate change, The primary purpose of the Structure Plan is to guide the delivery of people are anticipated to progressively relocate to less hazardous SMPs over the coming 3-5 years. The Structure Plan provides a spatial areas. The remaining vacant land can be rehabilitated to master plan of the intended form of future city development, accommodate inward movement of mangrove and wetland nominating the location of key preferred land uses, aggregating data ecosystems. on bio-physical and socio-economic parameters, informing of city-wide issues and suggesting important elements that are best taken up with New urban development or the extension/intensification of existing the local communities. uses should be minimised up-slope from the Urban Development Cut- There are likely to be at least 8 SMPs generated to cover the more off level shown on the Structure Plan at Figure 43. Urban development detailed land use planning at the local scale over the City. Without has crept up into the elevated foothills and escarpments of the some form of city-wide logical guidance, as provided with the Structure hinterland increasing flood flows and exacerbating erosion and Plan, the SMPs could be disparate and conflict with each other, sedimentation of waterways. especially along their likely boundaries. Areas of mid-slope and the upper reaches of the surrounding The vulnerability assessments and mapping undertaken to complete escarpments have been nominated in Figures 28 and 29 as needing sections 4-10 of the CDS identifies further strategic and technical work specific Government sponsored intervention in terms of integrated to be completed prior to or concurrent with the SMP programme (see water resource management measures (often referred to as ‘water Section 13). These are designed to address analytical gaps and many sensitive urban design’ measures). Such interventions may include flood are required to inform effective SMP consultation and production with management ‘at the source’ primarily through the protection of village councils. existing vegetated land-cover. Additional ‘soft’ and ‘hard’ engineering responses will also be needed on the mid-slopes of the landscape. The The Structure Plan is supported by reference information provided in intent is to control water run-off velocity and quantity during extreme Annexes 5 and 6 to assist with present development consent processes events to minimize damage to the lower elevated areas. . These works in the absence of SMPs. Even with the Vaitele SMP a brief review of will require extensive modelling and substantial investments for PUMA capacities revealed thelack of development guidelines, codes retardation basins, catchment rehabilitation and ongoing sustainable and/or standards adversely impacting on effective decision-making. land management. In terms of encouraging local economic development the Structure Plan nominates the preferred location of commercial centres about 97 SAMOA – CITY DEVELOPMENT STRATEGY the City. Section 10 provides the framework for considering a hierarchy of centres, noting the role also of existing and emerging commerce and industrial areas within the City. Without specific research on the form of centres suited to Apia, Annex 5 and 6 provide some metrics on the sizing of various forms of centres and the area requirements for different land use types within commercial centres and neighbourhoods. Capacity assessments and stakeholder engagement revealed some critical challenges in existing land use policies and development standards that impact on effective decision-making. The adoption of the CDS under section 32 and/or Section 46 (e) under the PUM Act, 2004 can provide an interim effective guide for land use planning and development consent processes, prior to the adoption of fit-for- purpose development standards and urban design guidelines. Figure 41 depicts the surrogate use of the Structure Plan and other information provided in the CDS during the period when SMPs and Development standards are to be produced. The intermediate use of the Structure Plan is reliant on the ongoing use and the maintenance of the Land Use Plan Database and the Combined Risk and Constraints Database.

11.4 Benefits of the Structure Plan The anticipated benefits of improved land use planning through application of the Structure Plan and production of SMPs are as follows: a) Improved efficiencies in urban infrastructure and services; b) Improved productivity within the various sectors by better managing land and infrastructure; c) Improved sustainability of Samoa’s natural and built environment through better resource and risk management; d) Enhanced appreciation of urban design, planning and access to amenity facilities; e) Enhanced community wellbeing; and, f) Enhanced cultural identity within the City of Apia. 98 SAMOA – CITY DEVELOPMENT STRATEGY Figure 41: Use of the Structure Plan S12 SMPs S32 Devlp S46 plans polky Part V Standards S33 development Planning & Standard Provi1s.f.ons standards, i-- -- gui1delines 1 Development I Assessment I SMP Vaitele -- . Standards Guide 1 . 5 • II~ • u ir, SMP 2 .' • I Standards Guide 2 Standards Guide 3 Standards SMP 3 Guide 3 .:. 99 SAMOA – CITY DEVELOPMENT STRATEGY Figure 42: Preferred Use Areas Figure 42 Preferred Use Areas Figure 43: Final Structure Plan Figure 43 Structure Pion 100 SAMOA – CITY DEVELOPMENT STRATEGY Section 32, Development standards of the PUM Act, 2004 enables the 12. Development Standards and Board toapprove a set of development standards as regards: a) ‘the area, shape or frontage of any land, the dimensions, or the Guidelines distance from any point; This component concentrates on the non-locational parameters for b) the percentage of the area of a site a development can City planning, consistent with the functional aspects of land use occupy; planning decision-making depicted in Figure 3. While the Structure Plan c) the character, location, siting, bulk, scale, shape, size, height, addresses locational parameters at the City wide strategic level, there density, design or external appearance of a building or work; is a need to address the lack of development controls to assist with d) the cubic content and floor space of a building; present and future decision-making. e) the intensity and density of the use of any land, building or work; The PUM Act, 2004 through a number of provisions enables PUMA to f) the provision of public access, open space, landscaped space, use development standards, guides, codes and policies to assist in tree planting and other treatment for the conservation, strategic as well as development control planning. Currently the PUMA protection or enhancement of the environment; office has a limited number of decision-support tools for use by the land g) the provision of facilities for the standing, movement, parking, use planners, including: servicing, manoeuvring, loading and unloading of vehicles; h) the volume, nature and type of traffic generated by the a) Draft Planning and Development Guidelines for Housing (2003); development; b) Code of Environmental Practice: made by the Board but originated as a guide for Extractive industries for a road building i) road patterns; programme some years ago j) surface and wastewater; c) Noise quality guidelines – for nuisance assessments k) drainage; d) Environmental impact assessment guidelines – limited to project l) the carrying out of earthworks; based assessments m) the effects of development on patterns of wind, sunlight, The functional use of Table 3 and 4 in Section 11 to assist with daylight and shadows; implementing the principles of the Structure Plan is indicative of the n) the provision of services, facilities and amenities demanded by need to use a number of varying technical standards and guidelines. development; Below is a discussion on the extent of development standards and o) the emission of pollution and means for its prevention, control decision-support tools that are able to be used by MNRE-PUMA. and mitigation; and p) such other matters as prescribed…’

12.1 Strategic Planning This section enables a range of technical parameters to be covered in Part IV of the PUM Act, 2004 accommodates the use of strategic these ‘development standards’. The Urban Design Manual that is assessment and planning tools for decision-making. referred in the City Spatial Plan can be made as a ‘development standard’. These ‘development standards’ are often loosely referred to 101 SAMOA – CITY DEVELOPMENT STRATEGY as Codes or Development Guidelines. The contemporary means for b. building envelopes; their documentation is to lead with graphics and incorporate c. property boundaries; performance measures rather than be dominated by prescriptive and d. existing environment; inflexible requirements e. arrangements for – In support of the use of SMPs, Section 33 of PUM Act, 2004 enables i. electricity; theBoard to prepare and approve standard planning provisions to be ii. roads; called the Samoa Planning Provisions. These would usually represent iii. water; consistent requirements that would be uniform across all SMPs. Most times these accommodate much of the process issues in land use iv. effluent disposal; and planning tools. v. telecommunications; f. made and unmade roads; g. access and egress; h. how the proposed development relates to the existing t>:::::r:...r~ or likely use and development of adjoining and nearby land; and i. where a staged subdivision, how the balance of the land may be subdivided. Section 46 outlines the form of ‘Matters’ that can be used by PUMA in making decisions. Two are specifically related to this discussion: (c) the provisions of a sustainable management plan or draft sustainable management plan; (e) any strategic plan, policy statement, development standards, guideline, or the like, which has been adopted by a public authority;

12.2 Development Control Both of these are useful to PUMA. Point (c) enables PUMA to even apply draft SMPs, so if there are bureaucratic delays in finalizing SMPs, Under the Development Assessment (Development Consents) Part V of their provisions may still be relevant in some decisions. Point (e) is most the Act, the PUMA can ask that development plans and reports be useful for PUMA. The generation of good graphic or submitted with applications to cover. performancebased guidelines and criteria for a range of technical matters can take some time to generate. However there are many Section 41, enables such a request for information by way of plans or development guides, manuals or best practices that are made for reports to cover a number of parameters: universal application (e.g. International Erosion Control Association, a. site analysis; Erosion and Sediment Controls for development). This provision can be 102 SAMOA – CITY DEVELOPMENT STRATEGY used to make this CDS a ‘matter’ that could be used in current 12.4 Adaptation and Risk Reduction priorities decision-making. With regard to the climate adaptation and risk reduction messages Section 46 goes further in describing the technical matters and extracted from this CDS development, the following technical arenas parameters that the strategic plans, guidelines, policies can cover: would be of priority for guideline/ development standards generation: (h) likely effects on cultural and natural heritage; a) The medium protection forecasts that Samoa will experience a 2 ºC increase in warmer weather with a corresponding increase in the (i) the sustainability of the proposed development; number of days of extreme heat. The Urban design guidelines need to (j) suitability of the site for the proposed development, including ensure the Urban form, layout and design elements of the City consideration of natural hazards such as flooding, earthquake, accommodates more cooling environs, especially through provision of cyclone, subsidence, slip, drainage and erosion; additional open space and landscaping (shading & general softening (k) the character of the proposed development, including its bulk, of hard surfaces) close to peoples’ living areas and in the city centres. size and shape; Landscaping, open space provision, use of network spaces and (l) adequacy of arrangements relating to waste water, sanitation treatment of buffers between key land use types are important. How and access to the proposed development; water sensitive urban design measures can be built into final community development layout and designs also will need guidance. (m) provision of private and public open space; Increasing vegetate open space areas throughout the City will (n) adequacy of arrangements made for the parking of vehicles alleviate the prospect heat sinks that will be created with climate generated by the proposed development; change; (o) proposed safety features of the development, including fire b) More energy efficient buildings and Village areas: layout safety features; features can be improved; more shaded areas; breeze-ways; (p) adequacy of the structure of buildings and other structures to increased natural light in buildings; more heat resistant buildings, more fulfil the purpose for which they are to be used; landscaping about buildings etc. What standard building height should (q) the public interest… be maintained? Are two storeys with breeze-ways underneath a good scenario - they can provide flood proofing of lower parts of a house as

12.3 Urban Design and Building Control well); c) Water efficiency options and water harvesting capabilities Given that MWTI Building Section is in the midst of reviewing the Samoa need to be brought into development approval processes to ensure Building Code, there is a good opportunity for PUMA and MWTI water security in future development areas. This is especially important collaboration. Many of the parameters accommodated above are in higher elevated areas where the satisfactory service from existing relevant for building and subdivision control as well. At the moment reticulated water supply systems cannot be efficiently achieved. Again MNRE and MWTI employ a two to three step Development Application it is important that these matters be addressed at environmental then Building Application process. Efforts should be made at every assessment and preliminary design stages of subdivisions and new juncture to reduce the burden of approval processes. development areas. d) While the statistics show a probable decline in the number of tropical cyclones, there is expected to be an increase in their intensity. 103 SAMOA – CITY DEVELOPMENT STRATEGY While ‘planned retreat’ options are preferred for built up central areas including the CBD, more resilient coastlines through defence and protection mechanisms will be required. These measures should be a mix of ‘hard’ and ‘soft’ engineering and non-engineering options that suit the circumstances of the geomorphology of the coast. Development and building designs need to adapt to the new threats and be consistent with international best practice. e) To assist with the application of Table 3 and 4 for the Structure Plan (Section 11) the following codes and guidelines should be availed as soon as possible and made under Section 46 (e) of the PUM Act, 2004:  Flood Hazard Risk Assessment  Coastal Hazard Risk Assessment  Landslip Code  Flood zone building requirements  Footings and foundations  Water Balance Modelling  Stormwater Management  Soil Investigations for Flood prone areas  Emergency Evacuation provision  Erosion & Sediment Controls 104 SAMOA – CITY DEVELOPMENT STRATEGY 13. Implementation of the Strategy 13.3 Capacity Development & Investment Plan Based on the assessments, evaluations and reporting in sections 4 to 10 of this CDS, there are a number of discrete recommendations

13.1 Role of the CDS: nominated in each section to cover the various themes, sectors and The role of the City Development Strategy (CDS) is to provide the cross-sectors. The Structure Plan itself (Figure 43, section 11), brings strategic framework for land use planning, development and together a number of key strategic actions that need to be environmental management for the City of Apia. It is accommodated programmed over the coming three (3) to five (5) years. Annex 3 by the PUM Act, 2004 and will particularly rely on the subsequent contains the Capacity Development and Investment Plan (CDIP) with generation of Sustainable Management Plans (SMPs) under Part IV of indicative costings provided over a five (5) year suggested programme the Act. These SMPs will provide the interface between National period. advocated forms and location of development and community needs. The CDS will guide the SMPs so they can be used to Most of the Strategic Actions in the Capacity Development and successfully manage and direct future land use and development, Investment Plan area geared toward the scheduling and roll-out of and guide decision-making within the City area. SMPs as the key instruments for strategic planning under the PUM Act, 2004. Some tasks are more strategic in nature and are either Having a Structure Plan for the City is central to the implementation of catchment based or broader area based. Their completion will also the CDS. The role of the Structure Plan is to: ultimately assist with successful SMP completion and implementation as  spatially represent the best potential uses for particular areas at they fill important gaps. Some big ticket items such as the repeating of a City wide scale; the Vaisigano flood/inundation modelling to other City catchments,  guide the location and form of development to ensure that the while essential for good land use planning has not been included as a impact of development on communities and the environment is Strategic Action, as the works are currently in train and resources minimized; committed through MNRE programming (Water Resources Division,  guide the location and range of strategic land uses including MNRE, advice). activity centres, transit corridors and new growth areas; and, Aspects of the implementation of the Structure Plan can be actioned  foster new urban development forms where needed. independently. The Land Use Controls for Hazard Areas, nominated through Table 3 and 4 of Section 11 – are designed to be implemented

13.2 Land to which it applies as soon as the flood and inundation modelling (as accomplished for This CDS applies to land described as the greater urban area of Apia the Vaisigano catchment) is completed for the balance of the City. being the Districts of Vaimauga East, Vaimauga West, Faleata East, With the role out of the SMPs it is expected that more refined hazards and Faleata West. Through the generation of the CDS it became and risks will be known and more receptive requirements can be evident that there were significant land use changes and outlined via the SMPs or associated development standards. In the development issues to the west and immediate south-west of Vaitele. meantime the Table 3 represents a control mechanism that enables a The Structure Plan picks up on this and as such the roll-out of SMPs as degree of flexibility in decision-making. Endorsement of the CDS as a part of the CDS delivery may at times involve lands outside the strategy includes it as a matter for consideration in Part V nominated City area. determinations of Development Applications under Section 46 (e) of 105 SAMOA – CITY DEVELOPMENT STRATEGY the PUM Act, 2004. This can enable adequate force to this land use 13. 5 City Management Units control mechanism while the programme of SMPs is rolled out. The City Spatial Plan nominated the production of six (6) SMPs to cover Additionally Annexes 5(neighbourhood planning) and 6 (Preferred Uses the City based in part on major catchment boundaries – and assigned - Land Allocation Criteria) will be useful guideline references for PUMA a likely schedule for the role out of these SMPs: planners where current policy and development standards are lacking. Finally the use of the Structure Plan is reliant on the ongoing use and 2015 – 2016 1. Alesia River Catchment 2. Central Business District (CBD) (RC) SMP SMP the maintenance of the Land Use Plan (and database) and the 2017 – 2018 3. Faleasui RC SMP 4. Vaisigano&Vailima RCs SMP Combined Risk and Constraints database. These two important 2019 – 2020 5. Fuluasou&Papaseea 6. Vaivase&Letogo RCs SMP databases shall be updated as information and data is availed. RCs SMP

13.4 Implementation Schedule Having reviewed the socio-economic, bio-physical, cultural and An implementation schedule has been included in Annex 4 to economic dimensions of the City, the use solely of river catchments to correlate with the Capacity Development and Investment Plan. The drive the roll out of SMPs may be problematic. It is considered that schedule supports PUMA’s stated land use planning programme over ‘management units’ based in part on catchments, as well as the coming 24 months: governance boundaries and city landscape features – may present a better means to prioritize SMP production. – City Development Strategy – Urban Design Manual (tied to new Building Code) The nomination of city management units has been progressed – Waterfront Development previously (BECA, 2011), as presented in Figure 44, below. Some 20 – Detailed Sustainable Management Plans (SMPs) years ago a town planning study recommended up to 18 management units. This would be an unwieldy number; however some – Use of SMPs derived from the village level for decisions adjustment of those proposed by BECA was also warranted. There is need for general consideration of the CDS by the community. The CDS and through it the Stucture Plan relies on the role out of SMPs to fill important data and information gaps. As such the Implementation Schedule is only detailed through to the end of 2016, as it is expected that at least 2 SMPs would be generated in that time and major advances would have been made in terms of data enhancement and commitment of village councils and government agencies. It is at this juncture that there can be a review of the proposed Structure Plan. 106 SAMOA – CITY DEVELOPMENT STRATEGY Figure 44: City Management Units proposed by BECA (2011) stage they would only have a programme administrative role as not all planning and development issues can be taken up with the 80+ individual village fono within the City. Some matters cross village boundaries or are universal to major portions of the City e.g. flood modelling in certain catchments.

13.7 Priority SMP Scheduling Based on the suggested City Management Units the scheduling of SMPs proffered by the City Spatial Plan was revisited. These adjustments also take on board some matters that were addressed at the last Stakeholders Meeting, May 2015. The following Table 5nominates an indicative priority order of SMP development. Figure 46 shows the location of these scheduled SMPs in the context of the City. The final priority may be dictated by other project directions, investment and commitment – noting that the Waterfront Development project had recently gained momentum and commitment from the highest level of Government. It is expected that the programming of other relevant agencies may impact on the final priority scheduling. It is considered essential that the actual boundaries of the SMPs as suggested be confirmed with village representatives’ input to ensure there is ownership and transfer of knowledge from the outset of this programme.

13.8 Strategic Technical Assessments In addition to recommending matters for the Structure Plan and matters to be taken up with village communities during the roll out of T SMPs, the vulnerability assessments in Part 2 identified a number of City he Figure 45 shows the proposed City Management Units that will assist wide assessments and actions to be undertaken. Many of these are with the role out of SMPs as well as the management of other key currently part of programmes and projects of various government capacity development initiatives under this CDS. There was some agencies and/or authorities; however they are summarized here as trepidation with the nomination of the City Management Units at the they are pertinent to strategic land use planning. time of the Stakeholders meetings, as some of the traditional leaders saw these as threatening village fono mechanisms. However at this 107 SAMOA – CITY DEVELOPMENT STRATEGY a) Land Use (refer to page 33) - Identify any waterways (natural springs, pools, rivers, wetlands,  PUMA shall facilitate the completion of the land use survey and waterholes etc.) that have ecosystem services potential; update land use maps and databases to validate and uses about - Agree on which waterways and drainage-ways (urban the City. The land use survey should enable differentiation of multiple waterways) need to be protected or made free of uses on land parcels. The land use survey should identify the development to assist with ecosystem services, off-road location, size of land parcel, type of uses, interface issues, building network provision, WSUD measures and recommend required form/type, condition and site coverage estimate. The update of the setbacks from the major waterways. buildings layer using the LiDAR base shall incorporate the relative d) Water Resources (refer to page 47) level (RL) of the ground to enable future minimum floor levels to be applied (see also section 7.3);  Use the LiDAR bases to improve the topographic and coastal bases for catchment and coastal inundation modelling;  PUMA working with the Statistics Office shall correlate the improved land use and buildings databases with census data to quantify the  Modelling and vulnerability assessments similar to that completed numbers of people, population densities and buildings in each for the Vaisigano catchment to be undertaken for the remaining hazard classification area applied to the City (low, medium, high catchments covering the City. Modelling outcomes can assist in and critical hazards). This shall become the baseline for future defining hazard and risk classification from low, medium, high and reviews of the CDS and Structure Plan. The work should make ‘risk’ extreme hazards about the City; areas more immediately identifiable – so will also entail updating the  Quantity, velocity and depth outcomes of the modelling shall be Combined Risks and Constraints GIS database. used to nominate future floor levels of buildings to assist with reducing risk over time. b) Social assessments (refer to page 42)  The hydrologic modelling will be used to recommend integrated  PUMA shall generate a template for Population Profiles to be used catchment management responses for the elevation foothill and during the SMP development phase; escarpment catchments. Maps shall demonstrate the form and  Work with the Lands Office, Technical Services Division of MNRE and location of catchment based water quantity and quality measures the Statistics Office correlate the statistics’ enumeration boundaries (WSUD measures) for the upper catchments and mid-slopes of the with validated village council boundaries; City;  Work with the Lands Office and Technical Services Division of MNRE  These WSUD measures will aim to reduce present flooding match confirmed Village Council boundaries with the District conditions at the source, and within the lower mid-slopes to boundaries to assist with future governance options. minimize velocities and depths before water flows to the lower c) Environment and Natural Resources (refer to page 46) flood prone areas of the coastal plains.  Implement community education initiatives as needed to address  The substantial catchment based WSUD measures shall be costed the filling of mangroves, wetlands, waterways and drainage-ways and incorporated into Government Sector Plans and programming relating to the implications to catchment and flood management; for implementation.  Ecological assessments and classification of urban ecology and  The outcomes of the WSUD modelling and assessments will assist aquatic ecology within the City is a priority. City wide or the Division of Water Resources (MNRE) confirm catchment management unit assessments should be undertaken to: protection areas. - Identify habitat areas/zones within the City; 108 SAMOA – CITY DEVELOPMENT STRATEGY  Catchment strategies for the catchment protection areas should contamination. These areas shall be added to the Combined Risks identify the best location for water retention and control facilities and Constraints database; elsewhere in the catchments to address hydrological changes  Areas of potential extractive resources such as minerals or quarry from the expected changes in land use; materials shall be mapped. This information shall be used to  Groundwater resource assessments should be undertaken for the consider the likely impact on urban systems such as road access to western catchments of the City to determine their status in terms facilitate extraction; of: quality and yield potential (aquifer capacity); numbers and  The land use mapping survey work shall identify dangerous uses location of bores, groundwater recharge points and rates, main and activities within the urban area where setbacks and safety water users and their uptake volumes, threats based on prospect buffers should be employed in the future land use changes. h) Land Supply and City Structure – refer to page 69  The groundwater resources work shall highlight the specific land uses and activities which pose the most significant threats to  PUMA with the Statistics Office work with MWTI on an update of the groundwater resources and infrastructure. It shall confirm suitable Buildings data layer for the City so that follow up work can monitor buffers for a range of land use types and categories; the residential take of land (as a ‘land bank’ system).  In areas where existing groundwater resources exist, provide a i) Movement Networks – refer to page 77 network of observation points to satisfactorily monitor groundwater  Land Transport Authority (LTA) continue the road traffic counts on resources shall be instigated. all major roads about the City so that a road hierarchy can be e) Land Resources (refer to page 55) confirmed;  The Land Resources mapping database shall be enhanced to  LTA confirms the desired road hierarchy classifications (including enable its use for urban land capability assessments. The urban confirmation of suitable terminology) aligning counts to the fringe areas and rural lands about the City shall be classified into hierarchy; broad classes of urban capability. The mapping will be underpinned  That once the road counts are completed and a road hierarchy is by soil mapping using available tabular information on soils, LiDAR confirmed, the Structure Plan be amended to suit and subsequent bases, remote sensing and aerial photo interpretation. SMPs note the agreed hierarchy; f) Landscape – refer to page 55  That PUMA work with LTA to undertake field work to identify issue areas including: where unsealed roads service residential areas,  For each of the city management units undertake scenic quality streets have no footpaths, and where there are problems with assessments (SQA) to confirm the landscape units that should be linkages and connections to key services (e.g. retail, open space protected from urban intrusion. and schools). g) Resource Hazards – refer to page 58  That once the road hierarchy PUMA work with the villages to  Land resource assessments (see section 7.4) shall distinguish determine the best routes for public transport to service village geotechnical hazards and areas subject to landslip as well as areas; areas susceptible to erosion;  the LTA confirm the location and use of the off-road network  The land use validation surveys and update of mapping in the GIS system, especially as regards the opportunities it provides in shall identify areas where past uses may have led to 109 SAMOA – CITY DEVELOPMENT STRATEGY implementing WSUD measures to ensure uncontrolled flows of  All telecommunication systems and assets shall be located, with water do not damage LTA assets. nomination of the constraints that should be applied to nearby development. The work should identify current capacity shortfalls j) Infrastructure & Services- refer to page 85 and the needs to service future development;  The key infrastructure and service agencies review the hazards and risks to their assets in the context of the Structure Plan and the nomination of the future Infrastructure Corridor;

13.9 Land Use and Governance  The EPC and the SWA among other service agencies confirm their A significant issue that will impinge on the success of the Land Use present difficulties with servicing residential areas, commercial and Planning Programme and CDS implementation over the coming three industrial areas. Information provided should report on the current (3) to five (5) years shall be the matter of governance. Annex 2 situation regarding services, capacities and gaps in infrastructure broaches choices for collaborative arrangements between PUMA and essential services as well as future servicing needs for the City; (national government) and village fono. These were discussed at the major stakeholder’s forum in February, 2015. While there was some  The infrastructure and service agencies outline likely costings for concern, village fono elders could see the benefit of some type of land infrastructure and service needs based on preferred use areas and use zoning in traditional village areas – however a nurtured and the Structure Plan presented in the CDS. This work should consultative approach was suggested. Graphic based guidance and incorporate the best scheduling of infrastructure and essential incentivization was preferred over prescriptive zoning models. service provision;  The Utility Service Committee (USC) confirm its support of the East – The continuing land use planning program (PUMA) will require a good West Infrastructure Corridor social marketing/community engagement plan to maintain awareness  Existing drainage ways in the lower built up areas are located, and enhance momentum before the roll-out of the SMPs. It is mapped and assessed in terms of their: capacity; current function; suggested that governance and mechanisms for joint determination of condition and required maintenance (including annual costs of land use decisions (both strategic and development control rehabilitation). The implications from land use intensification about orientated) be a key theme of the engagement plan. drainage-ways shall be assessed.  The practices of filling in and reclaiming drainage-ways for 13.10 Financing Urban Development development shall be stopped. Urban growth and development is an expensive business. Reliance  Report on the current reticulated sewerage network; the capacity cannot continue on general government financial resources through issues; options for the future and any proposed upgrades and public finance management systems. Financing urban development timing. Recommendations on the use of small ‘advanced water through development assistance programmes is also not sustainable. treatment systems’ (AWTS) and composting toilets shall be forwarded. If a reticulated sewerage system is to be implemented Alternative financial resources need to be availed. Annex 6 in the future, land use planning at the SMP stage should identify contemplates a number of avenues to address the financing of urban the logical location of potential pipeline alignments; development. The options canvassed include:  The land resource information data layers shall be enhanced to enable the location of suitable areas for land disposal of partially  Developer contributions or fully treated effluent;  Fees on essential services invoices 110 SAMOA – CITY DEVELOPMENT STRATEGY  Approval fees 13.11 Human Resource Capacity Needs  Rating of non-traditional land; differential rating systems  Betterment taxes Through the CDS development phase, in addition to key Stakeholder  Other taxes: stamp duties, capital gains tax etc. meetings, there were individual one-on-one events and group training  Payment for ecological services (e.g. carbon sequestration) sessions undertaken. The purpose was two-fold. Firstly, to garnish ideas on the direction of the CDS; and secondly, to gain an affinity with Some strong decisions need to be made over the coming years as present decision-making processes. Secondly it gave opportunity for finance for urban development becomes more difficult. These debates participants to agree on human and related technological capacity will need to be made at a high level as all have significant impacts on needs. broader fiscal and economic systems. Annex 9 summarizes those human resource development needs as In terms of the most plausible options, it is noted that the PUM Act, 2004 expressed by PUMA team members over the last 5 months. provides the ability for the Government to levy Developer Contributions via section 49s. This may represent for first priority for research with 13.12 Monitoring and Evaluation (M&E) regard to the longer term financing of urban development. To institute The Monitoring and Evaluation (M&E) system is essentially captured developer contributions much data collection on costs of servicing and within Annex 3 where Indicators and targets are nominated. It will modelling of infrastructure provision is needed – so that contribution include a mix of ‘easy wins’ (short term, low cost outcomes) as well as strategies are targeted at the extra demand on public services longer term outcomes, to ensure that some initiatives get off the created by different forms of development. ground early and demonstrate conviction to the CDS. This will assist in attracting interest for longer term implementation. Present practice of private development on customary, private and government land is for proponents to provide very basic services, with reliance on government agencies to build and absorb costs for the balance of infrastructure and essential service provision. This is inconsistent with principles of user pays in development processes. Where there is significant private benefit in green fields development, all infrastructure and essential services need to be provided by the proponent to engineering and environmental standards. Transferring infrastructure provision to the proponents of development will provide large cost savings for Government. Engagement with communities guided by the Social marketing / engagement plan could broach further discussions at the local level – as positive outcomes at this level, ease the political burden of complex decisions. 111 SAMOA – CITY DEVELOPMENT STRATEGY Table 5: Priority Sustainable Management Plans – Schedule No. Programme Year City Management Unit Focus Area &Rationale 1 2015 01 CBD Waterfront Development Strategic assessments and preliminary design work is underway. The project has momentum with commitment at the highest level of Government 2015 01 Broader CBD Stimulated by Waterfront project there may be significant consequences for the outer core of the CBD. There are extant issues with low lying lands and ill- formed drainage due to past filling. Significant impacts in flood events and nuisance flooding with small rainfall events 2 2015 06 Area showing signs of land use conversion to heavy industry in part and Peri-urban areas about the processing – setting a complex precedent. Some parts are adjacent to newly Tafaigata Waste Centre and subdivided SLC residential land – buffer issues. More broadly if heavy industrial east toward Siusega takes hold without planning there is a likelihood of heavy trafficproceeding through residential streets between this area and the Vaitele Industrial area. There has been mention of moving the Tafaigata facility and Water resources have raised concerns of land use change threatening water bores / aquifers. Industrial focus will also enable review of Vaitele SMP provisions – which have proved difficult to implement for some areas. 3 2016 05 Focus on Vaiusu Village and potential new Port location. Implications for new Vaiusu Bay to Sports Complex Arterial Road connection in north – south direction. Major economic ana Siusega amenity changes for Vaiusu. Extant transition land use issues with Vaitele. Low elevation areas but manageable risk 4 2016 02 SLC subdivision and rapid development over last 5 years. High and growing Vailele population with little commercial or personal service centres. Limited road access& public transport 5 2016 02 Enable completion of Vaitele area within CMU 2. Balance of Vaitele 6 2016/2017 03 Modelling of flood liable land completed. Has incorporated prospect building Vaisigano Catchment floor level controls. Will provide an opportunity to see how best these can be instigated. Also much engineering work along Vaisigano– will require community to consider implications and plan for changed circumstances 7- 2017+ Balance of areas Subject to CDS and Structure Plan Review (2016) 12 112 SAMOA – CITY DEVELOPMENT STRATEGY Figure 45: Proposed City Management Units 113 SAMOA – CITY DEVELOPMENT STRATEGY Figure 46: Scheduling of SMPs 114 SAMOA – CITY DEVELOPMENT STRATEGY City of Greater Geelong and David Lock, 2008, Clause 56 Walkability References Toolkit - Making walking preferable, not just possible, City of Greater Geelong http://www.green-alliance.org.uk ‘Planning for Sustainable Wiedmann, F., Salama, A &Mirincheva, V. 2014.Sustainable urban Development’. UK Government Parliamentary Newsletter 16-27 qualities in the emerging city of Doha. Journal of Urbanism: February 2004. Planning Policy Statement 1 (PPS1). International Research on Place making and Urban http://ias.unu.edu/research/sdf.cfm Sustainability, Volume 7, Issue 1, 2014. 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Annex 1: CDS Development Process ~~H~~ Inception OH&S Plan & Meeting Project Plan Internal Project -_1- - - - - - - -Previous - - - - -PUMA - - -& MNRE & Team Workshop Govt Agency Reports/Studies Statutory and Literature and Spatial Develop Base Strategic Planning Database Development Mapping Layers Requirements Development Smallworld) Review Gap Analysis Confirm overall Planning & Identify /Confirm Sustainability issues Objectives Internal Government & Key Stakeholder Consultation Technical Reviews Community & Mapping Workshops Sustainability Management System Biophysical Social Economic Technical Flora and Fauna Visual& Recreation Land Use & Opp Biodiversity Aboriginal Heritage Industrial options Bushfire Historic Heritage Infrastructure Assessment Soils & Geotech Social Dev needs Commerce & Other Hydrology& flooding uses Economic Impact Servicing Costs PIP Implications Evaluation ID likely Evaluate likely Land Capability / matters for uses &impacts Suitability Assmts Internal further review: (location, scale, (Constraints and Community CC & DRR type, size, intensity Opportunities). Workshops etc Confirm Plng criteria Consideration of Design Scheme, Alternatives Draft Covering Agency Codes & Policy Report & technical Consultation consideration review Adaptation mapping &Mitigation s Measures Outputs & Review Recommendations Final Report/s on Referral for review by Key for LU planning CDS Stakeholders & Agencies management & (Including rendered Finance Mapping) Framework developed for Implementation 117 SAMOA – CITY DEVELOPMENT STRATEGY

Annex 2: Functions of PUMA & Governance 1. Functions of PUMA The Planning and Urban Management Act 2004 (PUM Act, 2004) has been progressively implemented over the last ten (10) years through the Planning and Urban Management Agency (PUMA), guided by the Planning Board established under the Act. Prior to the Act, land use and associated development approval was managed rather haphazardly at the national level through a mix of Acts, instruments and charters of various Government Departments, agencies and authorities. There were the use of building codes and regulations under the Public Works Act (including the Draft Building Regulations, 2003); the land conversion permit processes managed by the Land Division of the Dept. of Land Management, Ministry of Natural Resources, Environment (MNRE) for Government lands; the role of the Samoa Land Corporation (SLC) in designing and developing new release areas; the work of the Crops Division of the Ministry of Agriculture and Fisheries (MAF) in sustainable rural land use; the work of the Catchment office of the former Dept. of Forestry (now with MNRE?) and the various utility and infrastructure agencies/corporations such as the Electricity and Power Corporation (EPC) and the Samoan Water Authority. There was still some overlap evident with land use planning after the making of the PUM Act, which did not repeal other Acts or provisions. The PUM Act covers all land in Samoa. There is a perception that it only covers the urban areas of Apia. In addition the Land Board under the Lands, Survey and Environment Act, 1989 is mandated with the management and development of all government land. Its administrative arm, the Land Management Division, interprets this to include deciding upon use of government land. This overlap had caused some angst in decision-making in the early period of the PUM Act, 2004. Under the PUM Act 2004, EIA provisions are very much tied to a development planning and development consent process, however there are difficulties in adapting the draft Regulations to suit the PUM Act, as they apply a different statutory definition on the ‘environment’. Under the PUM Act, consistent with contemporary environmental law the “environment” includes all social, economic, physical, cultural, amenity and ecological dimensions, whereas under the LS&E Act, 1989, the definition is restricted to what is usually deemed the ‘natural environment’. The PUM Act contains specific provisions for requesting an EIA as part of the development consent application process, provides for EIA regulations, as well as makes it one of the matters that are to be taken into consideration when considering a development application (s46 (f)). In addition s 63 enables the PUMA to act on matters of environmental nuisance outside of the development application process. The call for an EIA is discretionary under the PUM Act, which is again consistent with modern practices. The more ‘mandatory’ need to complete an EIA under the LS&E Act 1989, suffers from the age old quandary of determining what is ‘significant impact’ and ‘significant development’. 2. Administrative Processes While the PUM Act 2004 does not outline an administrative process, it does require an EIA to be prepared in accordance with written specifications from PUMA (s42 (2)). These requirements can be generated without Regulation although this is not ruled out as the power to institute Regulations under s105, includes the following with respect to environmental assessment: (e) the documents and information required to accompany development applications, including documents that will assist the Agency in assessing the environmental effects of development; (j) the form of statements of environmental effects and environmental impact assessments; (k) the documents and information required to accompany statements of environmental effects and environmental impact statements; 118 SAMOA – CITY DEVELOPMENT STRATEGY (r) the factors to be taken into account when consideration is being given to the likely impact of a development on the environment; (s) the preparation, contents, form and submission of environmental impact assessments; (t) the making of environmental impact assessments available for public comment; (u) the methods of examination of environmental impact assessments and representations made with respect to activities to which any such statements relate. Ongoing endeavours of PUMA aim to distil current overlaps in environmental impact assessment procedures to improve their use and lessen the current confusions. Defining the ‘environment’ as it has been done in the PUM Act is consistent with contemporary international practice as it appreciates the dynamics of the environment in terms of the pursuit of sustainable development. 3. Understanding Village Councils At the village level the Village Councils, pulenu’u and pulematai underpinned by the fa’asamoa (Samoa custom) instil local governance that has ensured stability of village lifestyles for some generations. Village systems incorporate a hierarchical structure of chieftain kinship ties and customs that govern the relationships among the people steeped in values defined by long-held principles of giving, sharing, reciprocation, respect, and service to the family. While there is no provision in the Constitution for a system of elected local government, the Village Fono Act, 1990 validates the authority of village fono to have authority “in accordance with Samoan custom and tradition”. The Internal Affairs Act 1995 establishes the [Ministry] Division of Internal Affairs, whose purpose among other things is to make provisions to recognize and organize village authority, and to advance local government through the development of village authority (s5(1)). “Local Government” is defined as including the Government of Samoa and administration of a village by its Fono. It advocates a partnership in governance. The Village Council (or fono) may exercise authority over any person ordinarily resident in a village, and make rules governing the development and use of village land (s4 Village Fono Act, 1990). Some village councils have set their own rules for land use, development and protection of lands, although these are not recorded nor have they been assessed in terms of their effectiveness in changing societal expectations. It has been the role of the pulenu’u (representative of the village) to provide the link between village level governance and national government. The pulenu’u are nominated by the village matai and Village Council and are often long-standing respected representatives. The Government of Samoa (GoS) through the Cabinet confirms the appointment of nominations. Where there are no customary villages, a Sui-ole-malo is appointed by the GoS to represent the Government at the village level. The pulenu’u and Sui-ole-malo receive stipends through the Ministry of Women, Community and Social Development, Internal Affairs Division. There are no formal Terms of Reference (TOR) for the pulenu’u as till now it was expected that they would act consistent with fa’asamoa traditions, and as guided by the Village Fono Act, 1990 and Internal Affairs Act, 1995. 4. Traditional Village Governance In traditional village settings the Government has been able to rely on systems that have been used for: consensus building; maintaining basic social justice; providing harmony with development; assisting with community services/support, and strong respect for the environment and basic lawfulness. However societal changes from subsistence to cash-crop and commercial enterprise; increased population densities and urbanization; and dominance of ‘individualism’ over communal sharing – has placed pressures on existing village and national level governance. As communities have experienced the cash and development economy, aspirations are changing and land use and development scenarios are getting more complex, intensive and extensive in their impacts and implications. Individualism is placing pressure on the sharing and consensus based fa’asamoa, and natural and human induced hazards have villages facing scenarios beyond their usual governance capacity. 119 SAMOA – CITY DEVELOPMENT STRATEGY Population growth and pressures from a development economy have national government agencies and service corporations under pressure to maintain basic human services especially in urban areas. The pressures and driving forces have culminated in the unusual (for Samoa) appearance and growth of non-traditional village settings. The Government now finds itself having to provide additional services that would usually be covered by Village Councils. People are settling in peri-urban settings, often away from good transport, basic services and employment opportunities. The communities often comprise of people originating from different villages, living on freehold land and having no social obligations to their neighbours as would be the case in traditional village settings. In these circumstances unemployment is rife, especially among the high percentage of youth. Opportunities for activity including sport are negligible and land for farming is not as readily available. In some areas crime has escalated. 5. Roles and Responsibilities of Villages The Village Fono Act, 1990 and the Internal Affairs Act, 1995 – both dictate roles of village fonos and national Government institutions in servicing Village fonos. While the PUM Act objectives may introduce mechanisms foreign to many locals, the flexible nature in which Sustainable Management Plans (SMPs) can be formed and implemented does open up opportunities for them to be melded with existing powers, roles and responsibilities in a manner which strengthens local governance. In addition, for the inception and implementation of the eventual more detailed and community focused SMPs, the following information reveals protocols and requirements that may need to be followed. Village Fonos receive guidance, advice and assistance from the [Ministry] Division of Internal Affairs (Internal Affairs Act, 1995). This includes the drafting of local government by-laws proposed by the Village Fono, as well as policies on social and economic development. Villages can request assistance with development projects through Internal Affairs. This includes the exercise of any power as provided in any other law (s3). It gives Village Fonos specific powers to (s4):  Make rules for the maintenance of hygiene in the village  Make rules governing the development and use of village land for the economic benefit of the village  Require persons to perform work in relation to the above matters. Village Councils can impose penalties on residents through impositions such as fines in money, fine mats, animals or food; or the ordering of an offender to undertake work on village land (s6, Village Fono Act, 1990). The pulenu’u is nominated by the village and appointed by the Minister in traditional villages, whereas a Sui-ole-malo is appointed by the Minister as a representative of Government for non- traditional villages. Their roles are to act as a liaison focal point between Villages and central Government. Their duties usually include the maintenance of health, village cleanliness, communications, and basic law and order. While there are no standard TORs for pulenu’us or Sui- ole-malos, some requirements have included:  Encourage health and sanitation activities  Report to the police use of dynamite or chemicals for fishing  Inform government of new pests and diseases  Assist Government in implementing its projects  Any other duty imposed by Regulation. 6. Good Urban Governance In essence good urban governance focuses on the quality of governance at the local level. The need for this arose out of the recognition of emerging democratic processes, the growth of civil society involvement and the overall emerging complexities of the development economy and the pressures it presents to local communities. There are growing responsibilities and needs for accountabilities for outcomes, impacts, and central governments under increasing pressure to deliver an expanding range of public and social services. 120 SAMOA – CITY DEVELOPMENT STRATEGY The mounting pressures on local Village governance stakeholders, many of whom are ill equipped – make communities vulnerable to corruption, crime and other forms of poor organizational behaviour. It also increases susceptibility for citizens to be alienated. The pressures manifest in lack of clarity regarding roles and responsibilities, confusing regulatory frameworks delivered from above, complex administration and poor information flows to the local levels, as well as between local government stakeholders and central government. Poor decision making prevails or there are often disjointed actions that are not sustainable. Good urban governance extends beyond transparency, accountability and corruption to address the forces of urbanization, globalization, decentralization and democratization (UN-Habitat, 2004). These forces manifest at the local level, and there are 2 critical implications for local actions: i) Immediate quality of life of a citizen is affected by factors that are mostly determined at the local level. This may relate to: the location of settlement, land use, activities; the quality of development and of the environment; types of services and facilities provided; opportunities for livelihoods and the availing of means to influence the range of choices and options through decision-making. Additionally where systems are not in place the impacts of corruption and alienation are acutely felt at the local level whether through inequitable and arbitrary allocation of land, provision of services, bribery and or extortion. ii) Localizing governance: the local area or village efforts to improve governance can provide catalytic lessons and effects for fundamental reforms at the national level. Whether this be the coordination of agencies in service provision, strategic decision- making (improved effectiveness and efficiencies), better resource provision or the tackling of corruption. For instance Transparency International suggests that tackling corruption at the national level requires a 10-15 year timeframe, whereas actions at the local level have provided good results in as little as two (2) years (UNHabitat, 2004). 7. Rights based Development There are four important legally binding international conventions addressing different aspects of indigenous rights, human rights, social justice and participatory governance, which incorporate provisions of relevance to the CDS and broader Urban Planning and Development Programme. The conventions and the dates of ratification are:  UN Declaration on the Rights of Indigenous Peoples, UNGA, 61st session at UN Headquarters in New York City on 13 September 2007  International Covenant on Civil and Political Rights (ICCPR) (01/05/72) – Accession by Samoa, 2008  International Covenant on Economic, Social and Cultural Rights (ICESCR) (01/05/72). Reservation to art. 10 (2).  Convention on the Elimination of All Forms of Discrimination against Women (CEDAW) (09/03/84) Samoa adheres to the UNGA Declaration as a member of the UN. It is party also to the Convention on Civil and Political Rights (Signature/ Accession, 2008) and (CEDAW). While not yet a signatory to the ICESCR the push for ‘rights based’ governance by the GoS is consistent with the Covenants key ambitions. Reflections on the objectives of these International conventions is healthy and should be explored further as the urban planning and development management programme progresses. The UNGA Declaration on the Rights of Indigenous Peoples, 2007 has significant implications on Governance options in Samoa. Indigenous peoples involved in customary societies have ‘absolute’ right to self-determination, governance, use and management of their resources. 8. Implications for Village Governance Introducing a land use approach consistent with good governance and rights based principles to assist Villages address mounting pressures and complexities beyond their usual control and 121 SAMOA – CITY DEVELOPMENT STRATEGY resources can serve broader ambitions: to improve transparency, accountability, clarify roles and responsibilities, simplify regulatory platforms, provide better information and extend capacities for decision-making. Features of contemporary community based (or ‘integrated’) planning systems in additional to those canvassed previously include: 1) Incorporation of forward assessment/forecasting of threats or cumulative impacts; 2) Incorporation of community and local knowledge in decision making; 3) Objective based guidelines and EIA as part of a simple planning process; 4) Flexible and modular systems able to be adapted or adopted by local communities with local additions or variations; 5) Relies and supports community empowerment, information and continued involvement throughout the development and resource use process. The PUM Act, 2004 under Part IV ‘Sustainable Management Plans’ accommodates the pursuit of these principles and ambitions in a forward positive manner via the SMPs. A SMP of whatever form will need to consider the potential roles of stakeholders at the local and national level. This is a crucial consideration for the success of the City Development Strategy as well as the fuller implementation of the PUM Act, 2004. ‘Roles and responsibilities’ will evolve with the role out of subsequent more detailed and community focused SMPs. A programme of SMPs could be determined with the Village Councils, and should be preceded with community profiling work, which should be undertaken with the Village fono to consider specific options as regards roles and responsibilities. There are general precedents on the differentiation of roles between the state and local government bodies. Notwithstanding the above comments the distilling of the implications of good governance principles, sustainable development objectives and international commitments to human rights and social justice – enables the proffering of potential roles and responsibilities of stakeholders in urban planning and good urban governance. The following notes are provided to stimulate discussion on the options. 9. Potential roles Village Councils and PUMA At the local level (Village Fono)  participate in the deliberation of development issues, consensus building, concept generation, evaluation of and implementation of programmes and projects stemming from SMPs, coordinating on-the-ground activities from national government programmes;  Suggest areas of possible legislation (by-laws), or in terms of Part IV of the PUM Act, suggest when SMPs could satisfactorily address a land use, development or environmental protection issue in the village;  Ensure local messages are delivered to the national level, and through representation participate at ‘committee level’ of national government deliberations; and  Act as people’s representative in the exercise of their constitutional rights and human rights, and to access information on matters of public interest or consequence. Of specific relevance to the PUM Act, 2004 and SMPs, local stakeholders could have a role in partnership with national government - in the following:  Land use planning activities, specifically, ‘participatory community planning/plans’ leading to SMPs or satisfactory application of other parts of the Act (e.g. EIA, development consent evaluation, community surveys etc.) 122 SAMOA – CITY DEVELOPMENT STRATEGY  Management activities, specifically, where community development projects are spawned from locally driven participatory plans or SMPs (e.g. sports, small-scale water management works, small-scale sanitation works, local roadingetc.); and  Monitoring of national government and corporation activities, specifically that of utility and infrastructure agencies, public service providers and business. At the national level (PUMA and the Planning Board – in addition to roles established by the Act)  Provide the mechanisms for local stakeholders through the Village Councils or similar – partake in planning activities, including the ability to promulgate the generation of a SMP.  Oversee local planning and coordination of development, incorporating where possible incentives and endeavours for resources to be equitably distributed between urban and rural populations;  Be mindful that local level governance, may in time (or sooner for non-traditional settlements) require an ability to accumulate financial resources for local level actions;  Provide opportunities for local Village Councils and stakeholders to be continuously involved in land use, development and urban management - deliberation and decision making;  Provide information accessible to local stakeholder on the state of the local environment, local land use and future development prospects;  Ensure the pulenu’u is supported and active in providing the link between local and national level governance;  Ensure the implementation of the PUM Act 2004, is based on principles of Participatory Governance, Subsidiarity and Inclusiveness (i.e. prior informed consent). Special service may need to be availed to the socially disadvantaged groups;  Be aware of the divisions within local communities, and seek to promote the participation of marginalized and excluded groups in development and community processes, taking special care with the participation of women and the youth;  Continually consult communities, residents and other stakeholders on their development needs and priorities; and  Provide for locals’ participation in the drafting process and review of SMPs, Development standards/guides, Planning provisions and the making of Regulations. 123 SAMOA – CITY DEVELOPMENT STRATEGY

Annex 3: Capacity Development & Investment Plan STRATEGIC ACTION 1: Confirmed Land Use Plan for Apia and Surrounds Indicative Budget (USD) I ACTIVITIES INDICATOR TARGET Lead Partners Year 1 Year 2 Years 3-5 Total Activity 1: Confirm Cadastral Base, Base including SLC approved subdivisions confirmed Oct-15 PUMA Tech Services 2,500.00 2,500.00 by Tech Services Activity 2: Confirm buildings layer using Building MWTI, LiDAR base, incorporate improved DTM Section, Dec-15 Building PUMA, DMO. LTA 5,500.00 2,750.00 8,250.00 & use to update land uses by MWTI Section buildings(See links to Strategic Action 2) approved Activity 3: Use new bases to commence LU Plan Tech Services, LU surveys, record floor levels above vetted by Feb-15 PUMA Building (MWTI), 17,500.00 4,500.00 22,000.00 ground (link to hazards work) Village DMO, SLC Fonos Activity 4: LU validation programmed by LU SMP generation (see below): maintain Tech Services, confirmed LU database and adjust Risks and 2 SMPs/year PUMA DEC, DMO, 3500 2,500.00 6,000.00 for targeted Constraints database as data is MWTI, SLC SMP accumulated Totals $8,000.00 $23,750 $7,000.00 $38,750.00 STRATEGIC ACTION 2: Updated Buildings database Indicative Budget (USD) I ACTIVITIES INDICATOR TARGET Lead Partners Year 1 Year 2 Years 3-5 Total Activity 1: Analyze new LiDAR layer – Base interrogate to distinguish buildings, and Tech MWTI, PUMA, confirmed Nov-15 5,500.00 1,500 7,000.00 separately overlay on improved Services DMO MWTI DEM/DTM layer Activity 2: Validate buildings by survey of Building MWTI, Land Use: Confirm buildings layer using Section, PUMA, DMO, Dec-15 Building 5,500.00 5,500.00 LiDAR base, incorporate improved DTM MWTI SLC, LTA Section (See links to Strategic Action 1) approved Activity 3: Use new bases to commence LU Plan Tech Services, Jun-16 Building 22,000.00 2,500.00 24,500.00 LU / building surveys, record floor levels vetted by Building (MWTI), 124 SAMOA – CITY DEVELOPMENT STRATEGY STRATEGIC ACTION 2: Updated Buildings database Indicative Budget (USD) I above ground-level; height of buildings, Village DMO, SLC materials used, age, construction style, Fonos condition, with sketches of main pylons/foundation form – for post review of stability. Record ground conditions Activity 4: Use revised Buildings layer to LU SMPs/year PUMA 2250 500 2750 update the Risks and Combined confirmed Tech Services, Hazards database for targeted DEC, DMO, MWTI SMP Totals $5,500.00 $31,250.00 $3,000.00 $39,750.00 STRATEGIC ACTION 3: Water Resources – Integrated Catchment Management Indicative Budget (USD) I ACTIVITIES INDICATOR TARGET Lead Partners Year 1 Year 2 Years 3-5 Total Activity 1: Use GIS Bases with Risks & Base Hazards to work with Water Resources confirmed Tech Services, Division (WRD) on IWRM: establish likely Nov-15 WRD 5,000.00 5,000.00 by Tech PUMA boundaries of upper area catchment Services protection areas Activity 2: Use agreed bases with WRD to confirm the areas nominated as high Building priority to WSUD measures: mid-slope Section, Dec-15 WRD PUMA, DMO, LTA 3,500.00 7,500.00 11,000.00 and higher elevated areas. Field work MWTI required with GPS and merge with approved improved DTM base using LiDAR. Activity 3: Use aquatic ecology input to identify prospect urban waterways and ill-defined drainage-ways in lower urban catchments. Classify with stream order, LU Plan with data fields on quality, fluvial form, vetted by DEC, PUMA, Jun-16 WRD 12,000.00 2,500.00 14,500.00 conditions, ecological benefits etc: Village DMO consider ranking in terms of Fonos incorporation as part of the ‘Sensitive Ecological Areas” layer or Off-road opens space movement network. Activity 4: Confirm waterways and LU drainage-ways of significance – i.e. that confirmed 2 SMPs/year WRD DEC, PUMA 3,500.00 1,250.00 4,750.00 require protection or noting under the for targeted 125 SAMOA – CITY DEVELOPMENT STRATEGY STRATEGIC ACTION 3: Water Resources – Integrated Catchment Management Indicative Budget (USD) I LU Planning database. Amend Sensitive SMP Ecological Areas GIS layer as may be necessary. Totals $8,500.00 $23,000.00 $3,750.00 $35,250.00 STRATEGIC ACTION 4: Development Standards/Urban Design Manual Indicative Budget (USD) I ACTIVITIES INDICATOR TARGET Lead Partners Year 1 Year 2 Years 3-5 Total Activity 1: Internal MNRE and MWTI Framework workshop sessions on integrating new for Nov-15 PUMA MWTI, DMO, SLC 3,250.00 1,750 5,000.00 Building Code and Urban Design Code/Man Manual ual agreed Activity 2: Use external workshop with industry reps to agree on where merging Building MWTI, requirements would be suited. Identify Section, PUMA, DMO, Dec-15 Building 5,000.00 3,500.00 8,500.00 the Specifications that still may need to MWTI SLC, LTA Section be made separately under the Building approved Act, versus the PUM Act, 2004 Activity 3: Assemble materials (local Materials sources) of guides, design standards, aggregate PUMA manuals, best practice etc. Document Tech Services, & Situation Jun-16 &MWTI 2,500.00 2,500.00 a framework to manage external inputs LTA SLC, DMO Analysis Building –use this to generated an annotated generated TORs Activity 4: Procure external assistance to Draft help document Code/ July 2016ar PUMA MWTI Building 22,500.00 2,750.00 25,250.00 Codes/Manuals/Guidelines Manual circulated Totals $8,250.00 $30,250.00 $2,750.00 $41,250.00 126 SAMOA – CITY DEVELOPMENT STRATEGY STRATEGIC ACTION 5: Operationalizing the Combined Risks and Indicative Budget (USD) Constraintsdatabase ACTIVITIES INDICATOR TARGET Lead Partners Year 1 Year 2 Years 3-5 Total Activity 1: Use existing GIS system to catalogue all available data and Base information on past inundation, storm confirmed Tech WRD, PUMA, Nov-15 5,500.00 1,500 7,000.00 surge, terrestrial flooding - add required Tech Services DMO base layers (including hopefully the Services LiDAR base) Activity 2: Work with NIWA and WRD and PUMA, DMO, others as required to mesh spatial data MIWA MOU Dec-15 NIWA MWTI Building, 7,500.00 3,500.00 11,000.00 with known hydrological and hydraulic & Contract LTA, Met and fluvial data - Activity 3: Review hazard criteria Tech Services, MNRE between each theme: wave run-up, Building (MWTI), Vetting of Jan 2016 NIWA 2,500.00 1,200.00 500.00 4,200.00 terrestrial flooding, coastal inundation DMO, PUMA, LTA, all Outputs models to consider consistencies MET Activity 4: Review available Data Tech Services, international best practice, science Catalogue Feb 2016 NIWA DEC, Met Office, 2,500.00 750.00 3,250.00 based on integrated hazard criteria d DMO, MWTI Activity 5: Generate a simple Excel based model which assists with either Spreadshee PUMA with Building (MWTI), integrated risk criteria and multiple May 2016 7,500 4,500 12,000 t Circulated NIWA DMO, LTA, MET query of separate parameters to build an overall hazard risk/index Activity 6: Use the simple Excel linked to NIWA & Combined Risk and Constraints MNRE database to enhance with response partners Building (MWTI), June 2016 PUMA 6,500 1500 8,000 based parameters –dependent on risk agree to DMO, SLC LTA class spreadshee t Totals $23,000.00 $19,700.00 $2,750.00 $45,450.00 127 SAMOA – CITY DEVELOPMENT STRATEGY STRATEGIC ACTION 6: Increased knowledge & awareness of land use planning Indicative Budget (USD) ACTIVITIES INDICATOR TARGET Lead Partners Year 1 Year 2 Years 3-5 Total Activity 1: Social marketing plan for communications, stakeholder involvement, awareness and knowledge management (the plan should engender cooperative responsibility; Marketing Tech MWTI, PUMA, target Governance & include Plan Sep-15 12,500.00 1,500 14,000.00 Services DMO knowledge building info on urban circulated finance choices. Templates developed to commence community profiling in programmed SMP areas. Activity 2: Awareness raising & SUNGO or MWTI, education activities organized for local other Oct-15 Building PUMA, DMO 37,500.00 5,000.00 1500 44,000.00 communities, the public, government engaged Section agencies and schools. Activity 3: Information on land use, LU Plan Tech Services, environmental planning and SMPs vetted by Jun-16 PUMA Building (MWTI), 5,500.00 5,500.00 1,500.00 12,500.00 available to the community. Village DMO Fonos Activity 4: Commence community Present to awareness and education campaign Chamber Tech Services, Jun-16 PUMA 7,500.00 500.00 8,000.00 of DEC, DMO, MWTI Commerce Totals $55,500.00 $19,500.00 $3,500.00 $78,500.00 128 SAMOA – CITY DEVELOPMENT STRATEGY STRATEGIC ACTION 7: Enhanced technical & systemic capacities for land use Indicative Budget (USD) planning ACTIVITIES INDICATOR TARGET Lead Partners Year 1 Year 2 Years 3-5 Total Activity 1: Improved Geographic Information Systems (GIS) to enable the aggregation and characterization and analysis of information Bases Nov-15 Tech Services MWTI, PUMA, DMO 2,500.00 1,000 3,500.00 on land use, natural resource systems, confirmed physical, social and economic development features Activity 2: Resource Inventory for natural PUMA, DMO, SLC, GIS layers resources, physical and economic resources, Dec-15 DEC MWTI, Building 3,500.00 1,500.00 5,000.00 developed cultural systems and social resources Section Activity 3: Environmental assessments and evaluations of future needs for land Workshop Tech Services, management, open space, water resource with Village Feb-16 PUMA Building (MWTI), 2,500.00 2,500.00 management, habitat protection, pollution Fono DEC DMO control and waste management. Activity 4: Land use analysis and evaluation LU Plan of future needs for residential, industrial, Tech Services, DEC, presented to Mar-16 PUMA 2,500.00 2,500.00 commercial, communal, recreational and DMO, MWTI Village Fono public use Activity 5: Vulnerability and hazard Data layers assessments and evaluation of future needs Combined Tech Services, SLC, for mitigation, adaptation and/or protection (melding CIM Plans with SMP). Risk and Apr-16 PUMA WRD, DEC, Met, 2500 2,500.00 Constraints MWTI Building, LTA database Activity 6: Social and cultural assessments of Social and traditional practices, social services and MWTI, Min of Cultural Apr-16 PUMA 2500 2500 human rights, and evaluation of future needs, Women bases in GIS roles and responsibilities Activity 7: Synthesis of absolute and relative constraints of environmental, land use, Tech Services, Maps economic, vulnerability and social produced May-16 PUMA MWTI Building, 2500 2500 assessments – and identification of DMO, SLC opportunity areas. Activity 8: Production of the SMPs through SMP ready involvement of the village communities and for Village (2- Jun-16 PUMA MWTI Building, SLC, 3500 3500 other stakeholders 3 per year) Totals $6,000.00 $18,500.00 $0.00 $24,500.00 129 SAMOA – CITY DEVELOPMENT STRATEGY STRATEGIC ACTION 8: Enhanced Institutional and Local Governance capacity Indicative Budget (USD) building ACTIVITIES INDICATOR TARGET Lead Partners Year Year 2 Years 3-5 Total Activity 1: Assessment of legal frameworks that relate to land use planning, land management, lease Situation Tech MWTI, PUMA, Dec-15 2,500.00 1,500 4,000.00 administration, village governance – Analysis Services DMO with options for addressing inconsistencies. Activity 2: Assessment of institutional structures, entities and linkages between Institutions MWTI, state level and village governance – and Feb-16 Building PUMA, DMO 3,500.00 3,500.00 with options for improvements based on Governanc Section the needs established for local urban e Paper governance Activity 3: Assessment of human rights and rights based governance Social Tech Services, obligations from international Justice and Mar-15 PUMA Building (MWTI), 3,500.00 3,500.00 conventions and agreements as they Equity DMO relate to development processes, land Paper use planning and urban management Activity 4: Community and Social Survey Development Survey – to determine Monkey April- May Tech Services, PUMA 3,750.00 3,750.00 local governance aspirations, roles and results & 2016 DEC, DMO, MWTI responsibilities. report Activity 5: Development of a Strategy and road-map for advancement of Road map local village governance for integrated presented Att Gens, MNRE, Jun-16 PUMA 5500 5,500.00 land use planning and urban to 3 Village MWTI, DMO management in Samoa, through the Fono use of SMPs Activity 6: PUMA Strategic Planning & No. of staff MNRE, MWTI, June 16 PUMA 15,000.00 7,500.00 5,000.00 27,500.00 GIS training trained DMO, WRD Totals $17,500.00 $25,250.00 5,000.00 $47,750.00 130

Annex 4: Programme Scheduling 2015 2016 Qtr 2017 Strategic Action/ Notes Aug Sept Oct Nov Dec Mar June Sept Dec Marc June Sept Dec Activities 1. Confirmed Land Use Plan for Apia and Surrounds Activity 1: Confirm Cadastral Base, Base confirmed by including SLC approved subdivisions Tech Services ♥1 ♥6 Activity 2: Confirm buildings layer using Building Section, LiDAR base, incorporate improved DTM MWTI approved Activity 3: Use new bases to commence LU surveys, record floor LU Plan vetted by levels above ground (link to hazards Village Fonos work) Activity 4: LU validation programmed by SMP generation (see below): LU confirmed for maintain LU database and adjust Risks targeted SMP and Constraints database 2. Updated Buildings Database Activity 1: Analyze new LiDAR layer – Base confirmed interrogate to distinguish buildings, MWTI ♥6 Activity 2: Validate buildings by survey of Land Use: Confirm buildings layer Building Section, using LiDAR base, incorporate MWTI approved improved DTM Activity 3: Use new bases to commence LU / building surveys, LU Plan vetted by record floor levels above ground-level; Village Fonos height of buildings, etc Activity 4: Use revised Buildings layer to LU confirmed for update the Risks and Combined targeted SMP Hazards database 3. Water Resources – Integrated Catchment Management Activity 1: Use GIS Bases with Risks & Hazards to work with Water Resources Base confirmed by ♥6 Tech Services Division (WRD) on IWRM Activity 2: Use agreed bases with WRD Building Section, to confirm the areas nominated as MWTI approved high priority to WSUD measures Activity 3: Use aquatic ecology input to identify prospect urban waterways and LU Plan vetted by ♥2 Village Fonos ill-defined drainage-ways Activity 4: Confirm waterways and LU confirmed for drainage-ways of significance targeted SMP 2015 2016 Qtr 2017 Strategic Action/ July Jul Aug Sept Oct Nov Dec Mar June Sept Dec Mar June Sept Dec Activities 4. Development Standards – Development Standards/Urban Design Manual Activity 1: Internal MNRE and MWTI workshop sessions on integrating new Framework for ♥6 Code/Manual Building Code and Urban Design agreed Manual Activity 2: Use external workshop with Building Section, industry reps to agree on where MWTI approved merging requirements would be suited. Activity 3: Assemble materials (local Materials aggregate sources) of guides, design standards, & Situation Analysis ♥3 manuals, best practice etc. generated Activity 4: Procure external assistance Draft Code/ Manual to help document circulated Codes/Manuals/Guidelines 5. Operationalizing the Combined Risks and Constraints database Activity 1: Use existing GIS system to catalogue all available data and Base confirmed ♥6 Tech Services information Activity 2: Work with NIWA and WRD MIWA MOU & and others as required to mesh spatial Contract data Activity 3: Review hazard criteria between each theme: wave run-up, MNRE Vetting of all ♥2 Outputs terrestrial flooding, coastal inundation Activity 4: Review available international best practice, science Data Catalogued ♥3 based on integrated hazard criteria Activity 5: Generate a simple Excel Spreadsheet based model Circulated Activity 6: Use the simple Excel linked to NIWA & MNRE Combined Risk and Constraints partners agree to database spreadsheet 6. Increased knowledge and awareness of Land Use Planning Activity 1: Social marketing plan for communications, stakeholder Marketing Plan ♥6 circulated involvement, Activity 2: Awareness raising & SUNGO or other education activities engaged Activity 3: Information on land use, LU Plan vetted by environmental planning Village Fonos 132 Activity 4: Commence community Present to Chamber awareness and education campaign of Commerce 7. Enhanced Technical & Systemic Capacities for Land Use Planning Activity 1: Improved Geographic Information Systems (GIS) Bases confirmed ♥6 Activity 2: Resource Inventory for GIS layers natural resources, developed Activity 3: Environmental assessments Workshop with and evaluations Village Fono ♥2 Activity 4: Land use analysis and LU Plan presented to evaluation Village Fono Data layers in Combined Risk and ♥3 Activity 5: Vulnerability and hazard Constraints assessments and evaluation database Activity 6: Social and cultural Social and Cultural assessments bases in GIS ♥5 Activity 7: Synthesis of absolute and relative constraints Maps produced ♥3 Activity 8: Production of the SMP through involvement of the Vailele Trial SMP ready for ♥4 Village village 8. Enhanced Institutional and Local Governance capacity building Activity 1: Assessment of legal frameworks Situation Analysis ♥6 Activity 2: Assessment of institutional Institutions and structures, entities and linkages Governance Paper ♥3 Activity 3: Assessment of human rights Social Justice and and rights based governance Equity Paper ♥3 Activity 4: Community and Social Survey Monkey Development Survey results & report ♥5 Road map Activity 5 Development of a Strategy presented to 3 ♥7 ♥8 and road-map Village Fono Activity 6: Training of PUMA staff Milestones ♥1 Project Inception & Management Report ♥5 Social & Institutional Options Report ♥2 Information & Environmental assessments Report ♥6 Annual Programme Review ♥3 Evaluation and Synthesis Report ♥7 Draft Strategy for local village governance ♥4 Draft Sustainable Management Plan ♥8 Final Strategy for local village governance 133

Annex 5: Introduction to ‘Neighbourhood Planning” Neighbourhood Planning Methods, Principles and Criteria Table of Contents 1.Introduction To “Neighbourhood Planning” 135 2.The Method 136 2.1 REVIEWING EXISTING LAND USE AND URBAN FORM 136 2.2 EVALUATION 136 3.Criteria for Neighbourhoods 136 3.1 NEIGHBOURHOOD LAYOUT PRINCIPLES 137 4.District Centres 138 5.Local Centres 138 6.Neighbourhood Landuse Elements 138 6.1 RESIDENTIAL AREAS 139 6.2 SOCIAL FACILITIES 139 134 1. Introduction to “Neighbourhood Planning” In order to review the existing Apia City and its village areas, and to plan for areas needed for future development, a planning methodology known as "Neighbourhood Planning" was used. Neighbourhood planning was first promoted by Clarence Perry in NewYork in 1929. At that time it was recognised that towns and villages, even those within cities, acted as single communities – much the same small and large villages do today in Apia. However the threat is that communities subject torapid growth develop into "sprawling suburbia" resulting in a breakdown of the community feeling. The “Neighbourhood Unit” was promoted as a means of reviving the feeling of a local community in the interests of social well-being and sustainable development. Neighbourhood Unit planning principles adopted by various planning authoritiesstill reflect the initial models promoted by Perry and others. Features involved in village level planning are still relevant:  Distinct physical boundary of the village or components of larger village;  Focus on social activity;  Connectivity between the centres and living areas (e.g. walking);  Thresholds to support a primary school ( larger villages);  Divided by major traffic roads/streets (major Collector or Distributors);  Balanced social structure: range of community land uses;  Ultimate size to plan for generally 4000/5000 persons (up to 10000 persons). Modern use of neighbourhood principles and models has seen more detailprovided in the elements of a neighbourhood. These additional criteria pursue a more sustainable and low carbon form of development, as follows:  Good accessibility to work and recreation opportunities: (minimise journeys by vehicles: energy efficiency, reduced pollution, improved safety, improved quality of life);  Land suitability: good subsoil drainage, minimal cut and fill, protection of productive land, etc;  Free from water hazard: e.g. flooding, cyclonic waves and winds; total catchment or ridge to reef approaches;  Free from general climate change exposure with good aspect:-e.g. strong trade winds; avoidance of hazardous areas, ability to respond;  Pleasantness of the landform i.e. good views, segregation from industrial land use, freedom from air pollution and noise sources  Low to medium gradients: expensive to develop on higher gradients, more disturbance to the environment (20% for Urban development cut-off is consistent in some countries)  Suitable land size area: the land mass should be capable of forming either complete neighbourhoods or being coupled with adjacent neighbourhoods in order that the threshold required for dominant uses and facilities such as schools, shops etc. can be fulfilled. The choice of boundaries for neighbourhoods will be determined by well-defined features such as landscape, vegetation, main roads, open space spines, soil/geology hazard areas etc.  Free from alien development which will lead to land use conflict: e.g. houses near quarries;  Well served or capable of servicing by transport facilities: roads, streets, access ways etc.;  Well served or capable of being served by utility and engineering services built concurrently with development. 135 2. The Method 2.1 Reviewing existing land use and urban form The existing urban area is usually split up into "neighbourhood units",or segments based on features such as village council boundaries, old development blocks, land use, vegetation cover, sensitive ecosystems, topography or geology. Because of the strength and function of the Village Fono areas within Apia, the Village boundaries are a good starting base for the CDS. For implementation, grouping of Villages or key development areas (e.g. the Waterfront area of the CBD) may be worthy. The components of land use are then documented. The following features are usually mapped or recorded in databases for more specific analysis in subsequent planning processes:  existing retail floor areas: location and quantity;  existing commercial and industrial floor areas;  amount and location of playing areas;  amount and located of other public open space;  major and secondary roads, plus hierarchies (if documented; if not - nominate a hierarchy)  number of dwellings (if aggregated);  traffic volumes (if documented)  walking distances thresholds to local shops, dairies etc.  thresholds for primary schools (amended by the provision of school bus services)  location and number of community facilities;  demographic characteristics (if felt relevant to compare with other similar sized villages)  natural features (hillsides, escarpments, chasms, caves, bush etc). For the CDS much of the land use and development information was not in a form, or accessible at the time of consideration. GIS mapping was used to produce surrogate outputs. This is included in sections 4 to 11 of this document. Data, information and initial evaluations centred on separating socio-economic, physical and environmental as well as socio-cultural matters for initial assessment of the current situation. 2.2 Evaluation The evaluation stage of the planning process starts to draw conclusions about physical development, socio-economic patterns and land use activity, often by cross-correlation of thematic data layers e.g. considering road hierarchy with urban amenity in mind. Firstly the mapping of the relative and absolute physical, socio-cultural, environmental and landform constraints and opportunities is undertaken. For the CDS this has been documented in sections 4 through to 11. The characterizing of neighbourhood units can be done by considering the present location of commerce, local shops, centres and industrial areas, using approaches like the ‘concentric ring’ overlay (well accepted metrics are used to establish rough thresholds for centres). This work is assisted by community participation stage: where community issues and values can be documented and used to consider components between and within the neighbourhood units. Opportunity areas for various land uses or activities can be mapped during the community participation process. For the City of Apia, Village Council ‘units’ will initially be used instead of the identification of separate ‘neighbourhood units’. 3. Criteria for Neighbourhoods The criteria for "neighbourhood" layout and design can then be used as a 'benchmark' in conjunction with existing and planned major road systems to map locational options for: 136  schools, child care or preschools  open space systems including recreation areas  local shops or other retail, commercial or mixed uses.  community facilities.  rural residential areas (larger dwelling panels).  medium to high density dwelling areas (if there is a demand)  small-lot residential dwelling areas 3.1 Neighbourhood layout principles 1. New development areas are to be contained within major ridgelines and to follow natural topographic or catchment boundaries (surface and/or subsurface). 2. Standard urban development areas will be limited to the lower and medium valley areas (i.e. less steep areas). 3. Standard urban development shall be limited to the level as shown on Figure 31 of the CDS. This limit may be adjusted where water supply cannot be supplied efficiently with a minimum 12 metre pressure head through gravity (rather than pumping), and where environmental assets need protecting (see Figure 19) 4. For higher elevated areas, where slopes are steeper, a change in subdivision form will be required (e.g. away from loop road system to branch cul-de-sacs) and larger land parcels may be required 5. The major road system should allow the shortest travel distance between neighbourhood units and other villages: 6. Ideally the major road system should be planned on a1.5 to 2 kilometres grid system. Where linear forms of settlement occur the topographical features will require adjustment to this principle. 7. The grid should be able to accommodate between 1200 and 2600 dwellings (standard block sizes – may need adjusting to accommodate cultural norms for the Pacific) 8. The major roads within the grid should be maintained to service a maximum volume of 4000 vehicles per day. 9. Within the neighbourhood planning unit there should be a hierarchy of roads from the main arterial grid to consist of -  Distributor roads or Main Roads: To accommodate possible future public transport routes. Maximum traffic volume to be 3000/7000 vehicles per day. No direct access to single residential allotments.  Collector roads: to provide the access from the main roads to the residential living areas. Maximum traffic volume to be 1200/3000 vehicles per day. Not normally for bus service. Collectors serve up to 250 dwellings.  Local Access Streets: less than 2000 vehicles per day or a maximum of 200 dwellings. Provides the access to the bulk of the residential dwellings. 10. Larger traffic generating uses such as Industry, High schools or major sporting complexes should be located on the periphery of the neighbourhood unit with direct access to the main road system. 11. Around the centralised local centre there should be promoted a "zone of care" to promote reduced-traffic speeds and awareness of pedestrian activity. 137 12. The off road open space system should satisfy the following:  The system should be linear and connective, the axis approximating the half way marks of the grid arterial road system.  The main east-west and north-south axis should meet close to the Primary School location and Local Centre if possible. The layout should link the Primary School, Local Centre, neighbourhood and district Playing Fields  Landscaping or open space linkages within the layout grid should create a series of spaces of variety and character taking advantage of conservation and recreation areas. 13. The neighbourhood unit should be able to be serviced by public transport along the main road. 95% of all residential dwellings should be within 500 metres of this route. 14. There should be a maximum walking distance within the grid cell from any residence to centralised facilities of 1 kilometre (up to 1000 dwellings) or 1.5 kilometres (1800 + dwellings) 4. District Centres 1. In new areas (government sponsored or Crown land), large neighbourhood units/centres, which accommodate a number of smaller neighbourhood units, should be planned to cater for a population threshold of 5000 to 10,000 people. This would enable support for a larger range of communal facilities such as:  Restaurants  Community centres/health centre/clinic  School (primary) nearby  Branch Library  Cinema  Indoor sporting facilities 5. Local Centres 1. Primary schools should be planned for the neighbourhood. 2. Local shops should be supplied centrally/or adjacent to the mass of serviceable dwellings - consisting of a Supermarket of about 600sq.m. retail floor space with other local retailing shops to support the centre (for a total of about 750 sq. m). The threshold to support such a local centre usually is of 1600 dwellings. However for some villages aboutApia 800-1000 dwellings may be sufficient. 3. The optimum dwelling numbers to support various thresholds of uses, is usually 1600/1800 dwellings. This would approximate a population of 4500 - 5000 persons. 4. Local facilities are to be provided in a central location on the main roads of the village and if possible the off-road movement systems (e.g. walking & cycling tracks). , 5. The Primary School should be located in a central position. 6. The local Centre should have a minimum retail size of 750sq.m. and include a Supermarket. 7. The road layout and block design should enable energy efficient and solar passive housing e.g. a wider east/west axis of residential blocks. 6. Neighbourhood Land Use Elements The following gives an example of modern criteria for landuse supply within a neighbourhood unit. 138 6.1 Residential areas 1. On average new subdivisions on government land or other freehold land should have a dwelling density of 10 dwellings per hectare for standard residential areas. Some areas should be kept for higher density, flats (cheaper housing) at 20 dwellings per hectare. 2. Medium to higher density dwelling areas (20+ dwellings/ha) should be located adjacent to the central local facilities, major public transport routes or other special facilities. 3. Landscape treatment of streets and pedestrian ways should be the dominating unifying element within the precinct. 6.2 Social facilities 1. Each neighbourhood area will require land for various social facilities andcommunity activities. 2. Churches - sites should generally be close to village centres for major denominations, with individual sites within the neighbourhood generally where landuse conflict will not result. 3. Pre-school Kindergarten - One (1) site per 1500 residents may be required catering for classes up to 25 children. A suggested space standard is 3.25sq.m. per child inside space, and 14sq.m. for outside play space. 4. Clubs and Meeting Halls - small public hall required at each village centre. 5. Shops and Community Buildings- A centre minimum of 750sq.m. is required at the neighbourhood centre. Corner stores or Dairies about the neighbourhood will be appropriate  Church site: 0.3 hectares  Meeting hall: 0.3 hectares  Clinic & Health Centre: 0.5 hectares  Library: 0.2 hectare  Hotel/Club: 0.4 hectare  Cinema: 0.4 hectare (shared with other centres)  Community Centre: 1.2 hectares (consisting of games room, reading room, club rooms, assembly hall etc.)  Schools: one Primary school of 2.0 hectares per neighbourhood (4000 -5000 people). Radius of access should be 750m.One High school site of 5.0 hectares is required for larger centres (e.g. Vaitele).  Open Spaces: 2.8 hectares of open space per 1000 persons is consistent practice. (N.S.W. Dept. of Planning, 1984). This figure does not include uses such as golf courses, outstanding natural features, environmental protection areas etc. The sub-classes may be as follows: i) 1.46ha/1000 persons (52%) for active open space (sport fields, tennis courts etc.). ii) 1.34 ha/1000 persons (48%) for passive open space. 139 Other standards require 4 hectares of open space per neighbourhood, concentrated mainly near the neighbourhood centre and including a large playing field of approx. 2 hectares. At the national level when the population nears 5000 people about 1.5 hectares will be required to support a series of sports fields, swimming pool, sporting clubs and various buildings for indoor sporting activities. They can be located so that parking facilities are shared. 140

Annex 6: Preferred Use Area – Land use allocation criteria Table of Contents 1.COMMERCIAL 143 1.1 APPLICATION 143 1.2 AIM 143 1.3 OBJECTIVES 143 1.4 COMMERCIAL DEVELOPMENT RESTRICTION 143 2.ECONOMIC DEVELOPMENT AND EMPLOYMENT. 144 2.1 APPLICATION 144 2.2 AIM 144 2.3 OBJECTIVES 144 3.INDUSTRIAL 144 3.1 APPLICATION 144 3.2 AIM 144 3.3 OBJECTIVES 144 4.RESIDENTIAL 145 4.1 APPLICATION 145 4.2 AIM 145 4.3 OBJECTIVES 145 5.RURAL RESIDENTIAL 146 5.1 APPLICATION 146 5.2 AIM 146 5.3 OBJECTIVES 146 5.4 DUAL OCCUPANCY DWELLINGS IN RURAL RESIDENTIAL AREAS 147 6.COMMUNITY USE 148 6.1 APPLICATION 148 6.2 AIM 148 6.3 OBJECTIVES 148 7.CULTURAL HERITAGE 148 7.1 APPLICATION 148 7.2 AIM 148 7.3 OBJECTIVES 148 8.RECREATION AND OPEN SPACE 149 8.1 APPLICATION 149 8.2 OBJECTIVES 149 9.ENVIRONMENTAL CONSERVATION 149 9.1 APPLICATION 149 9.2 AIM 150 9.3 OBJECTIVES 150 10.RURAL – AGRICULTURE 151 10.1 APPLICATION 151 10.2 AIM 151 10.3 OBJECTIVES 151 11.FORESTRY 151 11.1 APPLICATION 151 11.2 AIM 151 11.3 OBJECTIVES 152 12.ROADS 152 12.1 APPLICATION 152 12.2 OBJECTIVES. 152 13.WATER RESOURCES – GENERAL 153 13.1 APPLICATION 153 13.2 AIM 153 13.3 OBJECTIVES 153 14.WATER SUPPLY 154 14.1 APPLICATION 154 14.2 AIMS 154 141 14.3 OBJECTIVES 154 15.DRAINAGE AND FLOODING 154 15.1 APPLICATION 154 15.2 AIM 154 15.3 OBJECTIVES 154 16.ELECTRICITY AND UTILITY SERVICES 155 16.1 APPLICATION 155 16.2 AIMS 155 16.3 OBJECTIVES 155 PART 2:MATTERS FOR CONSIDERATION FOR ALL AREAS 17.CONTAMINATION (AIR, WATER, SOIL, NOISE AND GROUND WATER.) 155 17.1 POTENTIAL IMPACT 155 17.2 POTENTIAL CONTAMINATION FROM PREVIOUS USE. 156 18.WASTE MINIMIZATION AND DISPOSAL. 156 18.1 POTENTIAL IMPACT 156 18.2 LOCATION RESTRICTIONS FOR WASTE FACILITIES 156 19.GREENHOUSE EMISSIONS. 156 20.DEVELOPMENT NEAR TELECOMMUNICATION FACILITIES 157 21.DEVELOPMENT NEAR AIRPORT 157 21.1 NOISE COMPATIBILITY NEAR AIRPORTS 158 22.NOISE IMPACT 158 22.1 REDUCING NOISE IMPACT 158 23.BUSHFIRE HAZARD 159 24.SCENIC OR LANDSCAPE PROTECTION AREAS 159 25.SUBDIVISION OF LAND 160 26.CLEARING, EXCAVATION OR FILLING OF LAND. 160 26.1 RESTRICTION ON DISTURBANCE 160 26.2 EXEMPTIONS 160 26.3 RESTRICTION ON FILLING 161 26.4 RESEARCH ACTIVITIES NOT EXEMPTED 161 27.LAND USE BUFFERS 161 27.1 LAND USE BUFFERS 161 27.2 PROTECTION BUFFERS 161 27.3 PROTECTION MEASURES 161 28.HEIGHT OF BUILDINGS 162 28.1 HEIGHT RESTRICTED IN NON-COMMERCIAL AREAS 162 28.2 GOS ABLE TO VARY HEIGHTS 162 142 1. 1. COMMERCIAL 1.1 Application This clause applies to areas within the limits of the built up areas of the City and village areas; where such preferred use areas have been identified through the CDS or subsequent SMPs by the community. 1.2 Aim Provide necessary opportunities for the growth of commercial areas and uses to facilitate the community, and to stimulate sustainable economic activity and employment opportunities. 1.3 Objectives (a) To ensure that major commercial development is subject to development and environmental assessment. (b) To encourage a range of commercial land uses while recognizing the pivotal role of the main commercial centre of Apia; (c) To ensure that commercial land is available and coordinated in its release to encourage sustainable economic activity; (d) To guide the aggregation or grouping of commercial activities into CBD, District, and Local centres, or special Business Development areas to assist with concentrating business activity to spawn mutual demands; (e) To provide areas for a range of office accommodation, business and retail services, tourist uses, retailing and/or integrated housing close to the Central Business District of Apia, District and local centres to facilitate existing commercial and retail businesses; (f) To encourage as much as possible the location of Government of Samoa (GOS) head offices and other major office employers in close proximity to the Apia CBD where they are not within critical high hazard risk areas or have adaptive measures to increase resilience; (g) To encourage as much as possible the location of Government of Samoa (GOS) essential service offices in close proximity to District Centres and Business Development Areas where they are not within high hazard risk areas or have adaptive measures to increase resilience; (h) To ensure that new local and major commercial uses and activities do not jeopardize the functioning of the main commercial centre of Apia; (i) To enhance the environmental quality, improve the social and aesthetic amenity within existing commercial centres; (j) To encourage a wide choice of goods, personal and business services and promote job generation close to where people live; (k) Provide programmes to ensure that the road network around commercial centres leads to acceptable traffic volumes, and that redevelopment does not exacerbate congestion, noise and pollution; (l) To ensure that adequate car parking and loading/unloading facilities required by development is provided on the land or that funds are collected from the developers to build purpose built parking in close proximity to the CBD, District or Local centres; (m) To provide for potential future public transport facilities; (n) To provide convenient pedestrian networks around the commercial centres; (o) To encourage provision of land suitable for small scale retail (e.g. “dairies”, corner shop), commercial, mixed retail/commercial and residential development which does not adversely affect neighbours; (p) To facilitate the location of small-scale retail/commercial use at nominated tourist development (physical) areas, which may be supported by Village Councils to coordinate user-pay for local benefit from the use of tourism attractions. 1.4 Commercial development restriction (a) Retail, office or commercial uses associated with tourism or large area residential development shall only be supported within existing village areas (physical) where: i. It accords with the location of Centres as provided by the CDS or subsequent SMPs; ii. adequate services are shown to be available; 143 iii. Car parking, circulation and loading/unloading areas are provided on-site; iv. No adverse impacts on businesses and commercial uses in the CBD, District or Local Centres can be demonstrated. v. The floor space ratio for commercial use and developments shall be a maximum of : a. CBD and District Centres – 1:1 b. Other areas - 0.5:1 (b) Drive in take-away food shops shall be supported only where: (i) the site area is not less than 1000 square metres, and (j) the land is located within or immediately adjacent to the CBD, District Centres or Business Development Areas; (ii) adequate parking, unloading and circulation areas are provided on –site, and (iii) the location does not adversely affect the functioning of public access and road systems. 2. ECONOMIC DEVELOPMENT AND EMPLOYMENT. 2.1 Application This clause applies to all land in Samoa. 2.2 Aim To ensure land and resource use planning encourages economic development and employment opportunities. 2.3 Objectives (a) Enable consistent provision mechanisms for land, economic and statistical information for sustainable development initiatives; (b) Stimulate and strengthen the role of Apia as the main centre for commercial and industrial bases; (c) Promote commercial and industrial activities in other villages; (d) Provide for a range of land-use options aimed to improve employment opportunities; (e) Enable the provision of land and information to stimulate and strengthen local tourism potential to facilitate economic and employment opportunities through-out Samoa; (f) Provide information on land use criteria to the public to assist knowledge and understanding of land use as well as environmental economics. 3. INDUSTRIAL 3.1 Application This clause applies to areas within the limits of the built up areas of the City and village areas where industry is identified in the CDS or subsequent SMPs as the preferred use, as well as areas where existing industry operates. 3.2 Aim To encourage industrial development in a form, manner, in locations, and at a scale or intensity which generates employment opportunity while maintaining or improving the amenity for surrounding uses and nearby residents. 3.3 Objectives (a) To provide for a range of industrial land uses, and to encourage diversification of the industrial base, in order to expand employment opportunities and economic activity; (b) To provide for a range of non-industrial uses within industrial areas which are compatible in land-use economic and physical terms, and support industrial estate developments; 144 (c) To ensure that the natural environment and human environment is protected, and that the detrimental impacts of industrial development do not exceed prescribed standards and criteria; (d) To ensure that parking generated by the use, loading and circulation areas are provided onsite and do not detrimentally affect the safe and efficient functioning of public access or roads; (e) To ensure that the traffic systems provide easy access to industrial estates and land uses within. (f) To ensure the location of industry minimizes noise and other nuisances on nearby residents, public health, education, community uses and facilities; (g) Where new industry is planned in close proximity to residential or potential residential areas, ensure it is of a type, density, scale, style and design which minimizes adverse impacts on those neighbouring areas; (h) To ensure new major industrial development incorporates landscaping and is of a high design quality; (i) New industrial areas should be located or be of a scale or intensity which: i. Facilitates the economic functioning of nearby compatible or associated uses, within environmental criteria and standards; ii. Facilitates adequate buffer zones or protection areas (e.g. for hazardous industry); iii. Minimizes direct or indirect impacts on water supply bores; iv. Is not scattered thereby discouraging inefficient traffic generation through living or commercial areas; v. Enables satisfactory water supply of a minimum 21 metre hydraulic head, preferably by gravity feed; vi. Is on land with less than 8% slope and with less than 20% rock/makatea out cropping; (j) New industrial areas shall only be on areas of scrub, bush or open areas where substantial clearing has occurred previously; (k) Industrial land parcels created by subdivision shall be an area of less than 1500 square metres. 4. RESIDENTIAL 4.1 Application This clause applies to areas within the limits of the built up areas of the City and village areas; those limits identified by the community, or those areas of potential future village extension (nominated as the "preferred use") within the CDS or subsequent SMPs. 4.2 Aim To provide for the orderly development of the City and existing village areas in a manner that offers:  A choice in residential living styles  Provide housing mix and location acceptable to the community  Provides a means to address conflict over access  Enables future development that improves amenity, reduces nuisances, protects privacy and maximizes communal or family outdoor living spaces. 4.3 Objectives (a) To encourage standard scale residential development, where desired by the community; (b) To encourage alterations, additions or redevelopment which maintains or improves the amenity of existing residents and which provides good amenity for future residents; (c) To encourage alterations, additions or redevelopment which has regard to and complements the scale, fabric and character of the older and traditional housing areas; (d) To limit new subdivisions to areas with low to medium climate or natural hazard classes; (e) To restrict new subdivisions or the intensification of development within high hazard areas and only allow development where it can be demonstrated that adaptation measures can 145 increase the resilience of built form and the community, and does not transfer the hazard or likely risks elsewhere; (f) To deter any new subdivisions or intensification of development within critically high hazard risk areas; (g) To ensure that new subdivisions or intensification of development does not require trunk or main essential services and infrastructure to be located within critically high or high hazard areas; (h) Permit a broader range of low to medium density housing types, where they are compatible, and service the local community; (i) To encourage alternative and more intense residential development about the CBD, District and Local centres or Business Development Areas, providing they are outside of high hazard and risk areas; (j) To allow subdivision which is consistent with the subdivision patterns of adjoining land and best practices; (k) To provide opportunities for small scale non-residential uses usually within a dwelling-house or building ancillary to a dwelling-house and which operate so that they do not adversely affect adjoining neighbours; (l) Promote and facilitate solar energy use and design and siting of dwellings that capitalize on solar orientation and cooling breezes; (m) Encourage modest urban consolidation where such new development or redevelopment is compatible with the existing residential framework, infrastructure services and local community aspirations; (n) Provide for energy conservation by enabling alternative multi-unit or medium density housing close to employment centres, major public roads, or large Crown land parcels which are underutilized; (o) Ensure that new development and redevelopment is in keeping with the existing residential environment in scale, bulk, height and character, through performance based criteria; (p) Ensure the adequate provision of public roads for access, easements for services and facilities, pedestrian and cycling systems; (q) To ensure that design and siting of residential development is compatible with the surrounding area with regard to safety, health and privacy of nearby residents; (r) To ensure that traffic and parking generated by development and/or redevelopment, does not increase pressures on the road systems; (s) To ensure new development areas are adequately serviced (in terms of capacity & capability) by water, electricity, telecommunications and means of effluent disposal to the satisfaction of the relevant agencies; (t) To encourage the involvement of Village Councils in decisions relating to residential developments, other than standard low density housing. 5. RURAL RESIDENTIAL 5.1 Application This clause applies to land on the fringe of the physical built up areas of the City and villages or development nodes which due to physical capability and suitability may be suited to rural living, while maintaining the rural character. 5.2 Aim To provide alternative living styles within rural settings, in carefully planned rural-residential areas as designated in the CDS or subsequent SMPs and designed to allow the land to predominantly retain its natural or rural character. 5.3 Objectives (a) ensure that rural residential development (including use and subdivision) does not detrimentally effect prime agricultural areas or land with potentially higher and better use whether close to villages or not; (b) encourage the location of rural-residential areas in close proximity to existing village areas (physical bounds); but, 146 (c) ensure that rural residential development close to villages does not undermine longer term use for extension of villages, public purposes, commercial or industrial use; (d) ensure that development does not intrude on areas nominated as significant landscape, of environmental sensitivity or subject to human induced or natural hazards; (e) ensure that new rural-residential development areas are promoted as part of “development areas” provided by the City Development Strategy implementation or subsequent SMPs, where subdivision development concept has been generated and supported to guide layout and land use; (f) ensure that rural residential development is supported in areas where this form of use is nominated as the “preferred use” and where existing utility and infrastructure services are or can be efficiently supplied to the area; (g) locate rural residential development in areas where the land is accessible by existing or planned public access; (h) locate “preferred use” areas for rural residential development in close proximity to villages or established development nodes to act as a transition between urbanizing village areas and bush areas, and to restrict ”strip” development or disjointed land development which results in high community and servicing costs; (i) to restrict the location or scale and intensity of rural residential development on lands identified for future standard residential release, or investigation for other preferred uses, or potentially suited to other essential village fringe uses; (j) to restrict rural residential development to within 2 kilometers of existing physical villages and to areas currently serviced by water and electricity; (k) to restrict development from areas identified as having or potentially having a geological or quarrying resource; (l) to ensure that subdivision layout and parcel size is based on land gradients (or slope), elevation, visual significance, vegetation cover retention, land capability micro-climate conditions and relationships with neighboring uses; (m) ensure that development is located on land with a slope of less than 20% and with rock/makatea outcropping of less than 50%; (n) ensure that rural residential development is at least 500m from noise and hazard sources such as the power generation plant or quarries; (o) to restrict development from areas nominated as a hazard area due to either; cyclonic waves or wind, wave run-up, flood inundation, high bush fire risk, contamination by past land uses, geological constraint or land instability; (p) to ensure that parcels are large enough to satisfy environmental conditions, and to allow large enough dwellings and outbuildings for self-sufficient water supply through water harvesting (roof catchment and hardstand runoff); (q) To ensure that rural residential development is located in areas (with large enough parcels) that are suitable for on-site effluent disposal (may require water, nutrient and toxicity modeling); (r) To restrict development from ridgelines; (s) To promote rural-residential development in locations:  that have topographic features (e.g. flat treed benches) that allow the siting of houses which will not be visually obtrusive;  that provide open or filtered views of the coast, the ocean or bush areas;  that have flat areas of scrub, light bush or fringing forest areas which are secluded, quiet with unique scenery and surrounds; (t) To detail by means of sustainable management plan (SMP) provisions or guidelines controls which:  Restricts development to single dwellings;  Controls on the height, scale, bulk and colour of materials;  Nominate the location of dwellings and ancillary development;  Implement appropriate sustainable development principles, methods and practices. 5.4 Dual Occupancy dwellings in Rural Residential areas Dual occupancy may be permitted in rural residential areas, with consent, but only if: (a) The land parcel is a minimum of 2 ha; (b) Consists of two attached dwellings; 147 (c) Can adequately be supplied with electricity and water (either augmented or catchment), and (d) Have sufficient remaining land to adequately dispose of partially treated effluent. 6. COMMUNITY USE 6.1 Application This clause applies to all village areas (physical), supported development areas (preferred use areas) and tourism development located at development nodes in rural areas. 6.2 Aim To guide the provision of land and facilities for communal and public use. 6.3 Objectives (a) Ensure provision of opportunities for the establishment of community, health, welfare and cultural facilities in accessible places for residents; (b) Encourage cultural events and participation activities by the community; (c) Provide “preferred land use” areas to accommodate community facility land uses either by themselves or combined with other uses; (d) To ensure through the development phase that there is appropriate land set aside for community services and facilities; (e) Promote the multi-use and co-location of facilities such as schools, libraries, child care centres/kindergartens e.g. Playing fields etc.; (f) Provide adequate sites for emergency services in new "development areas"; (g) Promote active involvement or input from community members in strategic decision making processes, local management or maintenance programs; (h) To locate community facility sites close to potential future public transport and pedestrian traffic systems; (i) Promote cultural activities in each village to generate community identity and communication. 7. CULTURAL HERITAGE 7.1 Application This clause applies primarily to village areas (physical) and rural areas where traditional customs and structures are healthy, and cultural and archaeological features have been identified. 7.2 Aim To conserve the customary and cultural heritage of Samoa and enable use and development of identified sites, items, structures and places, where this will not adversely affect their status. 7.3 Objectives (a) Integrate cultural and archaeological heritage conservation into planning, resource use, biodiversity and development decision processes; (b) Continue to identify and investigate the customary and heritage status of sites, items, structures and places of heritage significance; (c) Where heritage features have been identified develop guidelines and incentives for their protection, maintenance, preservation, or development; (d) Facilitate education and interpretation initiatives; (e) Encourage and plan for the provision of interpretation trails, associated scenic routes or walks about cultural heritage sties and places to facilitate local tourism; 148 (f) Ensure Village Councils and the community is involved in decisions relating to heritage conservation and development; (g) Recognize in any resource use planning or conservation plan cultural heritage conservation areas identified by the community and ensure that guidelines, land use provision and/or action plans recognize the controls and objectives determined by the community; (h) Ensure that appropriate land use or conservation buffers are placed around cultural and archaeological heritage features; (i) Where a number of heritage items, sites and structures are found in close proximity advocate the inclusion of these in cultural heritage places or areas to incorporate them all as well as the surrounding lands (boundaries to be identified by the community); (j) Where items or buildings of heritage interest are identified within villages investigate opportunities for funding to have these maintained or developed to enhance their conservation or heritage status. 8. RECREATION AND OPEN SPACE 8.1 Application This clause applies to village areas (physical). 8.2 Objectives (a) Enable the improvement of existing landscaping and promote the provision of landscaped areas and community open space associated with new developments; (b) Enable or promote actions to enhance the image of villages, the characteristics of each location and the built environment in order to improve the quality of life for the community; (c) Provide for a range of active and passive recreation activities using criteria to plan locations and are requirements; (d) Within large scale new development areas enable open space linkages and community space; (e) Use open space links or corridors as one means to protect or conserve significant natural or cultural features; (f) Promote dual or multi-uses of open space areas where they are compatible e.g. Child care centres, schools, and community facilities; (g) Ensure that new development does not adversely affect existing or planned open space, the landscape or scenic quality of areas. 9. ENVIRONMENTAL CONSERVATION 9.1 Application This clause applies to areas of: (a) Important primary forest; (b) Diverse secondary forest (nominated by community members or from studies involving the community); (c) Areas nominated as of visual/landscape significance; (d) Habitat areas nominated by the community or from studies involving the community; (e) Traditional hunting and use areas nominated by the community; (f) Cultural and archaeological heritage areas or places identified from studies or by the community; (g) Areas of significance identified within the coastal zone; 149 9.2 Aim To protect, sustain and enhance areas of natural and cultural sensitivity from harm through application of sustainable development principles and criteria. 9.3 Objectives (a) To restrict development within areas of significant primary forest or diverse secondary forest (as nominated by the community) to subsistence and cash crop agricultural uses, and; (b) To restrict development within the Catchment Areas to subsistence or cash crop agriculture, other than that supported by the village communities and guided by approved standards and criteria; (c) To support Village Councils in the restriction of all development and access to tapu areas and/or potential tapu areas; (d) Protect significant landscapes and associated environmental attributes of the coastal zone and major terrace escarpments, and where beneficial, only support low density rural use where it is compatible with landscape qualities; (e) Provide protection of remnant bush, secondary forest and primary forest deemed to have high conservation status; (f) Ensure that significant habitats for flora and fauna are protected from adverse forms of development; (g) Protect significant traditional hunting and use areas from intense and broad acre development forms; (h) To protect and conserve significant natural, cultural and archaeological resources, and only allow forms of development which do not adversely affect their status; (i) Identify and advocate the enhancement of remnant bush and secondary forest areas known to be part of movement corridors or habitat for uga, lupe, peka or other fauna; (j) Restrict development in areas of potential World Heritage or Wilderness Status; (k) Deter development from coastal areas nominated as significant uga habitat; (l) To provide opportunities for tourism, cultural and recreation activities and use of primary forest, diverse secondary forest and bush areas of significance; (m) To promote environmental education and interpretation of the attributes of forests, bushlands and significant coastal zone areas; (n) Ensure development does not adversely affect uga and other important hunting stations and tracks; (o) Ensure rural development does not result in strip clearance of forests and bushlands along main roads, by retaining belts of significant vegetation to assist genetic and species diversity and movement; (p) Where significant vegetation exist along roads ensure that if clearance is required for subsistence or cash-crop use, that clearance areas are setback a minimum of 10 metres to maintain roadside bush/forest characteristics. (q) Ensure development of areas within villages, nominated as of local significance, does not involve broad scale vegetation clearance; (r) Ensure that rural and forestry research areas and activities involving clearing are located outside of conservation areas and areas nominated as of biodiversity significance; (s) Ensure that electricity supply to or through conservation areas is deemed as unavailable for general public service; (t) Restrict the development of additional water supply sources within significant conservation or habitat areas; (u) Ensure that intense tourism, commercial or rural development does not promote major increase in traffic movements through contiguous primary and secondary forests of significance; (v) Promote the maintenance of the intrinsic scientific, scenic, habitat and educational values of natural and semi-natural environments; 150 (w) Assist the community in identifying habitats of endangered, threatened or vulnerable species requiring protection; (x) Encourage traditional or community development projects within sensitive areas, especially those of known endangered flora and fauna and their habitat. 10. RURAL – AGRICULTURE 10.1 Application This clause applies to land outside of physical built up areas of the City and village areas and includes all land covered by forests, fernlands, bush areas, coastal areas and agricultural areas. 10.2 Aim To provide means for sustainable agricultural development. 10.3 Objectives (a) maintain prime agricultural land (subsistence cash crop and intensive) from adverse development forms and activities, and prevent its fragmentation from poor land-use allocation; (b) Exclude land of environmental sensitivity (primary forests, diverse secondary forests, fauna habitat, areas, coastal zone) from alternative and more intensive agriculture which promotes major land clearance and use of polluting chemicals; (c) Exclude areas of significant scenic and cultural heritage value from alternate and more intensive agricultural forms; (d) Plan alternative forms or more intensive agriculture based on known physical, biological and chemical capabilities, combined with local knowledge of suitability; (e) Restrict the clearance of significant and scenic landscapes, and coastal zone areas; (f) Avoid clearance of vegetation for agricultural activities along ridgelines; (g) Balance the extension of intensive agriculture (vegetables, horticulture etc.) facilitated by rural water supply against the need to protect lands immediately surrounding water bores from contaminants such as chemicals, effluent and fertilizers and pest infestations; (h) Ensure that village and rural residential development does not impede the continued use of rural lands nominated as of prime agricultural purposes or potential; (i) Ensure that new alternative or intensive agricultural activities or developments do not prejudice the use of land about villages for necessary village or village-fringe land uses; (j) Identify previous broad acre and more intensive alternative crops and primary production activities as a means to assist in identifying opportunity areas; (k) Locate areas of land adversely impacted by previous human activities to assist growers in choosing suitable agriculture areas; (l) To ensure that the type and intensity of development will not prejudice the likely future uses of the land for either environmental protection, conservation, world heritage, recreation or tourist purposes; (m) Ensure that village councils are involved in decision making relative to major agriculture development, or other forms of development, which may adversely impact subsistence or cash crop agriculture. 11. FORESTRY 11.1 Application This clause applies to land outside of physical built up areas of the City and physical village areas and includes all land covered by forests, fernlands, bush areas, coastal and agricultural areas. 11.2 Aim To provide means for sustainable forestry 151 11.3 Objectives (a) ensure forestry activities do not impede use of prime agricultural areas or cause adverse impacts on those areas; (b) Ensure plantation forestry is located in areas of suitable soils and micro-climate; (c) Deter forestry activities, which have adverse impacts, from conservation areas or areas of cultural and natural significance; (d) Ensure forestry activities do no jeopardize neighboring areas of natural or cultural sensitivity; (e) Ensure intense forestry activities or associated activities are not located within areas of soil, whose chemical and physical characteristics are such that soil structure decline could occur; (f) Ensure forestry and associated activities are located and at a scale which does not cause disruption to village lifestyles and amenity; (g) Ensure forestry and associated activities are located outside the coastal zone and/or areas susceptible to extreme winds and salt spray; (h) Ensure forestry and associated activities are located and/or of a scale and intensity, which does note exacerbate areas of poor soil fertility or structure decline; (i) Ensure forestry and associated activities are located and/or of a scale and intensity so as not to cause any adverse impacts on existing and potential tourism developments, sites or areas; (j) Ensure forestry and associated activities are located outside of areas nominated as significant landscape; (k) Ensure forestry and associated activities (other than indigenous plantations) are located outside of areas of known habitat or movement corridors rare or endangered species; (l) Ensure forestry and associated activities are located outside of existing or potential world heritage or wilderness areas; (m) Ensure plantation forestry or agro-forestry using species requiring irrigation are located in proximity to existing agricultural production bores, water supply assets, or areas where strategic and well planned extension of those services are intended in the short-term; (n) Ensure that Village Councils are involved in decision-making relative to forestry (and associated activity) development. 12. ROADS 12.1 Application This clause applies to the village areas and rural areas of Samoa. 12.2 Objectives. (a) To ensure that over time all individual parcels of land are provided with public access to reduce conflict; (b) To ensure that future intended or required road access is strategically planned and identified by maps (released for community involvement) to achieve: i. Good shaped and orientated parcels; ii. Equitable access; iii. Quality living and working environments; iv. Good village structure and land use provision. (c) To provide mechanisms to enable the establishment of local roads, access ways, laneways or Right of Ways, with Village Council and general community input. (d) To enable future main and local roads to ensure: i. That noisy traffic is guided away from living and community facility environments; ii. Roads are built or improved to address minimum standards for traffic and pedestrian safety, hazard reduction and environmental management. iii. Good connectivity between like or associated land use or activities. (e) Ensure that planning of opportunity or preferred use areas is undertaken through integrated consideration of road location and geometry and potential land use provision; (f) Enable the widening or re-alignment of roads to benefit the community and village structure and to facilitate emergency access; 152 (g) Provide means for road and traffic planning preferably through sustainable development guidelines; (h) Encourage the use of a road hierarchical system for existing and future extension to villages; (i) Restrict individual parcel access directly onto main arterial roads, where alternatives can be provided or are planned for; (j) Restrict access onto main arterial roads for all development and activities within 50 metres of an intersection; (k) Enable the government to acquire land at intersections where such is required to improve the function of those intersections, include suitable sight clearance distances or plan for future intersection upgrades. 13. WATER RESOURCES – GENERAL 13.1 Application This clause applies to all land in Samoa. 13.2 Aim To protect the natural water resources of Samoa and provide for its sustainable use. 13.3 Objectives (a) Ensure protection of the water lens and natural water resources of Samoa – by ensuring that preferred land use, development opportunity areas and general development is of suitable location, intensity and scale; (b) Identify areas and/or components of the hydro-geological system which require protection through non-development or use of buffer areas and criteria or use and activities; (c) Ensure control of the location, type and management of bore hole drilling; (d) Ensure integrated land and water resource use is planned, developed and managed based on sustainable development principles; (e) Provide for opportunities for multi-purpose use of water resources and over-time-recycled water; (f) Provide a range of water uses which are compatible with conservation values and address environmental constraints and threats; (g) Ensure that changes in water use and/or major land use is consistent with water resource sustainability principles; (h) For intensive or large-scale developments ensure that provision is made for water catchment, and water re-use (including grey water re-use); (i) Ensure that water run-off and effluent from development meets water quality guidelines of the WHO or similar such as the Australian and New Zealand Environmental Conservation Council (ANZECC); (j) Provide appropriate buffers around water supply bores that in part: i. Restricts all development and uses; ii. Controls certain forms of development with high standards and environmental output criteria; iii. Advocates only agricultural pursuits of a subsistence or cash-crop nature. (k) Protect potential bore and tank sites from non-compatible land use and forms of activity; (l) Ensure new bores are located on lands subject to individual title, with reasonable public access by way of road, public easement or ROW, and that buffer zones affect the least number of land owners; (m) Support initiatives to research and protect cave and karst systems containing freshwater and unique fauna and flora. 153 14. WATER SUPPLY 14.1 Application This clause applies primarily to villages (physical). 14.2 Aims To provide effective and efficient water supply to all village land uses and development, in a coordinated manner, line with best environmental practices. 14.3 Objectives (a) Enable the provision of necessary infrastructure (capability) and servicing capacity to existing and new development areas in a coordinated manner; (b) Ensure water supply to new development areas has a minimum hydraulic head of 21 metres to suit standards for domestic supply and firefighting requirements, preferably through gravity feed rather than pumping systems; (c) Ensure water supply to existing development areas has a minimum hydraulic head of 15 metres; (d) Ensure that water supply capability and capacity is suitable to supply peak instantaneous demand to housing, commercial and industry uses; (e) Ensure domestic water supply is provided to suit demand needs and conservation initiatives; (f) Enable provision of suitable water supply to all major land uses including commercial and industrial uses; (g) To ensure that the programme for water supply is correlated with the planned growth of the villages; (h) To ensure that the water supply system is integrated to provide the best efficiency and consistency in supply; (i) To ensure that the elevation limits of development are such that water supply to all village uses can be maintained. (j) To support mechanisms and land use decisions to enable the placement of water assets in easements, or Right of Ways (ROWs) to enable access for maintenance; (k) Limit the supply of water to areas nominated as high natural or cultural heritage value. 15. DRAINAGE AND FLOODING 15.1 Application This clause applies to village areas (physical). 15.2 Aim To ensure consideration of drainage and local flooding in planning, physical development, resource use and conservation decision processes. 15.3 Objectives (a) Ensure provision of adequate stormwater drainage (including road drainage) measures are incorporated in subdivisions and building developments; (b) To protect and conserve the water quality and aquatic habitats of coastal waters especially those nominated as having significant habitat or cultural/customary importance; (c) Ensure uncontrolled run off from development does not cause erosion or Flooding; (d) To ensure that there is the best protection against flooding of life, property and public infrastructure; (e) To ensure for new areas that all village development, especially residential development, is kept clear of flood hazard areas; (f) Promote the capture of run-off from private developments and public areas for re-use for irrigation and outside domestic purposes (i.e. Non-potable use). 154 16. ELECTRICITY AND UTILITY SERVICES 16.1 Application This clause applies to village areas (physical) and to nominated development nodes (as preferred use areas). 16.2 Aims To ensure that development and resource use areas supported by the government and communities are adequately serviced with power and utility services, using principles of sustainable development. 16.3 Objectives (a) Enable the provision of necessary services to existing, and new development ("preferred use areas") which have been supported by the GOS and Village Councils; (b) To ensure power is supplied to minimum technical and environmental Criteria; (c) To ensure that the capacity of power supply to existing village uses and supported rural development areas (preferred use areas) meets minimum best practice criteria, with a capacity which meets the demonstrated demands; (d) Ensure that electricity capacity to existing and new development areas is planned and coordinated in line with resource use planning or physical development initiatives supported by the GOS and Village Councils. PART 2: MATTERS FOR CONSIDERATION FOR ALL AREAS 17. CONTAMINATION (AIR, WATER, SOIL, NOISE AND GROUND WATER.) 17.1 Potential Impact (a) The responsible agency shall support development where it is satisfied that the development is not likely to give rise to significant air, soil, water or noise pollution; or, (b) Where the responsible agency cannot satisfy itself that such pollution will not arise, a Preliminary Environmental Report and/or Environmental Impact Assessment is produced which addresses the following matters: i. The expected (and/or anticipated) composition and quantity of any gaseous emissions or liquid discharges (apart from uncontaminated stormwater runoff) which may possibly be emitted from any part of premises or any plant or equipment present on premises as a result of the proposed development and, in the case of liquid discharges and contaminated stormwater runoff, the expected frequency, composition and quantity of any discharges to the stormwater, groundwater or sewer systems; ii. The means to ensure the emissions and discharges are within international environmental best practices and criteria (including the WHO and/or ANZECC Guidelines) i.e. nomination of accepted criteria and proposals for monitoring; iii. Any anticipated noise emissions from the premises when assessed against the requirements of internationally recognized noise control criteria (e.g. PUMA, MNRE Noise Control Manual)12; iv. Details of any pollution control equipment and structures to be used as a result of the development; 12 The Manual produced for MNRE was taken from other sources and is not as comprehensive as other available and internationally recognized sources. The NSW Environmental Protection Authority’s Noise Control Manuals are a primary source of reference in multiple states of Australia, as they contain among other things reference to measures to ameliorate noise in various circumstances, whether through setbacks, use of materials, muffling of noise sources etc. 155 v. Details of any measures to be used to control gaseous emissions and liquid discharges and to attenuate noise emissions; vi. Details of methods to be used to minimize the opportunities for pollution incidents to occur; vii. Any operating practices and technology to be employed to overcome the effect of such incidents. 17.2 Potential Contamination from previous use. Where the responsible agency has reasonable grounds to believe that land has been contaminated by virtue of its land use history or current condition, it may support a development application only if it is satisfied that the levels of contamination are below background levels or if not so, it: (a) Has considered an assessment of the site of the proposed development prepared in accordance with the WHO or Australian and New Zealand Guidelines for the Assessment and Management of Contaminated Sites, being guidelines of the Australian and New Zealand Environment Council and the National Health and Medical Research Council dated January 1992; (b) Is satisfied that remedial measures are either not necessary or have been (or will be) undertaken to make the site suitable for the proposed development. 18. WASTE MINIMIZATION AND DISPOSAL. 18.1 Potential Impact The responsible agent shall support significant development only when it is satisfied with a development application, preliminary environmental report or EIA, which details: (a) The facilities and programs to be provided within the proposed development to promote waste minimization and recycling practices, and (b) The proposed method of disposing of any other wastes, only after due consideration of waste source reduction, re-cycling and re-use. 18.2 Location Restrictions for Waste Facilities The following criteria may apply for the location and siting of Waste Disposal Facilities: (a) Within 2km of main waste production centre (Apia); (b) Minimum 500m from residential areas; (c) At least 1000m from water bores (preferred 1.6 kms - Water Resources Bill, 1996); (d) At least 50 m from major caves, geological fractures or fissures; (e) To be on the coastward side of any existing water supply bore; (f) To be within 1km from the coast (max 1.5kms); (g) Not to be in areas of steep contours (i.e. greater than 10% (natural or manmade from quarry development for example); (h) Within 50m of main transportation routes; (i) Provide 20m buffer around site with a 50 meter buffer from the coast; (j) Land required to be a minimum of 1 ha with an ability to expand to 2 hectares; (k) Location not to influence the sustainable use of nearby land, or reduce that lands capability for economic and ecological sustainable development (NB Land already constrained would be desirable). 19. GREENHOUSE EMISSIONS. For any development, which has an estimated value in excess of $500,000 approval may only be given where the proposal has taken into account the following issues: 156 (a) The possible measures which can be incorporated in the development to reduce the consumption of non-renewable energy and the production of greenhouse gases which contribute to the greenhouse effect; (b) Whether any measure incorporated in the development are designed to improve energy efficiency or to reduce the emission of greenhouse gases; (c) Details of the total energy requirements of the development; (d) Any measures which minimize energy requirements of the proposed development, including building design, construction methods, materials, solar orientation, plant and equipment technology, space heating, cooling and lighting systems, and landscaping. 20. DEVELOPMENT NEAR TELECOMMUNICATION FACILITIES The responsible agency shall only support development within one (1) kilometer of the Telecommunication facilities where it is satisfied that: (a) land use and development is not likely to give rise to significant interference to telecommunication (including satellite) transmissions and receipt; (b) land use and activities will not set a precedent for activities associated with the primary use and development of the land, which will cause significant interference to transmissions and receipt; (c) land use and development is of a type, scale, intensity, design and layout that enables the continued functioning of the Station as the primary telecommunications base for Samoa; (d) development enables the location of easements, right of ways, roads, laneways etc. for the alignment of cabling and associated facilities required to distribute communications to the rest of the island; (e) development forms located in close proximity in the short term do not prejudice the higher and better use of the land for uses and activities associated with telecommunications; (f) appropriate buffers are put in place to ensure the health and environmental safety of residents located nearby. 21. DEVELOPMENT NEAR AIRPORT The responsible agency shall only support development in close proximity to the airport where it is satisfied that: (a) Developments satisfy Airport Master Plans, Noise Exposure Forecast zones, Obstacle Height Limitations or other protocols and restrictions instigated which are consistent with Annex 14 to the Convention on International Civil Aviation adopted by the International Civil Aviation Organization (ICAO); (b) Development is consistent with the abovementioned strategies or controls, which may be adapted from international best practices to suit ICAO requirements. For example these may include the Australian based "Rules and Practices for Aerodromes (RPAs)" generated under the Federal Civil Aviation Act (1988) and the Airservices Act (1995); Noise Exposure Forecasts (ANEF) generated under the Federal Airports Authority's (FAA) "Integrated Noise Model" or acoustic requirements from the Australian Standard AS 2021 - 1994 Acoustics - Aircraft Noise Intrusion - Building Siting and Construction; (c) Land use and activities do not prejudice the long term viability of land adjacent to the airport as potential development sites for airport associated commerce and industry; (d) That new development does not detrimentally affect the environment and amenity of nearby land uses, especially living environments; (e) That new development, in close proximity to the airport incorporates measures to minimise the impact of aircraft noise and associated nuisances; 157 (f) That development associated with airport uses is located, designed and managed so as not to result in adverse environmental impacts, and that measures are in place to manage pollutants that may arise from fuel, detergents, paint and paint stripping chemicals and aqueous film forming foam (AFFF). 21.1 Noise Compatibility near Airports In the absence of any airport noise exposure forecast data, zoning or requirements for Samoa, the following table is produced as one means to gain an understanding of land use compatibility near the airport. The table is from the Standards Association of Australia AS 2021 - 1994. Without ANEF zones depicted by map it is not applicable at this stage however can be used to identify the hierarchical compatibility of uses with close proximity to airports. TABLE 1: Land Use Compatibility about Airports Building Type Acceptable ANEF Zone Conditional Unacceptable Houses, home units, Less than 20 ANEF 20 to 25 ANEF (Note 2) Greater than 25 flats, caravan parks (Note 1) ANEF Hotels, motels, hostels Less than 25 ANEF 25 to 30 ANEF Greater than 30 ANEF Schools, universities Less than 20 ANEF 20 to 25 ANEF (Note 2) Greater than 25 (Note 1) ANEF Hospitals, nursing Less than 20 ANEF 20 to 25 ANEF Greater than 25 homes (Note 1) ANEF Public buildings Less than 20 ANEF 20 to 30 ANEF Greater than 20 (Note 1) ANEF Commercial buildings Less than 25 ANEF 25 to 35 ANEF Greater than 35 ANEF Light industrial Less than 30 ANEF 30 to 40 ANEF Greater than 40 ANEF Other industrial Acceptable in all ANEF zones NOTES: 1.The actual location of the 20 ANEF contour is difficult to define accurately, mainly because of variations in aircraft flight paths. 2.Within 20 ANEF to 25 ANEF, some people may find that the land is not compatible with residential or educational uses. Land use authorities may consider that the incorporation of noise control features in the construction of residences or schools is appropriate. 3.This table is included in the Standards Association of Australia’s AS 2021 – 1994 which gives design information for the design of facilities which may be subject to aircraft noise. 22. NOISE IMPACT PUMA has its Noise Manual. 22.1 Reducing Noise Impact For new or existing development the responsible agency shall consider means to reduce noise impact from uses, activities or roads. In the past it was thought that a number of measures could reduce impacts (e.g. traffic bumps to slow traffic, dense landscaping). These have proven to be ineffectual, as for example large vehicles slowing and speeding up to/from a traffic bump will actually increase nuisance noise. Moving roads, redirecting noisy traffic and increasing building setbacks are means to adequately reduce noise impact. However these are very costly scenarios in existing village areas. Future land and resource use planning should guide developments which increase noise impacts away from sensitive areas (e.g. hospitals, living areas), or ensure there is adequate separation between such uses. In existing built up areas there are noise attenuation measures which can be implemented. These are detailed in Table 4 below. Using some of these measures in combination with building setbacks, 158 redirecting noisy traffic, or promoting the shift of noisy uses away from sensitive areas – can reducenoise impact. TABLE 1: Acceptable Receiver Noise Levels and Attenuation Measures LAND USE or Acceptable Extreme Attenuation Measures ACTIVITY Noise Level 1 Noise (Internal) Level 1 Single Double Barriers Noise Glazing Glazing 2M3 Insulation 4 2 2 A. 50 55 - 20 - 30 - 6 - 30 dB(A) Residential (50)5 dB(A) dB(A) dB(A) B. Rural- 50 55 - 20 - 30 -6 - 30 Residential (50) 5 C. Light 60 65 - 20 - 30 -6 - Residential (55) 5 NOTES: 1 NSW EPA: Environmental Noise Control Manual: 1 metre from external walls. 2 NSW SPCC, RTA and Department of Housing, “Reducing Traffic Noise”, 1991. 3 NSW SPCC, RTA and Department of Housing, “Reducing Traffic Noise”, 1991: 2 metre barrier at property boundary. 4 Reference as per 2 and 3 above: Noise insulation techniques are outlined in Section 6 – Building Techniques. Measures include sealed windows, frames, cornices, skirtings and doors, solid core doors, thermal insulation to ceiling and walls (average reductions used from Table 4). 5 Acceptable internal noise levels AS 2021 – 1994. 23. BUSHFIRE HAZARD Subdivision of land for the erection of a building in an area nominated as subject to high bushfire hazard should occur only if: (a) Adequate provision has been made for access for fire fighting vehicles, and (b) Adequate safeguards will be adopted in the form of fire breaks, reserves and fire radiation zones, and (c) Adequate water supplies will be available for firefighting purposes, and (d) Appropriate measures can be taken to reduce the hazard, after have regard to any guidelines, plan or the like adopted from time to time by the Government. 24. SCENIC OR LANDSCAPE PROTECTION AREAS Development consent for a building within a scenic area will occur only if: (a) The height, scale and bulk of the building as well as the construction materials used, and the colours of external surfaces of, the building will accord with the visual character of the locality, and (b) Any landscaping, particularly around buildings for screening purposes, will enhance the visual character of the locality, and (c) The building will be located so as to be unobtrusive, and (d) The part of the site to be used for the building is stable or can be stabilized in accordance with the requirements of the GOS and has a slope of less than 20% and rock outcropping of less than 20%, and (e) Adequate measures can be taken during and after construction to protect endangered flora and fauna where these are known to occur on the subject site or on immediately adjoining land, and 159 (f) Where required, a tree survey of significant trees showing the likely impact on significant trees of the proposed development has been taken into account and adequate measures are taken to retain significant trees. 25. SUBDIVISION OF LAND The responsible agency may grant approval for subdivision of land for a purpose or potential use other than agriculture, tourism of forestry only if: (a) The land can be adequately serviced with water and electricity without major extensions of mains; and such is not in conflict with planned extensions by the infrastructure and utility agencies, or (b) Alternative methods and technology is planned to be used for water catchment and power generation and a report adequately demonstrates an ability to satisfy the potential demands; (c) Water and effluent re-use or reduction methods are proposed; (d) Access roads are located to provide suitable and unimpeded access; and (e) Each parcel to be created by the subdivision of land provides potential development sites with minimum risk of adverse environmental impact, and (f) Adequate provision is made for soil conservation measures to be carried out, including measures to be carried out prior to and during the construction phase of the subdivision taking place, and (g) Adequate provision is made for drainage control, and (h) Each new parcel has sufficient building area on it, being land with a natural slope of less than 20% , and rock outcropping of less than 30%, and (i) The size of parcels to be created meets any minimum or average area requirements determined by the Minister and the ratio of depth to frontage of each new parcel is adequate in terms of its likely intended use, and (j) Where the land in the opinion of the responsible agency is unstable, a geophysical report on the stability of land has been prepared by acceptable consultants and the report indicated which part of the land is suitable for development or the appropriate measures that need to be taken to stabilize the area proposed for development, and (k) Adequate measures will be taken during construction to protect endangered flora and fauna and their habitat as well as other native vegetation, when these are known to occur on the subject site and adjoining land, and (l) Adequate measures will be taken to retain heritage items and places, significant trees and other significant native vegetation or natural features of significance, and (m) Those parts of a site to be developed for the purpose of a building will not intrude on visibly prominent or significant landscaping qualities when viewed from outside the area being developed. (n) Parcels are orientated to acknowledge local microclimatic conditions and to enable future buildings to be designed to achieve maximum solar efficiency, and take advantage of cooling breezes, and (o) Any subdivision of land on a main or proposed main road will not increase the potential for ribbon development along that road. 26. CLEARING, EXCAVATION OR FILLING OF LAND. 26.1 Restriction on disturbance Development approval is required for clearing, excavation or filling over 500 sq. metres, of any land, except as provided sub-clause 26.2. 26.2 Exemptions Development approval is not required for clearing, or excavation or filling, that is ordinarily incidental or ancillary to agricultural or forestry use or development that is consistent with the "preferred use area" and may be carried out on the land without development consent. 160 26.3 Restriction on filling For placing a building or structure on land filling without engineered retaining walls cannot exceed 1 metre in depth. 26.4 Research activities not exempted Research for forestry, conservation and/or biodiversity activities is not exempted under sub-clause 26.2. 27. LAND USE BUFFERS 27.1 Land use buffers To minimize land use conflicts and avoid undue interference to the amenity of residents, new residential or living areas shall be located to ensure minimum buffers around intensive agricultural, industrial, quarries, sewage disposal areas, waste disposal tips and noise sources as follows:-  Intense feed lots (Pigs, Chickens, Cattle etc.): 1 km  Quarantine uses (guided by international standards): 1 km  Intensive horticulture (with extensive use of chemicals): 0.5 km  Sewage disposal areas: 0.5 km  Waste disposal sites: 0.5 km  Power generators (non-renewable source): 0.5 km  Quarries: 0.5 km  Cattle dairies: 0.25 km  Chemical disposal or use sites (including animal dipping): 0.25 km  Animal carcass disposal sites: 0.5 km  Bulk fuel storage: 0.5 km  Heavy industry (manufacturing): 0.25 km 27.2 Protection Buffers Protection buffers around certain natural and human resources may be applied to protect those resources from any use or activity as follows:  Water Supply bores 0.2 km  Intensive agriculture, commercial and industrial uses 0.4 km involving toxic and reactive substances – near airport terminals. 27.3 Protection Measures (1) Development within buffer zones nominated in sub-clause 27.1 and 27.2 maybe proposed and considered where methods and technologies are used to minimize adverse impacts and these are argued in a PER or EIA supported by the responsible agency. This may involve an independent assessment of the issues by a person nominated by the responsible agency at the cost of the applicant for development. (2) The applicant must demonstrate that the intention of this clause to protect resources and minimize land use conflicts will not be compromised by providing flexibility in administration of the nominated buffer areas. (3) In requesting a variation to buffers advocated in this clause the following matters must be addressed by applicants in reports. (a) Consultation with the Director in respect of individual cases to determine specific matters to be addressed. (b) Operational characteristics of the land use. (c) Advice from the relevant authorities. 161 (d) Details of surveys undertaken and data/analysis provided. (e) Prevailing wind conditions and velocity of winds. (f) Description and analysis of topography, height of slope, and hydro-geology conditions. (g) Potential for pollutant flows, discharges, odour, dust, noise. (h) Economic impact to demonstrate that the long-term viability of the use to be buffered is not compromised. 28. HEIGHT OF BUILDINGS Generally the height of buildings in commercial areas (CBD, District, Regional District Centres, Business Development areas, Employment Areas) will be based on the merits of the design and siting of proposed structures. Among other factors structures should not cause detrimental impact on the neighbours, have adverse environmental impacts generally and should enable efficient and effective essential service provision e.g. water service. 28.1 Height restricted in non-commercial areas For all development in non-commercial areas the height of buildings shall be limited to 2 storeys. 28.2 GOS able to vary heights Subject to the merits of the case the Planning Board (either directly or delegated authority to the PUMA) may vary the restriction nominated under sub-clause 35.1 to 3 storeys where adverse environmental impacts will not occur and the third storey is not a prominent feature of the building nor will it affect the amenity of neighbours. 162

Annex 7: Financing Urban Development 1. Introduction Managing urban development is a costly business. The provision of capital infrastructure and essential services, as well as the offering of advisory and regulatory services by Governments is often far beyond existing public finance management capability. Even in countries like Australia and New Zealand who have the luxury of rating land for local government service provision, there has been a tendency over the last 30 years to look at alternative income streams to fix the growing shortfalls in the costs of urban development. Samoa does not have a land rate system so most development costs have to be borne by Government. To date significant shortfalls are addressed in part by specific project budget funding items or through attracting foreign development assistance. However still there are glaring gaps between the needs of the communities and the available resources to pay and maintain services. High capital and recurrent costs are the general rule in urban development. The assets suffer from significant use and decline in quality and capacity, with replacement costs for infrastructure and essential service provisions becoming increasingly exorbitant. For instance the sealing of new or existing roads whether by bitumen or bitumous concrete has on average working life of 7-10 years. This is without accounting for extra stresses that may occur from flooding, water exposure and extreme events. 2. Leakages As with Australia and New Zealand much of the country’s development investment is also provided by the private sector. Investors, builders and community members pay for the buildings, the roads and services of new private land development and the linking of essential services to dwellings and buildings. However there are many instances where infrastructure and essential support services in subdivisions are not provided by private developers. The fiscal support either comes directly or indirectly from Government budgets. Roads, telecommunications, water supply, electricity supply and stormwater services to new development areas are either not provided by investors/builders or are provided at a very low quality of finish – often inconsistent with best practices. Both scenarios for new development areas see Government making up the shortfall. So in essence the whole community is paying for the new investment areas. Investors and developers take risks in development and as such seek a high return. However if development is of a poor quality services or services are not provided to best practice, then the return versus risk is not balanced (i.e. not fair and reasonable). The cumulative cost to Government in stepping in to provide services or fix defaults after the event, is a financial leakage. 3. Paying for Urban Development Costs There are a number of alternatives for financing urban development costs. The following provides a summary of key options. They are not in order of priority or preference. a) Developer Contributions Within existing built up areas, as is consistent globally, the Government pays for the upgrading of infrastructure and services that result from the increased demand from more intense use, new buildings or the attraction of more traffic. This new demand on existing Government infrastructure and essential services can be quantified with metrics developed to determine the unit costs factors for additional forms and types of development. Land use planning, subdivision and building development approval systems invariably require developers to pay contributions to assist with offsetting the additional costs to government for this extra demand on current infrastructure and services, including the need to provide additional open space and amenity areas. These are ‘contributions’ paid in addition to the costs of services they provide in their subdivision or unit development. The philosophy being that despite their provision of new infrastructure as part of their development there are additional costs to society in providing new infrastructure elsewhere to service the increased demand from that development. 163 Instituting developer contributions is an extension of the ‘user pays’ approach to development, where funds are collected to address financial leakages. Such costs are usually built into the overall development costs, and the developer/investor would factor these total costs in determining a selling price (e.g. the price of land, or price or rental of residential flats). Section 94 of the NSW Environmental Planning and Assessment Act, 1979 (as amended) was one of the first land use planning instruments in Australia to require ‘developer contributions’ for a range of services including13: a) Extra demand on traffic and roads from more intense development; b) Higher use costs on water supply head works as a result of development c) Higher costs on drainage systems, sewerage systems etc – from more intense or scattered development; d) Higher costs for public area storm-water management; e) Demand on essential services such as emergency services, or local community buildings; f) Provision of water sensitive urban design (WSUD) in existing areas to control localised flooding and to maintain water quality. The Government of Samoa is able to levy similar developer contributions under section 49 of the PUM, Act, 2004. Where contribution systems are enacted the legal impediment is for contributions to be well rationalized, based on regular assessment of service provision costs and only directed at the additional demand costs stemming from particular development forms. Evaluation of additional demand costs for various types of services and infrastructure are documented as unit costs for particular components of development. For example, a sewerage developer contribution may be calculated on the basis of additional toilets provided in a hotel extension. b) Fees on Essential Service Bills Where essential services are corporatized it is not unusual for Authorities to document likely future ‘head-works’ costs or trunk infrastructure provision, with a percentage of the costs paid by the domestic clients, through billing. It is common practice for Electricity, Water and Telecommunications Authorities (or independent companies). It is understood that EPC operate in this fashion. c) Approval fees Planning and Building agencies also use ‘application fees’ and sometimes ‘approval fees’ to cover the costs of administration of development approval systems. These tend to be quite contentious as it is often hard to distinguish human resource costs particular to ‘development’ in lieu of providing the usual public service. Incentive fees are increasing used by Councils in Australia, to offer fast-track approvals where additional fees are paid. These incentive systems usually have performance criteria by the Council (e.g. approval within so many days) and the Proponent (plans and reports have to be of a high quality). d) Rating of land Land rates and land taxes are used in most Australian and New Zealand local Councils to cover local government services including infrastructure and essential service provision. Rating of customary land is difficult and not often possible under national Constitutions or Land Laws. However where new development areas are ‘freehold’ or government released land, a rating system could be applied. In many areas foreign investors have purchased land and benefit from increasing value as services are provided by Government, or the usual market growth. While they enjoy the benefits of the investment, they are not ‘paying’ for increases in services provided by the city. 13 The NSW Environment Assessment and Planning Act, 1979 (as amended) is globally recognized as the first development legislation to integrated environmental and land use planning successfully under one legislative framework and administrative process. It has been used as a model in many states of the USA, as well as for coastal management legislative platforms in many countries. The work behind Section 94 also successfully infused ‘user pay’ principles into land use and development planning – another first globally. ‘Developer contributions’ are now recognizable in most land use planning frameworks in developing and developed countries. 164 In both these situations a differential rating system could be applied. That is rates are applied to certain parts of the City only. One necessity for any rating system is the need for a land valuation system. To set these up takes time and effort and comes at a high set up and maintenance cost. e) Betterment taxes A system common in leasehold tenure systems like Canberra, Australia, or increasingly used in community title developments especially for affordable housing provision - is the application of betterment taxes. Essentially this is a tax on land once it is sold or title transferred. Among other fiscal leakages it is designed to cover the additional value of land that a person may gain over time – whether from market trends or better services over time. A proportion of the additional value gained by a person is taxed with the collected funds being pooled to pay for key infrastructure and essential services. f) Other taxes There are a number of other land related taxes that are used by national governments like Capital Gains Tax (Federal Govt, Australia) or stamp duties (Australian States). Both are applied at the time of title transfer – however often funds are pooled for general government purposes, so they are not often referred as options to pay for urban development costs. 4. Climate Change Opportunities There may be opportunities to capitalize on formal (i.e. REDD+) or voluntary carbon accreditation schemes with agriculture, horticulture and landscaping activities on land about the City. Such endeavours can be pursued as part of planned open space and conservation area provision. Various international and national methods could be employed, and management processes will need to establish mechanisms to equitably transfer carbon rights and develop equitable income sharing mechanisms with Community stakeholders. Work needs to contend with likely carbon balances against targeted carbon standards, net carbon financial projections, and registration risk analysis. Partners will need to be identified to manage the carbon credit registration process. Such an avenue for public financing of open space and conservation areas will require technical capabilities which will include:  GIS, GPS and Remote-sensing experience at the site/project, locality, regional and national levels;  Familiarity with LiDAR, multispectral and hyperspectral platforms in use for carbon assessments;  Experience with large geographical datasets and data manipulation;  Project management skills in working with multiple partners and collaborators, including third-party verifiers;  Extensive experience with predicting/foreseeing land-use and land cover changes using in- house rational strategic environmental (SEA) methods. This approach meshes bio-physical, cultural, social and economic data/information/trends – assisted by use of GIS;  Forestry experience for in-situ and ex-situ carbon quantification including field surveys, plot establishment, forest mensuration, and ground-truthing.  Geographic spread of work in land use classification, change detection and carbon feasibility studies in: Queensland, Pacific Island Countries (various), the Maldives and Asia;  Experience in integrating forest/farming carbon assessments and management within broader development agendas.  Specialist status with regard to working with customary landowners and communities in the Asia-Pacific region. 165

Annex 8: Disaster Risk Management – relevant to Land Use Planning Institutional Frameworks Disaster Risk Reduction Management and Disaster Management in Samoa are legislated under the Disaster and Emergency Management Act 2007. Among other things the Act requires response agencies to prepare and maintain their own Disaster Management Plans specific to their roles and responsibilities. ‘Agencies’ includes such organisations as utilities, educational providers, Government Ministries, NGOS and private companies. Hazard and Risk Management Plans are to direct the implementation of measures that had to either reduce the likelihood of people being affected by a hazard, or reduce the consequences of hazards. Samoa maintains a number of hazard and risk management plans, varying from those applied at a community level to a national level. The following summarizes these. Community Level Plans In order to promote disaster risk reduction, increase resilience and plan effective recovery with support of the Disaster Management Office (DMO), local villages generate their own Disaster Management Plans. These set out the steps to meet the communities’ needs in times of emergency as regards food, shelter, water, and sanitation etc. The community level plans also provide details of the role of various community groups during extreme events and disasters. There is currently a programme to develop these local Community Disaster Management Plans in 38 villages across Samoa by 2016 under a joint programme involving the Government of Samoa and the Adventist Development and Relief Agency (ADRA). Previously the Red Cross (Samoa) were involved in the initial programme. The programme is managed by the Disaster Management Office (DMO). National Disaster Management Plan (NDMP) The National Disaster Management Plan (2011-2014) is the over-arching Plan document which outlines the key stakeholders in disaster risk management in Samoa and outlines the strategic activities for disaster risk reduction, disaster management and recovery. The plan outlines the roles and responsibilities of all the stakeholders and provides the framework for decision-making and reporting requirements. The National Disaster Management Plan is managed by the Disaster Management Office (DMO) with authority provided by the National Disaster Council (NDC) under the Act. The national Plan is a high level strategic document that aims to promote a common response to a range of disasters rather than to specific events. It additionally promotes guidance and considerations for disaster management, rather than set ‘steps’ as to how to respond to the situation. This facilitates flexibility in responding to various situations. National Action Plan for Disaster Risk Management Under the NDMP the National Action Plan (NAP) for Disaster Risk Management (2011-2016) was made as the supporting Plan that outlines more specific initiatives to be implemented by the Disaster Management Office (DMO). It targets Disaster Risk Reduction Management, Response, and Resilience by identifying key areas for capacity building and improvement. Agency Plans Responsible agencies and organizations (i.e. those that have disaster relief functions or manage high risk activities) are required to maintain their own Disaster Response Plans (DRP) under the Act. These Agency Plans outline the specific responsibility of each agency and nominates the tasks they are responsible for. Specific Disaster Plans A number of agencies also have responsibilities for specific disaster events and these are covered by specific Disaster Plans. They provide more specific requirements, methods, approaches and details on how they respond to given situations. Examples include the National Tsunami Plan (2008) and the National Tropical Cyclone Plan (2006) both managed by the DMO. Capacity Gaps for Disaster Management In a number of arenas there are capacity and information gaps for the Government and other stakeholders. Provided below are discussions on pertinent thematic matters to the land use planning for Apia. 166 Topographic Information Catchment information is a shortcoming for most of Samoa. For land use planning of Apia it is a major shortcoming. Good topographic information is needed for flood assessments, storm surge and coastal inundation mapping, erosion risk analysis, landslip analysis, for water balance modelling and local drainage control, constraints mapping, among other things. It has been a particular gap in flood hazard assessments although the recent programme to acquire the LiDAR coverage will fill a huge void. Flood Management Related to the above has been the dearth of survey detail of waterways and catchment topography that would enable adequate flood modelling to determine 10, 20, 50, 100 and 500 ARI levels of catchments. Hydrologic and hydraulic analysis is needed for all significant catchments that flow down and through the City. The work by Water Technology Pty Ltd on the Vaisigano River catchment is typical of the level of work that is required for hazard assessment and risk categorization across the City. Flood hazard mapping needs to define the water quantity, velocity and depth characteristics of catchments, and be able to classify the different risk levels – for decision-making. Storm-surge Related to coastal flooding and inundation with the lack of survey and DTM/DEM there has little work done on storm surge modelling – although there has been some recent achievements. Work completed for the CIMS covered storm surge but was not of a standard to differential depth characteristics upon which a risk classification could be assigned. Landslip While reference had been made to Landslip mapping, no evidence was found that mapping exists. There is a very good Land Resources GIS layer (and relational database) upon which a Landslip assessment could be based – and this work is needed to validate the surrogate work done for the CDS using slope and elevation analysis. Tsunamis Samoa has been significantly affected by Tsunamis. There has been some recent mapping work covering Apia however further work is needed in synthesizing this with other inundation and flooding analysis. Determining a means to classify risk for future decision-making is a capacity development area worth pursuing. Reactive Soils The DMO have identified gaps in the knowledge of reactive soils in Samoa, as regards influence building and foundation standards. There would be implications too for erosion and sedimentation control in disturbed catchments. Soils in Samoa can be extensively leached and soils of predominant clay bases can be found about the urban catchments. Land capability analysis and Suitability mapping is needed using the Land Resources layers with particular efforts needed in distinguishing and classifying reactive soils. High shrink swell characteristics can seriously affect the stability of infrastructure and building foundations. Coastal Erosion The Coastal Erosion Hazard Mapping undertaken as part of CIMS Plans was reasonable for this time and the availability of data. While it distinguished areas susceptible to coastal erosion, it did not quantify the levels of hazard and risk. Such classification is needed to assist with decision-making. Status of Groundwater systems (potential aquifer contamination) DMO report that there is limited information on the extent and quality of groundwater resources in Samoa. Samoa Water Authority among others has raised the issue of expanding urban and industrial uses in close proximity to water resource bores in the Tafaigata area west, south west of Siusega. There is a need for better knowledge on the extent, capacity and water quality of aquifers about the City and peri-urban areas. Determining the likely risk of groundwater contamination from salinization, pollutants and poor effluent disposal is needed. 167

Annex 9: Human Resource Capacity Needs Capacity Details of Skills, Training & Audience Rationale Building Education needs Category Policy Policy planning, preparation PUMA Sustainable From one-on-one discussions and training (PUMA) on decision- Development process, policy writing, use of Development & making needs. Staff expressed frustration in understanding where and research in evidence based policy Strategic Planning new policy & standards are required but not having the skills, time Implementation development and decision making sections or resources to fill the gaps themselves. Much land use policy is consistent around the world and just needs adapting to suit Apia. Section 46 (e) enables the Board to adapt other’s policies where it can assist decision-making. Economic valuation of resources, MNRE From one-on-one discussions, PUMA. Payment for Ecological ecosystem services versus Services (PES) could have a significant role to play in assisting with development services. urban financing. Little is understood on how PES potential, as regards future land use allocation, can be managed. Natural resource economics training could assist with policy and development consent conditions. Implementation: Alternate dispute resolution and Village fono LU Decision-making is much about conflict management. As Decision- regulatory enforcement traditional leaders, SMPs are rolled out and the inclusive role of Village fonos gathers making, Law Sustainable momentum, there will be debate about use of regulatory Making and Development provisions (such as zoning) and incentive based approaches such Enforcement team at PUMA as quantitative & qualitative Guidelines. The latter option will be reliant on negotiation skills. Already there is demand for ADR skill needs with current Development Consent processes. Environmental impact assessment PUMA, plus benefits Need to progress from project based EIA (which is overly for other MNRE prescriptive) to strategic environmental assessments that assists Divisions, SLC land use planning & policy. Social and health Impact assessment training would also be beneficial. Integrated water resources PUMA, MNRE – Catchment management planning, sub-catchment modelling management – Including Erosion & Water Resources, and the implementation of erosion & sediment control planning Sediment Control LTA, SLC standards will necessitate training needs. Increasing resilience will necessitate revitalizing urban drainage-ways requiring a better understanding of urban waterways fluvial needs and the means to introduce Water Sensitive Urban Design (WSUD) measures. Merging Urban Design Manual SLC, MNRE Updating the Building Code, could be meshed with the need for 168 Capacity Details of Skills, Training & Audience Rationale Building Education needs Category (Development Standards) with new Development an Urban Design Manual (City Spatial Plan). The latter can be Building Code planners, made as a Development Standard under S15 and/or S46 (e) of Engineers, Building the PUM Act, 2004. Integrating the Manual/Codes will have joint surveyors, training implications regarding the new planning and building developers and standards. decision makers Climate change and disaster risk LTA, SLC, EPC, SWA, While strategic consideration of CCA and DRR measures can be reduction considerations into MNRE Water taken up in SMPs, continuing Development Consent processes infrastructure, land development Resources, with need to be assisted. Methods for adjusting area/site based and development consents PUMA Sustainable tools/guides and development standards need to be agreed Development across development approval and infrastructure management team agencies. Resource use planning, Relevant to Participants identified the following as very important: Resource management and monitoring - functions and use planning methods, techniques, approaches and systems; GIS namely baselines, stock and personnel of PUMA, development; resource inventory methods; multi-criteria and ecosystem assessments but also Forestry, objective based planning; ecosystems approaches to land use Water Resources, planning; land capability/suitability methods; and, integrated LTA & DOE as well catchment and coastal zone approaches as Agriculture. Community Awareness raising and community MNRE, traditional Need for community targeted activities to build awareness and Education & educational programmes related leaders of Village understanding the benefits of LU Planning. A social marketing Awareness to: fonos, Dept of plan/campaign (design & commencement) needs to precede Education, SUNGO, the roll out of SMPs.  Benefits of LU Planning SLC Debate on formal zoning options versus incentive based  Operation of the PUM Act, 2004 mechanisms, needs to be preceded by information flows to  Governance of LU involving increase understanding of the options and mechanisms. Choices Village fonos in partnership with in urban financing should also be canvassed. Government SUNGO could assist with City wide outreach.  Involving business in LU Programme needs to involve the DOE to realize any opportunities Planning in future curriculum development (Schools and NUS) GIS, Data GIS data collation, enhancement, PUMA, with GIS training of PUMA staff is essential now that the LU Plan Analysis & administration and management assistance from database and Gridded CCA/DRR Risk and Constraint mapping Management MNRE Technical base has been developed. Such systems need management. Services. There is crucial enhancement work that is needed to benefit the role out of SMPs. 2-3 staff already have self-taught skills but these 169 Capacity Details of Skills, Training & Audience Rationale Building Education needs Category need to be enhanced. Field data collection, data basing, PUMA, with Linked to the above, there are separate skills development analysis, mapping, maintenance assistance from requirements for use of GIS in decision-making. Linking statistical and practical utilization of MNRE Technical data with GIS bases, modelling the landscape with LU Planning Geographic Information Systems in Services. Other criteria for SMP planning, monitoring population and risk factors, decision making MNRE Divisions may use of multiple data layers in SEA, incorporating risk assessments have an interest and V&A for SMPs etc. are all specialized GIS/decision-making skills that are needed within PUMA. Tech Services (MNRE) has some experience in delivering GIS and mapping training, however external assistance may be required 170