United Nations Expert Group Meeting on Contemporary Practices in Census Mapping and Use of Geographical Information Systems 29 May – 1 June 2007 United Nations, New York Mapping Census Infrastructure in Pacific Islands: Institutional and Capacity Building Issues SPC is a technical advisory and assistance, training and research agency serving 22 Pacific Island countries and territories of Melanesia, Micronesia and Polynesia. Scott Pontifex Statistics and Demography/Population Programme Secretariat of the Pacific Community

Federated States of Micronesia Pacific Islands region Three main sub-areas of Micronesia, Melanesia Polynesia. 22 member countries (15) and. territories (7) 9,1 million people over 34 million square kilometers of ocean MAP LAYER Marshall Islands Kiribati Tuvalu French Polynesia Tokelau Am Samoa Samoa Wallis et Futuna Pitcairn Islands Cook Islands Niue Fiji Vanuatu New Caledonia Solomon Islands Papua New Guinea Tonga Nauru Palau Guam CNMI Federated States of Micronesia TEXT LAYER Three main geographical areas of Melanesia (west) Polynesia (south east) and Micronesia (North) based on their ethnic linguistic and cultural differences between 173,000 and 191,000 added –equivalent of today’s combined populations of Kiribati, Marshall islands and Nauru) 9.1 million people Over 34 million square kilometres

Population and Housing Censuses, 2010 round 2005 2006 2007 2008 2009 2010 2011 2012 Kiribati Palau Cook Islands Niue Samoa Tokelau Tonga Fiji Marshall Islands Solomon Islands Vanuatu Am. Samoa CNMI FSM Guam Kiribati Palau PNG Cook Islands Niue Samoa Tokelau Nauru Tuvalu MAP LAYER Marshall Islands Kiribati Tuvalu French Polynesia Tokelau Am Samoa Samoa Wallis et Futuna Pitcairn Islands Cook Islands Niue Fiji Vanuatu New Caledonia Solomon Islands Papua New Guinea Tonga Nauru Palau Guam CNMI Federated States of Micronesia TEXT LAYER The 2010 pacific round of census activities started with the Kiribati census in November 2005, which was followed by population and housing censuses undertaken in 2006 by a further 4 PICTS: Cook Islands, Samoa, Tonga and Tokelau, Fiji scheduled this year with the Solomon Islands and Vanuatu the next countries, scheduled to undertake a census in 2009. Most censuses in the pacific are either every 5 or 10 years

Context: 2000 round of census Many Islands experienced difficulties financing their census operations in 2000 round. Other resource constraints such as skill shortages and limited external technical assistance lead to short cuts being made which affected quality of coverage and census outputs. Many countries (particularly small island states) had to start from scratch (in terms of trained personnel) and conduct the census with staff that had no previous census experience. The main problem is retaining experienced and trained personnel after census the operation.   16.              A related problem is retaining trained personnel after the census operation. Many countries (particularly small island countries in the region) have to start from scratch (in terms of trained personnel) with each census. Without accurate census maps it is very difficult to prepare household listings, to facilitate enumerators covering all households in their respective enumeration areas, and to allow effective utilization of the resulting census data.

Financial constraints Lack of funds Census and census mapping is an expensive exercise. Many island countries experienced some difficulties in financing their census operations during the last census (2000) round.   Technical assistance Limited external technical assistance was available. Priority in budget allocation Another problem is that governments do not always give census a priority which results in PICs relying on donor support to adequately fund census activities In the past, NSOs received generous assistance from foreign donors for statistical development and census activities, such funding was unsustainable because of its temporary nature. Another problem is that governments do not give census a priority as a result most member states depend on donor funding for census activities. During 1990 round, 2 designated demographer/population specialist with UNFPA-ESCAP. Many of our member countries, however, find it very difficult to attract and retain staff with the necessary skills and experience to carry out the work Many receive their financial requirements from the donor community AUSAID NZAID UNFPA. However, when the funding was drastically reduced, statistical activities were seriously affected, ver the last two decades, most budgetary cuts at national statistics offices. Without adequate resources, planned intercensal activities have been either suspended or delayed. Budgets from selected PIC Censuses (2010 Round) Census date Census budget $US Govt contribution $US Donor request $US % of donor funds Kiribati 2005 (Nov) 316,500 192,000 124,500 39 Samoa 2006 (Nov) 342,800 177,800 165,000 48 Tonga 311,000 101,000 210,000 68

Human resources Lack of skilled personel and loss of experienced staff Several NSO are understaffed Experience staff turnover If there is continuous change of staff it impacts on the sustainability of census activities. Where do staff go? Other government agencies (associated with higher prestige) Better pay or career advancement Private sector Overseas migration Training overseas (study leave) Voluntary redundancy due to political reform A related problem is retaining trained personnel after the census operation. Many countries (particularly small island countries in the region) have to start from scratch (in terms of trained personnel) with each census. skills and experience are developed over time but once gone it is difficult to replace Once lost staff is gone experience is not easily takes time– because of the limited number of staff in country, many staff have to be 'multi-functional' by carrying out tasks in various areas and therefore were not able to concentrate solely on census mapping activities. Having enough staff, or those available were not skilled enough so there is a continuous change over of staff that impacts the sustainability of the programs," shortage of skilled workers was one of the major challenges they faced. One of the major reasons throughout the region for lack of capacity stems from the types of qualifications and experience held by staff in the different agencies and their limited exposure to new technology. In particular, while an increasing number of NSO staff hold formal qualifications, very few in the NSO's are cartographers or GIS trained professionals. Once lost staff is gone experience is not easily takes time– skills and experience are developed over time but once gone it is difficult to replace Training overseas. Migration to other countries Tonga – 1996 – 2006 lost most of their experienced census staff Lost several staff to redndancies – political reform Recent example in small pacific island of nauru – a hies and DHS survey was being undertaken. Couldn’t locate the EA maps because the staff member that had drawn up the digital maps went on stufy leave to new zealand and didn’t want to give his password to the computer with the map files on Human resources development. Tonga needs the population census to be done once in every 5 years rather than in 10 years. This cannot be done due to resources constraints. Of the current staff members of the SD, none had taken a senior role in the last census in 1996.

Human resources –How do NSO retain staff? 1. Implement NSO staffing structure parity with that of other Government departments.         E.g.- Government Statistician at same level (and pay) as Director of Planning Agency (otherwise people move)   2.    Set up career structure, which is conducive to people staying        This allows people to see a professional future in the organization Greater need to recognize long-term benefits of developing new staff Provide ongoing training and the possibility of study leave (to promote professional development)         3.    Give staff greater responsibility and meaningful tasks        Greater delegation of responsibility to younger staff is needed to provide them with variety of work and an environment to show their skills, take on challenges Set up career structure, which is conducive to people staying        (allows people to see a professional future in the organization)         Hard to do in small offices (half of Pacific NSOs < 10 staff), where young ones coming in, are usually better educated than older ones above them, who themselves are too young to retire (or don't have enough skills to transfer to other agencies), hence block NSO careers         of  young and potentially raising stars. skills and experience are developed over time but once gone it is difficult to replace Once lost staff is gone experience is not easily takes time– professional growth through increased training, because of the limited number of staff in country, many staff have to be 'multi-functional' by carrying out tasks in various areas and therefore were not able to concentrate solely on census mapping activities. Having enough staff, or those available were not skilled enough to carry out censu mapping activities. S o there is a continuous change over of staff that impacts the sustainability of the programs," shortage of skilled workers was one of the major challenges they faced. One of the major reasons throughout the region for lack of capacity stems from the types of qualifications and experience held by staff in the different agencies and their limited exposure to new technology. In particular, while an increasing number of NSO staff hold formal qualifications, very few in the NSO's are cartographers or GIS trained professionals. Once – skills and experience are developed over time but once gone it is difficult to replace lost staff is gone experience is not easily takes time If there is not the critical mass of skills available in any agency then efforts aimed at capacity building are wasted. Similarly, if the resources being directed at capacity building are insufficient then they too will be largely wasted. One of the major reasons throughout the region for lack of capacity stems from the types of qualifications and experience held by staff in the different agencies. In particular, while an increasing number of NIS staff hold formal qualifications, very few in the NSOs are economists, and those who are typically move on quickly general technical capacity building, represents an ongoing process. Many countries are experiencing problems with the out flux of recently recruited,young, higher educated staff which in many cases due to the social status of work in statistical offices, the limited career possibilities and the lack on intellectual challenges offered to this category of employees. Human resources development. Tonga needs the population census to be done once in every 5 years rather than in 10 years. This cannot be done due to resources constraints. Of the current staff members of the SD, none had taken a senior role in the last census in 1996.

PICT National Statistics Office staff numbers Country Staff American Samoa 7 Marshall Islands Samoa 27 Cook Islands 10 Nauru 3 Solomon Islands 22 FSM 19 New Caledonia 41 Tokelau 1 Fiji 80 Niue Tonga 25 French Polynesia n.a. Northern Marianas 6 Tuvalu 5 Guam 16 Palau Vanuatu 14 Kiribati 8 PNG 140 Wallis and Futuna It has been proposed above that smaller offices should consider devolving some responsibilities, and that technical assistance should take precedence over capacity building where the latter can be seen to be ineffective. No point trying to develop capacity when there is no capacity to build!!!! if NSOs cannot attract – and retain - the resources they need to produce key information, then should responsibility for producing that information be transferred to relevant agencies which do attract and retain the necessary resources? This paper proposes that at least some responsibilities should be reallocated in this These are broad strategies, One example is in the Solomon Islands which is the 3rd largest NSO in the Pacific Region yet only has two staff members with more than secondary school education.

Census mapping in the Pacific: Pre census mapping is usually done late in the planning phase of the census cycle (often ad-hoc and too late). Most censuses in the past were planned and collected without a clear GIS capability in mind and lack of geographic identifiers. Traditionally census mapping is given low priority by most NSOs with several PICs lacking automated mapping systems The most common use of GIS is the use of thematic maps to disseminate and communicate their census data (post census). Collaboration with other government agencies has been challenging Traditionally census mapping is given low priority compared to other areas of the census (as compared to data processing)

Solomon Islands 2 April Tsunami

No digital maps used in EA definition Blacksands 835 Port Vila, Vanuatu Blacksands (peri-Urban) Enumeration Area In the 1999 Census this area was enumerated with : 943 Households : 4818 Population

(cont) Port Vila, Vanuatu Freshwota (peri-Urban) EA 840 In the 1999 Census this area had : 492 Households : 2715 Total Population 1999 2005

GIS for data dissemination and utilization There was a need to simplify population data, and to make these data more accessible at levels of geography below simply national levels. The SPC developed a customized software (Population GIS) for statisticians and planners, to improve the effectiveness of census (and other socio-economic) data dissemination and utilization So far 8 national systems have been developed covering the Federated States of Micronesia, Kiribati, Samoa, Vanuatu, Solomon Islands, Cook Islands, Marshall Islands and Wallis et Futuna Two distinct groups of intended users The producers of data and statistics (NSO) The main users of this data (Planning) it has sensitized the producers and users of statistics to the importance for accurate census and survey mapping, and motivated several countries to move from a traditional census mapping approach to an automated digital process in the collection and storage of geographic information.

Satellite Imagery and GPS Case : Republic of the Marshall Islands 2006 the Economic Policy, Planning and Statistics Office conducted socio-economic Community Survey on six Atolls to investigate basic living conditions and economic situation. Used small hand held mobile Global Positioning System (GPS) units and high resolution satellite imagery The team surveyed 1,205 households across 6 Atolls with data collected on 9,491 individuals (roughly 20% of the estimated population of the RMI. the survey team was able to randomly sample household on five of the six atolls, and have unique geographic identifiers for each household. The survey team surveyed 1200 households with an estimated population surveyed of about 8000 individuals (roughly 10% of the Marshall Islands Population). the first survey in the RMI to fully integrate Geographic tools in to the survey planning, processing and forthcoming analysis. The results are to be used to efficiently paint a picture of the RMI, both urban and rural, and compare both intra- and inter- atolls situations. Majuro Survey Team being trained in GPS

Case : Republic of the Marshall Islands Pre Survey Mapping

Case : Republic of the Marshall Islands Data Collection Survey map provided to Ebeye Survey Team GPS coordinates, and selected households

Case : Republic of the Marshall Islands Post Survey mapping Children living adjacent to the current public dump in Majuro.

Conclusion Censuses and surveys need to be planned and collected with a clear GIS capability in mind. Census mapping needs to be properly planned and resourced and given higher priority by Pacific Island NSOs and become an ongoing process. While adoption of GIS in the Pacific has been sluggish. A growing local and regional capacity is being established in the region through the use of technology and long term training attachments Wider collaboration within countries, innovative solutions and a coordinated regional approach is needed for sustainable utilization of GIS for census mapping in the Pacific Islands properly planned and resourced, Census mapping needs to be given higher priority by Pacific Island NSOs and become an ongoing process rather than implemented on an ad hoc basis, and usually too late in the census cycle.

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