PART I - Invest in American Samoa

PART I

Territorial General Plan

Overview of the Territory

American Sam oa G overnm entDepartment of Com merce

April 2003

FOREWORD

Purpose of Part I

This Territorial General Plan is an indicative policy agenda for the economic andsocial development of the Territory of American Samoa. The purpose of the plan is topromote a better quality of life for the Territory’s residents, protect the naturalenvironment and preserve the Territory’s resources for the sustainable developm ent ofthe islands.

Part I of the Territorial General Plan introduces the reader to the Territory’s islandsand existing conditions. Chapters One and Two provide colorful pictures of theTerritory’s islands and infrastructure to augment the narrative and data, whileChapters Three and Four identify the principal issues and areas of concern for thefuture.

The issues put forward in Part I were identified by a planning process thatincluded the participation of governm ent agency representatives, private sectorbusiness people and interested individuals. The planning process also drew uponprevious studies and recent social and economic development initiatives involving pubic input.

Part II of the Territorial General Plan sets out the policies and strategies for thesustainable developm ent of the Territory’s islands that the American SamoaGovernment will implement during the next several years. Part II follows upon Part Iand presents the issues in greater detail on the basis of acute common issues,economic development imperatives, environmental concerns and social developmentneeds.

The Territorial General Plan serves several important aims:

• to create a vision for the future;

• to focus upon the primary issues and concerns faced by the Territory;

• to create a permanent system of cooperation, coordination, planning andmanagement among government and non-governmental organizations;

• to identify a rational and strategic path for development that makes the bestuse of available funding and resources;

• to create the capacity to implement programs with efficiency and foreffectiveness; and

• to make known the policies and plans of the government administration anddemonstrate to Federal oversight agencies and funding sources that thegovernment has put-in-place a means to direct its progress and gauge itsperformance.

Scope of Plan

The scope of the plan is inclusive of a broad range of issues that are classifiedunder the following areas of concern:

• commerce and economic development;

• environmental protection and resource management;

• social development and the delivery of social services; and

• capital improvements and infrastructure.

These four areas of concern form the framework of the Territorial General Plan. They are reviewed and summarized in Part I. In Part I I, they each encompass achapter devoted to issues, policies and strategies.

The Territorial General Plan is an indicative policy plan. It precedes master plansand comprehensive development plans. That is, it provides the initial direction andpoints the way toward the future development of the Territory, and enables theformulation of master and comprehensive plans. These latter plans will provide maps,infrastructure and schedules.

Where master and comprehensive plans exist, e.g. the Port Master Plan of 1999,the Territorial General Plan endorses these plans and builds in policy to support theiragenda and functions. In essence, the Territorial General Plan provides the overallpolicy agenda and serves as the umbrella under which future governmentdevelopment, functional or action plans will be formulated.

Acknowledgement

The Department of Commerce wishes to thank all who participated in the formulation of thisTerritorial General Plan. We apologize if we may have omitted any contributors in the publicparticipation process.

Government Agency Representatives

Alexi Sene Jr.Alex ZodiacalAlofa TuaumuAndy CornishAndy PuletasiAo Manupo TurituriBirdsall Ala’il imaBernard MataumuaCarol W hitakerChris KingDan AgaDr. Talitua UeleElvis PateaFlinn CurrenGene BrighouseGus VienaHelmer MaugaHenry WendtHenry SesepasaraJack KachmarikJeff ShivelyJohn EnrightLaau Seui Jr.Laura LaumatiaLydia Faleafine -NomuraMarie MaoMartin McCarthyMick McCuddinMike DworskyMike SalaNancy DaschbachPat Galea’iPerilini PeriliniPeke Anoa’iPete GurrPeter CraigRay TulafonoRuth TuiteleapagaSione KavaSupi MaheswaranTanya W hiteTinei MalepaeaiTony Beeching

American Samoa Telecommunic ations AuthorityDepartment of CommerceDepartment of Marine and Wildlife ResourcesCoral Reef Advisory GroupAmerican Samoa Medical Center AuthorityDepartment of EducationOffice of the GovernorAmerican Samoa Environmental Protection AgencyAmerican Samoa Communi ty CollegeDepartment of Port AdministrationAmerican Samoa Communi ty CollegeDepartment of AgricultureAmerican Samoa Telecommunic ations AuthorityDepartment of Marine and Wildlife ResourcesDepartment of CommerceDepartment of Publi c W orksAmerican Samoa Communi ty CollegeDepartment of Port AdministrationDevelopment Disabilities Planning CouncilTerritorial Office of Fiscal ReformTerritorial Energy OfficeAmerican Samoa Historic Preservation OfficeOffice of the GovernorASCC, Community, Human and Natural Resources DivisionDepartment of the Interior, Office of Insular AffairsOffice of Protection and AdvocacyDepartment of Legal AffairsDepartm ent of HealthAmerican Samoa Power AuthorityOffice of Territorial and International Criminal Intelligence Fagatele Bay National Marine SanctuaryOffice of the Governor, Federal Grants CoordinatorAmerican Samoa Power AuthorityDepartment of Parks and RecreationDepartment of AgricultureUS Department of the Interior, National Park ServiceDepartment of Marine and Wildlife ResourcesDepartment of Public Safety and Feleti Barstow Public LibraryOffice of Petroleum ManagementDepartment of Publi c W orksDepartment of Human and Social ServicesOffice of Protection and AdvocacyDepartment of Marine and Wildlife ResourcesDepartment of Commerce

Vai FiligaValasi GaisoaVirginia SamueluViolet Richmond

Amos Galea’iBrent SwenkeHans LangkildeKen LafaeleLewis W olmanPete Galea’iTisa Fa’amuliTom Drabble

Territorial Administration on AgingDepartment of Commerce, Office of TourismDepartment of Human Resources

Anacronyms

ANZ Aust ralia N ew Ze aland B ank

ASCAH American Samoa Council on Arts and Humanities

ASCC American Samoa Com munity College

ASCC/CHNRD ASC C, Co mmunity and Na tural Resources D ivision

ASEPA American Samoa Environmental Protection AgencyASHPO American Samoa Historic Preservation OfficeASMCA Ame rican Sam oa M edical C enter Authority

ASPA Ame rican Sam oa P ower A uthorityASTCA Ame rican Sam oa T elecom municatio ns Authority

BOH Bank of H awaii

CHAMBER Chamber of Comm erce

CIP Captial Improvements Program

CRIAG Co ral Re ef Inia tive A dvis ory Gro up

DAS Department of Administrative ServicesDDPC Develo pment Disa bilities Planning Council

DHHS United States Department of Health and Human Services

DHR Department of Human ResourcesDHSS Department of Human and Social Services

DLA Depa rtment of Legal Af fairs

DLG Dep artm ent o f Lo cal G ov ernme nt

D M WR Department of Marine and Wildlife ResourcesDOA Depa rtment of Agriculture

DOC Department of CommerceDOC/OT Department of Commerce, Office of To urism

DOE Departm ent of E ducationDOH Depa rtment of Health

DOI/NPS US Department of the Interior, National Park ServiceDOI/OIA US Depa rtment of the Interior, Of fice o f Insular Aff airs

DPA Departm ent of P ort Adm inistration

DPPB Departmet of Program Planning and BudgetDPR Departm ent of P arks and Recrea tionDPS Depa rtment of Public Sa fety

DPW Dep artm ent o f P ublic W orks

DT Depa rtment of the Treas uryD Y W A Depa rtment of Youth and W om en's Af fairsEAC American Samoa Economic Advisory Commiss ion

FAA Federal A viatio n Authority

FBNMS Fagate le Bay N ational M arine Sanc tuaryFBPL Feleti Bars tow P ublic LibraryFono Legis lature of American Samoa

GOV Off ice o f the Governor

GOV/FGC Off ice o f the Go vernor, Fe deral Grants C oo rdinatorKVZK Ameican Samoa Public Information Office (Broadcasting)

NMFS US Depa rtment of Co mme rce, N ational Marine FisheriesService

NOAA National Oc eanographic a nd Atmo spheric Adm inistration

NOC National Olympic Committee

NRCS National Resource Conservation Service

OFP Off ice of Federal ProgramsOPAD Office of Protection and Advocacy

OPM Of fice of Pet roleum Ma nagem entOTICIDE Office of Territorial and International Criminal Intelligence P&RC Americ an Samo a Parks and R ecreation C omm ission

PNRS Project Notification and Review SystemSFA Sports Federal of America

TAOA Ter rito rial Ad minis tratio n on A gingTEMCO Territorial Emergency Management Office

TEO Territorial Energy OfficeTOFR Territo rial Offic e of Fiscal R efo rm

TPC Territorial Planning Co mmiss ion

UH-SSRI Univers ity of Hawa ii, So cial Scie nce Res earch Institute

USCG United S tates C oas t Guard

U S F& W S United States Fish and Wildlife Service

WDC Workforce Deve lopment Commission

WHURP West Harbor Urban Renewal Program

WP RFMC Wes tern Pacific R egioanl Fisheries M anagement C ouncil

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Table of Contents

Part I

Overview of the Territory

Chapter One: Introduction to American Samoa

1.1 The Territory of America Sam oa . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 1

1.2 The Territory’s Land and Location . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 11.2.1 Tutuila, the Main Island . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 11.2.2 Manu’a Islands . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 2

1.3 Climate and Environment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 3

1.4 Population and Human Settlement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 31.4.1 Pago Pago Bay . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 41.4.2 Tafuna Plain . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 41.4.3 Outlying Residential Villages . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 5

1.5 Political and Personal Status . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 5

1.6 Samoan Society and Leadership . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 6

1.7 Features of American Samoa . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 71.7.1 Pago Pago Bay and the Rainmaker Mountain . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 71.7.2 The National Park and North Shore . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 71.7.3 Ofu and Olosega: Paradise Found . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 1 - 71.7.4 Tutuila’s South Shore and Fagatele Bay National Marine Sanctuary . . . . . . . . . I - 1 - 7

Chapter Two: State of the Territory

2.1 Population Characteristics and Immigration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 1

2.2 The Economy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 32.2.1 Base Economy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 3

2.2.1.1 Tuna Canneries . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 32.2.1.2 American Samoa Government . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 4

1) Revenues and Expenditure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 42) Government Owned Enterprises . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 4(2.1) American Samoa Power Authority (ASPA) . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 5

(2.1.1) Electric Power . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .I - 2 - 5 (2.1.2 W ater . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 5 (2.1.3) Solid W aste . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 6 (2.1.4) W astewater . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 6

(2.2) American Samoa T elecommunications Authority (ASTCA) . . . . . . . . . . I - 2 - 7

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(2.3) Main Sea Port in Pago Pago Harbor . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 7(2.4) Petroleum Storage (Tank Farm) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 8(2.5) Airports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 8(2.6) Golf Course . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 9

2.2.2 Private Sector . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 92.2.2.1 Retail and W holesale Trade . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 92.2.2.2 Agriculture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 102.2.2.3 Fisheries and Marine Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 102.2.2.4 Visitor Industry . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 112.2.2.5 Labor Force Characteristics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 122.2.2.6 Remittances . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 12

2.3 The Environment, Land and Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 132.3.1 The Role of the Government in Resource Management . . . . . . . . . . . . . . . . . . . . I - 2 - 132.3.2 Coastal Environment and Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 13

2.3.2.1 Coastal Terrain . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 132.3.2.2 Coastal W etlands . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 142.3.2.3. Coral Reefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 14

2.3.3 Renewable Land and W ater Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 152.3.3.1 Forests and Agricultural Land . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 152.3.3.2 Fisher ies and Mar ine Life . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 162.3.3.3 W ildlife: Birds and Mammals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 172.3.3.4 W atersheds and W ater Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 17

2.3.4 Human Settlement and Government Land Use . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 182.3.4.1 Human Settlement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 18

1) Pago Pago Bay and Harbor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 182) Tafuna and Southwest Tutuila . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 183) Coastal Villages and Upland Bedroom Communities . . . . . . . . . . . . . . . I - 2 - 19

2.3.4.2 Government Land Use . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 192.3.5 Conservation, Land and Resource Management . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 20

2.3.5.1 Land and Resource Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 201) Land Tenure System and Traditional Leadership . . . . . . . . . . . . . . . . . . I - 2 - 202) Land Use Management by Government . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 20

2.3.5.2 Conservation and Historic Preservation . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 202.3.5.3 Environmental Protection: Air and Water . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 21

1) Air Quality . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 212) W ater Qual ity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 21(2.1) Drinking Water . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 21(2.2) Pago Pago Bay Water . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 22

2.4 Society and Social Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 222.4.1 Society and Traditions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 222.4.2 Religious Life . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 222.4.3 Arts, Culture and Entertainment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 232.4.4 Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 24

2.4.4.1 The Educational System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 241) Educational Attainment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 242) The Library System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 25

2.4.5 Health and Well-Being, Medical Care . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 26

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2.4.6 Social Conditions and the Delivery of Social Services . . . . . . . . . . . . . . . . . . . . . I - 2 - 272.4.6.1 Children, Youth and Adult Assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 272.4.6.2 Care of the Elderly . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 282.4.6.3 Youth Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 292.4.6.4 Federally Funded Food Assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 29

2.4.7 Outdoor Recreation\ . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 292.4.8 Law and Order . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 2 - 30

Chapter Three: Principal Concerns and Issues

3.1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 -1

3.2 Population Growth and Impacts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 13.2.1 High Population Growth Rates . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 13.2.2 Immigration: Unplanned Increase . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 23.2.3 Immigration Policy and W eak Control . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 23.2.4 Progressive Exodus of Human Capital . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 23.2.5 Population Concentration in the Youth . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 23.2.6 Urbanization and Over-Crowding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 2

3.3 Econom ic Growth and Economic Stabili ty . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 33.3.1 Base Economy and Dependency . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 3

3.3.1.1 Cannery Domination and Flight . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 33.3.1.2 Government Management Ability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 3

3.3.2 Escape from Base Economy Dependency . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 33.3.2.1 Economic Divers ification: Diffic ult. . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 -43.3.2.2 Private Sector: Marginal Prospects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 43.3.2.3 Agriculture: Under-Utilized Asset . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 43.3.2.4 Fisheries: Restricted Poss ibilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 43.3.2.5 Visitor Industry: A Fading Mission . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 5

3.4 Resource Management: Sustainable Development for the Future . . . . . . . . . . . . . . . . . . I - 3 - 53.4.1 Sustainable Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 53.4.2 Carrying Capacity of the Territory’s Natural Resources . . . . . . . . . . . . . . . . . . . . . I - 3 - 53.4.3 Overview of Natural Resources Status and Environmental Concerns . . . . . . . . . . I - 3 - 63.4.4 Less than Effective Stewardship of Renewable Resources . . . . . . . . . . . . . . . . . . I - 3 - 63.4.5 Human Settlement, Land Use Policy and Unwanted Effec ts . . . . . . . . . . . . . . . . . I - 3 - 8

3.4.5.1 Pago Pago Bay Area . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 83.4.5.2 Urban Sprawl on the Tafuna Plain . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 8

3.4.6 Undesirable Land Use Practices and Conservation of Land . . . . . . . . . . . . . . . . . I - 3 - 8

3.5 Provision of Basic Needs and Infrastructure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 93.5.1 The Government: the Source of the Territory’s Basic Needs . . . . . . . . . . . . . . . . I - 3 - 93.5.2 Population Growth and Funding:

Two Impediments to the Provision of Basic Needs Service and Infrastructure . . I - 3 - 103.5.2.1 Population Growth: Surpass ing Service Providers’ Capac ity . . . . . . . . . I - 3 - 103.5.2.2 Funding Deficiencies: Lim iting Future Development of Services . . . I - 3 - 10

3.5.3 Facilities and Infrastructure Needs and a New CIP Plan for 2000 through 2006 . I - 3 - 103.5.4 Basic Needs Facilities and Infrastructure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 11

3.5.4.1 Health System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 11

iv

3.5.4.2 Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 113.5.4.3 Public Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 123.5.4.4 Utilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 12

3.5.5 Other Infrastructure Needs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 123.5.5.1 Ports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 123.5.5.2 Shoreline Protection . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 123.5.5.3 Highways and Roads . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 133.5.5.4 Parks and Recreational Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 143.5.5.5 Historic Preservation and Cultural Attractions . . . . . . . . . . . . . . . . . . . . . I - 3 - 143.5.5.6 Economic Development Facilities and Infrastructure . . . . . . . . . . . . . . . . I - 3 - 14

3.6 Social Development and the Delivery of Social Services . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 143.6.1 Overall Balance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 143.6.2 Arts and Culture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 153.6.3 Health Care . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 153.6.4 Education and the Public School System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 16

3.6.4.1 The Educational System’s Overall Impact upon Territorial Development I - 3 - 163.6.4.2 The Impact the Educational System has upon Students . . . . . . . . . . . . . I - 3 - 173.6.4.3 The Structure and Mission of the System. . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 17

3.6.5 Social Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 183.6.5.1 Social Change and Social Stress . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 183.6.5.2 Quality of Life . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 18

3.7 Government Planning and Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 193.7.1 Planning and Lack of Vision . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 193.7.2 Human Resources, Leadership and Management . . . . . . . . . . . . . . . . . . . . . . . . I - 3 - 20

Chapter Four: Forecast for Principal Areas of Concern

4.1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 1

4.2 Population and Available Funding for Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 14.2.1 Population Growth . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 14.2.2 Available Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 3

4.2.2.1 Local Revenues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 34.2.2.2 The Department of the Interior, Office of Insular Affairs . . . . . . . . . . . . . . . I - 4 - 34.2.2.3 Other Federal Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 4

4.2.3 Social Development and Social Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 44.2.3.1 Educational Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 44.2.3.2 Health Care System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 44.2.3.3 Social Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 54.2.3.4 Youth and Women’s Affairs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 54.2.3.5. Arts, Culture and Recreation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 6

4.3 The Economy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 64.3.1 Canneries . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 64.3.2 Private Sector . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 74.3.3 Tourism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 74.3.4 Agriculture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 84.3.5 Fisheries . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 8

v

4.3.6 Construction and Capital Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 9

4.4 Probable Impacts: Environment and Resource Management . . . . . . . . . . . . . . . . . . . . . . I - 4 - 94.4.1 Planning and Human Settlement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I - 4 - 94.4.2. Management of Natural Resources and The Environment . . . . . . . . . . . . . . . . . . I - 4 - 10

List of Figures

Chapter One

Figure1.1 Tutuila Island . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 1 - 11.2 The Islands of Ofu and O losega. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 1 - 21.3 Pago Pago Bay . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 1 - 31.4 The Tafuna Plain . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 1 - 41.5 Masefau Village on the North Shore of Tutuila . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 1 - 51.6 The Fono, The Legislature of American Samoa . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 1 - 61.7.1 Rainmaker Mountain . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 1 - 71.7.2 The Cocks Comb on Tutuila’s North Shore . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 1 - 71.7.3 Tutuila ’s South Shore and Fagatele Bay National Mar ine Sanctuary . . . . . . . . . . . Part I - 1 - 7

Chapter Two

Figure2.1 Population of Ameri can Sam oa . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 12.2 Non-Samoan Populaiton by Ethnicity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 2 - 22.3 Population by Distric t and County on Tutuila . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 22.4 Starkist Samoa Cannery . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 32.5 Foreign Fishing Vesse ls . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 1 - 32.6 American Samoa G overnment Executive Office Building . . . . . . . . . . . . . . . . .Part I - 2 - 42.7 The Tafuna Power Station . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 52.8 Pago Pago Bay W astewater Treatm ent Plant . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 62.9 ASTCA Satellite Comm unications . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 2 - 72.10 Port Admin istration Main W harf . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 72.11 Petroleum Storage Fac ility . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 2 - 82.12 Pago Pago International Airport Terminal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 82.13 The Public Golf Course . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ......Part I - 2 - 92.14 Fagatogo Square Bus iness and Shopping Center . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 2 - 92.15 Local Comm ercial Agricul ture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 -102.16 Local Commercial Fisher ies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 -102.17 The Rainmaker Hotel seen from Utulei Beach Park . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 112.18 Twin Otter Aircraft of Samoa Air . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 112.19 The Labor Force in 2000 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 122.20 North Coast of T utuila Island . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 2 - 132.21 W etland Ifi Trees of Vatia . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 2 - 142.22 Fringing Reef off Niuloa Point . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . Part I - 2 - 142.23 Territorial Land Coverage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 2 - 152.24 Forests of the Eastern Distri ct . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 15

vi

2.25 Reef Fish of American Samoa . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 162.26 Bats Roosting in a Tree . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 2 - 172.27 Pago Pago Bay Land Use . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 182.28 Tafuna and Leone Area Land Use . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 2 - 192.29 Government Land Use . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 202.30 A Church in Pago Pago Village . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 2 - 222.31 Annual Christmas Program . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 232.32 Educational Enrollment and Educational Attainment . . . . . . . . . . .. . . . . . . . . . .Part I - 2 - 242.33 American Samoa Comm unity College . . . . . . . . . . . . . . . . .. . . . . . . . . . .. . . . .Part I - 2 - 252.34 The Feleti Barstow Public Library. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 252.35 American Samoa Medical Center . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 262.36 Department of Human and Social Services . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 2 - 272.37 Nazareth House . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 282.38 A.P. Lutali Senior Center . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 282.39 Veteran’s Stadium . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Part I - 2 - 292.40 Lions Park Childrens Playground and Tennis Courts . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 292.41 Departm ent of Public Safety Headquarters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 2 - 30

Chapter Three

Figure3.1 State of the Environment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 3 - 73.2 Educ ation ’s Broad Impac t. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 3 -16

Chapter Four

Figure4.1 Analysis of Census 2000 Popula tion Count . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 4 - 24.2 Possible Negative Externalities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 4 - 94.3 Possible Term inal Impacts. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Part I - 4 -104.4 Forecast of Expected Outcomes without Mitigation or Attitude Changed . . . . . . . Part I - 4 -10

I - 1 - 1

Chapter One Introduction to the Territory of American Samoa

1.1 The Territory of America Samoa

For readers that lack an intimate knowledgeof American Samoa, this brief introduction hasbeen provided to kindle your interest i ndiscovering the Territory of American Samoa.

This chapter, which highlights AmericanSamoa’s features, and Chapter T wo, State-of-the-Terri tory, are provided as the foundation foryour understanding of the Territory’s ambience,what its development issues are, and whatpolicies the government will focus upon for thefuture.

American Samoa is an unincorporated,unorganized territory of the United States ofAmerica. Ameri can Samoans enjoy most of thebenefits of being a United States citizen,including the freedom to choose their ownelected representatives and to move freely withinthe United States. An explanation of AmericanSamoa’s political status is provided in section 1.5at the end of this chapter.

American Samoa is not a single island;rather it consists of five volcanic, high islandsand two coral atolls. Tutuila Island is the largestvolcanic island, the most populated island, andthe Territory’s administrative center. Aunu ’u, apopulated remnant of a volcanic cone, lies justoff Tutuila’s southeastern coast. The smallvolcanic islands of Ofu, Olosega and Ta’u formthe Manu’a Islands group that is located seventymiles east of Tutuila. Two coral atolls , SwainsIsland, a privately owned island, and Rose Island,a wildlife refuge, lie several hundred miles northand east of Tutuila. These islands are seen onthe back of the front cover of this plan as areduction of a commerc ially available mapprepared by the University of Hawaii Press.

1.2 The Territory’s Land and Location

1.2.1 Tutuila, the Main Island

American Samoa is the only U.S. possessionsituated south of the equator. It is quite a long

Figure 1.1 Tutuila Island

Part I: Chapter OneIntroduction to American Samoa

I - 1 - 2

distance from the continental United States.Tutuila ’s Pago Pago International Airport issituated 172° 42N west longitude and 14° 20Nsouth latitude. It is about 2,300miles south-southwest and fi vehours flying time from Honolulu,Hawaii or 4,500 miles and a tenhour flight from Los Angeles,California.1

Tutuila’s nearest neighboringisland is Upolu, the second largestisland of the Samoan archipelago.Its largest town is Apia, the seat ofthe Independent State of Samoa. Aflight to Apia takes forty minutesflying time fr om Pago PagoInternational Ai rport.

Tutuila’s land area is estimatedat 56.0 square miles, that isseventy-two percent of the totalTerritorial land area of 76.1 squaremiles.2 Tutuila supports ninety-seven percent of the Territo ry’spopulation of 57,2913 people on arelatively flat but narrow coastal bench that liesbetween the shoreline and the foot of the steepmountainsides, which reach to 2,142 feet for theisland’s highest peak, Mt. Matafao.4

Tutuila ’s rugged and picturesque mountainsare an outstanding feature of the island. Otherscenic features are the deep water port of PagoPago Bay, the rugged and forested National Park,and Fagatele Bay, a national marine sanctuary.

Tutuila Island formally became a possessionof the United States with a Deed of Cessionsigned by its ranking chiefs on Apri l 17, 1900. In1904 the chiefs of the Manu’a islands formallyjoined the union and the Territory of AmericanSamoa.

1.2.2 Manu’a Islands

The Manu’a Island group, consisting of Ofu,Olosega and Ta’u islands, are high volcanicislands. They are the tips of ancient volcanoesthat rise sharply from the sea. Ta’u, the largestof the three small isl ands, appears as thenorthern half of an eroded volcano crest and

reaches 3,170 feet in elevation. Ofu andOlosega, together, stretch three miles east towest and equal the length of Ta’u island.

Together, they are about a third the size ofTutuila, which spans a distance of approximatelytwenty miles.5

The population of 1,379 people live on thenarrow coastal fringes between the steep slopeof the mountains and the sea. The population ofthe Manu’a Island group has been declining overthe last century due to its remoteness.6

Manu’a is known for its natural beauty andremote location away from bustling T utuila. It isan ideal location to find serenity in the SouthPacific and a most desirable vacation destinationbecause of its pristine isles and lack of urbaninfrastructure.

1.3 Climate and Environment

American Samoa’s climate is warm andhumid with abundant rainfall. On average, thePago Pago International Airport receives 135inches per year, but rainfalls average between120 and 240 inches per year at differentlocations. The amount varies due the location ofmountain peaks and the resulting orographicrainfall. The Summer months, Decemberthrough February, a re significantly wetter than

Figure 1.2 The Islands of Ofu and Olosega


I - 1 - 3

Figure 1.3 Pago Pago Bay

other times of the year, but American Samoadoes not have a rainy season and at least a traceof rain fal ls on approximate ly 300 days eachyear.7

Despite the heavy rainfall, there are no lakesand only a few perennial streams in the Terri tory,due to the steep topography, limited land massand porous volcanic soils.

The Samoa archipelago, which includes theIndependent State of Samoa, lies within a regionthat is annual ly threatened by hurricanes.Although American Samoa is not regularlyaffected by hurricanes, five powerful hurricaneshave struck the Territory’s islands in the last for tyyears (1966, 1979, 1987, 1990 and 1991). Eachhave passed over at least one of AmericanSamoa’s islands. Hurricane Val (1991) resultedin tens of millions of dollars damage to T utuila’spublic and private infrastructure and similardamage to the islands of Ofu, Olosega and Ta’u.Thus, the governmentstands on alert andm a i n t a i n s a ne m e r g e n c yp r e p a r e d n e s sprogram.

1.4 Population and Human Settlement

W hen the islandso f t he Sa m oaarch ipe lago wer ep a r t i t i o n e d o n ehundred years ago andt h e e a s t e r n m o s tislands were ceded tothe United States,approximately 4,000peop le , i nc l u d i ngA m e r i c a n s a n dE u r o p e a n s w e r eresident on the mainisland of Tutuila.About 1,750 Samoanslived in the outlyingManu'a group.8

In the 2000 Decennial Census the ethniccomposition of the population was little changed.

Almost ninety percent of the residents ofAmerican Samoa are still Samoans, but thereare many more people living on Tutuila. TheCensus counted 55,912 Tutuila residents, alongwith 1,379 Manu'a Islanders. Thus the populationof Tutuila increased fourteen-fold during theTwentieth Century, while Manu'a lost a portion ofits already-small population. The Manu’a Islandsnow comprise only two and four tenths of thetotal population of the Terri tory.

The majority of the Territory’s populationresides at two areas of Tutuila, the Pago PagoBay area and the T afuna Plain .

1.4.1 Pago Pago Bay

The Pago Pago Bay area was not the firstplace to be sett led by missionaries in the mid-1800s, but i t very quickly became the center o f

commercial activities as a result of its sheltereddeep water port. After the partition of the Samoaislands and cession to the United States in1900, the Territory was adminis tered by the U.S.


I - 1 - 4

Figure 1.4 The Tafuna Plain

Navy Department and the bay area became theseat of the new Terr itorial government.

The small villages lining the bay’s shorelinegrew slowly during the first half of the TwentiethCentury. The village of Fagatogo becam e theTer ritory’s commercial center as well as theNavy’s adminis trative post.

A large military mobilization during WorldW ar II thrust American Samoa into the modernage. Business picked up after W orld W ar II, butFagatogo and the Territory did not make greatstrides forward until the mid-1960s when the U.S.Government put a serious effort into expandingand improving the Territory’s infrastructure.Fagatoto village maintained its colonial andSouth Pacific ambience well into the 1960s.However, in recent years the village has falleninto disrepair. Vestiges of the colonial era stillremain and are being revived with urban renewal

programs that will revitalize of the colonialarchitec tural them e.

The Pago Pago Bay still remains the seat ofgovernment and the dominant center forcommerce and employment, although the TafunaPlain area is the site of most new development inrecent years. Two of America’s best known tunaprocessing canneries, StarKist and Chicken ofthe Sea, are located within the inner harbor of thebay and employ close to one-third of theTer ritory’s 14,000 paid employees.9 TheTer ritory’s government is now seated at Utuleivillage at the center of and on the westernshoreli ne of Pago Pago Bay.

1.4.2 Tafuna Plain

The Tafuna Plain is the only large area ofrelatively flat land in the Territory. It is located inthe southwest center of Tutuila. Because most


I - 1 - 5

Figure 1.5 Masefau Village on the North Shore of Tutuila

of the Territory’s terrain has slopes greater thanthirty degrees, it has become the site of intensiveresidential and com merc ial developm ent over thelast half of the Twentieth Century.

The Tafuna Plain presently holds about fortypercent of the population of Tutuila, in an area ofapproximately five square miles.10 The TafunaPlain is also an area where most non-Samoanand recent immigrants reside.

Since the Tafuna Plain is the only areacapable of handling air traffic, the Pago PagoInternational Airport is located at its south-eastern periphery. This area within the TafunaPlain is also the site of the largest amount ofgovernment owned property, acquired because ofand after World W ar II. It houses an IndustrialPark, a res ident iald e v e l o p m e n t f o rgovernment contractworkers, and is the s iteof recent light-industriala n d c o m m e r c i a ldevelopment.

The Tafuna Plainlaid dormant and under-used until after WorldW ar II, because of itsrelatively late volcanichistory and difficult-to-cultivate, rugged ground.In 1940 there were lessthan 1000 residents in allof Tualauta Co unty,which also includesvillages outside th eTafuna Plain.11 Sixtyyears later , in the year2000, there were 22,025residents, reflecting anaverage growth of five percent per year over a60-year period and a twenty-two fold Increase inthe population.12 The central portion of theTafuna Plain is the site of intensive residentialdevelopment, in-fill , the construction of theTer ritory’s first multi-family facilities and theemergence of large religious institutions. Theeastern core of the plain is reaching single familyhousing saturation and development is nowoccurring throughout the southwest and westernportions of the plain.

Notwithstanding the recent commercial andphysical development on the Tafuna Plainsgrowth, the Pago Pago Bay area still remainscentral to the economic well-being of theTerritory and central to the cultural and sociallife of American Samoans because of itshistorical significance.

1.4.3 Outlying Residential Villages

The remainder of Tutuila Island’s population,with the exception of several upland villages,resides in forty-six small villages located alongthe narrow, coastal flats that fringe the island.Residential areas and population are restricted ingrowth because of the the steep mountainslopes and the ocean shoreline bounding thevillages. Masefau village, pictured in Figure 1.5

and situated on the north shore of Tutuila Island,exemplifies the type of topography and terrainfound throughout a majority of the villages of theTerr itory’s islands.

The majority of residents of the Manu’a Islandgroup live in six villages that are also located onthe coastal fringes of the three islands of Ofu,Olosega and Ta’u.


I - 1 - 6

Figure 1.6 The Fono, The Legislature of American Samoa

1.5 Political and Personal Status

American Samoa is an "unincorporated,unorganized U.S. territory", which means that theU.S. Constitution does not apply in all matters,and that the Territorial government is able tocreate and administer its own immigration andtaxation laws, as opposed to those matters beingcontrolled by the U.S. Immigration andNaturalization Service or the U.S. InternalRevenue Service.

Because of its unincorporated status, theTerritory is able to treat alien residents differentlythan American Samoa born residents. TheTerritory is also able to limit the sale of land toAmerican Samoans and to limit or res trict thelicensing of foreign businesses.

American Samoans and American citizenscan vote in local elections, however voting is nota privilege or right for those not born in AmericanSamoa. American Samoans are eligible for U.S.national passports, but American Samoans, asone of the limitations of an unincorporated,unorganized U.S. territory status, do not have theright to vote for the President of the UnitedStates.

1.6 Samoan Society and Leadership

American Samoa is sim ultaneously a Samoancomm unity and an American community. MostSamoans are bilingual in English and Samoan.Although modernization and political alignment

with the United States are steadfastly supported,the Samoan culture remains intact and robust,with residents actively participating in culturalactivities, that pervade such life-cycle occasionsas weddings and funerals, but also Flag Dayceremonies of April 17th, title investitures, churchfunctions and village exchange visits.

The basic unit of Samoan society is the ‘aiga’(the fam ily or extended fam ily) but the culturealso recognizes the village, and the church aspredominant organizations that influencepersonal and communal activities. It is importantto note that each extended family holds lands ona communal basis for use by family members,and that there is a senior matai (chief) for eachfamily, along with subordinate chiefs, thatmanage family lands and activities.

The village represents the aiga, which cannumber from a few to hundreds of people. Eachvillage has a ‘fono’ (council of matais) that isresponsible for governing the vil lage community.Matters of general concern and the conduct ofvillage affairs, including conflicts and punishm entof offenders of village customs, are theresponsibilities of the village fono. At the countyor district level matais also deliberate andchoose the highes t ranking ch iefs to serve in theSenate, where eighteen seats are reserved foronly traditional leaders .

Members of the Senate serve in theAmerican Samoa legislature, also called the‘Fono.’. The Fono is a bicameral body consistingof the eighteen member Senate and a twenty-onemember House, that is elected through universalsuffrage. The Fono is responsible for thepassage of local legislation and local taxationmeasures.

1.7 Features of American Samoa

The Samoa archipelago has many featureswhich stand out and warrant special attention. Inpart, they define the ambience and majesty of theSouth Pacific. A few of American Samoa’sfeatures deserve to attrac t the attention of theworld, they are: the Pago Pago Bay andRainmaker Mountain, the National Park andrugged northern shore of Tutuila Island, thepicturesque and timeless Manu’a Islands and theFagatele Bay National Mar ine Sanctuary.


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Figure 1.7.1 The Rainmaker Mountain

1.7.1 Pago Pago Bay and the Rainmaker Mountain

Although Pago Pago Bay is prized for itsprotected deep water port, i t is also prized for i tsmagnificent scenery. As the bay is a remnant ofan ancient caldera, its northern ridges risevertically and dramatically to an elevation ofnearly 1700 feet. On the eastern periphery of thebay stands the renowned and picturesqueRainmaker Mountain, American Samoa’s icon.

1.7.2 The National Park and North Shore

The National Park of American Samoa is awild, scenic rainforest and coral reef area that isspread across the three is lands of T utuila, Ofuand Ta’u. These portions of the park total nearly9,000 acres with 1,000 acres as offshore waterextending to the edge of the coral reefs. Unl iketraditional national parks where the Federalgovernment owns and manages the land, alllands in the National Park are leased from ninevi l lages and the Amer ican Sa m oaGovernment.

The park consists of superb nati ve paleo-tropical rainforest extending from the ocean’sedge to the mountain tops in misty cloudforests. On Tutuila, there are miles of somethe most spectacular shoreline views in theworld, including cliffs and coves overlooking

the beautiful blue Pacific Ocean. On Ofu,there are long, white coral sand beacheswith overhanging palm trees.

1.7.3 Ofu and Olosega: Paradise Found

As seen on page 2, the islands of Ofuand Olosega are simply breath taking toobserve. They represent all that is theSouth Pacific, i.e. tropical, green,mountainous islands, white sands andazur blue water.

1.7.4 Tutuila ’s South Shore and Fagatele Bay National Marine Sanctuary

The Fagatele Bay National Marine Sanctuaryis a marine protected area located at the tip of therugged southern central shoreline of TutuilaIsland. The Sanctuary is one of many marineprotected areas set up under Federal law.Fagatele crater forms its sem i-circular terrestrialboundary. The bay is approximately seven-tenths

Figure 1.7 .2 The Cocks Comb on Tutuila’s North Shore


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1.Bier, James A., The University Press of Hawaii, Islands of Samoa (map), Honolulu, Hawaii.

2.Department of Commerce, American Samoa Government, American Samoa Statistical Yearbook,Pago Pago, American Samoa, p. viii, 1996.

3.United States Bureau of the Census, 2000 Census of Population and Housing, American Samoa,Press Release, Washington, D.C., July 2001.

4.Bier, James A., The University Press of Hawaii, Islands of Samoa (map), Honolulu, Hawaii.

5.ibid.


7.Department of Commerce, American Samoa Government, American Samoa Statistical Yearbook,Pago Pago, American Samoa, p. 53, 1996.






of a mile in diam eter and upwards of fourhundred feet deep at the mouth of the crater.

Endnotes

I - 2 - 1

Figure 2.1

Chapter TwoState of the Territory 2002

2.1 Population Characteristics and Immigration

American Samoa had a resident populationof 57,291 people as of April 2000. Thisrepresented a two percent annual growth ratesince the Census of 1990 when the Terri tory’spopulation stood at 46,773 people.1

The population for the Island of Tutuila wasrecorded at 55,912 people in April 2000 andcomprised over ninety-seven percent (97.6%) ofthe Terri tory’s total. In contrast to T utuila’spopulation growth during the decade, the Manu’aIslands lost twenty-two percent of theirpopulation. The Census counted 1,379 people inyear 2000 compared to the 1990 total of 1,760.2

In April 1990, fifty-one percent (51%) of theTer ritory’s population were male. The ratio ofmales to females did not change in the 2000Census as there were 29,264 males and 28,027

females recorded, or fifty-one and forty-ninepercent (51% : 49%) respec tively.

The population of American Samoa is muchyounger than the population of the continentalUnited States. The median age of the Ter ritory’spopulation at April 2000 was twenty-one years(21) compared to the median age of thirty- five(35) years for the fi fty United States. Children,under the age of five and between five andtwenty, comprised forty-eight percent (48%) ofthe Terr itory’s population. The percentage ofchildren of this age group did not changebetween 1990 and 2000. 3

The age-cohort distribution for the agestwenty to sixty-four (20 to 64) and sixty-five (65)and over also did not change. Forty-nine percent(49%) or 27,955 people of the age cohort (20 to64) and three percent (3%) of the population 65and over were recorded in Census 2000.

Samoans, regardless of birthplace, made upeighty-eight percent (88%) of the population inthe year 2000. There were 50,545 Samoansresident in the Territory, of which 32,470, or fifty-six and seven-tenths percent (56.7%) of the totalpopulation listed American Samoa as their birthplace. Thirty-one percent (31%), of thepopulation, or 17,712 people, were born inSamoa. Six and three tenths percent (6.3%)were born in the Uni ted States.

In 2002, a majority of American Samoa'sresidents are descendants of parents orgrandparents that once lived on one of WesternSamoa’s islands. The 2000 Census reportedthat sixty-eight percent (68%) had fathers andsixty-seven percent (67%) had mothers eitherborn in the United States or elsewhere. Thus, theCensus data shows that foreign born residentsare gradua lly displac ing loca lly born Samoans.

Part I: Chapter TwoState of the Territory

I - 2 - 2

Figure 2.2

Figure 2.3 Populat ion by D istrict and County on Tutuila

Figure 2.2, Non-Samoan Population byEthnici ty, provides a general description of thedistribution of the non-Samoan population. Thelargest non-Samoan group of residents havebeen immigrants from the Polynesian islands of

Tonga, located several hundred miles to thesouthwest of the Samoa archipelago. TheTongan community remains the largest non-Samoan community with an April 2000population of 1,598, or two and eight-tenths(2.8%) of the Territory’s population. However,their numbers have decreased slightly over thelast ten years . 4

Other ethnic groups represented in smallnumbers include Filipinos, Koreans, Chinese,and Caucasians. Including the Tongans, andmulti-ethnic people, who represent four and two-tenths percent (4.2%) of the total population, thenon-samoan residents compris ed eleven andeight tenths (11.8%) of the Territory’s population.

Over the last decade the Chinese andFilipino comm unities have grown significantl y,while the Caucasian community has decreasedmarkedly in numbers. T h e A s i a n s a r eparticularly active in the retail and wholesalesectors at the ownership level, while Filipinostend to be employed as skillful managers.Caucasians are employed in many roles ofresponsibility in the government, business andprofessional sectors.

Figure 2.3, Population by Distri ct and Countyon Tutuila, identifies the spacial distribution of


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Tutuila ’s population. Ma’oputasi County,encompassing the Pago Pago Bay area andTualauta County, which includes the TafunaPlain, hold the majority of the Territory’spopulation.

2.2 The Economy

The cash economy of the Territory is mainlybased upon receipt of and re-circulation ofincome that originates from outside theTer ritory’s boundaries or from foreign sources.This includes earnings from two tuna processingcanneries, the fishing fleets that supply thecanneries and Federal assistance programs andgrants. These sources of outside income arecommonly called the ‘base economy’ inAmerican Samoa. T heir input is estimated toresult in ninety-three percent of final sales in thelocal economy.5

The base economy is the lifeblood of thelocal commercial sector, or private sector,because their expenditures and the expenses oftheir employees drive the sales of goods andservices in the private sector. The private sectorproduces few products that result in foreignreceipts and only a small percentage of salesand services that would result in the productionof final goods.

2.2.1 Base Economy

2.2.1.1 Tuna Canneries

StarKist Samoa (owned by the H.J.Heinz Inc.of Pittsburgh, Pennsylvania) and Chicken of theSea (COS) Samoa Packing Com pany (owned byThai Union Ltd. of Thailand) operate tunaprocessing canneries on the north shore of PagoPago Harbor. The StarKist Samoa cannery isthe largest tuna cannery in the wor ld. It packs550 tons of tuna per day and employs about2,600 workers. Chicken of the Sea packs about400 tons of tuna per day and employs 2,400workers.6

Their annual purchases in the local economytotal over $60.0 million per year, of which $40.0million is in payroll and $20.0 million in otherexpenditures, e.g. fuel, power, water andservices.

The domes tic and foreign offshore fishing fleetsbuy fuel and supplies in the millions of dollars butthe true value of the fleet purchases is unknown.7

The two canneries in American Samoa, havebeen operating in the territory for over forty years;they have expanded by leaps and bounds in thelast twenty-five years. Since 1973, canneryemployment at StarKist Samoa and SamoaPacking has increased almost five-fold, while thevalue of tuna exports has increased nearlyfifteen-fold. Between 1982 and 1997 US importsof canned tuna rose from ten percent to twenty-five percent of US consumption while USproduction dropped. At the same time AmericanSamoa’s tuna cannery production rose fromfifteen percent to forty-four percent of total USconsumption.

The canneries get generous corporateincome tax benefits as a result of being located

Figure 2.4 StarKist Sam oa Cann ery

Figure 2.5 Foreign Fishing Vessels


I - 2 - 4

in American Samoa. The advantages includeduty-free entry of canned tuna into the U.S.market under Headnote 3a and tax relief from theInternal Revenue Service Section 936 Federal taxcredit. The savings to the canneries amountedto $66.6 million as reported by the U.S.Department of Labor’s economic report, TheMinimum Wages in American Samoa, 2001.8

The canneries use the customs and tax creditsavings as well as the minimum wage standardsas their leverage and justification for remainingin the Terri tory.

The ability of the canneries to lobby againsthigher wages and to keep the minimum wagelower has been one of the factors for thecanneries continued presence in AmericanSamoa. The cannery minimum wage rate was$3.25 per hour in 1999, up from $3.00 in1993.9

2.2.1.2 American Samoa Government

1) Revenues and Expenditures

The American Samoa Government is thelargest single em ployer in the Territory. Itemployed 5,002 people in 2000. This representsroughly twenty-eight percent (28%) of theTer ritory’s 16,718 paid employees that work inthe cash economy, but on ly a one percentincrease in government employment over thefive-year period from 1994.10

In Fiscal Year 1999 the American SamoaGovernment’s revenues were estimated to beclose to $105.0 mill ion. Local revenues of $56.5

million, collected from taxes and charges, madeup fifty-four percent of total revenues. U.S.Federal allocations for formula and programgrants contributed to the remainder, or forty-sixpercent of total revenues. T hese inc luded $24.8million for allocations from various Federalagencies, an annual Department of the InteriorOperations Grant for $23.0 million, and a $10.1million Capital Improvements Program awardfrom the Department of the Interior for thegovernment’s construction of infrastructure.11

The Department of Education and theHospital Authority received roughly forty-f ivepercent of the government’s total revenues fortheir operations and improvements. Of the two,the Department of Education received the largestshare at $28.8 million. These two organizations’revenues dwarfed those of all other governmentoperations. The next highest revenues wereallocated for the American Samoa Legislature(Fono), the Department of Public W orks and theDepartment of Public Safety, which operates thecorrectional facilities and provides police and fireprotection. These three organizations receivedbetween $3.5 and $3.9 million for their annualbudget.12

Government expenditures have exceededrevenues during the last decade by $7.0 to $12.0million. After recent windfall payments forinsurance back payments and the utilization ofthe national tobacco settlement to pay pastdebts, estimates by the Territorial Office of FiscalReform place the Territorial debt between $18.0to $24.0 million. These payments have reducedthe debt by half. In order to further reduce thedebt and respond to U.S. Congressionalconcerns, the government is taking m easures toimplement a Fiscal Reform package to bringexpenditures in line with revenues.13

2) Government Owned Enterprises

In addition to conventional governmentoperations, the government owns and operatesseveral revenue-genera ting enterpr ises. Theyare:

• the American Samoa Power Authority thatoperates the electr ical power system, the

Figure 2.6 American Samoa Government Executive Office Building


I - 2 - 5

water system, wastewater systems and solidwaste disposal ;

• the American Samoa Telecom municationsAuthority that operates the telephone andsatellite cable systems;

• the Pago Pago International Ai rport and O fuand Ta’u airports in the Manu’a;

• the ma in seaport/wharf i n Pago Pago Bay;

• the golf course at Ili’ili village;

• the Petroleum Tank Farm; and

• the American Samoa Hospital Authority LBJTropical Medical Center.

Other public assets are leased to p rivatebusinesses, including public lands, land parcelsat the Senator Inouye Industrial Park and theRonald Reagan Marine Railway, the ship repairfacility located next to the canneries within theinner Pago Pago Harbor.

(2.1) American Samoa Power Authority (ASPA)

The American Samoa Power Authority(ASPA) was established in 1981 to assumerespons ibility over and opera tion of the T erri tory’selectric power system. Since 1981, ASPA hasalso taken over the water and wastewate rsystems (1988), and most recently the solid-waste services in 1995. ASPA is a wholly-ownedgovernment enterprise, administered by a Boardof Directors. ASPA’s operational expenses arecovered by fees, but ASPA’s revenues often donot meet its expenses, and capital im provementsfor all of ASPA’s divisions have historically beensupported by grant awards from the Departmentof Interior.

(2.1.1) Electric Power

American Samoa’s power system includesfours generating stations with approximatelyeighty-nine miles of single and three phasedistribution lines. For Tutuila, the maingenerating facilities are divided between two

plants, Satala and Tafuna. The Manu’a Islandshave two small generating facilities at Ofu andFaleaso villages, respectively.14

ASPA has invested extensively toward theimprovement of the electrical power systemsince 1981, including development of its humanresources and the creation of a reliable electricalgenerating, switching and distribution system.The system’s power plants on Tutuila Island,located at Satala village near the canneries andat Tafuna, have a generating capaci ty of fortymegawatts. The capacity will be increased toforty-four megawatts by the end of 2002. Thedistribution grid is a combination of overhead andunderground wires.15

ASPA system peak load on Tutuila is twenty-six megawatts. The total number of electricalmeters is 10,000, of which eight thousand areclassified as residential customers. The two tunaprocessing canneries are es timated to use thir typercent, on average, of the power ASPAgenerates.16

ASPA electricity charges are higher than the

average homeowner kilowatt charge for thecontinental United States, but are in the samerange as the prices charged by America’s mostexpensive utilities . In early 2002, for example,residential customers were paying about US$0.17 per kilowatt.17

(2.1.2) Water

Figure 2.7 The Tafuna Power Station


I - 2 - 6

ASPA’s W ater Division provides piped,metered, chlorinated potable drinking water toabout ninety-eight percent of the AmericanSamoa’s population. Only four villages are notconnected to the government system, they are:Ofono, Fagamalo, Malota and Fagalii. TheW ater Division is constantly expanding its systemto reach these unserved remote villages, whichhave relied upon surface water catchments thatcould be unreliable and contaminated duringdrought conditions or heavy rain.

The Ter ritory’s water is derived from aboutsixty productions wells, for the most part. Twosurface water catchments are presentlyreconstructed with state of the art microfiltrationplants to treat the water from the two surfacewater sources that connect to the central watersystem. The water is drawn from shallowaquifers which are recharged in a matter of daysor weeks following rainfall. The main aquifers arelocated in Malaeimi Valley at the Tafuna Plainand the Malaeloa Valley. Scientific estimatessuggest that Tutuila’s aquifers could reliably yieldenough water to serve a population of 115,000people.18

Maximum recharge is estimated at twenty-fi vemillion gallons per day. The present level ofwater production is nine million gallons per day.

ASPA presently sells eight million gallons ofwater per day. The canneries consume betweentwenty to thirty percent of the total and twenty tothirty percent is unaccounted for or lost due toleakage. ASPA charges about $1.45 per 1000gallons of water, which is consis tent with U.S.pricing.19

(2.1.3) Solid Waste

The Solid W aste Division operates a sanitarylandfill in the village of Futiga at the southwesterncorner of the Tufuna Plain to handle about fortytons of waste each day. The landfill is currentlybeing expanded and improved to meet U.S.Environmental Protection Agency regulations.The old landfill was officially closed inaccordance with U.S. Environmental ProtectionAgency regulations. New improvements arebeing funded by the Department of the Interior.

Private companies, under contract to ASPA,collect solid-waste on an island-wide basisseveral times a week. Disposable material isburied at the sanita ry landfill. Recyclablematerial is contained at ASPA’s scrap metal yardnear the Pago Pago International Airport andshipped abroad. The cost of the refuse serviceis met by a surcharge assessed with theelectrical bills. Residences, for example, arecharged a collection fee of three dollars permonth, while businesses pay higher rates.

(2.1.4) Wastewater

The Wastewater Division operates twosewerage systems on Tutuila, along the PagoPago Bay shoreline and in the central Tafunaregion. About thir ty percent of the terri tory’spopulation, or about four thousand households,are connected to the government sewer systems.The percentage is increasing slowly as the utilityexpands the system and converts septic tanksystems and connects them to the governmentsystem.

The Pago Pago Bay area system is the mostextensive of the two sewerage system s. Ninetypercent of residences and businesses from thevillages of Fagaalu to Atuu are connected to thesystem. The Tafuna sewerage network underliesthe village of Nu’uuli and the Tafuna plains. It isbeing constantl y expanded year by year withconstruction grants provided by the federalgovernment to accom modate the rapid growth ofpopulation in the area. The expansion is taking

Figure 2.8 Pago Pago Bay Wastewater Treatment Plant


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place in the aquifer recharge area to protect thegroundwater supply.

Secondary sewage treatment is provided attwo plants at the villages of Utulei, in the bayarea, and Fogagogo adjacent to the Pago PagoInternational Airport at Tafuna. Each of theplants has its own ocean outfall. The plants arein good shape and have excess capaci tyavailable to serve expanded service areas. Onthe outer islands (Ofu, Olosega, Ta’u, Aunu’u),ASPA provides a similar array of utility servicesas it provides for Tutu ila res idents.

ASPA is also active in allied areas. Forexample, ASPA has been contrac ted to supplymanagement expertise to the public utility atEbeye Island of the Republ ic of the MarshallIslands. ASPA has also been designatedAmerican Samoa’s physical and institutionalhome for DELTA/PEACESAT Network, agovernment satellite network system beingutilized by different agencies, including theAmerican Samoa Comm unity College, for tele-medicine, distance-learning and other publicpurposes. As result of i ts involvement w ithDELTA/PEACESAT, ASPA has also been givenlead responsibility for pursuing initiatives in “e-commerce” including the securing of majorfunding from the Federal government on behalf ofthe Territory. The utility has participated in thecreation of an institutional foundation for suchinitiatives by establish ing a non-p rofi tcorporation, the Pacific e-CommerceDevelopment Corporation.

(2.2) American SamoaTelecommunicationsAuthority (ASTCA)

T h e A m e r i c a n S a m o aT elecomm unicat ions Author i ty(ASTCA) is for the most part fully self-sustaining, however, it does receive abudget and a small subsidy foremployees from the government.ASTCA offers excellent local, long-distance and Internet service. ASTCAis presently evaluating access tohigh-speed/broad-bandwidth Internetservice from International businesses.

Some government agencies have access toone of the high-speed, wide area networks thathave been installed to facilitate education,d i s tance learning, tele-medicine an dteleconferencing. Every classroom in theTerritory has a high speed connection to theInternet as a result of the U.S Department ofEducation E-Rate Pro gram, a nd videoteleconferencing capability exists in manygovernment agencies, including the hospital andthe community college.

(2.3) Main Sea Port in Pago PagoHarbor

Figure 2.10 Port Administration M ain Wharf

Figure 2.9 ASTCA Satellite Communications


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The sea ports and airports are operated bythe Department of Port Administration. Shippingand transport are vital to an isolated islandsociety, and American Samoa has thereforeinvested, to the best of its ability, in its seaports,airports and telecommunicationsinfrastructure.

Pago Pago harbor boastsseveral government-owned deepdraft freight docks, a largecontainer yard, private docks forthe canneries, a 3,000 ton marinerailway, a modern fuel dock, alocal fisheries dock and smallerbulkheads and ramps.

The main wharf is located inthe village of Fagatogo andutilizes an area of approximatelyforty-one acres. Mos t of thefacilities of the dock are in need ofrepair, according to the latestassessm ent of Port Master Planof 1999. Repairs and construction are beingmade on the order of $1.0 million per year andthe latest work done has been the hardening ofthe container yard.20

In 1999 there were 807 vessel arrivals at themain port. Half of these vessels were eitherfishing boats or reefers associated with theoffshore, distant water fishing fleet. About tencontainer ships o r fuel tankers a month docked atthe port and more than 38,000 containers movedthrough the port with 540,400 tons of cargo off-

loaded during the year.21

(2.4) Petroleum Storage (Tank Farm)

A modernized petroleum fuel storage faci li ty,

operated by the Office of PetroleumManagement, houses fi ve new petroleum storagetanks that meet U.S. Environmental ProtectionAgency hazard regulations. They will be able tohold a total of 290,000 barrels of fuel, i.e. a two-month reserve, by mid-2002. These will providestorage for diesel fuel for the offshore, distantwater fishing fleets and aircraft fuel.22

(2.5) Airports

The Pago Pago International Airport is amodern airfield capable of receiving today’slargest passenger and cargo aircraft. Runway 23has recently been extended by 1,000 feet, makingits overall length 10,000 feet. This has been along, sought-after improvement that will enable totrans-Pacific flights to depart the airport s afe ly.

The airport registers about five or six large jetvisits per week, including twice-weekly HawaiianAir passenger flights to and from Honolulu,Hawaii, regular military stopovers for refueling,and a weekly air cargo flight. Small twin-propplanes arrive and depart Pago Pago InternationalAirport on an hourly basis on either runway 8 or23, connecting the Territory with the IndependentState of Samoa. In 1999, arrival and departure of

Figure 2. 12 Pago Pago International Airport Terminal

Figure 2.11 Petroleum Storage Facility


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flights of small com mercial props numbered near12,000. Flights are also available to a lesserextent to the Manu'a Islands of Ofu and Ta’uwhere existing airstrips will be upgraded from2,600 feet to 3,200 feet.23

Pago Pago Internationa l Airport registeredthe arrival of 62,246 passengers in 199724 andabout 1,100 tons of cargo, which is less than onepercent of total sea freight. In all, the Airporthandles about 200,000 passenger transits a year,and modest non-commercial traffic, primarilymilitary and cargo flights.25

(2.6) Golf Course

The 18-hole Ili’ili Golf Course is located on120 acres of land at the western end of theTafuna Plain and provides a marvelous view ofTutuila ’s southeastern shore. The annual incomederived from golf course revenues is in thevicinity of $100,000, but trivial in com parison tothe government’s total revenues . 26

2.2.2 Private Sector

American Samoa’s private sector employedapproximately 6000 people in 1999. Thesenumbers represent an increase of thirty-threepercent in private sector employment over 1994and reflect the ability of the private sector toabsorb employable people in the Terri tory.27

The latest reliable data available on discreteinformation about the economy, i.e., 1995 surveyinformation, shows that the retail and wholesaletrade, the services sector, the constructionindustry and transport services (taxis and buses)accounted for ninety percent of employment in

the private sector. The wholesale and retail tradeemployed 1,685 people, or thirty-six percent ofthe sector workforce. The services sec tor,transport and construction comprised twenty-one, eighteen and fourteen percent respectively.28

Employment in the finance sector andagriculture and fisheries represented only fourpercent and six percent o f total employment,respectively. The low numbers of people workingin the finance sector is reasonable for there areonly two banks and several small finance andinsurance businesses represented. The lowemployment in agriculture and fisheries, i.e., 307persons, indicates difficulties in makingagriculture and fisheries a su cces sfulcommercial activity.29

W ith the demise of the brief experiment ingarment manufacturing in the late 1990s, i.e, thefailure of the BCTC and Daewoosa clothingmanufacturing companies, processed tunaproducts in aluminum containers, fish meal andpet food once again account for virtually all of American Samoa's commodity exports.30

2.2.2.1 Retail and Wholesale Trade

American Samoa's private sector, and mostsignificantly the retail and wholesale trade, isbased on providing goods and services to thetuna industry, the government and the men andwomen working for those economic titans. Thevast majority of the retail and wholesale trade isfocused upon the supply of foreign foodstuffs andthe sales of inexpensive clothing and goods.Estimated initial input to the economy from thesales to the canneries, government and theiremployees, and to the employees of the pr ivatesector itself is roughly $50.0 million.31

Figure 2.13 The Public Golf Course


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Figure 2.15 Local Commercial Agriculture

The retail and wholesale trade has for manyyears earned foreign income by selling i tsproducts to residents of Wes tern Samoa, thefishing fleets and to traveling ‘yachtees,’ althoughthis is a sm all percentage of tota l activi ty.

2.2.2.2 Agriculture

Commercial agriculture does not exist on alarge scale in the Territory. Commercialagriculture is primarily widespread, small-scalefarming of traditional crops such as taro,bananas and coconuts.

The 1999 Census of Agriculture reported1,498 farms to be producing crops or raisinglivestock for commercial consumption. The totalamount of commerc ial farm land in use was8,578 acres at the time of the Census and theaverage size of commercial farm was 5.7 acres.Approximately two-thirds of farms were undercrop production, while only five percent ofcommercial farms were used for livestock andpoultry production. All other farms of farms wererepor ted as ‘mixed use.’ 32

The total value of commercial farms sales in1999 was $44.3 million,which equated to anaverage commercial farm earnings of $29,600.Bananas, taro and yams were the big moneyearners and sold for a value of $7.8 million and$8.4 million, respectively. Poultry and eggs, andhogs and pigs s ales was slightly over $1.0mill ion. In recent years a fair amount of

production has been sold to the school lunchprogram.33

Non-commercial, subsistence agricultureaccounted for the substitution of, or consumptionof production valued at $29.6 million. Therewere 4,975 subsistence farms under cultivationwith an average size of 2.2 acres. Thisrepresented a non-cash crop earning equivalentof $5,934 per farm.34

The possib ility of growing kava, noni andother herbs on an export-oriented, cash cropbasis is currently under exploration.

2.2.2.3 Fisheries and Marine Resources

Although the territory is an important hub forextensive distant-waters fisheries, the localfisheries industry is limited. A small fleet ofapproximately fifty, small, ‘alia’ boats under fortyfeet are presently operating and catch fish withina single days travel. They are out to take bottomfish and pelagic fish, e.g., tuna and bill fish, to besold locally.35

In 1999, the Census of Agriculture reportedone hundred twenty-one active fishermen hadearned $7.0 million from the sale of fish. Localgrocery stores picked up some of the fish, whilesome of the fish were sold from coolers androving distributors. Not all fish caught were sold

Figure 2.14 Fagatogo Square Business and Shopping Center


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as cultural traditions expect some of the catch tobe consumed by the extended family.36

Since 1999 the local alia fleet is sa id to havealmost doubled as a result of the influence thegreat financial success of the alia fisherm en ofthe Independent State of Samoa hasexperienced. They are selling a great majority oftheir albacore tuna to the canneries. Theiroperations are said to have grown five-fold in thelast five years.37

The local distant-water fishing fleet is agrowing business with up to fifteen medium-sized boats of fifty to one hundred fi fty feet thatfish offshore. These boats have been supplyingthe canneries in competition with the largerforeign fishing fleet. They are supplying thecanneries primarily with albacore tuna and muchsmaller amounts of other pelagic species.

In August of 2001, the U.S. National MarineFisheries Service agreed to confine fishing withinfifty miles of American Samoa’s shores todomestic fisherm en and U.S. vessels that wereregistered to fish in Am erican Sam oa’s exclusiveeconomic zone before October 2001. Since it isillegal to disall ow U.S. owned vessels to fishwithin the fifty mile lim it, it has been reported thatmore than twenty-five boats formally based inHawaii and California’s west coast are nowfishing or will be fishing shortly withing this limitand selling fish to the canneries.38

Aquaculture is beginning to catch on inAmerican Samoa. It was reported in the 1999

Census of Agriculture that there were fifteenfarms raising Tilapia fresh water fish. Sales tolocal stores was valued at $85,700 for 1999. Thesales of giant clams was also recorded, butresulted in a small amount of earnings.39

2.2.2.4 Visitor Industry

American Samoa’s visitor industry has gonethrough a long period of decline. Tourismpeaked in the mid-1970s when 35,000 peoplevisited the Territory by plane and cruise ship.The number of tourists and visitors has declinedsince then.40

Between 1990 and 1997, the number oftourists visiting American Samoa declined from8,499 to 4,514, a forty-seven percent drop. Thenumber of people coming to Americ an Samoa for

business purposes also dropped, but to an evengreater extent, from 16,347 down to 6,835, or afifty-eight percent decline. The decline in bothtourists and business people visiting the island,was matched by a lesser decrease of relativesvisiting family members, a downward turn ofeighteen percent, not a good ind icator of a turn-around in business.41

The decline in American Samoa’s visitorindustry has been accompanied by a substantialincrease in the development of tourism in theIndependent State of Samoa in recent years.This is in stark comparison to the malaiseassociated with the downturn in AmericanSamoa tourism .

Figure 2.17 The Rainmaker Hotel seen from Utulei Beach Park

Figure 2.16 Local Commercial Fisheries


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The interest in small-scale tourism andecotourism remains alive. ‘Bed and breakfast’businesses have been growing in num ber . Inaddition, a new one hundred and four room hotelin the Tafuna area is expected to be completedby February 2003 that will cater to businesspeople, and tourist as well. These activities area response to the success seen with ecotourismon the islands of Upolu and Savai’i of theIndependent State of Samoa and a generalfeeling that tourism can be revived with thedevelopment of appropriate infrastructure andservices.

2.2.2.5 Labor Force Characteristics

The 2000 Census data shows that 16,718people were employed in the cash economy.This figure represents forty-nine percent (49%)of the population that is sixteen years of age andolder. There were 909 people reported to beunemployed, or five and two-tenths percent(5.2%) of the labor force.

The manufacturing sector is dominated bythe StarKist and Chicken of the Sea fishprocessing workforce. At the time of the Census,clothing manufacturing was not a significantactivity. Those in the Health, Education andSocial Services classification, as well as Public Administration, are primarilyemployed by the Americ an Samoa Government.

Figure 2.19 The Labor Force in 2000

Economic Sector 2000 Percent

Private Sector 11,346 70%

Government 5,002 30%

Industrial Classification

Agriculture & Fishing 517 3%

Construction 1,066 6%

Manufacturing 5,900 35.3%

Wholesale 361 2.2%

Retail 1,429 8.5%

Transport & Warehousing 1,036 6.2%

Informat ion 323 1.9%

Finance, Insurance 311 1.8%

Professional Management 239 1.4%

Education, Health, Social 2,856 17.1%

Arts, Entertainment, Food 624 3.7%

Public Administration 1,505 9%

Other Services 506 3%

Figure 2.19, the Labor Force in 2000,provides a glimpse at the make-up of theemployment characteris tics of the Terri tory.

The Transport class ification includes a broadclass of worker, i.e., bus and taxi drivers,truckers, warehousing, and the utiltities of power,electricy and water. Sixty-six percent of theemployees working at the two canneries wereborn in W estern Samoa, while rough ly fortypercent of those born in American Samoaworked for the government. 42

2.2.2.6 Remittances

The value of remittances to and fromoverseas family members and friends should notbe forgotten in calculations of income andexpenditures of the Terri tor ial economy.

There is a well-established pattern ofSamoan family members l iving overseas who

Figure 2.18 Twin Otter Aircraft of Samoa Air


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send money (remittances) back to familymembers. It is a common practice amongW estern Samoans that live in American Samoato send money to their families in theIndependent State of Samoa. In fact, theirprimary purpose in working in American Sam oais to earn American dollars, as the wages in theIndependent State of Samoa are low relative toAmerican Samoa’s wages.

Remi ttances to American Samoa arecommon, especially with military personnel whoenter the armed forces and repatriate earnings totheir parents. It is d ifficult to place a value onremittances or to track remi ttances to AmericanSamoa that arrive as U.S. dollars. Remittancescan be received through the U.S. mail orrepatriated as direc t deposits into accounts fromHawaii, the U.S. Mainland or from militarypayrolls anywhere in the world.

Payments from American Samoa to theIndependent State of Samoa can be trackedbecause the exchange must be made to SamoanTala. The value of per cap ita remittances to theIndependent State of Samoa from AmericanSamoa has not been recently analyzed.However, it is possible that W estern Samoansare remitting as much as one-third of theirincome to Samoa or New Zealand familymembers.

2.3 The Environment, Land and Resources

2.3.1 The Role of the Government inResource Management

The passage of the National EnvironmentalPolicy Act of 1969 (NEPA) by the U.S. Congresshas had a profound effect upon how theAmerican Samoa Government and the Terri tory’scommunities manage the natural and renewableresources of the Ter ritory. NEPA provides for theoverall protection of the environm ent bymandating the observance of environmentalprotection legislation that covers the air, land andwater. The mandates of the legislation arecarried out by agencies and offices of the FederalGovernment. These sam e agencies have overtime developed the responsibility to fundenvironmental protection and preservation

programs within thei r legis lative mandate and toextend their mandate and funding to the Statesand territories.

One of the principal purposes of the NEPA isto assure that any development using Federalfunding that would affect the environm ent,including all facets of the economic, natural andsocial environment, must adhere to the NEPAregulations. Therefore, in order for the AmericanSamoa Government to accept Federal fundingfor development purposes , it mus t assure thatthe NEPA laws and regu lations are enforced.

American Samoa has a clearing houseprocess, the Project Notification and ReviewSystem (PNRS), to enforce the NEPA that wasestablished under Public Law 21-35. TheDepartment of Commerce administers thePNRS. The clearing house is a consistencyreview procedure that calls upon all AmericanSamoa Governm ent agencies with anenvironmental protection mandate to review thepotential impacts of a program or project. Thefunding for these agencies has been provided, forthe most part, by the Federal agencies.Foremost among the agencies wi thenvironmental mandates are the AmericanSamoa Environmental Protection Agency, theCoastal Management Program of the Departmentof Commerce, the American Samoa HistoricPreservation Office, and the Department ofMarine and Wildlife Resources. The CoastalManagement Program manages the ProjectNotification and Review System.

2.3.2 Coastal Environment and Resources

2.3.2.1 Coastal Terrain

The vast majority of American Samoa’scoastal shoreline is rugged or inaccessible andunsuitable for human settlement or recreationalactivities, li ke swimm ing. Tiny Ofu island, whichhas a relatively long, sandy beach w ithout acraggy coastline, is an exception to thisgeneralization.

About half of Tutuila’s coastal fringeis habitable. The north shore, because of itsprecipitous cliffs and steep mountain slopes thatabut the sea, m ake permanent habitation difficu lt.


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Figure 2.21 Ifi Trees of Vatia Wetland

Human settlement has occurred along thesouthern shoreline and on the alluvial shelves of the sheltered bays. Settlements have alsodeveloped on the narrow, flat shelves betweenthe sea and the mountains, after access wasmade possible by excavation of rugged, coastalridges to build the ma in highway.

American Samoa’s shoreline is constantlyunder duress from wave surge and erosion. Themajor ity of the Territory’s main highway is builtupon the narrow shelf that borders the shorelineand mountains. It is the only road thattransverses the Territor y from east to west.Therefore, it is necessary to protect it fromserious damage.

Shoreline protection is the responsibility ofthe Depar tment of Public Works and theAmerican Samoa Environmental ProtectionAgency under jurisdiction of the U.S. Army Corpsof Engineers. Shoreline development andmanagement is the responsibi lity of theAmerican Samoa Coastal Management Program.

2.3.2.2 Coastal Wetlands

The wetlands that exist on Tutuila aregenerally found in coastal areas. They are areasthat are inundated or saturated by surface waterat a frequency and duration sufficient to supporta prevalence of vegetation adapted for life insaturated conditions. They include fresh andsaltwater marshes, aquifer recharge areas,floodplains, streams and springs . In Samoa,mangrove swamps are wetlands.

Mangrove swamps s till exist in the Nuu’uliPala and Leone Pala along the southern shore ofTutuila. They are the remnants of a much largerecosystem, but are now defined as SpecialManagement Areas because of their fragili ty.There has been a significant loss of wetlands onTutuila since the turn of the Twentieth Century.Estimates put the loss at thirty to forty percentduring the period 1900 - 1961. O ver the nextforty years, more than thirty percent of theremaining wetlands were lost. The result is thatby 1991, at least forty-eight percent of all originalwetlands had been lost to development, fillingand degradation. To date it is likely that Tutuila

has lost sixty to seventy percent of its originalwetlands.43

W etland loss is being addressed by theCoastal Management Program through resourcemanagement and conservation programs,however, wetlands degradation is continuing.W etlands degradation is due to clearing andfilling to accomm odate village homes, piggeriesand commercial activities. Though AmericanSamoa is a leader on the regulatory front, theproblem of stopping wetlands degradation hasnot been solved. The possibility of restoringwetlands that have been lost is not feasible, butrestoration of degraded wetlands is possible.

2.3.2.3 Coral Reefs

Coral reefs are an integral part of coastalresources. Coral reefs bound American

Figure 2.22 Fringing Reef off Niuloa Point


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Figure 2.23 Territorial Land Coverage

Samoa’s islands and are found at offshore bankswithin the Territorial at-sea boundaries. They arecomposed of a highly diverse ecosystem that hasexisted for millions of years and providedSamoans with a food source since the islandswere inhabited several thousand years ago.

American Samoa’s coral reefs have beenseriously affected by human settlement andnatural disasters in the past twenty-five years.They were set upon by an extraordinary invasionof the ‘crown of thorns’ starfish in 1978 and 1979,and were subsequently damaged by HurricanesTusi, Ofa and Val from 1986 through 1991. In1994 and in 1998 coral bleaching occurred as aresult of an El Nino warm water event.44

In spite of these setbacks, the coralrecruitment is high and many areas arerecovering. However, in some areas, e.g., PagoPago Bay, chronic human im pacts and pollutionhave impeded their recovery or permanentlydamaged the reefs.

Coral reef protection and preservation is therespons ibility of the American Samoa CoastalManagement Program, the Division ofAgricul ture, Com munity and Natural Resourcesof the American Samoa Communi ty College, theAmerican Samoa Environmental ProtectionAgency, the Department of Marine and Wi ldlifeResources, the Fagatele Bay National MarineSanctuary, the National Park of AmericanSamoa, and the newly established Coral ReefInitiative, which is a program based upon thecooperati ve programming efforts of the Fabovelisted agencies.

2.3.3 Renewable Land and WaterResources

2.3.3.1 Forests and Agricultural Land

Tutuila has approximately thirty-six squaremiles of land with slopes of thirty degrees ormore. There has not been a recent assessmentof the amount of forest cover left on the islands ofAmerican Samoa. It is probably safe to say thattwenty square miles of forest on Tutu ila havebeen

relatively undisturbed because of Tutuila’s steepslope topography and another sixteen squaremiles may be inter-cropped with banana andother minor subsistence or commercial crops.45

A historical tracking of forest clearance isnot available. Areas now given up todevelopment may have been under cultivationprior to colonization. It is known, however, thatthe a major portion of the Tafuna Plain had notbeen utilized prior to W orld W ar II because of itsrough, basaltic surface. Now, there only thi rty-two acres o f natural lowland ra inforest growth leftin a single, semi-degraded patch.

The Census of Agriculture survey of 1999recorded 19,736 acres of land in agricultureproduction. This accounts for thirty-one squaremiles or forty percent of all the Territory’s land inuse for agricultural purposes. The data does notexist independently for Tutuila and the Manu’aIslands.46

Given that the three is lands of Manu’a makeup twenty square miles and that they are alsosteeply sloped, it is probable that one-half of theislands possess relatively undisturbed forests.The remainder of the land, less the smal lvillages, or about eight square miles, are inter-cropped in forested areas.


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Figure 2.1 provides a graphical description ofland in use. To interpret the following graph, itshould be unders tood that the T erritory has 55.5square miles of slopes greater than thirtydegrees. Thus , 30.4 square miles of land, orforty percent of the Territory’s land remains insteep slope forests ; 25.1 square mi les or th irty-three percent of the land is used foragriculturepurposes with intermixed forests on steepslopes; low-land agriculture (on slopes less thanthirty degrees) occurs on 5.3 square m iles, orseven percent of the total Territory’s lands; and15.2 square miles of land is developed orundergoing development.47

The above analysis shows that there is onlyfive square miles of land left in the Territory thathas not been consumed for developmentpurposes.

2.3.3.2 Fisheries and Marine Life

The seas surrounding American Samoasupport a very diverse range of marine flora andfauna, including almost nine hundred species offish and more than two hundred species of coral.American Samoa's marine biodiversity is muchgreater than that of Hawaii and of the Caribbeanislands.

Before the advent of motorized boats,sophisticated fish finding sonar and scuba divingequipment, American Samoan’s principal toolsfor catching fish were spears, hand lines andnets. Fishing was concentrated at the reef and in

near shore waters for bottom fish, but off-shorefishing for larger pelagic fish was also practiced.Today, American Samoan fishermen are usingthe latest technology to locate and catch fi sh withbigger boats that travel further out to sea.

The new fishing techniques, the need tosupply more fish to an expanding humanpopulation and possible over-fishing of somespecies have experts concerned about theviability of certain fish stocks. However, the sizeof the fish stock and fragility of the fish stock isnot altogether clear.

Biological information about reef species andtheir responses to overexploitation is sparse.There is evidence of reduced subsistence fishcatches, and there are clear indications andscientific opinion that over-fishing has causedserious fish stock depletion. Nevertheless,subsistence fishing continues at the reef edge.Some villages have placed restrictions on fishingin their waters and some areas m ay soon bedesignated ‘no take’ areas.48

Rose Atoll, the Territory’s only wildlife refuge,is presently the Territory’s only ‘no-take area .’ Itis primarily known for its bird population but it isalso off-limits to fishermen.

Bottom fishing from canoes away from thereef edge has long been a traditional fishingpractice. Several fisheries developmentprograms increased the catch which temporarilypeaked in 1983 and 1988, but the programs

Figure 2.25 Reef Fish of American Samoa

Figure 2.24 Forests of the Eastern District


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decreased the fish catch in the long run, asbottomfish can be more easily impacted by over-fishing. However, recent biological studiesindicate the bottomfish resource remainshealthy. 49

The question about whether the deep sea,pelagic fish stock in American Samoan waters isbeing depleted cannot be reliably answered atthis time. The U.S. National Marine FisheriesService and the Department of Marine andW ildlife Resources are systematically monitoringthe fish stock. However, because pelagic fishare highly m igratory and appearance in thesewaters is seasonal, it is difficult to determine thetrue scale of the fish s tock.50

Giant clams are highly prized by Samoansand because of their popularity, they have beenover-harvested. The population has decreaseddramatically for Tutuila. W ith the exception ofRose Atoll, a wildlife refuge, they are nowuncommon throughout the Samoa archipelago.51

Sea turtles are also prized by the Samoanculture as food and for the making of jewelry.They have long, complicated life cycles thatinvolve repeated long-distance migrations toother islands of the Pacific for nesting andfeeding. Consequently, it is difficult to determinethe status of the stock. But turtl e numbers havebeen observed to decline so much that they arenow considered an endangered species.52

2.3.3.3 Wildlife : Birds and Mammals The vertebrate fauna of American Samoa is

limited in diversity and most of the species areshared with other Polynesian islands . W ith fewexceptions, most species of native fauna appearto sustain breeding populations and do recoverfrom devastating hurricanes. Human ac tivitieshave affected wildlife more significantly in thepast, as prolonged hunting and the destruction ofthe essential forest and wetland habitat havereduced populations. This observation is appliedmainly to the bird population as there is a lack ofinformation about other vertebrate species.53

There are fifty-nine species of birds inAmerican Samoa, of which forty-four areconsidered residents. Of the forty-four, twenty are

seabirds and twenty-four are land andwaterbirds. Populations of mynas and bulbuls arewell-established and they are commonlyassociated with urban and agriculture habitats.The Pacific pigeon or ‘lupe’ is a species of greatcultural importance to Samoans. They havebeen historically hunted along with the multi-colored fruit dove and purple-capped fruit dove.These three species are currently protected fromhunting under a 1992 executi ve order. There isone known bird ext inction, the spotless crake,and concern for several other species.54

There are three species of bats, the onlynative mammals of Amer ican Sam oa. Twospecies are fruit bats and the third is the sheath-tailed bat. Estimates of the bat population can bedifficult to render because of their roostinghabitats. It is believed the fruit bats arerecovering satisfactorily after the latesthurricanes, but the sheath-tailed bats, which l ivein caves may be on the vergve of extinction.55

The Department of Marine and WildlifeResources is the American Samoa Governmentagency oversight responsibility for marine andwildlife resources.

2.3.3.4 Watersheds and Water Resources

American Samoa’s water system extendsbetween the village of Alofau in the far easternquadrant of Tutui la to Amanave at the extremewestern point of the island, between which sevenwater districts collect drinking water for theisland.

Figure 2.26 Bats Roosting in a Tree


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Figure 2.27 Pago Pago Bay Land Use

American Samoa’s primary water system isoperated by the American Samoa PowerAuthority (ASPA). The water system relies uponthe use of groundwater for its potable watersupply. Surface water supplies, or village watersystems, serve about ten percent of thepopulation and the tuna canning operations inPago Pago Bay.

Tutuila has a number watersheds orcatchment areas throughout the island, however,the Malaeimi Valley and Leone-Malaeloawatersheds supply roughly seventy-five percentof the island’s drinking water with twenty-twoground wells. The Pago Pago Bay watershedarea supplies the bay area.56

American Samoa is blessed with anabundance of rainfall which replenishes thegroundwater supply. The wells draw water fromgroundwater aquifers , or a lens of fresh waterthat floats upon heavier seawater, under theearth ’s surface. The most expansive aquifer isunder Malaeimi Valley. Studies estimate it canprovide eigtheen million gallons of water per day,if daily average rainfall is maintained. Existingpumps at maximum output are able to pumptwelve million gallons and Tutuila presently usesover eight m il lion gallons per day.57

2.3.4 Human Settlement and Government Land Use

2.3.4.1 Human Settlement

Tutuila Island, with fifty-six square miles ofland, comprises almost three quarters of allTerritorial land. Of this area, just twenty squaremiles, or thirty-six percent of Tuila’s land area, isflat land or has slopes less than thir ty degrees.

In 2001, human settlement of Tutuila wasroughly estimated to cover twelve square miles,or sixty percent of land that could safely supportdevelopment, i.e., land with slopes less thanthirty degrees. The eight square miles of landunder thirty degrees of slope are areas notdensely developed and under random cropproduction or lie vacant or dorm ant.58

The Manu’a Islands are also mountainous,but not densely populated, thus human

settlement exists only on the narrow fringe of theislands. The residential area is assumed to beroughly one and a half square miles.

1) Pago Pago Bay and Harbor

Pago Pago Bay is bordered by steep slopesthat limit the amount and type of developmentopportunities. Although there has beenconsiderable residential development on theslopes of Fagatogo, Pago Pago, Atuu and Utuleivillages, the majority of development exists onthe flat alluvial shelf between the bay’s shorelineand within several hundred feet on themountainside of the main highway that parallelsthe shoreline.

Only three quarters of a square mile isdeveloped land along the Pago Pago Bayshoreline and on the slopes surrounding the bay.This is a fairly small amount of land consideringthe size of the bay which stretches one and a halfmiles north and two and a half miles west, andis an average of one mile wide.59

Residential housing takes almost sixtypercent of the land. T he Terri tory’s main port andPago Pago Park use the largest parcels of land.All land between the main highway is governmentowned, but some of the land is leased to p rivatebusinesses and the canneries.60


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2) Tafuna and Southwest Tutuila

The Tafuna Plain, westward to the village ofFutiga and northward to Pava’ia’i, with its flat orgently sloping land, encompasses five squaremiles or twenty percent of Tutuila’s habitablearea.61

Approximately two-thirds of the land in theTafuna area, or three and a third squares miles,is utilized for residential purposes. Tafuna isexpanding rapidly in areas that were notprevi o u s l y deve loped o r had beenunderdeveloped. Thirty percent of theresidential area is also used for growing cropssurrounding the housing. They are mainlybananas, as most of the soil in the Tafuna areais not suitable for commercial or intensiveagriculture.62

Pago Pago International Airport occupiestwenty percent of the land, taking up one squaremile of area. The third largest portion of the landis used by the Ili’ili Golf Course.

The second largest habitable area, i.e., nearlytwo and a quarter square miles of gently slopingor flat land, lies between the crest of the TafunaPlain and the village of Leone in the southwestquadrant of the island. More than half of the areais flat, as it was the site of a World W ar II airfield.This area is predominantly low-densityresidential housing, w ith mixed uses includingpublic and private schools, markets, churchesand small agriculture plots.63

This area has been fil l ing in during the lasttwo decades as a bedroom community as it lacksconcentrated commerc ial, industrial andadministrative activities as found in either thePago Pago Bay or T afuna areas. It is the leastdense area of the south-central quadrant of theisland and most probable area for moreconcentrated developm ent.

3) Coastal Villages and Upland Bedroom Communities

Away from the Pago Pago Bay area, to thewest of the Tafuna Plain, and a long T utuila’snorthern and southern shoreline, forty-six small

coastal vil lages dot the flat, al luvial shelves inTutula’s numerous bays. The soil has beendeposited from millennia of hillside erosion andocean wave surge. On average, the village landareas do not extend more than five hundred feetfrom the shoreline to the foot of the mountainsand they are generally twice as wide as they aredeep. Populations are small owing to the limitedland area.

Tutuila also has two upland villages,A’oloaufou and Tafeta-Mapasagafou, that arealso bedroom communities. They are situated inthe heights at the center of the western quadrantof Tutuila.

The Manu’a Islands have five very smallvillages with a total population of 1,379 people,situated along their shorelines.

2.3.4.2 Government Land Use

The American Samoa Government ownslands that were acquired by the U.S. Departmentof the Navy during the early years of itsadmin istration and W orld W ar II. The lands arelocated along the Pago Pago Bay shoreline andin the southeast corner of the T afuna Plain .

The following chart illus trates how the landsare presently utilized. As a reference, the PagoPago International Airport occupies nearl y onesquare mile of land, or fifty percent ofgovernment owned land. Most of the recreationaluse in the Tafuna area, or forty percent ofgovernment land, includes the Ili’ili Golf Course

The chart does not include the airports onTa’u and Ofu, nor does it include land occupiedby elementary and high schools, othergovernment facilities, or roads in the Easternand W estern Districts of Tutuila. Area coveragehas not been reliably estimated for these areas.64


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Figure 2.29 Government Land Use

2.3.5 Conservation, Land and ResourceManagement

2.3.5.1 Land and Resource Management

1) Land Tenure System and TraditionalLeadersh ip

Family lands, or ‘communal lands,’ are thevast major ity of lands held in American Sam oa.The land cannot be alienated (sold), but thereare mechanism s by which it can sometimes beconverted to ‘individual ly-owned land.’ Thisindividually- owned land is analogous to fee-simple status, but it can be bought and sold onlyby American Samoans. Land can be leased, andthere are quite a few leases for comm ercialpurposes, but there are restrictions on leases ofSamoan lands.

Land use and management is in control ofthe senior m atai (chief) of the fam ily, but thevillage fono and mayor also have a say in itsdisposition. Thus, traditional land tenure has hadand continues to have a profound impact ondevelopment possibilities, opportunities and

patterns. It has also helped sustain a viable rolefor chiefs in modern times. However, chieflyprivilege has also come into conflict with officialgovernment regulations and control.

2) L a n d Use Man agemen t b yGovernment

The foundation for land use management inAmerican Samoa exists in establishment of theZoning Board of American Samoa (ABAS), andthe Territorial Planning Commission (TPC) in the1960s and 1970s. They derive their author ityfrom Chapter 3 of the American Samoa Code.They respectively review and approve the use ofland, and oversee and approve developmentplans. Their activities are administered byseveral divisions of the Department ofCommerce (DOC).

In addition, the American Samoa CoastalManagement Program of DOC adminis ters theProject Notification and Review System (PNRS)and issues land use perm its after clearance ofthe Territory’s environmental protection laws isassured and approval by the Zoning Board andTerrirtorial Planning Com mission.

The Pago Pago Bay area has been zonedaccording to the 1960 classifications, but theremainder of the Territory is zoned only forconservation. No land use designations havebeen identified for the entire Terri tory.

Special Management Areas (SMA) have beendesignated for the Leone, Nuuuli and Pago PagoBay area. SMA management is governed bylaws that enable the government to better controldevelopment.

2.3.5.2 Conservation and Historic Preservation

Conservation of the Territory’s archeological,cultural and historic sites is the responsibility ofthe American Samoa Historic PreservationOffice.

American Samoa possess many cultural,archeological and historical sites and points ofinterest. Foremost among them is the U.S.Naval Station Tutuila Historic District located inthe center of Fagatogo village. The historic site is


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composed of buildings constructed during theearly Twentieth century and used by the U.S.Navy.

Situated within the historic district are theFita Fita Barracks, now the headquarters for theDepartment of Public Safety; the old jail; thenaval communications center, now used as arecords depot; the Jean P. Haydon Museum; andthe early naval administration office, the restoredAmerican Samoa Court House. Also of historicinterest is the Blunts Point Guns NationalHistoric Landmark. These are guns installed bythe U.S. military during World W ar II to protectthe mouth of Pago Pago Bay.

Archeologists tend to view the islands,inhabited for the past 2,500 to 3,000 years, as alarge unexplored archeological site. Yet, thereare only a few specific sites of major significancethat have been widely recognized. They are theadze quarry in Leone, which provided a valuableresource that was traded throughout the SouthPacific, and star mounds found in the Tafunaarea.

The U.S. Department of the Interior, NationalPark Service, manages the National Park ofAmerican Samoa which was created in 1988.The park covers a total of 9,000 acres of propertyalong the north side of Pago Pago Bay and onthe Manu’a islands of Ofu and Ta’u. Since halfthe land on these islands has been included inthe National Park, they are at present off lim its tofurther developm ent.

2.3.5.3 Environmental Protection: Air and Water

The mandate of American Sam oa’sEnvironmental Protec tion Agency (ASEPA) is todevelop and implement programs to preserveand protect the environment and publi c’s health.

1) Air Quality

Air quality in American Samoa is generallyconsidered to be excellent, to the point of beinga monitoring reference and pristine compared tothe rest of the world.

There are emission points on Tutuila whereair quality can be degraded. These are relatedto: traffic congestion at the Tafuna-Nuu’uli villagemain highway transportation corridor and withinthe Pago Pago Bay area during the morning andevening hours ‘rush’ hours; emissions from theSatala and Tafuna diesel generators at theelectrical power plants; smoke from burningdebris and garbage; traditional ground ovens, or‘umus’; and jet aircraft operations at the PagoPago Internationa l Airport. 65

The most recent modeli ng of emissions dueto transpor tation shows automobiles to be theprimary source of carbon monoxide andhydrocarbon pollution and the Pago Pago Bayarea to have the greatest concentrations. Sulfuroxides produced by the generation of electricityhave increased due to the rising use of highersulfur content fuels.66

The bay area has always experienceddispleasure with odors emitted from the tunapacking canneries. In recent years, ASEPA hasbeen working with the canneries to reduce theodors, and odors have been diminished, althoughthey are still present at times.

2) Water Quality

(2.1) Drinking Water

American Sam oa’s drinking water is subjectto groundwater pollution, particularly duringperiods of heavy rains. During these times, it isnot uncommon for ASPA to issue warnings aboutthe quality of the water and instructions to boilwater. Otherwise, bacteria levels are kept towithin accepted USEPA limits.

In outlying areas, the primary problems inwater quality are related to improperly maintainedseptic tanks, effluents from piggeries andimproper disposal of solid and chemical wastes.Concern over these activities are increasing asdevelopment is increasing in the Malaeimiwatershed and Tafuna aquifer areas. Secondly,soil erosion, natural or man-induced, contributesto the degradation of water quali ty.67

At present the American Samoa PowerAuthority, Water Division, is working with the


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public and other agencies to mitigate or remedythe causes of groundwater pollution.

(2.2) Pago Pago Bay Water

W ater quality in the bay and in coastal watersvaries depending upon location. Point sources ofpollution within the bay include the tunacanneries, the sewage treatment plant, the powerplant, the fuel storage facility (tank farm), and theship repair yard. Each of these facilities mustcontrol pollution at the source and meet USEPArequirement and ASG standards.68

W hile all of these facilities are in complianceand standards are generally met, the harbordemonstrates excessive bacterial indicators afterheavy rains. In general, sediments arecontaminated with heavy metals and fish aretoxic and unsafe to eat. Swimming is alsodiscouraged after a heavy rainfall and near thesources listed.69 2.4 Society and Social Development

The social development of American Samoaand the delivery of social services to thecomm unity by the government i s closely tied toand reflective of the historic pattern of socialinteraction and the roots of the Samoan society.

2.4.1 Society and Traditions

Family and family relationships are importantin the scheme of life in Samoa. Families andcommunal living provide for the present and fora promise of a future. Participation in familymatters provides a sense of security that anindividual's needs will be met when and if anyneeds arise. This extends from the mundane(food and shelte r) to the prac tical (permission tobuild a house on family lands) to the sacred(family affirmation at the t ime of a wedding orfuneral).

Family members are called upon to serve thefamily and the matai. Service is a broad term,but one of the hallmarks of the society is respectfor elders and care of them. Commitment toservice will keep one in good graces as a familymem ber.

Service to the matai, p rior to the time whenmoney became an essential commodity, used toentail physical labor, but now increasingly serviceto the matai involves monetary donations, as wellas personal participation in various ac tivities.

The demands of service (tautua) at culturalevents (faalavelave) has become a heavy burdenfor many households as families become moredependent upon a monetary income and less onthe produce of their communal lands to fulfilltheir family obligations. The constant giving andreceiving service (now money) has the practicaleffect of preventing most Samoan householdsfrom “saving for a rainy day” and from thenecess ity of doing so. The reality that Samoanfamilies tend to be large with constant materialdemands makes savings and weal thaccum ulation doubly difficult.

A Samoan who opts out from meeting theburdens and responsibilities of the Samoa W ay(fa'aSamoa) essentially casts him or herself outof the family and/or village. Such an act wouldhave been unthinkable in the past, but it isbecoming possible with modernization and inAmerican Samoa’s monetary economy. Morecommonly, a Samoan may choose to leaveSamoa and participate in the fa'aSamoa fromafar by remitting some of their income home, andthereby, keeping themselves in good standingwith the fam ily.

2.4.2 Religious Life

Church affiliation is one of the underpinningsof modern Samoan socie ty. Not long after theChristian missionaries arrived in the first half ofthe Nineteenth Century, Samoan social life hasbeen strongly influenced by the church andrevolves around the church.


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The vast majority of American Samoa’sresidents are affiliated with a church and activelyparticipate in church affairs, which include notonly Sunday services but choir practices, youthgroups, and a host of other social functions.

The first missionaries to establish a churchin American Samoa were of the LondonMissionary Society. The church is now theCongregational Christian Church of AmericanSamoa and the largest denomination inAmerican Samoa. Other major denominationsinclude the Roman Catholic Church, Methodists,and the Church of Jesus Christ of Latter-daySaints, the Mormons. These churches and othersare deeply rooted in the social organization ofAmerican Samoa.

In the past ten to twenty years, charismaticand evangelical denominations (e.g., Church ofChris t, Assembly of God) have experiencedsignificant increases in American Samoa, at theexpense of the mem bership of the older,mainstream churches. But regardless of thedenomination to which Samoans belong, churchaffiliation is one of the most important aspects oflife in American Samoa.

2.4.3 Arts, Culture and Entertainment

Arts, culture and entertainment in AmericanSamoa are sometimes separate interests and atother time the same. Churches, privateorganizations and the government tend to mix

them in what may be best described as culturalevents.

The Americ an Samoa Council on Arts,Culture and the Humanities is the governmentalbody with a mission to m aintain and strengthentraditional arts of the indigenous Samoan cultureand to introduce its arts and culture to thebroader world and there are other governmentagencies, like the Coastal Management Program,that utilize cultural ac tivities and events topromote their programs and educate the public.

The mos t prestigious events during the yearwhere culture and entertainment mesh are theFlag Day Ceremonies in April, Teuila Festival inSeptember and the government’s ChristmasProgram. Here, one finds signing, dancing andtraditiona l entertainment.

At other times of the year, the Council andother agencies foster the arts and culturethrough:

• the Arts Fia Fia Program in which the arts,Samoan and non-Samoan, are celebrated fortwo weeks in which arti sts demonstrate theircreations with indoor and outdoor exhibits atthe Jean P. Haydon Museum;

• the Easter Music Festival with choirs;

• the Arts-in-Education Program in which localartists provide classroom instruc tion in arts,crafts and the traditional crafts of weavingand tapa making;

• the Miss American Samoa Pageant in whichcontestan ts annually compete to hold the titleof Miss American Samoa; and

• the Coast W eeks Program, sponsored by theAmerican Samoa Coastal ManagementProgram to support rational resourcemanagement.70

Figure 2.30 A Church in Pago Pago Village


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W hen people want non-Samoan and non-traditional entertainment, they can visit theNuu’uli Cinema that shows up-to-date moviesfrom Hollywood in a modern, air-conditioned,multi-theater fac il ity.

At other times Bingo in the villages is theplace to enjoy oneself. Bingo games are mostvisited by women, but Bingo is a common meansof entertainment in American Samoa.

Bingo is held both on a small-scale andlarge-scale. Nightly or weekend, organized,large-scale bingo games may attract as many as1,000 adults. Critics charge that although this isa recreational activity, children and the elderlyare sometimes neglected and that many familiessuffer financial hardship due to bingo losses.

2.4.4 Education

2.4.4.1 The Educational System

Amer ican Samoa mandates free publiceducation for all children and youth up andincluding the age of sixteen. The educationalsystem includes government operated schools,private schools and church schools. Theeducation system consists of pre-schools,kindergartens, elementary schools, high schools,a polytechnic high school and a comm unitycollege. Figure 2.32 shows the distribution ofstudents throughout the school system.

Figure 2.32 Educational Enrollment and Educational Attainment

School Enrollment Number

Percent

Pre-School/Kindergarten 3,293 15.8%

Elementary 11,418 54.8%

High School 4,645 22.3%

College & Graduate 1,474 7.1%

EducationalAttainment

Less than 9th Grade 3,120 12.3%

9 to 12th No Diploma 5,476 21.6%

High School Graduate 9,983 39.3%

Some College NoDegree

3,173 12.5%

Associate Degree 1,755 6.9%

Bachelor Degree 1,224 4.8%

Graduate School 649 2.6%

Age of respondents: 25 years and older

The Department of Education (DOE) is thelargest agency in the American SamoaGovernment. Its primary role is to prepare theschool age children to be academically, sociallyand mentally competent to effectively controllife’s many challenges, and to becomeresponsible citizens in any socie ty they choose tolive in.

The Department of Education employs morethan 1,600 people in various lines of activity on aTerritory-wide basis.71

Figure 3.31 Annual Christmas Program


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The American Samoa Community College(ASCC) provides open admission to thosewishing to further theire d u c a t i o n . T h eComm unity Collegeoffers an Associate ofArts and Associate ofScience degree inseveral fields. TheASCC is situated at thewestern edge of theM a l a e i m i V a l l e yadjacent to the village ofMapasaga a t thenorthern reach of theTafuna Plain. On theaverage it employsa b o u t f o r t y - f i v einstructors and enrollsabout 1,100 studentsper year and graduates200.72

Included on the grounds of the communitycollege is the Agr iculture, Community andNatural Resources Division (ACNR)of ASCC,formally called the Land Grant Division. TheASCC has an 1862 land-grant status . As such,it is receives funding for integrated research andextension activities that focus on agriculturaldevelopment.

1) Educational Attainment

In the 1970s many young adults leavingschool went into the military after high school, asthere were few local jobs or other means toachieve a decent li ving. Few people went on tocollege, and even fewer attained universitydegrees. Today, the situation is different, asthere are opportunities not available in earlieryears for personal achievement.

There are at present about 900 high schoolgraduates per year.73 The opportunity to enter themilitary has been restricted by the higherstandards of the all-volunteer military (and by thegenerally low score results of American Samoastudents), but there has been an undeniableincrease in the educational aspiration's of localhigh school graduates. Many graduates go on toattend the community college, and it is no longer

rare for a high school graduate to go s traight toan off-island school in pursuit of highereducation.

W hen the 1990 census was conducted, sevenpercent of American Samoan-born adultresidents had a college degree. W hen the 2000census data is released, it will undoubtedlyreflect a higher percentage.

Although many students do not return homewith their college degrees, many do. ThoughAmerican Samoa suffers from a ‘brain drain,’similar to any small, rural comm unity, it suffers toa lesser extent than many others due to the closeassociation Samoans have for their island home.Moreover, it is not uncommon for Samoans to gooff-island for education or career advancement,and to stay away for decades, but always with theintention to return home before (or a t) retirem ent.

Many members of the local legislature,government and the business sector leaders arereturned military personnel. Those who enteredthe armed forces in the 1970s and 1980s arereturning home now, having completed twentyyears of service. T hey are eligible for a fullmilitary pension and veteran privileges thatinclude shopping at the local PX, flying ‘spaceavailable’ for free on military planes to and fromHawaii, and Veterans Admin istration healthbenefits.

2) The Library System

Figure 2.33 American Samoa Community College


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American Samoa’s library system consis ts ofthe Feleti Barstow Public Library (State library),the public and private school libraries andlibraries within government departments.

The Feleti Barstow Public Library, situatedadjacent to the American Samoa GovernmentExecutive Office Building in Utulei village, wasopened during Flag Day celebrations in April2000 as a replacement for the previouslydelapidated State library. The new 12,000square foot library houses the features of amodern library including the PacificCollection and a media center wherecomputers are available to the public forInternet usage.74

There are also several libraries thathold special collections in the Territoryas well. They are the LBJ TropicalMedical Center, the High Court, theFono, the Jean P. Haydon Museum andthe ASG Archives.

The State Library places greatemphasis on telecommunications forthe present and future. The library is aparticipant in the State E-Rate programwhich allows educational institutions aninety percent discount on Internetaccess and usage. The State librarycurrently provides eigtheen Internetready computers, fifteen of which are available inits media center for public access andinformation research.

The American Samoa Community CollegeLibrary is located at the site of the comm unity

college in Malaeimi and serves the needs of for ty-fi ve faculty mem bers and 1 ,200 students withabout 22,000 volumes.75

The combined public and private schoollibraries total thirty- three in number, of whichthere are fifteen li braries with a full -time staff. Ofthe public school libraries , for which inventorydata is available, there are approximately 20,000volumes of reading material available.76

2.4.5 Health and Well-Being , Medical Care

In 2001, every man, woman and child hasaccess to basic essential health services inAmerican Samoa. The Department of Health,which operates five regional clinics in theTerritory, and the American Samoa HospitalAuthority provide all essential public healthfunctions. There are no private pharmacies orclinical laboratories, and only one physician’soffice and one dentist operate privately inAmerican Samoa.

Although the Territory of American Samoa isdesignated a Health Professionals Shortage Area(HPSA) and a Medically Underserved Area(MUA), using Federal criteria, the health carecompares favorably with other Pacific island

jurisdictions.77 The health and well-being of the populace

has been improved over the last two decades.Serious, debilitating diseases, like polio are nolonger existent in American Samoa. Small poxhas been entirely eradicated and childhoodimmunization makes infectious outbreaks of

Figure 2.35 American Samoa Medical Center

Figure 2.34 The Fe leti Barstow PublicLibrary


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diseases like mumps and chicken pox unlikely.Maternal mortality is rare, infant mortality hasbeen significantly reduced, and life expectancyhas moderately increased. In essence, theTerritory of American Samoa is one of thehealthiest areas of the Pacific Region.78

Despite improvements as a result ofvigilance, new technologies and improved care,some diseases still persist, while newlyemerging infectious diseases and bacteriaappear with res istance to medication. HIV caseshave been confirmed recently in AmericanSamoa and the chronic diseases of diabetesmillitus, heart disease and stroke, cancer, highblood pressure and mental health problems arestill of significant concern to the health system.79

Six of seven deaths in American Samoa arecaused by an unhealthy lifestyle. Contributions tohealth problems include smoking, (twenty-sevenpercent of the population are smokers) and poordiet (as sixty-five percent of men and seventy-sixpercent of women have been defined as obese ina 1994 study). Obesity closely correlates withnon-insulin dependent diabetes and fifteenpercent of the population is diabetic.80

The American Samoa Medical Centercontinues to meet US ‘minimum acceptablestandards’ of health care quality as warranted by‘medicare cert ification.’ The Medical Centeroffers a comprehensive range of inpatient andoutpatient acute care, 24-hour emergencyservices, an ENT Clinic (ear-nose-throat), renaldialysis, an OB/GYN Clinic (Obstetrics andGynocology), internal medicine and pediatricscare.81

The Medical Center has a U.S. certifiedclinical laboratory, diagnostic imaging, aCATscan, tele-medicine capabil ity, a hospitalmedical staff of forty-five doctors, twelve dentis tsand twenty dental ass istants. However, itattempts to cope with a shortage of registerednurses.82

2.4.6 Social Conditions and the Delivery ofSocial Services

American Samoa is in a unique period oftransition in family and village life that has direct

application to efforts in the service delivery ofsocial service programs .

As with other Pacific Island cultures, thetransition involves the complex effects ofmodernization. There are several relevantinfluences. Well educated Samoans, and thosethat are returning from living overseas bring amore modern or W estern or ientation back witht he m . T hey face the challenge ofaccomm odating their ‘off-island’ ways with themore traditional customs and mores practiced inSamoa. On their own, they will help prac tices tochange blending the ‘old’ with the ‘new’ ways ofsocial interchange.

Other influences chal lenge the bas ic tenetsof the Samoan culture as it moves into theTwenty First Century. These are insocioeconomic status, the lack of supervision forchildren and youth due to working or absentparents, and the introduction of high-riskbehaviors, e.g., crime, alcohol and drug abuse.83

Some progress has been made in socialservice delivery over the last several years. Theyinclude:

• increased health and well-being of theelderly; blind and disabled; and pregnantbreastfeeding and non-breastfeedingpostpartum women and infants; and childrenup to five years of age;

• improved outcomes for children and youththrough increased comm unity awareness ofservices especially for child protection andadvocacy and child welfare services throughoutreach and educational activities;

• improved quality of care by child careproviders through mandatory training andcertification processes and requirem ents ofhealth and safety; and

• increased staff competency throughc o n t r a c t e d s e r vi c e s o f c l i n i c alpsychologists.84


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2.4.6.1 Children, Youth and Adult Assistance

Families in American Samoa are beset bysimilar problems as found on the U.S. Mainland.There is adult and juvenile crime, family violence,and child and abuse and neglect. There was afifty-seven percent increase in adult assaultoffenses for the years 1994 - 1996. Juvenileassault offenses increased by thirty-five percentin the same period. Adult offenses against familyand children for those years increased by fortypercent. Sex offenses increased by one hundredtwelve percent. For youth, disorderly conductincreased by one hundred and fifteen percent.85

No single influence alone can account for theproblems that have arisen in American Samoa inthe last ten years. High-risk behaviors, such ascrime, illegal drugs, and family violence haveincreasingly strained the usual pathways throughwhich Samoa families resolve their problems.86

In addressing the needs of the community,the Social Services Division of the Department ofHuman and Social Services has served as theumbrella agency since 1997 for the delivery ofservices. It provides a broad range of importantsocial service programs to the needy of thecommunity. They include:

• Child Protective Services (CPS) to provideprotection and intervention services forminors at-risk of suffering abuse or neglect;

• Adoption Program to conduct screening ofparents to assure a safe homes;

• Foster Care Program to provide to recruitand certify of potential foster care providersand place children in a stab le environment;

• Crisis Line Program to provide immediatecrisi s counseling for emergency referrals ;

• Shelter Program to provide temporary, safe,emergency shelter and support services tochildren, individuals and families;

• Spouse Abuse Program to providecounseling to victims of spouse abuse and toprovide them referrals for legal consultation;and

• Counseling Services Program to provideindividual or group counseling of all agesundergoing risk of child abuse, familyconflicts, and a wide range of problems.87

2.4.6.2 Care of the Elderly

In 1970, only three and eight tenths of thepopulation was sixty years of age or older.Twenty years later, in 1990, the populationappeared to be aging as five and four tenthspercent of American Samoa's population wassixty years or older. When the 2000 Census datais released, it is expected to show more peopleliving longer. This is to be expected as healthcare has improved.88

Parallel to the increase in the number ofseniors, but unrelated to the increase, is aperceived shift in how some elders are cared forby their families. In traditional Samoan society,the extended family cared for their elderly withoutoutside assistance. But that model may bechanging in modern Americ an Samoa society asit is possibly becoming m ore difficult to work inthe economy and care for the elderly at the sametime.

W hen the Catholic Diocese of Pago Pagofirst opened a Nursing Home fac ility (NazarethHouse) twenty years ago, few if any familiesplaced elderly members of their family in thefac il ity, but now there is a waiting l ist.89 However,this trend may represent the knowledge that

Figure 2.36 Department of Human and Social Services


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sickly elders may best be served in such a carefaciltiy.

The Nazareth House is also supported byfunding from the Developmental DisabilitiesCouncil to care for the developmentally disabledwhich includes chil dren and youth.

Additionally, the Territorial Administration onAging (TAOA) is reporting as many as ten casesof elderly abuse per month and has defined aneed for a shelter for abused elders. For many,this is a profound example of something goingdreadfu lly wrong in the society.90

TAOA normally provides assistanc e toanyone over the age of sixty with themaintenance of: the Nutrition and ServicesProgram by providing food to the needs; theHealth and Care Program by providing

examinations and nurse visits; and by assistingwith procuring tem porary employment.

2.4.6.3 Youth Programs

The major ity of youth programs are to befound with the churches, but the Department ofYouth and Wom en’s Affairs has beenestablished to assis t them in their needs anddevelopment. The department is reasonably newand it has been focusing on workshops,conferences and seminars to orient and educateyouth about empowerment, employment andsexual health. The department is also interestingin developing youth program s for rec reation tokeep youth out of trouble and ac ting posi tive ly. Italso sponsors events like youth festivals forcultural awareness.91

2.4.6.4 Federally Funded Food Assistance

Due to the low income levels in the Terri tory,all children attending public school in AmericanSamoa are eligible to take part in the USDASchool Lunch program. The T erritory receivesabout $7.5 million annually to provide free schoolbreakfasts and lunches to pre-school andelementary school children.

Other federally funded food supplementprograms, i.e., the Food and Nutrition Servicesprogram (food stamps) and the W omen, Infantand Children’s Program (W IC), provides up to$5.3 mill ion worth of food assistance for low-income mothers, expectant mothers, childrenunder six, the disabled and the elder ly. 92

2.4.7 Outdoor Recreation

Besides family and church, recreationalactivities and sports occupy an important role inthe lives of many American Samoans. They are,in general, enthusiastic and accomplishedathletic competitors. Organized recreationalsports is a focus for individuals, schools,churches, youth groups and villages.

A few Samoans have parlayed their naturalabilities into lucrative professional careers, whilea larger number have had stellar careers incollege. They had the opportuni ty to be exposedto more advanced and intense coaching,

Figure 2.38 A.P. Lutali Senior Center

Figure 3.37 Nazareth House


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competition and facilities that are generally notavailable in American Samoa.

American Samoa does not lack forrecreational activities. However, there are someimportant indoor facilities missing and the qualityof outdoor recreational infrastructure may not beup to standards in many venues. This is more aresult of lack of funding to create the facilitiesthan interest in maintaining them.

The Department of Parks and Recreation isresponsible for the upkeep and development ofpublic recreational areas and facilities in theTerritory. There is, or are:

• eight small Territorial parks or recreationalareas on Tutuila which are generally situatedalong the shoreline and are suitable forfamily outings;

• two parks with tennis courts;

• one outdoor track and field stadium, with afootball field;

• one softball and baseball field com plex withseating; and

• one 18-hole golf course.93

The Territory is m issing an indoor sportscomplex that could include an indoor basketballcourt with seating, an Olympic size indoorswimm ing pool with seating and other facilitiesfor general use and to support the South PacificGames and various other Territorial and regionalevents.

The Department of Parks and Recreationsponsors organized departmental andcommunity recreational programs, e.g. volleyball,softball, boxing and junior golf. The departmentis also involved with the preparation for culturalevents which occur during Flag Day and atChristmas.94

In addition to the facilities that are maintainedby the Department of Parks and Recreation,several high schools have covered recreationalfacilities, although there are not enoughrecreational facilities at each school to satisfy thedemand for use.

There are also private enterprises and clubsfor recreation. There are several tennis clubs,gyms to work-out, and squash courts, and a newbowling alley under construction. Sidewalksalong new roadways in Tafuna and the Office ofMotor Vehicles test track have become popularwalking paths for exercise, in addition to thebeaches.

2.4.8 Law and Order

Law and order is the responsibility of thetraditional culture, the High Court and theDepartment of Public Safety. Violations of villagecodes and regulations are handled by the villagematai. More serious violations are handled bythe police and the courts, if they reach the pointof a police report and are not resolved by thevillage authorities.

Figure 2.36 Veteran’s Stadium

Figure 2.37 Lions Park ChildrensPlayground and Tennis Courts


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There is a lack of data to show how oftenviolations occur in villages or how effective thetraditional system is at handling violations orinvoking penalties. In recent years the trend intotal crimes has dropped, as reported by theDepartment of Public Safe ty, though as reportedin the social services section, crimes againstfamily members appear to be on the increase.95

Crimes of pass ion often end up in court andthe government’s Public Defender is called uponto represent the offenders. Serious offensesresult in offenders being confined to the localprison. The facility was thoroughly run-down by1999. Prisoners rioted in 1999 and burnt severalcell blocks over the conditions. The cell blockswere renovated and are now m ore habitab le.

If the offenders are youths, they are housedin a new Juvenile Detention Faci li ty.

The Department of Public Safety has threedivisions: Police, Fire and Corrections. Thedepartment has been for tunate in recent years tohave received funding from the Federalgovernment for various im provements other thanfor correctional facilities. They are:

• renovations to the Fagatogo Fire Station, theonly fire station in the Terri tory; constructionof the Faga’itua Police Substation; and

• renovation of the administration building tohouse the Residential Substance abuseTreatment Center for inmates.

Figure 2.41 Department of Public Safety Headquarters


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1. United States Bureau of the Census, 2000 Census of Population and Housing, American Samoa,Press Release, Washington, D.C., July 2001.

2. Department of Commerce, American Samoa Government, American Samoa Statistical Yearbook,Pago Pago, American Samoa, p. 10, 1996.

3. Ibid., p. 13.

4. Ibid.

5. Department of Commerce, Amer ican Sam oa Government, Comprehensive EconomicDevelopment Strategy, Pago Pago, American Samoa, p. 10, February 2000.

6. Galea’i, Al fonso P., “Draft” American Samoa Economic Advisory Council Report, Tuna Process ing& Canning Industry, Pago Pago, American Samoa, p.1, October 24, 2001.

7. Ibid.

8. Galea’i , Alfonso P., “Draft” American Samoa Economic Advisory Council Report, Tuna Process ing&

Canning Indus try, Pago Pago, American Samoa, p.2, October 24, 2001.

9. Department of Commerce, Statistics Division, American Samoa Government, Pago Pago,American

Samoa, 2001.

10. Ibid.

11. Department of Commerce, Planning Division, American Samoa Government, Pago Pago,American

Samoa, 2001. Terr itorial O ffice of Fiscal Reform, American Samoa Government, Initial Fiscal Reform Plan,Pago

Pago, American Samoa, p. 9, July 2001.

12. Department of Commerce, Planning Division, American Samoa Government, Pago Pago,American

Samoa, 2001.

13. Ter ritorial Office o f Fiscal Reform , American Samoa Government, Initial Fiscal Reform Plan,Pago

Pago, American Samoa, p.6 - 9, July 2001.

14. D. Hittle & Associates, Inc., 2002 - 2005 Generation Construction Work Plan, American SamoaPower Authority, Pago Pago, Am erican Samoa, February 2002.

15. Ibid.

16. Ibid.

Endnotes


I - 2 - 33

17. American Samoa Power Authority, (personal comm unication)

18. Governor’s Task Force on Population Growth, American Samoa Government, Impacts of Rapid Population Growth in American Samoa: A Call for Action, Pago Pago, American Samoa,

p.17,May 2000.

19. American Samoa Power Authority, (personal comm unication)

20. Lyons Associates , Port Master Plan, Honolulu, Hawaii, 1999.

21. Departm ent of Port Adm inistra tion, American Samoa G overnment, State of the Agency,Territorial

General Plan assessm ent, Pago Pago, American Samoa, November 2001.

22. Office of Petroleum Management, American Samoa Government, (person communication)

23. Departm ent of Port Adm inistra tion, Airport Division American Samoa Government, Territorial General Plan assessment, Pago Pago, American Samoa, November 2001.

24. Departm ent of Commerce, Amer ican Sam oa Government, Comprehensive EconomicDevelopment Strategy, Pago Pago, American Samoa, p. 33, February 2000.

25. Department of Port Administration, American Sam oa Government, Pago Pago, American Samoa,(personal comm unication) February 2002.

26. Departm ent of Program Planning and Budget, Am erican Samoa G overnment, Annual Budget,2000

27. Department of Commerce, Statistics Division, American Samoa Government, Pago Pago,American

Samoa, 2001.


29. Ibid.

30. Departm ent of Commerce, Statistic s Division, American Samoa Statistical Yearbook 1996, Pago Pago, American Samoa, p. 151, 1996.Pag

31. Estim ate, Departm ent of Commerce, Planning Division, Am erican Samoa G overnment.

32. U.S. Department o f Agricul ture, 1999 Census of Agriculture - American Samoa, Washington,D.C.

Table 1., 1999

33. Ibid., Table 5.


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34. Ibid.

35. Department of Marine and Wildl ife Resources, American Samoa Government , (Personal communication)


Table 5., 1999

37. Department of Commerce, Planning Division, American Samoa Government, (Personal Communication)

38. Department of Marine and Wildl ife Resources, (consultant’s personal com munication)


Table 5., 1999

40. Tourism Task Force, Am erican Samoa G overnment, Report to the Governor, 5 - Year TourismAction

Plan Oc tober 1994, Pago Pago, American Samoa, p.4, 1994.


42. Ibid., p.80.

43. Amer ican Sam oa Environmental Protec tion Agency, American Samoa Government, 2000 State of the Enviroment, Wetlands, Pago Pago, American Samoa, 2000.

44. Ibid., Coral Reefs.

45.Department of Commerce, American Samoa Coastal Management Program, (person communication)


Table 1., 1999

47. Department of Commerce, Planning Division, (areas of land calculated from digitized USGSmaps)

48. Fagatele Bay National Marine Sanctuary, American Samoa Government, (personalcommunication)

49. Amer ican Sam oa Environmental Protec tion Agency, American Samoa Government, 2000 State of the Enviroment, Fisheries, Pago Pago, American Samoa, 2000.

50. Ibid.


I - 2 - 35

51. Ibid., Giant Clams

52. Ibid., Sea Trutles

53. Ibid., Vertebrate Wildlife Populations

54. Ibid.

55. Ibid.

56. Ibid., Drinking Water Resources

57. Ibid.

58. Department of Commerce, Planning Division, (areas of land calculated from digitized USGSmaps)

59. Ibid.

60. Ibid.

61. Ibid.

62. Ibid.

63. Ibid.

64. Ibid.

65. Amer ican Sam oa Environmental Protec tion Agency, American Samoa Government, 2000 State of the Environment, Air Quality, Pago Pago, American Samoa, 2000.

66. Ibid.

67. Ibid. Water Q uality

68. Ibid.

69. Ibid.

70. American Samoa Government, Annual Performance Report 1999, p. 8.

71. American Samoa Government, Annual Performance Report I 1999, p.33.

72. American Samoa Community College, (personal communications).

73. Department of Education, Office of Student Records, American Samoa G overnment, Pago Pago,American Samoa, (personal communications)

74. Feleti Barstow Public Library, Amrerican Samoa Government, State Library AdministrativeAgency (SLAA) Report for Department of Commerce Territorial General Plan , 2001.


I - 2 - 36

75. Ibid.

76.

77. Departm ent of Health , American Samoa Government, State of the Territory, Health Sector, 2001 for Territorial General Plan, 2001.

78. Ibid.

79. Ibid.

80. Ibid.

81. Ibid.

82. Ibid.

83. Department of Human and Social Services, American Samoa Government, State of the Territory- Social Services , 2001.

84. Ibid.

85. Ibid.

86. Ibid.

87. Ibid.

88. Department of Commerce, American Samoa Government, American Samoa Statistical Yearbook,Pago Pago, American Samoa, p. 7, 1996.

89. Wolman, Lewis, Samoa News, (personal comm unication)

90. Territorial Administration on Aging, American Samoa Government, (panel discussion forTerritorial

General Plan), 2001.

91. American Samoa Government, Annual Performance Report, 1999, p.72, 1999.

92. Departm ent of Human and Social Services , American Samoa Government, Grants List, providedfor

Territorial General Plan, 2001.

93. American Samoa Government, Annual Performance Report, 1999 p. 55-56, 1999.

94. Ibid.

95. Department of Human and Social Services, American Samoa Government, State of theTerritory- Social Services , 2001.

I - 3 - 1

Chapter ThreePrincipal Territorial Concerns and Issues

3.1 Introduction

If a snap shot of American Samoa had beentaken twenty years ago and compared to a snapshot of today, it would be evident that the islandof Tutuila has outwardly experienced significantchanges, while the development of the Manu’aIslands has ebbed.

Tutuila ’s population has increased from30,538 in 19801 to 55,9122 in the year 2000. It isan increase of e ighty- three percent andrepresents a three percent annual increase. Therapid increase of the population has heightenedthe awareness of, or brought to the surface,many acute and long-standing social, economicand environmental issues that must be resolvedby the government and com munity in subsequentyears.

The following issues encapsulate the fi veprincipal areas of concern which were identifiedduring the formulation of this Territorial Generalplan and frame its content:

• cumulati ve impac ts upon the residentsquality of life and the environment frompopulation increase;

• government performance and the ability ofthe government to provide services andinfrastructure to meet future needs;

• economic dependency upon the governmentand canneries and limited potential andopportuniti es for future econom ic growth;

• carrying capacity of the Territory’s naturalresources and an uncertain outlook forsustainable development; and

• adequate social development programs andservices to maintain a secure socialenvironment and offer adaptability for thefuture.

These areas of concern are broadlydiscussed in this chapter as an introduc tion toTerritory’s development milieu. In Part II of thisPlan, which is under separate cover, thecommon and agency specific issues are treatedin more detail. Policies are provided withstrategies that the American Samoa Governmentcan implement between 2002 and 2005 toremedy the issues.

3.2 Population Growth and Impacts

3.2.1 High Population Growth Rates

American Samoa’s population grew at anannual rate of two percent between 1990 and2000, from 46,7733 to 57,291 respectively. Thisrate of growth was observed to be lower than theprevious, ten-year rate of growth of three andseven-tenths percent. This is an encouragingsign. However, the previous decade of very highpopulation growth set the stage for a bigincrease in the population a genera tion later. Inthe 2000 Census, forty-eight percent of thepopulation was under the age of twenty years.4

High fertility rates and increased migrationto the Territory were observed to be the primaryfactors for the significant increase in population.Although fertility rates are expected to declinewith the advent of more women in the workforce,the expected decline will not markedly alleviatethe problems the government will face insatisfying the needs of the Terr itory’s residentsfor the future.

3.2.2 Immigration: Unplanned Increase

Immigration has increased for a number ofreasons, e.g., the need to maintain and supporta workforce at the canneries, the desire ofAmerican Samoan families to sponsor relativesfrom the Independent State of Samoa to assistwith domestic hores, and the pressure uponbusinesses and government agencies to sponsorskilled immigrants take technical positions that

Part I: Chapter ThreePrincipal Territorial Concerns and Issues

I - 3 - 2

are not being filled by American Samoans.The 1995 Population and Housing Survey

shows that the majority of migrants were ofW estern Sam oa national ity5 and of the twenty toforty-four year age group.6 In theory, thesemigrants would have been responsible for raisingthe level of fertility beyond the Ter ritory’sexpected growth rate. In addition, there hasbeen an increase in the number of Asianimm igrants recruited to work in the private sectorand fill m anagerial and technical pos itions.

3.2.3 Immigration Policy and WeakControl

A recent publication by the Governor’s TaskForce on Population Growth, May 2000, hassuggested that immigration policy is inadequateto slow the current rate of immigration and thatimmigration control at port of entry has beeninadequate to enforce immigration laws.7

The official immigration quota, set thirteenyears ago, allows two hundred and fifty W esternSamoan ‘units’ and twenty-f ive migrants to enterthe Territory for one year residency, where a unitmay include family members. This policy hasbeen weakly enforced and there appears to bemore immigrants than permissible and manyover-stayers resident in the Terri tory.8

3.2.4 Progressive Exodus of HumanCapital

During the last two decades in-migration ofnew residents has exceeded out-migration ofexisting residents. Projections by the Task Forcesuggest that even higher ratios of exchange willoccur in the future without suitable migrationlaws and better im migration management.9

The out-migration can be attributed to a lackof promise for a better future for AmericanSamoans who want to remain. Job security andthe ability to land a respectable job in thiseconomy are principal factors for out-migration.A good job in government is hard to find and theprivate sector holds dubious promise for alifetime of securi ty. Secondly, students are sentoff-island to Hawaii or the Mainland to acquiretraining or a universi ty education . Some s tudentsreturn and find work, others return and are

frustrated by fu ture prospects. They leavepermanently to make a better life for themselvesin the Uni ted States.

3.2.5 Population Concentration in theYouth

The 2000 Census count revealed that forty-eight percent (48%) of the population was underforty-four years of age. Forty percent of the theage of twenty and an equal percentage of peoplewere of the age twenty to sixty-four (20 to 64).10

As the population ages and the populationincreases within these age groups, thegovernment will find it more and more difficul t tomeet the demand for services and supply theinfrastructure required to support a satisfactoryquality of life for the T erritory’s res idents. Theeducational system, social service provideragencies and medical services are alreadyfeeling the pressure of over-population.Infrastructure is inadequately funded to meetfuture demands and usable land is limi ted for allpurposes.

3.2.6 Urbanization and Over-Crowding

The adverse and cumulati ve impacts of thepopulation increase, development and residentialgrowth are readily noticeable on the TafunaPlain, which comprises a sizable portion ofdevelopable land in Tualuata County. In 1970,3,404 people or thirteen percent (13%) of theTer ritory’s population lived in the county. By 1990the number of people li ving in Tua lauta Countyhad reached 13,237. This num ber representedtwenty-eight percent (28%) of the Territory’s totalpopulation. By the year 2000 the Censuscounted 22,025 people, or thirty-eight percent(38%) of the Ter ritory’sl population. Thus, by theyear 2000, the Tualauta County population hadgrown m ore than si x-fold over thirty years.

Tualauta County and the Tafuna Plain havebeen the fastest growing area of the Terri tory.Residential development has resulted from theavailability of individually-owned land and theopportunity for immigrants and Am ericanSamoans to l ive in areas not under the control oftraditional village authorities. The aggregation ofnon-Samoan residents and American Samoansseeking a lifestyle unl ike traditional village life isresulting in the development of ethnic enclaves,social stratification and fragmentation, together


I - 3 - 3

with the avoidance of responsibilities traditionalto cultural norms or faa’Samoa.

Rapid human settlement has occurred wheregrowth has not been adequately enforced orcontrolled by regulations, such as land useplanning or zoning. This has resulted inovercrowding in many areas. The rapid growthhas also meant that basic infrastructure needs,e.g. water lines, sewers and roads, have notbeen installed in preparation for humansettlement and the impacts of traffic congestion,noise and air pol lution are evident. For furtherinformation on population projec tions, consult theGovernor’s T ask Force report, Impacts of RapidPopulation Growth in American Samoa: A Call toAction, May, 2000.

3.3 Economic Growth and Econo micStability

3.3.1 Base Economy and Dependency

The American Samoa Government and thefish processing and canning companies, SamoaPacking Company (COS) and StarKist Samoa,comprise the base economy. Together, theyemploy close to 10,000 people, or two-thirds ofthe Territory’s workforce, and furnish aboutninety-three percent of the inputs for thesecondary economy, i.e., American Samoa’sprivate sector.11

3.3.1.1 Cannery Domination and Flight

Throughout the last two decades there hasbeen an ever-present presumption that either oneor both of the canneries wil l pack up and leaveAmerican Samoa or the government will lose asignificant portion of its Federal funding with theresult that employment will plumm et and thequality of life will be dramatically lowered.

The potential closure of one or bothcanneries is taking on greater credence asworld-wide competition in the fish processingand canning industry increases, as StarKist plansunfold to move a portion of its fish cleaningoperations to the island of Savai ’i, as tariff andtax relief is given by the U.S. government toforeign countries, and as the tariff and tax reliefunder Headnote 3a and Federal 936 tax credits

are about to expire for American Samoa.

3.3.1.2 Government Management Ability

The concern over loss of Federal fundinghas abated somewhat in recent years as Federalprogram support to American Samoa has grown.However, there still remains the problem ofAmerican Samoa’s financia l difficu lties and itsmounting debt which the government has notbeen able to reduce without rescue paymentsfrom a Tobacco Settlement and a hurricaneinsurance settlement.

The government’s fiscal managementpolicies and practices, or absence of suitablepolicies, have the U.S. Congress, theDepartment of Interior, the banks and localbusinesses concerned over the fiscal integrityand management capability of the government.The U.S. Congress has threatened to reduceprogram funding unless a fiscal reform packageis implemented shortly. In the interim the privatesector’s investment opportuniti es are limited bythe government’s inability to pay its bills.

3.3.2 Escape from EconomicDependency

The private sector in American Samoa,exclusive of the construction business, ismaintained primarily upon the expenditures ofthe canneries, the government and theiremployees. They are responsible for the ninety-three percentof purchases within the economy. Governmentconstruction expenditures result entirely fromFederal funds. Other than the retail trade andfood sales, no other sector stands out asdominant and prom ising for future expansion.

Agriculture, fisheries and tourism have beentouted as potential industries for economicgrowth, but they have not drawn employmentaway from the canneries or government, norhave they panned out as replacements for them.W here there was a possibility of integrationamong them to generate a lively visitor industry,actions, cooperation and coordination werelacking.


I - 3 - 4

3.3.2.1 Economic Diversification: Difficult

Given these concerns, economists andpoliticians have aspired to see the economydiversified and the dependency upon thecanneries and government ended. However, thereality is that restructuring the economy will beno easy task, as there is no clear vision oreconomic planning in place to drive the change.

Fundamental structural problems also existwithin government and the private sector thatwould block the realization of such a formidabletask. That is, the government lacks a potentplanning program and implementation arm tocarry out development programs and the privatesector is hindered by the Terri tory’s remotelocation, small size and lack of key resources

3.3.2.2 Private Sector: Marginal Prospects

Local commerce sells its products andservices to local business and residents of theTerri tory, with relatively minor volume sales tothe nearby Independent State of Samoa. In orderfor the private sector to grow, it needs productsand services to sell within the Pacific Region andelsewhere. Expansion and diversification will notbe easy as there m ust be investment capacity.In this regard, the Territory has no marketingboard to provide the advertising and push.Capital and infrastructure do not exist on a scalelarge enough to compete with establishedmerchandising networks and the labor force isnot sufficiently skilled to handle the requirementsfor development that utilizes technical andtechnological capaci ty.

3.3.2.3 Agriculture: Under-Utilized Asset

There is a perception that the governmentand people have given up on agricultureproduction as a fundamental need of a society, ajob due respect and an im portant means ofemployment, or simply a source of staples for theTerritory’s residents. In terms of employmentcapaci ty, commercial farmers hold only one-halfof one percent of all jobs in paid-employment.

At the present time, while the Division ofAgriculture, Comm unity and Natural Resources(ASCC-ACNR) program (formerly known as the

Land Grant program of the American SamoaComm unity College) is undertaking an ambitiouspublic information and program within theTerri tory, the American Samoa GovernmentDepartment of Agriculture is languishing. At thelocal government level, agriculture has beenunder-valued for its contr ibution to the economy,and consequently under-funded, under-researched and under-developed as acommercial activity.

Agriculture is also under-linked with the localcommercial sector and the visitor industry.American Samoa imports a vast majority of itsfoodstuffs, and therefore, a significant amount ofincome is not retained on-island to re-invest inthe private sec tor.

3.3.2.4 Fisheries: Restricted Possibilities

The reefs of American Samoa, as aresource for fish and marine life, have beendamaged, degraded or depleted to variousdegrees throughout the Territory. TheDepartment of Marine and Wildlife Resources isconsidering restrictions on the taking of stockand villages are becom ing more incl ined toprotect thei r resources.

Increased subsistence and comm ercialfishing are permitted activities, but threaten thesustainability of the stock. As the populationincreases and there is a greater demand forcoastal marine resources, there will also begreater pressure to preserve the m arine li fe andfisheries stock, and, therefore, a need todesignate ‘no take’ areas. Thus, inshorecommercial fishing will be less lucrative andfishermen will be looking to off-shore fisheries asa busines s.

The change from dependency upon inshorefisheries to nearshore and off-shore commercialfishing is already taking place, but not rapidly.This change will require financing and resourcesthat are commonly not held by local fishermen.Commerc ial fishing is a capital intensivebusiness and intensely competitive at all levels.The capital w ill be hard to acquire as fishing isconsidered a risky business by financialinstitutions. Foreign fishing fl eets can c ompetemore effectively without the requirement for


I - 3 - 5

intensive fleet capitalization.Furthermore, fishermen will require a m arket

for their catch and infrastructure to support theiractivities. Presently, there is no organizedsystem for sales of fish and the infrastructure,e.g. mooring or a cold storage facility, is lackingor inadequate to handle a sizeable increase inthe local off-shore fishing fl eet.

3.3.2.5 Visitor Industry: A Fading Mission

By just about everyone’s reckoning, thevisitor industry in American Samoa has been adismal fai lure. In the mid-1970s tourism was atits peak. Visitors came to American Samoa byplane and cruise ship. Thir ty some years ago,the Rainmaker Hotel was a first classaccomm odation, visitors were taken on a breath-taking trip to the top of Mt Alava in a tramwaygondola, and planes flew almost daily. Today,the visitor industry is only a shell of its past andits infrastructure is in shambles . On the otherhand, and on the nearby islands of theIndependent State of Samoa, the tourism trade isflourishing.

A renaissance in the visitor industry ispossible, but the local tourism sector is beset byfundamental problems that show AmericanSamoa in a very bad light. The problemsinclude:

• insufficient and inadequately supported andma in ta ined v i s i t o r i n fr astruc tu re,destinations, and attractions;

• some hostile communal land stewards thatdisallow access to beaches;

• highly-priced, often sub-standard hotelaccommodations;

• an untrained, visitor industry workforce thatprovides poor service;

• a smal l number of good restaurants and safefood services;

• an unstructured, local transportation networkwith poorly kept and maintained vehicles;and

• insufficient and untimely air services from

Hawaii and the United States.

In addition, there is a deliberate policy byoverseas agents and tour guide business es toroute tourists away from American Samoa topopular islands because of the T erri tory’sreputation as an undesirable visitor destination.

On the government side, the Office ofTourism is seen as an ineffective organizationincapable of effectively impacting marketing theisland as a desi rable visitor destination, forproviding tourism services or developing tourismas a viable economic activity.

Finally, the strength of the U.S. Dollar incomparison to the currencies of countries likeNew Zealand or Austral ia discourages touristsfrom visiting American Samoa and makesAmerican Samoa expensive. 3.4 Resource Managem ent: Sustainable

Development for the Future

The discussion thus far has been focusedupon the issues of population growth andeconomic development with a few references tothe natural and social environment. They werereported first as a means to understand how theywill affect the overall future development of theTerritory of American Samoa. The remainder ofthis chapter will now deal with the interface andcumulati ve impacts upon the natural and socialenvironment brought about by population growthand American Samoa’s econom ic situation.

3.4.1 Sustainable Development

There is no overall development plan forAmerican Samoa that mandates the sustainabledevelopment of the Terri tory. Nevertheless, goodjudgement would conclude that the maintenanceof a satisfactory quality of life and the naturalenvironment should be sustainable for perpetui ty.

Sustainable development is viewed ascombining three basic concepts:, economicdevelopment, social system stability andeco log i ca l s ustainabi l i ty. Sustainab ledevelopment results from the ability to structureeconomic growth and maintain social and natural


I - 3 - 6

ecological systems for maximum welfare of thepopulation, whi le maintaining availableresources.

Maximum welfare is an easy concept tograsp, but difficult to measure. Sustainabledevelopment requires a balance or equilibrium.Ecological sustainability can be measured anddefined by a systems’ carrying capacity, butecological sustainability can be diffi cult tomaintain under intense competition from hum ansettlement and economic development initiatives.Currently, many American Samoans are askingif there can be a sustainable economy withoutthe canneries, if faa’Samoa can be maintainedfor the future, or if population growth on TutuilaIsland can be supported, in terms of its landavailabil ity, natural resources or social servicesdelivery systems.

Thus sustainable development of theTerritory should be an overriding factor in thedevelopment of the Terri tory and a primaryconcern of this plan.

3.4.2 Carrying Capacity of the Territory’sNatural Resources

In a general sense, carrying capacity isapplied in this plan as it would be in ‘ecological’terms; that is, the carrying capacity of theTer ritory’s islands, or its ecosystems, is themaximum population of humans, wildlife, marinelife or plant species, which can be supportedindefinitely in an area, without degradation of theresource base or the reduction of its maximumpopulation.

American Samoa’s resource managem entagencies know, in general, the carrying capacityof certain ecosystems and their naturalresources. For example, the American SamoaPower Author ity’s W ater Division, has tagged themaximum population on Tutu ila at 115,000people.12 This is the m aximum estimatedpopulation that can be suppor ted by Tutuila’savailable potable water resources at any time.

3.4.3 Overview of Natural ResourcesStatus and Environmental Concerns

The American Samoa EnvironmentalProtection Agency (ASEPA) produced an

‘environmental report card’ entitled the State ofthe Environment Report 2000.13 . The report wasdesigned to provide American Samoan residentsand policy makers wi th a foundation tounderstand the Territory’s environmental issues.

Table 3.1, on the following page, wasincluded in the report and reprinted in this planbecause it concisely describes the status ofTer ritory’s natural environment and resources.(The bold letters in the Status column referencethe lettered boxes at the bottom of the page toexplain the status of the resource.)

3.4.4 Less than Effective Stewardship ofRenewable Resources

Stewardship of American Samoa’s land andnatural resources rests upon traditionalleadership and government resourcemanagement agencies. Prior to legislationenabling government agencies with managem entand enforcement responsibilities, lands andwaters were fully under the control of traditionalor village leaders.

At the turn of the Twentieth Century it isassumed that American Samoa’s naturalresources were affected by human and naturalactions, but remained in good condition. Today,“although a few resources are improving, itshould be noted that the majority of theresources are being severely impacted by humanactivities and the environmental issues aregetting worse, not better.” (State of theEnvironment Report 2000)

The decline, degradation or depletion of thenatural resources should not be blamed on eithertraditional leadership or resource managementagencies. However, the ability to carry outeffective traditional or village leadership mayhave been eroded by the enabling legislation.Yet, some village leaders do not know laws,ignore the laws or are flagrant violators of thelaws.

In addition to these factors, the ability tomanage the resources effectively requires theability to cooperate, communicate, coordinate,act and work responsively together with the


I - 3 - 7

traditional village leadership. To be able torealize this, there must be overall leadership, avision, a mission and an overall managem entorganization to carry out the m ission. To date,

Figure 3. 1 State of the Environment 2000

RESOURCE TOPIC ST A T U

S

TREN

D

UP D AT E

Marine Resources

Coral Reefs C�

Reefs are slowly recovering from a series of natural disasters

Marine Protected Areas C�

Enforcement is inadequate. New areas need protection

Pago Pago Harbor D�

Harbor water quality is improving, but serious threats exist

Fisheries ( Reef ) C�

Over-fishing remains a threat to reef sustainab ility

Giant Clams C�

Enforcement continues as problem w ith over-harvesting

Sea Turtles C�

Protective laws governing turtle hab itats need enforcement

Whales C�

Unexpectedly slow recovery from early fishing pressures

Terrestrial R esources

Rainforest B�

Though much forest remains, serious deforestation threats exist

Vertebrate W ildlife B�

Several species becoming rare, fruit bats making a comeback

Wetlands D�

Seriously threatened from uncontrolled develop ment and filling

Pests & IntroducedSpecies

C�

Numerous introduced species continue to plague islands

Air & Water Resources

Air Quality A�

Generally excellent. Cannery odors still present in Pago Harbor

Water Qual ity C�

Quality is improving, however, localized threats are stil l present

Drinking Water C�

Water quality is generally good. Numerous potential threatsexist

Environmental Issues

Climate & Glob alWarm ing

C�

Impacts of climate change might b e heavily felt

Solid Waste & Landfill C�

Solid waste is increasing. Need conservation measures

Hazardous Materials C�

Increasing amounts as population/development increases

Plant Diseases B�

Territory recover ing from taro b light. Potential threats exits


I - 3 - 8

agencies work together when needed, but not asa unit, primarily because their local and Federalmandates are dissimilar.

Panel discus sions with resourcemanagement agencies have identified severalcauses that are common to all agencies thatmanage resource legis lation:

• public awareness about the need to care forthe environment is not fully ingrained in theresidents of the Terri tory;

• enforcement of laws and regulations havenot been str ingently or consistentlyimplemented by support enforcementagencies;

• some agencies may not be fully enlightenedabout the negative impac ts of their inactions;

• imm igrants and poachers tend to overlooktraditional leadership and village controls, aswell as local and Federal regulations;

• laws and regulations often have loop-holesor are fundamentally ineffective tools formanagement of the resource;

• the Attorney General’s Office is too over-burdened and under-staffed with lawyersand legal assistants to handle all theresource violations; and

• population growth is placing greater stressupon the Territory’s resources.

3.4.5 Human Settlement , Land Use Policyand Unwanted Effects

3.4.5.1 Pago Pago Bay Area

As reported by ASEPA, the water quality of

the bay is improving as a result of therequirement for the canneries to adhere to theClean W ater Act. Nevertheless, the bay’s watersare still polluted, heavy metals are a danger,fishing is prohibited and swimm ing is notadvisable.

Along the narrow shoreline, there isprogress ive dilapidation of buildings andaesthetic deterioration. There have been recentinitiatives to improve the blighted conditions inFagatogo village with urban redevelopmentfunding, but no resolution of the debilitatingconditions elsewhere in the Bay area.

3.4.5.2 Urban Sprawl on the Tafuna Plain

As noted previously, the Tafuna Plain isunder-going rapid residential and commercialgrowth as a result of population increase andredistribution. Because land in the Tafuna areacan be purchased, there is strong competition forthe available land to be used for commercial,industrial and residential purposes. There is alsoresistance from competing forces, e.g., culturaltraditions of matai control of land, against thepractice of land use and resource managem entto enable sustainable development

There has been no authorized rational andsystematic land use planning for the area.Although land use plans have been developed,they have not been adopted by elected officials.The lack of appropriate zoning codes to controland filter development has resulted in the use ofoutdated legislation as an ineffective means tocurb random and improper use of the land andcontain commerce, industry and residentialexpansion.

The lack of planning and controls hasresulted in very-high-density, single-familyhousing in certain areas and the random

The resourc e has bee n little, it at all,affected by human and or natural actionsand continu es to exist in am ple supply

AThe resource has been seriously affected byhum an and or na tural actions an d is indanger of being permanently affected

C

The resource has been affected by humanand or natural actions but continues to existand appears in good condition

BThe resource has been severely damaged byhuman or natural actions and has beendeplete d alm ost bey ond rec overy

D


I - 3 - 9

development of roads, where roads were meantto lead to individual properties. Since there hasbeen no planning, there is no systemati c trafficgrid and no control over traffic circulation. Thus,there has been an amplification of impac ts fromtraffic congesti on, noise, nuisances and unsightlyand unaesthetic neighborhoods.

3.4.6 Undesirable Land Use Practices andConservation of Land

The lack of land use policies and planningregulations makes conservation and preservationof areas in need of protection unduly arduous.W ithout the authority to place specific landsunder protection, conservation of specific areasis difficult to execute. Lands that could havebeen used for recreation, open space or drinkingwater aquifer recharge, for example, havealready been permanently removed bydevelopment.

Conservation and good land use practice gohand-in-hand, but development throughout theTerritory has not always been carried out wisely.Undesirable development and land use practicesare still observed.

There is paramount concern for the possiblefuture unregulated residential and commercialdevelopment in watershed and recharge areas,like Malaeimi Valley which is the primary sourceof fresh drinking water for Tutuila island.Unregulated development and the use of septicsystems could result in the contamination of theground water and aquifer. The water system isalready subject to contamination during periodsof heavy rain. The conduct of intensiveagriculture, utilizing fertilizers, pesticides andchemicals will also endanger the groundwatersystem.

Floodplain encroachment, in-fill andimproper development practices for housing andbusinesses are altering stream flows and theabsorption of rain waters to the extent thatflooding is occuring outside the floodplain anderosion and flood waters are damagingecosystems downstream.

Filling of wetlands and encroachment uponmangrove estuaries is destroying the natural

habitat that marine life relies upon for itscontinued reproduction and sustainabili ty.

Development along coastal areas andmining of coastal sand and rubble is illegal,without the issuance of a permit, but is stillpracticed by those who deliberately circumventthe law.

Clearing of forest on steep slopes foragriculture and residential development not onlydepletes the Territory’s forest but creates acondition of soil instability. This unsafe practicecan lead to hazardous land slips, but it iscommonly seen to create soil erosion andsiltation of the streams and the reef shelf.Upslope erosion has been a significant factor inthe decline of reef resources.

Solid waste disposal in streams and uponland create a serious health problem , contribu teto the contamination of the water resources anddebase the aesthetic beauty of the land. Whilethe American Samoa Power Authority, SolidW aste Division, has done a commendable job inrecent years to remove and control waste, thepopulace still continues to dump waste productsinappropriate ly.

Secondly, solid waste disposal impac ts thepermanent long-term use of land. The Territoryis accum ulating wastes which cannot beexported, but would otherwise be shipped todestinations for recycling if this were a U.S.Mainland location. The Terr itory has no laws andregulations which would deny entry to itemswhich cannot be recyc lable and have a short life.

Finally, for years the Landfill in Futiga was inviolation of U.S. Environmental ProtectionAgency standards . The landfill m ust not beallowed to return to its previous status.

3.5 Provision of Basic Needs and Infrastructure

3.5.1 The Government: the Source of theTerritory’s Basic Needs

The American Samoa Government, as aunitary politic al entity, and its semi-autonomousauthorities are the pr imary suppliers of basic


I - 3 - 10

needs, i.e., health care, public safety, education,potable water and electricity, to the residents ofthe Terri tory.

W ith the exception of private or parochialeducational institutions, like the Catholic Dioceseof Samoa and South Pacific Academy whichsupport pre-school through high schoolinstruction, all services are publicly funded.

There are no private hospitals, electrical orwater systems. The American Samoa PowerAuthority (ASPA) and the American SamoaMedical Authority (Lyndon Baines JohnsonTropical Medical Center, derive their operatingincome from local taxes, revenues and fees,Department of Interior operating grants andcapital improvement awards, Federal entitlementprograms and Federal block grants.


I - 3 - 11

3.5.2 Population Growth and Funding: Two Impediments to the Provisionof Basic Needs Service andInfrastructure

3.5.2.1 Population Growth: Surpassing Service Providers’ Capacity

Government service providers are presentlyreporting that the Territory’s twenty-two percentpopulation increase over the last ten years isstraining their ability to offer adequate services tothe public. The most demand is placed uponagencies that serve women and young children,i.e., the public health service, the hospital, thesocial service providers and the educationalsystem, who respond to the need for maternaland child care, preventative health care, andeducating the youth.

Population growth threatens to overwhelmthese systems, lest there be an immedia teresponse to add more facilities to accom modatethe population and more doctors and nurses,skilled service personnel and teachers to providethe services.

3.5.2.2 Funding Deficiencies : Limiting Future Developm ent of Services

W hile the addition of more facilities andpersonnel to render services may be a resolutionto the issue of rapid population growth, in reality,it is not a probable solution.

The American Samoa Government is deeplyin debt and has been unable to finance theconstruction of facilities from local revenues formany years. It has relied upon the FederalGovernment for virtually all of its capitalimprovements expenditures. Funds that havebeen received by the service providers havecome primarily from the US Department ofInterior and the US Department of Housing andUrban Development, Community DevelopmentBlock Grant program. The latter has primarilyprovided funds for health clinics and the hospitalin recent years, while virtually all schoolconstruction has been supported from DOICapital Improvement Program(CIP) funds.

For the fiscal years 1996 through 2000, theTerritory received $40.3 million for an annualaverage of just over $8.0 mi ll ion per year.Hospital improvements, new school buildings,water and sewer line construction accounted forseventy-f ive percent of the funding use. Thesewere the top priorities set by the CapitalImprovements Committee. These figures mayappear to be a reasonable sum for a Territory of60,000 people, but the Capital ImprovementsCommittee estimated in 1995 that the five yearconstruction needs of the T erritory would total toover $300.0 million and the majority of thefunding would be required for health, educationand utilities . Thus, by the year 2000, theTerritory had only been able to realize theacquisition of fifteen percent of facilities fundingit noted as being required in 1995.14

Local revenues have not been used forfacilities construction in the past. Local revenueshave not been able to keep pace w ith the need tohire more employees. W hile more employeesare needed, there is a need to reduce the debtthat the government continues to incur. Itcontinues to run an annual deficit because itcollec ts fewer revenues than it expends on theworkforce that it maintains. Thus, thegovernment faces a serious dilemma over how itwill finance its service providers andinfrastructure.

W hile the Hospital Authority and ASPA arein the process of defining measures to increaserevenues, they have found that the Terri tory’sresidents are unprepared to face the increasedfees required to operate the systems in afinancially sound manner.

3.5.3 Facilities and Infrastructure Needsand a New CIP Plan for 2000through 2006

During fiscal year 2000 the CIP Committeeunder-took an assessment of the capitalimprovements and infrastructure needs of theTerri tory. The Committee found that it requiredalmost $273.0 million for the years 2002 through2006 to satisfy most of the construction needs ofthe Terri tory.15 Capital improvements supportedby Federal agencies, like the Federal HighwayAdministration that provide separate funding fromthe Department of the Interior, were not included


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in the asses sment. Thus , the improvementsneeds of the Territory exceed the CIP needsassessm ent statement in the CIP Plan.

As a prerequisite to the receipt ofDepartment of the Interior funding, a CapitalImprovements Plan for 2002 through 2006 wasformulated. The completed plan consis ts of theneeds assessment and a funding plan whichallocates most f unds for basic needsinfrastructure. The funding plan was based uponthe known annual amount that the US Congresshas allocated to the Territory, until the annualallocation is changed, i.e. $10.14 million peryear. Over the five year period, selectedgovernment agencies would receive $50.7 milliondollars, if the US Congress did not change thecurrent allocation. This would mean that thegovernment would fall short of its funding needsby over $220.0 million dollars.16

3.5.4 Basic Needs Facilities andInfrastructure

3.5.4.1 Health System

Most of the physical facilities of theTerritorial health care system remain in a state ofdisrepair. These are prim arily Department ofHealth facilities which have not receivedmeaningful funding for improvements over thelast five years. Although the HUD Comm unityDevelopment Block Grant and CIP program haverecently funded a new Tafuna Family HealthClinic and an Emergency Services addition to thehospital, the overall needs situation has notchanged markedly since the initial needsassessment in 1995.

The Department of Health would like toconstruct more health clinics, with at least onenew clinic in the remote Manu’a Islands. Thesefacilities will also require equipment which willnot likely be supported by local budgets. Eachfac il ity, given the present cost of construction andfitted with equipment will cost between $750,000to $1,250,000. The Department of Health’s needstotaled $2.5 million.17

The Medical Center Authority had identified$10.3 million of improvements to the MedicalCenter (LBJ), which includes a broad range ofrenovation projects, new testing laboratories,

new wards and the acquisition of medicalequipment.18

For the fiscal years 2002 through 2006, thenew CIP Plan alloc ates $255,000 for theDepartment of Health. The Medical Center isslated to receive $8.9 m illion. That is a shortfallof $2.2 million and $1.4 million, respectively forthe Health Department and Medical Center.19

3.5.4.2 Education

School age children represent approximatelythirty-three percent of American Sam oa’spopulation. School classrooms are currentlyovercrowded and, based upon projectedpopulation growth rates, will become m orecrowded without the addition of new classroomsto accom modate population growth.

The projections of demand in 1995 showedthat approximately seventy new classroomswould be needed during the course of the 1996 -2001 to alleviate overcrowding. A further eightyto ninety more classrooms would be needed toaccomm odate new students for the 2002 - 2006planning cyc le. In retrospect, on ly fifty-s evenelementary classrooms were built between 1996- 2001, demonstrating the inability of thegovernment’ financing to keep pace withpopulation growth.20

More specialty rooms for science,computers, libraries and vocational training arealso needed. However, the demand forrehabilitation and new classrooms limits theopportunity to construct these valuable facilities.Constructed in the 1960s and 1970s, most of theschool or non-classroom facilities aredeteriora ting badly.

In total, the Department o f Education hasidentified improvements to facilities and theaddition of new facilities that cost in the vicinity of$46.0 million. Over the five year planning period2002 - 2006, the Department wil l only receiveabout a third of its required funding or $15.8million. The American Samoa CommunityCollege asked for $1.7 million for improvementsand will receive about half, or $780,000.21

3.5.4.3 Public Safety


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The Department of Public Safety (DPS) hasjurisdiction over police, fire protection, detentionand correc tional fac ilities . Since 1996, DPShas been successful at satisfying some of itsimprovement needs from sources other than theDepartment of Interior CIP grant awards.However, the variety and number of DPSfacilities, e.g., fire stations and detentionfacil ities , are undeniably inadequate for the sizeof the population in American Samoa.

Detention facilities rate the highest concernin terms of public safety. The TafunaCorrectional Facility (prison) is in deplorablecondition overall. The Tafuna area is rapidlybecoming the new commercial and residentialcenter of the island, but it has virtually no fireprotection coverage.

The Department of Public Safety hasidentified $5.4 mil lion of needed improvementsand construction over the next five years. It isscheduled to receive $2.8 million or sightly overfifty percent of i ts identifi ed needs, of which athird will go for fire protection.22

3.5.4.4 Utilities

Adequate utility systems are essential to thehealth, safety and welfare of the residents of theTerri tory. They are critical to the protection of theenvironment and a prerequisite to controlleddevelopment. The coverage of the water andsewerage systems, except along the Pago PagoBay shoreline, remains inadequate throughoutthe Territory for the carrying capacity of the landand expected population growth.

The primary fresh water aquifer on TutuilaIsland is located in the Tafuna Plains area andpossesses most of the existing water wells thatsupply the central water system. Protection ofthis aquifer from the impacts of development iscritical to the safety of the community and thepreservation of the water supply. Without theinstallation of a proper sewerage system andwith continued reliance upon septic tanksystems, it will only be a matter of time until thewater supply becomes contaminated.

The American Samoa Power Authority hasidentified $11.6 of funding required to cover water

projects for fiscal years 2002 - 2006. To provideadequate sewerage to the Territory, ASPA hasidentified $47.2 million dollars worth of systemand line needs. Since the CIP Plan for 2002 -2006 has only allocated $2.0 mil lion for waterprojects and $10.0 million for sewer systemimprovements, there is a shortfall of $9.6 millionand $37.2 million respec tively for water andsewers. This is obviously a serious deficit thatcould significantly affect the water quality of theTerritory in the future.23

The American Samoa Power Authorityappears to have overcome the problemsassociated with the electrical power system ofearlier years when daily blackouts were acommon occurrence. This can be attributed togood management and replacement ofequipment with CIP funds from 1996 onward.

ASPA has prepared a lengthy list ofimprovements to keep the electrical systemrunning well, that tally to a five year cost of $23.0million. Included in this amount areimprovements to the Utulei Tank Farm andmovement of fuel tanks at the airport for $6.5million. Although the improvements andequipment could be supported by Department ofInterior funds, the CIP Committee has allocatedno funding for the power system and thus ASPAwill have to find its revenues from local legis lativeaction, other Federal agencies or earned incomefrom sale of e lectrici ty.24

3.5.5 Other Infrastructure Needs

3.5.5.1 Ports

The Department of Port Administration isresponsible for the opera tions of the T erri tory’sair and sea ports, and fundamentally all of thematerials and supplies that are imported into andexported out of the Territory. Therefore, theproper functioning of port facilities are cri tical tothe well-being of the Territory on a daily basis.

The Pago Pago Harbor seaport facilities areoutdated and have significantly deterioratedbecause of a lack of financial resources formaintenance and upgrades. Virtually everyfacility at the main port is in poor condition,including the dock and wharf. There are a


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plethora of problems associated with the harborports, including the Manu’a ports, that have beenidentified in the Port Master Plan 1999-2019.

The CIP Plan needs assessment lists $21.8million worth of repair and upgrade projects andan additional $22.4 million of new projects. Inconsideration that the CIP Committee hasallocated a total of only $4.8 m il lion for the nextfive years, it is not likely that the PortAdministration will find sufficient funding to carryout the work at the main port or Manu’a ports.25

Airport runway extension improvements toPago Pago Internationa l Airport and FitiutaAirport at Ta’u in the Manu ’a Islands were listedat $17.5 million. No CIP funds will be used forthese purposes. The Port Adminis tration willreceive funding from the Federal AviationAdministration to complete these projects, butthe International Airport terminal refurbishm enthas been estimated to cost $13.7 million. T heterminal work will have to be completed usingPassenger Facility Charge (PSC) fees overtime.26

3.5.5.2 Shoreline Protection

The list of needed shoreline protection andflood control projects has grown three-fold overthe 1995 CIP Plan needs assessment andincreased in value by a third from $8.2 milliondollars to $12.5 million dollars. The reason issimply that no funds were devoted to shorelineprotection which could be accounted for bycapital improvement grants and shorelineerosion has increased.27

The erosion threat to the southern shorelinealong Highway One is one of the most serioussituations the government faces. Virtually theentire Eastern District shoreline and some of theW estern District shoreline along the mainroadway are gradually being damaged or wornaway.

Reclaimed insurance payments fromHurricane Val destruction will pay a portion of theshoreline protection and repair for the mainhighway, but there are not sufficient funds to payfor the needed work elsewhere on T utuila orManu’a. The estimates for shoreline protectionwill most likely rise to $15.0 million by the end of

this plan period, for which there are no additionalfunds available from the CIP program.28

3.5.5.3 Highways and Roads

The Ter ritory’s highways and roads are builtprimarily with Federal Highway Administrationand Departm ent of the Interior funding. A verysmal l proportion of funding is local money. Onthe average the Territory receives about $3.5million dollars a year for highway constructionfrom the Federal Highway Administration and$360,000 from the Department of the Interior forvillage road construction.29

Federal Highway One, which covers thedistance from the eastern tip of Tutuila to thewestern shoreline is in good condition except forthe distance between Pago Pago Harbor and thevillage of Leone in the Western District. This isan eight mile length of highway in poor conditionthat could take ten years at a cos t of $25.0million to rebuild . There is no guarantee that theFederal Highway Administration will provide thefunding toward the end of this decade and thereare no other funds presently in sight to providefor the cons truction.

The Civil Highways Division of theDepartm ent of Public W orks identified twenty-one village road projects i n 2000 estimated tocost $5.0 mi llion that need to be constructed tomeet the demand of the growing population.30 At$360,000 per year from the CIP program, thevillage road program will fall short of its needs byover $3.0 million.31

In general, the inability to repair or constructnew roads will result in recurrent damage tovehicles, causing the need for costly repairs byowners or the hastened replacement with newvehicles. In either case, the inability to maintaina good road system will put a greater strain onthe Territory’s solid waste disposal and storagecapaci ty system as more and more vehicles arecast as ide.

3.5.5.4 Parks and Recreational Facilities

American Samoans value recreation andoutdoor activities h ighly, yet comm unity parksand recreational facilities have been left todeteriora te in many instances. Park equipment


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and public toilets should be replaced at almostall sites. In addition to the rehabilitation of thecomm unity parks, there need to be morecomm unity parks to service the residents of theTerritory. There are only three satisfactoryusable public areas, i.e., Utulei, Onesosopo andLions Park. Pago Pago Park has deteriorated tosuch an extent that the site should not be usedfor recreational purposes unless it isrehabili tated.

There are no indoor arenas or swimmingpools for recreation, competition among theschools or for public use. The Ter ritory is at agreat disadvantage if it wants to train its youth orcompete in international sports. If the Territorywants to develop tourism, the absence ofrecreational activities places the Territory at aneven greater disadvantage in compari son toislands that have recreational infrastructure inplace.

The Department of Parks and Recreationidentified almost $2.0 million of projects for 2002- 2006 funding cycle.32 These were primarilysmall projects and did not include any sportscomplexes that would drive the needsassessm ent past the $10.0 million threshold. Thedepartment fared better than most for the nextfive years as it is scheduled to receive near ly fiftypercent of i ts reques t It must be said, however,that the Department of Parks and Recreation hasreceived very little funding f rom the CIPComm ittee to this point.

3.5.5.5 Historic Preservation and Cultural Attractions

The Territory of American Samoa is acultural and historical treasure that possessesarcheological and historical sites dating frompre-colonial tim es through W orld W ar II. Someof these sites are still being used on a daily basisfor government administration, but others havebeen left to decay.

There have been no funds allocated towardthe restoration of American Samoa’s cultural andhistorical artifacts for the next five years. Repairof these si tes can play an important roll in thesurvival of historic preservation practices and thesupport of tourism development in the future.

3.5.5.6 Economic Development Facilities and Infrastructure

The Department of Commerce is the leadgovernment agency to foster econom ic growthand developm ent of the T err itory. Its CIPassessm ent of economic infrastructure needs in2000 identified $9.7 million worth of fisheries,agriculture, commercial and light industrialinfrastructure support that could spur economicgrowth.

No significant amount of CIP funding will beallocated toward economic development duringthe 2002 - 2006 funding cycle.33 Economicdevelopment packages, that include funding forinfrastructure, may be the only foreseeablesource of assistance.

3.6 Social Development and the Delivery of Social Services

3.6.1 Overall Balance

The overall development of AmericanSamoa’s society and the achievement of asatisfactory quality of life for its population relies,in part, upon the government’s ability to providea healthy environment, economic and socialstabil ity.

Because the Territory is finite and limited inits resources, the Territory could developdisproporti onate ly. W ithout an emphasis on anintegrated, balanced and holistic approach todevelopment, the Territory could develop alongan undesirable path. Ultimately, balance isnecessary to maintain successful development.Healthy, well-educated, employed people that arepleased with their physical and socialenvironment are going to grow the Territory in apositive direction.

Currently, there is fear of economicdeterioration, the physical environment is beingmishandled, and the social environment appearsto be worsening by some accounts. Theseaccounts are noted under section 3.6.5.1, SocialChange and Social Stress.3.6.2 Arts and Culture


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The state of cultural resource managementin the Territory is rudimentary at best andwoefully under funded on the local level. Theagencies d i rect ly mandate d with themaintenance and continuance of the Territory’scultural resources are separated into differentagencies and organizations.

The Office of Archives and RecordsManagement is part of the Department ofAdministra tive Services. The American SamoaCouncil on Arts, Culture and the Humanities is anon-governmental body. The American SamoaHistoric Preservation Office is under the Officeof the Governor. The Jean P. Haydon Museumhas no status, w ith no governing board, nodirector, staff or budget. The Office of Tourism,to the extent that it is involved with culturalresources as part of the visitor industry, is part ofthe Department of Commerce.

Together, these organizations try tocooperate and meld activities as much aspossible, but there is no established protocol orunified plans to assist with their cultural andhistoric functions . This makes it difficu lt topresent a unified front for funding. Legislati vely,these cultural resource managem ent programsexist only fragmentally. Funding-wise, theseprograms receive very little money or are whollysupported by Federal funds.

These are both quality of life issues andeconomic development issues. Am ericanSamoa’s strong cultural traditions can be anatt ractive draw for visitors in a world that hasbecome more homogenized. Governmentcommitment to program support through fundingcan both main cultural traditions and grow theeconomy.

3.6.3 Health Care

Over the past decade significant progresshas been made in improving the health ofAmerican Samoans. The prevention andtreatment of acute diseases and seriousinfectious diseases, and the maintenance ofpersonal well-being will always be a mandate ofthe health system. However, the health systemmust now address the im portant

issues identified in the report Health 2000 Plus:Meeting the Challenges of the 21st Century.They are:

• developing an appropriate mechanism forTerritorial Health policy formulation andplanning; i.e., the Territory has been withouta Terr itorial health plan or agency for the lastdecade;

• developing a socially equitable andsustainable Territorial Health care financingstrategy that shifts a significant portion of thecost of health care from government toconsumers; i.e., the government andHospital Authority can no longer financiallysupport health care to the level that it hadachieved in the past;

• improving the skills of the physicians andclinic al staff that require upgrading in orderto meet the Health Regulatory Boardlicensing requirem ents, i.e., wi thout aproperly skilled and licensed staff theauthority could face possible termination ofthe Medicare and Medicaid programs;

• achieving a more cost-effective allocation ofhealth resources between health careservices and health improvement programs,i.e, finding the most beneficial mix ofservices between the provision of healthprevention programs and hospital care forthe benefit of the whole society;

• motivating and empowering ind ividuals totake greater personal respons ibility for theirown health, and providing them with thenecessary information and oppor tunities toact on their decisions;

• increasing the capacity of the health caresystem to respond to health needs throughhealth workforce development, informationbased decision making, and improvedcooperation and collaboration betweengovernment agencies and citizens; and

• increasing the capability of the AmericanSamoa Hospital Authority to find additionalsources of financial assistance, to increaselocal and Federal appropriations , and to


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Figure 3.2 Education’s Broad Impact

establish an effective cost-containmentsystem.34

3.6.4 Education and the Public SchoolSystem

Education and the educational system are atthe heart of preparing the Territory for the future.Looking at education from an overall perspective,there are three areas of concern for theeducational system that are pertinent to this plan.They are: the relationship of the educationalsystem to the overall development of theTerritory; the impact the system has uponstudents; and the structure and mission of thesystem.

3.6.4.1 The Educational System’s Impact upon Territorial Development

The educational system and the people thatmove through the system, whether they are well-educated or poorly educated, leave a mark uponsociety.

The following illustration shows the areas ofconcern by panel members as affecting or beingaffected by the educational system. Theillustration shows only a one-way relationshipbetween the areas of concerns, but in reality theyare inter-related and inter-mixed.

Population growth is placing a burden upon

the educational system, particularly at the lowergrade levels where children are outnumberingthe spaces available for them. There are toomany pupils per classroom and the teacher :pupil ratio is exceeding recommended standards.

Immigration of children and youth from theIndependent State of Samoa and non-Englishspeaking aliens who are not we ll-prepared toenter the schoo l system are taxing thecapabilities of the system.

The system has a role to play in educatingchildren, youth and adults about health and themaintenance of well-being. Education starts athome, but parents m ay not be prepared todiscuss the sensitive issues of sexual practices,drugs and high-risk activities. Bearing witnessto the prevalence of acute diseases, like diabetesand heart disease caused by obesity, youngpeople have to learn to take care of themselvesproperly. The educational system is the first pointof contact for children who can also influenceparents.

Public awareness is an especially importantissue with regard to the maintenance of theTer ritory’s natural environment and managementof its resources. Too many people are stilldisposing trash improperly or ruining wetlands bydevelopment. Learning to care for theenvironment begins in school if it hasn’t beentaught at home.

There is a general concern that attitudes andfa’aSamoa are changing and that people arelosing their perspective, initiative to maintain ahigh moral standard and personal ethics.Accompanying this are attitudes that affect theway people care for families members or thatsuppress good work ethics and lead to poorproductivity. Poor attitudes can often bechanged with education and incentives.

A vision for the future is lacking. It is not thefault of the Department of Education (DOE), butDOE has a major role to play in carrying out avision once it has been defined by the T erri tory’sleaders. The vision should include adevelopment direction and the Department ofEducation must adapt its instruction and services


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to meet the future needs of the Territory’s definedvision.

Economic development and economicgrowth of the Territory will need an educationalsystem focused upon employment goals and jobtypes, especially for the private sector wheremore job opportunities will becom e available.

There is an absence of planning to developthe Territory’s ‘human capital.’ Cooperation andcoordination among government agencies is notadequate. The commissions that study theneeds lack the mechanism s to move the systemtowards results. The Community College is bestsituated to provide the kind of analysis anddirection, together with ins tructiona l courses todevelop the Territory’s human capital.

3.6.4.2 The Impact the EducationalSystem has upon Students

The financial situation of the government andits inabili ty to finance the educational system hasan impact upon students and their ability tosucceed:

• many of the classrooms and facilitiesmanaged by the Department of Educationare in disrepair and educational tools arelacking. This puts students at adisadvantage in the global economy;

• there is very low spending on students percapita compared to the U.S. Mainland. Theschool system doesn’t have many of thefacilities found at U.S. Mainland schools.Students miss or do not accum ulateexperiences available elsewhere;

• the Department of Education can’t attractenough high quality teachers. Teachers ofmathematics and the sciences are hard toacquire, leaving students without properinstruction in these areas;

• the Departm ent of Education has notassessed the long-term im pact of itsinstructional services have had upon thecomm unity and whether students aresuccessful in life;

• the American Samoa Community Collegeprovides open admis sion to those wishing tofurther their education, but reports that mostof the incoming students must take non-credit remedial English and/or math classesbefore they can enroll in for-credit collegeclasses. Eighty-five percent of s tudentsenrolling at the community college do notpass the English language proficiency test(ELI); and

• many high school seniors take the ASVABexam (for entry into the U.S. military), butonly a small proportion surpass theminim um benchm ark neces sary forenlistment in the Armed Services. In general,student achievement on national-normedexams reveal American Samoa’s students tobe lagging their mainland counterparts byseveral grade levels.

3.6.4.3 The Structure and Mission of the System

The lack of adequate funding will be asevere deterrent to the Department of Educationand the Community College in carrying out theirmissions. The entrance of m ore students intothe system, will only complicate matters.ASCC’s desire to become a four-year college willhave to be delayed indefinitely without additionalfunding.

Teachers and ASCC instructors are paid ona pay scale much lower than their Hawaii andU.S. counterparts which can cause moraleproblems within the system. Furthermore, ASCCmay find it difficult to replace aging instructorswith qualified personne l due to wage differentials.

Neither the Department of Education norASCC have plans for the future which includeintegration of the educational system withspecific government agencies or private sectorskill requirements. DOE and ASCC curriculumsare customary curriculums meeting minimumeducational requirements.

The educational management process is inneed of revamping, modernizing, restructuring toprovide better educational services. This


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process is lengthy and requires personnel andbudgeting which are not presently available.

3.6.5 Social Development

3.6.5.1 Social Change and Social Stress

American Samoa's population is beset bymany of the social ills that plague othercommunities, including substance abuse,alienation of youth, and crime. There are even afew homeless or hungry children, adults andelderly in the territory that have been abandonedby their family.

There is substance abuse in AmericanSamoa. Alchohol abuse is the most visible, andmost crimes are committed by people under theinfluence. There have also been arrests for theimportation of street drugs and marijuana is incomm on use.

W hile there is very little random or violentcrime, violence does often occur between peoplewho know one another and whose passions arearoused by drinking. Sexual crimes, inc ludingabuse of minors, have been increasingly revertedto the criminal justice system, although this mighthave as much to do wi th new atti tudes aboutintolerance and prosecution as it does with anincrease in the incidence of the crimesthemselves. Non-violent, property crimes andburglaries are also on the increase.

Similar ‘increases’ in mental disease anddisabilities are also being registered, as theseconditions move from personal, domestichousehold matters to officially documentedincidents of the social service system. In fiscalyear 2000, of the 251 cases referred to childprotective services, 79 were substantiated caseof neglect (29.1%), sexual abuse (21.5%),physical abuse (48.1%) and medical neglect(1%). Some of the characteristics (in about one-third of child protective services cases annually)identify substance use directly related todomestic violence.35

A recent 2001 Youth Risk Behavior Survey(YRBS) of 914 high school students in sixschools indicated a significant number ofstudents expressing suicidal tendencies. The

2001 survey yielded the following informationregarding high-risk behaviors of the students.During a previous thirty day period, 21.1% of thestudents surveyed said they carried a weapon;37.3% smoked cigarettes; 8.7% drank alcohol;21.7% used marijuana. During the previousthree months 23.4% had sexual intercourse andduring the previous twelve months, 20.9% saidthey made a serious attempt at suicide.36

There has been great concern for manyyears about the youth, who are admonished tohold fast to fa'aSamoa, but who are brought up inan American-influenced world of individualaggrandizement and self-indulgence, rather thancomm unity centered indulgenc e. Samoan youthare expected to serve their elders with fullobedience and no back-talk. Youth exposed tothe MTV culture have an understandably hardtime reconciling their American yearnings withthe expectations of their pare nts andgrandparents.

3.6.5.2 Quality of Life

There are no readily available numbers thatindicate the status of a person’s quality of life inAmerican Samoa. The following analysis ismeant to provide an indication of personal statusrelati ve to past years and individual andhousehold in the continental United States.

Per capita income in American Samoa was$4,357 as of April 2000. This represents a forty-three and four-tenths percent (43.4%) increaseover the 1990 Census figure of $3,039. However,the value and percent increase are not adjustedfor inflation. 37

Median and mean individual incomeincreased between 1990 and 2000. The medianhousehold incom e in 1990 was $16,114. By April2000, it had risen to $18,219, an increase ofthirteen percent (13%).38 These numbers havenot been adjusted for inflation and, therefore,there may have been only a marginalimprovement in the financ ial wel fare of thehousehold. On the other hand, the number ofpersons per household dropped to six, as morehouseholds were created. On the whole, thenumbers suggest that no significant improvementin raising incomes has resulted.


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The U.S. per capita income in 1990 was$14,420, or 4.7 times greater than the AmericanSamoa level of $3,039. Not on ly was per capitaincome much lower than in the continental U .S.,but the money had to go much further, since theaverage household size in American Samoa wasgreater than twice the size of the average U.S.household size of 2.6 people.

One cannot directly compare spendingpatterns in American Samoa to those of thecontinental United States. Imported goods aregenerally more expensive to purchase inAmerican Samoa than on the mainland as aresult of the shipping charges to the SouthPacific. But the great disparity in the value ofindividual incomes does show that AmericanSamoans simply do not have the purchasingpower of individuals on the Mainland. In 1995,roughly eighty percent of families in AmericanSamoa had incom es below the U.S. povertylevel.39

The availability of plumbing fixtures inoccupied housing units may provide a glimpseinto the character of housing and the quality oflife. Twenty-five percent of all occupied units didnot have any plumbing facili ties and ninety-twopercent of all occupied units lacked comple teplumbing faciliti es. Only seven percent of allunits had complete plumbing facilities. If theability to pay for heated water is an indication ofquality of life, then seventeen percent of alloccupied units had hot water for washing dishesand bathing.40

Despite these poverty figures, the surveyreported that: almost ninety-severn percent ofunits had electrical power; twenty-six percent ofhousing units had a microwave; telephones wereinstalled in seventy percent of the units; andeighty-three percent of all units had a television.Vehicles per household were reported as 0.7.41

American Samoan households spend onlyone and two-tenths percent of their income onhealth care, which is heavily subsidized by thegovernment. Very few residents have healthinsurance, and U.S. Medicaid is not provided inthe territory. There is a two-tier fee structure formedical care, and while the cost for American

Samoans and permanent residents is verynominal, the cost for certain foreigners can beprohibiti vely high (though still far less than thegovernment's actual cost).

Due to low income levels, all childrenattending public school in American Samoareceive free school breakfasts and lunch from theU.S. Department of Agriculture, School LunchProgram .

Perhaps the most revealing indicator of thequality of life in American Samoa is the well-being of i ts individuals for the Department ofHealth reports that a host of chronic diseases,such as diabetes mellitus and heart disease havebecome the primary causes of death in AmericanSamoa.42

3.7 Government Planning andManagement

3.7.1 Planning and Lack of Vision

The emphasis on planning has dec linedsignificantly since the 1970s to the point whereformal planning programs are not seen tomarkedly influence the activities o f government,and people take p lanning activi ties lightly.

The concept of comprehensive planning wasvested in American Samoa in the 1970s w ithlegislation authorizing the formulation andenablement of the Territorial PlanningCommission (TPC). In the American SamoaCode Annotated, the TPC was given the functionof oversight and approval of plans for thedevelopment of the Ter ritory.

Following the establishment of the TPC, theEconomic Development and Planning Office (theDepartment of Commerce since 1997) undertookcomprehensive planning efforts which includedthe production of a housing plan and aneconomic development plan in the late 1970s.These plans were the last Territory-wide,comprehensive development efforts completedby the either the Economic Development andPlanning Office or the Department of Commercesince the 1970s.


I - 3 - 21

The perception of overall planning as animportant aspect of government affairs may havedeteriorated sharply within government agenciesor with top leadership in the past decade. Thenumber of planners in the Department ofCommerce shrank significan tly and the StateHealth Planning Agency disbanded in the early1990s. An exception to this decline is theAmerican Samoa Power Authority’s continuedreliance upon formal plans to guide developmentof its systems.

The Department of Com merce sought toprioritize its scare planning resources and applyits efforts towards land use and master planningfor Tualauta County since the early 1990s. Thiswork eventually culminated with the completionof the Tualuata County Land Use Plan in 2001,which has been recomm ended and adopted bythe Territorial Planning Commission, approvedby the Governor, and is presently before theLegislature for authorization.

W ith the gradual lessening of the planningcomponent of the Department of Commerce andthe lapse of the Territorial Planning Commissionin the oversight of planning, there has been anaccompanied slackening of inter-governmentalinterest in overall developm ent planning, and aconcur rent lack of ‘vision’ of the government.

It is difficult to judge whether this a case ofdeterioration of comprehensive planning as avalid concept, a question of ownership ofpotential decisions for departments or agencies,a problem of communication with top leadershipabout the importance of overall planning, or afeeling among politicians and top leadership thatcomprehensive planning can restric t leadersh ip’spersonal policies, programs and choices in thefuture.

Nevertheless, there is a general feelingamong p lanning participants for this plan that:

• c o m mun ica t i on , c ooperat ion andcoordination among government agencies islacking, or even missing;

• integration of planning, plans anddevelopment efforts are lacking or missing;

• there is insufficient planning expertise at thehighest departmental levels;

• a mandate for planning does not exist at thehighest levels of government; and

• planning will not be a proven commodity untilthere is a demonstration of i ts effectiveperformance.

During this plan formulation, it was alsopointed out that this lack of communication,cooperation and coordination extends to theprivate sector, which has lost confidence andbecome disenchanted with the government in itsability to encourage and cooperate in the futureeconomic development of the Territory. This issubstantiated by the lack o f a standing pri vatesector-government economic developmentcommission that would guide developmentpolicy.

From the private sector’s viewpoint,government has a diminished capacity to comeup with overall strategic goals, policies or plansto deal with the future growth of the economy, forthe educational system to meet the humanresource needs of the private sector , or for thegovernment to provide a developm ent vision.

3.7.2 Human Resources, Leadership andManagement

This perceived lack of vision is accompaniedby the impression that government departmentsand employees often lack a mission. W ithout amission, performance and the delivery ofservices suffer.

The lack of vision , communication,cooperation and coordination may have its rootsin fa’asamoa. In traditional Samoan society, thematai dispenses leadership decisions and theuntitled are expected to abide by those decisions.This equates to ‘top-down planning. ’ Ingovernment, top management often relies uponthe input of expertise and general public input toguide policy decisions. This is ‘bottom-upplanning.’ If neither top-down nor bottom-upplanning are effective, then the government facesmanagement problems.


I - 3 - 22

In the case of the American SamoaGovernment, there is evidence to suggest thatcommunication is an issue from top to bottomand from bottom up and that an evaluation of thecircums tances is necessary to obtain full workingefficiency and performance from departments.

There also appears to be a problem withwork ethics, attitudes and morale which result inlow productivity from the government’semployees. Several factors contribute to thissituation:

• governm ent’s wage scale is low comparedto the U.S.;

• due to a small pool of qualified people,appointees often receive jobs on the basis oftheir political and social standing, instead oftheir qualifications and abilities to handle thetask; and

• poor working environments lead todisappointed and disgruntled employees,inefficient productivity and poor jobperformance; and finally

• some of the top government manager's areperceived by career service employees ashaving inadequate knowledge, education,skills, or experience when they entergovernment service (e.g . when new directorsare appointed and approved).

The political appointment of top managerswith insufficient skills is not unique to AmericanSamoa. In many other organizations, topmanagement officials are provided orientationand training in management principles (e.g.management by objective or performancemanagement), office technology (e.g. projecttracking or planning software), and technical

skills by personnel management experts and/ortechnical experts.

Currently, no systematic orientation ortraining program is provided to top managementpersonnel who are not career service employees.


I - 3 - 23

1. Departm ent of Commerce, Amer ican Sam oa Government, Statistical Yearbook 1966, Pago Pago,American Samoa, p. 10, 1966.

2. United States Bureau of the Census, 2000 Census of Population and Housing, American Samoa,Press Release, Washington, D.C., July 2001.

3. Departm ent of Commerce, Amer ican Sam oa Government, 2000 Census Demographic Profile of American Samoa, Pago Pago, 2002.

4. Department of Commerce, American Samoa Government, Report of the 1995 Population, Housing and Expenditure Survey, Pago Pago, American Samoa, p.13, January 1998.

5. Department of Commerce, American Samoa Government, Report of the 1995 Population, Housing and Expenditure Survey, Pago Pago, American Samoa, p.17, January 1998.

6. Department of Commerce, American Samoa Government, Report of the 1995 Population, Housing and Expenditure Survey, Pago Pago, American Samoa, p. 53, January 1998.

7. Amer ican Sam oa Government, Governor’s Task Force on Population Growth, Impacts of RapidPopulation Growth in American Samoa: A Call to Action , Pago Pago, American Samoa,p.9, May 2000.

8. Ibid.

9. Ibid., p.13.


11. Departm ent of Commerce, Amer ican Sam oa Government, Comprehensive EconomicDevelopment

Strategy, Pago Pago, American Samoa, p. 30 & page 10 , February 2000.

12. Amer ican Sam oa Government, Governor’s Task Force on Population Growth, Impacts of RapidPopulation Growth in American Samoa: A Call to Action , Pago Pago, American Samoa,p. 4, May 2000.

13. Amer ican Sam oa Environmental Protec tion Agency, American Samoa Government, 2000 State of the Enviroment, Pago Pago, American Samoa, 2000.

14. Amer ican Sam oa Government, Territory of American Samoa, Capital Improvements Plan 2000 - 2006, Pago Pago, American Samoa, p.2, December 2000.

15. Ibid., p. 6 - 7.

16. Ibid., p. 3.

17. Ibid., p. 10 -11.

Endnotes


I - 3 - 24

18. Ibid.

19. Ibid., p. 39 - 40.

20. Ibid. p. 13 - 16.

21. Ibid., p. 42.

22. Ibid., p. 41.

23. Ibid., p. 16 - 20.

24. Ibid., p. 43.

25. Ibid., p. 20 & 44.

26. Ibid.

27. Ibid., p. 24.

28. Ibid., p. 3.

29. Department of Public W orks, Civil Highways Division, (personal communication)

30. Amer ican Sam oa Government, Territory of American Samoa, Capital Improvements Plan 2000 - 2006, Pago Pago, American Samoa, p.26, December 2000.

31. Ibid., p. 45.

32. Ibid., p. 27 - 28 & 45.

33. Ibid. p. 44.

34. Departm ent of Health , American Samoa Government, HEALTH - 2000 Plus, Meeting the Challenges of the 21st Century , Pago Pago, American Samoa, two volumes. October 1999.

35. Departm ent of Human and Social Services , American Samoa Government, State of the Territory-Social Services , for Territorial General Plan, 2001, and Youth Risk Behavior Survey of 2000.

36. Ibid.



39. Ibid., p. 83.

40. Ibid., p. 201

41. Ibid., p. 205.


I - 3 - 25

I - 4 - 1

Chapter FourForecast for Principals Areas of Concern

2002 - 2005

4.1 Introduction

This chapter will provide forecasts for thefuture on the basis of what is known or likely tooccur, and what may occur if actions are nottaken to resolve the issues outlined in ChapterThree, Principal Territorial Concerns and Issues.

In the past, several key fac tors have played arole in bringing the Territory to its present state.They are: popula tion growth ; the fundingavailable for development and provision of basicservices; the performance of the canneries andgovernment in the economy; and the attitudes ofthe population about managing the Terri tory’sresources. These factors wi ll also play a key rolein the future.

This chapter is c omprised of two parts. Thefirst section provides forec asts where sufficientinformation is available to identify probableoutcomes. This section includes forecasts forpopulation growth, available funding for services,and the economy. The second section includesforecas ts of probable impacts on ‘areas ofconcern’ where attitudes will make a differencefor resource management in the future.

4.2 Population and Available Funding forPrograms

4.2.1 Population Growth

The population is forecast to increase atabout the same rate as it did between 1990 and2000, that is, at two percent per year for the timeof this plan. This wil l yield a Territorialpopulation close to 65,000 people by the end of2005.

This population forecast draws upon theassumptions, data and forecasts compiled by theDepartment of Commerce, Statistics Division, theGovernor’s Tasks Force on Population Growth,and upon the work of Pedersen Planning

Associates (Pedersen), the architect of the ASPAUtilities Master Plan of 1995. Additionalcalculations were made upon receipt of theCensus 2000 population count and comparedagainst Pedersen’s forecasts for populationgrowth and settlement concentrations found inthe Tua lauta County Land Use Plan .

Population projections for this TerritorialGeneral Plan are short-term projections, incomparison to the ASPA Utility Master Plan andthe Tualauta County Land Use Plan which havefifteen-year horizons. The Governor’s TaskForce on Population has developed populationgrowth scenarios for a forty- year horizon endingin 2040.

This plan draws upon certain assumptionsand inform ation:

• the average family household size willdecrease but not noticeably over the next fiveyears (The Department of Commerce andPedersen estimates include a decrease from7.0 people per household in 1990 to 5.6 in2015);

• Pedersen’s evaluation of developable landtrends, the availability of utility systems,economic activities and other relevant factorsfor seventy-two villages in the Territorypredict a decreased population growth rate(village land use assumptions includeforecas ts of the anticipated number of futurefacilities associated with residential,commercial and visitor accommodations) ;

• Pedersen’s predicted rate of growth andpredicted areas of g rowth in T ualautaCounty between 1990 and 1999;

Based upon the Census 2000 populationcount of 57,291 people, Pedersen’s estimateswould parallel, bu t not define, what may havehappened between 1990 to 2000.

Part I: Chapter FourForecast for Principal Areas of Concern

I - 4 - 2

The population of the Territory is notincreasing as rapidly as surmised or predicted bythe Department of Comm erce, Statistics Division.The recent Census 2000 has delivered a countsomewhat below a comm only acceptedprediction of 63,000 people in 2000. Thisdifference between the actual count and thepredicted count signify that the assumptions forgrowth have not reliably predicted the futurepopulation, the Census has under-counted thepopulation by as much as ten percent, or both theforecast assumptions and the count are in error.

The Census 2000 preliminary count alsoshows that some areas of the Territory have lostpopulation, or are growing only modestly. Censusinformation was made available in a one pagepress release on July 2, 2001. It compares thepopulation of 1990 to 2000 by county.

Figure 3.1 shows that American Samoa grewby twenty-two and a half percent (22.5%), whilethe Manu'a islands decreased by twenty andthree-tenths percent (20.3%).

The Eastern District of Tutuila (whichincludes the village of Nuuuli and all land east ofNuu’uli to the eastern tip of Tutuila) grew by tenand six-tenths percent (10.6%) between 1990and 2000. Only two counties, Ituau andMaoputasi, had double d igit growth. ItuauCounty, which includes m ost of Nu'uuli villageand Fagasa village, grew by almost twentypercent (20%). Maoputasi County (the PagoPago Bay area) grew by eleven percent (11%).

Tualauta County, which has a populationthree times greater than the three other WesternDistrict counties combined, grew by sixty-sixpercent (66%) between 1990 and 2000.

These Census results have substantiatedthe rapid population growth in the Tafuna area.W hile Tafuna has grown at an annual averagerate of five and two-tenths percent (5.4%), theremainder of the Territory has grown at a muchlower rate, i.e., about one percent (1%).

This m odest, or even low growth rate, lendsitself to the assumption that within the next fiveyears, most planning for infrastructure should befocused on the Tafuna - Tualauta County area.

AreaDescription

Population

1990 2000

Percentof

Increase

AnnualGrowth

Rate

Percent ofTotal

Year 2000

American Samoa 46,773 57,291 22.5% 2.1% 100.0%

Eastern District 21,175 23,441 10.6% 1.0% 40.9%

Western District 23,868 32,435 35.9% 3.7% 56.7%

Manu’a Islands 1,730 1,378 - 20.3% - 2.2% 2.4%

Tualauta County 13,237 22,025 66.4% 5.2% 38.4%

Ituau County 3,602 4,312 19.7% 1.7% 7.5%

MaoputasiCounty

10,540 11,696 11.0% .95% 20.4%

Figure 4.1 Analysis of Census 2000 Population Count


I - 4 - 3

For planning purposes , this plan will proceedunder the fol lowing assum ptions, that:

• for the next five years the Tafuna area willcontinue to absorb most of the newresidential growth;

• the Tafuna - Tualauta County area willincrease in population by the year 2006 byroughly twenty percent, or at an estimatedrate of four percent per year;

• the populations of the small villages to the fareast and west o f the island center will notincrease significantly and maintain a onepercent growth rate; and

• residents of the Manu’a Islands will continueto be pressured to leave for betteropportunities elsewhere.

4.2.2 Available Funding 4.2.2.1 Local Revenues

If money were no object, the AmericanSamoa Government, like everyone else, wouldhave few problems obtaining and providing theservices needed. But the stark reality is that theAmerican Samoa Government is short of cashand probably will be for some time to come. Thissituation will negatively impact the governm ent’sability to affect econom ic growth, main tain itsresources properly, provide adequateinfrastructure and deliver needed social services.

The American Samoa Government derivesits revenues from several sources:

• the taxation authority enabled by theAmerican Samoa Legislature, charges andmiscellaneous fees;

• the Department of Interior Annual OperationsGrant and Capital Improvements annualaward; and

• U.S. Federal departments and agencies forprograms support, e.g. block grants andentitlement program s.

Acknowledging that the American SamoaGovernment cannot continual ly run a defici t, thegovernment has invoked new practices. It has

increased taxes and promised to put a fiscalreform package to work.

The collection of taxes has remainedconstant for the past several years. TheAmerican Samoa Tax code mi rrors the U.S.Internal Revenue Code. As taxes on the lowerincome earners in the U.S. have decreased as aresult of the increase in the standard deduction,the impact has been to reduce Amer icanSamoa’s incom e tax collections. To counteract this trend American Samoa hasrecently increased its alternate minimum incometax from two percent to four percent, raised thegas tax and increased collection fees. Theseincreases wil l only amount to about $4.0 millionor about ten percent of the governm ent’soperating revenues.

The other major source of local revenues isthe excise tax on imported goods which has beenraised. The income from this source has risenvery slowly, in spite of the increases in tax rates.

Despite these new initiatives, the Initial FiscalReform Plan expects budget shortfalls inrevenue, and budget overruns. In the past theyhave resulted in the government running a deficitof between $7.0 and $12.0 million per year.W ith improvements in place, the In itial FiscalReform Plan estimated the FY2001 operatingloss to be about $7.0 to $8.0 million.

4.2.2.2 The Department of the Interior, Office of Insular Affairs

The Department of the Interior has beenproviding the Territory with an Annual OperationsGrant for many years. The level of the grant hasremained about the same value for the pastfifteen years and, inconstant dollars (devalued onthe basis of inflation), the value of the grant hasdeclined by fifty seven percent. In the past tenyears, the value of the grant has increased byless than two percent annually. Thus, In contrastto 1986, when the value of the grant equaledforty-five percent of the budget, the value is nowonly thirty percent of the General Fund revenues.

Given the demeanor of the U.S. Congressand the Office of Insular Affairs toward theAmerican Samoa G overnment (because of itslack of fiscal responsibility and reform) it shouldnot be expected that there will be an increase in


I - 4 - 4

the Annual Operations Grant of any significantnature.

Similarly, the Department of the Interior willbe awarding the American Samoa Governmenta total of $10.14 million annually to constructinfrastructure. This award is standing at thisvalue until the U.S. Congress changes thelegislation. As of now, there is no indication that thelegislation wil l be amended shortly.

A brief description of what the funds will beused for is provided in Section 6, Constructionand Capital Improvements of the Economyforecas t.

In summary, the government can expect tocontinue to receive about the same amount offunding from the Federal agencies, and perhapsa little more. However, prospects for increasingits own funding sources are lim ited.

4.2.2.3 Other Federal Programs

Income from Federal programs do not lowerthe government’s budget and they cannot beused for purposes other than what they havebeen specifically mandated for in the U.S.legislation.

Federal programs come and go at the will ofthe U.S. Congress. Abrupt changes in Federalprograms profoundly af fect the Territo ry’sdirection. American Samoa’s agencies take whatthey can get at the time when it is available.American Samoa Government agencies have nosay into what the U .S. Congress will allocate tothe Territory, although American Sam oa’sDelegate to the U.S. House of Representativesand its lobbyists can attempt to influencecongressional opinion. Thus the Territory cannotsecurely plan for the future using Federalfunding. It can only observe what the Congresshas obligated in its budget for the coming yearsand adjust accordingly.

4.2.3 Social Dev elopment and Social Services

4.2.3.1 Educational Services

Educational faciliti es are currently over-extended. There are too many students for

existing school faciliti es and there will be manymore students entering the school system in thenext several years. In 2001, the Department ofEducation predicted a need for ninety moreclassrooms to accomm odate elementary schoolstudents. On the basis that the educationalsystem will receive about $15.8 million through2006 for school building construction andmiscellaneous improvements, only one-third ofthe classrooms will be built. This will result ineven higher student-teacher ratios.

The present student-teacher ratio is alreadyunfavorably high and the quality of educationpresently compares unfavorably with U.S.standards. Although more students perclassroom do not necessarily signal worseningstudent achievement, the lack of funding to getmore qualified teachers into the system andpurchase needed instructional equipment willcertainly add to the prob lems of providingstudents with an adequate education. In thisregard, the goal of raising the level of studentachievement could be severely hampered.

The American Samoa Community Collegewill be hindered with lower than needed revenuesand, therefore, in its abi lity to adapt itscurriculum to the future needs of the economyand community. While the college does expectmore students to enroll and to be able to provideadequate services, it won’t have funds to expandits curriculum and add qualified ins tructors forspecia lty areas of education. This situation willhamstring the economic development program ofthe government, unless a solution is found tooffer instruction to meet the future economy’sneeds. 4.2.3.2 Health Care System

Since the LBJ Tropical Medical Center wassplit off from the Department of Health and madea hospital authority, the hospital has beenreceiving the brunt of capital improvementfunding. This has left the Departm ent of Healthclinics in disrepair, while the hospital has beenmaking incremental improvements.

From 2002 through 2005, the hospital willcontinue to receive the brunt of funding, unlessthe Department of Health is able to secureadditional funding from other sources. This m aybe a possibility if the Department of Health isable to complete a facility building plan and


I - 4 - 5

identify applicable funding. If done, theDepartment of Health could see several newhealth clinics by the end of 2005, which would beable to serve communities throughout theTerri tory.

The hospital board has developed a strategicplan for the future and has identified a broadspectrum of issues that need to be resolved.This is a good indication of the hospital board ’sintent to resolve its financial difficulties andimprove conditions and facilities at the hospital.

In the case of both the Department o f Healthand the hospital authority, funding for facilities isonly a small part of the problem. They are bothseeking a solution to financing health care that isequitable to the public but provides the neededservices. The residents of American Samoa havebecome accustomed to paying extremely lowusage fees for health care coverage and it maybe difficult to change attitudes about how muchone should pay and what one should expect forservices. W hile this may be chal lenging, afinancing schedule is being prepared to meetforthcom ing needs .

As a caveat, it should be expected thatbecause health care costs have risendemonstrably in the last decade, both thehospital and the Department of Health will not beable to provide the kind of broad services, andhigh-tech services, that can be found in citiesacross the United States.

On the basis of this knowledge, theDepartment of Health w ill be looking at ways torestructure the health care system so that itplaces greater emphasis on well-being andpreventa tive care rather than upon spending foroff-island and specialty care.

4.2.3.3 Social Services

Social services delivered by the Departmentof Human and Social Services and the TerritorialAdministration on Aging (TAOA) are lesssusceptible to funding inadequacies of the localgovernment, because they are primarilydependent upon Federal funding to support theiroperations.

For the future the Department of Human and

Social Services m ust deal w ith its own capacityto deliver services adequately. DHSS is planningto develop a five-year plan as a means to remedysome of the weaknesses in the programsoffered.

As population increases, as the AmericanSamoa culture and traditions com e into questionor conflict with Western values, as greater stressresults from living in a cash economy, l ife’spressures result in often undesirab le effects .

In the forthcoming years, DHSS expects thatthere will be more:

• youth depression and suicide attem ptsnecess i tating better monitoring andemergency counseling and care ;

• child abuse and abandonment with greaterneed for foster families to care for abusedchildren;

• spouse abuse and requirements foremergency shelter programs;

• alcohol and substance abuse requiringbetter counseling capabilities; and

• situations where youth will be involved inhigh-risk activities and crimes.

Most people are taken back by reports fromTAOA that some elderly citizens are sufferingfrom abuse and abandonment. Yet it has beendocumented and there will be an effort by TAOAto provide a shelter for the elderly that requireemergency assis tance.

4.2.3.4 Youth and Women’s Affairs

The Department of Youth and W omen’sAffairs is a relatively new agency which intends toprogressively be able to develop its programsduring this plan period. The department willfocus upon domestic violence and women asvictims. The provision of youth services,especially programs focused upon youthrecreation, will be the approach to give youth apurpose in life

4.2.3.5. Arts, Culture and Recreation


I - 4 - 6

The American Samoa Council on Arts andthe Humanities will continue to maintain aindigenous arts program and sponsor eventsthroughout the plan period.

The Council looks intends to inc rease itsoutreach program to include communiti es in itsprograms. It will continue teaching of traditionalSamoan arts and attempt to expand the practiceof making traditional materials. It hopes to bringmore overseas artists as instructors for the Arts-in-Education program and to sponsor moreSamoa performances overseas to raise exposureof others to Am erican Sam oa’s arts and culture.

The total renovation of the Jean P. HaydonMuseum in 2002 as a venue for the arts shouldassist in these efforts.

During this plan period, recreationalprograms for children, youth and adults willendure. For the next several years theDepartment of Parks and Recreation will receivenearly $2.0 million in capital im provement fundsand community development funds to refurbishexisting park facilities and to create morerecreational facilities. The funds will be usedprimarily to improve the Tafuna recreationalgrounds, children’s playgrounds and restroomsthroughout the parks. In addition, the UtuleiBeach Park and Pago Pago Park will berevitalized with new facilities for the public’s usein the Pago Pago Bay area.

4.3 The Economy

4.3.1 Canneries

Various predictions and assumptions havefloated around for years about the permanence ofthe canneries. The problem with forecastingwhat may eventually occur with the canneries isthat decisions about the canneries’ future rest ona number of factors having to do with theinternational economy, the fishing industry andthe parent companies. There is no one simpleanswer for the future.

Some things or events happening on theinternational scene and in the fishing andprocessing industries can either work for thecannery business in Amer ican Samoa or against

it. However, it can be assured that the canneriesare a ‘for-profit’ business and when they perceivethey will be operating at a loss for an extendedperiod of time, they will make some changes.

At this point in time, there are reasons thecanneries would stay and reasons why theywould leave.

• the canneries must have Internal RevenueSection 936 tax credit in order to remaincompetitive and the canneries will not investfurther in operations until they are secure thatSection 936 is renewed;

• the canneries will insis t upon keeping theminimum wage low to remain competitivewith low-wage countries;

• although Headnote 3a is about to expire, theU.S. has lowered its tariffs on foreign goodsto the point that Headnote 3a is no longer aneffective incentive for the canneries toremain;

• the development of a fish cleaning plant andfreezer in Asau, Savai’i of the IndependentState of Samoa by StarKist, may result in thereduction of workers in American Samoa, butit may also increase the throughput ofprocessed fish which can be shipped toAmerican Samoa, thereby strengthening theprofitabil ity of the canning plant.

• the Andean T rade Preference Act, which willallow tuna into the U.S. duty free fromseveral South American countries, willbenefit StarKist which has a plant in Equadorand be competition for the American Samoaplant. At the same time, StarKist’s Equadorfish cleaning operations could result in extrasupplies to their cannery in AmericanSamoa;

• the recent dec ision to restric t fishing withinfifty miles of the Terr itory’s shores to vesselsalready registered before October 2001 hasresulted in the appearance of up to twenty-five Hawaii and San Diego based fi shingboats that intend to supply these canneries;

• the number of fishing boats in theIndependent State of Samoa has risen toabout five hundred and they are fishing, in


I - 4 - 7

part to supply the canneries with albacore.This is in addition to the estimate fifty alias ofAmerican Samoa; and

• at the same time that the fish caught in localwaters is increasing, there is the observationthat the amount of fish caught is slowlydeclining throughout the Pacific. This leadsmarine biologist to be concerned about thecontinuing ability of fishermen to supply fishto the canneries at high tonnage rates.

The logical conclusion, barring anycatastrophic events, would be to say that thecanneries will be around for a while, that is, atleast for the next few years. There is no clearevidence or overriding reasons for the canneriesto leave shortly. But as the fishing business isconstantly going through changes, as fishingboat owners place their boats in receivership andas fish stocks become reserved or protectedaround the world, the fishing business maybecome less lucrative for H.J. Heinz and ThaiUnion Ltd.

It should be expected that the fishingbusiness will also go through peaks and troughs,as most of the developed economies do fromtime to time. But only when it is clear to theindustry that too many things are going againstthem will they decide to divest.

4.3.2 Private Sector

W hile this plan will recommend strategies toinitiate planning and coordination to support thediversification and development of the privatesector, the private sector will not expand by leapsand bounds during this plan period.

There do not appear to be options on thehorizon that will give the local private sectoradvantages over any other community in theworld, the Pacific Region over the IndependentState of Samoa.

Given that the major income earners in theprivate sector are the retail and wholesale tradesectors, and they primarily sell foodstuffs andclothing, their marginal savings are not enough tospur new development sectors.

The government has looked outside the

Territory for investors in the recent past, but thefailure of the BCTC and Daewoosa clothingmanufacturers, and the problems assoc iated withtheir operations, have reduced the governmentleadership’s interest in obtaining alien firms andinvestments.

These factors hinder the development of theprivate sector, but do not stop entrepreneurs whoare interested in moving ahead with marketabledevelopment schem es. The problem will be toidentify what they are and how to finance them.

In addition, in order for the pri vate sector toflourish, the private sector will need specific skillsand a competent labor force. This will take timeto achieve through training and education.

Therefore, it will take time for theopportunities to come to fruition. Under theseconditions, this plan does not forecast a quickchange in the structure of the private sector.

4.3.3 Tourism

As stated earlier in this plan, there is apossib ility for tourism to stage a comeback. Thiscomeback would most likely be on the heels ofthe tremendous success the visitor industry ishaving on Upolu and Savai’i of the IndependentState of Samoa. However, Amer ican Samoa’stourism development will also be handicapped bythe reputation and success of Upolu and Savai ’i’stourism attracting capabil ities. And tourism canbe significantly damaged by catastrophic worldevents as occurred on September 11, 2001.

An Ecotourism Plan is on the horizon for theDepartment of Comm erce. W ork on the plan isscheduled to start in Fall 2002. This plan couldbe developed in unison with a tourismdevelopment initiative already in progress in theIndependent State of Samoa. Both of theseplans could m arket the Samoas as a unifieddestination. These plans could conceivably pullAmerican Samoa out of the doldrums andremove the m alaise s o endemic at this point.

There are also people interested in seeingadventure tourism, cu l ture tour ism andeducational tourism get a start, w ith the NationalPark as the focus in the beginning.


I - 4 - 8

In order to follow through with anydevelopment, the government will have to beprepared to deal with its delapidated tourisminfrastructure. This is expected to be difficultbecause of the financial condition of thegovernment. Investment would require theshuffling of capital improvement funds from othersources, but this tactic would not sit well with theDepartment of the Interior. Thus the governmentwill have to search for other sources ofinvestment capable and willing to put somethinginto American Samoa tourism.

Secondly, the government will need to investin overall planning and should expect tocoordinate planning activities with the privatebusiness sector. This will require resources thatare presently not available and imaginati veprospecting for funding resources.

The real chances of a tourism comeback ofany great magnitude within this plan period arelow, due to the lack of interest in the Fono forsupportive funding and of qualified personne l tosee the program through in the government.

Finally, the conversion value of the U.S.Dollar and the costs of services in AmericanSamoa, compared to other countries like NewZealand and Australia, will discourage visitorsfrom coming to Amer ican Sam oa.

4.3.4 Agriculture

The poss ibil ities for the development ofcommercial agriculture in American Samoa aremarginal. Presently, there is not enoughemphasis on providing the Department ofAgriculture with the ‘right stuff.’ Secondly, theremay not be enough land available for agricultureto make a dent in the economy. If agriculturewere to achieve a higher order of importance,emphasis would have to be placed on a nicheproduct that requires little land, earns a lot ofmoney and has a market in American Sam oaand abroad.

In other words the Department of Agricultureand the ASCC-ACNR (Land Grant) will need tolook for alternative com merc ial products that canbe grown in areas where residential andcommercial development have not taken over. These kinds of activities could potential conflict

with strategies to maintain the natural rainforestand soil conservation.

Secondly, planners will need to bringtogether the private sector tourism interests andthe retail trade with the department to developproduce that could be sold locally and used in thetourism trade. This is a possibili ty, given thebacking of the present administration andadditional funding from the Fono to support thedevelopment activities. Further niche agriculturaldevelopment is a possibili ty given posi tiveattitudes in this case.

4.3.5 Fisheries

The reefs are gradually being restored, butthe marine life around the islands could bereduced significantly if the demand for reef fishand marine life increases with the increase inpopulation.

Should this situation become critical, it islikely that the Department of Marine and W ildlifeResources will have to designate most areassusceptible to over-fishing as protected, ‘no-take’areas. This has already being considered insome locations. This could happen to mostareas and it would mean that fishingcommercially for reef fish, or artisan fishing,would no longer by sustainable or permitted.

Fishermen that have traditionally fished thecoastal shoreline have already begun to move offshore to fish for bottomfish, tuna and otherpelagic fish to se ll on- is land, off-is land and tothe canneries. In the last several years, thesmall, local, alia fleet appears to have doubledfor this purpose. Although there hasn’t beensatisfactory infrastructure to support a largerfleet, e.g. moor ings and reefers, it i s still quitepossible that the alia fleet could double within theplan period, or by the end of 2005. This forecastis based upon the five-fold grow th of thecommercial fishing fleet at Apia of theIndependent State of Samoa.

4.3.6 Construction and CapitalImprovements

The Department of the Interior will award the


I - 4 - 9

American Samoa Government $10.14 million peryear fo r the next several years, based upon U.S.Congress budget allocations. This num ber couldrise or fall depending upon the ability of theAmerican Samoa Government to carry throughwith its fiscal reform package and implement itscurrent Capital Improvements Programeff ic ientl y.

As reported in Chapter Three, PrincipalConcerns and Issues, the Territory will onlyreceive fifteen percent of its needed funding, or$50.8 million over the five-year period from CIP.The vast major ity of the funding will be used forthe hospital (18%), the educational system(30%), the utilities of water and sewerage (30%),and the main sea port (9%). The remainder ofthe funding will be received for public safety, theVillage Road Program and recreationalinfrastructure.

The Territory will most likely receive fundingfrom the Federal Highway Administration for thenext several years with an annual average valueof $3.5 million. The U.S. EnvironmentalProtec tion Agency will make an annual averageamount of $800,000 available for theimprovement of water systems and thegovernment enterprise funds will realize severalhundred thousand dollars from fees and chargesthat will be used for infrastructure. This is theamount of foreseen funding.

Although upwards of $15.0 million will enterthe economy annually, a major proportion of thisincome will leave the Territory for the cost ofmaterials and the earnings of the companiesdoing the construction, which have been largeforeign construc tion firm s in the pas t.

4.4 Probable Impacts: Environment andResource Management

4.4.1 Planning and Human Settlement

There has been no comprehensive planningon a Territory-wide basis in the past. As a resultthe Territory has evidenced less than efficientand effective use of its funding and humanresources, unsystematic developm ent of itsinfrastruc ture and random human sett lement. Ifthe situation continues, unwanted social andenvironmental externalities will occur, as definedin Figure 4.2.

Random human settlement withoutadequate infrastructure and services;

Inefficient spatial patterns that waste limitedland resources;

Land utilization without regard to the fragility of the location;

Development without regard for ad jacent uses or impacts upon communities;

Random development of roads, lack of arational transportation circulation system and traff ic congestion or gr id lock;

Lack of open space and loss ofconservation areas, trees and wi ldlifehabitat;

Restricted use of land for publicrecreational purposes;

Over-crowding of residential areas, and ofthe built-environment beyond acceptablereasonable and established standards;

Population growth beyond the ability of thefresh water source to supply homes andbusinesses on a daily basis;

Concentrations of facilities beyond thecapability of the water, sewer and powersystems to satisfactorily provide servicesand fi re services or police to provide safety.

Figure 4.2 Possible Negative Externalities


I - 4 - 10

If planning is not initiated soon, and resourcemanagement and environmental laws andregulations are not effectively enforced, then itshould be expected (but not during this planperiod) that population growth and all thedemands required to sustain the population willstress or potentially overwhelm the carryingcapaci ty of the island ecosystems, especially onTutuila. Anyone or all of the res ults in the box tothe right could follow.

4.4.2. Management of Natural Resources and The Environment

Effective resource managem ent has been hindered in the past by attitudes of the public andenforcement agency personnel that exacerbate effective resource management. If these attitudescontinue to hold and enforcement of laws and regulations is not effective, the following impacts shouldbe expected. All of these outcomes can negatively impact the qual ity of li fe for Amer ican Samoa’sresidents.Figure 4.4 Forecast of Expected Outcomes without Mitigation or Attitude Change

Area of Concern Description of Environment Impact

Coral Reefs

W etlands

Floodplains

W atersheds

Forests

Degradation of the reefs from improper upstream land use and developmentactivities;Degradation of the reefs from mining of coastal areas and im proper fishingtechniques.

Depletion from filling of the wetlands for housing and comm ercialdevelopment;Degradation of wetland s by dumping, cutting of mangrove or removal ofhabitat.

Degradation and siltation of floodplains by improper construction anddevelopment;Modification of floodplains by filling of floodways, rerouting of streambeds.

Contamination of fresh water resources from improper development activitiesin watersheds, especially at Tafuna and Malaeimi Valley;Contamination of fresh water resources from poorly maintained and placedseptic s ystems; Contamination of fresh water resources from toxic materials, pesticides,chemicals and fertilizers.

Depletion of up-land forests for agricultural purposes;Elimination of forests in low-land areas for residential expansion;Soil erosion from removal of forests on steep slopes;Introduction of invasive species.

Shortages of fresh water resources;Removal of forests reserves;Elimination of wetlands;Elimination of w ildlli fe habitat;Depletion of marine resources;Elimination of arable land;Depletion of fertile soils;Contamination of lands.

Figure 4.3 Possible Terminal Impacts


I - 4 - 11

Area of Concern(continued

Description of Environmental Impact

W ildlife

Marine Resources

Solid W asteManagement

Elimination of w ildlife habitat by removal for development;Degradation of wildlife habitat by cutting and burning;Harvesting of birds for cultural purposes and fruit bats;

Over-harvesting of reef fish and marine life for food;Depletion of mar ine life from degradation to wetland habi tat;Depletion of fish stock from destruc tion of reef habitat;Depletion of fish stock from unwise fishing techniques

Contamination of surface water and pollution of coastal waters from dum pingof solid wastes in streams;Contamination of surface water and pollution of coastal waters from piggeriesand improperly maintained septic systems;Debasement of land and scenery by improper disposal of wastes;Importation of short-lived and non-recyclable goods that fill landfill.

Appendix A

A - 1 Existing American Samoa Government Agency Plans

ASCC Comm unity and Natural Resources Plan of Work 2000 - 2004ASCC Urban and Comm unity Forestry Program, Five-Year Plan 1996 - 2000American Samoa Medical Center Authority Strategic Plan 2000 - 2005American Samoa Historic Preservation Plan- Five-Year State Plan 1997 - 2001American Samoa Power Authority Water Utilities Plan 199512002 - 2005 Generation Construction W ork Plan (ASPA)American Samoa Workforce Development Plan 2000 - 2004Territory of American Samoa’s Child and Family Services Plan 2000 - 2004Child Care and Development Fund Plan for American Sam oa 2002 - 2003Impacts of Rapid Population Growth in American Samoa: A Call to Action 2000Assessment and Strategy for the Am erican Samoa Coastal Management ProgramAmerican Samoa’s Comprehensive Economic Development Strategy 2000Tualaluta County Land Use Plan 2000American Samoa CSBG Program Com munity Action Plan 2000 - 2003Community Development and Planning Program Consol idated Plan 2002 - 2004Territory of American Samoa Capi tal Improvements Program Plan 2002 - 2006Health W orkforce - 2000 Plus, Preparing for the 21st Century 1999Initial Fiscal Reform Plan, 2001Pago Pago International Airport Master Plan 1995Department Port Administration Port Master Plan 1999Territorial Com prehensive Outdoor Recreation Plan Five-Year Plan 1997 - 2002The State Plan for the Library Services and Technology Act 1998 - 2002Hazard Mitigation Plan for the Territory of American Samoa 2001Rebuild American Sam oa Partnership Action Plan 2000 - 2005Marine Education and Wildlife Outreach Program Five-Year Plan 1998 - 2002Marine Resources Research and Management Five-Year Plan 2001 - 2005

Appendix A - 2 Proposed New and Required Agency and Comprehensive Plans

ASCC Comm unity and Natural Resources Plan of Work 2000 - 2004ASCC Urban and Comm unity Forestry Program, Five-Year Plan 1996 - 2000American Samoa Medical Center Authority Strategic Plan 2000 - 2005American Samoa Historic Preservation Plan- Five-Year State Plan 1997 - 2001American Samoa Power Authority Water Utilities Plan 199512002 - 2005 Generation Construction W ork Plan (ASPA)American Samoa Workforce Development Plan 2000 - 2004Territory of American Samoa’s Child and Family Services Plan 2000 - 2004Child Care and Development Fund Plan for American Sam oa 2002 - 2003Impacts of Rapid Population Growth in American Samoa: A Call to Action 2000Assessment and Strategy for the Am erican Samoa Coastal Management ProgramAmerican Samoa’s Comprehensive Economic Development Strategy 2000Tualaluta County Land Use Plan 2000American Samoa CSBG Program Com munity Action Plan 2000 - 2003Community Development and Planning Program Consol idated Plan 2002 - 2004Territory of American Samoa Capi tal Improvements Program Plan 2002 - 2006Health W orkforce - 2000 Plus, Preparing for the 21st Century 1999Initial Fiscal Reform Plan, 2001Pago Pago International Airport Master Plan 1995Department Port Administration Port Master Plan 1999Territorial Com prehensive Outdoor Recreation Plan Five-Year Plan 1997 - 2002The State Plan for the Library Services and Technology Act 1998 - 2002Hazard Mitigation Plan for the Territory of American Samoa 2001Rebuild American Sam oa Partnership Action Plan 2000 - 2005Marine Education and Wildlife Outreach Program Five-Year Plan 1998 - 2002Marine Resources Research and Management Five-Year Plan 2001 - 2005

Part II

Table of Contents

Chapter One: Integrated Policies for the Principal Development Issues

1.1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 11.1.1 Focus and Purpose of this Chapter . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 11.1.2 Summary of Principal Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 1

1.1.2.1 Overall Policy for Sustainable Territorial Development . . . . . . . . . . . . . . . . . . II - 1 - 11.1.2.2 Principal Policies of Common Concern . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 2

1.2 A Brief Review of the Principal Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 21.2.1 Principal Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 21.2.2 Review of Principal Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 2

1.3 Policies and Strategies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 51.3.1 Establishing Territorial Planning and a Vis ion . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 5

1.3.1.1 Updating Statutes and Expanding the Role of the Territorial Planning Commission (TPC) . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 5

1.3.1.2 Restructuring the Territorial Planning Comm ission and Existing Boards . . . . II - 1 - 51.3.1.3 Establishing Planning Councils and Advisory Panels . . . . . . . . . . . . . . . . . . . II - 1 - 51.3.1.4 Implementing Overall Strategic and Integrated Planning . . . . . . . . . . . . . . . . II - 1 - 5

1.3.1.4.1 Mobilization for Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 51.3.1.4.2 Creating Public Participation in Planning . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 81.3.1.4.3 Enabling Planning to Proceed . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 81.3.1.4.4 Formulating Plans in a Performance Management Mode with

Strategic Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 81.3.1.4.5 Including the Office of Federal Programs in Overall Planning . . . . . . . II - 1 - 81.3.1.4.6 Recognizing Existing Plans and Territorial Oversight . . . . . . . . . . . . . II - 1 - 91.3.1.4.7 Formulating and Implementing New T erri tor ial Comprehensive

and Functional Plans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 91.3.2 Focus ing upon Education and Training for Results . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 9

1.3.2.1 Improving Government Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 91.3.2.1.1 Educating the Workforce in Perform ance Management and

Program Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 91.3.2.1.2 Strengthening Institutions and Building Capacity in Government . . . II - 1 - 101.3.2.1.3 Building Human Capital with W orkforce Skills and Training . . . . . . . II - 1 - 11

1.3.2.2 Enhancing Private Sector Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 121.3.2.2.1 Invigorating the Workforce Development Commission for

Private Sector Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 121.3.2.2.2 Assessing the Educational Requirem ents of the Private Sector . . . . II - 1 - 131.3.2.2.3 Engaging the American Samoa Com munity College to Provide

Supplementary Education for Business Development . . . . . . . . . . . . II - 1 - 131.3.2.3 Creating Environmental Awareness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 14

1.3.2.3.1 Providing Public Awareness Education to Affect an Attitude Change II - 1 - 141.3.2.3.2 Bettering Enforcement Agency Environmental Impact Awareness . . II - 1 - 15

1.3.2.3.3 Supporting Environmental Education as a Component of the School Curriculum . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 15

1.3.3 Improving Environmental and Resource Management . . . . . . . . . . . . . . . . . . . . II - 1 - 161.3.3.1 Streamlining the Project Notification and Review System . . . . . . . . . . . . .II - 1 - 161.3.3.2 Strengthening Monitoring and Enforcement of Laws and Regulations . . . . . II - 1 - 171.3.3.3 Improving Inter-Agency Cooperation, Coordination, Planning

and Resource Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 171.3.4 Adjusting for Population Growth and Immigration . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 18

1.3.4.1 Planning fo r Population Growth . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 181.3.4.2 Managing Immigration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 1 - 19

Chapter Two: Commerce and Economic Development

2.1 Focus and Purpose of this Chapter . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 3

2.2 Summary of Principal Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 32.2.1 Overall Policy of the Commerce and Economic Development Component of the Territorial General Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 32.2.2 Principal Policies for Econom ic Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 4

2.3 Review of Economic Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 52.3.1 Economic Vision and Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 52.3.2 Planning and Federal Participation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 52.3.3 Dependence on the Base Economy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 5

2.3.3.1 Canneries and Sustained Presence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 62.3.3.2 American Samoa Government Financial Management . . . . . . . . . . . . . . . . . II - 2 - 6

2.3.4 Lack of Private Sector Diversification . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 62.3.5 Development Deficiencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 7

2.3.5.1 Macro- and Microeconomic Policy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 72.3.5.2 Investment Capacity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 72.3.5.3 Public and Private Partnerships . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 82.3.5.4 Marketing Systems, Promotion and Foreign Investment . . . . . . . . . . . . . . . . . II - 2 - 82.3.5.5 Regional Networks and Cooperation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 82.3.5.6 Workforce Deficienc ies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 82.3.5.7 Insufficient Infrastructure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 92.3.5.8 Land and Land Availabil ity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 10

2.3.6 Underdeveloped Local Sectors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 102.3.6.1 Agriculture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 102.3.6.2 Fisheries Limited by Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 112.3.6.3 The Visitor Industry and Tourism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 11

2.3.7 Manu’a Islands Economic Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 12

2.4 Policies and Strategies for Comm ercial and Economic Development . . . . . . . . . . . . II - 2 - 122.4.1 Vision via Economic Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 13

2.4.1.1 Participation in Economic Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 132.4.1.2 Comprehensive Economic Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 14

2.4.2 Federal Cooperation and Coordination Toward Econom ic Achievement . . . . . . . II - 2 - 152.4.2.1 Policy Coordination with Federal Agencies . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 152.4.2.2 Cooperation with Federal Agencies for Development . . . . . . . . . . . . . . . . . . II - 2 - 16

2.4.3 Developing a Cannery Presence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 172.4.4 Government Fiscal Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 182.4.5 Macroeconomic and Microeconomic Policy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 19

2.4.5.1 Macroeconomic Policy - Broad Economic Policy . . . . . . . . . . . . . . . . . . . . . II - 2 - 19

2.4.5.1.1 Economic Research and Analysis Capac ity . . . . . . . . . . . . . . . . . . . . . II - 2 - 192.4.5.1.2 Macroeconomic Policy Initiatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 20

2.4.5.2 Microeconomic Policy- Small Business Development . . . . . . . . . . . . . . . . . II - 2 - 212.4.6 Acqui ring Investment Capaci ty . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 232.4.7 Creating Public and Private Partnerships . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 242.4.8 Developing Marketing Systems and Promotion . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 252.4.9 Improving Regional Networks and Cooperation . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 262.4.10 Forming a Skilled Workforce . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 282.4.11 Furnishing Adequate Infrastructure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 292.4.12 Securing Developable Land . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 302.4.13 Revitalizing Agriculture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 312.4.14 Upgrading Fisheries Development Capacity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 322.4.15 Re-Inventing Tourism and the Visitor Industry . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 332.4.16 Air and Sea Transport . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 35

2.4.16.1 Seaports and Shipping . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 352.4.16.2 Airports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 36

2.4.17 Utilities and Energy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 372.4.17.1 America Samoa Power Authority . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 372.4.17.2 Telecommunications . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 382.4.17.3 Energy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 38

2.4.18 E-Commerce . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 382.4.18.1 Delta Consortium . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 38

Chapter Three: Environment and Resource Management


3.2 Summary of Principal Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 23.2.1 Overall Policy for the Environment and Resource Managem ent Component

of the Territorial General Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 23.2.2 Principal Policies for the Environment and Resource Management . . . . . . . . . . . . II - 3 - 3

3.3 Brief Review of Environmental Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 4

3.4 Policies and Strategies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 63.4.1 American Samoa Environmental Protection Agency . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 6

3.4.1.1 Territorial Environment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 63.4.1.2 Groundwater and Potable Water . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 73.4.1.3 Nears hore W ater Qual ity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 83.4.1.4 Solid Wastes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 93.4.1.5 Piggery Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 10

3.4.2 American Samoa Coastal Management Program . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 113.4.2.1 ASCMP Enforcement Authority . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 113.4.2.2 National Flood Insurance Program . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 123.4.2.3 Protecting Unique Areas and Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 133.4.2.4 Cumulaitive and Secondary Impacts from Development . . . . . . . . . . . . . . . . II - 3 - 14

3.4.2.5 Wetlands . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 163.4.2.6 Oceans Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 173.4.2.7 Coastal Hazard . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 18

3.4.3 Coral Reefs and Marine Protected Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 19

3.4.3.1 Fagatele Bay National Marine Sanctuary . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 193.4 .3.2 Am erican Samoa Coral Reef Ini tiati ve . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 20

3.4.3.2.1 Development Practices and Enforcement . . . . . . . . . . . . . . . . . . . . . II - 3 - 213.4.3.2.2 Public Awareness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 223.4.3.2.3 Over-harvesting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 23

3.4.4 Department of Marine and Wildlife Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 253.4.4.1 Coastal and Inshore Marine Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 253.4.4.2 Offshore Fisheries . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 263.4.4.3 Wildlife Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 27

3.4.5 American Samoa Community College, Community and Natural Resources Division . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 28

3.4.5. 1 Forestry Clearing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 283.4.5.2 Invasive Species . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 293.4.5.4 Pesticides and Chemicals Contamination . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 303.4.5.5 Traditional Knowledge and Practices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 31

3.4.6 Department of Commerce, Planning and Research . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 323.4.6.1 Research and Analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 323.4.6.2 Population and Immigration Studies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 333.4.6.3 Land Use Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 343.4.6.4 Tu funa Developm ent . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 363.4.6.5 Conservation of Land . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 383.4.6.6 Pago Pago Bay Area . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 383.4.6.7 Traffic Circulation and Congestion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 40

Chapter Four: Social Development and Social Services Delivery


4.2 Summary of Principal Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 14.2.1 Overall Policy of Social Development and the Delivery of Social Services . . . . . . . II - 4 - 14.2.2 Principal Social Development Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 2

4.3 Summary of Social Development Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 4

4.4 Strategies for Principal Social Development Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 64.4.1 American Samoa Historic Preservation Office . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 6

4.4.1.1 Coordination among Cultural Resource Agencies . . . . . . . . . . . . . . . . . . . . . II - 4 - 64.4.1.2 Cultural and Historic Conservation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 74.4.1.3 Cultural and Historic Protection and Preservation . . . . . . . . . . . . . . . . . . . . . II - 4 - 74.4.1.4 Heritage Tourism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 8

4.4 .2 Feleti Barstow Public Library (State Library) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 94.4.3 Department of Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 11

4.4.3.1 Educational Assessment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 114.4.3.2 Instructional Capacity: Kindergarten through Fifth Grade . . . . . . . . . . . . . . II - 4 - 124.4.3.3 Planning Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 134.4.3.4 Teacher Attraction and Retention . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 144.4.3.5 Overcrowding and Preparedness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 15

4.4.4 Departm ent of Health . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 164.4.4.1 Territorial Health Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 164.4.4.2 Health Financing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 174.4.4.3 Health Resource Allocation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 184.4.4.4 Preventive Health Care . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 194.4.4.5 Health Workforce Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 20

4.4.5 American Samoa Medical Center Authority . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 214.4.5.1 Continuing Health Care Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 214.4.5.2 Pharmaceuticals Procurement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 224.4.3.3 Medical Center Financial Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 234.4.5.4 Facilities Maintenance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 244.4.5.5 New Equipment and Maintenance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 25

4.4.6 Department of Human Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 264.4.7 Department of Human and Social Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 27

4.4.7.1 Community and Social Services Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 273.4.7.2 DHSS Workforce Development and Capacity Building . . . . . . . . . . . . . . . . . II - 4 - 28

4.4.8 Department of Parks and Recreation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 304.4.8.1 Program Management and Capacity Building . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 304.4.8.2 Parks and Recreation Planning Policy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 31

4.4.9 Office of Protection and Advocacy for the Disabled (OPAD) . . . . . . . . . . . . . . . . . II - 4 - 324.4.9.1 Special Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 324.4.9.2 Accessibi lity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 334.4.9.3 Access to Qualified Service Providers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 334.4.9.4 Employment Training for Individuals with Disabilities . . . . . . . . . . . . . . . . . . II - 4 - 34

4.4.10 Territorial Administration on Aging . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 354.4.10.1 Senior Citizen Center . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 374.4.10.2 Senior Citizens Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 36

4.4.11 Depar tment of Public Safe ty . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 374.4.11.1 Planning and Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 374.4.11.2 Juvenile Crime . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 38

Chapter Five: Capital Improvements and Infrastructure

5.1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 1

5.2 Summary of Capital Equipment, Improvements and Infrastructure Funding . . . . . . . . . . . II - 5 - 15.2.1 Department of the Interior, Office of Insular Affairs . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 15.2.2 Other Sources of Capital Improvement Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 15.2.3 Summary of Infrastructure Funds from all Sources 2002 - 2006 . . . . . . . . . . . . . . . II - 5 - 2

5.3 Capital Improvements Planning Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 2

5.4 Statement of Needs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 3

5.5 Capital Improvements by Category from U.S. Department of the Interior . . . . . . . . . . . . . II - 5 - 45.5.1 Health Care . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 4

5.5.1.1 American Samoa Hospital Authority . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 45.5.1.2 Depar tment of Health . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 4

5.5.2 Educational System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 45.5.2.1 Department of Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 45.5.2.2 American Samoa Community College . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 5

5.5.3 Departm ent of Public Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 55.5.4 Utilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 5

5.5.4.1 Water Supply . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 55.5.4.2 Sewerage System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 55.5.4.3 Solid W aste . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 6

5.5.5 Transportation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 65.5.5.1 Airpor ts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 65.5.5.2 Sea Ports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 65.5.5.3 Village and Secondary Roads . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 6

5.5.6 Economic Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 7

5.5.7 Parks and Recreation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 7

5.5.8 Other Public Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 7

5.6 Other Sources of Capital Improvements and Infrastructure Funding . . . . . . . . . . . . . . . . . II - 5 - 75.6.1 Transportation and Road Construction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 75.6.2 Community Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 85.6.3 Water and Sewer Systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 85.6.4 Economic Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 85.6.5 Electrical Power Generation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 8

List of Illustrations

Chapter OneFigure

1.1 Overview of Immediate Response Strategies to the Principal Common Issues . . . . II -1 -51.2 Territorial Planning Com mission and O rganizational Framework for Planning . . . . II -5 -7

Chapter Five

Figure5.1 Summary of Infrastructure Funds from all Sources 2002 - 2006 . . . . . . . . . . . . . . . II -5 -25.2 Total Expected Infrastructure Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II -5 -25.3 Capital Improvements Needs Assessm ent . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II -5 -35.4 Health and Hospita l Capital Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II -5 -45.5 Education Capital Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II -5 -45.6 Public Safety Capital Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II -5 -55.7 ASPA W ater Supply Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II -5 -55.8 ASPA Sewer System Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II -5 -65.9 ASPA Solid W aste Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II -5 -65.10 Main Port Capital Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II -5 -65.11 Parks and Recreation Improvments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II -5 -75.12 Public Faciliti es Capi tal Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II -5 -7

PART II

Territorial General Plan

Policies and Strategies for Sustainable Development

American Sam oa G overnm entDepartment of Com merce

December 2002(revised February 2004)

FOREWORD

Purpose of Part II

This Territorial General Plan is an Indicative Policy Agenda for the economicand social development of the Territory of American Samoa. The purpose of the plan isto promote a better quality of life for the Territory’s residents, protect the naturalenvironment and preserve the Territory’s resources for the sustainable development ofthe islands.

Part II of the Territorial General Plan sets out the development policies andstrategies for the principal development issues that the American Samoa Governmentwill face over the next several years. The issues were identified and summarized in PartI of this Territorial General Plan. They are presented in greater detail for each agency inPar t II.

Part II of this Territorial General Plan serves several important aims:

• to create a ‘Vision’ for the future, and to identify a strategic path of developmentto attain the vision;

• to create and implement a permanent system of cooperation, coordination andplanning among government and non-governmental organizations to meet theperformance agenda of this plan;

• to set out policies and strategies for government agencies to follow during theperiod of this plan;

• to make known the policies and plans of the government administration; and

• to demonstrate to Federal oversight agencies and funding sources that thegovernment has put-in -place a means to direct i ts progress and gauge itsperformance.

Scope of Pa rt II

The scope of Part II is inclusive of a broad range of concerns within thecomponents of this plan that were identi fied in Par t I. They are:

• comm erce and economic developm ent;

• environmental protec tion and resource m anagement;

• social development and the delivery of social services; and

• capital improvements and infrastructure.

These four areas of concern are addressed in Chapters Two th rough Five of Part II. Policies and strategies are developed to match the concerns , issues and forecasts. They were provided via American Samoa’s agency representatives, and stated inChapters Three and Four of Part I. Chapter Five is a summary of the expectedexpenditures for infrastructure development that appear in the Territory of AmericanSamoa, Capital Improvements Program Plan 2002 -2006.

The policies and s trategies recommended in Chapter I of Part II representagency-wide recommendations for handling com mon development issues that cutacross departmental and agency interests. These areas of concern have beendetermined to be of the highest priority for mitigation or resolution by the agencyrepresentatives to the planning process.

Part II of this plan is focused upon solving ‘priority’ agency issues and problems . It is not, and cannot be, comprehens ive of al l issues with in the scope of an agency’smandate and all the concerns and plans of agencies. Rather, i t deals w ith the priorityissues that agency repres entatives assert ‘must’ be addres sed before al l others. Inorder to learn about the full program and development plans of an agency, the readermust contact the agency and reques t a copy of the agency’s plan, i f a p lan exists. Par t IIwill reference the agency plan or the source from which for the policy and strategiesoriginated.

The Ter ritorial General Plan recommends the development of future plans thatwould be comprehensive in scope and endorses plans already in existence that managethe functions and development activities of agencies. The Port Master Plan of 1999,which addresses m anagement functions and proposes capital im provement projects forthe Department of Port Administration, is an example of an existing plan. Part II of theTerritorial General Plan provides the overall policy agenda and serves as the umbrellaunder which future government development, functional or action plans will beformulated.

II - 1 - 1

Chapter OneIntegrated Policies for the Principal Development Issues

1.1 Introduction

1.1.1 Focus and Purpose o f this Chapter

This chapter focuses upon the means toidentify and implement a vision for the Terri tory,and the policies and strategies to address theprincipal issues identified in Part I, ChapterThree, of the Territorial General Plan.

The policies and strategies address issuesthat were determined to be acu te, priorityconcerns. The issues are generally Terri tory-wide, cut across agency responsibi lities andinterface to heighten the Territory’s developmentdilemma. The policies are a multi-agencyresponse to resolve the issues .

Section 1.1.2, Summary of Principal Policies,at the bottom of this page, is provided as anintroduction to what the focus and content of thischapter and plan will be. Section 1.2, a BriefReview of the Common Issues, will set the stagefor understanding Section 1.3, Policies andStrategies for Common Agency Issues.

The following illus tration graphica lly presentshow the policies for the four main elements ofthis plan interface and are treated in thisdocument.Issues that are common to agencies, and wouldoverlap within the circles, are addressed in this

chapter. Issues that are discrete to agenciesand fall outside the hatched areas would notrequire a multi-agency response and are set forthin Chapters Two, Three and Four of thisdocument that cover economic development,social development and resource management.

By integrating the planning and strategicresponses of government agencies, this planaspires to achieve the following aims:

• development of a lasting, high level ofcooperation and coordination amonggovernment agencies;

• long-term integration of planning and actionsfor common purposes leading to strategicdecision making;

• maximum utilization of human and fundingresources for the highest benefit to theTerritory’s residents; and

• strengthened capaci ty of the government tomanage its resources, improve itsperformance and render its serviceseff ic ientl y and effectively.

1.1.2 Summary of Principal Policies

1.1.2.1 Overall Policy for Sustainable Territorial Development

Focus upon the capacity of theAmerican Samoa Government to createa better quality of life for the Territory’sresidents through developmentstrategies that sustain the growth of theeconomy and its social developmentwhile preserving and protecting theTerritory’s natural environment andresources

Part II: Chapter One Integrated Policies for the Principal Development Issues

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1.1.2.2 Principal Policies of Common Concern

• Planning and a Vision......create the capacity within the American Samoa Government to developa vision for the future and to carry out the policies and strategies to achieve the vision

• Population Growth......slow the rate of population growth to avoid exceeding the carrying capac ityof the Territory’s ecosystems; the government’s ability to effectively provide infrastructure andservices; and the economy’s capability to contribute to a bet ter quality of l ife for the Terri tory’sresidents

• Education and Human Capital......provide the training and skills necessary to create socially andprofessionally competent and responsible ci tizens, that improve the economic welfare of theTerri tory, and provide for stability of their families and communities and preserve the naturalenvironment

• Government Management......create the capacity within the American Samoa Government tomanage its programs efficiently, to deliver its services effectively, and to reliably control its finances

• Local Economic Development.....create the conditions for lasting economic development inbalance with natural resource management, environmental sustainability and cultural preservation

• Environmental Protection and Resource Management.....enforce the Territory’s laws governingconservation, preservation and protection of the Territory’s natural resources to maintain the well-being of the environment, the health o f the Terri tory’s population, and a sustainable economy

1.2 A Brief Review of the Principal Issues 1.2.1 Principal Issues

The principal policies stated above derivefrom panel discussions during the planningprocess that identified the six areas of concernlisted below as the most acute issues thatcommonly affect the Territory’s economic andsocial development, and the state of the naturalenvironment.

• Lack of or limited overall planning and Vision;

• Limited government agency performance andineffective fiscal management;

• Insufficient development of human capital,skills and educational attainm ent;

• high population growth, domestic m igrationwith excessive immigration and out-migration;

• Impaired local economic growth, narrowopportunities and financial dependency; and

• Ineffective enforcement of natural resourcepreservation and protec tion laws leading tostress upon the Territory’s environment andthe carrying capacity of its ecosystems.

1.2.2 Review of Principal Issues

The lack of an apparent vision for the futurewas of concern to many participants in theplanning process and it was deemed to resultfrom a lack of overall , government-widecoordination and planning. Although programplanning exists in some government agenciesand authorities at d iffer ing levels, integratedplanning across government agencies had notbeen formally accepted or establ ished.

Annual operations plans for agencies thatmade them were not tied to an overall vision,p u r p o s e o r long-term, governmenta lmanagement plan. A mer i can S am oaGovernment agencies rely heavily upon Federalprograms for their existence, but Federallymandated plans, formulated for the purpose ofreceiving assis tance, may have had little


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connection to American Samoa’s preferredstrategic operations path.

Results oriented management andperformance management are now required bythe Federal government as a consequence of theGovernment Procedures and Reporting Act(GPR) of 1993. The American SamoaGovernment is expected to fu lfill its requirem entsif accepting Federal programs and assistance.However, most American Samoa Governmentagencies do not plan, implement and managetheir programs on a performance measure andoutcome basis .

Lack of communication, both vertically andhorizontally throughout the government hierarchy,has also hindered the governm ent’s abili ty tofocus upon important issues and plan effectively.

The lack of a vision, planning andmanagement direction is said to have lead to acondition of poor motivation among governmentemployees and inadequate performance. Someof the problems result from an inadequatelyoriented high-level leadership that lacks theperspective to improve matters and from anunder-skilled and ill-prepared workforce. Someof the performance problems are simply relatedto poor attitudes and work ethics.

The insufficient development of theTer ritory’s human capital, and the lack of skillsand low level of educational attainment areimportant factors that have contributed togovernm ent’s problems and those of the privatesector. Communication and coordination amonggovernment agencies regarding this matter isinadequate and programs like the AmericanSamoa W orkforce Development Plan, whichtargets workforce training, have not beenaggress ively and effectively implemented .

Assessments of the Territory’s educationaland human capital requirements relative to theneeds of American Samoa’s future workforce andeconomy are lacking. There have not beenaggressive initiatives by the government toprovide a blueprint for an educational curriculumthat will identify skills required for the future. TheTer ritory’s educational leadership is concernedwith the future nature of its curriculum, and the

type of skills and training it must impart to theyouth of Territory to prepare them for a future thatmay not include living and working in AmericanSamoa.

A sufficiently educated, trained and equippedworkforce is a cr itical factor in the perpetualrobust development of the Terri tory. Histor ically,however, the economy has been caught up in acycle of underdevelopment. That is, theeconomy has not been able to expand to theextent that it can absorb youth finishing schooland job seekers.

The powerful economic presence of thecanneries plays a significant role in maintainingthe private commercial sector, but the nature ofjob opportunities at the canneries has resulted inAmerican Samoans shunning employment withthe canneries. Consequently, most canneryworkers are aliens from the Independent State ofSamoa who imm igrate to America Samoa.

The government, because of its inability tomeet expenses and expand its services, cannotabsorb more employees. Thus , studentsfinishing school have few options but to seek jobsin a private sector that expands slowly, to remainunemployed or to leave the Territory in search ofbetter opportunities elsewhere.

W hile people leave the Territory for a betterlife elsewhere, e.g., in Hawaii, the Mainland orwith the U.S. military, the government continuesto permit immigrants to enter American Samoato fill job vacancies. The immigrants havehistorically been of the twenty through forty yearage group and they have been instrumental inincreasing the population of the Territory, to theextent that they and their children comprise morethan sixty percent of the population. Immigrantsnow compete with American Samoans for jobs,where many of the technical jobs are now takenby professional, highly skilled aliens.

Population growth has been identified as themost important issue for the Territory to deal withfor the future. The increase in residents onTutuila is placing great stress upon the socialdevelopment infrastructure, the service deliverynetwork, and the capacity of the land andenvironment to accom modate population growth.


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Immigration policies, while they wereformulated with a restrictive intent during the1980s, have not effectively guided andadequately limited the entrance of imm igrants tothe Ter ritory.

W hile the population increases, the amountof funding available for creating newinfrastructure to support the growing populationdecreases in constant dollars. Funding is notexpected to rise significantly to meet futureneeds. This will put an even greater burdenupon the infrastructure and services that are nowunder duress from pressures to serve morepeople for which the services were intended. Theschools are overcrowded and the hospital andhealth care system cannot provide exemplaryservice on a per capital basis. The financialfunds are simply not available.

Population growth also promises to stressthe carrying capacity of the human and naturalenvironment. Several areas of concern are at thenexus of development capability. They are thepotable water supply, land availability and thetransportation grid. Land availability andutilization, relative to controls enforced bytraditional Samoan culture and faa’Samoa,overshadow most other issues. Furthermore, traditional Samoan culture andfaa’Samoa, are in conflict with modern methodsof land use controls. This conflic t has oftenmade it difficult for American Sam oa’sgovernment agencies to enforce environmentalprotection and preservation laws and regulationsto the extent that the environment, ecosystemsand wildlife habitats are being threatened anddegraded.

The availability of land, population growthand the need to preserve the Territory’s naturalresources, e.g., marine life and the fish stock,create a dilemma for the creation of suitabledevelopment policies and strategies. Economicdevelopment , human sett lement an dmaintenance of a sustainable environment are incompetition with one another. The burden isupon to the government to find an equitable andsustainable balance between the demands of thesociety, the natural environment and the

requirements of the economy. W h i l e t h ecompetition for land continues between the needfor social development infrastructure, thedemands of the economy, population growth,human settlement, and the environment, theTerritory is caught in a vicious cycle of under-development.

W ithout planning and a vision to point theway forward, government does not effectivelymanage its human and financial resources, orprovide the needed and appropriate infrastructurefor support of the population’s basic needs. Theeducational system does not gear its humancapital up for the future. W ithout an adequatelytrained workforce, services are not rendered oreffectively delivered, in or out of government, andwithout an adequately informed population, the

environment suffers from abuse and the naturalresources of the T erritory are squandered.

The role of the Territorial General Plan andplanning process is to bring these issues intofocus, to identify how the government can dealwith them in common, or on their own, withrational methods that can be implem ented, andmanaged along a strategic path that will producepositive outcomes.1.3 Policies and Strategies

Figure 1.1, Overview of Immediate ResponseStrategies to the Principal Common Issues,


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illustrates the focus of the agenda the AmericanSamola Government will follow to create a visionfor the future and resolve the principal, commondevelopment issues of the Terri tory.

1.3.1 Establishing Territorial Planning anda Vision

1.3.1.1 Updating Statutes and Expandingthe Role of the Territorial PlanningCommission (TPC)

The laws and regulations that provide themandate to plan for the Territory are establishedwith the Planning and Economic DevelopmentStatute (A.S.C.A. 10.0101 et.seq.) This statutewill be revised and updated to g ive the TerritorialPlanning Commission more latitude in oversightof planning and control over programming,whereby the Territorial Planning Commission willbe established as a high-level commission toreview and adopt plans, and to reviewapplications for development with permittingauthority.

1.3.1.2 Restructuring the TerritorialPlanning Commission andExisting Boards

Some of the problems associated with theefficiency of the present licensing and permittingprocess result from the activities and functions ofcommissions and boards that have overlappingor conflicting responsibilities. While the planninglaws are evaluated for their effectiveness, thestructure and relationship of commissions andboards will be assessed for their appropriatenessand functional efficiency. The statutes whichgovern their authority, purpose and functions willbe revised according ly.

1.3.1.3 Establishing Plann ing Councilsand Advisory Panels

The Territorial Planning Com mission w ill beserved by subordinate advisory councils,established to serve the oversight requ irementsof local and Federal government agencies, aswell as for spec ific areas of local concern.

There will be established an EconomicAdvisory Council to guide the formulation of

economic policy and recommend plans beforethe Territorial Planning Com mission. Likewise,a new Territorial Health Policy and PlanningCouncil is recomm ended to be established. Thecouncils will present their plans before theTerritorial Planning Commission for review andauthorization.

The Department of Commerce w ill provideoperational support for the TPC and a ‘TechnicalAdvisory Panel’ consisting of government agencyrepresentatives that will assist the TPC withoverall review of plans and provide advice.

The counci ls are to be aided in their policydevelopment responsibili ties by ‘inter-agency’advisory panels established for the areas ofeconomic and social policy development andresource management. The inter-agency panelswill be responsible for aiding the councils informulation of plans and for creating plans forcouncil submission to the TPC.

Figure 1.2, Territorial Planning CommissionOrganizational Framework for Planning,illustrates the structural composition of the newplanning fram ework.

1.3.1.4 Implementing Overall Strategicand Integrated Planning

1.3.1.4.1 Mobilization for Planning

From a historical perspective, overallTerritorial planning and the reliance uponcomprehensive plans for overall governmentprogram direction has not gained a foothold ingovernment. Planning may have beenmisunderstood or could have been held in lowesteem. People have even been heard to remarkthat a plan would be destined for an obscureshelf before being fina lized.

Some of the criticism may have been wellearned as some plans were poorly conceived,lacking in perspective and incapable of beingimplemented. There has certainly been a


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Figure 1.1 Overview of Imm ediate Response Strategies to the Principal Comm on Issues

ESTABLISH TERRITORIAL PLANNING & A VISION

UpdatePlanning Laws& Territorial

PlanningCommission

Restructurethe Territorial

PlanningCommission &

Boards

EstablishPlanning

Councils &AdvisoryPanels

ImplementOverall

Strategic & Integrated Planning

þþþ

FOCUS UPON EDUCATION & TRAINING FOR RESULTSIMPROVE

ENVIRONMENTAL &

RESOURCEMANAGEMENT

ADJUST FOR POPULATION GROWTH & IMMIGRATION

Educate theWorkforce inPerformanceManagement

GovernmentManagement

Build HumanCapital with

Skills & Training

Build WorkforceCapacity &

InstitutionalStrengthening

Invigorate the Workforce

DevelopmentCommission

Assess the Educational

Requirements ofthe Private

Private SectorDevelopment

Engage ASCC inSupplementary

Education

Provide PublicAwareness to

Affect an AttitudeChange

EnvironmentalAwareness

EducateEnforcement

Agencies aboutImpacts

Support a SchoolEnvironmental

Curriculum

Population GrowthAssessment & Planning

Immigration Assessment & Management

Streamline the Project Notificationand Review System

System

Improve Inter-AgencyCooperation,Coordination,Planning & Resource

Management

Strengthen Monitoring &

Enforcement of Law s & Regulations


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Figure 1.2 Territorial Planning Commission and Organizational Framework for Planning


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shortage of resources and skilled planningpersonnel to understand the Territory’sdevelopment problem s, to have predic ted themor to have dealt with them on a Territory-widebasis. This situation had been accom panied bya lack of public awareness of how much planningcould accomplish, or by leadership that simplyavoided dealing with the Territory’s problemsfrom a planning perspective. F inally, pressure tosolve the Territory’s problems earlier were notgrave enough to resort to or invest in planning.W hat planning was done, in general, was done inresponse to Federal requirements.

It will be necessary to develop support for acomprehensive, Territory-wide planning programthrough agency cooperation and participation inmobilization for planning. It will also benecessary to affect an attitude change at thehighest levels of government by demonstratinghow on-going planning programs have betteredcommunities and services. At the outset, thiscan be accomplis hed by narrowing the scope ofan initial planning process in order for leadershipand agencies to grasp an understanding of itspurpose, principles and function.

Therefore, the government’s policy will be to:

Promote planning as a reasonable andeffective means to secure a better qual ity of lifefor the residents of the Territory, to develop theTerritory’s economy and preserve its naturalresources by demonstrating how planning canstrategically guide the development of theTerritory into the 21st Century.

1.3.1.4.2 Creating Public Part icipation inPlanning

A Territory-wide public information and publicparticipation process will be established in orderfor the residents of American Samoa, thetraditional leadership, and the pr ivate sector toprovide input into the formulation of the plans andto have the opportun ity to comment uponplanning initiatives.

1.3.1.4.3 Enabling Planning to Proceed

The re-authorization and reestablishment ofthe Territorial Planning Commission by statute

with the authority to oversee the formulation of acomprehensive, Territory-wide planning anddevelopment program, and to guide andauthori ze development activities in the Territoryto assure compatibility with Territory-wide plans,will enable the Department of Commerc e tocommunic ate and coordinate with governmentagencies to develop strategic, Territory-widepolicies, goals and objec tives for the T erri tory’sfuture, and to formulate plans for thecomprehensive community, economic and soc ialdevelopment of the Terri tory, as well as plans topreserve and protect the land and naturalenvironment.

In addition, the re-written statutes will enablethe Territorial Planning Com mission to oversee,and for the Department of Commerce to manage,an annual planning process that wil l formulateshort- and long-term plans, and annualgovernment agency operation plans, that willassure performance of operations and meetstated m issions of the governm ent.

1.3.1.4.4 Formulating Plans in aPerformance Management Modewith Strategic Planning

The American Samoa Government will carryout its planning comm ensurate with therequirem ents of the Federal GovernmentPerformance and Resu lts Act of 1993. Programplanning will be based upon the performancemanagement concept which includes strategicplanning as a framework for setting goals andobjectives and defining outcomes.

Setting up the planning and performancemanagement process wil l require thecooperation of the Department of Commerce, theDepartment of Human Resources, the TreasuryDepartm ent, the Territorial Office of FiscalReform, the Department of Program Planningand Budget and the Office of the Governor.

1.3.1.4.5 Including the Office of FederalPrograms in Overall Planning

The Off ice of Federal Programs w ill be

expanded to share in the role of consistencyreview of plans and programs formulated duringthe planning process according to the Governor’s


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General Memoranda No.75-1997 and No. 025-2001. Headed by the Federal GrantsCoordinator and Single Point of Contact to theU.S. Federal Executive Branch, the Office ofFederal Programs will review local governmentapplications to the Federal government forfunding and determine if a proposed project is inaccord with Terri torial plans, policies, programsand objectives. The OFP will do the review forconsistency according to proceduresestablished by the Federal Grant ReviewProcess, Territorial Clearinghouse Handbook ofSeptember 2001.

The T erritorial Planning Comm ission andthe Office of Federal Programs will also be thefinal gateway for the Governor’s signatureregarding adoption and implementation of plansand programs.

1.3.1.4.6 Recognizing Existing Plans andTerritorial Oversight

Existing plans that are formulated bygovernment agencies to meet Federalrequirem ents or to fulfill other purposes have notbeing reviewed for consistency with otherFederal or local agency programs. Therepresently is no overall review board to see thatplans conform to a purpose, are compatible wi thother agencies plans, or exist under a Terri tory-wide um brella planning effor t.

Therefore, the government’s policy will be:

Existing plans and proposed plans should bebrought under the oversight of the TerritorialPlanning Commission in order to to assure thatplans are compatible with a Territorial vision andto maximize the use of Territorial resources.

A list of existing agency plans is provided inAppendix A-1 at the conclusion of this document.

1.3.1.4.7 Formulating and ImplementingNew Territorial Comprehensiveand Functional Plans

The Territory of American Samoa has notwitnessed a comprehensive developmentplanning effort since the late 1970's. Thecapabil ity to develop strategic goals, policies or

plans to deal with the future growth of theeconomy, for the educational system to meet thehuman resource needs of the T erri tory’semployment systems, o r for the governm ent toprovide a development vision for the futureappears to have been lost for reason of mind orlack of resources. In addition, there has beeninsufficient communication, cooperation andcoordination with the private sector towards thedevelopment of the Territory’s economy and anabsence of comm on efforts to fo sterdevelopment.

Therefore, there wil l be a renewed effort toformul ate and implem ent Territory-widecomprehensive development plans andfunctional plans that integrate and balanceeconomic, social and environmental initiatives forthe sustainable development of the Terri tory.

Refer to Appendix A - 2, Proposed New andRequired Agency and Comprehensive Plans, foran indication of the up-and-coming work of theTerritory’s agencies.

1.3.2 Focusing upon Education andTraining for Results

Education is essential to the T erri tory’swelfare and the Department of Education and theAmerican Samoa Communi ty College will beplaying a key role in address ing the Territo ry’sdevelopment issues and need for appropria tetraining of the T erri tory’s workforce. TheDepartment of Human Resources will be theagency to provide the overall direction andoversight.

1.3.2.1 Improving Government Management

1.3.2.1.1 Educating the Wo rkforce inPerformance Management andProgram Planning

The American Samoa Government has beenslow to move toward a structured system ofmanaging its operations on the basis of annualTerritory-wide planning, meeting objectivesthrough performance measures, or performancebudgeting. Although performance budgeting wasrecommended a decade ago, it has not yet beenimplemented within government. Performancebudgeting would need not be accepted if the


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government had a successful means to restrainfinancial expenditures within an accepted budgetand had the government been able to avoidrunning a continual annual defic it.

The U.S. Congress enacted the GovernmentProcedures and Reporting Act in 1993. The Actrequires Federal agencies and their fundingrecipients to be able to meet performancemeasures and management princip les and toutilize ‘results oriented management’ by fiscalyear 2000 for agencies and organizations thatapply for funding from the Federal government.

Since most Americ an Samoa Governmentagencies rely upon Federal funding, theintroduction of perform ance management intolocal government i s an appropriate response tothe need to make government services moreefficient and effective, and secondly a responseto the requirements of the U.S. GovernmentPerformance and Reporting Act of 1993.

Therefore, the governm ent’s policy regardingperformance management will be to:

Take the lead from the Federal governmentand utilize the knowledge gained from other Stateand Local governments to initiate a program ofresults oriented management that would lead toa commendable performance by AmericanSamoa Government departments and agencies.

The Department of Human Resources andthe American Samoa Communi ty College will bethe agencies to lead the training of governmentstaff in the fundamentals of performancemanagement and strategic planning. Theorientation and training will be provided at thehighest levels of government first, and to thosewithin the government that have been designatedas the poli cy makers or representatives to theplanning process for their agencies.

The Community College is prepared to takeon the task of providing training via distancelearning through Project 2000. Eight distancelearning sites will be provided by the DELTAConsortium which will utilize agency locationsequipped with tele-communications software andtelevisions for teleconferencing.

The Department of Human Resources willoversee the implementation of a performance orresults oriented management program and theTerritorial Office of Fiscal Reform will beauthorized to activate and oversee theimplementation of a performance budgetingprogram tied to the per formance or resultsoriented management program.

The Department of Commerce will be taskedto develop an annual planning process with theoversight of the Territorial Planning Comm issionto create annual government agency operationplans with the comple tion of performancemanagement training.

Adoption of Federal program planningmethods for results oriented management thatencompass program planning, implementationand performance monitor ing is recomm ended.The purpose will be to establish goals, objectivesand performance measures for each agency andto formulate annual operation plans to coincidewith the imp lementation of existing long-termwork programs or plans o f agencies .

Each agency at the completion of the fiscalyear will be required to initiate a performancereview of its operations on the basis of its definedprogram performance standards and criteria. Areport to the Territorial Planning Commission onthe achievement of its short- and long-term goalswill be appropriate. The T echnical Advisors tothe Territorial Planning Commission will assesstheir ach ievement.

1.3.2.1.2 Strengthening Institutions and Building Capacity in Government

The American Samoa Government facesmany acute problems in its efforts to deliverservices effectively and efficiently. There arelimi tations in the managerial capaci ty of itsleadership and lim itations put upon theleadership to provide sufficient services orachieve specific organizational goals by thestructural nature of an agency or the capabilitiesof its workforce.

The quality and capabilities of thegovernm ent’s workforce do not often meet therequirem ents of the job tasks . The government’s


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employm ent and job security policies continuethe retention of insufficiently skilled andimproperly trained personnel. A low governmentwage scale has led to an unfairly compensatedworkforce that exhibits low morale, poor attitudestoward work, poor work ethics, and renders lessthan competent performance. High- levelmanagers, sometimes unprepared to cope andfrustrated with the si tuation, struggle to overcomethe problems, but are less then effective inmak ing changes. And i nadequa tecommunication and coordination within andbetween agencies discourages organizationalplanning and hinders the attainm ent ofsatisfactory agency performance.

The government’s policy will be to:

Cultivate a positive attitude toward capaci tybuilding and institutional strengthening withingovernment and formulate a program to improvethe government’s efficiency and effectivenessthrough assessment of its institutionalweaknesses, the formulation of effective systemsapproaches to affecting good government, andthe orientation and training of personnel to workby more effective and efficient methods.

The government will undertake this policy byapproaching the Office of Insular Affairs, the U.S.Department of the Interior, for technicalassistance funding to acquire systems analysisexpertise to assess the operational capacity ofgovernment agencies and identify institutionalweaknesses. The expertise will be called uponto devise and recommend a capacity buildingprogram, also based upon the installation ofoverall ‘performance and results orientedmanagement’ and the development of thegovernment’s human resources.

The institutional capacity building programwill be carried out concurrently with theformulation of the ‘performance management’program and will include the recommendationsand planning of the Workforce DevelopmentCommission for the orientation and training ofthe government’s employees. Thus, theworkforce training should be consistent with theinstitutional requirements to make thegovernment function m ore efficiently.

It will be necessary to introduce the overallcapaci ty building program to top leadership andstress the importance it has for effec tivegovernment leadership, in a situation where topleadership can be attenti ve to understanding theconsequences of institutional strengthening.

1.3.2.1.3 Building Human Capital withWorkforce Skills and Training

The Department of Human Resources, theDepartment of Education and the AmericanSamoa Comm unity College have the ability toidentify the human resource needs of thegovernment and the community. The WorkforceDevelopment Commission has authorized aWorkforce Development Plan to investigate theskills and training needs of the private sector andto respond with coordination through the aboveagencies to provide the necessary education andtraining.

The development of the plan was funded andthe program to operate the program is supportedby the W orkforce Investment Act. There hasbeen limited effort to provide capacity building forthe government through the training of i tsworkforce, because the Department of HumanResources has lacked the local financialresources to carry out such a form idable task,and while the above agencies have expressedthe need for human resource development withinthe government and an interest in cooperating tosee the program instituted.


The Department of Human Resources willestablish a formal working group to guide thedevelopment and implementation of the humanresources capacity building program withingovernment. The working group will identify theworkforce training requirements and the requiredperformance standards for employee positionswithin the government and provide a report onthe governm ent’s needs to the department. Theworking group will also identify necessaryfinancial and human resources and fundingrequirements for the Amer ican SamoaCommunity College and the depar tment toformulate a human resource development plan,and to implement the plan.


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It is expected that the training programs willintroduce technology orientation and trainingprograms by ASCC and DHR to updateemployee skills and managerial training forprogram leaders and high-level leadership.

The training program can be assoc iated withthe already existing catalog of instruction at theAmerican Samoa Community College in whichtwenty instructors will be providing highereducation courses. The Community College willutilize its tele-communications and distancelearning equipment of the DELTA Consortium tocarry out instruction.

1.3.2.2 Enhancing Private SectorDevelopment through Education

1.3.2.2.1 Invigorating the WorkforceDevelopment Commission forPrivate Sector Training

In October of 1999 the WorkforceDevelopment Commission and the Departmentof Human Resources began developing theTer ritory’s first strategic five-year plan forworkforce training in American Sam oa. Themission of the comm ission is to strengthen anddevelop partnerships between training serviceproviders, employers and the general community,leading to gainful employment opportunities forthe residents of the T erritory.

The key principals of the workforce systeminclude emphasis upon employer driven needs,limited yet efficient government administration ofthe new system, improved customer service,systematic accountab il ity, reduced duplicativeefforts, well-coordinated standards, and mostimportantly, a support for maintaining the strongcultural links to family values with a firm belief inthe value of work.

The commiss ion identified eight key prioritiesto encourage the system’s growth. At the top ofthe list were: business involvement, thedevelopment of workforce skills and knowledgethrough education, system communication andintegration, and servicing populations withspecial needs.

The commission’s plan was developed on anoff-island model and the plan explicitly identifiedthe approach and the system requirem ents tomake it work. Fundamentally, the plan strikes atthe heart at how the Territory needs to developits workforce. It errs in the extensive content andobjectives to be achieved in the rather shortperiod of five years. Upon review of its progressthus far, it appears that the plan has not beenpressed into full action. This is in many respectsthe result of a lack of resources to adequatelyfollow it through.

Thus , it is the government’s po licy to:

Identify the sources of its implementationweaknesses and restructure a system around itsfundamental workforce development strategies.

The first step necessary will be to secondertechnical assis tance to evaluate the operationalcapabilities of the primary organizations to carrythe plan forward . In general, it can be said thatthe organizations, i.e., the Department of HumanResources, the Department of Commerce, theAmerican Samoa Community College and theDepartment of Education do not havesupplementary staff on board to devote full timeto the effort of implementing the plan. Therefore,the assessment must include recomm endationsfor securing additional human and financialresources to implem ent the plan.

Secondly, the recommendations mustinclude measures to implement the content ofthe plan that is reasonably practical given theresources at hand. As the WorkforceDevelopment Commission’s plan is supported byFederal funding, it is most practical to followthrough with its implementat ion, rather than leaveit behind to rest on a shelf.

1.3.2.2.2 Assessing the EducationalRequirements of the PrivateSector


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W orking in parallel with the WorkforceDevelopment Commission, the Department ofCommerce will be building its capacity to collectinformation about the economy and to analyzethe state of the economy. There will be anemphasis on the part of the Department ofCommerce to build up its economic research andanalysis section, as well as it human resourcecapaci ty by employing additional qualified staff toevaluate the Terri tory’s opportunities andrecommend economic development initiatives.

The department intends to carry outemployment studies and the employment needsof the Territory. These studies can be used asinput to the Work force DevelopmentCommission’s needs assessm ent and foridentifying the types of jobs required of theeconomy and the appropriate skills and trainingthat can be provided by the proposedconsolidated workforce center.

The studies will be annual in nature andaugment the U.S. Department of Labor’s Surveyof Business that occurs every five years. As amember of the W orkforce DevelopmentCommission, the Department will continuallyprovide the Department of Human Resourceswith valuable data and information.

Secondly, the Department of Commerce willaid the Department of Human Resources in theidentification of future trends in the private sectorlabor market, as the departm ent intends toexpand and improve its communication with theprivate sector. The department in tends toestablish a Business Round Table, comprised oflocal businesses representative, to periodicallyadvise the department of current marketconditions and plans. Secondly, the departmentwill utilize the Business Round T able to developeconomic development initiatives. The planningmust account for the employment needs of theprivate sector and the technical capabilities of theworkforce. There fore, the W orkforceDevelopment Comm ission, the Departm ent ofCommerce and the private sector will find thatworking together will achieve greater results thanworking w ithout the knowledge of all parties.

1.3.2.2.3 Engaging the American SamoaCommunity College to Provide

Supplem entary Education forBusiness Development

The American Samoa Comm unity College ispriming itself to become substantially morecompetent and active in providing bothfundamental training and advanced training in theskills required for tomorrow’s economy.

The Community College has also been activein developing its relationships and c apabiliti es tooffer distance learning, dispersed throughout theIsland of Tutuila. The Com munity College ispresently prepared to offer its educationalservices utlilizing the tele-conferencing anddistance learning equipment of the DELTAConsortium to carry out instruction. There arepresently eight stations available for use.

The primary problem the Community Collegefaces in its ability to offer training in businessesservices and skill s training appropr iate to theeconomy’s needs is the lack of funding to supportinstruc tion. Given sufficient funding, theCommunity College feels that is will be able toprovide the services needed.

Therefore, it is the government’s policy to:

In order to identify supplem ental funding tocarry out instruction, the technical expertise,secondered to assist the Department of HumanResources with evaluating the WorkforceDevelopment Plan, will be given the task ofworking with a committee, formed among theresponsible agencies, to put together a plan forsupplying the departments with funding forcarrying out the tasks necessary to provideeducational services to the private sectorworkforce.

In addition to the activities of the Comm unityCollege, the Department of Education will beassessing its curriculum with regard to thepresent educational needs of the Terri tory, as afunction of creating a five-year departmentalaction plan.

The education planners, aside from focusingupon improving the instructional capacity of thedepar tment’s standard curriculum, will becooperating with the Department of Human


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Resources to assess the instructional needs ofsecondary level students and their potentialadaptability to finding employment within theTerr itory’s private sec tor.

This work will be done in conjunction with thestrategies put forward in the WorkforceDevelopment Plan which direct the cooperatingagencies, i.e., the Department of Commerce,Human Resources and the American SamoaComm unity College to work wi th the privatesector in identifying the skills required of theprivate sector.

1.3.2.3 Creating Environmental Awareness

1.3.2.3.1 Providing Public AwarenessEducation to Affect an AttitudeChange

The Territory’s natural environment andnatural resources are being degraded anddepleted. An opinion exists that there has beenan erosion of attitudes and values about personaland community commitment to care for theenvironment, but this opinion is un-testable andthe degradation that occurs may result more froma lack of awareness of the impacts of individual,comm unity and public actions that degrade theenvironment than an erosion of attitudes.

There are other opinions or perceptions: thatfamily and village identification is dissappearingdue to population growth, the melding of villages,and movement of peoples in and out of theTerri tory; that there is confusion about identitiesand maintenance of national and village pride;and that fragmentation of control over com munityresources and a shift from village leadership togovernment leadership has resulted in a conflictbetween s ta tutory laws and vi l lagetraditions.There are also those who believe thatan increased variety of immigrants cause a lackof a sense o f comm unity and ownership over theresources and a lack of traditional resourcemanagement values. Some would say thatoutside influences upon the values of the culture,including opinions developed from knowledge ofother societies and adoption of personal valuesgained from exposure to them, are changingattitudes about care for the environment. F inally,there is the opinion that disenfranchisement of a

major ity of the population, who do not have votingrights or rights to land, do not possess the desireand commitment to manage theTerrito ry’sresources properly; and within them exists awillingness to circumvent environmental lawsand regulations for personal gain.

As a result of the need to curb environmentaldegradation, the government’s policy will be to:

Promote public awareness to protect theenvironment and preserve the natural resourcesof America Samoa through the cooperation,coordination and combined funding and use ofeducational programs and multi-medi aprogramming to reach a greater proportion orsegments of society.

To improve the state of the environment theagencies will assist the Department of Educationwith implementing the Three Year EducationPlan for environmental education programs tomaxim ize the use of resources and reach agreater num ber of people.

The agencies will continue to cooperate withythe Le Tausagi environmental interest group toprovie outreach education fo r village andcomm unity leaders who hold the respons ibility tomaintain the land and water in their communities.

In addition, there will be education programsformulated under the Paradise 2000 Program forthe Department of Health, the American SamoaPower Authority, Solid W aste Division and theAmerican Samoa Environmental ProtectionAgenciy field workers about the impacts ofdisposal of solid, liquid and hazardous wastesand how to effectively protect the environment.

The agencies will also develop a full mediacampaign, and public interest programming,budgeted on an annual basis and supported inpart by all resource management programs,involving radio, television and newspaperadvertisements to get out the message thatAmerican Samoa’s environment needs protectionand preservation. A universal program to workwith church leaders to get out the message willalso be necessary.


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1.3.2.3.2 Bettering Enforcement AgencyEnvironmental ImpactAwareness

Resource management agencies arefrustrated about the abi lity of the government’senvironmental protection system to adequatelyenforce the Territory’s environmental laws andregulations. The Attorney General ’s office doesnot receive timely notification of violations of lawsor regulations and often does not receive propercommunication in writing from resourcemanagement agencies, because enforcementagencies do not record violations adequately andkeep good records properly for evidence. Poorreporting and record keeping by agencies makesit difficult for the Attorney General to favorablyprosecute violations. Furthermore, enforcementagencies seem to have an insufficientunderstanding of the full impact of environmentalviolations. This denotes a problem in top-downcommunication which invariably hindersenforcem ent.

In the past there has been a lack ofcommunication and maintenance of continuousand diligent contact between the Department ofLegal Affairs and agencies for the purpose ofmaintaining an up-to-date awareness of agencyand legal matters. Agencies com monly fail toseek advice for actions so that actions are inconcert with Attorney General's prosecution.Resource management agencies do notadequately provide policy or managementdecisions about their functions or inform theAttorney General and keep the AttorneyGeneral's office up to date on official decisions.Coordination is lacking and there is a lack ofawareness of need for coordination andconsultation.

Therefore, the governm ent’s policy will be to:

As a response the resource managem entagencies will establish a working group with theDepartment of Legal Affai rs to form ulate a plan toso lve the problems of communic ation,coordination, and enforcement and formulate aplan to implement changes in the system. Theywill also establish an environmental awarenessand education program for enforcement agenciesand provide training in the observation of laws

and regulations for enforcement officers . Toassure the continued observation andenforcement of environmental and resourcemanagement laws and regulations, there will beestablished an oversight system to render regularcommunication among participating agenciesand the Department of Legal Affairs aboutpolicies, laws and regulations, with continuedmonitoring of the knowledge and capabilities ofenforcement officers . In addition, theDepartment of Legals Affairs will regularlyschedule briefing sessions with the resourcemanagement and enforcement agencies aboutlaws and regulations, and modifications to them.

1.3.2.3.3 Supporting Env ironmentalEducation as a Component ofthe School Curriculum

The Department of Education is understaffedin the area of environmental education, in theopinion of the resource management agencies.They would like to see more environmentalcontent in the education curriculum. T hey feelthat educating children at a young age willsignificantly improve the prospec ts formaintaining the Territory’s natural resources.However, the resource management agenciesconcede that they have been largely ineffective inachieving their goal . W hile inertia on the part ofthe Departm ent of Education may contribute tothe problem, the lack of achievement of gettingenvironment into the curriculum does not liesolely with educational leadership. Thedepartment is fundamentally underbudgeted, hasdifficulty recruiting specialized teachers andretaining them. There is insufficient human andfinancial support within the Department ofEducation to accom modate a public awarenesseducation process for the environment and thereare insufficient numbers of personnel who canteach natural resource education. There is noeasy resolution to the annuall y, inadequatebudget. Finding qualified teachers to handle thecurriculum, a lack of curriculum planners skilledin environmental concerns, and the limitationsfrom competition to provide a standardcurriculum to a sc hool system under siege froma burgeoning population simply discouragesopportunities for change.



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In order to implement this policy the resourcemanagement agencies will investigate thepotential for pooling funding from their annualsources of Federal income to develop anenvironmental curriculum plan wi th thecooperation of the Department of Education. Inaddition, they will investigate the prospects forsupplemental funding to acquire the necessaryinstructors and technical assistance to supportthe training of elementary school teachers inenvironmental instruction.

Secondly, they will provide assistance to theDepartment of Education in providing anexpanded scienc e curriculum for the Territory’shigh schools and cooperate and coord inate withthe department throughout the year on theirindividual and common programs relating topublic awareness and education. Finally, theywill investigate the possibilities to assist theDepartment of Education obtain the necessaryinstructional materials for environme ntalawareness instruction.

1.3.3 Improving Environmental andResource Management

Stewardship over American Samoa’s landsand waters i s a care ful mar riage of a western-style regime of resource managem ent andtraditional village-based decision making. It isalso a careful marriage of agencies anddepartments that exercise their influence andcontrol over specific areas of concern. Forexample, they are the American Samoa CoastalManagement Program which is mandated with abroad range of resource managementrespons ib i l i ties , the Amer ican SamoaEnvironmental Protection Agency that monitorsand protects the Terri tory’s air and water quality,the American Samoa Historic Pres ervation Officethat protects cultural and historical artifacts andsites, and the Department of Marine and W ildlifeResources that oversees the Terri tory’s fish andwildli fe stock. These agencies have increasedtheir activities over the years pursuant to theirresponsibilities to protect and preserve theenvironment and as a result of AmericanSamoa’s environment and natural resourcesbeing taxed by the pressures of moderndevelopment. Today their realm of interest is

concerned with a wide range of environmentaland resource managem ent concerns and issuesthat impact all American Samoans.

1.3.3.1 Streamlining the ProjectNotification and Review System

The American Samoa Coastal ManagementProgram (ASCMP) was established by executi veorder in May of 1980 with a m andate to deal with:the coordination of government processesrelative to village developm ent; the review ofdevelopment activities; and the managementand protection of the Territory’s naturalresources. In 1988, the responsibilities ofASCMP were expanded by an executive orderthat replaced the ASCMP permit review authori tywith the power to issue land use permits througha formal interagency review process, that evolvedinto the Project Notification and Review System(PNRS).

Today the PNRS is the primary (body)system, comprised of the Territory’s consistencyreview agencies , that controls land usedevelopment in the Territory and implements theFederal consistency review process required bythe National Envi ronmental Polic y Act of 1969. Over the years, it has come to supersede otherlicensing and permit functions and maderedundant some functions established by statute.At the same time the PNRS has become boggeddown in bureaucratic processes that s low itsfunction and negate its purpose. The result hasbeen public and private agitation for a moreresponsive and expeditious system, and alsodisengagement from control of land use.

To accomm odate both sides of the issue, theDepartment of Commerce, which is the parentagency of ASCMP, that issues BusinessLicenses and represents the Zoning Board, willsecure funding and expertise to streamline thePNRS. This will include the revision of statutes,where necessary, and the modification of theprocesses that slow the functioning of thesystem. In addition, the streamlining wi ll removethe redundant features of the system, which mayinclude modification of boards and commissionsassociated with the process of issuing licensesand permits for businesses , development andland use. Concurrently the evaluation and


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modification of the system will address andrecommend regulations and procedures tostrengthen the system to control developmentprocesses and the misuse of land and water.

1.3.3.2 Strengthening Monitoring andEnforcement of Laws andRegulations

During the agency panel discussion processof formulating this Territorial General Plan, itbecame apparent that poor or inadequateenforcement of resource laws and regulationspertaining to each agency’s mandate wascommon to all agencies. Therefore, improvingthe capac ity of all agenc ies to monitor, manageand regulate their statutorial responsibilitiesbecame a principal concern of this plan.

The primary issues in regard to the ProjectNotification and Review System, and eachagency are: the capabilities to monitor andmanage development activities appropriately;the capabilities to legally pursue violations of thelaw and prosecute cases; interagencyresponsibilities in the process of implem entingthe laws and regulations; and comm unityacceptance of land use controls where land andwater is under traditional or customary control.

Enforcement of the Territory’s developmentlaws and regulations are hampered by severalissues. People continue to build or undertakedevelopment activities, knowing they are inviolation of the law. Fines do not seem to be aneffective deterrent. As fines mount, so do thecourt case loads which require a legal responseby the Department of Legal Affair ’s a ttorneysdelegated to work on environmental violations.W ith one or two lawyers to handle the cases,there remains a backlog that will grow markedly.W ith regard to the ability to bring cases beforethe court, there are problems with recordingviolations and maintaining proper records thatwill stand up to legal dispute, there remains adiscrepancy of how to interpret often vaguestatutes, and how the statutes may conflic t withanother agency’s resonsibilty. Therefore, thereare questions of proper legal recourse that needto be resolved. These are problems comm on toall resource managem ent agencies that also

bring the Department of Legal Affairs and theHigh Court into play.

There is no simple answer to dealing with theproblems. To begin the process of improving theability to monitor and enforce the T erri tory’senvironmental and resources laws, the agencieswill initiate a working group to develop a plan ofaction to strike at the most salient anddemanding needs of formulating strategies tocurb environmental violations, to strengthenmonitoring and enforcement capabiliti es, toimprove procedures to bring violators to court, toaugment the Departm ent of Legal Affa irs wi thpersonnel to handle the case load, and toenforce violations with appropriate measures.

1.3.3.3 Improving Inter-AgencyCooperation, Coordination, Planningand Resource Management

As stated in the introduction to this section,stewardship over American Samoa’s lands andwaters is a careful marr iage of a western-styleregime of resource m anagement and traditionalvillage-based decision making. It is a lso acareful marriage of agencies and departm entsthat exercise their influence and control overspecific areas of concern for the land and water.

It seems that in recent years, the agencieshave expanded their interests to areas of concernthat impact upon or encroach upon the author ityor mandate of another’s agency. This may haveoccurred as a result of changes in Federalpolicies or it may have occurred withoutconsultation with the agencies. It has alsooccurred by common agreement and as a resultof external factors. T he prime example of thiscase is the formulation of the Coral ReefInitiative, in which the resource managem entagencies have banded together to take onactivities that cut across their areas of concernand involve integrated planning.

W hile this expansion of activities by agenciesdoes not appear to have contributed tocoordination problems among agencies, or ill-feelings, it is now becoming clear that greatercommunication, coordination and planning arerequired to avoid redundancy in programs and to


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maxim ize the utilization of funding and manpowerresources for commonly accepted goals.


Establish an overall, long-term planningapproach for managing the environment and theTerr i tor y’s natural resources throughcoordination of agency agendas that will avoidduplication of program goals, maximize theutilization of financial and human resources, andcreate long-term plans

To begin the coordination there will beestablished an Inter-Agency EnvironmentalAdvisory Panel as a subordinate commi ttee ofthe Territorial Planning Comm ission to assumethe responsibilities of coordination in theformulation of environmental and resourcemanagement planning. The Inter-AgencyEnvironmental Advisory Panel will undertake areview of the Territory’s environmental andresource management laws and regulationsrelative to the need to clarify which agenciesshould be carrying-out specific actions with thepurpose to avoid redundancy in programs.

There will be established a planning processwith the purpose to maximize the use of fundsand human resources to achieve commonresource management outcomes. Thereafter,the Inter-Agency Environmental Advisory Paneland the agencies wi ll formulate an indicativeFive-Year Environmen t and ResourceManagement Plan to guide the Territory’sagencies in the course of their work and for thepurpose of identifying a long-term managementapproach to caring for the environm ent.

1.3.4 Adjusting for Population Growth andImmigration

1.3.4.1 Planning for Population Growth

American Samoa’s population grew at anannual rate of two percent between 1990 and2000, from 46,773 to 57,279 people, as reported

by the U.S. Bureau of the Census in July 2001.The rate of growth was about half the rate ofgrowth between 1980 and 1990. The reduction inthe rate of growth is an encouraging sign, but thesubstantial increase in population from 1980 to1990 (which included the immigration of youngadults) set the stage for a large populationincrease during the first quarter of the 21st

Century.

In 1995, eighty percent of the population wasunder forty years of age. One-half of theTerritory’s population was under twenty years ofage. As the population ages, the government willfind it more and more difficult to meet thedemand for services and supply the infrastructurerequired to support a satisfac tory quality of life forthe Territory’s maturing residents. Theeducational system, social service provideragencies and medical services are alreadyfeeling the pressure of overpopulation.Infrastructure is currently inadequately funded tomeet future demands and usable land is limitedfor all purposes.

The adverse and cumulative impacts of thepopulation increase, development and residentialgrowth are readily noticeable in Tualauta County,the Territory’s principal center of developm ent. In 1960, only ten percent of the Territory’spopulation lived in the county. By the year 2000the number of people living in the county reached22,025 people or nearly forty percent of the totalTerritorial population . Present forecastspredict a twenty percent increase in the county’spopulation over the Census 2000 population bythe end of 2005.

There is considerable concern for the qualityof the natural environment. Rapid humansettlement has occurred where growth has notbeen inadequately enforced or controlled byregulations, such as land use planning or zoning.This has resulted in overcrowding in many areas.The rapid growth has also meant that basicinfrastructure needs, e.g. water lines, sewers androads, have not been installed in preparation forhuman settlement and the impacts of trafficcongestion, noise and air pollution are evident.There is significant concern for the quality of andavailability of a guaranteed safe, potable watersupply. As the population increases, the


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chances grow greate r of groundw atercontamination from human settlement and theencroachment upon the Terri tory’s groundwaterreserve areas.

Population growth had not been officiallyrecognized as a high priority until recently, whenthe Governor’s Task Force on Population Growthconvened in 1999 and 2000, and produced thereport, Impacts of Rapid Population Growth inAmerican Samoa: A Call for Action. Limitationof population growth and restriction ofimmigr ation had been considered an‘untouchable’ subject.’ Consequently, there wereno policies beforehand to cope with populationissues, to plan for, or accommodate populationgrowth. The Population Task Forcerecommended policies and strategies to dealwith population growth that were to beimplemented by government agencies. However,the Population Task Force Report has had nosignificant financing or budget backing to carryout the agenda, and accountabili ty andmonitoring of agency performance did not fullyensue as the Task Force m embers wanted.


Policies, strategies and actions to deal w iththe Ter ritory’s increasing population will continueto be monitored and handled by the Governor’sTask Force on Population Growth during theearly stages of this plan. The Task Force willendeavor to develop high-level leadershipsupport and endorsement of follow-up actionsand procedures recommended by PopulationTask Force Report.

The results of the 2000 Census of Populationand Housing will be reassessed and evaluatedfor changing characteristics of the population,including movements and concentrations tobetter plan for infrastructure and the delivery ofservices, whereupon there will be a need torevisit the Task Force Report forecasts andrecommendations.

Towards the end of this plan period, it isrecommended that the Task Force be replacedby a Population Board established by statute,with technical support from governmentagencies, to monitor population increase and

recommend actions to maintain a stabilizedpopulation growth, define immigration policy, andequate immigration with the employment needsof the Territory.

1.3.4.2 Managing Immigration

The Governor’s Task Force on PopulationGrowth has suggested that immigration policy isinadequate to slow the current rate ofimmigration to the Territory and that immigrationcontrol at the port of entry has been inadequateto enforce immigration laws. T h e o f f i c i a limmigration quota, set thirteen years ago, allowstwo hundred and fifty Western Sam oan “units ”and twenty-five migrants to enter the Territoryannually (a unit may include family members).This policy has been weakly enforced and thereappears to be more imm igrants than permissiblein the Territory. Furthermore, there are manyover-stayers resident in the Terri tory.

During the last two decades in-migration ofnew residents has exceeded out-migration ofexisting residents. The out-migration can beattributed, in part, to a lack of suitableemployment opportunities for AmericanSamoans who want to remain. Projections bythe Task Force suggest that even higher ratios ofexchange will occur in the future without suitableimmigration controls and management, and thepromise of jobs and security for AmericanSamoans.


Establish immigration policies that aresensitive to the sustainability of the Samoanculture, economy and environment; thateffectively manage and enforce the immigrationlaws; and do not place American Samoans incompetition with an alien workforce foremployment.

In order to carry out this policy, there will be anumber of required tasks;

• Immigration quotas for who may enter theTerritory will be modified on the basis ofskills, age, number of family members , and


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the ability to generate new income for theTerri tory;

• An evaluation of immigration laws inrelationship to business laws andrecommended changes compatible wi th thepolicies of the Population Board, will spur themodification of legislation to fill loopholesand worker permit policies;

• Immigration policy compatible with theTerritorial development policie s, asconfirmed by the Territorial PlanningComm ission, will be written;

• Implementation of the proposed immigrationrestrictions and actions recommended in thePopulation Task Force Report wil l besupported, including the capacity of theImmigration Office to record and tract visitorswith the purchase and implementation ofcomputerized systems;

• Development of a ‘phase-out plan’ forallowing unskilled workers and illi terateimm igrants to enter the Territory to seekemployment will be achieved; and

• The government will submit an evaluation ofimmigration impact to the Department ofInterior for the purpose of securing fundingfor Impact Aid to apply toward controllingentry into the Territory and for improvinginfrastructure to support the growingpopulation.

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Chapter TwoCommerce and Economic Development

2.1 Focus and Purpose o f this Chapter

This chapter focuses upon the policies andstrategies the American Samoa Government canimplement between 2002 and 2005 to induce thedevelopment of a healthy economy. It supportsthe goal of the American Samoa EconomicAdvisory Commission to “transform thecomposition of American Samoa’s economy sothat the private sector becomes the driving forceof a self-sustaining market economy.”

The policies and strategies in this chapteraddress a broad range of issues in subject areasthat economists nom inally label as micro- andmacroeconomics, i.e., household and smallbusiness development, and large-scaleeconomic concerns for Territory-wideemployment, market performance and economicgrowth.

This chapter is not a theoretical discourseon either a microeconomic or macroeconomictheme for Territorial development. Rather, it is astraight forward approach that identifies actionsto mitigate the long-standing developmentproblems the Territory has faced for years.Thus, the use of economic term inology has beenminimized.

The policies and strategies in this chapteraspire to achieve the following aims or goals:

! a public and private sec tor partnership thatparticipates in the strategic planning anddevelopment of the Terri tory’s economy andthe creation of a vision for the future;

! a reduced dependency upon the canneries,the Federal government and the AmericanSamoa Government for the Terri tory’slivelihood and a greater reliability upon theprivate sector to provide for the Ter ritory’seconomic welfare;

! a diversified, expanded, transformed andsustainable private sector that provides a

greater share of the Territory’s employmentand income in the future;

! an energetic economic developmen tplanning campaign undertaken by theAmerican Samoa Government to supportdevelopment policies, programs and projec tsto aid growth industries of the private sector;

! the improvement in the levels of humanresource skil ls to support the economy;

! the revitalization of the local sectors ofagriculture, fisheries and tourism asimportant sources of employment andincom e for the Territory;

! a financially sound and strengthened privatesector that can adapt to and accomm odatefor change in a global economic environmentand invest in the Territory’s future; and

! an economy that is market driven andcapable of delivering its products, goods andservices to local, regional and globalmarkets

2.2 Summary of Principal Policies

2.2.1 Overall Policy of the Commerce andEconomic Development Componentof the Territorial General Plan

Focus upon creating the capacitywithin the American SamoaGovernment and the pr ivate sectorto develop a dynamic, enterprisingand sustainab le economy

This mission is supported by policies andstrategies in section 2.4 of this chapter. They arebriefly outlined on the following page to providea quick overview of this chapter’s content andstrategic direction.

Part II: Chapter TwoCommerce and Economic Development

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2.2.2 Principal Policies for Economic Development

! Creating a Vision th rough Private Sector Partnership.....create a comprehensive economicplanning process with private sector participation and a permanent Economic Advisory Commi tteefor guidance

! Planning for Economic Development......establish an economic planning function for research andanalysis, to monitor the state of the economy and formulate economic policy and develop plans

! Forging Federal Cooperation and Coordination for Economic Achievement......developfavorable partnerships and improve cooperation with Federal agencies to find favorable solutionsto resolve outstanding policy issues and to ga in input in to Federal decision making relative toAmerican Samoa

! Building a Sustained Cannery Presence......cooperate with the canneries to sustain high levelsof local employment and build bridges to leverage cannery involvement in seeding the economy

! Improving the Fiscal Management of the American Samoa Government......correct the fiscal

management problem s in government to induce investment capacity within the private sector

! Shaping Macroeconomic and Microeconomic Policy......shape overall economic and fiscal policyfor the diversification and expansion of the economy and create small business developmentprograms

! Acquiring Investment Capacity......identify the means and establish the mechanisms to increase

the availability of investment capital for the private sector and entrepreneurship in businesses

! Creating Public and Private Partnerships......create formal partnerships between the governmentand the private sec tor to plan and take part in urban revitalization programs and comm ercial projects

! Developing Marketing Systems and Promotion......create a m arketing system s to prom oteAmerican Samoa as a comm ercial destination and the availability of its goods and services

! Improving Regional Networks and Cooperation......look outward to the Pacific Region forcooperation to maximize the services delivered and to deliver American Samoa services abroad

! Forming a Skilled Workforce......invest in American Samoa’s human capital with education skillsand training targeted to the requirements of the Territory’s present and future economy

! Financing Adequate Infrastructure......identify imaginative financing strategies and change the

way the utilit ies, airports and sea ports do business and acquire facilities to improve theirperformance

! Securing Developable Land......plan for the day when land is in short supply for comm ercial growthand find an accommodation between communal land ownership and long-term businessrequirements

! Revitalizing Agriculture......halt the vicious circle of underdevelopment with an aggressive programto revitalize the Department of Agriculture and agricultural production and sales

! Upgrading Fisheries Developmental Capacity... ... improve the operating arena of the local fishing

industry by providing adequate support facilities and on-shore services


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! Re-inventing Tourism......embark upon a new path of planning to accommodate contemporarytrends in the visitor industry and repair the long-standing problems identified in the 5-Year TourismAction Plan

! Developing e-Commerce Opportunities ......open up internet based businesses and skilled jobsin American Samoa through specialized infrastructure development and focused training andbusiness support.

2.3 Review of Economic Issues

2.3.1 Economic Vision and Planning

The economy of American Samoa has beensustained during the last two decades without along-term, comprehensive economic plan toguide government policy or to promote economicdevelopment. This circumstance could beattributed to a lack of leadership and motivationto follow through with a comprehensive approachto economic planning. It is the consequence ofinsufficient financial and technical suppor t tomanage an economic development initiative thatwould have included economic research,analysis, planning and implementation ofdevelopment.

This circums tance has led to the implicationthat the American Samoa Government has nothad a vision for the Territory’s economic future.W hile a lack of vision may be implied by theabsence of comprehensive policy and planning,it can be said that the government had beencommitted to economic development. Forthroughout the last several decades thegovernment has been required to maintain anOverall Economic Development Plan. The planwas needed in order to receive funding from theU.S. Economic Development Administration foreconomic infrastructure development programsand projects. The downside of the plan is that itwas oriented toward fulfilling Federalexpectations for a plan and not locally inspired.

Fortunate ly, the Economic DevelopmentCommission has recently completed aneconomic development plan, Transforming theEconomy of American Samoa. The plan islocally inspired and provides an economic visionwith discus sions o f development issues andproposed economic development policies andstrategies. The plan’s proposals are supported

in this Territorial General Plan and will greatlybenefit the Ter ritory in its quest for assistanc e.

2.3.2 Planning and Federal Participation

The U.S. Department of the Interior and theU.S. Economic Development Administration havebeen the principal sources for Am erican Sam oa’sinfrastructure development income. T hey haveprovided funds for a variety of projects fromseaport planning to industrial park construction.However, these efforts occurred without astrategic or calculated, long-term developmentpolicy or plan, and without a coordinated effort tointegrate econom ic developm ent initiati ves withthe emplacement of infrastructure that wouldspecifically support economic growth.

The lack of comprehensive economicplanning may have restr icted American Sam oa’sability to acquire additional funding from theseFederal agencies in the past. However, the levelof the Territory’s financial awards were not fullydeterminant of American Sam oa’s planning, norwas it based upon a condition of Federal inter-agency cooperation and planning for the benefitof Amer ican Sam oa.

The level of Federal funding for economicdevelopment is unpredictable over the long-termbecause of changes in the Executive Branch, inU.S. Congressional seats, in economic programorientation. Therefore, American Samoa shouldnot base its vision upon a consistent flow ofFederal funding or upon consistency in Federalprogram orientation.

As a strategy to leverage the financialfunding the Territory requires for economicinfrastructure, the American Samoa Governmentneeds to espouse its vision, expedite its mission,do the essential planning with Federal input, andstrengthen its relationship and cooperation with


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the Department of the Interior.

American Samoa needs to strengthen itsrelationship with the Department of the Interiorand Federal agencies, because there areessential development issues i t cannot solvewithout their assistance. There are also potentialproblems on the horizon that could have adistressing impact upon the economy thatW ashington can have a hand in elim inating.

2.3.3 Dependence on the Base Economy

The economy of American Samoa is mainlydriven by two tuna packing canneries, i.e., Star-Kist Samoa and Chicken of the Sea (COS)Samoa Packing, and the American SamoaGovernment. These three entities comprise the‘base econom y.’ Together they are es timated todirectly and indirectly contribute to over ninetypercent of goods and service sold withinAmerican Samoa’s economy.

Therefore, the base economy is the lifebloodof the Territory. Its direct expenditures and thoseof its employees, who make up two-thirds of totalemployment, drive the sales of goods andservices within American Samoa’s private sector.

2.3.3.1 Canneries and Sustained Presence

Over the last two decades there has been anever-present presumption that the canneries willreduce their num ber of employees or leave theTerri tory. The total loss of nearly five thousandjobs or a substantial portion of canneryemployment would result in untold economiclosses and hardship. Therefore, there has beensignificant pressure placed upon the canneries toremain, and the canneries have receivedsizeable tax incentives to remain in Ameri canSamoa.

W ith gradual removal of the Internal RevenueSection 936 tax credit and the expiration ofGeneral Note 3a, that substantially reduce thecanneries tax burden, there is increasing concernthat the canneries will indeed leave. To thisconcern must be added the strong competitionthe canneries face from foreign producers, thepossibility that the fishing business will become

less profitable as the fish stock diminishes, andpossible competition from the development of anew Star-Kist fish processing facility to beginoperation on the nearby island of Savai’i.

Thus the American Samoa Government mustbegin to prepare for any eventualities that mayarise within the tuna packing and pelagic fishingindustry to avoid the dour ramifications of asignificant change in the base economy.

2.3.3.2 American Samoa G overn mentFinancial Management

The financial condition of the AmericanSamoa Government is a deterrent to economicgrowth within the private sector. The AmericanSamoa Government must correct its chronicfinancial management problems in order to playa key role in spurring private investment, as thegovernment has run an annual deficit of betweenseven and twelve million dollars during the l990s.The deficit has had a profound effect upon theability of the government to pay its local and off-shore bills and upon the demeanor of the privatesector.

The primary problem is a lack of reliableaccounting information. This results in aninabili ty to reliably estimate available versusbudgeted expenditures. As budgets areoverspent during the year, no corrective action istaken until cash shortages reach a cris is point.This situation has drawn strong criticism fromthe Department of the Interior and a challenge torectify the financial management system. In mid-2001, an Initial Fiscal Reform Plan wassubmitted to the Secretary of the Department ofInterior as American Samoa’s remedy. Theprocess to correct the situation will requirefinancial resources and qualified personnel andresolve.

2.3.4 Lack of Private Sector Diversification

American Samoa’s private, commercialsector is a fledgling economy, still maturing andawaiting to bustle. The private sector has mainlyevolved from the expenditures of the canneries,the government and their employees. Their totalemployment and expenditures have markedlyincreased since the early 1970s and have


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provided the private sector a financial base uponwhich to grow.

The private sector presently makes up morethan one-third of total Territorial employment. In1995, the wholesale and retail trade comprisedthirty-six percent of total employment. Theservices, transport and construction sectorscomprised twenty-one, eighteen and fourteenpercent respectively. Together, the four sectorsaccounted for ninety percent of private sectoremployment.

Economists have stated for many years thatthe Terri tory’s p rivate sector needs to diversify.However, diversification will be a slow processas long as the private sector remains dependentupon the base economy for its input. To spurdiversification, there must be alternativedemands upon the private sector for goods andservices, as well as the economic infrastructure,human capital and entrepreneurial talent to takeadvantage of the diversification demands. Thefinancial base or financial inputs will of necessitybe new money derived from foreign and off-shoresources and from economic activities that havenot provided financial inputs up to the scale oftheir abil ity in the past, e.g. tourism .

Coincident with this economic developmenthypothesis, the Economic DevelopmentCommission Plan has identified four targetedgrowth industries that would fi ll the requ irementsto diversify the goods and services demands ofthe private sector. The Plan identifies andsupports the development of: fisheries andagriculture; telecommunications and informationtechnology; manufacturing; and the visitorindustry. At this time, they appear to offer thegreatest opportunities as core industries to ‘spinoff’ diversification.

2.3.5 Development DeficienciesIt will be difficult to diversify and expand

American Samoa’s economy without having allthe necessary resources available to achieve thatend. The primary building blocks for economicdevelopment are sufficient capital for investment,a skilled labor force, available land and suitableinfrastructure. To be more precise in theselection of the type of development envisioned,there must be local knowledge of the economy

and economic trends over time, products orservices to be provided, promotion andmarketing, communicative and distributionnetworks, and an entrepreneurial spirit. In thecase of American Samoa’s fledgling economy,most of these requirements are minimallysupplied at best, or m issing.

2.3.5.1 Macro- and M icroeconomic Policy

The American Samoa Government does notengage a bureau or an office on a full-time basisto focus upon macro- and microeconomicanalysis and policy formulation for the purpose ofproviding an assessment of market conditions orfor economic development. Analysi s is qui teoften ad hoc and is initiated on the basis of short-term need. In addition, no annual economicreports on the state of the economy or evaluationof economic sectors is provided. Thisenvironment results from the inability to securequalified individuals to undertake the work andfrom a lack of commitment to a long-termeconomic research, analysis and developmentprogram .

The collec tion and analysis of economic dataand the development of a Territorial GrossDomestic Product account is an absolutenecess ity to track and evaluate the economy ona long-term basis. A program to develop thesystem is under way and in its early stages offormation. Its formation is hindered by theabsence of indicative data and the presence ofunreliable data that could form the basis of along-term tracking system of accounts. Theissue of an inadequate data supply andunreliable data is one that the official governmentstatistics office has faced for many years in itsattempts to establish core statistical series.

2.3.5.2 Investment Capacity

The investment capacity of American Samoa,both from the standpoint of government andprivate individuals and firms, is problematic.From a deterministic perspec tive, if a positiveattitude toward investment had been present,investment capital would have been readilyavailable or saved, and expansion of the privatesector would have occurred. Investment capitalwould neither be in short supply, nor an issue for


II - 2 - 6

development.

But available investment capital is an issue,because the Territory’s businesses do notoperate with high profits margins. Businessesare often drained of their profits and investmentcapaci ty by a reliance upon imported goods fordoing business, poor managem ent practices anddemands of family and society. Investment maynot be a problem for alien-owned businessesthat have established a foothold in AmericanSamoa, have the connections to foreign lendersand investment, and are competing successfullyagainst Samoan-owned businesses to the extentthat these businesses are proliferating.

Investment capaci ty is also discouraged by alimited number of finance insti tutions and bankswith loan policies that often restrict lending, orput a high price on investment capital. TheAmerican Samoa Government’s investmentcapaci ty is relegated to finding Federal grantawards for capital improvements. Its abili ty toborrow money, as other States and municipalitiesdo, is restricted by political status andunalienable land, and a lack of fiscal measures,e.g. special assessm ents, dedicated toinfrastructure development.

For development and expansion to occur, achange in attitudes about investment in the futureand in businesses and facilities must occur forthe positive. An attitude change can bepromoted through education and businessmanagement training. Po licies for investmentincentives and development initiatives thatprovide an incentive for investment must follow. 2.3.5.3 Public and Private Partnerships

Public and private partnerships generallyimply cooperation among individuals andorganizations in the publi c and private sector toarticulate policy and promote businessdevelopment for mutual benefit. The conceptlends itself well to urban planning and renewalprograms in that it brings together the twoprincipal players in urban policy formulation andimplementation.

Public and private partnerships can take onseveral forms and are useful tools for urban

revitalization. Organizations are often created toaddress a single development issue or to carryout a development projec t. These organizationsmay also stand as permanent associationsprepared to address ongoing issues withinspecific locations.

American Samoa has not initiated or utilizedpublic and private partnerships under theseconditions, although there is ample evidence tosuggest that they would be effective tools torevitalize the Ter ritory’s deteriorating areas, suchas the business district of Fagatogo.

In other cases, public and privatepartnerships could be developed to createmarket conditions favorable for the pr ivatepartner to prosper in a business ventures untilthe private partner is able to take full control ofthe venture.

2.3.5.4 Marketing Systems, Promotion andForeign Investment

The history of American Samoa Governmentsupport for initiating and maintainingcommercial development principally correspondsto the government’s practice of locating availableland for developers and granting tax relief or taxincentives to businesses. Although thegovernment had previously distributed investmentbrochures to advertise the Territory’s businessassets, the search for foreign investment and themaintenance of a Territorial marketing strategyor system had not been fully activated. Thegovernment did not provide stalwart promotion ofits development assets.

The Territory needs an energetic marketingstrategy and a engaged public and private sectorto advertise its products and services and i tsunique qualities and capabilities, especiallywithin the Pacific Basin and on the Pacific Rim. 2.3.5.5 Regional Networks and Cooperation

American Samoa, and especially theAmerican Samoa Government, needs tostrengthen its comm unication and cooperationbetween its Pacific neighbors in order to findmarkets for its goods and services within thePacific Region, to establish better coordination


II - 2 - 7

with its Pacific neighbors in the movement ofgoods and people, and to retain efficient, timelyand guaranteed air and ocean shippingnetworks. These are especially important in thedevelopment of a visitor industry that requiresdependable transportation networks in order toprosper.

Favorable regional cooperation could yieldjobs and business for American Samoans.Instead of watching talented people leave theTerritory for employment opportunities in theUnited States or abroad, it would be better towatch talented American Samoans take theirtalent into the Pacific on a commercial basis, inother words to turn the ‘brain drain’ into a thrivingexport trade. American Samoa’s economy needsto return income to the Territory from off-shoresources.

2.3.5.6 Workforce Deficiencies

W orkforce deficiencies have been identifiedas a serious deterrent to successfuldevelopment and maintenance of businesses inAmerican Samoa. Likewise, workforcedeficiencies are common throughout theAmerican Samoa Government and lead to poorperformance and the inefficient delivery ofservices. Attitudinal problems and lack of skillsor training to adequately perform job tasks arethe princ ipal reasons for poor perform ance.

An educated and skilled workforce is vital tothe strength and vitality of the Territo ry’seconomy. The problems of workforce deficiencybegin in Am erican Sam oa’s educational system.The American Samoa Community Collegereports that greater than eighty percent of highschool graduates are not sufficiently prepared inEnglish to enter higher education classes. Thisis a useful descriptive measure of the level atwhich young adults enter the private sectorworkforce. Yet, employers need ready access toa productive and reliable labor pool that is well-trained and appropr iately skilled to conduct theirbusiness.

The Economic Development Com missionPlan observes that, “For many who choose towork, they help stimulate the economy byproducing, distributing, and acquiring products,

goods, services, and earning and spendingwages. However, their efforts are sometimesdiminished because many of the workers are:products of the Territory’s educational systemand are unprepared to make meaningfulcontributions when entering the workplace; sufferfrom and are not adequately treated for westernand tropical il lness and diseases; and observecultural practices and attitudes that effect theirwork performance. Such factors often result inoutcomes such as losses in production,increases in training costs, problematic customerservice and higher unemployment.”

Contrary to the issue of being able to findskilled people to work in the private sector, is theproblem of the private sector being able to recruitskilled personnel that want to work in the privatesector. For the pri vate sector bel ieves it is indirect competition with the Amer ican SamoaGovernment for people with skills who seegovernment service as providing higher wages,better benefi ts and job security.

These are conditions that must be resolved.The educational system, that is, both theDepartment of Education and the AmericanSamoa Community College are responsible forpreparing students to work in the economy.Fortunately, the educational leadership seeseducational preparedness for the economy astheir respons ibility and it is ready to cooperate intraining for private sector employment needs.

However, sti ll to be answered is the questionof what job skills w ill be required for the future.American Samoa’s W orkforce DevelopmentCommission is mandated to find a prescriptionfor future employment, in which the private sectorworks closely with the Commission to identify theeducational needs of the economy.

2.3.5.7 Insuffic ient Infrastructure

The infrastructure to support economicgrowth is in place, i.e., roads, power, water,s e w e r s , a i rpo r t s , sea po r t s , a n dtelecommunications systems. However, only thepower and telecommunications systems are fullycapable at present to enable economicdevelopment. They do not require substantialupgrading to permit immediate economic


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initiatives on a large-scale.

The water and sewer systems on the TafunaPlain are adequate to allow economicdevelopment in the Industrial Park, as long assubstantial quantities of deliverable water on adaily basis are not required. Thus, the scale ofeconomic development projects is limited byTutuila ’s groundwater supply and carryingcapaci ty. A second deterrent to large scaledevelopment is the lack of financial resources toprovide these expanded services. The currentfive-year funding cycle allocates all water andsewer improvements for residential coverage inthe Tafuna area. If added infrastructure isneeded, the developer will most likely beexpected to bare a portion or most of thefinancial burden, unless alternative financingschem es are c reated.

The road system, and particularly the mainhighway between the airport and sea port, iscongested and in poor condition at places.These conditions make ground transport forbusinesses inefficient and costly. Furthermore,the condition has been left to fes ter and short-and long-term remedies have not beenaddressed.

The Territory’s main sea port is alreadyunder stress from steadily increasing shippingtraffic and demand for storage space that hassurpassed its planned throughput capacity. Theport lacks sufficient land for operational,stevedoring and container storage activities. Asthe port is expected to handle fishing, cargo, andcruise ship traffic, its docking space has alsobecome congested. Furthermore, the recentlycompleted Port Master Plan has identified tenyears of needed construction and repairs costingover twenty million dollars for which the Port willonly receive twenty percent of needed fundingfrom the CIP awards. The Port could meet mostof these expenditure requirements, if its annualrevenues of 4.0 million dollars were not divertedto the government’s General Fund.

W ith the recent upgrading of the Pago PagoInternational Airport’s airfield, the airport is nowcapable of receiving the largest aircraft for cargoservice and visi tor t raf f ic. However,improvements to the terminal, hangar and

operations facilities have yet to be done. A slightincrease in traffic will not place an undue burdenon the airports upgrade scheme, but a rapidincrease in air traffic will affect its operationalcapaci ty as the terminal and facilities will nothandle the throughput ef ficiently. The Pago PagoInternational Airport Master Plan Terminalrecommends the formulation of an airportauthority and an aggress ive program or revenuecollection to build up airport capacity. Until thereis a change in airport authority and financingimprovements, the airport will rely uponpassenger service charges, which will assist w ithdevelopment costs, but limit the extent ofimprovements.

Overall, providing the infrastructure tosupport development becomes a matter of beingable to identify financing solutions that have notbeen utilized by the American SamoaGovernment in the past. In essence, the annualCapital Improvements Program awards from theDepartment of the Interior are not sufficient tosupply the type of economic infrastructureneeded for extensive economic developmentinitiatives.

Furthermore, the Capital ImprovementsProgram Plan 2002 - 2006 does not al locatefunding explicitly for economic developmentinfrastructure that had been identified in apreparatory needs assessment. These included:storage, cooling and freezing facilities for theagriculture and fishing sectors of the economy;improvements to the Senator Inouye IndustrialPark; an economic incubator facility; and tourismsupport facilities.

2.3.5.8 Land and Land Availability

The availability of land for future economicdevelopment will be a major obstac le toovercome in an effort to expand developmentinitiatives. The small island setting of theTerri tory, steep slope topography, unalienablecommunal lands, population growth and demandfor residential communities, plus competition forvarious land usage, will restrict locations wheredevelopment is possible.

The Senator Inouye Industrial Park, situatedon government land in Tafuna, currently offers


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the only practical and environmentally applicablesite for future light-industrial and manufacturingactivities, and expansion of dense commerc ialdevelopment. This ninety acre site is relativelysmall for future, continued development. As timepasses this site will no longer be available fordevelopment. Depletion of available industrialsites will most likely not occur during this planperiod, however, the exhaustion of industrial siteswill eventually bring communal land ownershipand unalienable land into conflict with the needfor commercial and economic development tokeep pace w ith population growth.

2.3.6 Underdeveloped Local Sectors

2.3.6.1 Agriculture

It has been estimated that the value ofimported food represents ninety-five percent oftotal food stuffs purchased in American Samoa.This represents a significant outflow of moneythat could be saved and re-circulated in theeconomy if the purchases were for localagricultural products.

The Department of Agriculture believes it ispossible to change consumption habits andsubstitu te local agriculture produce for importedgoods. However, it realizes it is fighting an up-hillbattle. Support for re-inventing agriculture as aviable economic development industry and as ameans to preserve the health of the society doesnot appear strong. Commerc ial agriculturesuffers for all the reasons written in this reviewthus far, and more. Fundamentally, agriculturehas not been able to draw the political backingand local funding necessary for research anddevelopment. Farmer’s do not generally haveaccess to investment capital. There is a lack oftraining for farmers to help them maintain theirfarms and to expand their farms. The farmers donot have access to supply system s in order topurchase more effectively and less expensivelyand marketing systems to promote their productsand receive adequate profits. Their farms aresmall, therefore, they cannot operate w itheconomies of scale . Crop disease and pestsoften require high priced chemicals foreradication. The soils and climate dic tate anarrow range of produce that can be cultivatedand farms are lim ited in the area of land available

for crop production.

Agriculture is caught up in a vicious cycle ofunderdevelopment. Over the next several years,there must be a means found to increaseagricultural production and sales, to reduce thedependence upon imported products by localresidents, and to open up new markets. Linkages, for example, with the visitor industryrepresent a symbiotic relationship that wouldbenefit and help expand both economic sectors.

2.3.6.2 Fisheries Limited by Resources

Fisheries in American Samoa is a broadbased activity involving fishermen, using flat-bed,‘alia’ boats under thirty feet in length, that areactive in both subsistence and comm ercialactivities. They take reef, bottom and pelagicfish. Fishing is also a big business for a few,large, single-hauled boats that fish for tuna o ff-shore to sell to the canneries.(This narrative discusses locally-owned andoperated boats and does not include the fishingactivities of foreign-owned or U.S. or Hawaiibased boats that supply the canneries with fishfor processing)

Both types of fishing activities are expanding.The expansion has been deemed a positiveeconomic development objective for some time,but now the expansion could signal trouble forthe fishing industry and for the preservation of thefish stock. The reef and nearshore fish stock area subject of concern. There is evidence of over-fishing in some. W ithout proper moni toring andrestrictions in the amount of fish taken, continuedsubsistence and com merc ial fish ing to supply theTer ritory’s increasing population could spell anecological and economic misfortune.

W ith respect to off-shore commercial fishingfor pelagic fish, i.e., tuna, the W estern PacificFisheries Management Council recommended inAugust 2000 that the National Marine FisheriesService implement emergency regulations tostop U.S. longline vessels over fifty feet in l engthfrom fishing within fifty nautical miles ofAmerican Samoa. The m oratorium is meant tosafeguard the Territory’s stock of pelagic fish.The moratorium also takes place at a time whenmarine scientists are calling for restric tions on


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the take of yellow fin and bigeye tuna in Pacificwaters until the uncertainty in current stocks isassessed and resolved.

These scientific concerns are bolstered byevidence of a gradual decline in the number offish taken by longline hook and smaller, youngerfish taken by net. This does not bode well forlong-term maintenance of the fishing industry.Both American Samoa’s and the IndependentState of Samoa’s local fishing industry haveexpanded markedly within the last several years.Several hundreds of alias, and now larger alias inthe forty to fifty foot class, are fishing offshore foralbacore in both countries to supply the tunacanneries.

If scientists are correct and the carryingcapaci ty of some species of commercial, pelagicfish stock have been reached or broached, theexpansion of commercial fishing in AmericanSamoa’s waters may also be threatening thelong-term sustainability of the fish population andof the commerc ial fish ing indus try.

2.3.6.3 The Visitor Industry and Tourism

In the mid-1970s, when more than 35,000tourists visited American Samoa, tourismdevelopment looked like a winning strategy tobring outside incom e and weal th to the Terri tory.However, by 1980 that dream mus t have faded,as visitor arrivals fell back to the late 1960s levelat one-third the number of 1974 tourists . Sincethen tourism has gradually declined to the pointwhen in 1997 only about 4,500 people cam e toAmerican Samoa as touri sts.

Accompanying the decline in tourist numbershas been the decline and dilapidation of visitorindustry infrastructure of which the gradualdeterioration of the Rainmaker Hotel is the mostnotable phenomenon. But the problems are notjust facility related, the 5-Year Tourism ActionPlan, formulated by the Tourism Task Force in1994, summed up the problems areas as being:

� lack of adequate accommodations;� untimely, inadequate air transportation;� inadequate support services;� minimal attractions;� lack of development incentives;

� lack of funding and financing;� lack of professional marketing and

promotion;� lack of linkages and regional

cooperation; and � poor implementation and monitoring of

tourism development by the government.

The findings of the 5-Year Tourism ActionPlan sum up contemporary problems as well.The issues of October 1994 still stand, however,there are more problems. Given that the visitorindustry has declined so severely, there is somedoubt whether there is support, anentrepreneurial spirit, and drive for an industrycomeback. Bringing the visitor industry back willrequire a combination of forces and linkagesworking at a common direc tion.

2.3.7 M a n u ’ a I s la n d s Ec o n o m icDevelopment

The Manu’a Islands are at a critical point intime and characterize a difficult developmentdilemma. The population of the islands of Ofu,Olosega and Ta’u has decreased by over fiftypercent since 1950, the census year with thehighest recorded population. The Census 2000data is not available for discrete analysis, but it isbelieved that families are leaving the Manu’aIslands in order to fi nd better employmentopportunities on Tutuila and for the children toadvantage of more educational opportunities. Asa consequence, there were 1,379 permanentresidents on the islands as of April 2000.

A Manu’a Economic Development andEnvironmental Management Plan was completedin 1987. The plan was not implemented becausethe destruc tive hurricanes of 1987, 1990 and1991 drew attention away from putting the planinto action. The Manu’a plan focused uponagriculture, fisheries and tourism as the primarytargets for development.

The development milieu of the Manu ’aIslands has not changed much over fifteen years.Subsistence agriculture is still practiced, thereare a few tourists that visit the islands per month,and the reefs are still p roductive, but sensitive toover-fishing .


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Since 1987, the development dilemma hasbecome more critical. T he problem has becomea question of benefits versus costs and who andwhat should be the benefactor of planning for theislands . As the population decreases and ages,there will be people to carry the torch foreconomic development, and perhaps fewercapable people able to do so.

2.4 Policies and Strategies for Commercialand Economic Development

The policies and strategies that follow areorganized by and address the principal issuesidentified in the previous section. The issueshave been identified through two primarysources, the Territorial General Plan formulationprocess, and the American Samoa EconomicAdvisory Commission. The polic ies andstrategies are amalgamated in this section andreflect the recommendations of both sources.


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Participation inEconomic PlanningPolicy

2.4.1 Vision via Economic Planning

2.4.1.1 Participation in Economic Planning

Issue

There has not been a comprehensive economic planning process in recent years, or arepresentat ive planning body dedicated to formulating economic development that included theprivate sector as a participating partner in policy formulation.

Establish an economic planning process in conjunction withthe formulation and implementation of a comprehensiveTerritory-wide planning process that includes individual andprivate sector participation on boards or commissionsanswerable to authority at the highest level of government

ResponsibilityGOVTPCDOC

ParticipantsDLAFonoDLGChamber

ReferenceAS EconomicAdvisoryCommission

Strategies

prepare an advisory paper for presentation to the Territorial PlanningCommission consis tent with the framework and the will of the AmericanSamoa Economic Advisory Commission to recommend the formulation of anEconomic Advisory Council as a permanent advisory board to the TerritorialPlanning Commission that will provide overall economic policy direction, steerthe government in its economic policies and programs, and review andrecommend economic policy and development plans

identify and design an appropriate comprehensive economic planning processthat includes the input and participation of appropriate American SamoaGovernment agencies, the private sector and individuals; and include theprocess in the overall planning activities of the Territorial PlanningCommission with the Economic Advisory Council as the oversight body

identify the human and financial resources required to establish, implem entand maintain an economic planning process, and: 1) lobby the Legislature forsupplemental funding; 2) apply for sub-grants under the Community ServicesBlock Grant Program using community revitali zation as a goal; and 3) apply tothe Economic Development Administration and the Department of the Interiorfor planning and technical assistance to initiate the program

recommend the creation of a Business Round Table, composed of businessleaders from the Terri tory and representatives of influential commercialdomestic and international corporations, to meet regularly and provide adviceto the Economic Development Advisory Committee, and to boost cooperationof the private sec tor with the American Samoa Government in its e fforts tocollect economic information, analyze the state of the economy, and providetechnical to small businesses.


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ComprehensiveEconomic Planning Policy

2.4.1.2 Comprehensive Economic Planning

Issue

The mos t recent comprehensive economic development plan for American Samoa waswritten in the late 1970s. Over the last two decades an Overall Economic Development Plan (nowthe Comprehensive Economic Development Strategy) had been required by the EconomicDevelopment Administration in order for the Territory to receive EDA funding. These plans were notfully comprehensive in scope and primarily suited the plan requirements of the donor.

Create the capacity of the American Samoa Government to contribute to the overall economic development of the Territory

by creation of an economic planning unit staffed by qualifiedplanners to implement a comprehensive economic planningprogram

ResponsibilityTPC/EACDOC

ParticipantsDLGChamberRound Table

ReferenceAS EconomicAdvisoryCommission2001

Strategies

assess the scope of the Ter ritory’s economic planning needs that have beendocumented by the American Samoa Econom ic Advisory Commission andidentify the types of professional expertise required to carry out therecommendations of the Commiss ion

recruit economists and regional planners with economic planning, programand project planning experience with expertise in the areas needed to lead andcoordinate economic and com munity development planning

utilize the economic planning process created under the supervision of theTerritorial Planning Commission to carry out comprehensive economicplanning

coordinate the economic research and analysis required of the planning withthe Economic and Research Branch of the Planning Division, created to fill theneed for macroeconomic and microeconomic analysis and policydetermination

formulate a Five-Year Economic Development Plan consis tent with thepolicies of the Territorial General plan and the recommendations of theAmerican Samoa Economic Advisory Commis sion

carry out planning for targeted sectors of the economy after completion of theFive-Year Economic Development Plan as identified in subsequent sections ofthis Territorial General Plan and for the targeted growth industries asrecommended by the American Samoa Economic Advisory Commission

initiate, formulate and complete the Manu’a Economic Development andEnvironmental Management Plan Update as a response to the needs of the


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Policy Coordinationwith FederalAgenciesPolicy

2.4.2 Federal Cooperation and Coordination Toward Economic Achievement

2.4.2.1 Policy Coordination with Federal Agencies

Issue

American Samoa needs to have a better working relationship w ith Federal agencies and theDepartment of the Interior and to develop favorable partnerships and arrangements in order to havegreater input into Federal decision making relative to the needs of American Samoa and thedevelopment of its economy.

Achieve better communication and cooperation between theAmerican Samoa Government, U. S. Federal agencies and theU.S. Department of the Interior in order to resolve concerns andto harmonize policy and programs that would affect thedevelopment of the Territory and its economy

ResponsibilityGOVOFP

ParticipantsDLADOI/OIA


Strategies

strengthen the capabi lities and capac ity of the Office of Federal Program s tocommunicate and negotiate with Federal agencies by employing qualifiedlegal staff to undertake negotiations relative to the Territory’s developmentpolicy between the American Samoa Government and the Federal agencies

establish a Federal Task Force that includes high-level government officialsfrom appropriate Federal government agencies and the American Sam oaGovernment and private sector to cooperate in resolving outstanding Federaland Territorial concerns and issues that would hinder the development of theeconomy

utilize the high level Federal agency - American Samoa Government TaskForce to promote coopera tion and coordination between the governments toharmonize policy and focus U.S. Federal assistanc e and resources topositively affect the overall character of development and growth of theeconomy

build up the capacity of the Office of Federal Programs to communicate andcooperate with, to assist, and to forge a better a better working partnershipwith American Samoa’s Office of Insular Affairs Representative for theDepartment of the Interior, so that: the Representative can be a more visibleadvocate for American Samoa and its private sector; and that existing andpotential policy, laws, rules and regulations which impact Am erican Sam oa’seconomic sectors, i.e., transportation, technology, telecommunications,


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Cooperation withFederal Agencies for DevelopmentPolicy

2.4.2.2 Cooperation with Federal Agencies for Development

Issue

American Samoa needs to improve its association and cooperation with Federal agenciesin order to find favorable solutions to resolve outstanding policy issues that presently impede or couldimped the economic development of the Territory in the future.

Foster an understanding am ong Federal agencies of AmericanSamoa’s development dilemm as, and promote the need toremove impediments to the Territory’s economic developmentthat may arise from laws and regulations discriminatory toTerritory through communication and negotiation

ResponsibilityGOVOFP

ParticipantsDOCDLA


Strategies

seek and secure a favorable ruling from the U.S. Department of Transportationwhat would exempt American Samoa from or offer relief regarding cabotagestatutes and other aviation policies, regulations, and decisions that adverselyaffect American Samoa’s ability to increase tourism development or theefficient delivery of cargo by airc raft

seek and secure from the U.S. Department of the Treasury a favorable andinnovative solution to the problems created by the elimination of Section 936 ofthe Internal Revenue Code and General Note 3(a)

seek and secure from the U.S. Departm ent of the Treasury a package of tariffand trade incentives to entice potential entrepreneurs to invest and conductbusiness in Amer ican Samoa

seek and secure more favorable terms regarding the application of theminimum wage rates with the Department of Labor

negotiate with Federal agencies to secure agreements that exempt or offerrelief from Federal match ing requi rements

communicate and develop a better relationship with the Department of State inorder to create the conditions in which American Samoa Government is betterable to com pete in global markets

improve the potential for receiving additional Department of the Interior awardsfor economic development by applying and adhering to the Fiscal Reform Plan

launch a campaign to secure supplemental U. S. Congressional funding for anintegrated economic and infrastructure development program, grounded upona development plan, that will positively impact the potential for economicgrowth


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CanneryCooperation forDevelopment

2.4.3 Developing a Cannery Presence

Issue

The canneries play an important role in the maintenance and growth of the local private sector. The concern that the canneries will release a large proportion of its workforc e due tofinancial problem s, or the canneries will shut down has been ever-present. W hile the concern exis t,the government and the canneries appear to been adversaries rather than partners in thedevelopment of the Ter ritory’s economy.

Establish a dialogue between the canneries and the AmericanSamoa Government to help retain the canneries, to leverage thesupport of the canneries in developing the economy, and toassist with develop ing private sector opportunities for AmericanSamoa’s enterprises

ResponsibilityGOVDOCTPC-EAC

ParticipantsCanneriesDMW R

Reference(s)AS EconomicAdvisoryCommission2001

COS SamoaPacking Co.October 2001

Strategies

communicate with canneries executives to develop a better relationshipleading to the creation of consultation and working partnerships to avoidconfrontation and to develop strategies for retaining the canneries

assign cannery membership to the Economic Advisory Council of theTerritorial General Plan and to the Business Roundtable to bring canneryactivities into the overall planning scheme of the Territory

employ a consultant to analyze the state of the off-shore fishing industry and toidentify the global and regional economic and ecological factors that drive thefishing industry or that could negatively affect the American Samoa economy

assign an economis t to monitor the global, regional, Independent State ofSamoa, and local off-shore fishing industry to keep abreast of economic trends

work with the U.S. Depar tment of the Treas ury to find alternative solutions tothe curtailment of Section 936 tax credits which assist to retain the canneries

employ a consultant to identify the potential commerc ial or industrial usageopportunities for vacant cannery facilities and land in case of cannery pull-out

develop a ‘rapid replacement’ strategic plan to locate and seat replacementindustries in case of cannery pull-out

consult with the canneries to identify how the canneries can assist with thedevelopment of the local private sector and jump-start business activitieswhich would also benefit the canneries


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Fiscal Reform andFiscal ManagementPolicy

2.4.4 Government Fiscal Management

Issue

The financial management difficulties of the American Samoa Government has left budgetoverruns and deficits in excess of five million dollars per year. The deficits and the inability of thegovernment to pay its local debts have hindered the growth of the private sector and created a lackof confidence in the government to manage its affa irs and to spur the growth of the economy.

Improve the fiscal management of the American Samoa

Governm ent by transforming the budgeting, collection andexpenditures process to respond to performance budgeting andfiscal controls that yield annual balanced budgets

ResponsibilityGOVTOFRDTDPPB

ParticipantsDHR

ReferenceIn i t ia l F isca lReform PlanTOFR 2001

Strategies

adopt a budget law that requires the Treasurer to submit actual revenueestimates to the Budget Office; that restricts expenditures to not more thanprevious year revenue collections; and establishes a budget control system

provide dedicated staff, financial backing and authority to carry out fiscalreform

develop performance budgeting procedures in combination with thegovernment’s performance management of Federal grants and local programs

provide training and orientation to top leadership in the concept ofperformance budgeting, then to middle managem ent of all fiscal managementagencies

establish suitable balanced budget and budgeting procedures in line with theperformance budgeting practices

recrui t qualified personne l to augment the Treasury and Budget Office staffsto abide by and implement performance budgeting

identify and secure the proper computers and software to maintain a reliableaccounting system

produce an audited Annual Financial Report, regular monthly reports fordepartments, and quarterly interim reports for management

identify and im plement a wide range of cos t control m easures applicable tovarious programs to bring expendi tures in l ine with budgets

implement rates and fees studies to set real istic revenue levels in l ine with


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Economic Researchand Analysis Policy

2.4.5 Macroeconomic and Microeconomic Policy

2.4.5.1 Macroeconomic Policy - Broad Economic Policy

2.4.5.1.1 Economic Research and Analysis Capacity

Issue

The American Samoa Government does not have an economic research and analysis office with an economic analysis and developm ent mission. Consequently, it lacks the abi lity toadequately analyze the state of the economy and to provide econom ic analysis and advice todecision makers.

Establish the capability within the American Samoa Government to undertake economic research and analysis to

monitor the state of the economy, to provide up-to-dateanalysis of economic circumstances and formulate economicpolicy and develop economic plans

ResponsibilityGOVDOC

ParticipantsDPPBTPC

Reference(s)AS EconomicAdvisoryCommission2001

W o r k f o r c eDevelopmen tPlan 2000

Strategies

establish a research and econom ic analysis function within the Division ofPlanning o f the Departm ent of Commerce and recruit development econom iststo lead the collection and analysis of economic data and hire sufficient clericalstaff to assist with research functions

mainta in the process of development of the Terr itorial Income and Product Accounts (ASIPA) in order to provide input into the economic planning effortand monitor trends in the American Samoa economy

establis h a research agenda that includes the co llection of a broad range of economic data that can be used for annual series analysis and publication inan annual report

develop and collect information on the income and expenditures of benchmarkeconomic activities (businesses) on a quarterly basis to track short-term trendsin the local economy

set up a minor Input - Output Model for the Territorial economy to understandthe impacts of change in one sector upon other sectors

establish an annual survey of employment, unemployment, and private sectorlabor and skills, plus workforce demands in conjunction with the requirem entsof the Workforce Development Com mission

create and publish an Annual Economic Report based upon the informationcollected from mac ro and microeconomic econom ic analysis of the T erri tory’seconomic sec tor and the ASIPA


II - 2 - 19

MacroeconomicPolicy

2.4.5.1.2 Macroeconomic Policy Initiatives

Issue

The Amer ican Samoa Governm ent lacks an overall economic planning function and permanentqualified staff to develop macroeconomic policy for a broad range of economic development issues.Furthermore, it lacks qualified economists and policy planners to guide the government in its fiscalpolicy and m anagement, an area of substantial concern for the Territory’s future .

Support the recruitment of qualified development economists with expertise in economic development planning and fiscal

policy analysis to carry out macroeconomic analysis and to guide economic policy

ResponsibilityDOC

ParticipantsTOFRDPPBTP

ReferenceInitial Fiscal Reform PlanTOFR2001

Strategies: Fiscal Policy

assess the impact of excise tax exemptions and the recovery of excise taxesupon government revenues and recommend appropriate policies

assess the potential of enabling a gross sales taxes on goods and servicesupon the Territory’s economy and recommend appropriate tax policies andstrategies

assess the efficacy of granting tax relief to businesses and establish poli ciesfor granting tax relief to seed comm ercial and industrial development

assess the government’s importation policy and customs/tariffs fees and defineappropriate levels

study the impact on the Territory’s economy, society and natural environmentfrom importation of inferior goods and or particular classes of goods andrecommend changes to the customs restric tions and tariff fees

evaluate the Territory’s income tax policies relative to the Territory’s relianceupon the U.S. Internal Revenue Service for rates and the Territory’s minimumincome tax and recommend changes commensurate with the need to balancethe budget and grow the economy

maintain an annual assessment of the minimum wage as it impacts thecanneries interest in remaining in American Samoa and the government andprivate sector’s abili ty to meet the dem ands of an increased wage ra te

do rate studies for all authorities, utilities and operating funds to recommendcharges and fees at a level to recover cos ts

study the need for additional taxes, or an increase of taxes, to recover costs ofoperating government, but also for the impact upon the private sector of theincreased cost of doing business


II - 2 - 20

Small BusinessDevelopment Policy

ResponsibilityDOC

ParticipantsDTDHRDPPBDPATEOOPM

* Section revised [1/27/04 - DOCcjs]

2.4.5.2 Microeconomic Policy- Small Business Development

Issue

The funding by the American Samoa Government and supplemental funding from Federalsources has not been sufficient to support an effective econom ic developm ent function and effortsto increase growth of small businesses in the private sector. A broad range of potential strategiesand opportun ities for smal l business developm ent have not been util ized in the pas t.

The lack of qualified personnel to research and follow up on various funding and technicalassistance programs has m eant that the Territory has not fully taken advantage of its availableopportuniti es for promotion of econom ic and small business development.

Promote the creation and expansion of small businessesthrough innovative and proven economic developmentstrategies, programs and packages targeted to commercialactivities that accord the greatest benefits to the Territory

Strategies: Non-Fiscal Policy

assess the benefits and costs of maintaining specific government functionsand evaluate the restructur ing of government operations and enterprises torender better service to the public

evaluate the benefits and costs of moving from a permanent employeestructure within government to a contract based system

assess the benefits and costs of converting the Department of PortAdmin istration, i.e. the seaports and a irports , to fully independent authoritythat can retain all of its revenue

evaluate the fee structure for government services, including recreationalactivities like the golf course, and recommend fee structures in line wi th thecosts of operations

cooperate with the Office of Petroleum Management to study the potentialimpact upon the economy of s igni ficant changes and costs in the Ter ritory’sregular fuel supply

cooperate with the Terri tor ial Energy Office to identi fy reasonable alternativemeasures to reduce the Terri tory’s dependence upon foss il fue ls for energy


II - 2 - 21

ResponsibilityDOC

ParticipantsASCCGOV

ResponsibilityDOC

ParticipantsASCCGOVOFPDLADOI


Strategies: Programs

increase the capability of the Department of Commerce, EconomicDevelopment Division, to undertake small business development by recruitingsmal l business developm ent specialists

formulate a ‘Small Business Development Action Plan’ to identify how theDepartment of Comm erce and the American Samoa G overnment will aid in thedevelopment of the private sector’s small businesses

set up a ‘Small Business Innovation Research Program’ to identify sources offunding, technical assistance, commercial opportunities and newly developingsectors and activities in the global economy that would be suitable for theTerritory’s economy

create a ‘One-Stop Shop’ ostensibly administered by the Department ofCommerce at a central location to aid in the dissemination of small businessdevelopment information and to provide for rapid processing of licenses andpermi ts

utilize an existing facility or construct a new facility to serve as small business‘incubator’ in the Senator Inouye Industrial Park to locate promising, small,fledgling businesses and provide them with below-market rental rates and low-cost utilities for their initial business start

promote and enhance small business training programs at the AmericanSamoa Comm unity College by assisting with locating supplem ental fundingand supporting the expansion of the curriculum and recruitment of qualifiedtrainers

Strategies: Small Business Policy

identify and recommend policies that create a favorable economic environmentfor business development

review the business and corporate operating laws and regulations of theTerritory and recommend changes to enhance local business c reation andexpansion, and to create a regulatory environment that fosters fair competition

identify business development incentives that will encourage local businesspeople to diversify their base of business activities

evaluate Federal regulations relative to business and corporate activities ofAmerican Samoa and recommend actions to mitigate laws and regulationsthatput American Samoa’s businesses at a disadvantage.

identify under-utilized Federal programs and legislation that supportcommunity and economic development and recommend actions to utilize the


II - 2 - 22

FinancialInvestmentPolicy

2.4.6 Acquiring Investment Capacity

Issue

Economic development and the expansion of the economy’s private sector requires a constant supply of financial capital. However, the ability to generate or raise investment capital is

problematic. “It remains one of the Territory’s greatest challenges to developing a “self-sustaining”economy. The Terr itory’s businesses are hindered by a limited number of financial and lendinginstitutions and often prohibiti vely high interest rates or unfavorable lending terms.

Look for new and innovative methods to acquire financialcapital to support private sector economic development andcontinue to look for ways to improve the pro spects foracquiring investment cap ital from traditional sources


ParticipantsDLADT


Strategies

employ a business development specialist with knowledge of the financialinvestment market and the experience to search for and identify al ternativesources of private sector and Federal government investment programs andfinancing arrangements that would be applicable to Americ an Samoa

establish an ‘Investment in the Private Sector’ business office and utilize thebusiness development specialist to make contacts with financial underwriters,venture capital firms, and investment bankers to arrange financing options onbehalf of local business

utilize the business development specialist to conduct workshops and publicmeetings to inform the business community on the array of financingprograms, sources and options available, for identifying and coordinatingprivate placements, to provide individualized counseling to business owners,and to walk businesses through applications for applicable Federal capitalinvestment

explore the potential for developing a New Venture Fund, comprised of localinvestors interesting in financing new promising business ventures and thepotential for utilizing off-shore venture capital and ‘underwriting syndicates’

develop a favorable regulatory environment, in conjunction with the localbanks, that would permit a loosening of limitations and criteria for local lending

investigate Certificates of Participation (COPs) with the government as ameans for private sec tor businesses to minimize and share investments

explore ‘trade credit’ as short-term loans to business, bond financing and ‘zerocoupon bond financing’, and the issuance of common s tock by establishedbusinesses to raise capital expand business


II - 2 - 23

Public and PrivatePartnershipsPolicy

2.4.7 Creating Public and Private Partnerships

Issue

Public and private par tnerships are not a common under taking in Am eri can Samoa. Ingeneral the government has not possessed the capability or the expertise to set up public and privatepartnerships in the commerc ial sector. However, given the unusual development dilemm a ofAmerican Samoa, the ‘free market mechanism ’ has not been effective in transforming the privatesector so that it earns a greater share of the Territo ry’s income. Thus, the government needs to putgreater emphasis in helping the private sector plan, seed and manage comm ercial activities to thepoint where the private sector can assume full responsibility for its corporate activities.

Promote the creation of alliances between the public andprivate sector in order to communicate and work for commonbenefit, to cooperate in the formulation of long-term goals, andcoordinate economic development activ ities


ParticipantsDLABusiness


Strategies

establish a regular liaison between the Business Roundtable and the AmericanSamoa Chamber of Com merce to maintain communic ation and develop thecooperation necessary for the governm ent to aid the w ishes o f the privatesector

utilize the Economic Advisory Counc il as the conduit to the pr ivate sector toascertain the goals of the private sector and to the Business Roundtable andChamber of Commerce to advise on the formulation of economic policy,programs and plans

utilize the Business Roundtable and the Chamber of Comm erce to assist thegovernment obtain information from the private sector that it needs foreconomic analysis and to develop responsive polic ies for the private sector’sbenefit

create public and private sector commerc ial partnerships in which thegovernment will become a full partner with a commercial business in thedevelopment of a promising comm ercial venture to influence the developmentof a commercial sector, but later devolve itself of ownership as the venturegets on its feet. Proposed ventures are:

Fagatogo village architectural and business revitalization program utilizingCommunity Development Block Grant funding

Fisheries development projects requiring fish processing facilities utilizing U.S.Economic Development Administration seed funds

Fisheries cold s torage and marina development projects utilizing several


II - 2 - 24

Developing a Marketing StrategyPolicy

2.4.8 Developing Marketing Systems and Promotion

Issue

W hile the American Samoa Government has put funding and human resources to work atmarketing the Territory, the efforts have not produced sufficient results. Marketing and promotionresources have been inconsistently committed over time and without a long-term perspective orguidance from a formal body, or Marketing Board, as often found in other States or municipalities.

Establish a marketing and promotion system and strategy toadvertise American Samoa as an fitting site for commercial andindustrial development, as a gateway for products to U .S.markets and as an excellent centralized location in the Pacificfor regional activities


ParticipantsChamber of Commerce

Strategies

employ a consultant to assess American Samoa’s marketing and promotionneeds and to provide advice about and a plan for setting up a marketing andpromotion program within the Department of Commerce

identify the financial and human resources required, seek funding and budgetfor the program

employ a qualified marketing manager to set up the Marketing Division withinthe Department of Commerce and implement the first stages of theconsultants recomm ended plan

establish a Marketing Board, comprised of business people from the tourism,manufacturing and commercial sectors, plus government officials as membersto guide policy formulation

utilize the Marketing Officer to guide the overall marketing program for theOffice of Tourism and the Economic Development Division with cooperationand coordination among the divisions

utilize the Marketing Office to develop and maximize the use of thedepartment’s and government’s Internet website for advertising AmericanSamoa’s comm ercial and indus trial developm ent capac ity

replace “American Samoa, Your Crossroad for Investment in the New Pacific”with a set of promotion brochures, also available on the Internet

work with the Governor’s Office and the Divisions of the Department ofCommerce to promote American Samoa as a excellent central point for tele-communications, for cooperation and coordination of activities in the PacificRegion


II - 2 - 25

RegionalCooperation andCoordination Policy

2.4.9 Improving Regional Networks and Cooperation

Issue

American Sam oa’s s tatus as a te rrito ry of the United States lim its the Territo ry’sgovernment and private sector from taking advantage of cooperation and coordination on a globaland regional basis. As a result Ameri can Samoa has not had the kind of exposure it requi res toimprove the prospects for economic development that independent countries of the Pacific Regionhave received through bi-lateral, international and regional cooperation and programs.

Improve American Samo a’s capacity to foster economic growthand development by networking with organizations of commoninterest, by maintenance of membership in regional organizations that promote cooperation and development, andby building upon bi-lateral and regional communication

ResponsibilityDOC

ParticipantsGOVTPC-EACRound Table

Strategies

maintain communication and network with the departments of the University ofHawaii, its Business School, the Social Sc ience Research Institute and theEast West Center to take advantage of technical assistance to governmentagencies and the private sector

maintain an active reconnaissance of the activities of the United NationsDevelopment Programme, the W orld Bank, and the Asian Development Bankto acquire information and reports about their economic development initiativesand technical assistance program s in the Pacific Region

improve bi-lateral relationships with representatives of New Zealand, Australiaand the European Union in order to obtain information about their developmentassistance programs and initiatives in the Pacific Region

maintain access to the South Pacific Commission and South Pacific RegionalEnvironmental Programme resource development and training programs

continue to network with the Pacific Basin Development Council and theW estern Pacific Regional Fisheries Management Council for economicdevelopment assistance

maintain membership in the South Pacific Tourism Association and maintaincommunication with regional airline executives

identify the kinds of relationships the busines s com munity has with itscorpora te friends throughout the Pacific region, the types o f productspurchased and the potential types of products sought from Pacific Regiontraders

develop a Regional Cooperation and Business Developm ent Plan to identifyhow to best take advantage of economic development resources and initiatives


II - 2 - 26

WorkforceDevelopment Policy

2.4.10 Forming a Skilled Workforce

Issue

The American Samoa economy is both a contributor to and a victim of a workforce with limitedskills and training. It is an economy that relies upon a large proportion of under-skilled workers and doesnot offer enough employment to well-educated people. Thus, Americ an Samoa’s economy is notcompetitive with the U.S. Mainland, Hawaii, or the U.S. Military for providing well-paying jobs. In orderto reverse the ‘brain drain,’ the economy must diversify and be able to offer work to skilled individuals,while skilled individuals must be on-hand to provide the technical support for economic growth.

Aid the growth of the economy by providing a trained workforcethat is consistent with the needs of the government and privatesector and identify and assist with the emergence of skilledAmerican Samoan personnel in key and potential dev elopingsectors that will contribute to the expansion of developmentthroughout the economy

ResponsibilityGOVDHRDOCASCC

ParticipantsChamberDOEDPPB

ReferenceWorkforceDevelopmentC o m m i s s i onPlan 2000

Strategies

develop a clear understanding of the future workforce needs of the economy byevaluating employment sector activities (requires the completion of aneconomic development plan with likely development scenarios by sector for thefuture) and workforce surveys to define present employment conditions

identify the potential types and numbers of employees and skills required bythe economic sector to fulfill the employment requirements of the economy

adjus t the high school c urriculum to accomm odate for the future economy’sneed for specific types of low-skilled jobs

formulate a higher education curriculum a t the Amer ican Sam oa CommunityCollege to target skil ls tra ining for the expected demands of the economy

develop a business m anagement program at the American Samoa Comm unityCollege to mirror the private sector management needs of a future economy

expand the English as a Second Language (ESL) program to upgrade the skillsof post-secondary school graduates and school leavers to improve theefficiency of the private sector

expand the Adult Education Program to provide access to literacy, educationand workforce skills necessary for the economy

assure that the Labor Market Information System (LMI), started by theW orkforce Development Commission, accomm odates employer and employeeneeds


II - 2 - 27

Financing AdequateInfrastructurePolicy

2.4.11 Furnish ing Adequate Infrastructure

Issue

American Samoa’s basic infrastructure is in-place, however, not all infrastructure is fullycapable of supporting a rapid expans ion of the pri vate sector and the services it requires. In order tobring the infras tructure, i .e., the main seaport, the airports , roads, water and sewer systems, up tostandards, there needs to be a three- to four-fold annual increase in funding to improve and expand thesystems. To date, the primary funding has come from the Department of the Interior.

Look for additional funding to finance the development and improvement of the Territory’s infrastructure by identifyingimaginative financing strategies and by securing supplementalfunding from traditional governm ental sources as well as fromconventional financing sources


ParticipantsDLAASPAASTCADPA

ReferenceC a p i t a lImprovementsProgram Plan2000

Strategies

explore the potential for issuance of ‘public en terprise revenue bonds ’ tofinance facilities for revenue-producing public enterprises paid solely from aspecial fund consisting of the revenues generated by the facility being financed

investigate a ‘Joint Powers Agreement’ between ASPA, ASTCA and Port (afterit is made an enterprise authority) where public agencies or enterprise fundscan create a joint powers authority to issue revenue bonds

identify ‘special taxes’ options in which a special tax can be levied to fund aparticular activity or facilities and services in a localized district

explore the use of ‘special assessments’ to finance the installation of a publicfacility for a specific private function, and for construction, improvement, ormaintenance of the water and sewage system

charge ‘fees and exactions’, i.e, direct charges or dedications collec ted on aone-time basis as a condition of an approval being granted by the localgovernment, for a specific business purpose.

utilize impact fees’ as an exaction imposed as a precondition for the privilegeof developers consuming large tracts of government land for their use

utilize ‘lease-purchase agreements’ in which a private business leases afacility in the Industrial Park for eventual government ownership over a fixedperiod

seek supplemental funding from the U.S. Congress for the development ofinfrastructure for integrated economic development projects, i.e., the smallboat and yacht marina and tourism development projects, and for transportsector improvements to support economic development


II - 2 - 28

SecuringDevelopable LandPolicy

2.4.12 Securing Developable Land

Issue

There is a shortage of available, government land for commercial and light-industrialdevelopment on the Island of Tutuila. The Senator Inouye Industrial Park is the only dedicated, largearea of land in the Terri tory set aside for that purpose. It comprises ninety acres of subdividedparcels, of which most are presently in use. There is also general shortage of comm unal land forlarge subdivision development, commercial and light-industrial use. Most communal lands aredifficul t to transform from comm unal, res idential use for commercial purposes .

Maximize the use of government land for commercial andindustrial purposes, identify and evaluate potential centers fordevelopment, and find an accommodation between comm unalland ownership and long-term business requirements to useland for commercial and light-industrial purposes

ResponsibilityDOCGOV

ParticipantsDLADLG

ReferenceTualauataCounty Land Use Plan2001

Strategies

Conduct an assessm ent on how to maximize governmental use of IndustrialPark land and parcels , as per section 6.3.4 of Chapter Six, Tualauta CountyLand Use Plan

identify and assess areas for commercial and retail centers that can bedeveloped in the T afuna area as per sec tion 6.3.2 of Chapter Six, TualautaCounty Land Use Plan

identify where possible permanent sites for tourism development could belocated throughout the Territory’s islands

reserve the Ili’ili airport road area for light-industrial and airport relateddevelopment and the safety zone at the end of the extended runway for light-industrial activity as per section 6.2.9 of Chapter Six, Tualauta County LandUse Plan

assess the option to convert a portion of the Lion’s Park government residentialland area to commerc ial use for high-density, multi-family residential use andhigh-density commercial services use

identify vacant communal and free-hold land on Tutuila Island that would besuitable for low-impact com mercial activities evaluate the legal options available and recomm end solutions for utilizingcommunal land for long-term, low-impact commercial use

formulate a land use study in preparation for recommending land usedesignations in a county plan and comm ercial zoning of lower Tua latai County


II - 2 - 29

Revitalizing AgriculturePolicy

2.4.13 Revita lizing Agriculture

Issue

Agricultural and livestock production in American Samoa is inadequate to meet the needsof the population. Millions of dollars flow out of the economy due to the importation of a vast major ityof foodstuffs consumed. This situation has resulted from a cycle of decline in agriculture productionand animal husbandry due to a lack of support for financing at the highest l evels of government, alack of support for extension services, a lack of business acum en and sufficient financial supportfrom lending ins titutions, a lack of divers ified produce to sell in local m arkets or to export, a lack ofmarketing knowledge and linkages to markets on and off-island, and the risks that farming presentsfrom the climate and plant and animal disease.

Rally the forces in favor of agricultural development and animalhusbandry and develop and implement a plan to upliftagriculture and make agriculture an important sector of theAmerican Samoa economy

ResponsibilityDOAGOVFono

ParticipantsDOCASCC-CNRDLGDPWASEPAASPADLADPPB

ReferenceTGP IssuesStatement2001DOA

Strategies

recrui t an Agricultural Economist to lead an econom ic research program, towrite grants and acquire funding, and to lead the departm ent’s planning efforts

formulate a Five-Year Agriculture Development Plan in cooperation with DOCfor the implementation of local sector econom ic development initiatives

establish an Agriculture Research Program to screen and test seeds andplants in order to broaden the base of saleable agricultural produce andproducts

work with the DOC Marketing Manager to create a promotion program andlocal m arkets for produce, to li nk to tourism development, and for export

strengthen agricultural extension programs with legislative lobbying andthrough cooperation with the ASCC Community and Natural ResourcesDivision

work with DOC/ASCMP and DPW to identify possible farm road developmentschemes for the uplands of the Eastern and W estern Districts and seekfunding for the easements, clearing of land, and construction for agriculturalexpansion

identify funding and construct a Breeding Station to insure the variability andviability of the Territory’s breeding stock

identify funding and construct a new quarantine facility and improve upon thequarantine mechanisms and procedures in place


II - 2 - 30

Upgrading FisheriesDevelopment Capacity Policy

2.4.14 Upgrading Fisheries Development Capacity

Issue

The local fisheries sector has grown recently on the heels of a rapid increase in deep-sea fishing throughout the Samoa archipelago. The increase in the size of small boats, improvements

in fishing gear and techniques, and the abil ity to sell albacore to the canneries is making deep-seafishing for tuna a lucrative business. However, there is a limit to the growth of the industry and thelimit comes from two primary sources: the sustainable development of the fish stock; and, theinfrastructure and on-land systems to support a sustainable, local fi sheries industry. At present,there is no clear indication of the carrying capacity of the albacore population in American Samoawaters, and there are no restrictions upon local fishermen to take the fish. However, theinfrastructure, including marketing systems, is inadequate to appropriately support the fishermen.

Improve the operating arena of the local fishing industry by providing adequate infrastructure and on-shore support

facilities and increase the capability to market and sell fish onthe local scene and in off-shore markets

ResponsibilityDOCDMW R

ParticipantsPBDCUHNMFSHawaiin AirDOI/OIAW PRFMCUSCGBOH & ANZ

ReferenceDMW R

Por t Mas terPlan 1999DPA

Strategies

identify sources of financial lending and methods of developing alliances,coops and partnerships to obtain and maintain a seagoing local fishing fleet

utilize the resources of the Pac ific Bas in Developm ent Counc il, the Universityof Hawaii Reseach Center and independent fisheries consul tants to develop amarketing scheme for local fishermen to sell their catch off-shore

invest in a Malaloa small boat harbor dock expansion capable of handling aliasand yachts up to fifty feet in length and provide waterside services

invest in upgrading facilities and equipment at the dockside to expand therecreational and sport fishing business

invest in a sm all freezer and cold s torage faci lity at the Malaloa wharf totemporarily hold the local fish catch for processing and pre-shipment of fish

invest in a public and private sector fish processing facility to handle andprocess the local fish catch for m arketing overseas

work with the airlines to secure regular and secured space for the shipment ofcommercial fish to Hawaii and the Mainland United States

devote more local resources for the protection of the Territory’s fisheries stockin cooperation with the reconnaissance operations of the U.S. Coast Guard

devote more local resources to purchase fish aggregating devices (FAD)sto improve catch frequency


II - 2 - 31

Re-InventingTourismPolicy

2.4.15 Re-Inventing Tourism and the Visitor Industry

Issue

Tourism arrivals fell off rapidly from the peak year of 1974 to less than one-third of thenominal arrivals in the mid-1970s by the early 1980s. Visitation numbers have remained low sincethen. The decline in tourism is a result of exogenous, globa l factors not under Am erica Samoa’scontrol, e.g., variable periodicity of large-aircraft service, and deteriorating conditions that could havebeen controlled within the realm of the tourism industry, i.e, deterioration of the Territo ry’saccommodations, a reputation as an unpleasant destination due to teeming, visible trash, a lack ofvisitor amenities, a lack of recreational activities, un-trained visitor service personnel, inadequatetourism management, and competition from m ore aggressive islands within the region.

Lead an aggressive campaign to re-invent tourism as animportant component of the Territo ry’s economy by embarkingupon a broad range of strategies to rectify the conditions thathave led to a decrease in tourism visitation and by launchingnew activities that respond to the trends of contemporarytourism throughout the Pacific Region and globally as well

Responsibili tyDOCGOVTPC

ParticipantsDLGDLAASHPOCAHDMW RDOEASCCASPADPWChamberRound Table

Reference(s)5-YearTourismAction Plan1994

AS EconomicAdvisory CommissionReport2001

Strategies

engage a qualified tourism consultant to assess the functions of the Office ofTourism and its mission to determine if restructuring or privatization arenecessary actions to lead the revitalization of the Territory’s tourism program

establish an ‘inter-agency tourism development council’ comprising agenciesthat have an inte rest in developing ‘cultural and histor ic’ tourism, ‘ec otour ism ’,‘adventure tourism’ and ‘educational tourism’ to cooperate and coordinate in anoverall tourism development package and implementation plan

formulate an ‘internal Office o f Touri sm three-year action plan’ to identi fypersonnel, resources and actions to carry out the strategies recommended inthis Territorial General Plan

formulate an Ecotourism Plan for the benefit of identifying and developingsmall businesses in communities and to set a course for promoting smallscale tourism on a gradually upward development path to minimize potentialcultural and environmental negative impacts

plan the renovation of the Fagatogo - Utulei area, including engaging a tourismplanning consultant to recommend future alternative uses of the RainmakerHotel, in order to develop the area as a tourism, entertainment and conferencecenter complex

construct or set up a Visitor’s Bureau Office to replace the present office in thehistoric Rainmaker Hotel at Utulei Beach Park


II - 2 - 32

5-YearTourismAction Plan1994

Tourism Strategies continued

utilize the Marketing Officer to assist the Office of Tourism w ith developing amarketing campaign for American Samoa

establish a tourism services training program at the American SamoaCommunity College with the assistance of the University of Hawaii, whichincludes the establishment of standards of practice and measures ofachievement

establish a tourism business and management program at the AmericanSamoa Community College with the assistance of the University of Hawaii

establish a Tourism Development Public Awareness Program to inform thepublic of the development initiatives on a regular basis

participate with the Department of Agriculture and the Department of Marineand W ildlife Resources to link the sales o f fish and agricultu ral production tothe desires of tourist consumption by identifying tourist desires and assistingwith the developm ent of an on-island m arketing and d istribu tion scheme toserve the tourism industry

implement the executable elements of the 5-Year Tourism Action Plan of 1994which include:

: Element 1. ... .Es tab lish a quasi-independent T ourism Authority : Element 3B...Implement a system of cooperative control of quality standards: Element 4:....Adopt revenue measures to implement portions of the 5-Year Tourism Action Plan: Element 5:....D through I, Develop tourism related facilities (done in accordance with agency plans): Element 6:....A through E, Design and implement targeted marketing programs: Element 8.....A through E, Provide better info rmation for touris ts and prom ote Public awareness: Element 9.....A and B, Adopt measures to increase air service levels, and work with Federal authorities to remove cabatoge regulations: Element 10...A through C, Establish regional Linkages: Element 11...A through E, Implement new system for tourism data collection and analysis


II - 2 - 33

Main Port EconomicDevelopmentPolicy

2.4.16 Air and Sea Transport

2.4.16.1 Seaports and Shipping

Issue

The main port is congested with ships backed up and wai ting to unload. Popu lation growth and increased fishing activities have led to increased and conflicting demands on the wharf and for

limited land in the harbor area. Port facilities are outdated and have significantly deterioratedbecause of a lack of financial resources for maintenance and upgrades. The port collects revenuein excess of $4.0 million per year. About two-thirds of the revenue is returned to the General Fund,leaving the port without enough funding to make s ignificant improvements . These problems, theshort supply of capital improvements funding and low port tariffs are making the port an inefficientand costly operation.

Make the port an efficiently run organization capable of supporting the growing demands of the shipping industry and

supporting the local economy by restructuring the port as anautonomous Port Authority and by giv ing it full control over itsdevelopment policies and financial management

ResponsibilityDPAGOV

ParticipantsDOCWHURPDOIDT

ReferencePortMaster Plan2000

Strategies

enact legislation to transform the Department of Port Administration into aPort Authority with full control over its financial management

take administrative actions to include a comprehensive review and analysisleading to the revision of the tariff schedule to increase revenues

use a portion of the increased revenues to employ qualified mechanics,engineers, pilots and certified captains and boat operators

assess the potential for using bond funding to acquire additional financialsupport to improve the port’s facilities, upgrade equipment and construct newfacilities

engage a consultant to i dentify how the por t can be made more attractive toeconomic development from outside sources and to propose new initiatives

launch a l obbying campaign at the U.S. Congress for supplemental funding toconstruct a new container yard at the canneries to relieve the service load atthe main wharf, and to build a new inter-island ferry and cruise ship accesswharf as defined in the Port Master Plan

work wi th the W est Harbor Urban Renewal Program Committee to realizeincreased efficiency of port operations and on-shore transport m ovementsrelative to the comprehensive design for the Fagatogo-Pago Pago shoreline


II - 2 - 34

Airports FinancingPolicy

2.4.16.2 Airports

Issue

The Pago Pago International Airport now has a 10,000 foot runway capable of receiving the largest of aircraft for passenger and cargo flights. While the airfield has recently been improved,other facilities at the airport are deteriorating. The terminal com plex is meant to be replaced, butthere are no Capital Improvement Program funds for the purpose. The primary problem w ith theairports is now the ability to find funding to finance the needed improvements. The Pago PagoInternational Airport receives no capital improvements funding and the Federal AviationAdministration (FAA) requires a ten percent match on projects costing over $2.0 million dollars.Presently the airport relies upon the Passenger Facility Charge (PFC) for making improvements.These funds are not sufficient to run the airport and the airport constantly runs a deficit in the areaof $500,000 per year. In addition, the airport has a deficit burden of $1.0 million dollars in matchingfunds owed to the FAA. In order to raise the funding, passenger throughput must be raised to a levelwhere it can make advantageous changes. In order to move more passengers through the airport,there needs to be reason for passengers to come to American Samoa. W hen passengers arrive,they want to find a m odern airport with the ability to service them properly and effic iently.

Identify fiscal policies and strategies to boost the revenuesof the airports and transform the airports into an autonomousAirport Authority and give the authority full control over itsdevelopment policies and financial management

ResponsibilityDPAGOV

ParticipantsDOCDLADT Reference(s)Pago Pago I n t e r n a ti o n a lAirport MasterPlan1996

Initial Fiscal Reform Plan2001

Strategies

establis h a financial management plan to cover current operating cos ts, torecover debt, and to meet the matching requirements for FAA grant awards

implement a cost containment program, including a staffing plan to reduce thenumber of employees

raise landing fees that are artificially low for the Manu’a flights in order to boostrevenues and pay for improvements at the T a’u and Of’u airports

evaluate the best use of its off-airfield land parallel to the Ili’ili road in terms ofmaximizing revenue from future lease fees

balance the budget and c reate an Airport Authori ty to manage the a irportsindependently of government supervison

issue non-taxable revenue bonds to improve the facilities at the airport and paythe interest and principal from earnings of the Ili’ili road leases


II - 2 - 35

UtilitiesFinancing Policy

2.4.17 Utilities and Energy

2.4.17.1 America Samoa Power Authority

Issue

The Am erican Samoa Power Author ity (ASPA) is experiencing problems with m eeting itsfinancial obligations. The reasons for the problem include: the elimination of the WastewaterDivis ion’s annual subsidy from the government; fees and charges for collection and disposal of theSolid W aste Division which do not meet its expenses; and a cash flow crisis caused by 1) purchaseof large capital items out of its electricity revenues, 2) poor cash collections from the AmericanSamoa Government for its electricity bills, 3) for operating the Solid Waste and the W astewaterDivisions at a loss , and 4) for insufficient perform ance at co llecting charges from customers.

Apply reasonable financing measures to recover the costs ofutility operations and to secure capital funding to replace andconstruct utility infrastructure for a sustainable system

Responsib ilityASPA

ReferenceASPA

Strategies

Apply a water rates review, which would include was tewater rates, andincrease rate collection to meet a ‘break even’ level of revenue

Include depreciation and the cost of matching funds for construction in thecalculation of new collection fees for the electrical system, and increase feesto meet operating expenses

implement conservation m easures to work towards financ ial sus tainabili ty

initiate a process to recover late payments and delinquent collections

secure loans from alternative sources, as the Rural Util ity Service of the U.SDepartment of Agriculture

investigate the issuance of revenue bonds to apply toward construction and thepurchase of capital equipment

investigate opportunities for applying special assessments to industrial firms


II - 2 - 36

TelecommunicationsFinancePolicy

2.4.17.2 Telecommunications

Issue

The American Samoa Telecommunications Authori ty (ASTCA) has been ab le to keep up w ithtechnological changes in the telecommunications business and provide the Territory with goodtelecommunication services. ASTCA’s primary problem, as with most government agencies, is theinabili ty to recruit and retain qualified technical and engineering specialists and to have currentemployees skills updated. Low wages, compared to the U.S. Mainland and insufficient budgets foroperations are the main factor involved. Secondly, ASTCA is facing a dilemma which wi ll have toplay itself out. It involves technological and service arrangements in the national and globaltelecommunications market, the Territory’s desire to link to the North American Plan for access asnational interchange, and the Territory’s interest in joining in the Federal Bureau of Investigationstelecommunications surveillance program. All three options would eventually cost millions of dollarsthat ASTCA is presently unable to afford. The last would cause American Samoa to abrogate someof its unincorporated Territorial rights for Federal cooperation.

Improve the capability of the American Samoa Tele-communications Authority to render its services effectively and efficiently and afford the Authority the capability to adjustto changes in the national and global markets

ResponsibilityASTCAGOV

ParticipantsDLA

2.4.17.3 Energy

American Samoa is not us ing alternative energy and not presently experimenting withalternative forms of energy. The Territory and the economy is fundamentally dependent upon fossilfuel for electr ical generation and upon the regu lar supp ly of diesel oi l to fire its electrical generators.In the event of fuel shortages, the Territory could be very susceptible to fuel supply disruptions.There are several options for producing energy in the Territory, however, emperical studies need to

Strategies

provide ASTCA with additional funding to be able to recruit and maintaintechnical and engineering s taff

provide ASTCA with additional funding to be able to obtain technicalassistance to train local technical staff and upgrade their skills

utilize the American Samoa Community College to provide a customer servicetraining program which inc ludes attitudinal and motivation instruction

utilize the Department of Legal Affairs to assist with the analysis of legal issuesassociated with joining national markets and affiliation with Federal program s


II - 2 - 37

Energy Efficiencyand AlternativeEnergy Policy

be conducted to determine their feasibility. These options include solar, wind, wave and oceanthermal energy conversion (OT EC).

The second problem facing the T erritory and the economy is one of effic ient energy usage. There needs to be better public awareness of the need to conserve energy and to use energyeff ic ientl y. Many of the products imported into Territory are not energy efficient. The high cost ofimporting U.S. energy efficient components is countered by reta ilers opting to supply inexpensiveappliances that are the least effi cient and do not save energy.

Grow and sustain an interest in energy efficiency andrenewab le energy, identify v iable energy supply alternativesthat reduce dependence upon outside sources of energy, andincrease the availability and affordability of energy efficientproducts

ResponsbilityTEO

ParticipantsASCCASPAOPTOFRNOAAFAADLA

ReferenceR e b u i l d A m e r i c a n S a m o a Partnership Action Plan2000-2005TEO2000

Strategies

become more involved in regional programs to take advantage of orientationprograms and planning for energy efficient solutions

integrate energy efficiency and environmental preservation programs, includingsolid waste disposal, to capitalize on resources that might be shared

conduct a solar energy feasibility study, a wave energy resource study and anocean thermal energy conversion (OTEC) feasibility study

conduct a waste to energy resource study incorporating the need to dispose oforganic and non-organic materials

conduct a distributed genera tion energy study to determine the impact privatedistributed energy could hold for the future needs of the Territory

develop and energy and environment section in the public libraries to raisepublic awareness of energy issues

provide local workshops for training in all aspects of design and construction ofenergy efficient structures

write, approve and adopt appliance standards for government purchases

make an accomm odation on the import duty for energy efficient products thatmeet or exceed Energy Star performance criteria


II - 2 - 38

E-CommercePolicy

2.4.18 E-Commerce

2.4.18.1 DELTA Consortium (Distance Education, Learning & Telehealth Applications) and Private Sector Interests

Issue

This is a new area of focus for econom ic developm ent within the Ter ritory, and is to serve toexpand opportunities for internet-based businesses in primarily the service industry. It is based onthe expansion of the infrastructure needed to operate internet-based businesses, such as fiber opticaccess lines, satellite dishes and internet service providers. Part of the infrastructure picture is alsocreating a employee base to support this industry. The Terr itory is in need of diversifying itseconomic base and developing higher paying skilled jobs in sustainable industries.

Develop necessary infrastructure to sustain the development of aviable internet service, tra in local work force in e-Commerce skills,identify viable business opportunities for enterprises that expandthe local job market and reduce dependence on a few industriesand government.

ResponsibilityDELTA ConsortiumeCDC

ParticipantsASCC, ASPA, DOE,

ASTCA, DOC, Retire-ment Fund, Chamberof Commerce & pri-vate sector in terests

ReferenceStrategic Planfor e-Commerce andI n f o r m a t i o n T e c h n o l o g y Development in American Samoa[DELTA/ASPA/Pacif i ceCDC]

Comprehe n s i ve E c o n o m i c D e v e l o p m e n t S t ra tegy (C E D S)2003" [DOC]

Transform ing the Economy of Amer-ican Samoa [ASEAC]

* Section revised [2/4/04 - DOCcjs]

Strategies

establish and fund Information and Comm unication Technology (ICT)

business attraction, marketing assistance and business development

organizations.

cultivate public -private partnerships and assist start-ups that expand local

business opportunities an d create skill ed local jobs.

develop self-sustaining ICT Business Incubation Facility(s) providing

equipment and training in internet-based business activity.

develop an Information Technology ( IT) Education and Training Program at

local schools and the commu nity college (AS CC) providing academic c redits

and pro fessiona l certi fication in c omputer/networking applications.

seek continued federal funding to augmen t the Territory’s resources for

investment in capital improvements, systems management and labor force

training and development .

support private sector interests, the DELTA Consortium and the Pacific

eCommer ce Developmen t Corporation (eCD C) [a cooperative ventu re] to

facilitate facility development, project funding and comprehensive

development of the e-Commerce indu stry.


II - 2 - 39

Chapter Two: Commerce and Economic Development


2.2 Summary of Principal Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 32.2.1 Overall Policy of the Commerce and Econom ic Development Component of the Territorial

General Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 32.2.2 Principal Policies for Econom ic Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 4

2.3 Review of Economic Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 52.3.1 Economic Vision and Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 52.3.2 Planning and Federal Participation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 52.3.3 Dependence on the Base Economy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 5

2.3.3.1 Canneries and Sustained Presence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 62.3.3.2 American Samoa Government Financial Management . . . . . . . . . . . . . . . . . . II - 2 - 6

2.3.4 Lack of Private Sector Diversification . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 62.3.5 Development Deficiencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 7

2.3.5.1 Macro- and Microeconomic Policy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 72.3.5.2 Investment Capacity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 72.3.5.3 Public and Private Partnerships . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 82.3.5.4 Marketing Systems, Promotion and Foreign Investment . . . . . . . . . . . . . . . . . II - 2 - 82.3.5.5 Regional Networks and Cooperation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 82.3.5.6 W orkforce Deficiencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 82.3.5.7 Insufficient Infrastructure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 92.3.5.8 Land and Land Availabili ty . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 10

2.3.6 Underdeveloped Local Sectors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 102.3.6.1 Agriculture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 102.3.6.2 Fisheries Lim ited by Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 112.3.6.3 The Visitor Industry and Tourism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 11

2.3.7 Manu’a Islands Economic Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 12

2.4 Policies and Strategies for Comm ercial and Economic Development . . . . . . . . . . . . II - 2 - 122.4.1 Vision via Economic Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 13

2.4.1.1 Participation in Economic Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 132.4.1.2 Comprehensive Economic Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 14

2.4.2 Federal Cooperation and Coordination Toward Econom ic Achievement . . . . . . . II - 2 - 152.4.2.1 Policy Coordination with Federal Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 152.4.2.2 Cooperation with Federal Agencies for Development . . . . . . . . . . . . . . . . . . II - 2 - 16

2.4.3 Developing a Cannery Presence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 172.4.4 Government Fiscal Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 182.4.5 Macroeconomic and Microeconomic Policy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 19

2.4.5.1 Macroeconomic Policy - Broad Economic Policy . . . . . . . . . . . . . . . . . . . . . . II - 2 - 192.4.5.1.1 Econom ic Research and Analysis Capacity . . . . . . . . . . . . . . . . . . . . II - 2 - 192.4.5.1.2 Macroeconomic Policy Initiatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 20

2.4.5.2 Microeconomic Policy- Small Business Development . . . . . . . . . . . . . . . . . . II - 2 - 212.4.6 Acquiring Investment Capacity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 232.4.7 Creating Public and Private Partnerships . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 242.4.8 Developing Marketing Systems and Promotion . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 252.4.9 Improving Regional Networks and Cooperation . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 262.4.10 Forming a Skilled Workforce . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 282.4.11 Furnishing Adequate Infrastructure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 292.4.12 Securing Developable Land . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 302.4.13 Revitalizing Agriculture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 31


II - 2 - 40

2.4.14 Upgrading Fisheries Development Capacity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 322.4.15 Re-Inventing Tourism and the Visitor Industry . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 332.4.16 Air and Sea Transport . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 35

2.4.16.1 Seaports and Shipping . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 352.4.16.2 Airports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 36

2.4.17 Utilities and Energy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 372.4.17.1 America Samoa Power Authority . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 372.4.17.2 Telecommunications . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 382.4.17.3 Energy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 38

2.4.18 e-Commerce . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 2 - 39

II - 3 - 1

Chapter ThreeEnvironment and Resource Management


This chapter focuses upon the policies andstrategies the American Samoa Government canimplement with best practices between 2002 and2005 to protect and preserve the environmentand the Territory’s natural resources.

The policies and strategies, which appear insection 3.4 of this chapter, address the mostacute environmental and resource managem entissues identified during the scoping and panelinvestigation process to formulate this plan.

The issues primarily focus upon concernsabout the terrestrial and coastal environment andthe Terr itory’s natural r esourc es. T hemaintenance of water quality and thepreservation of marine life are predominatethemes in this chapter. Moreover, the primaryissues converge on land use and developmentpractices and exploitati on of the Territo ry’sresources. Air quality, a common problem forthe continental United States and developedcountries, is not a principal concern for AmericanSamoa a t this tim e.

After a summary of the principal policies insection 3.2, and a brief discussion of theprincipal issues in section 3.3 of this chapter, thepolicies and strategies follow and are presentedon the basis of the organization and mandates ofthe agencies of the American SamoaGovernment.

The policies and strategies in this chapteraspire to achieve the following aims or goals:

• development of cooperation and coordinationamong American Samoa Governmentagencies and departments to create thecapaci ty to effec tively manage the Terri tory’snatural resources;

• the ability to integrate long-term planning andthe development of policies among agencies

to better protect and preserve the Terri tory’senvironment and natural resources;

• the integration and co-sponsorship ofprograms to limit redundancy of efforts andto achieve maximimum utilization of humanand financ ial resources to enforce laws andregulations to protec t the environment;

• a well-informed public with the knowledgeand awareness o f the resourcemanagement, protection and preservationpractices requi red to sustain the Territo ry’senvironment and natural resources in ahealthy state;

• individuals and com muniti es com mitted toeliminating activities and causal factors thatcontribu te to degradation of the environmentand depletion of resources; and

• a balanced approach to development whichassures economic and soc ial developmentwithout degradation of the Ter ritory’sterrestrial environment or deple tion of itsnatural and marine resources or w ildlife.


3.1.1 Overall Policy for the Environmenta n d R e s o u r c e M a n a g e m e n tComponent of the Territorial GeneralPlan

Focus upon creating the capacitywithin the American Samoa Governmentto effectively manage the terrestrial,coastal and natural resources ofAmerican Samoa’s islands and toprotect and preserve the environment forthe future sustainable development of theTerritory

This mission is supported by policies andstrategies in section 3.4 of this chapter. Theyare briefly outlined on the following two pages to

Part II: Chapter ThreeEnvironment and Resource Management Policies

II - 3 - 2

provide a quick overview of th is chapter’scontent and strategic direction.

3.2.2 Principal Policies for the Environment and Resource Management

• Promoting Long-Range Environmental Planning......support the implementation of long-rangeplanning for the economic, environmental and cultural and social sustainability of the Territory

• Promoting Public Awareness for Environmental Protection........promote a sense ofresponsibility at the community and individual level to improve the environment of the Territory

• Complying with Environmental Laws...... create a s trong com mitm ent to compliance withenvironmental laws and regulations through public education programs

• Preserving Groundwater Quality ......implement habitat restoration and protective measures inorder to end pollution of the Territory’s groundwater resources and drinking water

• Disposing of Solid Wastes Properly ......develop an effective program to manage the disposalof wastes and to regulate and protect the community from the impacts of hazardous materials

• Observing the Proper Use of Pesticides and Chemicals ......ensure that only legal pesticidesand chemicals are used and usage is within the recomm endations of the manufacturer

• Dealing with Piggeries Pollution......focus upon piggery waste management pr incipal s toreduce piggery pollution as a major source of non-point pollution

• Preserving the Forests......promote the retention of forests throughout the islands, discouragethe clear ing of fores ts and encourage bes t practices to preserve the well-being of the forests

• Eradicating Invasive Species......eradicate invasive species through intensive assessment andmonitoring, legislation enabling their eradication, and strict quarantine procedures

• Supporting Traditional Knowledge......support traditional knowledge and agricultural practicesthat are environmentally friendly and transmit valuable knowledge

• Preserving Unique Areas of Env ironmen tal Signif icance.... promote conservation of acquiferrecharge areas, special habitat sites, watersheds and coastal areas of environmental importance

• Preserving the Wetlands......establish programs to promote the retention, restoration andpreservation of wetlands and programs to reduce degradation and depletion of wetlands

• Promoting the Preservation of Coral Reefs.....include science instruction in the educationsystem and implement public awareness programs to address the threats to coral reef systems

• Stopping Over-Harvesting of Marine Life......reduce the over-harvesting of marine life and reeffish and maintain sustainability of their stocks with education and restrictive legislation

• Protecting the Oceans’ Resources......develop policies and planning to manage and protect theocean environment and advocate the modification of laws and regulations to protect the ocean

• Assessing the Pelagic Fish Stock...... evaluate pelagic fish stocks for sustainability undercontinuous fishing pressures and establish policies and guidelines for the harvesting of pelagicfish


II - 3 - 3

• Protecting Native Birds and M ammals ......monitor, manage and control the impact of humanactivities upon wildlife to sustain native fauna species and to remove the threats to them

• Managing Cumulative and Secondary Impacts....implement long-range, integrated p lanning toreduce, mitigate or eliminates negative impacts c aused by inappropriate development

• Controlling Coastal Hazards......strengthen the ability to protect coastal resources througheducation and public awareness programs and better enforcement of resource regulations

• Halting Unsound Development Practices......curtail unsound development practices bycreating appropriate legislation and restrictions that can be effectively administered by the PNRS

• Studying Population Growth and Immigration......study migration and movement within theTerritory to adapt the Territory’s planning programs to the changing characteristics of thepopulation

• Promoting Community Inspired Policies and Development..... in consort with the social,commercial and environmental aspirations of the community compatible with comprehensiveplans

• Adopting Land Use Management......formally adopt the Tualauta County Land Use Plan andimplement the land use management policies and ac tions for the rational and best use of theland

• Applying Resource Management Planning in Tafuna.....implement the developmentassessm ent studies, resource management planning, and the utilities and infrastructure plansrecommended in the Tualauta County Land Use Plan to foster appropriate human settlement anddevelopment

• Promoting Land Conservancy Planning.....designate new land areas for recreation andconservation and develop land use policies that allow for the use of communal open space

• Revitalizing the Pago Pago Area...... promote the urban renewal and revitalization of thePago Pago Bay area through community development initiatives and urban renewal programs

3.3 Brief Review of Environmental Issues

There are three prevalent issues that appearthroughout this environment chapter and arecommon issues for the resource managementagencies. They contribute significantly to thestate-of-the-Territory’s environment. They are:

• the environment of the Territory is degradedand its natural resources are being depleted;

• the public, comm unities and individuals donot possess adequate knowledge of theiractions which damage the environment, orthey do not possess positive attitudes towardprotecting the environment; and

• the laws and regulations governing theconservation, protection and preservation ofthe environment are inadequately enforcedby enforcement agencies or individuals withthe responsibili ty for enforcement.Most areas of the environment have been

diminished, degraded or depleted to variousdegrees. Some types of damage from naturalcauses can be eventually overcome by natural,ecological renewal processes, while in othercases, there will be no opportunities for renewalfrom human development activities.

The coral reefs on Tutuila sustainednoticeable damage from the hurricanes in the


II - 3 - 4

early 1990s, an invasion of ‘crown of thorns’starfish in the late 1970s, and from bleaching anddie-off caused by El Nino low-tide events in 1994and 1998. The coral reefs are slowly recoveringfrom those natural events, but they are beingimpacted by human settlement along theshoreline and siltation caused by improperconstruction and development practicesupstream of the coastal shores . In addition, theyare constantly being degraded by the dumping ofsolid wastes and by the disposal and/or misuseof chemical agents, like soaps and detergents.

Marine resources, which have traditionallybeen a staple of the Samoan diet, including fishand a range of reef marine life, are presentlyunder stress from overfishing in some reefareas. The rapid growth of the human populationand the demand for fish have raised the concernthat the fish stock could be depleted withoutproper controls and management. These arenoteworthy concerns, as a rapid escalation ofbottomfishing in the 1980s quickly led to alessening of the stock. And most recently, theU.S. National Marine Fisheries Service placedlimi ts on the number of large boats that couldfish in American Samoa’s offshore waters forcommercial pelagic fish, due to the concern forthe sus tainabi lity of the fish stock.

American Samoa’s wetlands are under siegefrom human settlement. It has been estimatedthat as much as seventy percent of the island’swetlands have been lost to development since1900. Of the wetlands remaining, most areseriously threatened by human activities thatwould degrade the health of the ecosystems, asrepositories of wastes, or from cutting ofmangrove trees, an important ecological habitatfor the renewal of marine life.

Improper land use and development activitiesand improper human settlement threaten toimpact the Territory’s terrestrial environment,wildli fe and water resources. The lack ofcomprehensive land use policies and planningregulations are at the root of the problem, as wellas the lack of effective enforcement of resourcemanagement laws and regulations that wouldprotect the environment.

There is paramount concern that the futureunregulated residential and commercial

development of the watershed and rechargeareas of the Tafuna Plain and Malaeim i Valley,the Ter ritory’s primary source of drinking water,will degrade and contaminate the fresh wateraquifer that lies beneath these areas. There isalso concern that improper agricultural activities, the improper use of herbicides and pesticides,the dumping of chemicals, poorly controlledpiggery wastes, and the lack of propermanagement over septic systems will alsocontribu te to groundwater contamination andserious health problems that the Territory has notyet experienced.

The disposal of solid wastes has been aserious problem for many years. Wastecollection and waste management has im provedmarkedly in the last several years, but trash andrubbish can still be seen along the sides of theroad and in the streams. Not only has themishandling of wastes resulted in healthproblems, but it has degraded the aestheticbeauty of the islands and discouraged thedevelopment of a tourism trade. Secondly,wastes management is becoming a greaterproblem due to the importation of non-biodegradable and non-recyclab le produc ts.

Many of American Samoa’s environmentalconcerns can be attributed to public awarenessand the enforcement of laws that would m itigatethe issues , but the Territory also needs tostrengthen its environmental and land useplanning efforts wi th laws and regulations toaccount for 21st Century development issues.

As of 2002, there are still no formal land useand zoning regulations that apply to the Terri tory.The Territory’s planning statutes and regulationsare out of date and cannot contribute to thecontrol of future development as they stand.Controlling growth is a serious problem of theT er ri tor y, and unfortunately improperdevelopment practices are widespread.

The Terr itory’s rapid population growth couldlead to extensive clearing of land on Tutuila ’ssteep slopes for new housing as lowlandsettlements fill. Deforesta tion is al ready an acuteissue that leads to cumulative impacts upon thegroundwater resources, the floodplains, andeventually siltation of the coastal reefs. Theconsequences of deforestation are invariably soil


II - 3 - 5

ASEPAStrategic Policy

erosion and hazardous landslides during periodsof heavy rainfall. Deforestation for agriculture andhuman settlement also results in the removal ofwildli fe habitat.

At present the impacts upon the wildl ife, i.e.,birds and mammals, from human settlement anddeforestation are not well known, nor are theeffects of invasive species of wildlife upon nativespecies. However, there is the potential for invasive species of plant life to overtake thenative forest and destroy the habitat andresources upon which the wi ldli fe rely.

3.4 Policies and Strategies

3.4.1 American Samoa Environmental Protection Agency

3.4.1.1 Territorial Environment

Overall Issue

Although the Samoan culture creates a strong sense of community among the people,the practice of shared responsibility is not applied to pollution control or other environmentalproblems. The result is that the population recognizes many of the consequences of increasedpollution, but concerted efforts at mitigation are negligible. At the individual level, Samoans oftenhave expectations as to what actions their government should take to manage the mountingcrisis of pollution on their islands. T he government, in turn, often considers these same actionsthe responsibility of the community and individual. Because there is a modest tax-base, and noproperty taxes levied in Am erican Samoa, government services are understandably lim ited toessential services. Pollution prevention and control is largely, and appropriately, theresponsibility of communities and their individual mem bers. Changing people’s andcommunities’ behavior may be a much more cost effective means to make long-lastingimprovements to environmental health, than are government regulatory actions. However, publicawareness about environmental protection at this time is inadequate to affect a change.

If public awareness of pertinent environmental issues remains inadequate, publicbehavior

and attitudes toward the environment will not improve until quality of life is significantly affected,but by then, it may be too late to remedy the situation. If public awareness does not improve,popular support for enforcement of environmental laws will also remain low.

Promote public awareness for environmental protection andpreservation; and promote a sense of responsibility at thecommunity and individual level to create a vision o f improvedlong-term env ironmen tal health for the Territory


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Groundwater QualityPolicy

ResponsbilityASEPA

ParticipantsASPADOCDOHDLGDOEDOABusinessDMW R

ReferenceTGP ASEPAIssues 2001

3 . 4 . 1 . 2Groundwater and Potable Water

Issue

The Americ an Samoa Environmental Protection Agency is concerned about thecontamination of groundwater resources that provide the Territory’s drinking water. Improperland development due to poor enforcement of development regulations, insufficient maintenanceof septic systems, piggeries and poor waste management practices are potential sources ofgroundwater contamination. Lack of knowledge about the impacts upon human health,insufficient public awareness, and a lack of enforcement of violations contribute to the risk ofcontamination. Developers and road builders use unregulated construction methods, farmersuse pesticides and chem icals improperly, piggery owners do not contain hog urine and fecalwastes, and homeowners do not dispose of liquid and solid wastes properly. Thesedevelopment problems might be lim ited or mitigated if there was dedicated enforcement andadequate legal staff to stop the contamination. Unfortunately, there is a lack of enforcement andpunitive damages are not strong enough to have effective results.

If measures are not taken to control the sources of contamination, groundwater quali tywill

progressively decline to the point where more costly water treatment will be necessary. Thesecosts will be passed on to the custom er, and the probability of serious health problems, suc h asgastroenteritis will increase. If groundwater quality is protected, treatment of water will remainrelatively simple and affordable and the incidence of water-borne diseases m ay decrease.

Focus on community participation to develop a growingcycle of environmental awareness among the public; andimplement hab itat restoration and protective measures inorder to end wide-spread pollution of the Territo ry’sgroundwater resources and properly protect the Territory’sdrinking water

Strategies

integrate the concepts of watershed protection and management into allapplicable program activities and focus on watersheds because water is theprimary means of transporting pollutants and disease

aggressively promote that the onus of responsibility for resource managem entand environmental protec tion is on the individual and com munity

focus on public education and outreach, and focus staff training efforts onbasic fundamentals and scientifi c princ ipals to i ncrease ASEPA staffcapabilities

carry out a consistent and focused public education program that emphasizesprivate sector responsibility for environmental health and comm unity well-being


II - 3 - 7

ResponsibilityASEPA

ParticipantsASPADLADOCDPDDOHDPWDLGDOEFono

ReferenceTGP Agency Issues 2001ASEPA

3.4.1.3 Nearshore Water Quality

Issue

Improper development and waste management results in significant degradation ofcoastal water quality. Although public information programs have been used in the past to alertpeople to the dangers of poor waste disposal practices, there still remains a lack of knowledge ofthe links between actions on land and water quality. There is still insufficient public awareness

among thepublic aboutthe impacts oftheir actions.

Communication,coordination andcontrolsmeasuresmust beimprovedto provideaccura teinformation aboutpollution atsea.Information andcontrolover

Strategies

monitor and regulate the quality of the public water supply

implement groundwater education and conservation measures

continue the watershed education and riparian habitat restoration program

implement the American Samoa W atershed Protection Plan, and the AmericanSamoa W etland and Stream Restoration and Enhancement Plan

promote the use of stormwater controls and support legislation to limit poordevelopment practices, and monitor developments to mitigate and implem entstrategies that reduce water qual ity impacts

eliminate illegal cesspools and promote proper septic tanks and connections othe sewer system; and establish proper protection for well-heads in or nearwatersheds to reduce the risk of contamination


II - 3 - 8

Coastal andNearshore water Quality Policy

sources of pollution at sea is also a problem . Monitoring of pollution and coastal resourcesrequires the assistance of fishermen, business and industry, the Department of PortAdministration, the Department of Marine and Wildlife Resources and the U.S. Coast Guard. areissues to be remedied.

If coastlines and beaches wil l become more polluted there wi ll be a significant negati veimpact upon the marine environment and availability of marine life for food resources. Severeeffluent discharges will pose health risks to beach-goers and fisherm en. Polluted coastal andnearshore waters will discourage tourism developm ent.

Create a strong commitment to compliance with

environmentallaws and regulations through public education and developprograms, policies, laws and regulations to prov ide betterenforcement of the Territory’s Environmental Quality Act

ResponsibilityASEPA

ParticipantsASCMPDPADLADLGDOHDPADPSDOEKVZK

ReferenceTGP AgencyIssues 2001ASEPA

3.4.1.4 Solid Wastes

Issue

Illegal dumping and the accumulation of solid waste presents a health andenvironmental

problem. There is a lack of knowledge of the impacts of solid waste upon the environment. Thelack of awareness of environmental issues is com mon among sc hool children, Pulenu’u and thecommunity at large. Littering and dumping violations are comm onplace. Enforcement of existingregulations is di fficult, because of ine ffective enforcement and lack of poli tical and public toimprove solid waste disposal.

Strategies

assess over time the success of Non-Point Source management measures inreducing pollution loads and improving water qual ity

continue to pursue am endments to the Territory’s Environm ental Qua lity Act toimprove compliance wi th environmental laws and regulations

establis h a public information program to enc ourage compliance wi thenvironmental laws through voluntary, cooperative methods

establis h an appropr iate and credible enforcement component to the agency toprovide more consistent and rigorous enforcement of environmental laws

estab lish a public education campaign to provide an orientation to ASEPA’senforcement program and work with other enforcement agencies to orient theirstaff to the needs of enforcement environmental laws


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Solid WasteDisposal Policy

If measures are not taken to reduce illegal solid and hazardous waste disposal, theeffects of these pollutants on the environment and quality of life will increase. Visual pollution willadversely affect the local tourist industry. Most importantly, accumulation of solid wastes poses aserious health hazard as these sites provide breeding grounds for rodents and mosquitoes whichspread diseases to people. Indiscriminate dumping of solid waste includes glass and scrapmetals that can cause injury. In an attempt to reduce trash piles by burning, toxic fumes fromplastics, rubber , and meta ls, such as lead, a re released. These fumes are a serious th reat tohuman health.

Develop an effective Territory-wide program to proactivelyreduce the creation of solid waste and manage thesegregation, disposal and recycling of wastes

ResponsibilityASEPA

ParticipantsASPAASMCAASTCADOEDOHDPSDLADPATEMCODPWKVZK


3.4.1.5 Piggery Waste

Issue

Piggeries waste has become a serious problem as the urine and fecal matter from the concentration of pigs is contaminating the groundwater supply and affec ting ecosystems. Inadequate waste management practices at piggeries are a source of the contamination. Pigowners and farmers do not adequately understand the impacts of poor animal husbandrypractices and they lack knowledge of proper management techniques. There is als o insufficientawareness among village leaders of where pigger ies should and should not be s ited.

Strategies

continue the public awareness programs to alert people to the dangers ofimproper solid was te disposal and focus on education in the schools andoutreach programs to reduce littering and the misuse of chemicals /pesticides

enhance ASEPA’s ability to maintain control over and restrict hazardousmaterials use, including providing better enforcement and strict inspec tions ofvessels to eliminate illegal chemicals from entering the Territory identify and require closure of contaminated sites and follow with cleanups

support recycling and develop incentives and programs to recycle wastes

develop incentives to restri ct importation of non-recyclable materials and short-lived mater ials and equipment that w il l be costly to e ither store or remove

improve the monitoring program of chem ical use and develop a betterprepared response to emergency situations and the release of hazardousmaterials

develop a plan for the disposal of heavy equipment, vehicles and non-


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Piggery WasteManagementPolicy

The problem is controllable and treatable but the problem has been created from; a lackof

awareness about the impact of piggery fecal wastes upon the environment; a lack of enforcementof existing public health laws that pertain to control of piggeries and animal wastes; a lack ofeconomic incentives for good animal husbandry towards controlling the situation; a lack ofknowledge of diseases associated with piggeries, and a lack of planning and zoning foragriculture and animal husbandry that would isolate piggeries and guard the groundwater supply.Furthermore, the control agencies, i.e., ASCMP and ASEPA, have been limited by the number ofstaff capab le to dealing with the problem. ASPA has been attempting to provide incentives, e.g.,composters and sewage hook-ups, but all agencies are limited in their resources to mitigate theissues .

In 2000 the the Interagency Piggery Management Counci l was c reated to deal withpiggery wastes and management. The Counci l consists of ASEPA, the Community and NaturalResources Division and the,Extension and Forestry Divisions of ASCC, the USDA-NaturalResource Conservation Service, the Soil and Water Conservation Board and the ResourceConservation and Development Council. During FY2001 the Interagency Piggery ManagementCouncil sponsored workshops for the general public that promoted environmentally friendlypiggery designs and basic animal husbandry skills. The Council also conducted workshops forvillage mayors and religious leaders to explain the necessity of the piggery program. Since theprogram is new, the long-term effects of its activities are not known.

If the number of piggeries and pigs increase, the effects of animal waste pollution willincrease the contamination of surface water, ground water and coastal waters. T his will threatenpublic health by increased bacteriological contamination of ground water and surface waters thatare still used by some people for drinking and bathing. From the perspective on non-humanimpacts, the effects of animal was tes being directly discharged into the environment increasesnitrogen and phosphorous loads that adversely affect watersheds, streams, and the coastalenvironment by decreasing oxygen supply due to rapid algae growth.

Focus upon piggery waste managem ent principles to reducepiggery pollution as a major source of non-point pollution inAmerican Samoa; support the development of controls ov erpiggery waste for the preservation of a healthy environmentthrough the activities o f the Interagency PiggeryManagement Council and promote the education of villageleaders, piggery owners and the public about piggery wasteissues


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ResponsibilityASEPA

ParticipantsASCC-CNRASPADOC-ASCMPDLADLGDOADOCDOHKVZKFonoNational ParkNRCS


TGP IssuesStatement2001ASCC-CNR

Strategies (Piggeries)

develop support within the American Samoa Government for continuing theInteragency Piggery Management Council’s program and continue the activitiesestablished in 2001 to enhance public awareness of the dangers brought aboutby piggery contamination

identify appropriate methods for the best disposal methods of piggery wastes

increase the number of sanitation inspectors and provide education regardingpiggery control requirements and diseases related to piggery functions

identify incentives to bring piggeries into compliance with waste managementschemes

cooperate and coord inate with the Departm ent of Agriculture to educate and toprovide technical assistance for the public and farmers to understand bestmanagement practices for piggeries

work with the Office of Samoa Affairs to strengthen the public awareness of theproblems of piggeries and the need to control their wastes among the villagemayors, in order to gain their cooperation in lessening the impact of piggeriesupon the environm ent

work with the media to develop public education programs about the impact ofpollution and piggeries upon the environment

cooperate in the development of land use plans and zoning regulations for thesiting of piggeries in appropriate areas


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3.4.2 American Samoa Coastal Management Program

The American Samoa Coastal Management Program (ASCMP) was established byexecutive

order in May of 1980 with a broad mandate to coordinate government processes relative to villagedevelopment, to review development activities, and to manage and protect the Territory’s naturalresources. In 1988, the responsibil ities of ASCMP were expanded by executive order to includeadministration of the Project Notification and Review System (PNRS), which issues land usepermits.

The ASCMP enabling legislation was again superseded by the Coastal Management Actof

1990 (P.L. 21-35) which provided ‘that the general purpose of ASCMP is to provide effectiveresource management by protecting, maintaining, restoring, and enhancing the resources of thecoastal zone.’ ASCMP would do this by:

• protecting unique areas and resources, including wetlands, m angrove swamps, aquiferrecharge areas, critical habitat areas, streams, coral reefs, watersheds, nearshorewaters, and designated or potential historic, cultural or archeological sites fromdestruc tion or inappropria te development:

• developing strategies for coping with sea level rise, other coastal hazards, andcumulative impacts;

• promoting the public health and safety and economic welfare in the conservation ofwildlife, marine, and other resources;

• coordinating planning, monitoring, and enforcement activities for all ASG agencieswhose activities affect the coastal zone; and

• improving and expanding recreational activities.

Thus, ASCMP is empowered with a mandate over a abroad range of matters that involvethe natural T erritory’s resources but also the econom y, the society and developm ent.

3.4.2.1 ASCMP Enforcement Authority

Issue

The Section 312 Evaluation Findings for the American Samoa Coastal ManagementProgram from March 1997 through July 2000, which resulted from a required assessment of theprogram’s effectiveness by NOAA’s Office of Ocean and Coastal Resource Management (OCRM),identified several major issues and made recommendations for thei r correc tion.

ASCMP’s primary issues that need to be addressed in regard to the Project Notification andReview System during this plan period relates to: the enforcement and monitoring of developmentactivities; interagency responsibilities in the process; community acceptance of land use controls;and balancing the costs of development controls against the weight of unattended impacts.

Because these concerns cut across agency authority, the response in this plan is to handlethem at a higher level. Thus section 1.3 of Chapter One addresses how ASCMP and the resourcemanagement agencies i ntend to treat the issue o f enforcem ent and monitoring of development.


II - 3 - 13

Flood Insurance Program Policy

3.4.2.2 National Flood Insurance Program

Issue

The Section 312 evaluation also identified concerns other than enforcement relative to protection of the Territory’s resources and recommended measures as future activities andprograms to be undertaken by the ASCMP.

The Territory will face the dilemma o f how to deal with entry into the National FloodInsurance Program. The issue i s mul ti-faceted. It requires that p roperty by insurable, that the flood insurance

maps (upon which construction decisions are m ade) are up-to-date, that policies and proceduresfor the new requirements of the Flood Insurance Program are put-in-place, and that cooperationamong government agencies is needed. Since there are many changes expected to take place in order toimplement the Flood Insurance Program, it is not expected to be a simple task to achieveimmediately.

The American Samoa Coastal Management Program andaffected

government agencies should work to develop a coordinatedapproach to implement ing the National Flood InsuranceProgram and observe the requirements of the program in orderto protect the Territo ry’s structures from the dangers offlooding

ResponsibilityASCMPGOV

ParticipantsDOC PlanningTEMCODPWDLA

ReferenceSection 312Evaluation2000

Strategies

identify the needs and requirements of the new National Flood InsuranceProgram and inform the Governor’s Office of the importance of followingthrough with participation in the program and comm unicate the need forAmerican Samoa’s partic ipation in the Nationa l Flood Insurance Program toother government agencies and organizations responsible for implementation

establish an Inter-Agency NFIP Implementation committee to oversee the workprior to participation in the program work closely with the Federal Emergency Management Agency to identify andsecure sources of technical and financial assistance to prepare forparticipation

update the Flood Insurance Maps to correspond to new measurement andfloodplain level categories and predicted sea level rise

develop a Flood Insurance Implementation plan under the supervision of theInter-Agency Implementation Comm ittee


II - 3 - 14


II - 3 - 15

Unique Areas and Resources Protection Policy

3.4.2.3 Protecting Unique Areas and Resources

Issue

The Ter ritory’s availability of pristine areas is dim inishing quickly. Wetlands are being degradedand deple ted while fo rests are being removed for developm ent. T he enc roachment upon the Terri tory’snatural, renewable resources, i.e., land and water, is increas ing rapid ly with the increase of populationand the pressures for finding new areas for human settlement. ASCMP has put an extensive effort intostemming the tide of irresponsible development, but has not had the financial and human resources tofulfill its goals relative to protecting and preserving the environments and ecosystems that are or maybe under threat. This includes establishing Special Management Areas, preserving habitat areas forwildlife, and securing the financial resources to purchase reserves as was the intent to save therainforest of Tafuna.

Preserve unique areas of environmental significance and promote the conservation of acquifer recharge areas, special

habitat sites, watersheds and coastal areas of historic,cultural and environmental importance

ResponsibilityASCMP

ParticipantsDMW RDLAASCC-CNRASEPAASPAASHPONational ParkUS F&W S

ReferenceASCMP

Strategies

establish the Malaeimi Valley as a Special Management Area to protect theTerritory’s primary aquifer and source of drinking water

establish the Malaelola watershed as a Special Management Area to protectthe aquifer as a source of drinking water for Tutuila

support the monitoring and protection of the flora and fauna of Rose Atoll frompossible encroachment from poachers

work with the Federal agencies to identify the resources to secure lands andresources in need of protection and to find alternative options for protectingand preserving important environmental areas


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Cumulative and Secondary ImpactsPolicy

3.4.2.4 Cumulative and Secondary Impacts from Development

Issue

The Section 309 Assessment and Strategy for the American Samoa CoastalManagement

Program (which was undertaken by the Pacific Basic Development Council as a Federalrequirem ent to evaluate the pas t performance of the ASCMP) identi fied three pr iorityenvironmental areas of concern that need to be addressed in coming years to mitigate andreduce development issues . They are, in priority order , concern for the environm ental areas of: cumulative and secondary impacts, wetlands, and ocean resources. The assessment alsorecognizes coastal hazards, marine debris and the need to register sensitive environmentalareas as Special Management Areas as im portant issues to handle.

High population growth rates and the impacts of development are the primary reason forranking cumulative and secondary impacts as the number one priority. In the words of theSection 309 assessors, “There is a growing concern that the recent rate of development inAmerican Samoa is having an overall negative im pact upon the quality of life of i ts residents. The deterioration is far-reaching and it negatively affects such diverse assets as naturalresources as well as traditional decision-making systems, inc luding a breakdown of traditionalvillage plann ing and resource m anagement. Espec ially prom inent are potential threats todrinking water, wetlands, and near shore fisheries caused by physical development, pollution,and increased sedimentation. However, these are the by-products of seemingly uncontrolled andunplanned growth.”

“Residential development has had cumulati ve impacts on environmental ly sensi tiveareas

and historic properties. The cum ulative effects of unplanned residential growth are causingadverse impacts on the visual setting and character of historic buildings and landscapes,especially in the Tafuna Plains region. Encroachment on environmentally sensitive areas suchas wetlands either through physical development or non-point source pollution and increasedrun-off, has become and espec ially important prob lem.”

Rapid development in some areas of the Territory, and specifically on the Tafuna Plain,is overtaking the ability of the government and village authorities to effectively deal with thecumulative and secondary impacts of development. From an overall perspective, there is nolong-range planning to account for the integration of economic, social and cultural changes thatare transforming the face of the Territory. There is inadequate attention given to analyzingtrends, to analyzing programs and projects for cumulative economic, social and environmentalimpacts, and inadequate local, regional and facility planning to accomm odate future populationgrowth and the development of commerce and communities.

The ASCMP lacks adequate tools and staff to effec tively study and come to grips w ithcumulative and secondary environmental impacts of throughout the Territory. Foremost amongthe needs is the abil ity to map the T erritory and ana lyze critica l areas o f development.

Support the implementation of long-range planning thataccounts for the economic, social and cultural sustainabilityof the Territory; that stresses a balanced approach todevelopment; and that reduces, mitigates or eliminatesnegative cumulative and secondary environmental impacts


II - 3 - 17

ResponsibilityASCMP

ParticipantsPNRSAgencies

ReferenceASCMP309AssessmentandStrategy2001

Strategies

support actions to revitalize the Territorial Planning Commission

support a public education program aim ed at building support for policies andstrategies of the Territorial General Plan

develop an information system to track growth and development and to provideinformation for land use managem ent and resource management decisions

develop of an agency geographical information system (GIS) to map andanalyze the Territory’s land use, natural and water resources and support aagency-wide ef for t to develop a central or c oopera tive governm ent GISprogram

implement organizational changes to more effectively integrate land usemanagement and zoning systems into laws, regulations and planning

implement measures to strengthen the preemptive oversight capacity,decisions and enforcement of the Project Notification and Review System

implement the recommendations of the Population Task Force to account forand manage population growth and immigration

develop a public education plan and program for the Territory that addresses


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WetlandsPreservationPolicy

3.4.2.5 Wetlands

Issue

“The primary problem facing American Samoa’s wetlands is development. Wetlandsare cleared and filled for housing, commercial development, and agriculture.” Wetlands are alsodegraded by dumping of trash, discharging of liquid wastes, upstream pollution from piggeries anddisposal of wastes in streams, the cutting of mangroves for firewood, and siltation from upstreamerosion caused by improper development activities .

Between 1900 and 1961 es timates of wetlands loss range from twenty-five to fortypercent of all wetlands in the Territory were lost due to development. Between 1961 and 1991, a thirdof the remaining wetlands were estimated to be lost. In 1961 there were 600 acres of wetlands in theTerri tory, today there are less than 450 acres. This represents an average annual loss of nearly fiveacres per year. While there has been heightened public education and awareness of the issue, thelargest mangrove swamps and wetlands on T utuila continue to be depleted.

Pollution continues to degrade the wetlands and their habitat. A major problem is stillchemical pollution. Pesticides, household chemicals, detergents, run-off from piggeries and otherforms of non-poin t pollution pose ser ious threats to the sustainabi lity of the wetlands.

Establish programs to promote the retention, restoration andpreservation of wetlands; and support programs to reduceactivities which would degrade and deplete wetlands

ResponsibilityASCMP

ParticipantsASEPADLGDMW R

ReferenceASCMP309Assessmentand Strategy2001

Strategies

continue the development of village ordinances based on the dilineation andmapping activities of the Community Based W etlands Management Program

develop research activities in cooperation with ASEPA to determine how andwhy wetlands are being impacted

develop a program to facil ite sustainable, economically viable, community-based development of wetlands that would support activities like ecotourism

strengthen public outreach and education efforts focusing principally oncommunity leaders

continue wetland restoration efforts, build up inter-agency coordination forbetter enforcement effo rts

develop volunteer monitoring capability with the cooperation of schools

research and support appropriate technologies for living near wetlands


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Ocean ResourcesManagementPolicy

3.4.2.6 Ocean Resources

Issue

The Section 309 Assessment and Advisory Council meetings determined that nearshoreresources should be a third priority of the ASCMP. The 309 Assessment reports that there is a“growing concern that existing ocean management regimes are not adequate to prevent thedepletion and degradation of ocean resources in Amercan Sam oa” waters. There had been nofurther developments in ocean management since 1990, when the Exclusive Economic Zonelegislation was introduced, until recently, when in August 2001, the U.S. National MarineFisheries Agency closed fishing within a fifty mile limit to foreign vessels to preserve ocean fishstock and limit the take to American Samoa.

Ocean resources are influenced by what happens on land and in the nearshore.Activities

detrimental to ocean resources, for which the ASCMP can influence or control, contributed to theAdvisory Counci l’s opinion to raise the level of concern for ocean resources. T he problem s are: over-fishing, generally caused by population growth and the introduction of new fishingtechnologies to meet the increased demand for seafood; ocean dumping of chemicals, oil spills,bilge clearing; pollution caused by disposal of solid and liquid wastes in s treams; and thedepletion of mangroves which are the breeding grounds and source of marine life and valuableecosystems.

Lead the development of policies and plann ing to protectAmerican Samoa’s ocean environment and advocate themodification of laws and regulations to account for diminishthe threats to the ocean environment

ResponsibilityASCMPGOVDLA

ParticipantsDMW RDOA

ReferenceASCMP309Assessmentand Strategy 2001

Strategies

develop and Ocean Resource Management Plan at the Territorial levelinvolving a broad-based participatory planning process

conduct a public awareness and education cam paign aimed at buildingsupport for the Ocean Resource Management Plan

establish a task force devoted to making changes in existing laws andregulations to bring them into consistency with the Ocean ResourceManagement Plan

build support among the public and the Territory’s legislature to adopt the planby statute, and make changes to statutes


II - 3 - 20

Coastal HazardsPolicy

3.4.2.7 Coastal Hazards

Issue

Human settlement in Am erican Samoa has traditionally been along the coast and on thenarrow coastal shelves of its islands. Because of the physical arrangement of the these small,narrow coastal shelves, which are bounded by the sea and steep mountain slopes, humansettlement has always been faced with the risk of hazards. The hazards most likely associatedwith economic loss are storm surge and high winds that result in eros ion of the shoreline. Serious threat to life is a consequence of landslides, falling rocks activated by heavy rains orearthquakes, hurricanes and tsunamis. Hurricanes and tsunamis random ly strike the islands ofAmerican Samoa. They have caused loss of life and millions of dollars in damage throughoutthe Twentieth Century and, therefore, pose the greatest danger .

Population growth and development on the island of Tutuila are putting more people andproperty at risk, as natural threats are exacerbated by human activity, which often includes theunwise and unsound practices of sand m ining of the shoreline, dredging, construction on filledland near shallow inlets, and new construction on coastal shelves that are not well protectedfrom natural hazards.

The new threat of climate change, global warm ing and sea level rise, add anotherdimension to the existence of human settlements along the coastal shelves of the islands. Whilethe hazards mentioned above are episodic and random, a marked sea level rise will meanpermanent removal of human settlement along the coastal shorel ine.

Strengthen the ability of the American Samoa CoastalManagement Program to protect the coastal resources of the Territory through public education and awareness programsand better enforcement of resource regulations

ResponsibilityASCMPDPD

ParticipantsPNRSDLGDOEDPSDOHDLADPWTEMCO

ReferenceASCMP 309Assessment andStrategy 2001

Strategies

continue the public awareness and education activities, but focus upon gettingthe message to village leaders and through village councils

continue to strengthen the leverage of the Project Notification and ReveiwSystem to implement com pliance with respect to building restrictions

utilize the village ordinances and agreements developed by the Coastal HazardAssessment and Mitigation Project (CHAMP) to address the outstandingproblems of coastal resourc e protection

develop a coastal protection awareness agenda for human settlement inconsort with a flood mitigation plan for coastal areas and cooperate with theTerritorial Emergency Management and Coordinating Office to developemergency programs cons istent with development standards and acomprehensive planning effort


II - 3 - 21

Marine SanctuaryPublic AwarenessPolicy

3.4.3 Coral Reefs and Marine Protected Areas

3.4.3.1 Fagatele Bay Nat ional Marine Sanctuary

The Fagatele Bay National Marine Sanctuary focuses on protecting the resources, bothnatural and cultural, of Fagatele Bay. The Sanctuary extends its realm of interest to include thereefs of American Samoa, in general, and includes them in the Sanctuary’s planning. TheSanctuary is managed by a variety of tools that include education, science investigation andmonito ring, and enforcement of Sanctuary regulations .

The Sanctuary’s primary focus since the mid-1980s has been upon education. The Sanctuary’s annual programs uti lize the Department of Education, the media and publ ications to

propagate public awareness among school children and the public ingeneral.

Promote the conservation, preservation and protection of theFagatele Bay National Marine Sanctuary through publicawareness, formal education, community involvement andmedia information; and conduct studies to assess the state

of theSanctuaryand itsmarine life

ResponsibilityFBNMS

ParticipantsASCMPASEPADMW RDOEKVZKDLG

ReferenceFBNMS

Strategies

teach people at a young age in the schools to value the environm ent:• Reef Week ...introduces 4th grade students to the im portance o f reefs; • Enviro Discoveries Cam p (Camp Tifi fiti)...a sum mer camp that i nvolves 8 to12 year old chi ldren in an environment and reef or iented cur riculum; • Save-a-Beach...a program aimed at the ‘adoption’ of a beach by a school class, which is responsible for the care and cleanliness of the beach

involve people in community programs to highlight the care of ocean resources • Coas tweeks ...a program spearheaded by ASCMP at which t ime FBNMSoffers • Whale W atch boat tours and sponsors Art and Tide Calendarcompetition• School visits and field trips... to orient students to the Marine Sanctuary• Le Tausagi village outreach program

advertise the Marine Sanctuary through media events and promote its theme

conduct resource surveys, mapping and monitoring of the state of the MarineSanctuary and reefs. • Triennial Survey...conducted by marine and ocean biologists to assess reef resources, primari ly coral and fish (conducted every six years forinvertebrates)• map the Marine Sanctuary and participate with the Department of Commerce and an inter-agency geographical systems (GIS) consortium• Reef and Sanctuary Monitoring...to detect traces of organic chemicals such as pesticides and herbic ides in the Sanctuary’s waters.

contract to the Department of Marine and Wildlife Resources to provide patrols


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3.4.3.2 American Samoa Coral Reef Initiative

The Governor’s Coral Reef Advisory Group (CRAG) coordinates the government’s coralreef

activities. CRAG is a new program es tablished in 1999 and comprises both Territorial andFederal agencies. CRAG is comprised of the Ameri can Samoa Coastal Management Program,the Fagatele Bay National Marine Sanctuary, the Department of Marine and Wildlife Resources,the Amer ican Sam oa Environmental Protec tion Agency, the American Samoa CommunityCollege and the National Park of American Samoa. These agencies cooperate to plan andimplement coral reef actions and management of the Terr itory’s estimated 114 square miles ofcoral reefs.

CRAG is in the process of updating its five-year Coral Reef Initiative Plan, 2000 - 2004,to reflectnew priorities which fit the goals of the National Action Plan categories. The prim ary focus

will be upon education and outreach, the development of Marine Protected Areas, and monitoringand assessm ent of the coral reefs. T he purpose of the education and outreach is two-fold; toinform communities of CRAG’s m arine science activities, of the effects human activities uponreefs, of proposed legislation, and its coral reef management program; and to spur an interest inAmerican Samoans toward pursuing a career in marine science, resulting in an increased baseof local expertise. It is hoped that the monitoring and assessm ent studies, together with theMarine Protec ted Areas program, will be o f great value towards CRAG ’s goal of creating twentypercent ‘no- take coral reserves.’

The Coral Reef Initiative Plan relies upon the interwoven projects of the associated

agencies. In the forthcoming years, the Coral Reef Initiative agencies will focus on the areasshown below.

Area of Concern and Program Description

Monitoring&

Assessment

Education &

Outreach

Marine Protected

Areas

Creel Survey to assess inshore fishing pressures,assessm ent of harvest trend and resources

DMW R

W orkshops and plans to identify areas that arecritical habitats and propose timetables andprocedures to designate Marine Protected Areas

CRAG & allAgencies

Develop Territorial network of Marine ProtectedAreas over 20% of Terr itorial reefs

CRAG/DOCFBNMS

Develop Territorial Monitoring Plan for reefs CRAG

Develop GIS mapping system for analysis DOC/FBNMS

Assess regulatory enforcement functions andstrengthen enforcement capacity of PNRS

DOC

Map all coastal areas for Coastal DevelopmentStudy and coastal analysis

DOCASEPA


II - 3 - 23

Establish a Territorial Marine Laboratory for coralreef science, research and monitoring

CRAG GRAG

Strengthen resource management capacity DMWR/DOC

Area of Concern and Program Description

Monitoring&

Assessment

Education &

Outreach

Marine Protected

Areas

Undertake a Coral Health/Stress Study DMW R

Complete a W atershed Protection Plan ASEPA/DOC

Develop stake-holder consultation process andparticipation program

DMW R

Le Vai Moana Marine Center...support ASCCeducational activities for school children

FBNMSASCC

Marine Science Literature Enhancement to build upmarine resources literature at the Feleti BarstowPublic Library

FBNMS

Marine Science W ebsite Design andImplementation

DOCFBMNS

Coral Reef Information Materials...replenish andrepublish literary materials about traditional fishingmethods

Teacher Challenge Awards...to teachers mosteffective in promoting marine science

FBNMS

3.4.3.2.1 Development Practices and Enforcement

Issue

Coral reefs are being threatened, degraded and damaged by development practices thathave gone on relatively unchecked and unregulated since the Territory saws its first humansettlers. The mos t destructive practices are those that contaminate and pollute the coastalwaters. They are; development activities that yield erosion and siltation and sedimentation ofwetland and reefs; road construction and the development of homes and facilities in the vicinity ofthe coast that ultimately and permanently destroy the reefs; and contamination and pollution ofcoastal waters from point and non-point sources that damage habitats and ecosystems. Theseinclude the entry or introduction of heavy metals and organic substances, such as pes ticides andherbicides into streams and coastal waters, and urine wastes from piggeries.

The reasons for this si tuation are clear. There is a lack of public awareness ofdegradation to food-chains and ecosystems, a lack of understanding of the critical nature of theproblem, a lack of education on the part of the perpetrators of the problem, and, perhaps, a lackof interest in abiding by rational development and use principals. Secondly, there is a lack of


II - 3 - 24

Development andEnforcement Policy

regulations and restrictions governing the practices, and consequently a lack of enforcementpolicies and enforcement m anagement to force a curtailment of the activities. These are issuesthat are spread throughout the government enforcement agencies and have their roots in villageand traditional enforcement regimes. Yet, these are problems that have not had a high priorityand garnered overwhelming interest in their solutions by those that may contribute to theproblem .

If this situation continues unabated and uncontrolled, we should expect to see theacceleration of soil loss and dam age to wetlands and habitat on land and a decrease in waterquality and clarity, and sedimentation leading to consequent destruction of reef habitat andecosystems. Coral reefs cannot be mi tigated. Coral reefs require centuries to regenerate.

Curtail unsound development practices by creatingappropriate legislat ion and restrictions that can be effect ivelyadministered with suitable enforcement tools and via theProject Notification and Rev iew System; and create publicawareness and implement education programs to retard and

stopunsoundpractices

ResponsibilityASCMPASEPA

ParticipantsASHPODPWDPSDPRPNRS

ReferenceCRIASCMPDMW RFBNMS

Strategies

dedicate funding toward the preparation of pub lic awareness program s toaddress the issue of proper land use and unsound development practices thatcontribute to flooding, erosion, siltation and possible groundwatercontamination

assess the PNRS review system for improvements in the abili ty: to scrutinizeprojects with attention to erosion control; deny projects that threaten coralreefs; and oversee projects with special conditions

increase public awareness of both agricultural and development practices thatlead to erosion through extension and it awareness programs

provide orientation and instruction to the Civil Highways Division about bestpractices for road construction that retain soil and retard erosion; and monitorroad cons truction and facili ties developm ent projec ts

intensify the orientation and instruction program about best developmentpractices for contractors

provide orientation and instruction through the Department of LocalGovernment to education village leaders and village mayors about unsounddevelopment

provide orientation and instruction to enforcement agencies, e.g. Departmentof Public Safety, on the necessity to protect the Terr itory’s reefs

increase the monitoring and enforcement capacity of enforcement agencies byproviding training with regard to laws and regulations

support the implementation of the Population Task Force Report to reduce the


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Coral ReefPublic AwarenessPolicy

3.4.3.2.2 Public Awareness

Issue

The reefs and ecosystems would not be threatened, endangered, degraded or depletedif

the public had better knowledge of the importance of reef ecosystems and the impact of theiractions upon reef habitat. In essence, it would seem that the reef ecosystems are not fullyappreciated. One of the reasons may be that tradi tional knowledge and practices have been lost. Today’s educators, i.e., instructors in the school system, may lack the knowledge and beunaware of the significance of reef ecosystems. Less than one percent of the working populationactually make a living from harvesting fish or marine life. Thus, most educators would notpossess the knowledge to pass along to students. Secondly, many of the artisan fishermen andfishermen that receive pay for their fishing efforts are imm igrant workers. They have often beendefined as being disenfranchised, both politically and from American Samoa’s cultural past. Thisdisenfranchisement m ay result in a lack of commitment to care for the marine ecosystemsproperly. If the public continues to be unaware of the threats they pose to the reef ecosystems,they will continue the practices that endanger reef ecosystems.

Promote the preservation of coral reefs through marinescience instruction at all levels in the education system; anddesign and implement public awareness programs to addressthe threats to coral reef systems


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ResponsibilityASCMPFBNMSDMW R

ParticipantsASHPODOEDLGDOC

ReferenceASCMPFBNMSDMW R

3.4.3.2.3 Over-harvesting

Issue

The coral reefs are overfished in some areas and American Samoa’s inc reasing humanpopulation threatens to put greater pressure on reef resources as a source of food. As thepopulation increases fishing is likely to increase in coastal waters, nearshore and inshore waters(if no limitations are put on fishing). As American Samoa does not have expansive coral reefs,the increased pressure m ay result in deplet ion of mar ine resources , parti cula rly in T utuila’swaters.

‘No take areas’ and marine protected areas are two solutions to overfishing. It may evenbe possible to prevent the depletion of marine resources outside of marine protected areas.However, the ability to eliminate the process of overfishing requires a number of actions to beeffective and successful. Presently, there appears to be inadequate knowledge of the importanceof maintaining the carrying capacity of the fish stock and a lack of awareness and insufficienteducation program s to prom ote conservation of the fish stock. Secondly, there is i nadequateenforcement of restrictions on fishing where restric tions are in place. Third, there appears to beinsufficient support among the fishermen and village leaders to reduce the level of fishing.Therefore, more education, in general and for all parties, is needed, in addition to more stringentenforcem ent of fishing restri ctions and regulations (inc luding Marine Protected Areas) . W ithout adefined level of acceptab le fishing to maintain the carrying capac ity of the stock, a limit or quotaon the amount of marine resource stock taken, adequate knowledge of the impacts of overfishingby the population at large and a commitment to enforcement of fishing restrictions, the reefs may

Strategies

plan for and develop public awareness programs to be implem ented as aninter-agency offensive to educate the public to the importance of reef habitatand ecosystem conservation and preservation

assist the Department of Education with the development of a marine sciencecurriculum by funding instruction or instructors

integrate a coral reef awareness and marine sc ience education program intothe Department of Education curriculum

work with the Department of Local Government to implement coral reefawareness at the comm unity level

foster coral reef and ecosystem preservation as a means to developecotourism at the community level, and work with the Economic PlanningDivision of DOC to encourage ecotourism as a means to preserve coral reefsand ecosystems

identify social and economic incentives to the communi ty that will enhance theprospects for environmental care and conservation

cooperate and coordinate initiatives with the Territory’s cultural and historicalagencies to foster coral reef preservation


II - 3 - 27

ReefOver-harvestingPolicy

very well be depleted of food resources. This, of course, would have a devastating impact uponthe entire reef food-chain, as overfishing could shut down the reef ecosystem.

Reduce the over-harvesting of marine life and fish on the reefs of American Samoa by educating the public about the need

to sustain fish and marine life stocks; and develop andimplement restrict ive legislation to restrain people from over-harvesting the reefs

ResponsibilityCRAG

ParticipantsGOVDLADLGASCCDOE

ReferenceASCMPDMW RFBNMS

3.4.4 Department of M arine and Wildlife Resources

3.4.4.1 Coastal and Inshore Marine Resources

Issue

American Samoa’s coastal reefs have been damaged and degraded from naturaldisasters,

human settlement and improper development practices. Development, resulting from increasedpopulation and human settlement in coastal areas, has contributed significantly to the siltation ofthe reefs from improper development practices upstream. These improper practices havedegraded or destroyed marine habitats over time to the degree that there is depletion of the reefs’marine resources of Tutuila and possibly of the Manu’a. Islands. Overfishing has alsocontributed to the depletion of reef resources. The increased population has brought a greatmarket demand for fish and marine life. The full picture of the scale of depletion is not knownbecause of a lack of data, but there is a pressing need to educate the public about thesignificance of responsible fishing.

Inadequate enforcement of Department of Marine and Wildlife Resources regulationsare a principal cause of the problems relating to overfishing and destruction of habitat (by othermeans than siltation from im proper development). There is a lack of training and pay forpersonnel, a lack of funding and limited professional oversight of enforcement program, a lack of

Strategies

apply the resources of the Coral Reef Initiative to supplement funding theDMWR Five Year Plan to plan for and add more ‘no take ‘ protected reef areas

support the ASCMP and FBNMS public awareness programs to educate thepublic, artisan fishermen, and com mercial fisherm en to the effects ofoverfishing

support the DMWR F isheries Division’s plans for development of fisheriesmanagement plans for the Territory and villages

undertake fish stock assessments of the coral reefs and develop scenarios ofthe rate o f depleti on to create res tricti ve reef fishing regulations in ‘no takeareas’


II - 3 - 28

Coastal and InshoreMarine ResourcesPolicy

public support , a lack of sense of ownership of regulations, a feeling that enforcement is solelythe responsibility of the government, a fear of offending family and friends by informing onviolators.

Promote the conservation, preservation and protection of the marine environment through public education and outreach and develop the capacityto evaluate the state of the marine environment and manage coastal and inshore marineresources

ResponsibilityDMW R

ParticipantsUS NMFSDOC/ASCMPDOEASCCDLG

ReferencesFive Year Plan for Marine Resources Research and Management

2001

Marine Education and Outreach 19973.4.4.2 Offshore Fisheries

Issue

Localcommercialfishingforoffshorepelagicspec

Strategies

expand the community-based management of fish resources through theaddition of Marine Conservation Enforcement Officers to: interdict the taking,sale or importation of illegal items , the enforcement of all DMWR fishingregulations, the enforcement of US Federal fishing regulations by assisting theUS NMFS agent in FBNMS patrols, and inspections of foreign fishing vessels

conduct the monitoring and assessment of coral reefs and reef resources inconjunction with the Coral Reef Initiative program that includes field andlaboratory studies of the relative abundance and population dynamics, biologyand ecology of key reef-associated species

conduct a long-term bottomfish stock ass essment - multi-species assessmentin collaboration with the National Marine Fisheries Service Honolulu laboratory

develop a long-term, public education and outreach campaign to increaseunderstanding, encourage appreciation and to promote conservation andpreservation of the fisheries resources and marine environment


II - 3 - 29

Offshore MarineResourcesManagement Policy

ies, primarily albacore tuna, was arelatively small business activity until the late 1990's. Towards the end of the decade, larger ‘alia’of the forty to fifty foot class were introduced and the a rapid increase in the number of aliasfishing in the Samoa archipelago ensued. In addition, commerc ial fishing in American Sam oawaters included more larger, locally owned, single-hulled boats in the fifty to ninety foot class,and greater, that supplied the canneries. A Western Pacific Regional Fisheries ManagementCouncil report in 2000 noted that the five larger vessels of fifty plus feet had the capacity to setmore hooks alone than the whole forty foot class of small alia fleet set could set in one year. Offurther interest is that the number of hooks set (estimated between 1.2 and 1.6 millioon) in theyear 2000 was the highest s ince the fi sheries began.

By 2001, the rapid increase and the numbers of albacore caught had caused theDepartment of Marine and Wildlife Resources and local fishermen to request a moratorium onthe introduction of more large fishing vessels into American Sam oa’s Exclusive Economic Zonefor fear of depletion of the tuna stock. As of October 25, 2001, fishing was restricted to the U.S.long-line vessels holding a permit and with a documented catch prior to that date. As of this planpublication date, little empirical data has been obtained on by-catch, the size and weightfrequency dis tributions , the spatial and temporal dis tribution o f albacore and their fo raging hab its. Thus, the information about the albacore stock is insufficient to determine a fishing threshold,but it has been observed that catch rates have been declining in recent years.

Develop the capacity to ev aluate the nature of the pelagic fishstock in relation to the sustainability of the stock as a resultof continuous fishing pressures and establish policies andguidelines for the harvesting of pelagic marine resources tomaintain sustained populations

ResponsibilityDMW R

ParticipantsUS NMFSW PRFMC

ReferenceMarineResourcesResearch andManagementPlan Update2001

Strategies

utilize additional Marine Conservation Enforcement Officers to work along sidethe U.S. National Marine Fisheries staff as observes of fishery vesseloperations and establish a Scientific Observer Program for staff to accom panyalias

enlist the assistance of the U.S. Coast Guard to more effectively patrol theTerritory’s Exclusive Economic Zone for poachers and for illegal fishing andput more Marine Conservation Enforcement Officers on board surveillanceships

establish collaboration between the Independent State of Samoa and theAmerican Samoa Government to undertake joint research on convergentfisheries management problems

establish a Research Program for Oceanic Fisheries with an initial emphasisstudy on the spatial and temporal dynamics of the albacore and secondly a


II - 3 - 30

WildlifeManagementPolicy

3.4.4.3 Wildlife Resources

Issue

The vertebrate population (fauna) ,i.e.,birds and mammals, of American Samoa islimited

indiversi ty, and most of the species are shared with o ther Polynesian is lands. Most of the nativespecies of fauna appear to sustain breeding populations. Most of the wildlife populations canand do generally recover from the devastating effects of hurricanes. The greatest concern nowto the Department of Marine and Wildlife Resources are human activities, and especially those ofhunting and the destruc tion of natura l forest and wetlands habitat. These are not cyclica l eventsafter which wildlife may eventually recover. Hunting and destruction of habitat are sustainedactivities that could intensify as the human population increases, if there are no managementprocesses in p lace to curtail them .

The high frequency of disturbance from hurricanes and the increasing stress put uponwildli fe from indiscr iminate habitat des truction necess itates long-term monito ring of wi ldlife. There is a need: to develop and maintain a s ituation-sensitive management program tocontinuously monitor wildlife populations; to obtain accurate data on spatial and temporalvariations in populations of wildlife and their resources for existence; to study the impact andthreat of invasive plant species upon wildlife populations; and a need to learn more about theprevalence of d iseases and parasites in wildl ife.

Develop the capacity to monitor, manage and control theimpact of hum an activ ities upon American Sam oa’s wild life inorder to sustain native fauna species, and to remove thethreats to native species from invasive flora and fauna

ResponsbilityDMW R

ParticipantsDOCDPWCustomsDLGChurches

ReferenceFive YearPlan-W ildlifeProjects forAmericanSamoa2001-2005

Strategies

develop a public awareness program to halt the destruction of forest andwetlands wildlife habitat

develop a situation-sensitive monitoring and management program for islandpopulations of fruit bats and endangered species of fauna to form the basis ofmanagement actions

develop a program to identify critical habitat for possible protection andestablish guidelines to maximize spec ies recovery and minimize disruption byhumans

assess the potential impacts of the identified stresses on the evolutionary andecological performance of fauna species and develop management andconservation action programs that can mitigate the effects of the stresses

collect information on food resources, roosting habits and condtions, andsocial and behavioral traits of the bat population to describe their naturalhistory and for determining management programs for the protection of theiressential habitat


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ForestryManagement

3.4.5 American Samoa Community College, Community and Natural Resources Division

The Division of Agriculture, Comm unity and Natural Resources of the America SamoaCommunity College, formerly called the Land Grant Program, encompasses the Cooperati veResearc h and Extens ion Services, the Fores try D ivision and the Instruc tional Division. Itrepresents a three-pronged approach comm on to every Land Grant College and university in thecountry. Its work is stake-holder driven and involves broad programming areas, e.g., nutrition,agriculture, natural resource management and entrepreneurship. CNR is also involved inpesticide awareness and water qual ity programs.

3.4.5. 1 Forestry Clearing

Issue

Humid tropical forests and other native vegetation cover a significant portion, or overtwo-thirds, of Tutuila and the Manu’a Islands. Maintaining the forests presents a very difficulttask, as the T erritory’s inc reased population seeks space to develop homesteads and com merce. Population growth has seen the T afuna Plain lose virtuall y all of its native rainforest due todevelopmental pressures. Other areas will follow i f controls are not placed on the clearing ofland. The primary threat to the forest is human activity, particularly clearing of land fordevelopment purposes and conversion for agricultural uses. The shifting agriculture oragroforestry traditionally practiced by Samoans may have enhanced overall forest diversity andforest habitat in the past, but the traditional practices of shifting agriculture may no long beappropriate in this day and age. Continuing the same practices has lead to a decline in forestquality, diversi ty and overall biodiversi ty, as c learing of forests exceeds the forests’ regenerativecapacity with respect to the rate at which the human population is increasing.

Promote the retention of forests throughout American Samoa,develop incentives to limit or discourage the clearing offorests, and identify and encourage best managementpractices to preserve ecosystem function and structure andbiodiversity in general

ResponsbilityASCC-CNR

ParticipantsDLGDOCDPWASPADMW RUSDA-NRCSNational Park

ReferenceTGP IssuesStatement2001ASCC-CNR

Strategies

submit a needs assessment in order to receive the Forest Legacy Program

document and monitor the extent of forest cover with the use of GIS systemsand satell ite imagery to gauge ongo ing habitat l oss and climate change e ffects

identify methods to restrict destructive land clearing on slopes of matureforests, on cutting of selected species and to preserve low-land forests

work with the Department of Commerce to apply restrictions to developmenton forested land identified for special management practices

vigorously support the replanting of cleared land with native forest species

actively support the protection of watersheds and wetlands, coastalstabilization practices, buffering of streams, and erosion suppress ion


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Invasive SpeciesManagement

3.4.5.2 Invasive Species

Issue

Introduced species, whether they arrived in American Samoa intentionally or byaccident,

are difficult to control, once present. These non-native species may be beneficial, benign, orharmful to native species. Those that spread rapidly and prove damaging are often calledinvasive species. Many invasive species are very good at competing with native species and caneliminate native’s altogether. It is very difficult to identify all the impacts any given invasive speciemay cause. A single introduced specie can deleteriously affect an entire ecosystem, as is veryapparent in Hawaii and Tahiti. Specialized species can indirectly affect many other species, asseen when the taro blight arrived. It had important indirect effects on other plants and animalsand significantly affected the agro-economy of American Samoa.

There are no easy solutions to the problem of eradicating invasive species. One of themajor stumbling blocks to eradicating invasive plant species is the lack of authority to enter uponprivate land. Another problem is the lack of sufficient resources to combat the problem. Althoughthere are on-going efforts by the U.S. Forestry Service, ASEPA, the Department of Agriculture,the American Samoa National Park, and CNR, the problem is bigger than their collectivecapacity. American Samoa has had a long history of introductions of non-native species to, asthere are now more than two hundred introduced plant species. The Custom s Office needs tostrengthen its capacity to quarantine suspicious or listed plants arriving in American Samoa.However, Customs has inadequate staffing and functional protocols to handle quarantinerequirements properly. There also needs to be more effort towards educating the public to dealwith the problem of blocking, investigating, restriction and suppression, eradication andprevention of listed imported and exported species. The recently formed American Samoan

Selected Invasive Species Task Force (ASSIST) is currentlyaddressing all of these issues.

Develop the capacity to deal with introduced and invasivespecies through more intensive assessment and monitoring,legislation enabling their eradication, cooperation and

coordinationamonggovernmentagencies,strictquarantineprocedures,and intensiveeradicationprograms

ResponsibilityASCC-CNRDOADMW RGOVDLANational Park

Strategies

set up an Invasive Species Task Force to asses s eradication and planningneeds

schedule ASCC-CNR and DMWR to work with the Department of Legal Affairsto draft legislation on invasive species and request legislation authorization

increase the number of Customs officers and improve orientation andeducation of Custom s quarantine off icers about the impacts of invasivespecies, and provide training and equipment to restrict introduction of specieswithout lengthy quarantine and exhaustive study

provide more funding to educate the public about the impacts of invasivespecies, to locate and eradicate invasive species and to provide native species

work with the Departm ent of Local Government and local village m ayors to


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Pesticides andChemicals Management

ParticipantsDLGASEPADPPBUSDA-NRCS

ReferenceTGP IssuesStatement3.4.5.3 Pesticides and Chemicals Contamination

Issue

The level of pesticide and chemicals contamination, that generally result fromagricultural

and household usage is not well known. T he impacts upon Tutui la’s environm ent and the heal thof American Samoa’s residents from pesticide use has not been quantified. Restrictions are in

place on the importa tion of i llegal pestic ides and chemicals that ar rivein American Samoa via a business. However, it is uncertain thatillegal chemicals are being restricted from entering the Ter ritory fromthe Independent State of Samoa. As Customs and ASEPA are notstaffed sufficiently to quarantine items, it is possible that pesticidesand chemicals are making their way here.

The use of pesticides in the wrong hands , without properinstruc tion and wi thout adequate

personal protection during its use, is of particular concern. Literacy and the ability to understandwritten instructions is a must when handling these chemicals. CNR provides written literature inboth English and Samoa to explain to farmers and the public how to properly handle thematerials. Nevertheless, there is great concern for safety and for what misused pesticides andchemicals could do to the environment and the Territory’s water resources.

Ensure that only legal pesticides and chemicals used foragricultural, household and commercial purposes enter the Territory, that applicators arecertified, and that usage of pesticides is within the recom mendations of the manufacturerby providing the orientation and training necessary to police the use of pesticides andchemicals


II - 3 - 34

ResponsibilityCNRASEPAASPADOA

ParticipantsDOCNational Park


3.4.5.4 TraditionalKnowledgeand Practices

Issue

The use oftraditionalknowledge andagriculturalpractices is adouble-edgedsword.

Sometraditionalagriculturalpracticespromotepreservation of soilquality andnaturalresources,while

Strategies

support a research project to study the environmental impact of pesticidesupon the Territory’s groundwater supply

work with ASPA and ASEPA to identify areas within watersheds that should beoff-limits to the use of pesticides and chem icals used for agriculture

continue to work in cooperation with ASEPA to conduct Pesticide ApplicatorTraining sess ions that permit participants receive EPA licensing

continue the Agriculture Extension Division’s workshops that promote pesticidesafety, as well as alternative pest control methods

strengthen the pesticides orientation program for Department of Agriculturestaff and provide update orientation about new chemical products on themarket andwork with the Departm ent of Agriculture to s trengthen its ability to prom oteEPA-registered pesticides use by farmers

work with the Department of Agriculture to strengthen its ability to restrict theimportation of illegal or not-recommended products from entering the Territory

extend pesticide safety training to include commercial application operators,importers of pesticides, exterminators, and to all others know to use pesticides


II - 3 - 35

TraditionalKnowledgeTraining

others can degrade or deplete natural resources, e.g., forest clearing. The Agriculture andForestry Extension Divisions promote traditional agricultural practices that are sustainable. The topography of most of American Samoa is very steep. There are very few areas that are flat andthus, conducive to large scale agricultural practices. This creates two problems 1) heavypressure on slopes caus ing erosion and related problems, and 2) degradation of lowlandecosystems that were already fragile and not very extensive prior to development/landconversion. This is an area of concern that is difficult to quantify and identify responsible partiesdue to cultural reasons. As part of the mission of ASCC, the Agriculture and Forestry ExtensionDivisions utilizes the Samoa and Pacific Studies Department (SANDPAC) as a resource in orderto effectively work with traditional leaders and encourage them to utilize more sustainablepractices.

Continue to support traditional knowledge and practices that are environmen tally friendly and provide educat ional train ing and orientat ion for farmers

that want to continue to utilize traditional Samoan agricultural practices

ResponsibilityASCC-CNR

ParticipantsNational Park

DOCASEPADMW RDOA


Strategies

Continue environmental education efforts at all levels. Work with schools,groups, churches and organizations so the importance of this message isclearly understood.

Provide technical support for farmers and developers. Support could be in theform of alternative vegetative species, engineering alternatives, incentives forsustainable practices, etc.

pool resources the resources of resource management agencies to reducemixed messages and strengthen the overall capacity for development ofeffective programs

Promote the use of native species of plants and trees


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Research and Analysis PlanningPolicy

3.4.6 Department of Commerce, Planning and Research

3.4.6.1 Research and Analysis

Issue

The Department of Commerce requires a strong research and analysis capab ility toprovide

the kind of background information and analysis necessary to make well-informed decisions andto develop policies, strategies and plans for the Territory. The Research and Statistics Divisionhas been short of staff and funding to undertake many necessary research studies for the lastdecade. The Planning Division has also been short of professional personnel for the lastdecade. Therefore, both Divisions have been limited in their capability to perform up to theexpectations of a common government planning and statistics organization.

Although the Department of Commerce has a Research and Statistics Division to collectdata and information, the functions and presence of a government statistics office do notsupplant the need for a p lanning research and analysis func tion. T he Planning Divis ion’sdemands for research and analysis focus upon project and program specific information whichrequire qualified p lanners to apply planning assessment and modeling techniques uncommon tothe functions of a statistics office.

The Planning Division needs to develop its economic research capability in light of the long-standing absence of a macro-economic planning program within the government. This

means that the division is presently not capable of providing ‘on-call’ analysis, or short- or long-term economic monitoring of the economy. It is not capable of economic feasibility analysisbecause it is not capable of collecting information pertinent to micro-economic and businessdevelopment.

Upgrade the research and analysis capability within theDepartment of Commerce and undertake socio-econom icsurveys, assessments, studies and analysis to augmentplanning programs and projects and provide decision-makers

with reliab leinformationupon whichto makejudgements

ResponsibilityDOCGOV

ParticipantsDPPB

ReferenceDOC

Strategies

identify the objectives of a Research and Analysis Section within the PlanningDivision; formulate a proposed program with a budget and resource needs;and lobby for its implementation as a necessity to achieve the goals of theEconomic Development Com mission and to provide professional planninganalysis

augment the Research and Statistics Division by recruitment of qualified personnel for social and economic surveys, data collection and analysis

expand the breadth of the Research and Statistics Division’s annual surveys

correlate the data collection with the department’s geographical informationsystem and maintain annual socio-economic data down to the village level


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Immigration andPopulation AnalysisPlanning Policy

3.4.6.2 Population and Imm igration Studies

Issue

American Samoa’s population grew at an annual rate of two percent from 1990 to 2000,from a population o f 46,773 to 57,291 people in April 2000. This rate of growth was observed tobe lower than the previous ten-year rate of growth. Nevertheless population growth between 1980and 1990 set the stage for future development demands that the Terri torial government would behard pressed to meet and for wh ich planning was only beginning to account for. High fer tilityrates and increased migration to the Ter ritory were observed to be the primary factors for anincrease in population in both ten-year Census cycles. Immigration to the Territory hadincreased for a number of reasons, but immigration was also offset by young adults leaving theTerritory for education and jobs elsewhere.

The exact nature of the in- and out-migration is not known. The Census 2000 data maynot be available until 2003 for discrete analysis . The Department of Commerce must get ahandle on the characteristics of movement in and out of the Territory, as well as within theTerritory. This information is needed for statistical reporting purposes, but also for planning ofservices and infrastructure. To date, little planning has been done on the basis of populationchange within the Territory. Summary data is available, and summary data points to a situationof slow population growth on the eastern and western fringes o f Tutui la Island wi th rapid growthin the Tafuna area. In contrast to rapid growth in the Tafuna area, the Manu’a Islands have beenlosing population over the last several decades. This shifting population base must beaccounted for in future planning. Therefore, planners need to take hard look at the latestcharacteristics of the Terr itory’s population.

Dedicate resources toward the development of systems toadequately study migration and movement within theTerritory in order to adapt the Territory’s planning programsto the changing characteristics and needs of the population


II - 3 - 38

ResponsiblityDOC

ParticipantsASPADOEDHHSDLGDOHCRAGDWYPopulationImplementationCommittee

ReferenceDOC

3.3.4.5 Community Planning

Issue

Community development planning in American Samoa was delegated to the EconomicDevelopment and Planning Office (now the Departm ent of Commerce) in the legis lativeauthorizat ion for the Terri tor ial Planning Commission. There have been other agencies that havecontributed to community development over the last two decades through the construction offacilities, but the work has not been steadily done by the agencies under a planned program andthere has essentia lly been little cooperation between agencies .

In essence there has been little p lanning done toward the development of acomprehensive vision for American Samoa communities. There are no established Terri tory-

wide policiesfor communitydevelopment,no establishedcomprehensive schemes forcommunity orregionaldevelopment,and noestablishedland usepolicies for theTerri tory,althoughzoningregulations doexist. Virtuallyall com munitydevelopmentprojects have

had their foundation in Federal funding opportunities that are restricted to the mandates of the

Strategies

work with the geographic information system program of the Department ofCommerce to apply the Census 2000 enumeration block and village data to theArcView GIS for processing and use a statistical package to analyze theCensus 2000 data for migration and population change throughout Territory

conduct stratified surveys to further define migration factors

produce a definitive report on the population and migration characteristics ofthe Territory for DOC’s departmental planning and for public distribution

evaluate the findings of the studies to determine how migration can positivelyaffect economic development and how economic development can reduce the‘brain drain’ from the Territory


II - 3 - 39

CommunityDevelopmentPlanning Policy

donor. There has been very little integrated planning of the Territory’s economic and socialdevelopment infrastructure within the Capital Improvements Program planning that is supportedby Department of the Interior awards.

Promote the achievement of community inspired policies anddevelopment that is planned in combination with thecommercial, environmental and social aspirations of thecommunity and linked to the comprehensive planning ofinfrastructure and community service facilities

ResponsibilityTPCTPC CouncilsDOC

ParticipantsASHPOASPAASTCAASMCADPWDPSDOEDOHDPRDLGDHHSDYW ATAOAASCC

3.4.6.3 Land Use Planning

Issue

The adverse and cumulative impacts of the Terr itory’s population increase, development and residential growth are readily noticeable on the Tafuna Plain. The Tafuna Plain has been

the fastest growing area of the Territory. Residential development has resulted from theavailability of individually-owned land and the opportunity for immigrants and American Sam oansto live in non-traditional village settings. Because land in the Tafuna area can be purchased andleased, there has been and still is strong competition for the available land to be used forcommercial, industrial and recreational purposes, in addition to residential use. However, therehas been no comprehensive development plan or land use plan in effect for the Tafuna area thatcould have been used as a guide and to m aximize the us e of land.

The lack of planning has resulted in haphazard and random development with over-crowding. It has meant that basic infrastructure needs, e.g. water l ines, sewers and roads, havenot been installed in preparation for human settlement. Rather, they have been installed as a

Strategies

develop a community based public information and planning process to getvillages and communities involved in making planning decisions forthemselves

develop community inspired policies and standards of development forcommunity projects and community improvements

identify and plan for community service program s with fac ility requirementsand link them to funding sources from Federal grantors that provide capitalimprovements funding for comm unity and economic development purposes

integrate community planning with economic development planning initiativesand proposed facilities funded by Federal programs

integrate comm unity planning w ith agency and government enterprise authorityplanning and prepare a five-year integrated, Territory-wide community servicesand facility plan


II - 3 - 40

Land Use Planningand ManagementPolicy

reaction to development. Consequently, the Tafuna area has an amplification of the negativeimpacts from traffic congestion, noise, nuisances and unsightly and unaesthetic neighborhoods.

Rapid human settlement has occurred where growth has not been adequately enforcedor controll ed by regulations, as land use des ignations or zoning. The lack of appropriate zoning

codes to control and filter development has resulted in the use of outdated legislation as anineffective means to curb random and improper use of the land and contain commerce, industry andresident ial expansion. There is also resistance from compet ing forces, e.g., cultural traditions ofmatai control of land, against the practice of land use and resource management to enablesustainable development.

Formally adopt the Tafuna Land Use Plan and implement theland use management policy and actions which provide forthe rational and best use of the lands in Tualauta County;and rev ise the land use management process and permitsystem to provide overall protection of the Territory’s land

ResponsibiltyDOC

ParticipantsGOVFonoDLADLG

ReferenceTualauta County Land Use Plan 2001DOC

3.4.6.4 TualautaCountyDevelopment

Issue

W hileAmericanSamoa is farfrom beingover-

Land Use Management Strategies

implement section 6.6 and 6.7 of Chapter Six of the Tualauta Land Use Planwhich deals with the creation and centralization of the Territorial land usefunction and revise the ASAC Code to make the Territorial PlanningCommiss ion the single overall development and land use governing board

revise and adopt a new administrative code for the functions of the TerritorialPlanning Commission and adminis tration of land use management under theProject Notification and Review System

identify an appropriate role for the American Samoa Zoning Board in thestructure of the land use management system

revise land use and zone classifications and submit to the Legislature foradoption as stated in section 6.5.1 of the Tualauta Land Use Plan


II - 3 - 41

TafunaDevelopmentPolicy

populated, in comparison to islands l ike Oahu, Hawaii, the island of Tutuila has pockets of overcrowding. The overcrowding is

reminiscent of third world squatter settlements because of the nature of the structures and theircongestion. There aren’t many of these areas. They should not have been permitted to be builtand should not be permitted to expand. If the overcrowding continues, there may be unwantedsocial and environmental problems.

American Samoa has no community development plans that identify suitable housing, or ideal comm unity characteristics for a local comm unity. Furthermore, there have been no studies

to determine the limits for desirable development. Although ASPA estimates Tutuila’s dailymaximum population lim it of 115,000 people, with regard to the carrying capacity of the watersupply, there have been no desirable lim its set on the carrying capacity of res idential a reas. Thus , a complete assessm ent of community values i s necessary when undertaking planning.

Implement the resource management, developmentassessment studies and the utilities and infrastructure plansas defined in Chapter Six of the Tualauta Land Use Plan toaccount for the development of human settlements and thecarrying capacity of the land and natural environment

ResponsibilityDOC

ParticipantsDLADLGASPADPW

ReferenceTualautaCountyLand Use Plan2001DOC

ResponsibilityDOC/PLANASCMP

Strategies

undertake research and opinion research to identify the carrying capacity ofnatural ecosystems and human settlement in the Tafuna area and develop appropriate development standards for the T erritory and T ualauta County

establish Planned Unit Development (PUD) building regulations in conjunc tionwith zoning speci fications for Tualauta County and for the Terri tory

establish public participation and a validation process for land use planning asdefined in Chapter Six, section 6.6.1 of the Tualauta Land Use Plan

investigate the opinions of Tualauata County res idents, identify comm unitydesires, and produce a booklet of standards for development under idealconditions for T ualauta County

formulate a Residential and Multi-Fam ily Housing Plan for T ualauta Countythat will restrain the development of squatter settlements and contribute to thecreation of desirable comm unities

coordinate the formulation of the Tafuna Sports Complex Plan with theDepartment of Parks and Recreation

a) Community Development

Strategies

assis t ASCMP with the completion of a F loodplain Management Plan torestrain development in areas where flooding will negatively affect the naturalenvironment and endanger structures

adopt a plan and standards to protect the groundwater and aquifer fromdevelopment externalities and contamination

contribute to the formulation of development standards for the Malaeimi ValleySpecial Management Area

b) Resource Management


II - 3 - 42

ParticipantsASPAASEPADPW

ReferenceASCMP

ResponsibilityDOC/PLAN

ParticipantsDPWASPAASTCADOADLA

ReferenceTualauta County Land Use Plan2001

Strategies

complete a comprehensive Commercial and Retail Center study asrecommended by Chapter Six, section 6.3.2, to focus commercial developmentand reduce urban sprawl

commission an assessment for the siting of public facilities and thedevelopment of a Regional Government Center , including an evaluation ofbest use of government residential land, in Tafuna as recommended inChapter Six, section 6.3.5 and 6.4.3

assess how land use poli cies and zoning can contribute to the maintainingcommercial and subsistence agricultural activities on the Tafuna Plain asrecommended by Chapter Six, section 6.3.9

intiate the planning of a Tufana to Pava’ia’i by-pass road and develop aCooridor Plan for the commercial and residential development of theimmediate areas surround the road as recomm ended by Chapter Six, section6.4.2

incorporate the CIP funding criteria into the land use development plans andutility and infrastructure plans for Tualauta County as recommended in

c) Development Assessments and Infrastructure Plans


II - 3 - 43

Land andConservancyPlanning Policy

3.4.6.5 Conservation of Land

Issue

The lack of land use polic ies and p lanning regulations makes conservation and preservationof

areas in need of protection unduly arduous. Without the authority to place specific lands underprotection, i.e., authorized plans, conservation of specific areas is difficult to execute. Much landsthat cou ld have been used for recreat ion, open space or drinking water aquifer recharge, for example,have already been permanently removed by development. Conservation of land and the designationof reserves is made more difficu lt because of a general interest in maintaining unalienable communallands. Where open space for recreational tracks would normally be available to recreation hikers,these areas are generally off-limits to the public because they are communal and privately owned

lands, which are unalienable.

Initiate land use policies that allow development and use ofopen space and communal lands for the general public whilemaintaining the right of communal leadership to controlaccess; and designate new areas for recreation andconservation

Respons ibilityDOCASHPO

ParticipantsDPWDPRASCC-DAHNR

ReferenceTualautaCountyLand Use Plan2001DOC

3.4.6.6 Pago Pago Bay Area

Issue

The communities along the shoreline of Pago Pago Bay were the first to shoulderwesterntype development. In a general sense, they are becoming blighted and in need of revitalizationand renewal. There are exceptions, as new residences are sprouting up, but on the whole, qu itea few businesses and homes are delapidated and in disrepair. Some of the structures should bedemolished. This view of the bay area is in stark contrast to the spectacular mountain and forestscenes that surround the man-made development along the shoreline of the bay.

Strategies

participate with the American Samoa H istoric Preservation Office to review andmap historic properties as recomm ended by Chapter S ix, section 6.2 .5

commission a study to validate where development may and should not occurin steep s lope areas as recommended by Chapter S ix, section 6.2 .7

demarcate, zone and establish a 1000' extension to the airport safety clear zone at the western end of the Pago Pago International Airport runway asrequired by the Federal Aviation Administration

plan and acquire easements, as part of a traffic circulation plan, for theestablishment of pedestrian walkways and bicycle paths in the Tafuna area


II - 3 - 44

Pago Pago BayUrban RevitalizationPlanning Policy

There have been efforts recently to improve government land within the central businessdistrict of Fagatogo village, but these efforts pale with respect to the total redevelopment andrevitalization needs of m ost com muniti es in the bay area. One of the m ain stum bling blocks tothe Territory’s tourism development has been the gradual deterioration of the villages and thenegative impression it imposes upon visitors to Tutuila. Secondly, the state-of-deterioration ofthe Rainmaker Hotel is now known throughout the Pacific and it is a major deterrent to tourism

development.

Promote the urban renewal and revitalization of the PagoPago

Bay area through community development initiatives andurban renewal funding to remove blighted buildings, repairroads, revitalize local parks and construct public andrecreational facilities within the Pago Pago Bay area

ResponsibilityDOC/PLAN

ParticipantsASCMPDPRDPWASTCADPAASPADLADLGDOADMW RGOV

ReferenceDOC/PLAN

Strategies

complete the planning of government land for the shoreline of Pago Pagoharbor and the Wes t Harbor Shoreside Development Plan

utilize Community Development Block Grant funding as support for urbanrenewal project in the Fagatogo central business district

revitalize the whole of Pago Pago Park with Community Development BlockGrant funds

remove blighted buildings in the Fagatogo and Pago Pago village areas with Community Development Block Grant funds

utilize Community Development Block Grant funds to plan the revitalization ofthe lower harbor and Pago Pago village

redevelop the Malaloa Shoreline Park in cooperation with the Department ofParks and recreation as a recreational site and smal l boat harbor

revitalize Utulei Beach Park with new park and recreational facilities, a publicswimm ing pool and pavilion with Community Development Block Grant funds

undertake a planning effort to re-conceptualize the Rainmaker Hotel as apublic recreational center and convention center for the T erritory’s res identsand for tourism development


II - 3 - 45

Traffic Circulationand OptionsPolicy

3.4.6.7 Traffic Circulation and Congestion

Issue

The ever-increasing number of vehicles on the roads in Amer ican Samoa is caus ing‘trafficjams’ or bumper-to-bumper traffic during the early morning and late afternoon hours. Poorlymaintained roads that were not designed to carry heavy traffic loads contribute to the problem.The traffic congestion can stretch from the American Samoa Com munity College to thecanneries on the eastern shore of Pago Pago Bay during these hours.

There have been no plans to cope w ith the traffic congestion, although a mos t recent Six-Year Federal Highway Plan is about to expire and requires renewal. These plans address theneed for Federal highway construction and improvements, but do not stress the reduction oftraffic nor alternatives to vehicular traffic. Thus, there are no alternative plans for bus transitsystems , car pool ing, staggering traffic patterns or an inexpensive means of m ass transit.

It is not inconceivable that the main highway between Pago Pago Bay and the TafunaPlain

wi ll be at grid-lock in the not too distant future. Unless there are alternative methods to movepeople about the island, Tutuila residents should expect to spend more and more tim e behind thewheel of the ir vehicles .

Develop alternat ive solu tions to the problem of trafficcongestion along Highway One; and develop a trafficcirculation plan for the Tafuna area in conjunction withcomprehensive development of the areas infrastructure andutilities systems

ResponsibilityDOCDPW-CHD

ParticipantsASTCAASPAASCCDPADPRDOADOE

ReferenceDOC/PLAN

Strategies

identify funding resources to acquire a planning consultant to conduct a studyof traffic congestion along Highway One and to recommend options forreducing the congestion

identify planning and development standards for maintaining a steady flow oftraffic along Highway One in conjunction with the consultant’s report

formulate a development and traffic corridor plan prior to the planning andimprovement of the southern coast and Nuu’uli road corridor with FederalHighway Administration funding

include the design of a traffic circulation plan in the formulation of a MasterPlan for Infrastructure and Utilities Development in the Tafuna area


II - 3 - 46

Chapter Three: Environment and Resource Management


3.2 Summary of Principal Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 23.2.1 Overall Pol icy for the Environm ent and Resource Management Component

of the Territorial General Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 23.2.2 Principal Policies for the Environment and Resource Management . . . . . . . . . . . . . II - 3 - 3

3.3 Brief Review of Environmental Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 4

3.4 Policies and Strategies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 63.4.1 American Samoa Environmental Protection Agency . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 6

3.4.1.1 Territorial Environment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 63.4.1.2 Groundwater and Potable Water . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 73.4.1.3 Nears hore W ater Qual ity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 83.4.1.4 Solid Wastes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 93.4.1.5 Piggery Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 10

3.4.2 American Samoa Coastal Management Program . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 113.4.2.1 Cum ulative and Secondary Impacts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 123.4.2.2 Wetlands . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 133.4.2.3 Ocean Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 143.4.2.4 Coastal Hazards . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 15

3.4.3 Coral Reefs and Marine Protected Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 163.4.3.1 Fagatele Bay National Marine Sanctuary . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 163.4 .3.2 American Samoa Coral Reef Ini tiati ve . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 17

3.4.3.2.1 Development Practices and Enforcement . . . . . . . . . . . . . . . . . . . . . II - 3 - 183.4.3.2.2 Public Awareness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 203.4.3.2.3 Over-harvesting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 21

3.4.4 Department of Marine and Wildlife Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 223.4.4.1 Coastal and Inshore Marine Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 223.4.4.2 Offshore Fisheries . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 243.4.4.3 Wildlife Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 26

3.4.5 American Samoa Community College, Community and Natural Resources Division . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 273.4.5. 1 Forestry Clearing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 273.4.5.2 Invasive Species . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 28


II - 3 - 47

3.4.5.4 Pesticides and Chemicals Contamination . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 303.4.5.5 Traditional Knowledge and Practices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 31

3.4.6 Department of Commerce, Planning and Research . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 333.4.6.1 Research and Analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 333.4.6.2 Population and Immigration Studies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 343.4.6.3 Land Use Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 353.4.6.4 Tu funa Developm ent . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 363.4.6.5 Conservation of Land . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 383.4.6.6 Pago Pago Bay Area . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 393.4.6.7 Traffic Circulation and Congestion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 3 - 40

II - 4 - 1

Chapter FourSocial Development and Delivery of Social Services


This chapter focuses upon the policies andstrategies the American Samoa Government canimplement between 2002 and 2005 to plan forthe social development of the Territory and toimprove upon the delivery of ‘basic needs’ andsocial services to the Territory’s residents.

In this plan, ‘basic needs’ means health care,education, public safety, water and sanitation.This chapter discusses health care, educationand public safety. Chapter Five discusses waterand sanitation. This chapter also includes thetopic areas of human resource development, theelderly, youth, disabilities, recreation, culture andhistoric preservation.

The policies and strategies, which appear insection 4.4 of this chapter, address the mostacute social issues and social developmentconcerns identified during the panel discussionsto formulate this plan. There are a wide varietyof issues identified in this chapter because of thebreath of the mandates of the organizations.However, there are several common threads orconcerns running throughout the agencies.These are the caliber of agency personnel skillsand the capability of management to effectivelydeliver the needed services.

After a summary of the principal policies insection 4.2, and a brief discussion of theprincipal issues in section 4.3 of this chapter, thepolicies and strategies follow and are presentedby government agency.

The policies and strategies in this chapteraspire to achieve the following aims or goals: • the ability to plan, implement and manage

service delivery programs better;

• the abil ity to e ffectively and eff ic ientl y servethe public and those in need;

• the ability to deliver services up to the

established professional standards expectedof personnel and agencies;

• the ability to improve the knowledge andskills of the labor force leading to betterindividual and agency performance;

• the ability to rely upon home-grown, skilledpersonnel to provide continuance and qualityservices;

• the ability to cooperate and coordinateamong and between agencies and programsto attain maximum results and benefits fromprograms;and

• the ability to find a balance between therequirem ents of a modern, monetaryeconomy and the soc ietal mandates of thetraditional Samoan culture and to adapt thebalance to the social development of theTerr itory and the delivery serv icemechanism s.


4.1.1 Overall Policy of Social Developmentand the Delivery of Social Services

Focus upon creating the capacitywithin the American SamoaGovernment to effectively andeffic iently provide social servicesand social develop programs of aprofessional standard to the residents of the Territory

This mission is supported by policies andstrategies in section 4.4 of this chapter. Theyare briefly outlined on the follow ing two pages toprovide a quick overview of this chapter’scontent and strategic direction.

Part II: Chapter FourSocial Development and Delivery of Social Services

II - 4 - 2

4.1.2 Principal Social Development Policies

• Champion Cooperation, Planning and Management for the Arts, Culture and theHumanities...... promote historic preservation through coordinated planning, budgeting andmanagement

• Promote the Conservation of Cultural and Historic Resources......preserve the Terri tory’sarcheological and historical resources and establish a facility for their preservation

• Promote the Preservation and Repatriation of Cultural and Historical Artifacts... ..preserve andrepatriate resources of cultural and historical im portance

• Integrate Cultural Appreciation and Historic Preservation with Economic Planning......integratecultural programs with economic development planning for the growth of a visitor industry

• Promote the Development of a Modern Territory-Wide L ibrary System ...... secure the financialbacking to fulfill the library system’s workforce, infrastructure and telecomm unications needs

• Develop Well-Thought Out and Effective Education Plans.....promote excellence in educationat all levels of the system and account for the future educational needs o f the Ter ritory’s residents

• Assess the Effectiveness of Educational Programs ...... develop the capability within theDepartment of Education to carry out research and assessment of the effectiveness of its programs

• Place Qualified Teachers in the Lower Levels of Elementary School...... properly ground andguide children in education to smo oth the learning transition from elementary school to highereducation

• Promote the Attraction and Retention of Qualified Teachers ......develop personal andprofessional incentives and increase the supply of trained teachers through a local program ofinstruction

• Initiate Strategic Planning to Account for Rapid Population Growth......account for populationgrowth that will impact the infrastructure and instructional needs of the Department of Education

• Re-establish a Mandate for Health Planning...... establish a suitable mechanism for formulatingTerritorial health policy and plans that ensure broad input from health officials and the public

• Develop a Socially Equitable and Sustainable Territorial Health Care Financing Strategy......and shift a significant portion of the cost of health care from government to consumers

• Reduce the Dependence upon the Off-Island Referral Service... ...achieve a more cost-e ffectiveallocation of health resources between curative health care services and health improvementprograms

• Foster Personal Health Care and Well-Being......create an environment whereby people aremotivated and empowered to take greater personal responsibility for their own health and well-being

• Improve the Health Care Workforce......increase the capac ity of the health care system to respondto health needs through health workforce development and information based decis ion making

• Promote the Continuing Education of Health Care Prov iders......ensure that patient care delivery


II - 4 - 3

is consistent with and meets the U.S. Center for Medicare and Medicaid Services (CMS) standards

• Improve the Availabili ty of Pharmaceutical and Medical Supp lies... ..execute an effectivepurchasing, inventory, and resupply systems

• Improve the Hospital Plant Appearance and Operations... ...achieve affective, preventivemaintenance programs by recruitment of highly skilled personnel and a continuing educationprogram

• Develop the Capability to Properly Diagnose Diseases......increase the financ ial capacity topurchase new equipment and by recruiting highly trained personnel to operate the equipment

• Promote the Fair and Equitable Employment of Personnel.....employ people upon a rationalreclassification scheme and merit system based upon the principles of appointment and promotion

• Improve the Performance and Effectiveness of the Department of Parks and Recreation......utilize capacity building programs to improve management techniques

• Improve the Planning Capabilities of the Department of Parks and Recreation.....cooperate andwith other government agencies, commissions and sports organizations to plan for the future

• Deliver Disability Services more Effectively through Planning and Coordination......cooperateand coordinate the delivery of special education services to children and people with disabilities

• Adopt the Americans with Disabilities Act (1990) into Law ..... implement the legislation throughpublic awareness, orientation and coordination with government agencies and private businesses

• Recruit Qualified Service Providers for the Disabled..... provide health care and services toindividuals with d isabil ities through an aggressive campaign to raise financial support and acquirequalified personnel

• Develop Employment Training for Individuals with Disabilities.....ensure that the disabled aregainfully employed by creating a training system and employment of individuals with disabilities

• Promote the Development and Construction of a Fully-Functional Senior Center Facility.....serve the elderly in times of emergency, provide a site for elderly health care, and a leisure time site

• Expand Senior Citizen Programs.....include health care and emergency care and promote thedevelopment of leisure time and economic development programs for American Samoa’s seniorcitizens

• Create Planning Capacity within the Department of Public Safety......develop a long-termplanning program and develop long-term and annual plans that stress education and training ofemployees

• Reduce Juvenile Crime and Public Disturbances by Youth..... strengthen the dialogue aboutyouth and foster the development of cooperation and coordination among agencies andorganizations involved with youth to define policies, plans and strategies for youth activities


II - 4 - 4

4.3 Summary of Social Development Issues

The root causes of the issues orproblems that most agencies face relati ve to thesocial development of the Territory and deliveryof services may be summed up by severalphrases :

• the funding is inadequate to meet theoperational needs of the agency and todeliver a sati sfactory level of per formance;

• agencies are understaffed and a portion ofthe personnel are under-skilled orinadequately trained to perform up to theprofessional standards expected of theirprofessions; and

• there is a lack of long-term planning andstrategic management to deliver high qualityservices effectively and efficiently over time.

In the realm of the arts, culture and thehumanities, the basic problem is one of securingsufficient funding to carry out and expand culturalprograms. The nature of the organizations, andtheir lack of centralization and overall planningfor common purposes hinder their ability to scoremore funding. Other issues are the ability of theHistoric Preservation Office to preserve theTer ritory’s archeological and historical resourcesand to repatriate resources of cultural andhistorical importance without adequate supportfor funding and a legislative mandate.

The performance of the educational systemand the quali ty of education offered is of upmostconcern to educational leaders. The FeletiBarstow Public L ibrary is endeavoring tomodernize and computerize the State Librarysystem but it faces an uphill battle to secure thefinancial backing to fu lfil l the l ibrary system ’sw o r k f o r c e , i n f r a s t r u c t u r e a n dtelecommunications needs.

Rapid population growth, i.e., the number ofchildren entering the school system, is hindering

the capabi lity of the Department of Education tooffer a quality education. W ith insuff icientfunding, schools are over-crowded and not builtfast enough to cope with the growth. Adequatelearning tools are not available in sufficientsupply, and teachers are leaving the system for higherpaying jobs w ith less pressures.

Under the circumstances, it has becomedifficult to attract properly trained teachers. Thelower grade levels, in particular, i.e., kindergartenthrough grade five, require teachers who aremotivated and can provide children with a solideducational foundation to smooth their transitioninto the higher levels. To meet these issueshead on the Departm ent of Education needs todevelop personal and professional incentives forincumbent teachers to remain in teaching and toattract new teachers into the system.

The next decade will tax the skills of theDepartment of Education leadership. The nextdecade will require well-thought out and effectivestrategic planning to meet the instructional andinfrastructural needs of the system, if thedepartment intends to achieve its goal to improveperformance and promote excellence in learning.

W hile the Territory’s health system is inmuch better condition than those of other Pacificnations, the health system is at the verge ofbeing unable to provide the population withsufficient services. The cost of health care hasrisen significantly during the last decade to theextent that the government needs to find analternative means to finance health care. Therenow needs to be a socially acceptable andequitable health care financing strategy thatshifts a portion of the burden of health care fromgovernment to people.Secondly, people will have to learn to take careof themselves better to reduce costs. Thesystem needs to foster personal health care andwell-being and to create an environment wherebypeople are motivated and empowered to takegreater personal responsibility for themselves.


II - 4 - 5

To provide the kinds of services that oneexpects from the health care system, healthplanning needs to be re-establ ished. Arevitalized policy planning mechanism , lead bythe Department of Health, for formulatingTerritorial health policy and plans could ensurebroad input from health officials and the publicfor the development of a responsive system.

The American Samoa Medical CenterAuthority is attempting to improve the condition ofLBJ Hospital and its services, but it is annuallyspending considerably more than it receives insubsidies from the government or from hospitalfees. This means that the authori ty will have toimprove its management capac ity and itspreventi ve maintenance programs , come up withfinancing measures to meet its increasing bills,or reduce some of its services. The hospital isalready under duress because of the high cost ofpharmaceutical and medical supplies.

But the high cost of hospital care is only oneof i ts concerns. The authority needs to improvethe quality of the health care workforce, byrecruitment of highly skilled personnel and thepromotion of continuing education and training,in order to ensure that patient care delivery isconsistent with and m eets the U.S. Center forMedicare and Medicaid Services (CMS)standards .

Developing and retaining a well-qualifiedworkforce is a government-wide problem. At alevel much lower than U.S. wages, theAmerican Samoa Government is not in acompetitive position to attract or retain qualifiedpersonnel. The Department of HumanResources needs to implement its em ploymentand position reclassification schem e and setwages at a level at which personnel will want toremain and contribute to the functioning of aneffective and effic ient workforce.

Management capaci ty, lowered by the lack offunding, is an issue for the Department of Parksand Recreation. The department needs toupgrade its administra tive capacity withtechnology and computers, and to use thetechnology and skills behind it to leveragefunding to expand its programs and providerecreational services to the public. Secondly, the

Territory is short of recreational facilities andneeds to upgrade i ts planning capac ity to supportthe community and recreational organizations.

The Office of Protection and Advocacy for theDisabled wants ‘The Americans wi th DisabilitiesAct (1990)’ adopted into law by the AmericanSamoa Legislature. W ithout an active law OPADcannot provide guarantee individuals w ithdisabil ities sufficient coverage.

OPAD also wants to improve its planning,cooperation and coordination with theDepartment of Education to provide betterspecial education services to children and peoplewith disabilities.

As with other government programs, OPADneeds well-trained people to serve its clientele.Recruitment of qualified service providers for thedisabled that can offer health care and servicesto individuals with disabil ities is necessary.W here disabilities do not fully restrict individualsfrom work, employment training is needed toensure that the disabled are gainfully employed.

American Samoa’s elderly population ‘inneed’ is increasing. Senior Citizen programs,such as health care and emergency care, do notsufficiently contend with the demand for services.W hile the issue is not widespread, elderly abuseis increasing. Therefore, a fully-functional SeniorCenter facility to serve the elderly in times ofemergency and to provide a site for elderly healthcare and leisure time is greatly desired by theTerritorial Administration on Aging. Secondly,the Center could serve to promote thedevelopment of economic development programsfor American Samoa’s senior citizens who wishto continue to work and support themselves.

The Department of Public Safety, the Courts,the Public Defender’s Office, and the Departmentof Human and Social Services are concernedabout American Samoa’s youth. Crimes andpublic disturbances among youth are increasing,as well as high risk activities, such as theconsumption of alcohol and the use of drugs. Tocombat the problem these agencies need tostrengthen the dialogue about youth and fosterthe development of cooperation and coordinationamong agencies and organizations involved withyouth to define plans and activities for youth that


II - 4 - 6

Cultural and Historic Planning and Coordination Policy

will draw youth away from making wrongdecisions and keep youth

The Departm ent of Public Safety, like otheragencies, has identified the need to improve itsmanagement capacity and upgrade the skills ofits employees, i.e., the police, fire andcorrectional divisions . The department needs todevelop a long-term planning program thatincludes education and training oriented toprotecting the population of American Samoa.

4.4 Strategies for Principal Social Development Issues

4.4.1 American Samoa Historic Preservation Office

4.4.1.1 Coordination among Cultural Resource Agencies

Issue

Coordination and management of cultural resources in the Territory is rudimentary at bestand substantially underfunded at the local level. There is no organized or stat uto ry coordinationamong various cultural and humanities agencies or organization. The agencies mandated with themaintenance and continuance of the Territory’s cultural resources are separated and not under oneunified department. They are the Office of Archives and Records Managem ent, the AmericanSamoa Counci l on Arts, Culture and the Humanities, the American Sam oa Historic PreservationOffice (ASHPO), and the Jean P. Haydon Museum. Together, they try to cooperate and meldactivities as much as possible, but there is no un ified or es tablished protocol, mission or budget. Interms of budgeting, the O ffice of Archives and Records Management is funded locally, the ArtsCouncil receives one-seventh of its operating funds from the American Sam oa Government and theremainder of its revenues come from the Federal government. ASHPO is wholly Federally funded,while the Museum is not funded.

Champion the cause of cultural and historical awareness bysupporting cooperation and coordination among AmericanSamoa’s arts, culture, humanities and historic preservationorganizations through coordinated planning, budgeting andmanagement

Part II: Chapter FourSocial Development and Social Deliver System Policies

II - 4 - 7

Cultural and HistoricConservation and Preservation Policy

ResponsibilityGovernorDLAFono

ParticipantsASHPOASCAHDASDLGDPPBDPD

ReferenceASHPO

4.4.1.2 Cultural and Historic Conservation

Issue

Population growth on Tutuila, and a general lack of coordinated planning, is affecting theTerritory’s cultural resources. W ith more than half of Tutuila’s population non-AmericanSamoan, the indigenous sense of ownership of l ands and traditions has been alarmingly diluted. That is, there seems to be a lack of, o r loss of, ‘pride of place’ which affects the way the residentscare for their cultural and historical artifacts and sites. Disenfranchised residents and careless,unzoned and uncontrolled development are contributing to the des truction of the T erri tory’sarcheological s ites and evidence, that are as muc h as three thousand years old.

Promote the awareness and importance of the conservationand preservation of American Samoa’s cultural and historicresources and strengthen the capacity of the government toconserve and preserve the Territory’s archeological andhistorical resources

Strategies

develop the capacity of American Samoa’s cultural promotion and historicpreservation agencies to work effectively together and to maximize theireffectiveness by establishing a planning program for coordinated cooperation

include the Historic Preservation 2002- 2006 W ork Plan in overall planning

formulate a five-year plan with policies and strategies to cooperatively promote,implement and manage overall cultural and historic preservation programs

devise a step-wise budgeting and funding plan to develop and upgradeAmerican Samoa’s cultural facilities and to provide coordinated activities

evaluate the need to establish a unitary organization to oversee and/orcoordinate the government’s cultural and historic policies and programs

identify strategies to utilize Federal funding for common ends or projects


II - 4 - 8

Cultural and HistoricProtection andRepatriation Policy


ParticipantsASHPOASCACHDASDLGDOHDPPBDPS

ReferenceASHPO

4.4.1.3 Cultural and Historic Protection and Preservation

Issue

American Samoa’s art, artifacts, and archeological evidence are spread out around theworld, because there are no protec tive or repatr iative regulations. Most states havecomprehensive cultural resource conservation laws. American Samoa has none. Indeed, thereis no suitable facility for repatriation of the Territory’s artifacts and no funding support for historicconservation.

Pro Promote the maintenance, protection and repatriation ofAmerican Samoa’s cultural and historical artifacts and locatea facility to maintain artifacts and resources of cultural andhistorical importance


ParticipantsASHPOASCACHDAS

Strategies

promote the development of cultural and historical awareness by budgeting forand including a publ ic awareness program in agency annua l operation plans toadvocate conservation and preservation of the Territory’s archeological andhistorical resources

cooperate with planners and resource managem ent agencies to advise on theformulation of standards, rules, regulations and plans with regard to land useand development practices to conserve and preserve historic andarcheological s ites and ar tifacts

cooperate with the Governor’s legal office and the Department of Legal Affairsto devise and enable laws and regulations to conserve and preserve culturaland histor ic artifacts

cooperate with the Territory’s combined resource management advisory boardto identify measures to educate enforcement agencies to adequately enforcecultural and historic preservation laws

Strategies

formulate and enact laws and regulations to conserve, protect maintain andrepatriate cultural, historical and archeological artifacts

identify a suitable location for the depository of cultural, historical andarcheological resources and formulate a plan to acquire funding and improveor cons truct the fac ility


II - 4 - 9

Heritage Tourismand IntegratedPlanning Policy

4.4.1.4 Heritage Tourism

Issue

Culture and history are a viable visitor drawing card, but there is no unified front, planningor coord ination that p romotes culture tourism . There seems to be a lack of understanding of itsimportance to economic development. Coordinated planning that could develop heritage tourism andecotourism, which are two s ides of the same face, is m issing. However, littering, indifference andpoor attitudes currently make this an unattractive place, that would discourage tourism unlessremedied.

Integrate cultural appreciation and historic preservationplanning with overall Territorial development planning andformulate economic development plans for the growth of avisitor industry to include heritage tourism

ResponsibilityASHPODPD

ParticipantsDOC- OTDOC -EDDDLGDPR

ReferenceASHPO

4.4.2 Feleti Barstow Public Library (State Library)

Issue

American Samoa’s residents have access, or limited access, to thirty-three librariesthroughout the Territory, but there are still under-served segments of the population. Thepopulation is under-served because of less than adequate funding for services, the need for morelibraries and space, a lack of books and reading material, a lack of mobile libraries forcomm unities w ithout schools, and a lack of telecomm unications connectivity to the State Libra ry.

It is difficult to plan activities and purchase equipment with uncertain budgets. Federalgrants are project specific and do not go towards operating costs. Local funding is uncertain andunpredictable. Funding is based upon tax levies, and funding for the library has been continuallydecreased over the years. Operating costs can not be born by Federal assistance, so localfunding is vital to the existence of the library system. Since there are no guarantees for fundingin the future, this always puts the library system in jeopardy.

Strategies

identify cultural appreciation activities and archeological and historic sites thatcould be associated with the development of heritage tourism

assist and cooperate with Territorial and economic development planners inthe formulation of tourism plans that include heritage tourism

cooperate with Territorial planning to identify and find funding for historic sitesthat can be renovated and improved as a base for heritage tourism or general visitor industry destinations


II - 4 - 10

Although the Feleti Barstow Public Library (State Library) is a new facility, the demand foruse of the facility is outstripping available space. For example, the Children’s reading room is toosmall in com parison to the present use demand, and there is a need to expand the computerroom to accomm odate the use of more Internet computers . A portion of the li brary’sconstruction was funded by the Department of Interior and the U .S. HUD Comm unityDevelopment Block Grant Program (CDBG). Future funding to add on to the facility is uncertainas there are no funds allocated through the Capital Improvements Program awards from theDepar tment of the In ter ior and CDBG community im provements gran ts are limi ted in value. Inaddition, the State Library must compete with other potential projects, e.g. health clinics, forfunding.

The State Library needs to create a physical connection between the State library and theTerr itory’s librar ies and to upgrade the telecommunic ations capabiliti es of the library system tobetter serve the essentia l inform ation needs of the community and pr ivate sector. T he StateLibrary is currently included in the E-rate program administered through the Department ofEducation, however, Federal examiners have assessed the Territory’s E-rate participation anddetermined that the State Library is not an eligible participant. This means that the State Librarywill soon be expected to pay its own telecommunications costs. Eventually, the E-rate programwill end, leaving all public schools and school li braries to handle the total telecommunicationscosts.

The State Library and other libraries throughout the Territory require a more educatedworkforce, that is, trained librarians. The library system has shortage of trained librarians whichwill impac t all decisions regarding the future of library services. The need for dedicated,experienced and properly trained librarians is a T erritory-wide issue and impacts the education ofthe Territory’s children, youth and adults.


II - 4 - 11

State LibrarySystemPolicy

Promote the development o f a modern Territory-wide library system capable of serving the needs of the Territo ry’s

residents and identify the financial backing to fulfill thelibrary system’s workforce needs, infrastructure andtelecommunications requirements

ResponsibilityFBPL

ParticipantsGOVCIPDOCDPPBDOEASCCDHRUH-SSRIDPDDHSS

ReferenceState LibraryPlan1998FBPL

4.4.3 Department of Education

Strategies

increase the awareness of the importance of maintaining a public librarysystem through public information programs

utilize the ‘State Plan for the Library Services and Technology Act in AmericanSamoa: 1998 - 2002' as leverage in promoting the development of theTerritory’s State Library System at the highest levels of government to acquireadditional funding

coordinate with the Community Services Block Grant Program Administrator inthe asses sment of community needs and the developm ent of a Com munityServices State plan which includes potential library system programs devotedto the information and educational needs of the low-income under-servedpopulation

formulate a State Library System capital im provements plan that identifiesneeded new facilities and improvements to existing facilities, the type ofequipment required to bring the system up to contemporary standards, thetiming of the needed improvements and costs involved

prioriti ze the needed fac ilities and apply for project funding to the CommunityDevelopment Block Grant Program, and submit the library system capitalimprovements plan to the government’s Capital Improvements ProgramCommittee for next round funding consideration, 2007 - 2011

utilize the Social Science Research Institute of the University of Hawaii fortechnical advice and to assis t with leveraging public and Federal programs tosecure funding in the development of a Territory-wide computer andtelecommunications network

participate with the Department of Human Resources and the WorkforceDevelopment Commis sion to identify strategies to improve the capabilities ofthe Territory’s library workforce and use Goal 6 of the State Library Plan as aguide for workforce development

continue to sponsor and offer professional development opportunities andencourage staff to pursue higher education degrees in library science


II - 4 - 12

Research andEducationalAssessment Policy

4.4.3.1 Educational Assessment

Issue

The Department of Education is not satisfied wi th its ability to report the status ofeducational achievement in the Territory. Furthermore, the department does not have thecapability to forecast anticipated levels of achievement. This is due to several factors: a lack ofa proper system of record keeping and collection of educational data; poor planning in the pastthat did not demand a research and development component in the departmental plan, or needsassessment and evaluation of real achievement status; and insufficient competen t personne l withthe kind of statistical background and knowledge needed to carry out this function. The lattercondition is exacerbated by low salaries offered by the department and competition from othergovernment agencies that can attract the caliber of people required.

The department’s future plans and hopes of continued success will be severely

hamperedif the department is unable to put together a management team to lead its educationalassessment and recruit proper expertise to due the research, data collection and analysis

Develop the capability within the Department of Education tocarry out research and assessment of the effectiveness of itseducational program and the achievement of it students

ResponsibilityDOEGOVFono

ParticipantsDPPBDHR

ReferenceTGP IssuesStatement2001DOE

4.4.3.2 Instru

Strategies

identify funding to set up a separate Division of Research and EducationalAssessment with appropriate expertise to collect the data on studentachievement, analyse the same disseminate them to departmental leadership

recruit personnel with sufficient statistical background to work in the division.Require temporary expertise to provide training in specific areas of need for theproper implementation of the necessary task assigned to the new division

budget for the m ost up-to-date equipm ent for the im plementation of the datacollection and analyzing data . Include in-services training for the division ’spersonnel in research applications, data collection, and analysis

recognize the significance of the new division in program planning with theintent to incorporate assessment results i n the curriculum and studentperformance

establish policies for the proper dissem ination of data and storage ofassessment instrum ents

endeavor to hire the most competent personnel for the new division by offering


II - 4 - 13

InstructionalCapacityPolicy

ctional Capacity: Kindergarten through Fifth Grade

Issue

School children are not receiving a good grounding in education. The problem begins at the kindergarten level and in the lower grades of elementary school. The problem becomes

more apparent later on when teachers m ust cope w ith ill-prepared s tudents in the higher grades. The problem is mainly the resu lt of an insufficient number of teachers who are bes t suited toteach at the ground level, i.e., Kindergarten through 5th grade level. The situation has existed fora long time and the department has been unable to attract qualified teachers. Thus, the lowerlevels get uncertified teachers. Unfortunately these are critical levels, but most returning collegeor university graduates prefer to teach in high schools. They have indifferent attitudes towardsteaching in a lower-lever classroom.

To deal with this problem, the department needs to improve its educational managementand to put the best teachers at the Kindergarten through 5th grade level. Without goodeducational instruction at the lower levels, successful learning will not occur.

Foster properly grounded and guided instruction at the lowerlevels of the educational system in order to create a smoothlearning transition from elementary school through highereducation; and endeavor to recruit qualified teachers for thelower levels of elementary school

ResponsibilityDOEGOVFono

ParticipantsDHRDPPB


Strategies

establish a solid policy for instructional capacity in order to develop a soundeducational foundation for students at lower levels of the educational system

budget for attractive salaries to place the best (most competent) teachers inthe lower grade levels and kindergarten to improve higher achievement levelsfrom the Terr itory’s students

set up professional development programs for teachers as on-going incentivesto motivate teachers to strive for excellence in teaching

identify methods to induce prospective teachers and teachers intraining tofocus their education on teaching skills oriented to kindergarten through thefifth grade

investigate the possibility of setting up a subsidized teacher-training andcertificate programs for teachers that could be bonded by the Department ofEducation to return to American Samoa and teach in the lower grades

offer specialized teacher training at ASCC through long-distance learning thatwould prepare teachers for instruction at lower levels


II - 4 - 14

PlanningEducationPolicy

4.4.3.3 Planning Education

Issue

The Department of Education struggles with a lack of continuity in the planning of itsmission. T here is a lack of continuity in planning due to changes in Directors, politicaladministrations and political influences. A new Director may not be willing to continue with aprevious Director’s plans. In the past, plans have had loopholes that have left their integrity inquestion. Because there may be a question of the feasibility of implementing the plans, they aresubject to the discretion of the Director.

Results of changes in the education system are always long-term and cannot be readilyassessed. Therefore, i t is necessary to have well -thought out plans that can carry-over intodifferent administrations. W ithout good planning the department will lose its direction forimprovement, educational progress will be limited and the Territory will suffer. Excellence ineducation is the bes t hope the Territory has for the future.

Develop well-thought out and effective education plans thathave universal acceptance and promote excellence ineducation at all levels of the educational system and accountfor the future educational needs of the Territory’s residents

ResponsibilityDOE

ParticipantsDOCDHRDPPBASCC


Strategies

establish a task force to work on long-range planning with a fifteen-yearhorizon and identify funding to formulate and carry out the plan

assign the task force the responsibility of formulating the first five-yeareducation plan as a strategic foundation for subsequent five-year update plans

create the position o f Education Planner and assign a senior admin istrator towork closely with the Director of Education in reviewing and authorizing theplan

establish procedures within the department to set time fram es for programs, to require s trict adherence to the plan, and to assess and mon itor itsperformance

mainta in the task force as an on-going m onitoring control g roup and to updatethe plan as the next five-year plan towards the close of the first plan

work with DHR to recruit appropriate personnel for every division in thedepartment so that all plans can be implemented with maximum success

work with DOC and DPPB to ensure the continuity of funding for facilities andpersonnel to meet the needs of the plan


II - 4 - 15

TeacherRetentionPolicy

4.4.3.4 Teacher Attraction and Retention

Issue

The Department of Education is perennially beset with an insufficient supply of qualified,effective and competent teachers . Teacher burn-out is a serious problem in Am erican Sam oa’seducational system. Teachers are expected to perform an important function, but receive littlereward for their work. The department loses too many teachers every year because of lowwages and a high workload. Over the last five years, teachers wages have not measurablyincreased while the number of students in classrooms has increased significantly. Thus it isdifficult to attract competent teachers.

There is also a lac k of incentives to draw university graduates into making teaching ahighly

preferred career. Attracting people to education requires the promotion of education as a careerwith inner-personal rewards while s tudents are still in high school. Teachers also need theopportunities to extend their own education and to improve their instruction capabilities througheducational incentives sponsored by the department. If the present situation continues, teacherburn out wi ll continue to plague efforts for continued im provement in children’s education. W ithout sufficient properly trained teachers, the instructional programs cannot reap theanticipa ted resul ts.

Promote the attraction and retention of qualified, effectiveand competent teachers through the development ofpersonal and professional incentives; and increase the

supply oftrainedteachersthrough alocal programof instruction

ResponsiblityDOEGOVFono

ParticipantsASCC


Strategies

establish a register of teaching personnel in each division (ECE, +K5,Elementary and Secondary) recognizing the true record of professionalperformances by each individual teacher.

continue programs for professional development for teacher who have beenrecrui ted but are not properly prepared for the job of imparting knowledge tostudents in order to improve the participants’ abilities to teach effectively

improve information dissem ination to teachers to ensure that they are aware ofthe opportunities for professional improvement, to attend workshops andtraining pertaining to their particular areas of interest and for their promotion

set up an arrangement with ASCC to secure the opportunity for teachereducation affiliated with an accredited university in order to guarantee areliable pool of teachers each year, that the department can employ to fill gapsresulting from teacher retirement, resignations or removal for unsatisfactoryperformance

utilize the Teacher of the Year program to promote excellence in teaching andto increase incentive levels and elevate the level of competition amongteachers


II - 4 - 16

Overcrowding andPreparedness Policy

4.4.3.5 Overcrowding and Preparedness

Issue

Population increase and population concentration in the Tafuna area due to a highnatural

natural growth rate and immigration, plus a shift of people from the Eastern District of TutuilaIsland and Manu’a Islands to the Tafuna area for accessibi lity to work and for their children’seducation, is putting a lot of pressure on the capacity of the schools in the Western Dis trict ofTutuila Island. The generally rapid increase in population is im pacting the ability of theDepartm ent of Education to provide classroom space for students, as well as find land toconstruct more classroom facilities. Land is limited for any physical expansion of the schoolsand families who own land are not readily accepting requests for more land to be used foreducation.

The Department of Education is cur rently unable to keep up with the rate of populationincrease by construc ting new c lassrooms to accom modate m ore students entering the system. Immigration of new students from foreign countries is placing an additional burden upon thesystem . If the si tuation of overc rowded classes continue, overc rowding will l ower children’sachievement and the Territory will suffer socially from younger generations not well educated.

Initiate strategic planning to account for the rapid increase inpopulationthat willimpact theinfrastructural andinstructionalneeds of theDepartmentof Educationand identifyresourcesand alternatemeans toreduce thenumberstudents perclass

Responsibility

Strategies

utilize the new Division of Research and Education Assessment to work withthe Research and Statistics Division of the DOC to identify and map populationtrends from Census 2000 and incorporate the findings into the education plan

incorporate population growth as major consideration in the formulation of thefive-year education plan

establish a set maximum number of students as considered ideal for properteaching and the learning process and incorporate the limit in facili ty planning

utilize the Census 2000 data and the forecasts of the Tualauta County LandUse Plan and ASPA Facilities Plan to modify and update the CapitalImprovements Plan to accommodate for high growth population areas andfacility siting

construct two story buildings with six to eight classrooms where the bulk of thepopulation is or will be shifting to and to account for lack of lateral space

minimize teacher absences to mitigate the problem of having to shift entireclasses to another classroom and teacher


II - 4 - 17

Territorial Health PlanningPolicy

DOE

ParticipantsDOCASCCDPWGOVFonoDLG


4.4.4 Department of Health

4.4.4.1 Territorial Health Planning

Issue

The Ter ritory has been without a Territorial health planning agency, and no health planfrom which to work, for the last decade since the demise of the Federal State Health PlanningDevelopment Agency. Thus there is insufficient health planning and no appropriate mechanismfor Ter ritorial health poli cy formulation. Current planning is haphazard and unsystematic , withlimited input from health officials and the public.

The Department of Health has not effectively informed the Governor of the problems andlobbied hard enough for a planning process, giving the impression that there is a perceived lackof interest within the Department of Health. If the situation continues without remedy, what long-range health planning that might occur would be at the agency level. It wouldn’t be developed incollaboration with terri tor ial development cri ter ia or economic development planning, or Terri tory-wide human capital development planning; and would, in general, not be implemented.

Re-establish a mandate for health p lanning and anappropriate mechanism for formulating Territorial healthpolicy and plans that ensures broad input from healthofficials and the public


II - 4 - 18

ResponsibilityDOHGOVFono

ParticipantsASMHADOCDPPB

ReferenceDOH

Strategies

identify the type of planning struc ture requi red to effecti vely formulateTerritorial health policy, to accomm odate the views of health officials, thepublic, and outside experts on health and health care issues

formulate a short-term plan to establish a planning agency and health planningcouncil including an identification of the personnel required, a budget andtiming

lobby for and request authorization to re-establish a health planning agencywith the authority to develop health policy and plans on a Territory-wide basis

establis h a ‘Terr itorial Health Policy and Planning Counci l’ by law withmembership broadly representative of health consumers, elected officials, andhealth professionals officials to recommend health policy, and develop long-range plans and im plementation strategies for health


II - 4 - 19

Health FinancingPolicy

4.4.4.2 Health Financing

Issue

The present method of financ ing health c are cannot continue as med ical costs continue toescalate beyond the health system’s ability to meet the costs. An effective health care financingmechanism is lacking. The current financing method is both socially is both socially inequitableand unsustainable. The government and the American Samoa Hospital Authority can no longersupport health care to a level that meets public expectations, standards of quality, and scope ofservices.

If health care costs continue to escalate, and the health system continues to divert anunacceptably large proportion of the health care dollars for off-island tertiary care, the hospitalwill ul timately have to raise fees to the point that low-income individuals w ill find basic healthservices inaccessible and ess ential health services will become eroded to due to a lack offunding. A shift in priorities that would attain and effective balance preventative and curative careis sorely needed.The fact that no effective health care financing mechanism exists demonstrates insufficient

expertise among the community of local health professionals; poor understanding of theunderlying causes of the current health care financing crisis and possible solutions; and a lack ofpolitical will to establish a health financing policy that will enable an effective solution to beimplemented .

A health care financing mechanism is needed that will (1) generate additional revenuesfor health; (2) shift a greater portion of total health costs to health consumers , including the cost of

off-island care, through a pre-payment mechanism; (3) provide adequate funding for primaryhealth services, inc luding bas ic health care; and (4) ensure access to essential heal th services .

Develop a socially equitable and sustainable Territorial healthhealth care financing strategy and system that generate

additionalhealth carerevenues andshifts asignificantportion of thecost of healthcare fromgovernmenttoconsumerssponsibility

ParticipantsDOHGOVASMCAGOVDLAFono

Strategies

Governor should appoint task force on health care financing to initiate thestudy and assessment of health financing alternatives

the Task Force on Health Care Financ ing should obtain funds to engage theservices of health-financing expertise to assist with the formulation

the Task Force on Health Care Financ ing should identify alternative,progressive health financing schemes that can be ‘phased-in’ over a five yeartime span

the Task Force on Health Care Financ ing should cooperate closely with theTerritorial Planning Commission Advisory Board to establish an overallperspective on the issues and to identify strategies that will ease the changeover from a government financed health system to one supported byconsumers


II - 4 - 20

Health Resource AllocationPolicy

ReferenceDOH

4.4.4.3 Health Resource Allocation

There continues to be a great discrepancy between the amount of resources expendedon

curative healthcare versus preventive care. Too great a percentage of total health dollars arespent on tertiary care and too small a sum is spent on preventative health programs andpreventative services. There is a lack of understanding at the highest levels of government of thecost involved and the cost effectiveness of strengthening preventative services and programs.

The off-island care program lacks clear policy guide lines and decision rules . A great amount to go for off-island health care for a few, while relatively little funding for the many is put

into public health programs. In the absence of a structured and regulated medical referralprogram,medicaldecisions willoutweighfinancialdecisions. The lack ofeconomiccriteria in thedelivery ofhealth carehas lead thesystem to i tspresent state.

Achieve a more cost-effective allocation of health resourcesbetween curative health care services and health improvementprograms and reduce the dependence upon the off-islandreferral service and inequities in service by providing betterpreventive health care to reduce the need for off-is land tert iarycare by preventing and delaying serious illness with effectiveprimary care

ResponsbilityDOH

Participants

Strategies

generate additional revenue for better health promotion, disease prevention,and primary care through effective health financing mechanisms

maximize the availability of Federal dollars for community health centers byupgrading the Department of Health family centers

improve management of the off-island referral program by requiring anagency outside the American Samoa Hospital Authority to approve paymentsfor referrals recomm ended by the off-island medical referral committee


II - 4 - 21

Governor’s Task Force on Health CareFinancing

ASMCA

ReferenceDOH


II - 4 - 22

PreventativeHealth CarePolicy

4.4.4.4 Prevent ive Health Care

Issue

The health and well-being of the Territory’s population is not optimum. Relative to thepotential for health improvement, it is clear that the government’s health promotion programs areinadequate i n terms of design, degree of effort and commitm ent of resources to e ffectively modifyhigh-risk behaviors. Poor diet and inactivity increasingly lead to obesity, diabetes and hear t disease. The prevalence of chronic disease associated with poor life style choices and behavior will prevailand increase if the situation is not effectively addressed. People require better knowledge of personalhealth risks in order to take greater responsibility care for their ownhealth and well-being. Theypossess inadequate of knowledge and a poor understanding of the relationship between risk factorsand their health. There is Insufficient public information and education about health, beginning inelementary school. Unfortunately, apathy prevails for there is a lack of support groups and a lack ofstep by step planning and promotion from the top of the heal th system down.

Create an environment whereby people are motivated andempowered to take greater personal responsibility for theirown health and well-being, and provide them with thenecessary in format ion and opportunities to act on theirdecisions and behalf

ResponsibilityDOH

ParticipantsAASMCA

ReferenceDOH

Strategies

demonstrate the effectiveness of a prevention based approach to health careby implementing a program as the PPIP in at least one health center

conduct a research project to docum ent the health impac t of improved healthcare educ ation and hea lth promotion methods in a t least one comm unityhealth center


II - 4 - 23

Health WorkforceDevelopment Policy

4.4.4.5 Health Workforce Development

Issue

The health care system is not adequately meeting the needs of the public, because the healthcare workforce is not sufficientl y trained to delivery the high quality service expected of it. Management often focuses upon day-to-day operations to the detriment of development andlong-term planning fo r improvement. A causal fac tor for lack of focus on long-term capaci tybuilding is the requirement to attend to present needs and the condition of being overwhelmed bythem. Most of the reason is insufficient funding for capacity build ing, i.e., planning, developm ent,and training. Unfortunately, the government’s budget development process doesn’t easily allowfor long-term capacity building and management and leadership are too often short-sighted andlacking the information and enl ightenment to improve the system. Left unchanged, the capac ityof the system will continue to grow piece meal with little attention paid to the most importantareas, i.e., health workforce capacity. It will continue to receive low-priority and insufficientresources.

Increase the capacity of the health care system to respond to health needs through health workforce development,information based decision m aking , and improvedcooperation and collaboration between governmentagencies, and between government and it citizens

ResponsibilityDOH

ParticipantsASMCADHR

ReferenceDOH

Strategies

review and update position descriptions and determine competencies requiredfo effectively discharge responsibilities. Annual evaluations should measureperformance against required com petencies and not areas where additionaltraining and skills building are needed

develop strong budget justification for workforce development (including hiringprofessionals with needed expertise, or training/skill building for existing staff),and aggressively seek funds to implement (DOH)

maximize telemedicine and telehealth capabilities for continuing education assess the factors underlying the need for off-island referral to identify areaswhere lack of professional expertise precludes adequate care locally. Recruitprofessional workers with needed expertise, or train existing staff in needednew techniques and skills (ASMCA)


II - 4 - 24

Continuing HealthCare TrainingPolicy

4.4.5 American Samoa Medical Center Authority

4.4.5.1 Continuing Health Care Education

Issue

The knowledge, skills and capabilities of the physicians and clinical staff requireupgrading

in order to meet the U .S. Center for Medicare and Medicaid Services (CMS) standards of qual ityapproved for American Samoa. The quality assurance program is now in place since theinception of the Hospital Authority, but direction and responsibility have not been defined properlyto reflect its hospital-wide application and role in providing periodic evaluation assessment ofquality of patient care. The American Samoa Health Services Regulatory Board has not updatedits policies with respec t to qualifications and competency requirements for licensing and re-licensing of heath care professionals.

There is no regular m anpower development program. Most staff are not updated andmade aware of new medical knowledge, medical procedures and technology. The authority doesnot have post-graduate training for or a continuing m edical education p rogram for medical s taff,and for Fiji Medical School graduates that require additional education. If the situation continues,ASMCA faces possib le term ination of Medicare and Medicaid Programs and an im proved qualityof patient care. Failure to meet CMS standards and conditions will jeopardize the certification ofLBJ Tropical Medical Center for Medicare and Medicaid. Loss of certification would deny thehospital over $3.0 mi ll ion in Medicaid and Medicare, and over $0.5 m il lion in SCHIP annually.

Promote the continuing education of health care prov idersand ensure that patient care delivery is consistent with andmeets the U.S. Center for Medicare and M edicaid Services(CMS) standards of quality and service Responsibility

ParticipantsASMHCGOVDPPBFonoASCC

ReferenceASMCAStrategic Plan2000 - 2005ASMCA2000

Strategies

identify a continuing education program to upgrade the knowledge, skills andcapabili ty of the physicians and cl inical staff in o rder to meet the CMSstandards of quality

formulate a strategy to improve health care training of staff, to educate andlobby the Governor and Legislature of its importance, and to budget and obtainadditional funding from the Legislature as support for continuing education

institute a health manpower development training program and continuingeducation program for medical s taff

identify programs and funding to provide post-graduate training for Fiji MedicalSchool graduates working as physicians at the Medical Center

institute performance managem ent procedures to ensure that certification byCMS is continued through the training and updating of skills for health careprofessionals and care providers


II - 4 - 25

PharmaceuticalProcurement andManagement Policy

4.4.5.2 Pharmaceuticals Procurement

Issue

The pharmaceuticals and medical supplies procurement system and the system ofprescribing and dispensing of pharmaceuticals is not operating effectively. Cost-containment islacking. The system is not dispensing less expensive generic formulas and continues to purchaseexpensive ‘name brand’ pharmaceuticals . The raising debt with pharmaceutical companies causedmedication shortages in the past and forced advanced payment arrangements at prices far greaterthan those offered by companies in the General Services Adm inistration system. Policy enforcementis lacking, or not defined properly to control the situation.

Purchas ing, inventory and resupply systems are not operating effic iently and effecti vely. There are needed improvements with the inventory system, computerization of records,communication of information between departments of the Medical Authority, monitoring of inventoryconsumption, and communications between physic ians dispensing the medicine and the pharmacy.W ithout changes to the system, untimely shortages of medications and their high costs will continue.

Improve the availability of pharmaceutical and medicalsupplies through effective purchasing, inventory, andresupply systems; and through effective communicationbetween pharmacy and medical staff

ResponsibilityASMCA

Participants

ReferenceASMCAStrategic Plan2000 - 2005ASMCA

Strategies

establish suitable policies for the dispensing of medication that minim izes thecost of pharmaceuticals by using generic formulas when possible

establish an efficient and effective method of communication between thepharmacy and the medical departments to keep all departments aware ofpharmaceuticals available and to operate a ‘must have’ list of medications

develop an applicable computerized inventory system for the purchasing,inventory and resupply of pharmaceuticals

establish policies for the purchase of pharmaceuticals and medical suppliesthat improves the capability of the Medical Authority to budget in advance forcosts


II - 4 - 26

FinancialManagementPolicy

4.4.3.3 Medical Center Financial Management

Issue

The lack of funds for the operation of the Medical Center continues to be cited as a factor in the standard of care delivery, and impairs the ability of the Medical Center to make lastingimprovements. Population growth and the increased service demand has resu lted withinsuffic ient resources to meet pub lic dem ands. The ever-increasing cost of health care due toinflation and the emergence of new technologies and the equipment to support them are pushingthe Medical Author ity past the point of be ing ab le to suppor t them. In addi tion, the hospital ’sfinancial management is often cited as a system in need of improvement to remedy the financialburdens. In the past, the Medical Center had often overspent its approved annual budget,primarily because of the off-island referral program. W ithout better financial management, andwith health care systems and conditions requiring new technologies and equipment that theMedical Center will be hard-pressed to afford, the provision of health care to the population willbe reduced.

Improve the operational efficiency of the Medical Authoritythrough accurate and timely financial accounting andreporting, collections, budget development, and financialmanagement; and improve the financial viability throughrevenue enhancement and cost containm ent measures

Responsib ilityASMCAParticipantsGOVDPPBFonoASCC


Strategies

set the stage for developing a health care finance and management plan,including developing an equitable fee schedule that fairly shifts the burden ofhealth care upon the population

implement realistic cost containment guidelines and measures to reduceunnecessary costs and the high cost of off-island referrals

investigate revenue enhancement measures including the possibilities andopportunities for new sources of funding

improve grant application and management capacity to secure availablefundingnot already utilized

improve the budget preparation, revenue collection and generation, financialreporting and financ ial management capac ity of the Medical Center Authori ty


II - 4 - 27

FacilitiesMaintenancePolicy

4.4.5.4 Facilities Maintenance

Issue

The hospital environment is not conducive to quality patient care because it is a deteriora ting facil ity. The faci lity is over thirty years old and now close to exceeding its li feexpectancy, primarily as a result of exposure to the cl imate and ineffective preventa tivemaintenance. Behind these causal factors are a lack of financial support for im provements and apast lack of education to maintain the facility properly. The appearance of the Medical Center isoften discussed in derogatory terms, although the Medical Authority is attempting to remedy theproblems through capital improvement funding allocated for the five years, 2002 - 2006. Whileimprovements are being m ade, the Medical Center s till does not meet the 1987 Life SafetyCodes for existing health care facilities and does not meet the level of fire safety, at leastequivalent to that prescribed by the Life Safety Code.

Improve the hospital plant appearance and operations through effective, preventive maintenance, security, safety,and engineering programs; and through recruitment ofhighly trained and skilled personnel and a continuingeducation program for the maintenance staff

ResponsibilityASMCA

ParticipantsGOVFonoASCC


Strategies

develop and implement a preventative maintenance program for facili ties

develop engineering standards for the Medical Center

use the government’s Capital Improvements Plan for 2002 - 2006 as aleverage for seeking additional infrastructure and facil ity improvements

develop a facility maintenance training and upkeep program that includescontinuing education and skil ls train ing for sta ff

utilize outs ide expertise to assis t with identifying funding opportunities toupgrade facilities and lobbyist in Was hington, D.C. to press for greater funding


II - 4 - 28

EquipmentPurchase and Maintenance

4.4.5.5 New Equipment and Maintenance

Issue

The m ajority of the diagnostic equipment at the Medical Center i s render ing it diffi cult todiagnose diseases efficiently, and accurately. A lot of the diagnostic equipment is non-functioningdue to age, a lack of parts and trained personnel to repair and maintain the equipment. In addition,the Medical Authority is unable to replace equipment as there is insufficient funding. This is ahazardous situation as the equipment that still operates may give an improper diagnosis, resulting inthe wrong treatment and possibly mortality in some cases.

develop the capability to properly diagnose diseases ordiagnose effectively by increasing the financial capacity topurchase new equipment or spare parts, by recruiting highlytrained personnel to operate the equipment, and by utilizingvendor guarantee and maintenance assurance programs

ResponsibilityASMCA

ParticipantsGOVFonoDLAASCC


4.4.6 Department of Human Resources

Strategies

estab lish an equipment replacement and budgeting policy

assess the long-term equipm ent requirements of the Medical Center

formulate a five-year equipment purchasing plan

lobby the Governor to present the five-year plan before the Fono for a multi-year allocation

identify a vendor that offers a vendor maintenance guarantee program andwork with the Departm ent of Legal Affa irs to settle the lega l requirementsbetween the vendor and the Medical Authority \

cooperate with the American Samoa Com munity College to establish anequipment training program for electronics repair speciali sts


II - 4 - 29

Human ResourcesDevelopment Policy

Issue

The Department of Hum an Resources does not have a long-term departmentalmanagement plan, however, the Workfor ce Investment Act (W IA), under the auspices of theDepartment of Human Resources, authorized the formulation of American Samoa’s WorkforceDevelopment Plan. The plan became effective in July 2000 and initiates a five-year program for thetraining and upgrading of skills for the Territory’s workforce. The Workforce DevelopmentCommission, consisting of a broad range of members from various walks of live, will guide theimplementation of the workforce plan through 2004. The plan will focus upon cons tructing aneducational response to the needs of the Territory and will bring a number of American SamoaGovernment departments and programs into play. Thus the Department of Human Resources hasrecentl y made a star t at qualifying a workforce for the future needs of the Terri tory’s economy.However, the Department of Human Resources now faces two major problems, i.e., the acceptanceof an Employee Reclassification scheme, and the building and retention of a skilled and efficientgovernment workforce.

The ASG Reclassification Project, which was s upported by a Department of the Interioraward, is completed and awaiting the Governor and legislative approval for implementation. As ofthis date, there are no funds to pay for the reclassification of employees, and therefore, the projecthas been tabled until the next round of budgeting. The problem of building and retaining a qualifiedgovernment workforce is dependent, in part, upon authorizing the reclassification. Governmentwages are already low compared to wages in Hawaii or the cont inental U.S.. If the wages continueto be kept low, the government may find that it is losing what capable people it has, and it will not beable to recruit qualified personnel. Furthermore, the problem of authorizing an increase in wagesacross the board, is made m ore difficult due to the government’s inability to meet its current payrollat times, and because it generally receives less revenues than the annual operating budget requires. Under the circumstances, it w ill be di fficult to fully implement the reclassification of employees andpay them more.

Promote the fair and equitable employment of personnelpredicated upon a rational reclassification scheme and meritsystem based upon recognized Department of Hum anResources principles of appointment and promotion; andimplement a strategic method to apply the scheme

ResponsibilityDHRGOVFono

ParticipantsDOTDPPBDOC

ReferenceDHR

4.4.7 Departm e n t

Strategies

evaluate which employee positions within the government are mos t critical tothe function of government and must be reclassified to avoid the loss of critical employee skills and for program and departmental effectiveness

analyze the benefits and costs and economic impact upon ASG expendituresof various reclassification and employee payment scenarios and develop aplan to implement the reclassification of all employees via a step-wiseapproach

lobby the Fono for supplemental funding based upon the plan cooperate and


II - 4 - 30

of Human and Social Services

Overall Issue

American Samoa is in a unique period of transition when traditional means of handlingsocial problems may not adequately fix conditions, or when families or traditional supportstructures are not available for support. Like other Pacific island cultures, the transition involvesthe complex effects of m odernization that often cha llenge the basic tenets of Samoan culture. Challenges include: living in a social environment that also recognizes economic status ratherthan traditional fam ily or social status , lack of chi ld and youth supervision because both parentsmust work, and introduction of high risk behaviors, e.g., drug use. High risk behaviors amongyouth and adults are presently directly related to many of the social difficulties facing fami lies andcommunities in the Territory of American Samoa.

One of the main goals of the Departm ent of Human and Social Services is to improvefamily functioning, thereby improving the outcomes for children, individuals and families,especially those identified to be in crisis or at risk of crisis. Prevention activities could go a longway in heading off a cris is with a famil y before it actual ly occurs . However, an unfor tunate reali tyis that many of the famil ies or individuals do not voluntarily seek the preventative services offered. Furthermore, efforts to provide assistance are oftentimes met with resistance as many victimsare reluctant to discuss family matters. Success in the delivery of social services is highlydependent upon individuals and personal behavior. They must modify harmful and unhealthythinking and behavior that result in deterioration or disintegration of basic values, principles andnegative social interaction. Social services and its role in providing support to residents ofAmerican Samoa are still evolving. Planning must take into account cultural factors andconsiderations before setting policies and implementing programs.

Loss or reduction of funding to the Department of Human and Social Services will impactthe general health and welfare of the a ll individua ls in the T erritory especially those at risk. Unchecked situations that relate to child protection and child welfare will result in harm fulsituations for children and youth that may eventually lead to serious injury and /or death;increased family dysfunction that may be perpetuated by youth in his/her adult years which mayaffect crime rates, for example. In general, it is believed that at some point in the future, this willalso im pact iss ues in other areas, such as law enforcement, education, health and the economy. The Department of Human and Social Services must be prepared to meet the challenges, but itfaces challenges of its own within the department. These must be remedied in order to provideadequate services to the public.

4.4.7.1 Community and Social Services Planning

Issue

There is no overal l community services developm ent and delivery plan. Comm unityservice

delivery is spread over several departments and councils that provide a broad spectrum ofservices to infants children, women, families , the disabled and youth. These programs are noteffectively coordinated or planned to provide maximum benefit for the Territory’s residents There is a need to strengthen networking to give clients better access to various servicesavailable, but there is also presently minimal collaboration and information-sharing betweenagencies and programs. In addition, there is a lack of vis ion for a broader, m ore comprehensivebase of services. Changing Federal program mandates, ‘turf’ and funding issues are sometim esa cause of the problem.


II - 4 - 31

Social ServicesPlanning and CoordinationPolicy

W ithin a service delivery system such as that provided by the Department of Human andsocial Services to c lients, the department does not c over all services that a cl ient may need. Other services within a continuum of care are obtained from other service providers. Withoutforward planning to meet the needs of the Territory’s residents, and stronger coordination andcollaboration among departments and programs, departments will continue to workindependently in spite of common goals and objectives. The results wi ll be gaps in service.

Develop the capacity to better p lan and implement individual, family, community prevention and treatment strategies and

programs; and strengthen the collaboration with o theragencies and serv ice prov iders, the p rivate sector, non-profitorganizations, communities and individuals to improve thequality of life for all people of American Samoa

ResponsibilityDHSSDPDGOV

ParticipantsDOCDPBDOHDPSDDCTAOA

ReferenceTGP IssuesStatement2001DHHS

3.4.7.2 DHSS Workforce Development and Capacity Building

There has been a lack of consistent and professional training provided to staff of DHSSover the last several years, and, therefore, there i s a need to improve the quality of services tothe public through staff development. The department needs to increase its managerial andtechnological capacity. Changes in administrative policy and program focus, inconsistent levelsof effort and Federal funding levels, and reassignment of responsibi lities to various staff notinformed about projects have weakened DHSS. These, the state of low classification of positionswithin the department and the lack of compensatory incentives for staff to develop professionallyreduce the level of delivery of services.

Strategies

identify personnel with in DHSS and the funding required to collaborate withother government agencies to implement com munity services planning, andbudget for the planning program

cooperate with the Administrator of the Community Services Block GrantProgram to begin the groundwork to establish a Territory-wide assessment ofthe Territory’s social service needs and a Territory-wide social servicesdelivery plan

formulate a Comm unity Services Development Plan in conjunction with therequirement for a Community Action Plan (US-DHSS,CFP) for the effectivedelivery of services to the Territory’s residents in cooperation and coordinationwith government departments, the private sector, non-profit organizations andcommunities and compatible with other required Federal plans

formulate a five-year program development plan for the Department of Humanand Social Services tha t inc ludes policies and strateg ies for the depar tment’sworkforce development and the delivery of services to clients of the departmentin coordination with the formulation of the overall community services plan


II - 4 - 32

Social ServicesWorkforceDevelopment Policy

In terms of programs with DHSS, the department requires better program planning.Program s require the conduc t of trained s taff to undertake comm unity needs assessments and toreport and plan properly, but DHSS has no trained staff to take the responsibility due to frequentreorganization or reassignment and a lack of leadership and staff consistency with needsassessments.

If present conditions continue, the result will be an unskilled workforce in humanservices .

Lack of professional personnel and skills will result in marginal services to clients and willundermine program purpose and integrity. Program s will not be planned using ac curateinformation and data. Inadequate programs for specific populations may result with gaps inservice to those popula tions, which were not adequatel y assessed.

Improve service delivery systems for all Department ofHuman and Social Services programs and improve the qualityof services offered through staff development, training andestablishment of professional standards and criteria forservices

ResponsibilityDHSS

ParticipantsDHRASCC

ReferenceTGP IssuesStatement2001DHHS

Strategies

acquire professional assis tance and utilize conventional ‘strategic planning’which looks at the strengths and weaknesses of the organization to develop asocial services workforce development plan for the department

cooperate with the Department of Human Resources to acquire professionalassis tance and a c ertified psychologist to assis t with the training of staff

cooperate with the Department of Human Resources American SamoaCommunity College to develop a curriculum that addresses the workforcetraining needs of the department

implement a policy which recognizes compensatory leave for the purpose ofupgrading the profess ional ski lls of s taff


II - 4 - 33

Management andCapacity Building Policy

4.4.8 Department of Parks and Recreation

4.4.8.1 Program Management and Capacity Building

Issue

Program managem ent, effectiveness and efficiency are a problem within the Departmentof Parks and Recreation. Record keeping and management is of poor quality due to a lack ofaccess to computer technology, a lack of stati stical records of existing programs, ineffectivecontrol m easures and adequatel y trained staff. In fact, s taffing levels are sim ply too low toprovide better services to the public. Deteriorates facilities, public vandalism, lack of upkeep offaciliti es, are al l seen as the symptom s of a lack of adequate fund ing levels.

On-going projects are often incomplete due to management difficulties and the lack offunds. W ith regard to expansion into new recreational programs, the departm ent doesn’t havesufficient records and updated reports to justify expansion and additional funding. Ine ffectiveperformance budgeting and insufficient justification of performance for on-going projects result inno expansion of programs. The lack of financial creativity and awareness of outcomes fromcreativity lead to ineffective financial management, insufficient performance justification andultimately a lack of budget appropriations and funds for departmental growth.

Improve the performance and effectiveness of theDepartment of Parks and Recreation through capacitybuilding programs that develop better managementtechniques, that strengthen the financial managementcapabilities of the organization, and that provide training forstaff

ResponsibilityDPR

ParticipantsDPRASCCDHRDPPBConsul tants

ReferenceTGP IssuesStatement2001DPR

Strategies

identify funding to acquire temporary expertise to lead a capacity buildingprogram

recruit management evaluation expertise to assess the managementoperations of the department and produce a plan to build up the capacity of thedepartment to offer quality services

recruit expertise to set up computer databases and financial recording keepingsystems for the department

budget for computers and the sales firm to provide training in the use of thecomputers, as well as training in office software programs

work with the Department of Human Resources and Budget Office to ugradethe skills and knowledge required to effectively budget for on-going and newprograms

set up a staff training program to improve office management and anorientation program to improve the performance of non-office personnel


II - 4 - 34

Parks andRecreation PlanningPolicy

4.4.8.2 Parks and Recreation Planning Policy

Issue

An updated Comprehensive Outdoor Parks and Recreation Five Year Plan is due. Beforethe update can be done outdated regulations that do not apply to the current situation need to berevised and conflicting authority on program jurisdiction need to be settled. However, to date,there has been insufficient research on regulations and issues pertaining to the plan update andrevision.

W ith the update of the Comprehensive Outdoor Parks and RecreationFive Year Plan,new

program s also need to beinc luded in the plan. However, there is presently a lack of aconsolidated recreational sports program and scattered recreational programs wi th overlappingauthority. This situation needs to be resolved either before the plan is formulated or as a planstrategy. There is also no overall plan for the Tafuna sports complex which includes the stadiumarea, adjacent vacant land and the ballfields. There is also no official governing body to overseethe formulation of the sport complex plan, no authoritative body to manage the plan and no

legislative authorization to provide authority for the plan.

Facilitate the planning of the Department of Parks andRecreation through provision of sound advice, research andinvestigation, and cooperation and coordination w ith othergovernment agencies, commissions and sportsorganizations

ResponsibilityDPRDLAGOV

ParticipantP&RCNOCCIPCDMW RSFA

ReferenceTGP IssuesStatement2001DPR

Strategies

secure Department of Legal Affairs cooperation to investigate the legalauthority and legislation, rules and regulations associated with theresponsibilities and mandate over various recreation programs of the Territory

consolidate recreation programs to efficiently manage the programs

establish a planning process to update the Parks and Recreation Five YearPlan that satisfies the Federal grantor, the Parks and Recreation Commissionand the Territorial Planning Comm ission

secure a consultant to undertake the recreational planning of the Territory

incorporate the planning of the Tafuna sports complex in the Parks andRecreation Five Year Plan and identify supplementary funding to introduceadditional sports infrastructure into the area

incorporate the requirements of the Parks and Recreation Five Year Plan in theCapital Improvements Plan for 2007 - 2111

work with the Territorial Planning Commission and the Department of Planningand Development to formulate a plan compatible with the economic , social andenvironmental policies of the Territory


II - 4 - 35

Special Educationfor Children withDisabilities Policy

4.4.9 Office of Protection and Advocacy for the Disabled (OPAD)

Overall Issue

Providing services to the di sabled has been hindered because: The Amer icans w ithDisabilities Act of 1990 has not yet been adopted for the Territory; there is a lack of qualifiedpersonne l in American Samoa to work with those with disabilities; and, there is lack of adequatefacilities and equipment to assist those wi th disabilities. In addition, financial resources to meetthe needs of the disabled individuals of the Territory are very limited. The disabled programs inAmerican Samoa, of which there are four under the umbrella of the Office of Protection andAdvocacy for the Disabled, al l rely upon Federal funding for existence.

Accessibili ty to public fac ilities and accessibi lity to qualified services is of major concern. Qualified professional and technical staff, either at the Medical Center or attached to OPAD, thatare needed to assess individuals for disabilities, for prosthetic measurement and devices, orsimply to certify disabilities for wheel purchases, are not employed, nor are there enoughqualified service providers. Finally, dealing with mentally impaired individuals has been a seriousissue from the standpoint of traditional attitudes of denial, and a perception of how to handle thementally impaired, and where to house them. In this regard, OPAD reports an increasingnumber of mental ly handicapped or mentally impaired ind ividuals are not receiving adequatecare.

4.4.9.1 Special Education

Issue

The U.S. Congress passed the Individuals with Disabilities Education Act (IDEA) in 1995so

that child ren with di sabili ties would not be excluded from school and educational oppor tunities. However, too many students with disabilities in American Samoa continue to fail courses, dropout of school or are ‘passed along’ through the educational system without truly being given theskills they need to find employment or to achieve a degree of independence.

Create the conditions for cooperation and coordinationtowards the delivery of specialeducation services to childrenand people with d isabilities; and develop a plan and prog ramto deliver the special education serv ices on a reg ular basis

ResponsibityOPADGOV

ParticipantsFonoDHSSDHRDOHTAOA

Reference

Strategies

participate in development of a Special Education Instruction and ServicesPlan

require quarterly meetings between the Director of DOE and OPAD’s SpecialEducation Coordinator to review educational services to children withdisabilities

require monitoring of educational sites for quality of special educationinstruction and review parents opinions on the quality of educational instruction


II - 4 - 36

Accessibility forPeople withDisabilities Policy

OPAD

4.4.9.2 Accessibility

Issue

The Americans with Disabilities Act passes in 1990 guarantees accessibility to publicfacilities. Further, under Title II of the Act, discrimination is prohibited and government and

private businesses that provide services to the public must m ake physical, structuralaccomm odations for people with disabilities. Although it has been more than ten years since thepassage of the Act, American Samoa lags behind the United States in ensuring that buildings areaaccessible for individuals with disabilities . Schools, government agencies, restaurants, hotels andother public facilities with the Territory must com ply with the Federal mandate.

Adopt the Americans with Disabilities Act (1990) into law in American Samoa and implement the legislation throughpublic awareness, orientation and coordination withgovernment agencies and private businesses

Responsib ilityOPADGOVFono

ParticipantsDOCDPWDPS

ReferenceTGP IssuesStatement2001OPAD

4.4.9.3 Access to Qualif ied Service Providers

Issue

Individuals with disabilities are hindered in their ability to live independently and have choices because quali fied service providers are not available in the Territory. Health specia listssuch as audiologists, physical therapists, occupational therapists, psychologists, psychiatrists,physicians and specialists in the field of autism, blind and deafness are unavailable on-island.Even teachers that are certified in Special Education are in short supply, with the end result thatindividuals with disabilities are not receiving necessary services.

Strategies

work with the Governor’s Office and the American Samoa Legislature to adoptthe Americans with Disabilities Act that guarantees accessibility to facilities forpeople with disabilities

request that OPAD be appointed a seat on the Technical Advisors Comm itteeto the Territorial Planning Comm ission to ensure that the Act is implem ented

work with the Department of Public W orks to implement accessibility fordisabled individuals to all new public facilities and for the retrofit of existingfacilities

monito r the handicapped parking laws and amendments

provide orienta tion programs fo r Departm ent of Public safety officials toencourage enforcement of accessibility laws


II - 4 - 37

Accessibility toQualified ServiceProviders Policy

Employment Trainingfor the Disabled

Promote the acquisition of qualified service personnel toprovide health care and services to individuals withdisabilities through an aggressive campaign to raise financialsupport and acquire qualified personnel

ResponsibilityOPAD

ParticipantsASMCADOEFono

ReferenceTGP IssuesStatement2001OPAD

4.4.9.4 Employment Training for Individuals with Disabilities

Issue

The Americ ans with Disabilities Act prom ised equality of opportunity, full inclusion andeconomic sel f-sufficiency. People with disabilities face multiple barriers when attempting to findemployment or employment training. The unemployment rate of individuals with disabilities inAmerican Samoa is estimated between seventy-six to eighty-five percent. Two providers oftraining, the Goodwill Inc, and the Vocational Rehabilitation Division of DHHS, have been unableto meet the needs of em ployment tra ining.

Foster the development of employment training forindividuals with disabilities and ensure that they aregainfully employed by creating a system to monitor trainingresults and employment o f individuals with disabilities

ResponsibilityOPAD

ParticipantsDOCASCCDHSSDHR

ReferenceOPAD4.4.10 Territo

Strategies

ensure that only qualified medical and healthcare professionals are permi ttedto practice in American Sam oa through careful review of licensure requirements of the American Samoa Health Services Regulatory Board

monitor the number of health professionals and support services personnelthat provide services to individuals with disabilities

actively recruit for medical and health care providers and other supportservices para-professionals through LBJ Medical Center and the Departmentof Education

Strategies

develop a long-term plan for creating employment opportunities for individualswith disabilities as an element of the Territory’s economic developmentinitiative

develop a data collection system for monitoring the employment and training ofindividuals with disabilities and tie it to the Workforce Incentive Plan by DHR

liaise with employment agencies and other agencies to ensure employment


II - 4 - 38

Senior CitizenCenter Development Policy

rial Administration on Aging

4.4.10.1 Senior Citizen Center

Issue

As American Sam oa’s elderly population increases and ages with the provision of betterhealth care, the Territorial Administration on Aging is seeing conditions of elderly care that wouldhave been unthinkable in the past. Elderly abuse, while not common place, appears to be on the increase with TAO A seeing about ten cases per month,on the average. Some cases are repeatoffenses or cases of family mistreatment of the elderly. TAOA sees instances of family memberstaking an elder’s money, feeding the elderly meagerly or improperly, leaving the elderly to fend forthemselves, and in some cases , abandonment by family and physical abuse.

TAOA is limited in the quality of service it can render to the elderly. Although TAOAcoordinates with other agenc ies, TAOA does not have enough resources to provide quali tyservice to the elderly. TAOA’s emergency shelter is now located in its administration building,and it is wholly unsatisfactory for caring for the elderly that have no where to turn but to TAOA.The program needs a ful ly operating senior center with m edical s ervices and multiple services tocare for them properly and to provide them with recreational activities. For over a decade TAOAhad nurses that could oversee the health care of the elderly. This function is now shared with theDepartment of Health, but it does not satisfactorily answer the needs and personal health care forindividuals that are not m obile. T AOA does not have vehic les to move elderly eff ic ientl y.

Promote the development and construction of a fully-functional senior center facility that w ill serve the elderly intimes of emergency, prov ide a site for elderly health care,and a place for the elderly to spend their leisure time

ResponsibilityTAOA

ParticipantsDOCDOHDHSSDPD

ReferenceTGP IssuesStatement2001TAOA

4.4.10.2 Senior Citizens Programs

Strategies

consult with the Comm unity Development Block Grant Program of theDepartment of Commerce to apply for funding to plan, design and ultimatelyconstruct a senior center

consult with the Department of Health and Department of Human and SocialServices to identify applicable Federal funding that can be used in tandem wi thother Federal funds to apply towards the construction of a senior center

design the senior center with Comm unity Development Block Grant funds andapply for additional Federal funding, leveraging the Federal programs incomm on, to secure enough funding to construct the facility


II - 4 - 39

Senior Citizen Development Policy

Issue

Many of the elderly have never worked and do not have financial resources, rendering themsomewhat helpless and rel iant upon their families to provide food and care. Although TAOA hasbeen working with the American Samoa Com munity College and the Office of Tourism to get theelderly involved in economic activities and to give them something to do with their time, not enoughemphas is has been placed upon means for them to become less rel iant upon fam ily.

Foster the expansion of p rograms for the senior citizens, including health care and emergency care; and promote the

development of leisure time and economic developmentprograms for American Samoa’s senior citizens in order forthem to play a more active role in the community

ResponsibilityTAOA

ParticipantsASCCDOCDHSSDOHDOE

ReferenceTGP IssuesStatement2001TAOA

4.4.11 Department of Public Safety

4.4.11.1 Planning and Management

Strategies

seek additional funding to provide nursing care and emergency careassociated with the development of the new senior citizen center

budget to employ additional staff for a senior citizen center recreationalprogram and conduct daily and monthly leisure and recreational programs

untertake a survey of senior citizens to identify senior citizens that areinteresting in working and record the skills they possess

establish a temporary work service for senior citizens in combination with thesatellite employment information system established by the WorkforceDevelopment Plan to keep senior c itizens active

recognize the influenc e and skil ls senior citizens have and use their skil ls toteach youth in schools and continuing education about the culture and culturalactivities

utilize senior citizens to assist with the development of tourism in com munitiesand as part of an ecotourism development scheme for the Territory


II - 4 - 40

Planning andManagementPolicy

Issue

The Departm ent of Public Safety is sl ipping behind in its capabil ity to provide protec tiveservices and to cope with the problem of increasing crim e. It is the case of an under-budgeted agency spread too thin to adequately deliver police protective services, to maintain a correctionalsystem and to provide fire protection. The causes are insufficient funding and a lack of long-termplanning. The lack of long-term planning has disadvantaged the department and made thedepar tment progressively less able to get its message across to the Am erican Sam oa’sLegislature that it needs additional resources to cope with criminal activities, shortages inequipment and faci lities, and to develop the department’s human capital .

Population growth and sprawling development are spreading the limited resources of thedepartment too thin. The shortage of human resources, equipment, i.e., police vehicles, firetrucks and communication gear, due to insufficient budgeting, result in an under-servedpopulation . The fire service is espec ially short-changed, as it seems almost power less toprevent major fires because of a lack of fire trucks and regional fire houses. W hile the prisonhas had some recent im provements, much of the facility is delapidated and below U.S. standardsfor housing prisoners. If there is no remedy shortly, the growing population will be insufficientlyserved by a police and fire service unable to reach them in a timely manner; the police will beunable to deal with rising crime, traffic and enforcement issues; and personnel will beundereducated for jobs that will demand more skills and expertise to serve the community moreeffectively and efficiently.

Create the capacity within the Department of Public Safety to develop a long-term planning program; and develop a long-term plan and annual plans that stress education and trainingof employees, finds budgeting solutions for departmentalneeds, and identifies programs to curb criminal activities

ResponsibilityDPS

ParticipantsDOCDLGDLAFono

ReferenceTGP IssuesStatement2001DPS

4.4.11.2 J uv en i l

Strategies

develop a long-term planning process and program with the assi stance of thePlanning Division of the Department of Commerce and c reate long-term andannual operation plans for the police, fire and corrections divisions thatunderscore the department’s short- and long-term demands and programs

develop an education and training plan and program for improvement ofknowledge and skills of personnel within the police, fire and correctionaldivisions

improve the data and statistical functions of the department to provide up-to-date information on activities of the department and the state-of-crime

cooperate with other agencies in the training of police and enforcementofficers in the prevention of and registration of violations and crimes

create a public awareness program to alert the Governor, the Legislature and


II - 4 - 41

JuvenileCrimePolicy

e Crime

Issue

Although Am erican Samoa is a pleasant place to live and the publ ic has l ittle to fear w ithrespect to persona l safety, minor criminal activities are on the increase. Juvenile crime isincreasing, but there appears to be a lack of cooperation and coordination to identify the reasonsbehind it and an unwillingness to deal with the problem head on. Parents either are not payingattention to thei r child ren’s activities or they are unable or unwilling to control their chi ldren. Secondly, youth are becoming more aggressive and showing a lack of accountability bythreatening parents and teachers. This situation threatens to worsen without remedies, as moreproblem s will be created than presently exist.

Strengthen the dialogue and foster the development ofcooperation and coordination among agencies andorganizations involved with youth to define policies, plansand strategies that wou ld contribute to reduction of juv enilecrime and public disturbances by youth

ResponsibilityDPS

ParticipantsDYW ADHHSChurchesDLGDHR

ReferenceTGP IssuesStatement2001DPS

Strategies

strengthen the dialogue about juvenile activities that lead to crime by utilizing existing organizations that serve the youth to communicate the problem amongfamilies and villages

utilize the Department of Human and Social Services to set up a working panelto discuss the issues and identify the causes and remedies for juvenile crime

set up a Task Force within the Departm ent of Public Safety to create a planwith strategies to police the causes of juvenile crime

work with the Department of Human Services, the churches, and villageleaders to identify youth at risk and repeat juvenile offenders

support the creation of activities by the Department of W omen and YouthAffairs to keep youth out of trouble and suppor t recreation program s for youthto give them an option over criminal ac tivities

provide additional training for officers in the Police Division and in theCorrections Division that regularly work with youth or deal with crimescomm itted by youth


II - 4 - 42

Chapter Four: Social Dev elopment and Social Serv ices Delivery


4.2 Summary of Principal Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 34.2.1 Overall Policy of Social Development and the Delivery of Social Services . . . . . . . II - 4 - 34.2.2 Principal Social Development Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 4

4.3 Summary of Social Development Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 6

4.4 Strategies for Principal Social Development Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 84.4.1 American Samoa Historic Preservation Office . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 8

4.4.1.1 Coordination among Cultural Resource Agencies . . . . . . . . . . . . . . . . . . . II - 4 - 84.4.1.2 Cultural and Historic Conservation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 94.4.1.3 Cultural and Historic Protection and Preservation . . . . . . . . . . . . . . . . . . . . . . II - 4 - 94.4.1.4 Heritage Tourism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 10

4.4.2 Feleti Barstow Public Library (State Library) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 114.4.3 Department of Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 13

4.4.3.1 Educational Assessm ent . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 134.4.3.2 Instructional Capacity: Kindergarten through Fifth Grade . . . . . . . . . . . . . . . II - 4 - 144.4.3.3 Planning Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 154.4.3.4 Teacher Attraction and Retention . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 164.4.3.5 Overcrowding and Preparedness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 17

4.4.4 Departm ent of Health . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 184.4.4.1 Territorial Health Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 184.4.4.2 Health Financing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 194.4.4.3 Health Resource Allocation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 204.4.4.4 Preventive Health Care . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 214.4.4.5 Health W orkforce Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 21

4.4.5 American Samoa Medical Center Authority . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 234.4.5.1 Continuing Health Care Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 234.4.5.2 Pharmaceuticals Procurement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 244.4.3.3 Medical Center Financial Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 254.4.5.4 Facilities Maintenance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 264.4.5.5 New Equipment and Maintenance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 27

4.4.6 Department of Human Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 284.4.7 Department of Human and Social Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 29

4.4.7.1 Community and Social Services Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 293.4.7.2 DHSS Workforce Development and Capacity Building . . . . . . . . . . . . . . . . . II - 4 - 30

4.4.8 Department of Parks and Recreation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 324.4.8.1 Program Management and Capacity Building . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 324.4.8.2 Parks and Recreation Planning Policy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 33

4.4.9 Office of Protection and Advocacy for the Disabled (OPAD) . . . . . . . . . . . . . . . . . . II - 4 - 344.4.9.1 Special Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 344.4.9.2 Accessibili ty . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 354.4.9.3 Access to Qualified Service Providers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 354.4.9.4 Employment Training for Individuals with Disabilities . . . . . . . . . . . . . . . . . . . II - 4 - 36

4.4.10 Territorial Administration on Aging . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 374.4.10.1 Senior Citizen Center . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 374.4.10.2 Senior Citizens Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 38

4.4.11 Depar tment of Public Safe ty . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 394.4.11.1 Planning and Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 394.4.11.2 Juvenile Crime . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 4 - 40

II - 5 - 1

Chapter FiveCapital Improvements and Infrastructure

5.1 Introduction

The planned expenditures for infrastructureand capital equipment requirements for theimmediate future are provided in the Territory ofAmerican Samoa, Capital Improvements Plan2002 - 2006. The plan was com pleted inNovember of 2000, authorized by the Governorand submitted to the Department of the Interior,Office of Insular Affairs (OIA), as a requirementfor receiving annual funding awards.

A summary of the capital improvement planis provided in this chapter after a briefexplanation of the plan’s purpose andformulation. The funds received from theDepartment of the Interior will not be suffic ient tocover all of the Territory’s needs for 2002 through2006, therefore, government agencies andauthorities will seek and receive other sources offunding.

5.2 Summary of Cap ital Equipment, Improvements and Infrastructure Funding

5.2.1 Department of the Interior, Office ofInsular Affairs

The proposed Capital ImprovementsProgram (CIP) budget and projects for the five-year period, 2002 to 2006, are based upon apresent funding level of $10,140,000 per year thatis provided by U.S. Congressional Covenantlegislation. This level of funding i s expected toremain unchanged until Congress revises thelegislation.

The CIP Committee has chosen to maintainthe same level of funding for priorities that wasestablished in 1995. That is, health, education,safety and utilities will receive the bulk ofavai lab le funding. Alth ough economicdevelopment has been elevated in overallimportance, the Committee anticipated thateconomic development infrastructure could beprovided by supplementary funding from the U.S.

Congress.

Because the $10.14 million level of fundingwill not sa tisfactor ily contribute to the Ter ritory’sinfrastructure requirements for economicdevelopment, the CIP Committee w ill submit asupplementary request to Congress for additionalfunding.

5.2.2 Other Sources of CapitalImprovement Funding

Additional sources of financial assistance forcapital improvements and infrastructure areexpected to be received from the:

! U.S. Depar tment of T ranspor tation, Federal Highway Administration funds forthe construction and improvement of theTerritory’s highways and secondary roadsat an average of $3.2 million per year;

! Federal Emergency ManagementAdministration delinquent insurancepayments to be applied to the shorelineprotection valued at $8.5 million;

! U.S. Environmental Protection Agency forconstruction of water supply at $180,000and sewer systems at $800,000 per year;

! U.S. Department of Housing and UrbanDevelopment, Community DevelopmentBlock Grant grants for communitydevelopment projects at $1.0 million peryear;

! Economic Development Administrationgrants for development of an AgricultureMarket in Fagatogo and fish processingfacilities in Tafuna at $2.5 mill ion.

! Bond funding in the value of $3.0 m illion tosupport the expansion of the Tafuna PowerGeneration Station and the purchase ofgeneration equipment.

Part II: Chapter FiveCapital Improvements and Infras tructure

II - 5 - 2

Figure 9.1

Figure 5.2

5.2.3 Summary ofInfrastructure Fundsfrom all Sources 2002 - 2006

Figure 9.1 shows the amountof funding expected to bereceived from the Department ofthe Interior, Office of InsularAffairs, for the five year period,2002 to 2006. This is theamount shown in the CapitalImprovements Plan, 2002 - 2006.It does not represent the totalamount expected.

Figure 5.2 shows the totalamount of funding expected forthe plan period. It includes theproposed $50.8 million dollarsfrom the Department of theInterior and other Federalsources.

The additional funding of$32.0 million, listed in section9.2.2,will bring the total projectedcapital improvements funding to $82.0 million forthe plan period2002 to 2006.

5.3 Capital Improvements Planning Process

In 1993, at the direction of the Governor,the American Samoa Government began aconcerted effort to strengthen the capitalim provements management process byinitiating a Capital Improvements planningprocess, that included the assignment ofTechn i cal Advisors to the Capita lImprovements Comm i t tee and th eestablishment of a CIP project managementand tracking system. The Technical Advisorswere given the task of formulating a five-yearplan for the use of Department of Interiorawards for infras tructure development.

After a lengthy needs assessment thatidentified and ranked the Ter ri tor y’sinfrastructure and capital equipmen trequirem ents for 1996 through 2001, theTechnical Advisors created, and theComm ittee approved, a plan which guided theuse of the Department of Interior awards for thefive-year plan period, 1996 to 2001.


II - 5 - 3

Figure 5.3

The purposes of the CIP program as stated inthe 1995 Capital Improvements Program Plan weregiven as, and continue to be the government’sability to:

! provide continuity in carrying out long-termCIP development strategies;

! coordinate public faciliti es development;

! improve the cost effectiveness of capitalimprovement projects; and

! maximize the potential for CIP funding.

The Committee continues to achieve thesepurposes through the Technical Advisors and aCIP Coordinator by:

! identifying infrastructure needs throughoutthe government;

! formulating periodic government-widecapital improvement plans;

! securing funding from the Department ofthe Interior through annual budgetrequests;

! authorizing the release of funds for agencyCIP projects; and

! monitoring the management of CIP fundedprojects of agencies receiving awards.

In 1995 the C IP Comm ittee chose to allocateseventy-f ive percent of the funds to what itdetermined as First Order Priorities, i.e., health,education , safety and utiliti es.

5.4 Statement of Needs

In March 2001 the Technical Advisors began asecond comprehensive assessment of theinfrastructure and capital equipment needs of theTerritory for the five-years, 2002 to 2006. Theassessm ent attempted to cover all necessaryprojects, regardless of actual or potential fundingsources, except the enterprise systems that werealready self-sustaining, e.g. the American SamoaTelecommunications Authority.

The Needs Assessment conducted in 2001should be considered in perspecti ve, as part of a

long-term public facilities development strategythat began with the first CIP Plan of 1995.W hile the Capital Improvements Program Planfor 1996 through 2001 has proved an effectivetool to guide the development of the ter ritory’sinfrastructure, the funds to satisfy the completeneeds of the territory had not becomeavailable. Based upon the projected capitalimprovement needs of $385.0 million for thefive-year period 1996 - 2001, less than fifteenpercent of that value had been awarded forcapital improvements by the end of the plan.

Thus, this second five year plan periodbegins with the unmet needs identified in thefirst six-year plan, plus the infrastructurerequirem ents identified in the second-roundNeeds Assessment. For the five-year planperiod beginning in fiscal year 2002, theCapital Improvements Committee estim ated atotal capital equipment, capital improvementsand infrastructure need of approximately$273.0 million. These funds did not includeFederal highway estimates of need.

Figure 5.3 identifies the needs by category.


II - 5 - 4

Figure 5.4

Figure 5.5

5.5 Capital Improvements by Category from U.S. Department of the Interior

The following charts provides information onthe manner in which Department of Interior awardsfor capital improvements will be allocated for theCIP Plan 2002 to 2006. The values are in year2000 U.S. dollars for the entire five year period andare not adjusted for inflation. The CapitalImprovements Plan separates the funding on anannual basis. Refer to the Plan for a year byallocation.

5.5.1 Health Care

The CIP Committee has allocated $9.22 millionfor health care for the plan period. The hospitalauthority will receive ninety-seven percent of funds.

5.5.1.1 American Samoa Hospital Authority

The hospital authority will be refurbishing themedical center over the next five years. Over one-third of the funding for the medical center will beused to rehabilitate the wards. Rehabilitation of theadministration offices, the pharmacy and generalfaciliti es wil l take another fi fteen percent

New facilities include a High Court m andatedmental health facility and a laboratory, histology-cytology lab and darkroom. New construction isprojected to be consume twenty percent of the totalallocation.

5.5.1.2 Department of Health

The Department o f Health wil l receive$255,000 in 2005 for the rehabilitation of theadministration offices and construction of a new laboratory.

The Department of Health will reques t theDepartment of Commerce to apply for about$2.5 million of Community Development BlockGrant funds between 2002 and 2006 to coverthe cost of building two new health clinics.

5.5.2 Educational System

The CIP Committee has alloc ated $15.8million for the five year plan period to thecategory of education. The Department ofEducation wi ll receive approximate ly ninety- fivepercent of the funding.

5.5.2.1 Department of Education

The Department of Education will use two-thirds of its five year plan funding for theconstruction of new classrooms . Roughly two-

thirds of the new classroom construction willbe for high schools. A further is thirteenpercent will be for elementary schoolclassroom rehabilitation.


II - 5 - 5

Figure 5.6

Figure 5.7

5.5.2.2 American Samoa Community College

The American Samoa Community College isslated to receive only six percent of the totaleducation award. These funds will be used forrepair of facilities.

5.5.3 Department of Public Safety

The Department of Public Safety will receive atotal of $2,8.0 million. T he funds will be dividedbetween the High Court, the Police, Correctionsand Fire Divisions.

The District Court Building was condemned in2000 and is not usable. The CIP Committee hasallocated $1.0 million over two years to build a newDistr ict Court Building compatible with the newlyrefurbished Court House.

The Police will receive about one-third of totalfunding for a Manu’a substation, a Police Academy,and the purchase of computer equipment.

Corrections will receive six percent of funding

for prison repairs and the fire department willreceive the remainder, or twenty-three percent fora new fire station in Tafuna, fire trucks and fireequipment.

5.5.4 Utilities

The American Samoa Power Authority willbe allocated $13.75 million for water system,sewer system and solid waste (Futiga Landfill)improvements.

5.5.4.1 Water Supply

ASPA wi ll receive $4.25 million over the sixyears, 2002 - 2007, to carry out water wellexploration and install water lines in nine areasthroughout the Terr itory.

Figure 5.7 shows the value ofimprovements by area. Tualauta County willreceive the mos t, or twenty percent of all the

counties and villages.

5.5.4.2 Sewerage System

ASPA will receive abut $10.0 million overfive years to construct sewer lines and improvepumping stations , primarily in the W esternDistri ct, although the Pago Pago Bay sewersystem will be allocated fifteen percent of totalfunding for improvements and extensions.

Refer to Figure 5.8 on the next page forsewer construction funding.


5 - 6

Figure 5.8

Figure 5.10

Figure 5.9

5.5.4.3 Solid Waste

ASPA will receive $250,000 per year forfinishing construction of the existing landfill atFutiga and for the study and construction of a newsanitary landfill, including the purchase of heavyequipment.

5.5.5 Transportation

5.5.5.1 Airports

No funds for the improvement of the airportshave been allocated out of the CIP funds. However,

the Federal Aviation Administration hasprovided grants for the extension of F ituita andOfu airports of the Manu’a Islands. The airportwill use Passenger Service Fees will be usedto improve all airport facilities.

5.5.5.2 Sea Ports

The main port in Pago Pago Harbor hasbeen allocated $4.38 million dollars for 2002 -2006. The funds will be used for rehabilitationof the container yard , construction of a newcontainer wharf and new Port Administrationbuilding.

5.5.5.3 Village and Secondary Roads

The Department of Public Works, hasidentified eight village roads that will beconstructed from 2002 through 2006.

Fagatogo DPS Access Road Petesa-Happy Valley RoadAoloau Village RoadPapa Tai Road in Nuu’uli

Vaitogi Road to Larson CoveTula Village RoadAuto Village RoadFutiga Village Road

The annual funding level is $380,000 for a five-year total of $1.9 m illion.


5 - 7

Figure 5.11

Figure 5.12

5.5.6 Economic Development

The Department of Commerce wi ll receive$40,000 in 2003 which will be put toward thepurchase of equipment for storage of fish andagricultural products in the new Farmer ’s Market,constructed at the site of the present market

5.5.7 Parks and Recreation

The Department of Parks and Recreation has beenallocated $930,000 for the period of the plan. Thedepartment requested that fifty percent of the fundsbe used for recreationa l park restoration. Thisincludes public restroom s which comprise for typercent of total five-year funding.

The Tony Solaita Baseball field will receive themajor ity of the funding remaining (38%) for lightingimprovements, lockers , security fencing andgrandstands.

5.5.8 Other Public Facilities

The CIP Committeee allocation $1.84 milli ontoward the rehabilitation of public buildings and forthe purchase of capital equipment for theDepartment of Public Works.

The Fono and ASG residential housing inTafuna will receive ten percent of the funding forrehabilitation of buildings. KVZK Television willreceive for the purchase of digital transmitters.

The remaining sixty-eight percent for roadmainte nance, and Archi tectura l andEngineering Division Equipment.

5.6 Other Sources of Capital Improvements and Infrastructure Funding

As stated in section 9.2.2, the governmentshould receive additional funding from otherU.S. Federal agencies. The m ajority of thefunding will be used for construction of FederalHighway One and preservation of the shorelineto secure Federal Highway One between thevillage of Matu’u and Nuu’uli village.

5.6.1 T r a n s p o r t a t i o n a n d Ro a dConstruction

The Civil Highways Division of theDepartment of Commerce expects to receiveon the average of 3.2 million dollars per yearfor 2002 through 2005 for the construction ofthe main highway. The department will use 8.5million of delinguent insurance payment to theAmerican Samoa Government to create arevetm ent to preserve the main highway.

In addition, the Civil Highways Division willreceive a small am ount of funding, roughly$120,000 per year, for the use toward transitplanning and bus ins tallations .


5 - 8

5.6.2 Community DevelopmentThe Department of Commerce expects to

receive approximately 1.0 million dollars per yearfor the construction of community fac il ities to servelow- income people and foster economicdevelopment . The Department generally allocatesfifty percent, or $500,000, annually to othergovernment agencies for construction of facilities.

During the five year plan period, theDepartment of Commerce will support theconstruction of new medical clini cs for theDepartment of Health with subgrants of $750,000each. In addition, the Department will provide theTerritorial Administration on Aging with $250,000to construct a Senior Citizens Center.

The Department will support the Department ofParks and Recreation in the planning anddevelopment of an indoor recreational centertoward the end of the plan . The estimated sharedcost of the project with the Department of PublicW orks is $500,000.

The Departm ent of Commerce will use theremainder of the CDBG funding for urbanredevelopment and development of facil ities tosupport economic development initiatives in thePago Pago Bay area.

5.6.3 Water and Sewer Systems

The American Samoa Power Authority willreceive a formula grant of $800,000 per year forsewer line construction and $180,000 per year forwater line construction or water systemimprovements. All of the funding is expected to beused for development of the Tualauata Countywater and sewer systems.

5.6.4 Economic Development

The Department of Comm erce will apply forEconomic Development Administration funding inthe amount of 1.5 million dollars to construct a newFarm er’s Market in the Fagatogo village and 1.0million dollars to construct a fish processing planat the Tafuna Industrial Park. The fish process ingplant wil l service the local fishing industry.

5.6.5 Electrical Power Generation

The American Samoa Power Authority iscontemplating paying for the expansion of theTafuna Generation Station and the purchase ofa $2.2 million Deutz generator, including spareparts and high voltage switchgear and relatedaccessories by leveling additional fees uponelectrical usage and the float of bonds in thevalue of $3.0 million.


5 - 9

Chapter Five: Capital Improvements and Infrastructure

5.1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 1

5.2 Summary of Capital Equipment, Improvements and Infrastructure Funding . . . . . . . . . II - 5 - 15.2.1 Department of the Interior, Office of Insular Affairs . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 15.2.2 Other Sources of Capital Improvement Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 15.2.3 Summary of Infrastructure Funds from all Sources 2002 - 2006 . . . . . . . . . . . . . . II - 5 - 2

5.3 Capital Improvements Planning Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 2

5.4 Statement of Needs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 3

5.5 Capital Improvements by Category from U.S. Department of the Interior . . . . . . . . . . . . . II - 5 - 45.5.1 Health Care . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 4

5.5.1.1 American Samoa Hospi tal Authority . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 45.5.1.2 Departm ent of Health . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 4

5.5.2 Educational System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 45.5.2.1 Department of Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 45.5.2.2 American Samoa Communi ty College . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 5

5.5.3 Departm ent of Public Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 55.5.4 Utilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 5

5.5.4.1 Water Supply . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 55.5.4.2 Sewerage System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 55.5.4.3 Solid W aste . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 6

5.5.5 Transportation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 65.5.5.1 Airports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 65.5.5.2 Sea Ports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 65.5.5.3 Village and Secondary Roads . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 6

5.5.6 Economic Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 7

5.5.7 Parks and Recreation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 7

5.5.8 Other Public Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 7

5.6 Other Sources of Capital Improvements and Infrastructure Funding . . . . . . . . . . . . . . . II - 5 - 75.6.1 Transportation and Road Construction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 75.6.2 Community Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 85.6.3 Water and Sewer Systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 85.6.4 Economic Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 85.6.5 Electrical Power Generation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II - 5 - 8

Documents

PART I - Invest in American Samoa