cook islands: investing in a sustainable future

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    DevelopmentEffectivenessBrief

    Cook IslandsInvesting in a Sustainable Future

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    DevelopmentEffectivenessBrief

    Cook IslandsInvesting in a Sustainable Future

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    2013 Asian Development Bank

    All rights reserved. Published in 2013.Printed in the Philippines.

    Publication Stock No. ARM136068-2

    The views expressed in this publication are those of the authors and do not necessarily reflect the viewsand policies of the Asian Development Bank (ADB) or its Board of Governors or the governments theyrepresent.

    The cover photo was taken by Beatrice Olsson. All the other photos were taken by Peter Stalker.

    Note: In this publication, $ refers to US dollars.

    6 ADB Avenue, Mandaluyong City

    1550 Metro Manila, Philippines

    Tel +63 2 632 4444

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    Contents

    Cook Islands Development Indicators iv

    Cook Islands and ADB: Investing in a Sustainable Future 1

    ADBs Contribution to Development and Poverty Reduction 4

    Standing Up to Storms 4

    Planning for Disasters 7

    Watching Out for Water 8

    Managing Waste and Recycling 10

    Operational Effectiveness: Improving Efficiency and Performance 13

    Future Challenges 15

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    Cook IslandsDevelopment Indicators

    Non-Millennium Development GoalsPopulation (millions)(2012)

    Annual population growth rate (%)(20102012)

    Adult literacy rate (%)

    Population in urban areas (%)(2011)

    Millennium Development GoalsPopulation living on less than $1.25 (PPP) a day (%)

    Population living below the national poverty line (%)(2006)

    Under-5 mortality rate per 1,000 live births(2011)

    Population using an improved drinking water source (%)

    (2007)

    ... = data not availableSource: ADB. 2013.Asian Development Bank and Cook Islands: Fact Sheet. Manila.

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    With limited opportunities at home and easy access to New

    Zealand, many Cook Islanders consider working overseas

    Cook Islands and ADB:Investing in

    a Sustainable Future

    In one respect, the Cook Islands is vast. Theexclusive economic zone extends across1.8 million square kilometers of the PacificOcean. But by most other measures this is amicrostate. The 15 volcanic islands and coralatolls add up to a land area of only 240 squarekilometers, which in 2012 were occupied by a

    resident population of around 13,200.

    As well as being one of the worlds smalleststates, the Cook Islands is also one of the mostremotefour hours by air from the nearestmajor population center, New Zealand. Eventravel within the country can be arduous andexpensive: the more remote northern group ofatolls and sand cays are 1,200 kilometers from

    the southern group. Relatively few Cook Islandershave visited other parts of their own country.

    Remoteness can be an asset. This is a largelyunspoiled tourist destination. Pristine palm-fringed beaches offer views of dolphinsplaying in the waves and attract over 100,000visitors each year from all over the world.There is some income from fishing andthe sale of the distinctive black pearls but

    nowadays the lifeblood of the economy istourismaccounting for around half of grossdomestic product (GDP). But distance is alsoa drawback. This is a relatively expensivedestination, so when the global economicclouds darken, people in the developedcountries are likely to cut back on vacations.Distance also means that for Cook Islanders lifeis relatively expensive, since most goods have

    to be imported.

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    Development Effectiveness Brief:

    Cook Islands

    Table 1: Loan Approvals ($ million)

    Combined with government

    investment in education and health,

    economic growth has enabled

    relatively high levels of human

    development. The Cook Islands

    is likely to achieve almost all the

    Millennium Development Goals

    From 2001 to 2004 growth was fairly steady,averaging around 3.5%. The economy thencontracted in 4 of the next 5 years, but turnedpositive again from 2010. Combined withgovernment investment in education andhealth, economic growth has enabled relativelyhigh levels of human development. The

    Cook Islands is likely to achieve almost all theMillennium Development Goals. Net enrolmentin primary education, for example, was 98%in 2011. There has been rapid progress inreducing child mortality and nutrition concernsfocus less on underweight than on obesity.Since 2002 there has been no maternalmortality.

    Nevertheless, this is a small country with afairly narrow economic base and limited jobopportunities. Cook Islands residents holdNew Zealand citizenship and many youngerpeople take advantage of this to migrate toNew Zealand and Australia for education oremployment. So while natural populationgrowth is around 4% per year the residentpopulation has been declining, especially on

    the outer islands. More than three times asmany Cook Islanders live overseas than in theCook Islands: more than 50,000 reside in New

    Zealand and an estimated 1

    On the other hand, this is alocation for New Zealanderset up small businesses, so immigration of entrepreneu

    Cook Islands joined ADB in of 2012 had benefited fromamounting to $65.71 milliothe loans were directed tow

    the pearl industry but more been used for investment ininfrastructure. The most diff

    Sector Distribution of Loan and G

    Source: Asian Development Bank.

    31 December 2012

    1% 4

    3%

    36%

    Agriculture and Natural Resou

    Education

    Finance

    Public Sector Management

    Transport and Information andTechnologyWater and Other Municipal Infr

    Multisector

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    the mid-1990s, when the country faced a fiscal

    crisis. An ADB review concluded that the countrywould need to restructure loans and seek debtrelief from its bilateral creditors. This resulted indebt write-offs, lower interest rates, extendedmaturities, and other major concessions.

    In response to the crisis, the governmentembarked from 1996 on an EconomicRestructuring Program (ERP), supported

    by a $4.8 million ADF loan, completed in1998, to improve public sector institutionalcapacity and create a more competitive,private-sector-based economy. This wassupported by five technical assistance projectsat a total cost of $2.4 million. New Zealand,also offered support and coordinated theircontributions, with ADB taking the lead.Following this experience it was agreed thatfurther ADB lending to the country should beon concessional terms. This lasted until 2009,when the Cook Islands graduated to full accessto funds from ordinary capital resources (OCR).

    By the end of 2012 there have also been32 technical assistance projects worth almost$11.4 million. Some of these have directly

    supported loan projects; others have helped

    develop tourism and strengthen environmentalmonitoring and management.

    The governments long-term developmentframework is Te Kaveinga NuiLiving theCook Islands VisionA 2020 Challenge. Theeight goals of the long-term framework fordevelopment are articulated through theNational Sustainable Development Plan

    20112015. ADBs assistance to the CookIslands is guided by the Pacific Approach20102014 and support is provided tofour of the eight goals: an innovative andwell-managed private sector-led economy;sustainable use and management of naturalresources and the environment; strengthenedand affordable basic infrastructure, transport,and utilities; and a safe, secure and resilientcommunity. Assistance is operationalizedthrough the country operations businessplan. ADB supports the Cook Islands intransport, energy, public management andsocial protection. For ADB, some of themost substantial contributions have beenfor transport, particularly by supporting thedevelopment of wharfs.

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    ADBs Contrito Developme

    Poverty Red

    ADB support has benefited those who workin the tourism industry which is the mainstayof the economy. Reconstruction following theseries of 2005 cyclones supported increasesin visitor arrivals which although dipping in

    2008 increased in 2009 and 2011. Technicalassistance has also enabled the country toestablish an emergency management systemwhich has already shown its value in theresponse to subsequent cyclones. In addition,ADB has made a major contribution to publichealth through the development of sustainablewaste management systems on the mostpopulous islands of Rarotonga and Aitutaki.

    Financial Secretary, Richard Neves says: ADBhas not just been a source of funds for theCook Islands but also a guideto ensureinvestments provide both economic and socialreturns. In the mid-1990s, we were over-borrowed and people became worried aboutthe excesses of government.

    Now the psyche is debt averse. So when weborrow money we have to be doing it forgood reasonsfor assets which will producea particular return. We have set a limit for thetotal public sector debt of 35% of GDP and debtservicing of 5% of crown revenue. Most of thecore government debt is with ADB State owned

    Standing Uto Storms

    One of the most critical sectransport. For this, the Cooheavily on Rarotongas porthas two wharfs and a marininternational wharf takes incountrys imports most of wfrom New Zealand. The smservices the inter-island shipdelivers goods to and from

    Alongside the wharf is a maby smaller fishing vessels, blong-line, as well as those c

    ADBs major involvement inafter a sequence of natural February and March 2005, buffeted by five major cyclospeeds above 200 kilomete

    to effective early warning syno casualties. But the cycloinfrastructureparticularly breakwater in Avatiu.

    ADB responded quickly. A dmission laid the foundation

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    This included using up to 30% of the loan to

    cover expenditure in the immediate aftermath,including repairs to high-voltage substationsand streetlights.

    Most of the basic services were restored withina few months of the cyclones. More than 87%of the original loan proceeds were used bygovernment, enabling them both to finance theoverall reconstruction and catalyze finance from

    New Zealand Aid Programme and the EuropeanUnion. There were, however, significant delays:some arose because of the time taken by thegovernment to decide how to use the funds;others arose because local governmentsand public-sector agencies lacked sufficientexperienced professional staff Lessons include

    island. But the cyclone damaged the wharf and

    breakwater and blocked the harbor with rocks.

    Some of the ADB loan was used to clear thedebris but most was subsequently used fordeveloping the marina. Construction of themarina had started before the cyclone but thegovernment then took the opportunity of theADB loan to extend it and deepen the harbor.The project also strengthened the breakwater

    to reduce the height of waves buffeting themarina during storms.

    The development of the port has made ahuge difference to local fishing enterprises. BillWilliams says: We mainly fish for tuna andswordfish which we sell to businesses across

    Bill Williams and the Gold Countryat the wharf at Avatiu

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    Development Effectiveness Brief:

    Cook Islands

    was very congested. Often we got called in the

    middle of the night to move because anotherboat had arrived.

    The extended marina has also boosted tourism.Around half a dozen companies are now basedat the marina and take visitors out for a daysgame fishing. Wayne Barclay has operatedPacific Marine Charters for more than 20 years.We can take four or five people out at a time

    on a shared charter, mostly fishing for tunaand wahoo. Many of the visitors have comein wedding partiesthere are about 700weddings a year here. Before, the port had onlyroom for three boats, now there are a dozen. Itis also much safer. When theres suddenly a bigwind from the north nowadays you dont needto come down and stay here all night.

    However, there is still work that could be done.Pupuke Robati, a skipper for the Seafarerscharter company also has his own boat BringitOn. The breakwater was not finished becausethere was not enough money. Also there is notenough pressure in the water supply. And thetourists need toilets here.

    Pupuke Robati prepares bait at the Ava

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    Across from the marina is the main wharf,

    where international ships bring in around100,000 tons annually in drystocks and fuels.Nooroa (Bim) Tou is General Manager of thePorts Authority. When the wharf was originallybuilt in 1989 it was not up to standard,and over the years there has been a lack ofmaintenance. There were a lot of voids underthe hard-standing area and gaps in the berthface.

    The wharf has recently been rebuilt withfinance from ADB of an $8.6 million OCRloan and a $6.9 million ADF loan approved inNovember 2008. The Avatiu Port DevelopmentProject dredged the harbor, and widened theentrance and rebuilt the quay to extend its lifeto 2040. A further $4.7 million OCR loan wasapproved in March 2011 to take account of

    increases in construction costs and exchangerate fluctuations. In addition, the ADB ClimateChange Fund provided a grant of $0.8 millionto finance measures for climate changeadaptation.

    These days, says Bim Tou, companies aremoving to larger and deeper draft vessels. Byremoving a kink in the wharf we are able to

    dock these, as well as some cruise vessels.

    Planning forDisastersThe 2005 cyclones also exposed weaknessesin the countrys systems for responding toemergencies. Charles Carlson is Director ofEmergency Management Cook Islands (EMCI).The response was poorly executed. So after the

    The main disaster risks faced by

    the Cook Islands are cyclones,

    storm surges, floods, and

    droughtsall of which could be

    exacerbated by climate change

    Mitigation, which was completed in March2007. This supported the development of

    the 2007 Disaster Risk Management Act, theestablishment of EMCI within the office of thePrime Minister, and the integrated preventiveinfrastructure master plan.

    The main disaster risks faced by the CookIslands are cyclones, storm surges, floods anddroughtsall of which could be exacerbated byclimate change. The islands are also vulnerable

    to tsunamis.

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    Development Effectiveness Brief:

    Cook Islands

    In the past, says Carlson, we were not

    really prepared and when the cyclones hitwe came together on an ad hoc basis. Nowwe have an Action Plan for Disaster RiskManagement20092015. The EMCI is thefocal point. We work with each ministry so thatthey know their roles and responsibilities andhow to work with an emergency operationscenter.

    As part of the preparations we are installingwarning sirens on each island, along with signsthat show tsunami escape routes. We are nowstarting awareness programs, asking peopleto trim trees near their houses and check theirroofing. We also have regular exercises to testsirens, for example, and school evacuations.

    Compared with 2005, we have come a long

    way. But there is always room for improvement.After cyclone Pat in Aitutaki in 2010, forexample, there was better coordinationbetween departments. But it also exposed someissues. This has to be an ongoing process ofpreparedness and training, especially on outerislands since the mayors, councillors and islandadministrators change every three years.

    Watching Ofor Water

    One of the slower-acting emthe Cook Islands is droughtyears a number of islands hsupplies during the dry seasof Atiu, for example, the pr

    rainwater collected from rohousehold tanks. This is suprun-off from public buildingtank, around 20,000 liters, island community hall in Te2005 cyclone badly damagwas rapidly repaired using ACyclone Emergency Assistan

    Tangata Vainepoto is husbaleader and looks after the sycyclone the roof was blowna new roof and tried to patBut soon we were pleased ta new roof start to arrive. used not just to construct ato line the water tank to pr

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    We are in the middle of a drought so this tank

    is vital. People come from all over the islandwith wheelbarrows or bicycles or cars to fill upbuckets and bottles. In fact we now have tocontrol the use by locking the tank overnight.We could use another tank to collect waterfrom the church which has the islands biggestroof.

    Roru Poturu is a grandmother whose household

    uses the public tank and says they have to reusethe water for washing dishes and laundry. Ithas not rained for three or four months. Papahas to keep going to the public tank to fetchwater. Now he is praying for rain!

    14-year-old Viritua Kura fetches water from a community tank

    After the cyclone the roof wasblown off. We prayed for a new roof

    and tried to patch it up ourselves.

    But soon we were pleased to see

    materials for a new roof start to

    arrive

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    Development Effectiveness Brief:

    Cook Islands

    We never used to worry much

    If the house has older children it is usually theirjob to fetch water. Pupils at classes 5 and 6 ofEnuamanu secondary school on Atiu explain:We never used to worry much about water.Now we have to collect it once a day. So wesay to our younger brothers and sisters: Dontwaste water, turn the taps off. Our housesare now using more water than before. Onereason is that we now have electric pumpsthat pump water from the household tank tothe bathroom. Also there are more washingmachines. And with global warming we expectthe droughts to be a lot worse in future.

    Pupils at Enuamanu secondary school in Atiu

    Managing Wand RecyclAnother priority for environin the Cook Islands is the mof waste. This is critical nothealth but also for maintainreputation as a pristine touthe years the volumes of waincreased and the disposal coming under strain. In Rarfrom homes and businesseslandfill site that was filling rpolluting the groundwater.waste, in the form of sludg

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    strategy. To put this into effect the government

    worked with ADB on the Cook Islands WasteManagement Project which resulted in bettercollection and management of waste. The totalcost was $4.9 million of which $2.46 millioncame from an ADF loan and the remainderfrom the government. The project wascompleted in September 2005.

    This involved building fully engineered and

    environmentally sound landfill sites onRarotonga and Aitutaki, with adjacent septageponds for treating sludge from septic tanks.On Rarotonga, the existing recycling operationwas moved to the new site. On Aitutaki, a newrecycling operation was established.

    Shirley Napa who lives close to the airport inRarotonga says that the situation is now much

    improved. Before, a lot of people were burningrubbish in their yards or dumping it at nightaround the social area on the beach. Nowwe have collections twice a week. I sort outplastics, bottles and cans for recycling. Foodwaste goes to the pigs.

    Contractors collect the waste from households

    and businesses. The Rarotonga landfill sitecovers 8,500 square meters in a former quarryat Arorangi, where aluminum cans and plasticbottles are crushed and baled for shipping toNew Zealand for recycling; the rest of the wastegoes to the landfill.

    The project has boosted the islands capacityfor collecting waste materials. Indeed it soon

    became clear that the Arorangi site which hasbeen planned to last 20 years from 2005 mightonly last for 15 or less. To reassess the situationADB commissioned an independent review. Thisshowed that another five years could be addedto the life of the site by compacting the wastemore efficiently and increasing the proportiongoing for recycling.

    Before, a lot of people wereburning rubbish in their yards or

    dumping it at night around the

    social area on the beach. Now we

    have collections twice a week

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    Development Effectiveness Brief:

    Cook Islands

    Teariki Heather, Minister of Infrastcrushed aluminium cans being pre

    Acting on this advice, in 2010 the government

    further developed the site into what is now theRarotonga Resource Recovery Centre, opened in2011. Teariki Heather, Minister of Infrastructureand Planning says: This is an innovative wayof dealing with waste from an increasinglyconsumerist society. We should now be ableto prolong the life of the site. We have noproblems with recycling cans, but we have aproblem with plastics since the market prices

    are much lower.

    The new sites have also allowed for moreefficient treatment of liquid waste. Most homesand businesses have their own septic tankswhich they pay to have emptied by privatecontractors. The ADB report also indicated waysin which the operation of the septage pondscould be improved.

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    Operational Effectiveness:Improving Efficiency

    and Performance

    Over the period, 19732012, ADB approved18 loans and 32 technical assistance projects. Inrecent years both projects and TA in the CookIslands have generally been rated satisfactory.

    The foundations for current progress werelaid by the Economic Restructuring Program(ERP) which from 1996 helped cut public

    expenditure and establish a sound policyframeworkincluding ten major legislativeacts. Following tax reforms, the governmenteliminated domestic debt and started togenerate significant cash surpluses. It also madegood progress in corporatizing and privatizingstate-owned enterprises, and recovering costs inpublic services, particularly electricity.

    The ERP and subsequent experience hasdemonstrated the importance of achievingwidespread participation and ownership, andanalyzing institutional issues and constraints.The Cook Islands has a relatively low level ofmanagement capacity, and finds it difficult toretain skilled staff. Given that most ADB supporthas been for infrastructure, it will be importantto ensure that the government has the capacityto manage and maintain the rehabilitatedand upgraded infrastructure. This may meanlonger involvement by ADB to improve outcomequality and sustainability.

    The next major ADB loan was for the Cyclone

    Table 2: Cook Island Islands Project Success Rates,

    19732012

    Sector %a

    No. of RatedProjects/Programs

    Agriculture and NaturalResources

    1

    Education 100.0 1

    Finance 33.3 3

    Multisector 66.7 3

    Public SectorManagement

    100.0 1

    Transport and ICT 100.0 1

    Water Supply and OtherMunicipal Infrastructureand Services

    100.0 1

    Total 63.6 11

    Year of Approval

    1980s 2

    1990s 71.4 7

    2000s 100.0 2

    = nil, ICT = information and communication technology.

    a Based on aggregate results of project/program completion

    reports (PCRs), PCR validation reports (PCRVRs), and project/program

    evaluation reports (PPERs) using PCRVR or PPER ratings in all cases

    where PCR and PCRVR/PPER ratings are available.

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    Development Effectiveness Brief:

    Cook Islands

    The Waste Management Project has alsobeen rated as successful. It has improvedcollection and disposal of most types of waste

    in Rarotonga and Aitutaki, with benefits forthe environment and public healthas wellas indirect contributions to economic growthfrom tourism. For Rarotonga, the economicinternal rate of return was estimated at 13.2%and for Aitutaki, 20.5%. However, becausethe government did not introduce householduser charges the project did not produce itsestimated financial return.

    By 2008 it had become clear that the wastemanagement facilities had some problems. ADBcommissioned an independent review whichrevealed significant design and constructionflaws, whose effects were compounded bycyclone damage. It concluded that the siteswere being operated more as open dumpsrather than as engineered landfill facilities and

    that there was little compaction. The reviewpresented an action plan which the governmenthas since followed, resulting in more systematicand efficient management, waste collection andrecycling.

    Table 3: Cyclone Emergency Assistance Project

    Ratings by ADB Independent Evaluation Department

    Relevance: Relevant

    Effectiveness in achieving outcome: Efficient

    Efficiency in achieving outcome and outputs: Less efficient Mainly because of a delay of

    Preliminary assessment of Sustainability: Likely sustainable

    Borrower and executing agency: Partly satisfactory

    Performance of ADB: Partly satisfactory

    Impact: Economic growth after the loabeen originally targeted.

    Overall assessment: Successful

    Table 4: Waste Management Pro

    Ratings in Project Completion Re

    Relevance:

    Efficacy:

    Efficiency:

    Sustainability:

    Institutional development and otherimpacts:

    Overall rating:

    This project has demonstraproviding management asspart of the project and of c

    the governments capacity subsequent operations. Onsuccess was a strong progrunit and the active involvemof Works and the National Similar arrangements shouprojects.

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    The Cook Islands has, with ADB support,made good progress since the financial crisis

    of the mid-1990s. Nevertheless, the countryremains vulnerable. Some of the threats areenvironmental. The Cook Islands will remainexposed to natural disasters, notably cyclones,and can anticipate further risks from climatechange. Other threats are economic. The CookIslands is highly dependent on internationaltourism, but this is a remote and relativelyexpensive destination that tends to suffer

    disproportionately during global economicdownturns when tourists become more frugal.The economy also relies on imports of fuel andfood and thus soon feels the effects of risingfuel prices. Moreover, economic activity isincreasingly concentrated in Raratonga at theexpense of the outer islands which have seentheir populations decline.

    Indeed the resident population of the CookIslands as a whole has been falling steadilyas a result of emigration. Since some of theemployment opportunities for young peoplemight be expected in the public sector,there is a risk that any reduction in publicadministration that arises from the currentADB-funded review of the public service couldaccelerate outmigration.

    Through its National Sustainable DevelopmentPlan, the government is aiming to makethe country more resilient through strongerprivate-sector-led economic growth. ADBin cooperation with the countrys other

    i i l d l h li d i

    Future Challenges

    environmentally sustainable growth; goodgovernance; and regional cooperation and

    integration.

    From 20142016, the proposed lendingprogram from ordinary capital resources is$11.8 million, along with technical assistanceaveraging around $500,000 per annum.This will be directed toward meeting thegovernments renewable energy targets andstrengthening public sector management.

    Sustainable development is now a majorconcern for many Cook Islanders. Mii Kauvairuns a small accommodation business fortourists and is also an active member of theMuri Environment Care Group. Its a beautifulisland but the beauty can be stripped away. Iftourism is to be our main industry, we have totake care of the environment.

    Mii Kauvai helpsprotect water quality inthe Muri lagoon

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    Development Effectiveness BriefCook Islands

    Since 1976, the Government of the Cook Islands and the Asian Development Bank (ADB)have been partnering on projects that seek economic and social returns on investments.This collaboration has helped the countryone of the worlds smallest and most remote

    statesweather cyclones in the 2000s and fiscal crises in the 1990s. After 18 loan projectsand 32 technical assistance projects, that partnership has contributed to stable economicand social infrastructure, helping secure a sustainable future for the Cook Islands.

    About the Asian Development Bank

    ADBs vision is an Asia and Pacific region free of poverty. Its mission is to help itsdeveloping member countries reduce poverty and improve the quality of life of theirpeople. Despite the regions many successes, it remains home to two-thirds of the worldspoor: 1.7 billion people who live on less than $2 a day, with 828 million struggling on

    less than $1.25 a day. ADB is committed to reducing poverty through inclusive economicgrowth, environmentally sustainable growth, and regional integration.Based in Manila, ADB is owned by 67 members, including 48 from the region. Its main

    instruments for helping its developing member countries are policy dialogue, loans, equityinvestments, guarantees, grants, and technical assistance.

    Asian Development Bank6 ADB Avenue, Mandaluyong City1550 Metro Manila, Philippineswww.adb.orgPublication Stock No. ARM136068-2

    October 2013

    Printed in the PhilippinesPrinted on recycled paper