News of the devastating 7.3 magnitude earthquake in Vanuatu reached our screens within hours on 17 December 2024. Early reports, including an OCHA Flash Update highlighted damage to buildings and infrastructure in the capital Port Vila, with unconfirmed casualties and injuries, and emergency response efforts underway. Healthcare, shelter, clean water and telecommunications were identified as priority needs. Significantly disrupted telecommunications links “affecting the timeliness of field reports from remote areas”, also led to challenges in coordinating aid and assistance efforts. The single submarine internet cable[i] connecting Vanuatu with the world was dysfunctional as the landing station housing all the servers and IT equipment was impacted by the automatic fire suppression system which activated, causing power outage and release of poisonous gases, while the cable itself was undamaged.
Vodafone Vanuatu CEO Thomas Bruce reported on VBTC News on the 18th that both Vodafone and other internet providers must explore alternative options to restore service. Some international telephone networks were re-established using an emergency backup link through the Kacific satellite system, albeit with limited capacity and including minimal internet data.
Enter Starlink
Humanitarian partners mobilised specialised IT engineers to repair the critical cable link, which was re-established 10 days after the ‘quake. While embassies, defence forces and some government departments have access to satellite telephones for emergencies, the media were receiving live and recorded transmissions from Port Vila and surrounding areas using private satellite channels, via the latest Starlink technology installed mostly at tourist resorts. Indeed, OCHA reported that authorities were unable to establish communication with the National Disaster Management Office (NDMO) and Government officials, until around 6.30pm local time on the 17th after Starlink was made available.
Commentary through social media indicated concerns that “submarine is not a disaster resilient network for Vanuatu”. It is fortunate, therefore, that Vanuatu received regulatory approval to operate Starlink services only in October 2024. Other Pacific nations also received regulatory approval for Starlink – recently Timor Leste and Nauru, Solomon Islands in September, Tonga in August, and Fiji in May 2024.
Following the Tonga volcanic eruption and tsunami in January 2022, both the international cable to Fiji and domestic islands’ undersea fibre-optic cables suffered multiple faults along some 50km. This disrupted disaster response efforts and required complex, expensive repairs taking over a month. Prime Minister Siaosi Sovaleni told the ABC the loss of connectivity to the outside world was an “eye opener” for Tongans who relied on the cable. Sovaleni added he was “pretty happy that we are back online” and “had some capacity via satellite but nothing compared to what we’re having right now with the cable being reconnected”.
Rising up the disaster hierarcy
University of California Berkeley Professor Nicole Starosielski describes “the internet is kind of like drinking water”, highlighting its growing significance as a fundamental humanitarian tool in the immediate post-disaster response hierarchy. Amanda Watson and Ioana Chan Mow describe the three main challenges for digital connectivity in the Pacific islands region are cyberattacks, natural disasters and cable protection from human actions.
The telecommunication disruptions in Vanuatu and Tonga point to the rapidly growing significance of Starlink―in itself a ‘disruptor’ technology―hindering the investment case for future submarine fibre-optic cable projects. The benefits of Starlink are amplified by its resilience, portability and affordable ease of use even in the most remote island communities. Regulatory approval of Starlink services, however, represents a challenge to the business model of established telecom providers, not solely in the Pacific islands, but globally.
Building ICT resilience
The Vanuatu experience raises important issues with the telecoms sector in the region more broadly, but particularly concerning disaster response and resilience. A recent Lowy Institute article by Cynthia Mahboob, ‘Vanuatu’s digital vulnerability, Who will fund Vanuatu’s second cable?’ explains the slow progress towards the country’s goal of diversifying its digital infrastructure. “Since 2018, the government has advocated for a second cable. The challenge lies in financing. A new cable would require substantial capital and maintaining it could raise telecommunications prices for Vanuatu’s already vulnerable population”.
Mahboob acknowledges the attractiveness of Starlink’s higher bandwidth and lower cost compared with other satellite options, while she raises important policy questions to address. “Direct-to-consumer broadband bypasses traditional telecom providers and disrupts local markets”. Its dual-use for civilian and military purposes raises “significant security and legal concerns”. Technically, “while Starlink may be useful as a backup in times of crisis, it cannot replace the capacity and reliability of submarine cables”. Unfolding data security risks are another compelling topic for analysis in the context of current actions by its CEO from his influential position in the office of the POTUS.
Who will secure the Pacific’s future?
“The case for a second submarine cable in Vanuatu is clear” introduces Mahboob’s conclusion that Australia “has both an opportunity and responsibility to make a meaningful contribution”. Safeguarding strategic communications infrastructure is presented as a geopolitical, commercial and security commitment to its “Pacific family”, ensuring island nations are “better equipped to face future challenges without relying on actors whose priorities may not always align with those of the country”.
For Vanuatu and other countries with few economic development options, the tourism sector offers the most potential. Yet, tourism, as with most other new economy e-commerce sectors – relies on access to affordable, reliable, fast broadband internet – delivered now mainly through submarine cables. However, if this infrastructure is perceived by customers as higher risk, or fails to reach beyond the main population centres, the tourist resorts will rush to install Starlink, despite its implications and limitations longer term.
Recommended actions and further research
- Assess the potential for a suitable mechanism or facility to ensure Starlink technology is installed in National Disaster Management Offices (NDMO), and/or other relevant government Ministries/departments, throughout the Pacific islands, for use in disaster/emergency situations when other communication channels are disrupted. This could be coordinated by the Coalition for Disaster Resilient Infrastructure (CDRI) through its technical assistance program Infrastructure for Resilient Island States (IRIS).
- Examine the impact of private Starlink services on the investment case for additional submarine cables. Recommended donors to lead include the World Bank, Australian Infrastructure Financing Facility for the Pacific (AIFFP), and other relevant development partners coordinating their ICT investments in the region through the Pacific Region Infrastructure Facility (PRIF).
- Determine the feasibility to deploy innovative sources of climate and development finance, including the new UN Fund for Responding to Loss and Damage (FRLD), to ensure resilience of digital communications infrastructure, through the provision of appropriate technologies to service remote communities, outer islands, etc. Agencies such as the new Pacific Resilience Facility (PRF) may be a source of new and innovative finance to support initiatives that address loss and damage in the ICT sector. PRF is being established to “build the resilience, preparedness and adaptive capacity of poor communities before disasters strike”.
Note
[i] The Interchange Cable Network is a series of subsea fibre optic cables owned by Vanuatu-based company Interchange Limited. The first cable, ICN1 (Interchange Cable Network 1) links Fiji to Vanuatu and has been in service since 15 January 2014.
Jack Whelan is an Industry Fellow at the Griffith Asia Institute.
