Professional Documents
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URBAN PROFILE
1
Copyright © United Nations Human Settlements Programme (UN-Habitat), 2012
All rights reserved
HS Number: HS/065/13E
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opinion whatsoever on the part of the Secretariat of the United Nations concerning the legal status of any country, territory,
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herein can in no way be taken to reflect the official opinion of the European Union.
Excerpts from this publication may be reproduced without authorization, on condition that the source is indicated.
ACKNOWLEDGEMENTS
The Lautoka City Profile was prepared by the Ministry of Local Government, Urban Development, Housing and
Environment with information collected through interviews with key urban stakeholders in Lautoka City local government
areas. We wish to thank them for their time, efforts and contributions toward this report. This project and report was
coordinated by the Department of Town and Country Planning with the assistance of Strategic Consultants on Planning
and Engineering Pacific Limited with constructive inputs provided by Sarah Mecartney, UN-Habitat Pacific Programme
Manager based in Suva, Fiji and Chris Radford, Senior Human Settlements Officer, UN-Habitat Regional Office for Asia
and the Pacific, Fukuoka, Japan.
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FIJI: LAUTOKA CITY
URBAN PROFILE
UNITED NATIONS HUMAN SETTLEMENTS PROGRAMME
Table of Contents
Foreword 5
Executive summary 6
INTRODUCTION 8
KEY THEMES
URBAN GOVERNANCE AND FINANCE 13
PROJECT PROPOSALS 26
3
FIJI: LAUTOKA CITY PROFILE - Foreword
44
Foreword
5 5
Executive summary
INTRODUCTION
Lautoka is confronting a range of challenges relating Special Administrator is evaluated often, and the
to urban poverty, environmental risk, infrastructure position has clear objectives such as improving rates
and land management, amongst others. In order to collection and shifting from cash to accrual accounting
effectively engage these challenges, and seek solutions in council operations. Nevertheless, overlap between
to them, this urban profile documents and analyses the CEO and the Special Administrator posts is leading
six key components of Lautoka’s urban context: to confusion requiring in ministry level intervention.
urban governance and finance, urban planning and The LCC is actively pursuing and achieving high levels
management, land development and administration, of rates collection, meaning increased revenues for the
urban infrastructure and services, urban housing and council. However, there is a lack of capacity for financial
shelter, and climate change and disaster risk reduction. management - current accounting practices need to be
Urban profiling consists of a set of actions to assess urban improved and technically able staff need to be recruited.
needs and capacity issues at the city level. It employs
a participatory approach where priorities are agreed
on through consultative processes. Urban profiling is URBAN PLANNING AND MANAGEMENT
currently being implemented in over 20 countries in Regulation and control of land development takes
Africa, the Middle East, the Caribbean and the Pacific. place within LCC’s Lautoka Town Planning Scheme,
Urban profiling in Fiji includes an overall national developed in 1990. In addition, Lautoka has developed
urban profile and urban profiles of three urban areas, its own sub-division bylaws which assist in guiding and
namely the Greater Suva Urban Area, Lautoka City and regulating development. Given limited land supply and
Nadi Town. Each profile will be published separately. anticipated boundary extensions, Lautoka has re-zoned
the peri-urban areas of the city.
Despite LCC’s commitment to planned and regulated
BACKGROUND development, enforcement of plans and associated policy
Lautoka City lies on the west coast of Fiji’s main is weak. In part this is because the LCC’s planning unit
island Viti Levu and is the country’s second largest city is understaffed, impeding implementation of plans. As
covering a land area of 1,600 hectares. In 2011, Lautoka a result, the council relies heavily on the Department
City had approximately 44,500 people or 10 per cent of Town and Country Planning in matters related to
of the country’s total urban population. An estimated urban planning and management.
20,000 people live in informal settlements on the city
periphery, many of whom make use of municipal urban
FIJI: LAUTOKA CITY PROFILE - Executive summary
66
URBAN INFRASTRUCTURE AND SERVICES
The responsibility for the provision of infrastructure
and basic services in Lautoka is shared between local
and central governments. The latter provides water
supply and sewerage services, roads, power and
telecommunications. The LCC manages drainage
systems, waste, street lighting, sports and community
facilities. ITaukei villages are not permitted to access
municipal urban services.
Water supply is intermittent and water sharing
programmes are in place. The water supply system
requires considerable upgrading, in particular new
sources of water must be identified. 90 per cent
of the city is connected to reticulated sewerage.
Telecommunications and roads are generally adequate.
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INTRODUCTION
88
STRUCTURE OF THE REPORT 2. Synthetic Assessment
The second section is structured around an assessment
This report consists of three main sections:
of the six key themes: urban governance and finance;
1. Background urban planning and management; land development
and administration; urban infrastructure and services;
A general background of Lautoka City is provided housing and shelter; climate change and disaster risk
within this section and is based on municipal council management. This section also provides an overview
reports, strategic plans, desk reviews of past reports, and of the existing institutional set-up, the regulatory
interviews through survey questionnaires conducted as framework, as well as resource mobilization and
part of the profile exercise. The background includes performance. This section also highlights agreed
data on administration, urban planning, economy, priorities and includes a list of identified projects.
the informal and private sectors, urban poverty,
infrastructure and basic urban services, public transport, 3. Strengths, Weaknesses, Opportunities and
energy, social services, linkages between urban and rural Threats (SWOT) Analysis
areas, linkages between town and traditional urban A basic SWOT analysis and an outline of priority project
villages, land tenure and administration, health and proposals for each of the six key themes are provided
education. in the third section. The project proposals include
beneficiaries, partners, estimated costs, objectives and
activities.
9 9
seCTion one: baCKGround – lauToKa CiTy
MAP 1: Lautoka City Map
Source: Google
Lautoka City lies on the northwest coast of Viti Levu, the In addition, there has been an increase in the density of
largest island of Fiji, about 25 minutes drive from Nadi informal settlements located on agricultural land where
International Airport. The city’s geographical coordinates the lease has expired. These settlements provide shelter
are 17°37’0”S and 177°28’0”E. It covers a land area of options to farmers and their families evicted from
1600 hectares and contains almost 8200 ratable properties. farming following the expiration of agricultural land
leases. This growth in the peri-urban areas of Lautoka has
Lautoka City is also known as ‘Sugar City’ because put considerable pressures on residential developments
fiJi: lauToKa CiTy Profile - baCKGround: lauToKa CiTy
of the large industrial area in the city, home to the within the city’s boundaries, and has forced the LCC
largest sugar mill in Fiji, as well as a number of pine to consider extending the city’s boundary in order to
woodchip yards near Lautoka Port in Lautoka Harbour. incorporate these newly populated areas.
Historically, the city has been heavily dependent on the
sugar industry but due to a decline in sugar production An estimated 20,000 people live in these informal
over the past 15 years Lautoka’s growth has slowed. settlements and indirectly rely on municipal infrastructure,
services and utilities. Because these settlements lie beyond
Reduction in the supply of sugar from western and the city’s boundaries, they are also beyond its jurisdiction.
northern regions is largely due to the expiration of This makes it extremely difficult for LCC to manage
land leases in these areas. This has also led to increased health and sanitation issues in these settlements, as well
rural-to-urban migration. According to the Bureau of as enforce development and environmental controls.
Statistics, in 2011, Lautoka City had a population of
approximately 43,500 people – some ten per cent of the The rate of urbanization in Lautoka is closely associated
national urban population. Lautoka City’s population with factors such as employment, education, commerce
is growing at 0.7 per cent per year. and industry, all of which attract residents. Above all,
migration into Lautoka is attributed to the educational
facilities and housing options, especially for those
RURAL TO URBAN LINKAGES evicted from agricultural lands following expiration of
Population growth in peri-urban areas of Lautoka City iTaukei land leases, particularly in Ba, Ra and Tavua.
is placing pressure on the Lautoka City Council (LCC), Informal settlers are moving inside the city’s boundaries
as well as the national government, to extend basic in order to access educational facilities, including
services and infrastructure to these areas. Similarly, schools. In this way, informal settlements within the
industrial activity is growing towards the south city’s boundaries are not increasing in number, but are
(Natabua and Wairabetia) and the north (Ba in Lovu) increasing in density.
requiring expanded infrastructural provision.
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In this way, Lautoka City’s economy is structured
around industrial activities and the freight capacity of
the port, as well as the produce market at the city centre
and the sugar mill. The recently-upgraded Churchill
Park facility is another contributor to the city’s economy,
providing world-class grounds and facilities for rugby
events and approved by the International Rugby Board.
This facility reflects the city’s objective of targeting sports
tourism to boost the local economy. LCC has invested
heavily in Churchill Park and considers its investment
as having a multiplier effect on the local economy, in
both formal and informal sectors.
Children play in Navutu settlement The private sector drives the local economy and is
© SCOPE supported by the Lautoka Chamber of Commerce.
Since the 2008 Local Government Reform, the LCC has
Lautoka City also contains an iTaukei (indigenous
pursued integrated growth and development through
Fijian) village, known as Namoli village. While most
active coordination with the Chamber of Commerce.
iTaukei villages are independent of local government,
Jointly, they have facilitated programmes designed to
Namoli village is expected to pay rates and comply with
enable investment.
Local Government Act regulations because of an earlier
subdivision. Despite this, LCC struggles both to enforce The informal sector also contributes significantly to
development controls in the village, and manage services the local economy through the supply of labour, small
provided to it. This is because growth and development business, micro-enterprise and fresh produce. The
in Namoli is governed by a traditional village structure. informal sector is assisted by the national government as
well as the International Labour Organization. Support
The following are urban issues in Lautoka City which
from these agencies ranges from capacity building
are becoming critical: inadequate utilities, including
initiatives to the establishment of small business
water supply; inadequate urban infrastructure such as
ventures and cottage industries. The Integrated Human
roads and sewerage systems; floods and poor drainage;
Resource Development Program of the Ministry of
solid waste management; private sector coastal
Labour has had a significant impact on the informal
development leading to environmental degradation and
Local Economy
Urban areas generate 60 per cent of Fiji’s national economy,
making towns and cities the trade and business centres of
the country. Lautoka City’s specific contribution to the
national economy cannot be determined due to limited
data. Industrial activity is located mainly in the west of
the city, with Lautoka Port being the main exchange point
for both inward- and outward-bound goods. The port
generates significant economic activity through cargo,
as well as cruise ships bringing international tourists.
However, cruise ships do not stay long and spending
by tourists is limited. Within Lautoka City there is
very little tourism activity, due to prior arrangements
with cruise line companies which see Denaru Port in
Nadi as the preferred destination port. Limited tourist
attractions and tourist support services further restricts
the city’s potential in terms of the tourism industry. Toilets in Navutu settlement
© SCOPE
1111
Lautoka Port
© SCOPE
Education Health
Lautoka City has ten secondary schools and 48 primary The Western Division’s main hospital and health
schools (one of which is private) registered with the services are located in Lautoka City, as are its health
Ministry of Education. The city’s educational facilities offices. Residents within the city boundary can access
attract many students. Facilities include reputable these public health services. However, such services
high schools that produce academic high-achievers are not extended to residents of informal settlements.
and tertiary institutions including the Fiji National Health awareness programmes in the settlements are
University, Fiji Teacher’s Training College, the Training led by NGOs for HIV and non-communicable diseases.
and Productivity Authority of Fiji, the University of the Environmental health programmes, such as cleanup
South Pacific (Lautoka Campus) and the University of campaigns, are undertaken in partnership with the
FIJI: LAUTOKA CITY PROFILE - BACKGROUND: LAUTOKA CITY
Fiji, located approximately five kilometres outside the national Department of Environment.
city towards Nadi.
LCC’s health department, as well as the Ministry of
Health, do engage with informal settlements in the
event of a disaster in order to minimize the risk of
disease outbreak (e.g. typhoid) due to the unhygienic
conditions of the settlements.
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SECTION TWO - KEY THEMES
URBAN GOVERNANCE AND FINANCE The Local Government Reform of 2008 brought both
positive changes and challenges to the administration
and management of municipalities in Fiji. In Lautoka
LCC is governed by a Special Administrator (SA), City, all facets of urban management have been
an official appointed by central government. The SA modified. Current challenges faced by the LCC in
position was created via the Local Government Reform terms of urban management include:
2008 and effectively replaced the elected council system
previously in place. The goal of the reform was to foster • Ambiguities regarding the roles and responsibilities of
local government bodies that are apolitical, practice the SA and the Chief Executive Officer (CEO). These
good governance and effectively and efficiently deliver ambiguities have led to confusion over which position
services as required by the ratepayers. is responsible for what activity, and this in turn to a
high turnover of staff in executive management. The
LCC is staffed at a ratio of one officer per 290 residents SA is appointed by central government, and as such
of Lautoka City. This ratio does not consider the visitors is subject to public scrutiny, such that complaints
who come to the city for its economic activities and regarding the performance can lead to the dismissal
many services, including public or community facilities of the SA in question. Since 2008, the LCC has
such as hospitals, education and sporting facilities. seen both its SA and CEO change, with intervention
The Strategic Plan 2010-2014 for Lautoka City from the MLGUDHE. This affects decision-making
includes a vision, mission and objectives for the city processes required under the Local Government Act.
and is approved by the Ministry of Local Government, • Lack of capacity for financial management. This
Urban Development, Housing and Environment is especially an issue with increased revenue due
(MLGUDHE). The strategic plan is complimented to improved rate collection by the LCC. Current
by annual corporate plans and budgets as required by accounting practices are not effective enough to track
MLGUDHE in accordance with the Local Government fraudulent activities. However, some improvement
1313
THE INSTITUTIONAL SET-UP PERFORMANCE AND ACCOUNTABILITY
LCC is a local government established under section • The SA is appointed by the government through
five of the Local Government Act (Cap. 125). LCC is the MLGUDHE and is therefore is accountable to
responsible for the administration and management of the MLGUDHE. The CEO and council staff are
Lautoka City and is responsible to the MLGUDHE. accountable to the SA and to the public.
• Monitoring of council activities is undertaken by the
• The SA is the council as per the 2008 Local
DLG. Monitoring is the core function of the DLG
Government Reform, which replaced elected city
as per the Local Government Act and the Strategic
councilors. In this way, the SA holds all the powers
Framework for Change Coordinating Office - an
of LCC as stipulated in the Local Government
independent government agency that monitors
Act (Cap. 125). In addition, the SA can receive
the performance of all government organizations,
delegated powers from the MLGUDHE.
statutory authorities and government companies.
• Because the SA holds considerable power, decision-
• Communities are consulted during rate collection
making is characteristically willful and suffers from
and via neighbourhood meetings. These meetings
little political interference. Above all, decision-
allow the council to disseminate information on
making is oriented towards economic growth and
council services, as well as inform and consult
investment because the SA’s role is guided by Terms
residents of city plans and programmes. A quarterly
of Reference defined by the MLGUDHE. However,
publication also helps to keep residents and ratepayers
limited capacity in certain areas of the urban
abreast of council activities. A complaints register
management system means that some services are
regarding council performance is in operation. DLG
not fully delivered.
also receives complaints. However, through both
• There is potential for public-private partnership or channels there has been limited concern expressed,
joint ventures between LCC and other parties. LCC indicating adequate performance by council.
is encouraged to pursue revenue collection and a
• A lack of coordination between the council, NGOs
strong financial outlook in order to attract potential
and civil society negatively impacts their respective
partners.
programmes because activities tend to overlap
• NGOs and civil society organizations do not fully resulting in confusion by residents, and a subsequent
participate in the urban management process of
FIJI: LAUTOKA CITY PROFILE - URBAN GOVERNANCE AND FINANCE
denial of cooperation.
LCC. However, these organizations are directly
• The iTaukei landowners are aware of urban
involved with residents and communities. There
development processes, but nonetheless release
is a need for greater coordination between council,
land without formal arrangements which negatively
NGOs and civil society: all are pursuing the well-
affects council plans for expansion.
being of Lautoka City.
• LCC is under the supervision of the Department of • Strategic and corporate plans lack implementation
Local Government (DLG) under the MLGUDHE. plans and suffer from limited delivery capacity. In
this way, the benefit of investing in strategic planning
• The Town Planning Act (Cap.139) gives LCC
has not been full realized.
planning responsibility for Lautoka City, but
there is more of an emphasis on development • The efficiency of the council in revenue collection
control and regulation than on real strategic could be improved by the introduction of an up-to-
physical planning. date database that coordinates properties (valuation
roll) and rates.
• There is little focus on reviewing the Lautoka City
Town Planning Scheme (1990) as the council is • There is potential for broad-based stakeholder
more concerned with implementing its strategic partnerships or group investment opportunities but
plan for 2010-2014. The revision of the town this is not adequately utilized.
planning scheme (i.e. plan which seeks to control • There is no need for a village court in urban villages or
the development of land) is long overdue. traditional villages within the city proper as there is a
• The Lautoka City Strategic Plan (2010-2014) formal structure already in place. However, information
provides a vision, policies and proposals for on urban management, development and expansion
development of the main city centre, the port and should be disseminated and greater communication
the harbor. is needed to convince iTaukei landowners to follow
formal processes of land development.
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14
AGREED PRIORITIES
• LCC plans strategically through its Five
Year Strategic Plan, Annual Corporate
Plan and development plans. The key
outputs and strategies are monitored
on a quarterly basis during a national
three-day consultative meeting consisting
of the MLGUDHE, the 13 city and
town councils of Fiji and other relevant
stakeholders. During the meeting,
each council is required to report on its
progress in achieving outputs and goals.
• LCC operates on an annual budget using
cash accounting practices. An accrual
accounting based system should be
adopted.
• L
CC staff do not benefit from a training
policy. Currently training is ad-hoc. A
LCC staff carrying out inspections
comprehensive training policy should be
© SCOPE
adopted. Such a policy should pursue
needs based training and undertake
capacity building and staff development PROJECT PROPOSALS
within LCC.
• Community participation in issues of PROJECT 1 Formulate a staff training policy,
governance through meetings between Urban Governance a staff training and development
council and residents. and Finance plan, and a succession plan.
• There is vigilant rates collection however
the number of rate collectors is limited Transit from cash accounting to
1515
URBAN PLANNING AND MANAGEMENT
Source: DTCP
FINANCE
The approved City Planning Scheme (1990) is the primary with LCC, because the peri-urban areas proposed for
planning document used by LCC to regulate and control subdivision are subject to LCC’s review, and expected
development. Because LCC has its own sub-division to comply with LCC development standards. For the
ANDAND
bylaws, the town planning scheme is also considered purposes of control and management of local areas,
when determining applications for the subdivision of other regulations in place include the Public Health and
GOVERNANCE
land within the city boundary. Having an approved town Building Regulations, the National Building Code and
planning scheme allows the council to assume the power of the Environment Impact Assessment (EIA) Regulations.
FIJI: LAUTOKA CITY PROFILE - URBAN PLANNING
1616
weak enforcement of these plans which in turn leads to illegal • The need to review the town planning scheme
development and illegal activities, as well as increased pressure (elaborated in 1990) is given little consideration,
to relax the planning standards and thereby compromise the despite the fact that it is long overdue. Rather, LCC
quality of urban growth in Lautoka City. pursues the implementation of its strategic plan.
• LCC has a town planning scheme which has been approved • Proactive approach by LCC on disseminating information
under Section 18 of the Town Planning Act (Cap. 139). to residents, stakeholders and those associated with the city.
Approval from the DTCP confers powers on LCC as • LCC has effectively carried out some urban planning and
consenting authority to land and building developments. management functions. In particular, it has regulated
• Determination of proposed land and building developments development through planning control mechanisms.
is undertaken by LCC’s building, health and environment • There are public consultations in place for major
and engineering units. On matters of national importance developments. These consultations allow residents to
and issues related to planning standards (e.g. relaxation of participate in municipal decision-making.
standards) the DTCP is consulted.
RESOURCE MOBILIZATION
REGULATORY FRAMEWORK • The efficiency of LCC’s implementation of the town
• LCC is under the supervision of the DLG under the planning scheme depends on the strength of the town
MLGUDHE. planning unit. Currently, the unit has limited capacity.
Making budget provision for a town planner would
• The Town Planning Act (Cap.139) makes the council indicate commitment from LCC to strengthen the unit.
responsible for town planning. However, greater
emphasis is placed on regulating development rather • A geographic information system (GIS) section could be
than on strategic physical planning. established as part of the town planning unit.
PROJECT PROPOSALS
MANAGEMENT
AGREED PRIORITIES
FINANCE
• Build LCC’s planning capacity as it does Establish and staff a planning unit
PROJECT 1
not have a town planning unit. The town equipped with GIS. With support
Urban Planning
planning unit should receive training and from DTCP, train staff of GIS
and Management applications.
be attached to DTCP. A GIS section
ANDAND
should be established as part of the unit.
• Revise the town planning scheme with
GOVERNANCE
the technical support of a short term Create standard operating procedures
PROJECT 2 (SOPs) for all activities relating to
consultant or town planner. Review
Lautoka City covers more than 1,600 hectares of land. The level of knowledge and capacity of land development
Within the city, there are three types of land tenure: agencies such as the TLTB, the Housing Authority and
state land, iTaukei land and freehold land. The the Department of Lands and Survey, also influences
majority of land in the greater Lautoka urban area is the way in which land is managed and developed in
iTaukei, but inside the city boundaries most land is Lautoka City. These agencies have limited staff who
either freehold or state-owned. are often under-qualified or inexperienced. In addition,
Administration of land depends on the land tenure there is little commitment by these agencies to staff
type. Freehold properties are administered entirely capacity development or institutional strengthening.
by the private entity which owns the land. ITaukei The Department of Housing and the People’s
land is administered by the iTaukei Lands Trust Community Network of Fiji have been active in
Board (TLTB) and state land by the Department of Lautoka’s informal settlements. This latter agency is
Lands and Survey. The TLTB is mandated, under an NGO which operated in Fiji and supports informal
the Native Lands Trust Act, to act as custodian settlement residents through settlement upgrading
of iTaukei lands or lands communally owned by initiatives.
indigenous landowning units. State-owned land
is administered under the Crown Lands Act. In
iTaukei villages, landowning units play a major
role in determining land use and administration THE INSTITUTIONAL SET-UP
in the village. This takes place in consultation
• Land and land developments within Lautoka City and
with TLTB. Landowning units are encouraged by
its peri-urban areas are administered under the Crown
MLGUDHE to engage in economic joint-ventures.
FIJI: LAUTOKA CITY PROFILE - LAND DEVELOPMENT AND ADMINISTRATION
1818
• There are three types of land tenure in Lautoka City: who may be affected by the proposed project.
private land owners of freehold land; the central • All areas proposed for reclamation require prior
government via the Department of Lands and approval based on the results of an environmental
Survey; and the TLTB for iTaukei lands. impact assessment.
• All land for development must be surveyed prior to
construction. LCC enforces its subdivision bylaws
which stipulate that development is permitted RESOURCE MOBILIZATION
only on land that is secured and serviced by urban
infrastructure and utilities. Development on land • LCC plays a secondary role in land development
which has not been surveyed is an issue linked to and administration. The primary actors are the
the limited knowledge of iTaukei landowners vis-à- TLTB, Department of Lands and Survey, and the
vis land development regulations and processes who DTCIP. The efficiency of these agencies may be
develop land without planning permission. increased through the use of a database linking
the land development agencies with LCC.
• Each of the land development agencies has budget
PERFORMANCE AND ACCOUNTABILITY
provision for awareness raising activities related
• All land development is recorded. Any land to land development. LCC, in consultation
development which is likely to impact the with the DTCP, could participate actively in the
environment must undertake an environment annual Town Planning Week, along with other
impact assessment or as determined by the municipalities in the Western Division
Department of Environment. Undertaking
an environmental impact assessment requires PROJECT PROPOSALS
consultation with all stakeholders, including
residents and the community, as well as those
Undertake an extensive
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URBAN INFRASTRUCTURE AND SERVICES
National and local government share the responsibility ENERGY POWER AND TELECOMMUNICATION
of providing infrastructure and basic services in Lautoka
City. Roads, drinking water and sewerage are provided by The entire population of Lautoka accesses the electricity
the Ministry of Works and Transport through its roads, supplied by Fiji Electricity Authority, as well as various
water and sewerage authorities. LCC manages non- telecommunication services including cellular phone.
capital services like drainage, solid waste, streetlights, There is not much interest in pursuing alternative
and sports and community facilities. All Lautoka City sources of energy, even if there is considerable scope for
residents, except residents of informal settlements, solar energy thanks to high sunshine hours. However,
can access these services. Poor maintenance of major the Urban Policy Action Plan encourages that councils
drainage systems running through the city contributes pursue energy-saving initiative by 2012, and as such
to floods following heavy, intense rainfall or high tides it is likely that Lautoka will begin to consider this
in the Vunato industrial area. option.
2020
PERFORMANCE AND ACCOUNTABILITY RESOURCE MOBILIZATION
Urban services provided by LCC as subject to monitoring • The Water Authority Fiji provides drinking
by the Department of Local Government, the Office of water and sewerage services. There are areas of
the Auditor General when auditing council financial Lautoka City where there is no connection to
reports, and the ratepayers and general public through these services. In these areas, and particularly in
council newsletters. informal settlements, the use of septic tanks for
sanitation purposes is common.
• Roads, drainage and electricity are provide
jointly by LCC and statutory authorities like
AGREED PRIORITIES
the Fiji Electricity Authority and the Fiji Roads
• Establish a database of ratable properties Authority
which includes housing and residential
data. Properties in the boundary extension
areas should be included. All properties
in the database should be linked to GIS PROJECT PROPOSALS
maps.
• Coordinate with the Lautoka Chamber of Establish an information hub
Commerce to provide investment options PROJECT 1 (database) inventorying all
for housing and commerce, in order to Urban Infrastruc- infrastructures and urban
make the most of attractive and affordable ture and Services services provided in the
housing land. Lautoka urban area.
• Incorporate information on infrastructure
and services into the proposed GIS section
of the LCC’s town planning unit. Improve land information
PROJECT 2 systems by digitizing maps
Urban Infrastruc- and plans into a GIS-based
2121
URBAN HOUSING AND SHELTER
Housing in Lautoka City ranges from formal housing Currently these lands support informal settlements. The
such as single detached dwellings and multi-unit government has initiated the relocation of notable settlements
residential apartments, to informal housing (informal within the city and along the coast in the interests of public
settlements) within the city boundaries and along the health and climate change adaptation. Such settlements
main roads and river tributaries in the peri-urban areas. include Navutu settlement and a settlement near the Vunato
These settlements are vulnerable to natural disasters rubbish dump. Lautoka City offers attractive affordable
and epidemics. These settlements accommodate housing and good access to basic infrastructure and services.
approximately 20,000 households. However, there is limited opportunity for investment.
FIJI: LAUTOKA CITY PROFILE - URBAN HOUSING AND SHELTER
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PERFORMANCE AND ACCOUNTABILITY RESOURCE MOBILIZATION
In terms of housing provision, LCC is not accountable Within LCC finances, there is no budget for housing
to either central government or ratepayers as LCC is not provision. Works under the citywide consultation
a housing provider. The statutory housing providers, will see improvements undertaken by council within
on the other hand, do submit quarterly reports to the identified informal settlements in Lautoka City.
Department of Housing who monitors progress and
disburses annual grants. However, performance of
housing providers is measured solely on compliance PROJECT PROPOSALS
with housing regulations.
PROJECT 1 Establish a database on existing
Urban Housing shelter and settlements in
AGREED PRIORITIES and Shelter Lautoka region
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URBAN CLIMATE CHANGE AND DISASTER RISK REDUCTION
Poor solid waste management can result in the blocking of natural waterways
© SCOPE
FIJI: LAUTOKA CITY PROFILE - CLIMATE CHANGE AND DISASTER RISK REDUCTION
The central business district of Lautoka is located on critical. As a result, all development plans and future
the coast and has recently been subject to frequent development projects should consider climate change
floods considered to be linked to climate change. and include climate change adaptation measures based
These flood events caused extensive damage to roads on likely sea level risk, storm intensity and flood levels.
and water and sewerage systems, and greatly affected
human health and livelihoods. The increasingly dense
informal settlements located in coastal areas and THE INSTITUTIONAL SET-UP
along waterways are extremely vulnerable. These
• The Department of Environment under the
communities must consider climate change adaptation
MLGUDHE and the Climate Change Unit under
strategies and implement disaster risk mitigation
the Ministry of Foreign Affairs and Trade are
measures in order to address climate change.
mandated to implement the national climate change
LCC acknowledges climate change and the negative policy which includes awareness and capacity
impacts of climate change in the city and in the peri- building.
urban areas. As a result, LCC has initiated measures • The National Disaster Management Office is the
including improvements and upgrades to drainage coordinating body in the event of a disaster in
systems, and solid waste management programmes Lautoka. The Commissioner Western’s Office
aimed at reducing waste. In addition, given the facilitates and implements disaster management.
capacity of mangrove forests to mitigate coastal There is a National Disaster Management Office
flooding and storm surges, LCC should seek to Taskforce for Lautoka which LCC is part of.
protect mangrove forests in the Lovu area, and outside • There is no provision for climate change or national
the city boundaries. Protection should include disasters within the LCC budget, as this is considered
relevant measures to regulate human activities which the responsibility of central government.
lead to clearing of the mangroves, such as informal
settlement. Awareness of the role of mangrove forests
in reducing flood risk should be promoted amongst REGULATORY FRAMEWORK
local communities. As an additional incentive, it • Regulation includes the Environmental Management
should be stressed that mangrove deforestation also Act and the National Climate Change Policy.
diminishes fishing stocks vital to the survival of many
• The National Disaster Management Office is the main
local communities.
coordinating body responsible for disaster management
Furthermore, given plans by LCC to extend in Lautoka. The LCC is a member of the National
development into the foreshore area, managing climate Disaster Management Office Taskforce for Lautoka,
change within the city will become increasingly which is activated for any disaster in Lautoka.
2424
RESOURCE MOBILIZATION PROJECT PROPOSALS
• LCC annual budget allocation for climate change
and disaster management should proactively PROJECT 1
consider risk reduction and mitigation measures. Climate Change Prepare a disaster management plan
and Disaster for Lautoka.
• LCC could join the UN-Habitat Cities and Climate Management
Change Initiative in order to receive support from
UN-Habitat in adapting to climate change. Such
support would involve undertaking climate change
Revise development controls
vulnerability and adaptation assessments and PROJECT 2
for all new developments and
incorporating climate change adaptations measures Climate Change
subdivisions so that they consider
into LCC’s planning process. Additionally, it would and Disaster flood mitigation and climate
see communities taking a proactive stance on climate Management change adaptation measures.
change adaptation within their own settlements
and neighbourhoods. With knowledge of its
vulnerability to climate change, each community PROJECT 3
can determine appropriate measures for adaptation. Community-level awareness
Climate Change
raising and capacity building for
and Disaster the disaster management plan.
Management
AGREED PRIORITIES
• Dedicate 10 per cent of LCC budget to
climate change adaptation and disaster risk
FIJI: LAUTOKA CITY PROFILE - CLIMATE CHANGE AND DISASTER RISK REDUCTION
reduction and management.
• Prepare a disaster management action
plan and train community committees
in relevant components. Disseminate
action plans in collaboration with
Disaster Management Committee and the
Commissioner Western’s Office to local
communities.
• Increase the awareness of major
landowners, land administrators and the
community on land development process.
There should be a focus on appropriate
development processes for coastal projects
and projects located near waterways.
Produce user-friendly publications and
brochures on this subject
Records of the flood water level in the industrial area of
Lautoka City
© SCOPE
2525
SECTION THREE - STRENGTHS, WEAKNESSES,
OPPORTUNITIES AND THREATS (SWOT) ANALYSIS
LCC benefits from long- Overlapping roles and Involvement of the Changes in leadership
serving middle managers and responsibilities of council community in the and leadership style to
staff. executive staff leading to decision-making process which the council staff
confusions which in turn for Lautoka City through must adapt.
Absence of politics within damages morale and can lead to community meetings and
the local government as per negligence of protocols. the Neighbourhood Watch
Local Government Reform Zones scheme.
2008.
Good mixture of both young High quantity of rates in arrears. Potential additional rates Changes in leadership
and mature staff. and revenue through and executive
boundary extensions. management staff may
SA knows the region well trigger allegiance issues
and provides a strong link Adaption and amongst the council
between the community and implementation of an staff.
the municipality. accrual accounting budget
system by 2013.
Code of Conduct in place.
FIJI: LAUTOKA CITY PROFILE - URBAN GOVERNANCE AND FINANCE
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Project proposal Project proposal
Formulate a staff training Transit from cash
URBAN GOVERNANCE
policy, a staff training and URBAN GOVERNANCE accounting to accrual
AND FINANCE
development plan, and a AND FINANCE accounting. Strengthen
succession plan. financial management
policies and practice.
Outputs: A comprehensive staff training policy, a Staff Required: One senior staff member from DLG;
medium-term (3-5 years) staff training and development one staff member from LCC (Finance Department);
plan, and a succession plan. one staff member from MLGUDHE (Finance
Department).
Staff Required: One staff member from LCC (Human
Resources Department); two staff members from
MLGUDHE (i.e. one staff member from a technical
unit of DTCP such as planning or engineering, and
one staff member from the Department of Lands and
Survey).
2727
Project proposal
2828
URBAN PLANNING AND MANAGEMENT
Good mixture of both young Limited urban management Engagement of volunteer Movement of trained
and mature staff. capacity because town planning planners or consultant staff from LCC to
matters are overseen by planners to support LCC other larger councils or
building engineers and health and neighbouring urban overseas due to the offer
inspectors. This in turn reduces areas such as Nadi Town of better salaries.
the effectiveness of these and Sigatoka.
MANAGEMENT
professionals in their own fields. Absence of succession
FINANCE
plans for technical staff.
Limited capacity of urban
planners and limited number of
technical staff with experience.
ANDAND
GOVERNANCE
FIJI: LAUTOKA CITY PROFILE - URBAN PLANNING
2929
Project proposal Project proposal
Staff Required: One GIS technician; two research and planning; prepare draft standards and circulate these
for review and trialing; finalize the draft and prepare a
FIJI: LAUTOKA CITY PROFILE - URBAN PLANNING
assistants.
corresponding manual. The manual should be reviewed
on an annual basis.
Outputs: A town planning manual with standard
operating procedures (SOPs) for all urban management
and planning activities.
Staff Required: One senior planner from DTCP; one
planner from LCC; two research assistants from either
DTCP or LCC.
3030
Project proposal Project proposal
Beneficiaries: The councils of the Western Division Implementing Partners: LCC and DTCP
Implementing Partners: The councils of the Western Estimated Cost: FJD 100,000-150,000
Division, DTCP, DLG Background: It has been over 15 years since the Lautoka
Estimated Cost: FJD 300,000 per annum Town Planning Scheme was revised. LCC would like to
extend the municipal boundaries in order to increase its
Background: The councils of the Western Division revenue base and facilitate better management of peri-
require qualified and experienced technical assistance. urban areas. In addition, the industrial, education and
Due to funding shortages, many councils cannot sports tourism sectors are increasingly important to the
engage qualified professionals on a fulltime basis. As economy of Lautoka City and the region. Given these
a result, councils within the Division should consider changes, the town planning scheme should be carefully
establishing a local government services body, to provide reviewed to ensure that it’s development objectives
MANAGEMENT
technical assistance to all participating councils. and economic, environmental and social policies all
FINANCE
encourage growth in the Lautoka City region.
Objectives: To provide councils with technical staff
to support the management of development projects Objectives: To prepare a robust and flexible town
within the different municipalities. planning scheme that incorporates boundary extension
areas, and provides development control mechanisms
ANDAND
Activities: Set the scope of works, prepare contracts and which foster sustainable development in the Lautoka
recruit technical staff; determine the allocation of time City region.
GOVERNANCE
and services of the staff according to the needs of the
councils. Activities: Undertake a comprehensive land use
3131
LAND DEVELOPMENT AND ADMINISTRATION
Strict compliance with the Weak enforcement mechanisms Partnership with landlords Illegal developments and
town planning scheme for illegal developments. or landowning units for informal settlements
enforced by LCC. development projects undermining the use
Limited capacity for of new urban land
Participation of NGOs implementing development Increase awareness of and degrading the
and civil society on land controls due to non-planners the importance of urban environment due to the
development issues and pro- engaged in urban management planning, development absence of basic services
poor initiatives. and planning. controls and compliance in these settlements.
with land development laws.
accessible GIS-based
LAND DEVELOP- raising on formal land ADMINISTRATION electronic database of land
MENT AND development procedures. The information and data.
ADMINISTRATION programme should focus on
the Lautoka City community,
including communities in the Location: LCC
peri-urban areas.
Duration: 24 months
Location: Lautoka urban area Beneficiaries: LCC, Lautoka City community, public
and private sectors.
Duration: Six months
Implementing Partners: DLG, DTCP (GIS and
Beneficiaries: LCC, Lautoka City community and
Information Technology Unit), LCC, South Pacific
peri-urban communities, public and private sectors.
Applied Geo-Science Commission (SOPAC).
Implementing Partners: LCC, DTCP, local
Estimated Cost: FJD 50,000
communities, businesses and developers.
Background: LCC’s records and plans are paper-based. This
Estimated Cost: FJD 30,000
makes LCC largely dependent on DTCP in terms of plan
Background: There is a need for increased awareness of formal preparation. There are no staff assigned to the management
land development processes. Awareness raising initiatives should of land and building information within LCC, despite
make the most of local newspapers and flyers to build awareness. continued mapping by LCC of the urban area.
Objectives: To increase awareness amongst Lautoka City Objectives: To create a land and building database for
communities of formal land development processes in LCC.
order to combat illegal developments and illegal activities.
Activities: Collect all land and building records and
Activities: Coordinate the preparation of awareness- digitize all maps and plans.
raising materials for publication; establish a organizational
Outputs: Database and digital plans.
committee for World Town Planning Day.
Staff Required: One GIS technician; two research
Outputs: Brochures and awareness raising materials.
assistants.
Staff Required: One communications officer
3232
Project proposal
Undertake an extensive
programme for awareness
LAND DEVELOP- raising on formal land
MENT AND development procedures. The
ADMINISTRATION programme should focus on
the Lautoka City community,
including communities in the
peri-urban areas.
3333
URBAN INFRASTRUCTURE AND SERVICES
3434
Project proposal Project proposal
URBAN Establish an information hub Improve land information
URBAN
INFRASTRUCTURE (database) inventorying all systems by digitizing maps
INFRASTRUCTURE
AND SERVICES infrastructures and urban and plans into a GIS-based
AND SERVICES
services electronic database which is
accessible to the public
Location: Lautoka urban area
Location: Lautoka City
Duration: 24 months
Duration: 24 months
Beneficiaries: LCC, city and per-urban communities,
infrastructure agencies. Beneficiaries: LCC, Lautoka City communities, public
and private sector.
Implementing Partners: LCC, DTCP, Fiji Electricity
Authority, Water Authority Fiji, Fiji Roads Authority, Fiji Implementing Partners: DLG, DTCP (GIS and
Sugar Corporation, Telecom Fiji Limited, Department Information Technology Unit), LCC, SOPAC.
of Lands and Survey, TLTB, Fiji Ports, Lautoka Rural
Local Authority, Commissioner Western’s Office. Estimated Cost: FJD 50,000
Estimated Cost: FJD 500,000-800,000 (for Background: LCC’s records and plans are paper-based.
digitization) This makes LCC largely dependent on DTCP in terms
of plan preparation. There are no staff assigned to the
Background: There is limited data available on urban management of land and building information within
infrastructure and services in Lautoka City, including LCC, despite continued mapping by LCC of the urban
the peri-urban areas. This makes strategic development area.
planning and decision-making difficult, and leads to
ineffective growth and development policies. Objectives: To create a land and building database for LCC.
Objectives: To enhance understanding and Activities: Collect all land and building records and
3535
Project proposal
URBAN
IIncorporate information into
INFRASTRUCTURE
the Greater Western Urban
AND SERVICES
Growth Management Plan.
3636
URBAN HOUSING AND SHELTER
Department of Housing’s
Town Improvement
initiative. This partnership
between government and
TLTB or other property
owners seeks to improve the
housing an living conditions
of the urban poor.
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37
Project proposal Project proposal
Establish a database Undertake a citywide
URBAN HOUSING
on existing shelter and consultation for Navutu
AND SHELTER
settlements in Lautoka URBAN HOUSING settlement for improved
region AND SHELTER living conditions,
infrastructure and services
Location: Department of Housing, Suva provision and tenure
security.
Duration: 12 months
Location: Navutu, Lautoka City.
Beneficiaries: LCC, Department of Housing (Poverty
Alleviation Unit), residents of informal settlements in Duration: 24 months
Lautoka region, NGOs and civil society organizations.
Beneficiaries: LCC, Department of Housing, TLTN,
Implementing Partners: Department of Housing, infrastructure and service providers, residents of the
DTCP (GIS and Information Technology Unit). Navutu informal settlement, NGOs and civil society
organizations.
Estimated Cost: FJD 150,000
Implementing Partners: LCC, Department of
Background: Neither the LCC nor the Department of Housing, TLTB, NGOs, civil society organizations,
Housing has a database of settlements in the Lautoka Asian Coalition of Housing Rights, and the People’s
region. Limited information on the settlements Community Network of Fiji.
contributes to the slow implementation of initiatives to
upgrade or improve the living conditions of settlements. Estimated Cost: FJD 250,000-500,000.
Objectives: To create a comprehensive electronic Background: LCC and the Department of Housing,
database of settlements in the Lautoka region for easy along with the TLTB, intend to upgrade the informal
retrieval of information. settlement at Navutu in 2014. TLTB is the owner of the
land. Preparatory works are needed before upgrading
Activities: Recruit a project officer to undertake the can begin, including participatory planning and capacity
following tasks: identify all settlements in Lautoka; building, and are scheduled to be undertaken in 2013
survey and map the settlements; undertake an with funding assistance from the Asian Coalition of
environment scan and assessment of settlements; consult Housing Rights.
FIJI: LAUTOKA CITY PROFILE - URBAN HOUSING AND SHELTER
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38
Project proposal Project proposal
39
39
CLIMATE CHANGE AND DISASTER RISK REDUCTION
4040
Project proposal Project proposal
Revise development CLIMATE CHANGE Community-level awareness
controls for all new AND DISASTER raising and capacity
CLIMATE CHANGE
developments and RISK REDUCTION building for the disaster
AND DISASTER
subdivisions so that they management plan.
RISK REDUCTION
consider flood mitigation
and climate change
adaptation measures. Location: Lautoka region
Duration: 3-6 months
Location: Lautoka region
Beneficiaries: LCC, National Disaster Management
Duration: 4-6 months
Office, Commissioner Western’s Office, business
Beneficiaries: LCC, DTCP, developers and business owners, private property owners, ratepayers, Lautoka
operators, property owners, development consultants Rural Local Authority, Ministry of Health, Disaster
and local communities. Management Committee, Provincial Office.
Implementing Partners: LCC, DTCP, Lautoka Rural Implementing Partners: LCC, NDMO,
Local Authority. Commissioner Western’s Office, Provincial Office,
Disaster Management Committee, Ministry of Health,
Estimated Cost: FJD 20,000 Lautoka Rural, District Office Lautoka.
Background: The current development controls, as Estimated Cost: FJD 100,000-150,000
specified under the Lautoka General Provisions, do
FIJI: LAUTOKA CITY PROFILE - CLIMATE CHANGE AND DISASTER RISK REDUCTION
not require that new subdivisions or development Background: To ensure the effectiveness of the disaster
projects consider flood mitigation and climate change management plan for Nadi, a complementary awareness
adaptation measures. Development controls should be raising and capacity building programme needs to be
revised so that they incorporate such measures. There implemented at community level.
also needs to be greater awareness of the benefits which
Objectives: To raise the communities’ awareness of the
incorporating such measures can bring for disaster
disaster management plan and build their capacity to
preparedness and management.
respond effectively during disaster events. Communities
Objectives: To ensure well-planned development by should know who the key players are and what their
considering flood risk and climate change adaptation respective roles are so that communities know which to
during the feasibility study undertaken prior to project contact regarding different disaster-related issues.
approval, and more generally part of the project
Activities: Prepare pamphlets and brochures; present
development process.
information to schools, and community and church
Activities: Identify zones which are most at risk of flood leaders in iTaukei villages and settlements, as well
or the negative effects of climate change; identify the as formal residential, industrial and tourism areas;
relevant flood mitigation and climate change adaptation undertake exercises and evacuation drills for improved
measures and requirements and incorporate these into disaster preparedness amongst administrators,
the development controls applied to each of the zoned volunteers and community members.
areas.
Outputs: Awareness raising and capacity building
Outputs: Revised General Provision for Lautoka City. programme and implementation plan.
Staff Required: Two LCC staff members and two Staff Required: One communications officer.
DTCP project staff members.
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ACRONYMS DOCUMENTS CONSULTED
4242
LAUTOKA CITY URBAN PROFILE
The Lautoka City Urban Profiling consists of an accelerated, action-oriented assessment of urban conditions,
focusing on priority needs, capacity gaps, and existing institutional responses at local and national levels. The
purpose
of the study is to develop urban poverty reduction policies at local, national, and regional levels, through
an assessment of needs and response mechanisms, and as a contribution to the wider-ranging implementation
of the Millennium development Goals. The study is based on analysis of existing data and a series of interviews
with all relevant urban stakeholders, including local communities and institutions, civil society, the private sector,
development partners, academics, and others. The consultation typically results in a collective agreement on
priorities and their development into proposed capacity-building and other projects that are all aimed at urban
poverty reduction. The urban profiling is being implemented in 30 ACP (Africa, Caribbean and Pacific) countries,
offering an opportunity for comparative regional analysis. Once completed, this series of studies will provide a
framework for central and local authorities and urban actors, as well as donors and external support agencies.
HS Number: HS/065/13E