FRISFiji Resilient Informal Settlements

Lami town, Fiji

Bilo settlement

COMMUNITY-BASEDVULNERABILITY ASSESSMENT
AND CLIMATE ACTION PLAN

BILO

Bilo Settlement (Fiji) Community-Based Vulnerability Assessment and Climate Action Plan (Abridged
Version)Copyright © United Nations Human Settlements Programme (UN-Habitat), Government of Fiji.
Coordinators:
Bernhard Barth, Inga Korte.
Authors:
Begoña Peiró, Sara Vargues.
Contributors:
Kolora Qativi, Kamsin Raju, Geeta Singh, Sunishma Singh, Lydia Ogden.
Design and Layout:
Lydia Ogden, Marion Reinosa, Begoña Peiro
Citation:
Peiró, B.; Vargues, S.: Bilo Settlement (Fiji) Community-Based Vulnerability Assessment and Climate Action
Plan (Abridged Version). UN-Habitat, Government of Fiji, 2022.

Bilo Settlement

CONTENTS
1.

Introduction					Page 5

2.

Methodology					Page 8

3.

Bilo Settlement 					Page 10

4.

Climate Hazards and Perceptions 		

Page 11

5.

Climate Change and Future Risks		

6.

Vulnerability					Page 15

7.

Climate Action Planning 			

1.1 Location and Physical Details
1.2 Purpose of the VA and AP

4.1 Climatic features and hazards
4.2 Community perceptions of key impacts
5.1 Climate Change Projections
5.2 Extreme climate events future risk

Page 13

6.1 Vulnerable groups:
women, youth, elderly, people with disabilites
6.2 Exposure
6.3 Sensitivity
6.4 Adaptative capacity
7.1 Climate Resilience & The SDGs
7.2 Alignment to Fiji's National Plan
7.3 Prioritized shortlisted actions

Page 22BILO

3

Children in Bilo's water source
UN-Habitat/Begoña Peiro

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Bilo Settlement

5

INTRODUCTION
The Bilo Settlement (Fiji) Community-Based Vulnerability Assessment (VA) and Climate Action Plan
(CAP) has been developed under the Fiji Resilient Informal Settlements (FRIS) project financed by
the Adaptation Fund. This document is an abridged version of a comprehensive report, finalized in2020. FRIS works in 16 informal urban settlements that are highly vulnerable to climate change anddisaster risks, in four urban areas as part of a project implemented by UN-Habitat and executed by
the Ministry of Housing and Community Development and the Ministry of Local Government.
The high levels of physical, economic, social and environmental vulnerability in combination withpoor levels of disaster preparedness and adaptive capacity often lead to high climate-related hazard
impacts in informal settlements.
The VA and CAP guide the implementation of projects under component 3 of the FRIS project(i.e., Enhancing resilience of community level physical, natural and socio-economic assets andecosystems).
The overall objective of the project is to increase the resilience of informal settlements communities
in Fiji that are highly vulnerable to climate change and disaster risks. To achieve this, the project has
four components:
1. Institutional strengthening for enhanced local climate response
2. Local (community/informal settlement) resilience strengthening
3. Enhancing resilience of community level physical, natural and socioeconomic
assets and ecosystems
4. Awareness raising, knowledge management and communication.

Figure 1 Informal settlements that are part of the FRIS program in Lami town, including Bilo1

1. Prepared by: Kamsin Raju, Nadi Town Council

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Bilo Settlement

1.1 LOCATION AND PHYSICAL DETAILSFiji is located in the western South Pacific. It has a total of 322 islands located between 177°E–178°W
and 16°S–20°S and a total land area of 18,333 square kilometers. Viti Levu and Vanua Levu are thetwo largest islands. These two islands form up to 87 percent of the total land area and are also
the most populous areas nationally2. Fiji’s total population is 884,887 people, approximately 55.9
percent of whom reside in urban areas3.
Fiji is among the countries with the highest disaster risk, ranking number ten according to the World
Risk Index (2018)4. Located in the Pacific Ocean’s tropical cyclone belt, cyclones are the mostfrequent hazards to affect the country (with around two to three cyclones occurring every year)5.
Additionally, the country has a high exposure to other environmental hazards, such as storm surge,
severe storm, flooding, landslide, drought and extreme temperature, earthquake, and tsunami. The
country is also vulnerable to rising sea levels, and more frequent and intense rainfall caused byclimate change.
Although Fiji is recognized as being one of the most developed economies in the Pacific6, signs ofsocio-economic inequality are rising, particularly with the expansion of informal settlements7. The
5-year and 20-year National Development Plan was prepared by the government in order to addressdevelopment challenges. The plan’s objectives include a doubling of the real gross domestic product(GDP) per capita by 2036 and to provide universal access to all services, including housing, electricity,
clean and safe water and sanitation, high-quality education, and health care8. However, natural
hazards and climate change represent a major obstacle to the achievement of these objectives.
Environmental hazards have far reaching negative impacts across a number of sectors in Fiji,
including agriculture, housing, transport infrastructure, basic service provision, tourism and primaryindustries, among other. The majority of the country’s cities and towns are located on the coast andalong rivers, particularly exposed to seaborne and riverine natural hazards, cyclones, storm surges,
coastal and riverine erosion, landslides, floods and already occurring sea level rise due to climatechange. Moreover, mangrove deforestation and coral reef extraction for urban development are
reducing the mitigating benefits of mangroves and coral reefs in providing a barrier against storm
surges and cyclones. Given the increasing trends in urbanization and concentration of development
along the coast, costs related to natural hazard-induced disasters are expected to increase withtime.
Bilo settlement is located 7.3 km west of the center of Lami Town (Figure 1), outside of the town
boundary. Lami has a total area of 680 hectares and a total population of 24,637 people9. As comparedto the urban population growth in Fiji, Lami’s urban population growth has been slower, with a 0.2
per cent per year in the town area and a 1.4 per cent in the peri-urban areas10. Bilo settlement covers
approximately 4.6 hectares and is situated next to a mangrove area. It measures approximately 270
meters in length between its longest points and 140 meters in width.
2. Fiji’s First National Communication under the UNFCCC, 2005; Fiji’s Pacific Adaptation to Climate Change, 2009
3. Fiji Bureau of Statistics. (2017). Population and Housing Census: Administration Report.
4. Heintze, H., Kirch, L., Küppers, B., Mann, H., Mischo, F., Mucke, P., Pazdzierny, T., Prütz, R., Radtke, K., Strube, F., Weller, D. (2018). World

Risk Report 2018. (p. 7). Retrieved from: https://reliefweb.int/sites/reliefweb.int/files/resources/WorldRiskReport-2018.pdf
5. NDMO. (n.d.). Tropical Cyclones – Action Gide. Retrieved from: http://www.ndmo.gov.fj/images/Hazards/Tropical_Cyclone.pdf
6. Asian Development Bank (ADB). (2019). Pacific Finance Sector Briefs – Fiji. Retrieved from: https://www.adb.org/sites/default/files/
publication/529841/pacific-finance-sector-fiji.pdf
7. World Bank (WB). (2017). Systematic Country Diagnostic 2017. Republic of Fiji. Retrieved from: http://documents.worldbank.org/
curated/en/529271512123603244/pdf/116491-revised-PUBLIC-ACS.pdf
8. Ministry of Economy Republic of Fiji. (2017). 5-Year & 20-Year National Development Plan. Transforming Fiji. Retrieved from: https://www.fiji.gov.fj/getattachment/15b0ba03-825e-47f7-bf69-094ad33004dd/5-Year---20-Year-NATIONAL-DEVELOPMENT-PLAN.aspx
9. Fiji Bureau of Statistics. (2017). Population and Housing Census: Administration Report.
10. City population, Fiji. http://www.citypopulation.de/Fiji.html

Bilo Settlement7

1.2 PURPOSE OF THE COMMUNITY-BASEDVULNERABILITY ASSESSMENT AND CLIMATE ACTION PLAN
The community-based VA and CAP aims to inform the wider planning processes at the town andnational levels, by providing an in-depth assessment on settlement level vulnerability, in addition toproviding recommendations for action. This document presents a summary of the report developed
under the project for dissemination. The original report includes additional information and a morein-depth analysis.
The VA aims to understand the level of vulnerability of systems in Bilo, by following a multi-scale
approach. The VA has the following sub-objectives:
1. Identify the underlying causes of vulnerability.
2. Understand the perceptions on climate change and disaster risk from the 		residents living in the settlement.
3. Analyse the spatial dimension of exposed assets.
4. Identify the sources of livelihoods that may be vulnerable to the impacts of climatechange.
Based on the findings of the VA, a CAP was developed to identify and prioritize potential communitylevel interventions. This aims to identify and prioritize climate change adaptation options that will
enhance the resilience of physical, natural and socio-economic assets and ecosystems at thecommunity level.

Two girls looking out the window
UN-Habitat/Begoña Peiro

8

Bilo Settlement

2

METHODOLOGY
Several data gathering methods have been employed in order to collect both the primary andsecondary data needed to conduct the analyses. The methodology is designed to support local andnational governments in identifying current and future drivers of vulnerability and to identify priorities
for climate change adaptation.
Community level data was collected around five key components: (i) Population; (ii) Urban land use
and buildings; (iii) Natural resource-based production, (iv) Critical point facilities; and (v) Lifeline
utilities. The data collected from both primary and secondary sources provide information on
climate hazards and variability and support three main analyses: (1) Hazard exposure analysis; (2)Sensitivity analysis; and (3) Adaptive capacity analysis.

DATA COLLECTION
Primary data collection methods:•
Household survey (HHS)11•
Site visits and participatory mapping•
Key Informant Interviews (KII)•
VRA workshop

Secondary data collection methods:•
Census•Reports on climate change projections•
Spatial data available in GIS repositories

Figure 2 Analytical Framework
NATURAL RESOURCEBASED PRODUCTIONCRITICAL POINT
FACILITIES &INFRASTRUCTURE

URBAN
LAND USE &BUILDINGSDATA COLLECTION

COMMUNITYPROFILEPOPULATIONLIFELINE UTILITIESANALYSIS
HAZARDSPRIORITY AREASEXPOSURE

SENSITIVITY

ADAPTIVE
CAPACITYACTIONSAP phase

11. The HHS provides predominantly quantitative data on the household unit, and the community unit once aggregated. The assessment

makes a distinction between household and house. Household refers to the family unit living in a same dwelling, and house refers to thephysical structure. When providing information regarding the HHS, the unit considered is the household. The household survey covered
94 per cent of the households in Bilo settlement. A total of 17 households were identified in the settlement at the time when the HHS was
carried out, and 16 of these were surveyed.

Bilo Settlement

9Girl eating a mango
UN-Habitat/Begoña Peiro

10

Bilo Settlement

3

BILO SETTLEMENT
Being situated outside of Lami’s town boundary, Bilo is part of the Suva Rural Area and under thejurisdiction of the Suva Municipal Council. Residents in Bilo have no formal land tenure arrangements,
no access to water supply, electricity, poor sanitation and housing conditions, and limited access torisk-reducing infrastructure. The community has an established community leader, who is chosen
by community members. Among his roles are conveying meetings with community members andacting as the focal point for outside organizations and institutions.
The total population surveyed in Bilo is 107 people, from which 59 are male and 48 are female.
Although one household was not surveyed, the total population includes information of the numberof people residing in that household. In terms of age distribution, persons aged from 0 to 24 years old
represent a large proportion of the total population (57 percent). The youth age group (15-24) on theother hand, accounts for a smaller proportion (16 percent). There are only two people aged over 75
in the settlement. Average household size is 6.3 persons (sizes range from 2 to 17 people amongst
the households surveyed).

19
17
2
107

Total number of houses
Total number of households
Uninhabited buildings
people living in the settlement

Rainwater harversting tank
UN-Habitat/Begoña Peiro

12.065 m
1.407 m225 m
10.658 m

2

2

2
2

Total area within boundary
Residential buildings area
Civic buildings area
Open space area

4

Bilo Settlement

11

CLIMATIC FEATURES, HAZARDS, PERCEPTIONS
4.1 CLIMATIC FEATURES AND HAZARDSFiji is generally considered to be an oceanic tropical marine climate12. There are two distinct seasonsnamely, a warm wet season from November to April and a cooler dry season from May to October13.
Regarding climate variability, the major features driving climate in Fiji are14:•

The El Niño Southern Oscillation (ENSO) phenomenon, which occurs every two to seven years,
four years on average. It is the most important influence on inter-annual climate variations in the
country. It strongly influences rainfall, temperature and tropical cyclones. Dry seasons during El
Niño event tend to be drier and cooler, with droughts being associated to these periods. On thecontrary, La Niña events are associated with floods, depressions and tropical cyclones.

•

The South Pacific Convergence Zone strongly influences the seasonal cycle, which is mostintense during the wet season and closer to the country15.

•

The trade winds bring orographic rainfall to the eastern parts of the country. Around 70% of thenational annual average rainfall occurred during the wet season (over the period from 1961 to2010).

4.2 COMMUNITY PERCEPTIONS OF KEY IMPACTS
Based on primary data collected, residents face key challenges due to a number of climate-related
hazards, including cyclones, floods, extreme heat, and vector-borne diseases.

69%
31%
44%

of households highlighted cyclone
as the most problematic hazard.
of households highlighted rainstorm as
the second most problematic hazardof households highlighted vector-borne diseases
as the third most problematic hazard.

12. Government of Fiji. (2019). National Climate Change Policy. Retrieved from: https://www.pacificclimatechange.net/sites/default/files/
ocuments/National-Climate-Change-Policy-2018---2030_0.pdf
13. Pacific-Australia Climate Change Science and Adaptation Planning Program (PACCSAP). (2014). Climate Variability, Extremes andChange in the Western Tropical Pacific: New Science and Updated Country Reports.
14. Government of Fiji. (2018). Climate Vulnerability Assessment – Making Fiji Climate Resilient.
15. Ibid

KEY FINDINGS
Bilo residents reported being impacted in different ways by the recurrence of climate hazards:

89%

88%

82%

36%

5%

of respondents
identified damage tohousing stock as amajor concernof respondents
were concerned
about their ability toprovide foodof respondents wereconcerned with theimpact on their ability
to earn an incomeof respondents wereconcerned with theimpact on crops,
fishing or livestockof respondents wereconcerned with thepossible temporary
relocation

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Bilo Settlement

All the households in Bilo reported having issues related to cyclones. Given the location of Bilo andthe very poor conditions of the housing stock, severe impacts during cyclones are very common.
Many respondents referred to TC Winston when identifying the most problematic hazard. Basedon the data collected, all the houses were affected by TC Winston. In particular, three houses wereseverely structurally damaged and one was completely destroyed. Water tanks were damaged, as
well as crops and other property assets. Latrine superstructures were damaged and blown away,
and sanitation pits were filled with rainwater leading to overflow. Residents from Bilo evacuated to
the Bilo Gun Battery and stayed there for four days. The Bilo Gun Battery is a World War II historicalsite located approximately one kilometer from the settlement. However, it is not intended as anevacuation center and is therefore not equipped with sanitation facilities, water supply, etc. Althoughparticipants clearly stated that the impacts caused by TC Winston were much more significant thanthose caused by other cyclones, they mentioned that even Category 2 cyclones cause disruptions totheir lives, affecting their houses, crops and access to drinking water.
Coastal flooding was also highlighted as impacting the community. Although coastal flooding does
not affect the houses located in Bilo, there is a water source that is used by community members
which gets flooded during high tide. Residents in Bilo do not have access to water supply and generally
use rainwater that is collected. However, during extended periods with no rain, they collect waterfrom this source which is affected by coastal floods. Lack of water during periods with no rain wereraised as one of the most pressing issues in Bilo. Other hazards highlighted as the most problematicwere very diverse: including flash floods, drought, extreme heat, salt intrusion and landslides. This
diversity may be related to the differentiated characteristics of each household in relation to their
spatial location.

Household interview
UN-Habitat/Begoña Peiro

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Bilo Settlement

13

CLIMATE CHANGE AND FUTURE RISKS
5.1 CLIMATE CHANGE PROJECTIONS16
2090

Extreme rainfall events are expected to increase, becoming more
frequent and intense.

2090

The total number of storms is likely to decrease over time, however. The
proportion of Category 4 and 5 tropical cyclones is likely to increase.

2090

Temperatures are expected to increase as well as temperature on
extreme hot days.

2090

Mean sea level will continue to rise, with projected increases of 38–87
cm by 2090 under the RCP8.5

2090

Ocean acidification is expected to continue increasing, leading to coral
reef bleaching and destruction.

2090

Landslides represent a significant risk that can increase in response toheavier rainfall.

Figure 3 shows the main hazards that affect Bilo settlement and primary and secondary impacts that were reported bycommunity members during participatory workshops17 18
2050

Surface airtemp. + 1.3º C

HAZARDSPRIMARY IMPACTS

SECONDARY IMPACTS

CycloneEffects on
fauna & flora

Fewer ecosystemservices

Flooding

Difficult tocatch fish

Lower
incomeRainstormLivestock
deathsMalnutrition

DroughtCropfailureRelocation

Extremeheat

HealthissuesFewer jobs

Salt
intrusion

Lack ofdrinking water

Higher foodprices

Storm
surge

Damage tohousesProperty
lossesLandslides

Damage toinfrastructure

Accessibility
issuesOcean
acidification

Salinity

Increased
landlessness

Maximum air
temp. + 1.4º C

1% increasein rainAragonitesaturation-0.7 ΩarUp to 25 cm
sea-level rise

16. Climate projections based on: PACCSAP Program, (2014). Climate Variability, Extremes and Change in the Western Tropical Pacific: New

Science and Updated Country Reports.
17. 2050 projections based on: PACCSAP Program, (2014). Climate Variability, Extremes and Change in the Western Tropical Pacific: New
Science and Updated Country Reports.
18. Surface air temperatures in the Pacific are closely related to sea-surface temperatures (SST), so the projected changes to air temperature
can be used as a guide to the expected changes to SST.

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Bilo Settlement

5.2 EXTREME CLIMATE EVENTS FUTURE RISK
The assessment carried out relies on existing sets of nation-wide climate change projections that areavailable and were produced by the Pacific-Australia Climate Change Science Program (PACCSAP)19.

Cyclones:

Despite projections that tropical cyclogenesis will decrease, the intensity of cyclone events is
expected to increase. Increase in strong winds is expected to result in damage to housing stock andcritical infrastructure. Cyclones will impact livelihoods through damage to land and crops, livestockand by increasing difficulty in catching fish. Increased intensity of cyclones will impact on people’s
mobility and has the potential to displace vulnerable communities, both temporarily and permanently.

Extreme Temperatures:

Projected increase in temperature, in particular on extremely hot days, is expected to have significant
impacts on local health. Higher temperatures lead to lower water availability during the dry season.
Higher temperatures also increase the incidence of mosquitos, the risk of crop failure, and livestock
health impacts. This has a socioeconomic impact on communities by reducing income reliability
and increasing food insecurity due to increased food prices.

Rainfall:

Projections a wide range of change in annual rainfall, from increase to a decrease and with littlechange on the model average. Findings show that the effect of climate change on average rainfall
may not be obvious in the short or medium term, due to natural variability, with year-to-year rainfall
variability being generally larger than the projected change (except for models in the highest emission
scenario by 2090).
The frequency and intensity of extreme rainfall events are projected to increase. This is expected
to damage crops and cause livestock deaths. Food security will increase due to crop loss. Despite
increased water availability, rainwater is difficult to capture without proper infrastructure, and flooding
is likely. Flooding will cause accessibility issues and damage housing stock.
19. PACCSAP Program, (2014). Climate Variability, Extremes and Change in the Western Tropical Pacific: New Science and Updated
Country Reports.

Kelera washing her clotes in the river
UN-Habitat/Begoña Peiro”

Every time our water tanks are empty because of the lackof rain, we have to carry water from the creek nearby tomake sure we don’t lose our crops. This really affects us andmakes farming difficult.
Kelera, Bilo resident[No real names are used in this report]

Although the Eastern side of Viti Levu receives high levels of rain
and is the cause of flood events, the lack of water was raisedby many residents amongst the most critical issues faced. In
response to the lack of access to water supply, residents use allsorts of containers that they can access to collect water (frombarrels to old bathtubs and fridges).
Kelera has lived in Bilo for over 50 years. During the interviews
she showed her deep care for other neighbors in her community.
She explained how she has been appointed by the Ministry of
Health as ‘community nurse’. This involves acting as focal point,
reporting any health issues that are faced, taking care of the
medicine kit she has been provided with and filling in monthly
reports.

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Bilo Settlement

15

VULNERABILITY
Bilo's vulnerability was assessed through three lenses:

EXPOSURE

SENSITIVITY

ADAPTIVE CAPACITY

6.1 VULNERABLE GROUPS:WOMEN, YOUTH, ELDERLY, PEOPLE WITH DISABILITESGender inequality in Fiji is a key driver of vulnerability to climate change with several studies
demonstrating that women and girls are highly vulnerable to the impacts of climate-related disasters.
The increase of Gender Based Violence (GBV) and violence against children after disasters has been
widely documented by humanitarian agencies coordinating emergency response efforts20. Evidence
indicated that violence against children increased after TC Winston as a result of heightened stressand vulnerability from caregivers. Incidents of sexual violence were also reported after the two
tropical cyclones hit the Western division of Fiji in 2012 by women living in relief centers21. Moreover,people with disabilities and especially women are at particular risk of domestic violence due to theirintersecting vulnerabilities22.
Additionally, unequal participation in governance and political processes also limits women’s ability
to influence important processes and decision-making in areas relevant to climate and disaster risk
management. Due to these social norms, the full potential of women to contribute to increasing thecapacity of their communities to manage climate and disaster risk is often not reached.
Some responses to disaster situations can be particularly damaging for children, who aredisproportionately vulnerable. In Bilo settlement, recurrent flood events have impacts on residents’
health, with large cumulative impacts on children who can be deprived of access to school. As aconsequence, many adult women (given their primary role as caregivers) also miss work in order totake care of their children. In Bilo, none of the children under 6 were reported as being involved in
education. This means that members of families with children under 6 will have to assume the roleof caretakers. Often, female members of the household take this role.
A transect walk was organized with children in Bilo, during which they were asked to show and map
their settlement (e.g., places where they play, the route they take to school, their water sources etc.).
This aimed to increase understanding of how they experience climate-related hazards and identify
potential risks. It also helped to identify potential issues and risks that affect children.
Children from Bilo settlement attend different schools, some of them take the bus and others walkto school. Several issues were raised during the participatory workshops and transect walks, suchas the fact that children have to walk a long way to the bus stop and the very poor conditions of
the footpaths, which are often flooded during high floods. Moreover, poor accessibility (frequently
flooded roads and footpaths) also has an adverse on the elderly.

20. UN Women. (2014). Climate change, Disaster and Gender-Based Violence in the Pacific.
21. UN Women. (2013). The 2012 Fiji Floods: Gender Sensitivity in Disaster Management.
22. Government of The Republic of Fiji (GoF). (2017). Climate Vulnerability Assessment. Washington, D.C.: The World Bank Group.

16

Bilo Settlement

Children showing their route to school
UN-Habitat/Begoña PeiroBilo Settlement17

6.2 EXPOSURE
Exposure is defined as the presence of people, livelihoods, species
or ecosystems, environmental functions, services, and resources,
infrastructure, or economic, social, or cultural assets in places andsettings that could be adversely affected23.
Being located along the coast next to a mangrove area, Bilo’s social, economic and natural systems
are exposed to multiple hazards. During the participatory workshop, community-members identified
key locations, infrastructure and assets. Participants schematically demarcated the areas that are
exposed to the main climate-related hazards that affect their community and discussed key impacts(see Figure 3). The areas marked as being affected by heavy rainfalls are areas that become very
muddy, such as the unpaved road that crosses the settlement and an area which is used to plant
crops affected by pooling of water. The houses marked as being affected by surface runoff arelocated on an undulating terrain on the lower side of the settlement. Community representatives
mentioned that surface runoff from the other parts of the settlement affects this area the most.
Furthermore, participants identified those houses that were affected the most during TC Winston,households where elderly people who require special support live, areas where children play, among
other key features.
Figure 3 Hazard exposure map developed in participatory workshops

23. IPCC, 2014: Climate Change 2014: Synthesis Report. Contribution of Working Groups I, II and III to the Fifth Assessment Report of theIntergovernmental Panel on Climate Change [Core Writing Team, R.K. Pachauri and L.A. Meyer (eds.)]. IPCC, Geneva, Switzerland

18

Bilo Settlement

Figure 4 shows the hazards that were highlighted by respondents as being amongst the three mostproblematic hazards for their household. While these are the hazards that residents perceive as
being problematic based on their experiences, it does not mean that other hazards do not pose risks
in the settlement.
Figure 4 The most problematic hazards identified by respondents in the settlement
Climate hazards
identified by respondents
as being among the top 3
most problematic in thesettlement

Climate hazards not
identified by respondents
as being among the top 3
most problematic in thesettlement

CYCLONERAINSTORMFLASH FLOODING

DROUGHTEXTREME HEATVECTOR-BORNEDISEASESSALT INTRUSIONWATER-BORNEDISEASESLIGHTNING& THUNDERSTORM

COASTALFLOODING

RIVER
FLOODING

OCEAN
ACIDIFICATION

6.3 SENSITIVITY
Sensitivity is defined as the degree to which a system or species
is affected, either adversely or beneficially, by climate variability orchange24.

(i) Population
Residents of Bilo do not have formal land tenure arrangements. However, their perceived tenure
security is high, as many households have family ties to their landowner. 69 percent of the current
residents reported having lived in Bilo for over 20 years. The dependency ratio25 in the settlement isvery high, at 91, compared to the national average of 5426. Young dependents make up 84 percent of
the total dependents, whilst elderly people (aged over 65) make up the remaining 16 percent.

(ii) Urban Land Use & Buildings
The town council is responsible for ensuring that buildings are compliant with the building code.
However, compliance is not checked in informal settlements. All the houses are one storey highand are mostly located on relatively flat terrain. 32 per cent of the houses are located on a mediumsloped terrain, and 5 per cent on high-sloped terrain. All houses have been constructed with lightmaterials (e.g. metal, wood etc.), which are often reused and already in poor conditions when thehouses are assembled.
24. IPCC, 2014: Climate Change 2014: Synthesis Report. Contribution of Working Groups I, II and III to the Fifth Assessment Report of theIntergovernmental Panel on Climate Change [Core Writing Team, R.K. Pachauri and L.A. Meyer (eds.)]. IPCC, Geneva, Switzerland
25. Age population ratio of those that are not in the labor force (the dependent part ages being used are 0 to 14 and 65+) and those typicallyin the labor force (the productive part ages 15 to 64). However, it must be noted that for some professions (e.g. government officials) in Fiji,
the age of retirement is 55. For the purpose of this study, the retirement age of 65 is used.
26. World Bank. (2019). Retrieved from: https://data.worldbank.org/indicator/SP.POP.DPND?locations=FJ

70% 100%of houses in Bilowere built
after 1990.

of houses have metalroofs. 74% are in are inpoor conditions,
26% were ranked as fair.

74%

of houses are builtwith metal exterior walls,
and the remaining
26% are wood.

74%

of houses are on stilts,
most of which are
made of wood.

61%of the stilts are lessthan 1m off theground.

Bilo Settlement

19(iii) Natural Resource-based Production
Bilo residents are highly dependent on natural resources for food and livelihoods, in addition toenvironmental protection. The settlement is located next to a mangrove area. Mangroves provide
coastal protection from waves and storm surges and prevent coastal erosion, as well as act as asource of food and wood.
All the households reported growing crops, mainly cassava, dalo, kumala (sweet potato), coconut, red
fruit and vudi. Future climate change impacts on root crops are expected to be lower as comparedto grain crops. However, risk to taro crops is expected to increase due to higher pest incidences
resulting from increased temperatures27.
69 percent of households report fishing frequently. However, coral bleaching and ocean acidification
represent a threat to the availability of fish. The main fishing techniques being practiced include
using a long line with a hook during low tide, nets, and spear fishing. Women generally fish during
low tide and use a long line with a hook, while men practice spear fishing and freediving. During theworkshops, community members highlighted that fish being caught are enough for own consumption,
despite observing a decreasing trend in the amount of fish available. Other marine products that areused by the community, mainly for own consumption, include kaiqoso (sea shells), crabs, cawaki, sea
cucumber and yaqa.
The proportion of households relying on livestock for food is smaller, although still relatively high(44 per cent). Community members reported that a lack of electricity supply and food refrigeration
options present significant challenges. Heat stress was highlighted among the climate-related issues
affecting livestock, with residents reporting livestock casualties during extremely hot weather.

(iv) Critical Point Facilities & Infrastructure
Bilo is located at the end of Bilo road, and close to the coast. Although this road connects to Queen´sRoad (the main throughway in Fiji), and it is paved for most of its length, accessibility to the settlement
was highlighted by many households as a main concern.The nearest bus stop is approximately one
kilometre away, which is considered too far by residents given that most children take the bus to go
to school. The schools available in the nearby towns are located between 3 and 9 kilometers away.
Lami's health center is located 7 kilometers from the settlement.
There is a church in Bilo, which was built in 1974, and has been used as an evacuation hall previously.
However, there are a number of issues with its structural integrity.

(v) Lifeline Utilities
None of the households in Bilo have access to piped water supply. The majority of residents collectwater from open water containers (head drums, buckets, old bathtubs etc.), which poses a high riskof water contamination. In total, there are 10 households that do not have access to water harvestingtanks.
Like the rest of the settlements within and in the periphery of Lami Town, Bilo does not have access tosewerage infrastructure. 13 per cent of the households share sanitation facilities. The lack of rubbish
collection services was highlighted as a key issue in Bilo. Many residents bury or pile their waste.
Areas where waste is regularly piled pose a threat to the local public and environmental health.
Whilst households reported that there is no electricity supply in Bilo, at the time of data collection,
this was under construction. 44 per cent of households rely on kerosene lamps for light, and ‘fuelstacking’ is a common issue in all households. This is generally formed by a combination of either
kerosene or gas with fuelwood.

27. Government of Fiji. (2018). Climate Vulnerability Assessment – Making Fiji Climate Resilient20

Bilo Settlement

6.4 ADAPTIVE CAPACITY
Adaptive capacity is the ability of systems, institutions, humans, andother organisms to adjust to potential damage, to take advantage ofopportunities, or to respond to consequences28.
Three different levels of adaptive capacity are analysed:(i) Independent Capacity,(ii) Collective Capacity,(iii) Institutional Capacity.

(i) Independent Capacity
Independent capacity is how individuals or families are able to respond and adapt toclimate hazards without assistance from the larger community or local government29.
Also referred to as ‘autonomous’ adaptation. In this report the unit considered for the
analysis is the household.
There is limited financial resources available at the household level. The average income is low
and access to financial assistance and social protection services is low. The Department of Social
Welfare, under the Ministry of Women, Children and Poverty Alleviation (MWCPA) is the lead agency
for social assistance in Fiji and administers the core social protection programs, which are: thePoverty Benefit Scheme (PBS), Care and Protection Allowance (CPA), and Social Pension Scheme(SPS), Food Voucher Program and the Free Bus Fare Program.

44%

households reported thatat least one member hadaccess to the free bus
fare program.

19%

households mentioned
having accessto the social pension
scheme13%

have access tothe food voucher program,and 6% to the poverty
benefit scheme.

19%

households
reported
not having accessto any social
protection programs.

Most respondents reported having access to information on climate change, either throughtechnology (including radio, television, etc.) (55%), or through social media (25%). 10% of households
reported being involved in trainings, but another 10% of households mentioned not having access to
any type of information regarding climate change and disasters.
With regards to disaster preparedness, none of the households had an evacuation plan or being
connected to a formal disaster and risk reduction (DRR) network. However, they do have an informal
evacuation plan in place and make use of the Bilo Battery site as shelter during disaster events. 50%
of households reported having access to early warning systems.
24% of households reported evacuating to the Bilo Battery site, as an informal response to disasters.
When asked about the types of post-disaster assistance that the household had received in the past,
39 per cent of the households reported not having received any kind of aid in the past. 22 per centmentioned having received food items and 11 per cent first aid kits. Assistance material for crops,
for shelter and cash had been received by 6 per cent of the households.
28. IPCC, 2014: Climate Change 2014: Synthesis Report. Contribution of Working Groups I, II and III to the Fifth Assessment Report of theIntergovernmental Panel on Climate Change [Core Writing Team, R.K. Pachauri and L.A. Meyer (eds.)]. IPCC, Geneva, Switzerland
29. UN-Habitat, 2014. Planning for Climate Change.

Bilo Settlement21(ii) Collective Capacity
Collective capacity is how well are communities, neighbourhoods or other groups able
to respond and adapt to climate hazards without assistance from government or otheragencies and institutions30.
There is a lack of financial capital at the community-level, as there are no collective savings groups
or systems in place. Despite individual households reporting having access to early warning systems(either through radio or SMS), the community is not connected to a formal DRR network nor has aformal evacuation plan. During FGDs and interviews, community representatives mentioned relying
on their social networks and neighbors to respond during disaster events.
Participants mentioned that there are two female community representatives that were appointed as‘health focal points’ and are regularly in contact with the Ministry of Health. They are also provided
with a basic medicine kit that is stored in their houses in case community members need to accessmedicines.
There are community leadership structures in place community (e.g. established community leader,
community groups, etc.) that have been effective following past disaster events. These structures
are functioning, and carry out activities such as the organization of regular meetings to discusscommunity matters, small fund-raising activities, etc. These systems present opportunities tostrengthen community-level mechanisms for disaster preparedness, response and climate change
adaptation.

(iii) Institutional Capacity
Institutional capacity is how well an established government is able to, or would be able to,respond and adapt to climate hazards (e.g. organizational systems, policies, regulations,human resources, technological resources)31.
Fiji’s 5 –Year and 20-Year National Development plans lay out the country’s development agenda inrealizing the Sustainable Development Goals and Nationally Determined Contribution under the Paris
Agreement.
Fiji’s National Climate Change Policy (NCCP) further articulates Fiji’s priorities in reducing present
and future climate risks in alignment to the National Development Plans. These Plans envisage
9.3 billion FJD expenditure on climate change adaptations over the next two decades. Despite this,financial capital remains lower than the identified needs.
The NCCP recognizes the important roles local government entities play in delivering the policy’s
objectives and in providing coordination at the community-level. At the moment, councils do nothave a budget dedicated to the implementation of climate adaptation activities but may accessfunds through specific projects (e.g., mangrove conservation projects in Lami Town Council). The
NAP is meant to provide mechanisms and arrangements that will allow to progress local government
facilitation, promoting bottom-up approaches at district and community levels.
The National Disaster Management Office carries out activities such as community awarenessprograms and disaster management trainings. However, informal settlements are often left out of
formal systems, networks and programs. For example, activities such as the community awarenessprograms have been carried out in villages, but not in informal settlements up to the time when
the report was developed. Given that informal settlements such as Bilo are often located in highly
exposed areas, combined with a high level of sensitivity, the introduction of awareness raisingprograms and improved disaster preparedness are a priority.
30. Ibid
31. Ibid

22

Bilo Settlement

7

CLIMATE ACTION PLAN
The main purpose of the CAP is to empower communities to identify community-level interventions
that will strengthen their resilience to climate change while driving development. On the one hand,the prioritized actions resulting from this process will lead to the selection of projects that are financially supported by the FRIS project. On the other hand, the CAP aims to support national and local
government decision-making, particularly in relation to upgrading of informal settlements and theirenhanced integration into the urban system.
Several community workshops held with local stakeholders (including vulnerable groups such as
women, youth, the elderly, and people with disabilities) helped to identify key vulnerabilities, climate
risks and identify adaptation options and priorities. Integrating quantitative datasets and community
perceptions during the VA phase allow for critical consideration of both community and scientificunderstandings of climate variability and change.

7.1 CLIMATE RESILIENCE& THE SUSTAINABLE DEVELOPMENT GOALSAs stated in the National Climate Change Policy, vulnerability to climate change in Fiji has thepotential to derail and undermine progress against each of the SDGs32. Building climate resilienceis critical to the implementation of the SDGs. However, existing development deficits exacerbate
communities’ vulnerability to climate change. As such, the action plan prioritizes a holistic approachthrough actions that build climate resilience alongside sustainable development co-benefits.

7.2 ALIGNMENT TO FIJI’S NATIONAL PLAN
Fiji´s National Adaptation Plan33 (NAP) is aligned to international processes such as the SDGs of
the 2030 Agenda, the Paris Agreement of the UNFCCC and the Sendai Framework for Disaster Risk
Reduction. It contains 160 adaptation measures that are to be prioritized over the five-year periodof the NAP, organized across a total of 10 components (five systems components and five sectoralcomponents). The actions included in this report are aligned and respond to the aforementioned
focus areas.

OPTION IDENTIFICATION & PRIORITIZATION
During the workshops, key climate-hazards were discussed, linking the options to these hazards andrelated impacts. Integrating quantitative datasets and community perceptions during the VA phaseallow for critical consideration of both community and scientific understanding of climate variability
and change. Similarly, the option identification process considered both community inputs, thatallowed the team to capture local and traditional knowledge, and technical inputs from experts. The
options identified were derived from the findings of the VA and prioritized based on a multi-criteria
assessment (i.e. link to hazards, SDG co-benefits, ease of implementation, urgency and cost).

7.3 PRIORITIZED SHORTLISTED ACTIONS
During the participatory workshops, potential adaptation options were co-designed and discussed. Some
examples include improved sanitation facilities that are resilient to floods, and rainwater harvesting tanks
to ensure continous access to water. Based on the long-list of adaptive measures (see Annex A where thetechnical scoring is included), a short-list was prepared and prioritized. Below is the table that includes
32. Ministry of Economy, Republic of Fiji, (2019). National Climate Change Policy 2018-2030.
33. Government of the Republic of Fiji, (2018). Republic of Fiji. National Adaptation Plan. A pathway towards climate resilience. Retrieved
from: https://www4.unfccc.int/sites/NAPC/Documents/Parties/National%20Adaptation%20Plan_Fiji.pdf

Bilo Settlement23

the short-listed options and the results from the community ranking, community acceptability, community support
and technical feasibility. This work forms the basis for the selection of options that will be implemented as part of
the FRIS project. However, it must be noted that the fact that the options have been shortlisted does not mean that
all of them will be implemented. The next steps of the project include further developing the priority actions fortheir implementation. This will be done in a participatory manner and will involve technical experts (e.g., engineers,architects, etc.), representatives from the Ministry of Housing and Community Development as well as from the local
government with support from UN-Habitat.
PRIORITZED OPTIONS

SDG
CO-BENEFITSCOMMUNITYRANKING

Interventions in physical, natural and social assets
Construction of an evacuation center (which also serves as akindergarden and community center)1

Rainwater harvesting tanks

2

Improved sanitation facilities

3

Storage units for livelihood materials

4

Trainings and awareness raising
Training on waste management following a participatory approach that identifies opportunities linked to livelihoods

5

Trainings on safe construction for hazard proof shelters for
low-income residents

2

WASH trainings that target adults and children

4

Disaster preparedness and response related activities

7

Training on financial literacy and social protection programs

1

Training on livelihoods linked to sustainable agricultural practices

3

Establish youth community groups and increase their skills
and capacity

6

The following activities were identified and shortlisted, aiming to supported the project implementation:•
Reinforce existing governance structures at the community-level to ensure project ownership.
•
Establish youth community groups and promote their participation in awareness raising and project
implementation activities that can increase their skills and capacity.
•
Engagement through design process of the retrofitting actions, following a participatory approach.
•
Awareness raising and trainings on maintenance requirements of sanitation facilities and rainwater harvestingtanks.

24

Bilo Settlement

ANNEX
Long list of climate change adaptation options
Interventions in physical, natural and social assets
Trainings and awareness raising activities
Activities that support the project implementation

These actions were identified as part of the longlist of adaptive measures, and were short-listed forfurther prioritization.

EASE OFIMPLEMENTATIONURGENCY

COST

TOTAL

Community involvement in elimination of larval habitats(through clean up campaigns and awareness raising)

2

1

3

6

WASH trainings that target adults and children

2

3

3

8

Awareness raising campaigns that promote moresustainable options to solid waste management

2

3

2

7

Training on waste management following a participatory
approach that identifies opportunities linked to livelihood
options

2

3

3

8

Trainings on safe construction for low-income residents

2

3

3

8

Incorporating informal settlement areas to be covered byrelevant authorities (including compliance with building
codes)

1

2

1

4

Development of catalogue of hazard proof options for lowincome residents that takes into consideration local andaffordable materials that are available

2

2

3

7

Low-cost retrofitting to strengthen existing household
structures, especially roofs

1

3

1

4

Identify financial support options and promote informal
settlements upgrading and regularization of land tenure

1

3

2

6

Localized interventions to improve the housing conditionsof those structures that are identified as being in the worst
conditions

2

2

3

7

Set up disaster management committees to discussdisaster preparedness and response regularly

3

3

3

9

Plan and define evacuation routes

3

3

3

9

Link community level early warning system to formal
networks, city-wide disaster response communications
technologies and procedures.

3

3

3

9

Evacuation drills

3

3

3

9

Reinforce existing governance structures at thecommunity-level to ensure project ownership as theprocess progresses

3

3

3

9

OPTIONS

SDG
CO-BENEFITS

Population key area

25

Bilo Settlement

Interventions in physical, natural and social assets
Trainings and awareness raising activities
Activities that support the project implementation

These actions were identified as part of the longlist of adaptive measures, and were short-listed forfurther prioritization.

EASE OFIMPLEMENTATIONURGENCY

COST

TOTAL

Strengthen existing youth community groups and promote
their participation project activities

3

3

3

9

Diffusion of assessment results to provide insights on thefindings and promote further action

3

3

3

9

Strengthening community engagement and participation inresilience planning processes

3

2

3

8

Formalization of land tenure, land subdivision andupgrading

1

2

1

4

Awareness raising and clean up campaigns to prevent
ecosystem degradation

3

2

3

8

Provide alternative low-cost cooking technologies that will
reduce the dependency on mangrove firewood

2

2

2

6

Provide adequate waste management options, as waste
is currently being dumped by the community in the nearby
surroundings

3

2

3

8

Trainings and awareness raising on sustainable fishingtechniques and climate change impacts

2

2

3

7

Trainings and awareness raising on sustainable andclimate-resilient agriculture techniques and crops

2

3

3

8

1

2

2

5

2

3

3

8

Access to piped water supply

1

3

2

5

Rainwater harvesting tanks

2

3

3

8

OPTIONS

SDG
CO-BENEFITS

Population key area

Urban land use

Natural resource-based production

Critical point facilities
Improvement of road conditions and monitoring potential
slope failure along the road
Improved access to the settlement, including paved accessof the last segment of the road and the reducing distanceto the bus stop
Construction of an evacuation center (which also serves asa kindergarden and community center)

Lifeline utilities

26

Bilo Settlement

Interventions in physical, natural and social assets
Trainings and awareness raising activities
Activities that support the project implementation

These actions were identified as part of the longlist of adaptive measures, and were short-listed forfurther prioritization.

EASE OFIMPLEMENTATIONURGENCY

COST

TOTAL

Construction of an adequate drainage network

2

2

3

7

Improved sanitation facilities

2

3

3

8

SDG
CO-BENEFITSOPTIONS

Lifeline utilities

The table below shows the criteria and scores used for the prioritization.
3

2

1

Urgency

3 = High (action is directly
linked to the most pressing
issues identified through theVRA)

2 = Medium (action issomewhat linked to the mostpressing issues identified
through the VRA)

1 = Low (action is derived
from the VRA, but notamong the highest priorities
identified)

Ease ofimplementation

3 = High (action can be
implemented within the project´s timeframe and can be
implemented without external
support)

2 = Medium (action can be implemented within the project´stimeframe but would require
some external support)

1 = Low (action cannot be
implemented within the project´s timeframe and would
require significant support)

3 = High (action can be fully
covered by the project´sfunding)

2 = Medium (action canbe mostly covered by the
project´s funding but would
require some external funding)

1 = Low (action requires
significant external funding)Criteria

Cost

ADAPTATION FUNDHELPING DEVELOPING COUNTRIESBUILD RESILIENCE AND ADAPT TO CLIMATE CHANGE
The Adaptation Fund finances projects and programmes to help the mostvulnerable communities in developing countries adapt to the negative
effects of climate change.

RISE-UPRESILIENT SETTLEMENTS FOR THE URBAN POOR
RISE UP aims to improve the socio-economic prosperity of the urban
poor by reducing the impact of natural disasters, enhancing urban basic
services and community resilience.

BILO