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MANAGEMENT PLAN FOR THE PORT VILA SEAFRONT

PRECINCT

Including Feiawa Park and Fatumaru Bay Park

Figure 1- The Seafront precinct is a great place for tourists and locals to gather.

FEBRUARY 2018

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This management plan was prepared by Dr Andrew MacKenzie for the Vanuatu Strategic Tourism

Action Plan (VSTAP), under the direction of the Vanuatu Tourism Infrastructure Project Management

Committee.

The Deputy Prime Minister and Minister for Tourism approved the release of this plan for

consultation on the 31st October 2017. The final draft was released in February 2018.

Figure 2 The main boulevard provides generous Seafront access for tourists and locals alike.

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Table of Contents

MANAGEMENT PLAN FOR THE PORT VILA SEAFRONT PRECINCT .......................................................... 1

Table of Contents ................................................................................................................................ 3

List of Figures ...................................................................................................................................... 5

List of Tables ....................................................................................................................................... 6

1. Executive Summary ......................................................................................................................... 8

2. Policy context ................................................................................................................................ 12

2.1. Vanuatu’s National Sustainable Development Plan ......................................................... 12

2.2. Climate Change and Disaster Risk Reduction Policy ......................................................... 13

2.3. Trade Policy Framework ................................................................................................... 14

2.4. National Land Use Policy ................................................................................................... 15

2.5. Handicraft Sector Action Plan 2017 .................................................................................. 17

2.6. Vanuatu Strategic Tourism Action Plan 2014-2018. ......................................................... 18

3. Governance ................................................................................................................................... 20

3.1. Collaborative governance of public space ........................................................................ 20

3.2. International context ........................................................................................................ 21

3.3. Business Investment District (BID) .................................................................................... 22

3.4. Decision making ................................................................................................................ 24

3.5. Haos Blong Handikraf and Mahitahi ................................................................................. 24

4. Social sustainability ....................................................................................................................... 25

4.1. A functional, safe and attractive public space for all ........................................................ 25

4.2. Employment for Ni Vanuatu ............................................................................................. 26

4.3. Improved cruise ship passenger experience in Port Vila .................................................. 26

4.4. Enhanced resilience to natural disaster and climate change ........................................... 27

4.5. Community engagement .................................................................................................. 28

5. Financial Sustainability .................................................................................................................. 29

5.1. Revenue ................................................................................................................................ 30

5.1.1. PVMC ............................................................................................................................. 30

5.1.2. BID Levy ......................................................................................................................... 30

5.1.3. Department of Industry Handicraft Program................................................................ 31

5.1.4. Vanuatu Strategic Tourism Action Plan ........................................................................ 31

5.2. Seafront BID revenue ............................................................................................................ 32

5.2.1. Cruise ship passenger vouchers .................................................................................... 32

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5.2.2. Sporting and other cultural events ............................................................................... 32

5.2.3. Temporary Planning Permits......................................................................................... 32

5.3. Liabilities ............................................................................................................................... 33

5.3.1. Recurrent Maintenance liabilities ................................................................................. 33

5.3.2. Other recurrent salaries ................................................................................................ 34

5.4. Capital liabilities .................................................................................................................... 34

5.4.1. A Seafront Masterplan .................................................................................................. 35

5.4.2. Contingent Capital liabilities ......................................................................................... 35

5.5. Total liabilities ....................................................................................................................... 36

6. Policy implications ........................................................................................................................ 37

6.1. Regulatory implications ........................................................................................................ 37

6.2. Institutional Arrangements ................................................................................................... 37

6.2.1. Stage 1: Initiation December 2017-December 2018 .................................................... 37

6.2.2. Stage 2: Operation January 2019-January 2022 ........................................................... 38

6.2.3. Stage 3: Evaluation and Consolidation Post January 2022 ........................................... 38

7. Recommendations. ....................................................................................................................... 39

1: Introduce appropriate regulations ................................................................................................ 40

2: Oversee the implementation ......................................................................................................... 41

3: Appoint a technical adviser ........................................................................................................... 42

4: Form a cooperative society ........................................................................................................... 43

5: Prepare contingency plans ............................................................................................................ 44

8. Appendices .................................................................................................................................... 45

Appendix A- Consultation report ...................................................................................................... 45

Appendix B- Analysis of recommended Management Options ........................................................ 48

Appendix C- Stakeholder analysis: .................................................................................................... 52

Appendix D- Vouchers for Cruise ship passengers ........................................................................... 60

Appendix E- Proposed work plan for implementation of the Plan ................................................... 61

Appendix F- Temporary Permit Application ..................................................................................... 62

Appendix G- Guidelines determining the establishment of the Seafront BID. ................................. 70

Appendix H- References .................................................................................................................... 72

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List of Figures

Figure 1- The Seafront precinct is a great place for tourists and locals to gather. ................................. 1

Figure 2 The main boulevard provides generous Seafront access for tourists and locals alike ............. 2

Figure 3 Kastom totems were commissioned for the project by the Vanuatu Cultural Centre ............. 7

Figure 4 Haos Blong handicraft only sells Made In Vanuatu Products ................................................... 8

Figure 5 Feiawa Park provides relaxing spaces for locals to enjoy the Seafront .................................... 9

Figure 6 Ni Vanuatu citizens enjoying the shade of one of the trees that survived cyclone Pam. ....... 11

Figure 7 Fatumaru Park is constructed from locally sourced materials and retains local plants ......... 13

Figure 8 The central pier is designed for visitors to enjoy watching the harbour at work. .................. 14

Figure 9 The commercial sector on the Seafront is located between the market houses ................... 17

Figure 10 Woven Pandanus baskets are made by Ni Vanuatu from many of the islands. ................... 19

Figure 11 Indicative boundary for a Seafront Business Investment District......................................... 22

Figure 12 Crowds gathered in Feiawa Park for the official opening in September 2017 ..................... 27

Figure 13 Fatumaru Park includes local beaches for harbour swimming ............................................. 28

Figure 14 The furniture and fixtures are made of durable materials that will last many years ........... 37

Figure 15 Local timbers were used on the central pier, designed for water sports. ............................ 39

Figure 16 The Seafront will be a place for future generations to enjoy and take pride in ................... 40

Figure 17 The success of the Market houses will be key to the success of the Seafront. .................... 41

Figure 18 The boulevard provides Seafront access for water based tourist businesses ...................... 42

Figure 19 A cooperative society should include representatives from all stakeholder groups............ 43

Figure 20 Mahitahi is named in recognition of the New Zealand Government’s contribution ............ 44

Figure 21 The Seafront provides a range of recreation opportunities ................................................. 47

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List of Tables

Table 1 Projected Revenue 2018-2022. Low Revenue Scenario........................................................... 31

Table 2 Projected Revenue 2018-2022. High Revenue Scenario .......................................................... 31

Table 3 Total liabilities 2018-2022. Low Revenue Scenario .................................................................. 36

Table 4 Total liabilities 2018-2022. High Revenue Scenario ................................................................. 36

Table 5 SWOC Analysis governance option 1 ...................................................................................... 48

Table 6 SWOC analysis governance option 2 ........................................................................................ 49

Table 7 SWOC analysis governance option 3 ........................................................................................ 50

Table 8 SWOC analysis governance option 4 ........................................................................................ 51

Table 9 Stakeholder analysis micro-operators ..................................................................................... 52

Table 10 Stakeholder analysis small and medium enterprises ............................................................. 53

Table 11 Stakeholder analysis large commercial operations ................................................................ 53

Table 12 Passengers indicating that their likelihood of returning to Ports in Vanuatu (2014) ........... 55

Table 13 User analysis Cruise Passengers ............................................................................................. 55

Table 14 User analysis Air arrival tourists ............................................................................................. 56

Table 15 User analysis Yacht arrival tourists......................................................................................... 57

Table 16 User analysis local resident scenario 1 ................................................................................... 58

Table 17 User analysis resident scenario 2 ........................................................................................... 59

Table 18 User analysis resident scenario 3 ........................................................................................... 59

Table 19 Sample cruise ship voucher proposal ..................................................................................... 60

Table 20 Project term of reference for Plan implementation 2018 ..................................................... 61

Table 21 Sample fee structure for temporary works ............................................................................ 66

Table 22 Sample temporary works application .................................................................................... 68

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The Port Vila Seafront will be Vanuatu’s gateway. All visitors

to these precincts will experience a taste of Vanuatu’s

cultural, social, environmental and commercial excellence.

Figure 3 Kastom totems were commissioned for the project by the Vanuatu Cultural Centre

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1. Executive Summary The redevelopment of the Seafront (including Feiawa and Fatumaru Bay parks) in Port Vila has been

made possible through joint funding from the New Zealand (NZ) and Vanuatu Governments with

support from the Enhanced Integration Framework (EIF). Now completed, the new Seafront precinct

is providing Port Vila with;

An enjoyable, safe and culturally enriching experience for tourists.

A place for locals to gather and play.

Improved retail and commercial spaces to better serve locals and visitors

An event space for local celebrations.

A new identity for Port Vila, showcasing excellence in seafront redevelopment in the Pacific.

To ensure successful management into the future, the Vanuatu Tourism Infrastructure Project (VTIP)

Management Committee and Port Vila Municipal Council (PVMC) have collaborated to prepare a

Seafront Management Plan. The aims of the Seafront Management Plan are to maximise

opportunities for visitors to experience a taste of Vanuatu’s cultural, social, environmental and

commercial excellence; and to encourage tourists and local residents to use and enjoy Port Vila’s

Seafront precinct.

To achieve these goals in the medium to long term, the Seafront Management Plan includes three

outcomes. These are;

A shared vision for the Seafront precinct.

A model for collaborative governance, and

A model for long term financial sustainability.

Figure 4 Haos Blong handicraft only sells Made In Vanuatu Products.

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The preparation of a vision for the Seafront Precinct is essential for inspiring confidence and

commitment by key stakeholders from the government and private sector. The vision is as follows;

The Port Vila Seafront will be Vanuatu’s gateway. All visitors to these precincts

will experience a taste of Vanuatu’s cultural, social, environmental and

commercial excellence.

Figure 5 Feiawa Park provides relaxing spaces for locals to enjoy the Seafront.

The Port Vila Seafront will be successful if;

The Seafront Precinct is inclusive, accessible and welcoming to all tourists and citizens.

The Government and private sector embrace shared responsibility in decision making.

The business sector, with the support of the Government, unlocks the Seafront Precinct’s

full potential to showcase Vanuatu to the world through excellent activities and events.

The Seafront managing authority commits to financial discipline, transparency and

accountability and achieves long term financial sustainability.

The governance model proposed by this plan includes the establishment of a member based cooperative society to be created under the Vanuatu Cooperative Societies Act. The objective of this cooperative is to establish and run a Business Investment District (BID). A BID is a special precinct managed by a not-for-profit member organization (a cooperative society) that has limited jurisdiction over a defined area with special planning regulations. These regulations are set out to protect the interests of the local community while allowing for a governing board to raise the necessary revenue. Appendix G details the steps to establishing a BID.

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Essential to the success of this plan is long term financial sustainability. The Seafront Management

Plan has identified three key targets to achieve a sustainable revenue base. These include;

To support PVMC to undertake high quality and effective ongoing maintenance of spaces

and assets and to undertake long term asset repair and replacement as needed.

Hold sufficient funds in trust to rapidly and effectively repair and restore spaces and assets

to minimise disruption to tourist business activity after severe events such as cyclones and

earthquakes.

Through the BID model, maximise opportunities to raise sufficient capital to manage the

precincts in a way that all visitors can experience a culturally enriching and enjoyable visit to

the Seafront Precinct.

The following milestones tasks are necessary for the successful implementation of this plan.

The short term (2018- 2019) objective is for PVMC to provide leadership in maintaining

assets through an existing recurrent maintenance program. Recurrent maintenance will

continue to be the primary the responsibility of PVMC through the life of the Plan.

The medium term (2018-2020) objective is for the reformed management committee to

oversee the establishment of a special precinct to be known as the Seafront Business

Investment District (Seafront BID). Relevant regulations, petitions and consultations will

occur during that period. The Seafront BID will be funded by a property levy for three years.

The revenue raised will fund necessary projects, employ staff, and promote activities aimed

at the economic enhancement of the Seafront.

The long term (2020- onwards) objective of this plan is for the Seafront Precinct to achieve

the long term financial self-sustainability necessary to undertake all functions identified in

the Plan.

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The recommendations to government for the implementation of the Plan include:

1. The Ministry of Internal Affairs introduces appropriate regulation to form a special precinct

known as the Seafront Business Investment District (Seafront BID).

2. The Seafront management committee1 expands their terms of reference to oversee the

implementation of the Seafront BID.

3. The Seafront Management Committee investigates the appointment of a technical advisor

to lead the implementation of the Management Plan.

4. The Seafront Precinct Management Committee invites government and private stakeholders

within the boundaries of the Seafront BID to form a cooperative society under Part 10

section 53 of the Cooperative Societies Act.

5. The Seafront Management Committee determines the terms of reference for a Seafront BID

board, including the preparation of a disaster recovery plan and a Seafront Masterplan.

Figure 6 Ni Vanuatu citizens enjoying the shade of one of the trees that survived cyclone Pam.

1 The Seafront Management Committee will be formed, with a mandate to oversee the implementation of the

Seafront Management Plan. This committee replaces the existing VTIP Management Committee.

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2. Policy context This section identifies how the Management Plan responds to and satisfies a range of national policy

objectives related to Tourism, Trade, Land Use and Industry development. This plan establishes the

principles for effective management of the Seafront precinct in order to achieve the Management

Plan’s vision.

2.1. Vanuatu’s National Sustainable Development Plan

Vanuatu’s National Vision, set out in the National Sustainable Development Plan, is for “A stable, sustainable, prosperous Vanuatu2.” Therefore the Plan should aspire to achieve the following goals.

Stable – The new, improved Seafront offers economic opportunities to a wide variety of Ni Vanuatu, particularly in the handicrafts Industry. The new markets have the potential to increase demand for handicrafts from across Vanuatu, thus benefiting producers from all provinces. This plan aims to ensure that the Seafront Precinct remains a key economic asset for Vanuatu for many years. Achieving this will help to increase certainty in the tourism industry, thus increasing stability.

Sustainable – A key tenet of this plan is how to manage, maintain, replace, and improve the existing assets. By taking a proactive approach to maintenance, this plan will help to ensure that sustainability is at the heart of the new Seafront Precinct. This plan also proposes a new approach to governance of public spaces. If successful, this is something which could be replicated in other parts of Vanuatu.

Prosperous - The Seafront Precinct provides both direct and indirect opportunities for economic development. Tourism in Vanuatu directly employs 15% of the workforce and indirectly contributes to employment of up to 42% of the workforce3. The Seafront Precinct, with support from the Department of Industry and Department of Tourism, will strengthen the links between handicraft production, sales and the tourism industry through the Made in Vanuatu program. Existing retail businesses will benefit from the opportunities for increased sales and improved reputation of Port Vila as a destination.

By celebrating Vanuatu’s unique cultural and environmental values and encouraging tourism development through the promotion and support of the handicraft industry, the Seafront can become a key contributor to Vanuatu’s economic and cultural prosperity.

2 National Sustainable Development Plan

3 World Travel and Tourism Council (2015) Travel and Tourism economic impact Vanuatu.

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2.2. Climate Change and Disaster Risk Reduction Policy

Climate change and disaster risk reduction will inform the Seafront Management Plan; in particular,

the need to establish a trust fund to underpin financial viability. A contingency fund will resource

both recovery and development activities. Key to this is the recommendation for a disaster recovery

plan and a precinct masterplan. These two plans will provide certainty into the future for

commercial activity and community support.

Vanuatu aims to be a nation whose communities, environment and economy are resilient to the

impacts of climate change and disaster risks4. The climate change and disaster risk reduction policy

cuts across sectors of the economy to achieve a more inclusive business model that engages

multiple stakeholders and builds capacity in the community. This approach allows communities to

respond to and recover from disasters quickly. The policy guides this plan with regards to paying

attention to appropriate disaster recovery measures and the value of good governance. The Seafront

Management Plan emphasises the need for representatives from the government and private sector

to jointly manage the Seafront Precinct.

The climate change and disaster risk reduction policy identifies the role of the private sector in

enhancing disaster risk resilience. It states that “the private sector should ensure its, practices are in

line with environmental standards, climate-proofing principles, building codes and other

government regulation for sustainability”5. The Plan proposes Seafront management authority

known as the Seafront BID to provide leadership in sustainable business development through the

effective management of the Seafront Precinct.

Figure 7 Fatumaru Park is constructed from locally sourced materials and retains local plants.

4 Vanuatu Climate Change and Disaster Risk Reduction Policy

5 Vanuatu Climate Change and Disaster Risk Reduction Policy P.35

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2.3. Trade Policy Framework

The Vanuatu Government’s Trade Policy Framework includes tourism specific recommendations that

identify the need to improve value adding for urban tourism, notably through initiatives of

waterfront regeneration. The Seafront Precinct will achieve this and contribute to Vanuatu’s

commitment to a strategic approach to growth in tourism. Similarly, this plan will address the issues

regarding the market appeal for tourists6, especially cruise ship passengers who may spend a large

portion of their visit time in the Port Via urban centre. However, to continue value adding for urban

tourism, the management of these spaces needs to be adequately resourced and effectively

maintained.

Figure 8 The central pier is designed for visitors to enjoy watching the harbour at work.

6 Vanuatu Strategic Action Plan 2014-2018 p. 33

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2.4. National Land Use Policy

Land use planning in Vanuatu is based on three principles; ownership, equity and sustainable development7. As a public space, the design of the Seafront Precinct reflects and respects these principles. The terms of reference should continue to reflect the public nature of the Seafront while ensuring commercial vendors have certainty to be able to conduct business. Four guiding principles set out the Land Sector Framework; these are instructive as to how the Seafront Precinct should be managed consistent with the Government of Vanuatu development agenda8. These principles are;

Management of land resources will need to comply with broader social and economic

objectives. The Seafront Management Plan identifies opportunities for small scale business

development while encouraging social gathering. The Seafront Precinct can accommodate

complimentary social and economic objectives and should be encouraged.

Stewardship of land resources must guarantee environmental sustainability. This plan

encourages good environmental practices in the management of the precinct. The Seafront

managing authority will be guided by terms of reference that include environmental

sustainability objectives.

Land sector organisations must be relevant, cost effective, efficient and sustainable

Planning and implementation, decision making and monitoring of the land sector activities

must be participatory, transparent and accountable in order to protect the interests and

rights of all stakeholders.

7 2006 National Land Summit Vanuatu

8 2013 National Land Use Policy

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2.4.1. Kastom

This plan ensures that local level land use planning decisions are based on well-documented and comprehensive Kastom guidance and consideration. Decisions affected by Kastom related to this plan include;

The development of physical planning areas and zoning provisions.

Lease creation, lease determination, development of lease conditions, and application of

lease categories.

Municipal and other urban planning and zoning.9

The Seafront Management Plan recognises the need to establish a process of review and

consultation that considers the customary owners of the land upon which the Seafront Precinct and

parks are built. The Ifira Village Land Trustees maintain an interest over the activities on the

seafront. In Vanuatu, Trusts “combine traditional and modern institutions and are designed to meet

modern needs without displacing the traditional values and practices underpinning village

communities. As such the experiences of these village land trusts can make a valuable contribution

to developing ways to manage lands”10 .

This plan acknowledges the interest of the Ifira Trustees in the management of the precincts. The

Seafront managing authority will maintain an open dialogue with the Ifira Trustees through annual

reporting to stakeholders. Opportunities will emerge, through open dialogue to document and

reflect the historical, cultural and customary relationship that Ifira Village enjoys with the land upon

which the precincts are developed. The preparation of a Seafront Masterplan provides the

opportunity to capture important cultural narratives that could be further incorporated into the

visitor experience of these precincts.

2.4.2. Land leases

Land lease processes must take into account national and local aspirations for land use. Through the application of land use planning, this policy seeks to ameliorate the loss of control and unanticipated use of leasehold land. The opportunity exists for the Seafront Precinct to be declared a community space by the Council of Ministers, which is legalised by an order signed by the Minister for Lands and gazetted. This would provide legal authority to devolve responsibility for the management of the Seafront to a managing authority.

2.4.3. Decision making responsibility

The cost of management and the revenue from external sources will vary according to the funding model applied. In order to effectively manage the Seafront Precinct in terms of asset management and routine maintenance, delegations to the Seafront managing authority will need to be explicit and clearly defined. The Seafront management committee will be responsible to for approving delegations and terms of reference for the operation of a Seafront managing authority.

9 Ibid p.7

10 Fingleton, J. et. Al (2016) Village land trusts in Vanuatu, In Volume 2 Case Studies; Reconciling Customary

Ownership and Development. DFAT – Australia.

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Figure 9 The commercial sector on the Seafront is located between the market houses.

2.5. Handicraft Sector Action Plan 2017 The Plan responds to the principles of the Handicraft Sector Action Plan 2017. Using the principles set out, it establishes how the private and public sector can achieve these principles. The private sector can contribute to Vanuatu tourism by:

Investing in tourism products through the sale of Made in Vanuatu handicraft and the provision of tourism services.

Promoting Vanuatu tourism products and services through the effective management of public spaces and supporting business in the Seafront Precinct.

Creating wealth and benefits through providing an attractive venue for tourists and residents to spend time and purchase Made in Vanuatu goods and services.

The public sector can contribute to Vanuatu tourism by creating an enabling environment for sustainable development of the handicraft sector including:

Supporting all stakeholders to engage in decision making through the Seafront management authority.

Passing clear laws and regulations that incentivise good business practice and allow for innovative tourist enterprises to operate.

Supporting Ni-Vanuatu participation through partnering with institutions in providing training and accreditation.

Maintaining a safe and secure environment through properly funded routine maintenance of the Seafront Precinct.

Providing logistic support to implement this plan through the management committee.

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2.6. Vanuatu Strategic Tourism Action Plan 2014-2018. The Vanuatu Strategic Tourism Action Plan (VSTAP) is the most recent guide of the tourism sector in Vanuatu. This Management Plan can address some of the development issues identified in VSTAP; notably the need for the Seafront to support a gender and age equity approach to providing training through accreditation11. While training falls outside the scope of this plan, in order to achieve a successful implementation, the following objectives could be addressed through the implementation;

Supporting financial institutions to encourage and promote good business practice for

Handicraft vendors.

Establishing mentoring networks between stakeholders and potential vendors (including

start-up operations inside and outside of the handicraft market houses) to incentivise Ni-

Vanuatu business enterprises.

Develop a funded adaption and disaster mitigation plan to minimise the economic impact of

known and likely events such as seasonal cyclones.

The VSTAP identifies five key priorities for developing tourism. This plan directly addresses priority three, invest in planning and building infrastructure that will benefit tourism; and priority four, address the expectations of the tourism markets.

2.6.1. Addressing priority three, investing in infrastructure that will benefit

tourism:

The focus on investment in infrastructure in the Seafront has improved the tourist experience and investor confidence. However, ongoing investment in the management of the precincts will be required to realise the economic benefits of the infrastructure investment. The importance of a master plan is emphasised here as the key to long term investor and community confidence.

2.6.2. Addressing priority four, meeting the expectations of the tourism markets:

A key indicator of success for the Seafront Management Plan will be visitor experience. Of particular importance will be the tourists who leave the cruise ships for shore-based activities. Feedback from visitors reporting a positive experience will be achieved by;

Providing a predictable, safe and pleasant transit experience between the Portside and the

Seafront precincts.

Providing a functional, safe, and attractive environment.

Enhancing the visitors’ cultural awareness and experience.

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Vanuatu Strategic Action Plan 2014-2018 p. 20

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To achieve this, the Plan will inform and be informed by a number of other related policies and plans that are currently being developed under VSTAP. Broadly these include;

The Handicraft Made in Vanuatu (MIV) strategy. A successful MIV strategy will provide the opportunity for visitors to browse the market houses and purchase a product that reflects Vanuatu’s commercial and cultural excellence.

Water and Land taxi accreditation scheme. By engaging with accredited Taxi operators, visitors will be transported from the Portside to the Seafront in a safe, friendly and predictable way.

Tourism Ambassador Program. Tour guides will be employed to meet visitors alighting from Taxis will be given a free tour of the precinct and entertained with historical and cultural stories about Ni Vanuatu Kastom.

These initiatives will reduce cruise ship visitor anxiety by providing an informative, interpretive experience and allowing them to spend more time and money in the Seafront markets, other tourism businesses and in restaurants operating around the Seafront.

Figure 10 Woven Pandanus baskets are made by Ni Vanuatu from many of the islands.

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3. Governance

3.1. Collaborative governance of public space Establishing a relationship between the utility value of public spaces to users and the types of

services provided to the community underpins the design of this governance model. In doing so, we

argue that governance of the Seafront Precinct includes the participation of non-state actors, such as

community groups, the private sector and non-government organisations with overlapping networks

of decision making rather than discrete traditional decision making hierarchies led by Government.12

Under pressure to contain management costs for public open space, there is a growing demand for

new forms of governance that don’t rely on consolidated state revenue to fund open space

management. In the case of the Seafront Precinct, the project was funded by foreign aid donors and

Government. Through this arrangement the precinct design has ensured that the space remains

publically accessible with very few restrictions for law abiding citizens. As a result the perception is

that the state is the sole decision making, accountability, and funding entity. Unless mechanisms are

put in place to change the governance arrangements, these precincts will be perceived as the

responsibility of government with little or no private sector input.

Recent research suggests that collaborative governance approaches through devolving the

management of public spaces to non-government organisations is a positive way to preserve public

open space values. However, regulation has not kept pace with the need for specific guidance on

how these spaces can be more collaboratively funded and managed.

Local municipal authorities have not developed the practical approaches needed to overcome the

challenges of funding and managing a range of seemingly competing services provided by public

spaces. Therefore the private sector invariably relies on the state to continue to manage public

space with fewer financial resources and diminishing capacity.

There is a growing recognition of the benefits of private, not for profit organisations in managing

public open spaces. Conservancies and cooperative societies (non-profit organisations that raise

private capital for managing parks and reserves; such as Canberra CBD limited in Australia) are well

established examples. One of the first cooperative societies established in the USA now funds 85% of

all management of Central Park in New York. It should be noted that participation by private

stakeholders in decisions about public spaces are too often promoted under the assumption that

such private sector engagement is always positive and preferred; often without robust evaluation of

the most effective management approach. Therefore, a distributed model of governance with a

broad representation from both government and private interests is the preferred model for this

Plan.

At a local level, decision makers are beginning to develop novel and practical approaches achieving

policy objectives for public space management while retaining amenity values. This requires good

stakeholder engagement to understand the motivations and needs of local citizens. The significance

of harnessing the community held values for open space planning and management helps managers

12

MacKenzie, A. et al (2018) A framework for governance of green space, Landscape Research.

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to understand the way open spaces are used and this, in turn, impacts on how individuals and

communities access and relate to different types of public spaces.

Practically, this requires all stakeholders to address the challenges of funding open space

management. This plan requires that agencies and organisations contributing to the cost of funding,

agree on a set of values to guide their decision making. In order to achieve this, decisions about how

funds are raised and how they are spent should be made by a representative group from both the

government and non-government sector. The value proposition, in its simplest form, is a return on

investment approach. That is, the services provided by the open space are worth the value invested

in maintaining the assets and that the perceived or real return to stakeholders is cost effective.

3.2. International context The design and development of the Seafront Precinct follows a long established pattern of

governments throughout the world showcasing their city through iconic developments associated

with infrastructure improvement13. High value, attractive open space development coupled with a

focussed branding of the national image is a well-established strategy for attracting investors,

businesses and tourists. The business case for such development is compelling in the context of

intense competition for hosting prestige exhibitions, cultural and sporting events designed to

enhance the brand value of Pacific nations. Vanuatu is actively working in the Pacific region to

enhance its reputation and the Seafront Precinct is a key component of the Government’s agenda to

improve business confidence and attract financial capital through tourism. Special events tourism is

a growing sector of the economy. However it is yet to be recognised and promoted as a major

product market. The opportunity exists for Vanuatu to take lessons from the 2017 Pacific Mini

Games and use the Seafront as an important public asset capable of hosting niche events.

Unlike many other similar urban renewal projects in more developed countries, the Seafront

Precinct was substantially financed through aid funding via government and semi-government

bodies. As a result, broad urban design objectives were established in partnership with the

Government. These include millennium development goals related to poverty alleviation and

economic development14. The major donor in this case was the NZ government through the NZ aid

program. As a major donor, NZ was also actively involved in the development of the VSTAP. Data

from recent tourist exit surveys shows that the top three most appealing attributes of Vanuatu is the

local people (47%), activities attractions and entertainment (32%) and the environment (30%),

whereas the least appealing included public services and attractions (25%), rubbish, cleanliness and

care for the environment (16%) and price of goods and services (15%). This data indicates that the

Seafront can cater for the positive attributes and mitigate the negative attributes without resorting

to commercialising and privatising the public space to raise revenue. Therefore objectives of the

VSTAP for the Seafront focus on inclusion accessibility, safety and cleanliness. The overarching

governance arrangements are designed to reflect these objectives.

13

Mcleod, G. (2011) Urban Politics Reconsidered: Growth Machine to Post-democratic City? Urban studies 48(12) 2629-2660 14

Vanuatu –New Zealand Tourism Partnership Agreement (2014) (Ministry of Tourism, Trade, Commerce and Ni-Vanuatu Business and The New Zealand Ministry of Foreign Affairs and Trade)

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3.3. Business Investment District (BID) The proposed mechanism for achieving cross-sector management of the Seafront Precinct is the

formation of the Seafront Business Investment District (Seafront BID), which is a not-for-profit

member organization established under legislation. It provides a mechanism through which

businesses within a defined district provide funding for a defined period to finance services aimed at

the economic enhancement of a defined area. In the case of the Seafront, economic enhancement

would largely focus on increasing tourism activity, local events and business opportunities for Ni-

Vanuatu small businesses.

This Plan proposes that a cooperative society is constituted under the under Part 10 section 53 of

the Cooperative Societies Act. Notionally the cooperative society will be called the Seafront BID. The

cooperative society will consist of stakeholders assessed and levied under the terms of the BID.

Figure 11 Indicative boundary for a Seafront Business Investment District.

23

The principles of a Seafront BID are as follows;

The funding model for the formation and operation of the Seafront BID is a three year

property levy on businesses that are assessed within the BID catchment.

Under legislation, funds raised by the Seafront BID levies must be used in the same area that

is being assessed.

Seafront BID funds must be used only for improvements and services that improve the

public spaces defined in the BID catchment.

BID services do not replace municipal services; rather they are an addition or complement to

the services.

The steps for establishing a Seafront BID is as follows;

A BID catchment is established based on the likely benefit to affected businesses.

Property owners are assessed and levied based on a formula that takes into account

property, turnover, front footage, assessed land and building values.

The BID should be established through popular consensus of those businesses affected.

Special legislation will be presented to Parliament to establish the BID for the calendar years

2019-2022.

Unlike other privately financed public space management projects, the Seafront Precinct will not be

subject to agreements and covenants designed to protect the interests of private funding bodies.

Therefore the risks of privatisation of public space through the undue influence exerted by private

interests are low. However low the risk may be, over time a BID board could exert pressure on

Government to restrict access to the Seafront for certain groups in society. Research has shown the

most pernicious influence of the private sector over time is the control of groups of people in the

access and enjoyment of the space.15 This is most evident in the employment of private security

guards who perform the roles of police and often exceed their legal authority. To address this risk,

law enforcement, public nuisance and illegal behaviour must remain the responsibility of the

Vanuatu Police Force and the Municipal Wardens.

15

Rink, B., & Gamedze, A. (2016) Mobility and the City Improvement District: Frictions in the Human-capital mobile assemblage; 11 (5) 643-661

24

3.4. Decision making To maximize accountability to stakeholders the Seafront BID cooperative society will be required to

elect a board. The Seafront BID board will consist of government representatives, property and

business owners and other groups representing different geographic areas, business types from

within the boundaries of the Seafront BID catchment.

Typically, a ten member board will include five property owners (at least one representing small

property owners), three city representatives (one each designated by the Ministry of Internal Affairs,

and the Ministry of Tourism, Trade, Commerce and Ni-Vanuatu Business, and one designated by

PVMC), a member representing the market house vendors and a member representing transport

and taxi associations. The board is determined by an election of the cooperative society members

(membership is voluntary and open to businesses levied by the BID). The board powers and

delegations will be guided by terms of reference endorsed by the Seafront management committee

during the implementation phase.

3.5. Haos Blong Handikraf and Mahitahi The two new market house buildings replacing the markets destroyed by Cyclone Pam will host 53

handicraft vendors and 5 tourism vendors. Current arrangements for the market houses will result in

a modified governance structure different to the other businesses in the BID. In 2017, a market

manager was appointed by the VSTAP program and the Department of Industry (DoI) to oversee the

relocation of vendors into the new buildings. As part of the practical tasks associated with this

project, vendors have been provided with support to enhance their business skills and financial

literacy. This includes the introduction of commercial leases and trading clauses prescribing Made in

Vanuatu criteria for products sold. A memorandum of understanding between DoI and PVMC has

been proposed to coordinate managing the market houses. The intention of the MOU is to ensure

surplus revenue collected from leases in the market houses will be reinvested in supporting the

development of the handicraft industry supply chains and improving quality assurance. The long

term goal is to ensure a sustainable handicraft industry is supported by profitable vendors retailing

Made in Vanuatu products at the new market houses. While the market houses will not be subject

to the BID levy, the Seafront Management Plan recommends the vendors are represented on the

Seafront BID board.

25

4. Social sustainability The funding for the design and construction of the Seafront Precinct was approved by the Vanuatu

and New Zealand Governments and the EIF on the basis that the benefits for the Vanuatu

community would endure beyond the life of the project through economic development and job

creation. From the inception of the project, the funding bodies expected the Seafront Precinct would

contribute to achieving the following result.

A functional, safe and attractive Seafront precinct in Port Vila facilitates increased tourism arrivals by

sea and air, increased per-capital tourism expenditure from visitors by sea and air, decrease in urban

poverty, job creation for Ni-Vanuatu, and increased resilience to natural disasters and climate change

(EIF 2014)16.

Contributing to Vanuatu’s economy requires the precinct to be both financially and socially

sustainable. Therefore the Plan addresses social sustainability in the following manner.

4.1. A functional, safe and attractive public space for all The design objectives for the Seafront have been successfully realised. As a public space, the open

spaces, playground, stage, Seafront promenade, Feiawa and Fatumaru bay parks are in continual use

by many sectors of the community. Tourists, Ni Vanuatu and residents of all ages enjoy the Seafront

most times of the day and evening. This is a great credit to the design, construction and project

management teams. The Plan recognises the need to ensure these precincts continue to be enjoyed

by all visitors as a place for gathering and social interaction. To ensure the precincts continue to be

accessible over time, this plan proposes the following;

A requirement for the Seafront BID board to adopt a user centred approach to evaluation

and reporting; especially for marginalised groups such as disabled and elderly.

The commissioning of a Seafront Precinct Masterplan by the Seafront BID board to ensure

new projects, public works, events and activities remain inclusive and viable.

Guidance in the Plan for the Seafront BID to aim for inclusion in the BID operational plan,

and a reporting requirement with regards to inclusion in the Seafront BID annual report.

16

EIF Tier 2 project (2014) Support for the regeneration of tourism portside and Seafront projects in Port Vila

26

4.2. Employment for Ni Vanuatu The most effective contribution the Seafront Precinct can make to poverty alleviation in Port Vila will

be to increase opportunities for Ni Vanuatu to gain employment or start their own enterprise. The

objective of increasing employment is linked to the objective of enhancing business opportunity

through the development of a Seafront BID operational plan. Opportunities for employment are

directly related to improving the visitor experience and maximising the potential of the Seafront to

host events and activities throughout the year. This can be achieved by the following initiatives;

Maximising opportunities for market house vendors to sell Made in Vanuatu products

through the partnership with the Department of Industry handicraft program.

Maximising opportunities for Ni-Vanuatu to start businesses through support from the

Seafront BID board and the issuing of temporary permits to trade on the waterfront.

Introducing a Seafront tour guide program for cruise ship passengers.

Developing a calendar of events and activities.

4.3. Improved cruise ship passenger experience in Port Vila Port Vila receives 85% of all cruise ship passenger expenditure in Vanuatu17. Therefore, this plan

acknowledges the important role that cruise ship passengers will play in underpinning the success of

commercial operations on the seafront. The short term dependence on cruise ship passenger

revenue depends on improving the passenger experience while on shore. This presents an

opportunity for the Seafront BID board to partner with the Ministry of Education and Training and

the existing tourism ambassador program to achieve the following;

Develop a better understanding of cruise ship passenger experience in Port Vila.

Improve the experience for passengers in transit to and from the Portside to the Seafront.

Ensure a predictable, culturally enriching, and safe experience upon arrival at the Seafront

from the Portside.

Engagement with tour operators in supporting a good tourist experience.

Engagement with water and land taxis to achieve a good transport experience.

17

DFAT, Carnival (2014) Assessment of the Economic Impact of Cruise Ships to Vanuatu Report p.2

27

4.4. Enhanced resilience to natural disaster and climate change Vanuatu’s vulnerability to natural disasters and climate change are reflected in the operational risks

for the precincts. The dependence on funding from tourism highlights the specific need for this plan

to address the vulnerabilities from a social as well as financial sustainability perspective. The

Seafront Management Plan seeks to minimise the risks associated with natural disasters and climate

change through the following measures.

A disaster recovery plan for a range of disaster scenarios should be prepared by the Seafront

BID board to ensure the impact on tourist visitation is minimised.

The support of the Department of Industry handicrafts program in developing the Made in

Vanuatu project will improve the resilience of product supply chains from producers in outer

islands.

The Seafront Masterplan should include a resilience component to anticipate and overcome

future risks such as loss of access through the loss of amenity values, poor planning or

funding short falls.

The Seafront BID in its operational plan should address the dependence on cruise ship

passenger per-capita expenditure and broaden the revenue base through other revenue

streams, such as events and community activities.

Figure 12 Crowds gathered in Feiawa Park for the official opening in September 2017.

28

4.5. Community engagement The governance principle underpinning the future success of the Seafront precinct depends on

active participation by stakeholders in decision making through a distributed governance model. The

Seafront BID board will, in its operation, maintain a strong public presence and make available

annual reports and financial statements. The Plan incorporates community engagement in the

management process. Community engagement underpins the following principles;

Maintain trust and respect between the diverse range of interest groups regardless of race,

creed, gender, age or ability.

The role of the government in maintaining order. While it is practical to engage private

security firms to undertake certain protective duties, the policing of public space should

remain the responsibility of government. In particular, a community policing program will be

necessary for keeping channels of communication open for all citizens to accept

responsibility for and be willing to report illegal activity.

The continuous presence of Seafront BID staff (BID and PVMC staff, tourist ambassadors and

tour guides) is important for continuing community support for the BID. The employed staff

will play a special role reflecting the values of the organisation and reinforce the message

about ensuring a good experience for tourists and locals.

All staff should see themselves and ambassadors for the Seafront and Vanuatu tourism.

Ambassador training and ongoing education is essential to achieve this goal.

The stakeholders will expect accountable and transparent governance. The Seafront BID

board, as representatives of government, the private sector and the broader community,

should operate to the highest standards of due diligence and accountability.

Figure 13 Fatumaru Park includes local beaches for harbour swimming.

29

5. Financial Sustainability To achieve long term financial sustainability, the Seafront Precinct will need to generate income to

fund projects and offset liabilities. To achieve financial sustainability, the following costs will need to

be met;

Recurrent funding is required for the following activities;

Routine maintenance and asset management, including pollution control.

Post event clean-up and other activities related to one off events such as festivals,

community events and parades.

Evaluation and monitoring and reporting of assets for periodic maintenance to maximise the

useful life of assets.

Contingent funding should also be in place to address long term vulnerabilities. Such as;

Necessary infrastructure changes as the user needs are better understood through

evaluation. E.g. provision of more effective waste management, additional shade etc.

Rapid response to medium and high cyclone impacts (not covered by NDMO plans) to repair

and make safe the Seafront public spaces and to minimise disruption to trading.

End of life asset replacement of structures such as playground equipment, turf, barrier

fence.

In addition, revenue will be required to fund the following;

Employ a Seafront BID executive officer to manage activities and events, temporary leases,

and other revenue raising activities; monitoring and evaluation of programs and preparation

of annual reports.

Employ a Seafront events manager to attract appropriate regional and international events.

Employ Seafront tour guides to manage passenger transfers and provide a guided tour of the

Seafront to educate tourists about Vanuatu and in doing so, enhance the visitor experience.

Fund one off projects to further develop the precinct. e.g. A cultural interpretive signage

program, additional shade structures, Seafront mooring infrastructure.

30

5.1. Revenue The following sources of revenue have been identified. These figures form the budgets for the

maintenance and operation of the Seafront Precinct for the period 2018-2022. Two scenarios are

presented – a low-revenue scenario and a high-revenue scenario. The low revenue scenario assumes

that some of the revenue sources will not become viable by 2020.

5.1.1. PVMC PVMC currently generates revenue from a number of commercial leases on the Seafront Precinct18.

In addition, a plan is in place to collect revenue for the use of the public toilets. The revenue

collected from these sources will fund the contribution of PVMC to the management of the

precincts. The budget anticipates the PVMC contribution (in kind through the provision of services)

will decrease over time as some operations are taken over by the Seafront BID board.

5.1.2. BID Levy The BID levy is an annual payment by businesses that have benefitted directly or indirectly from the

construction and management of the new Seafront Precinct developments. Appendix C provides a

stakeholder analysis of the typical businesses that will be captured by the BID levy. It is intended that

the levy contributes to the financial management of the Seafront Precinct as follows.

Establishing and running the Seafront BID cooperative society and board.

Establish a trust fund for capital and contingent capital liabilities.

Employment of BID staff.

It is estimated that the property levy for most business will range from 250vt to 400vt per day

depending on the size of business and the assessment model adopted. After three years it is

envisaged that the levy will be reduced to zero as other revenue streams come online. In this

preferred scenario, the BID Levy can therefore be seen as the start-up capital needed to get the BID

up and running. Any remaining capital will be either reinvested into improvements for the Seafront,

or will be put into the trust to be used at future points in time – e.g. asset repair, post-cyclone relief.

In both the low-revenue and the high-revenue scenarios, there is a significant fall in revenue once

the BID Levy is no longer being collected. One of the key functions of the Executive Manager will be

to prepare the BID for this, to ensure that the Seafront BID is able to continue to function properly

without this revenue.

18 PVMC (2017) Seafront and Fatumaru bay Park maintenance and operational plan.

31

5.1.3. Department of Industry Handicraft Program Revenue from the market houses leases will contribute to the DOI revenue to employ the market

house manager. The financial success of the market houses will largely depend on successful supply

chain development, training, and marketing of Made in Vanuatu (MIV) products. An MOU between

the DOI and the PVMC will support the National Industry Policy aspiration to developing the MIV

products to fund these activities. Therefore, it is expected that revenues from vendor leases for the

first three years will be used to develop the profitability of the handicraft industry. This will, over

time, flow through to higher rents and a greater portion of rental income returning to the precinct.

5.1.4. Vanuatu Strategic Tourism Action Plan Funding from VSTAP to implement this Plan is not currently allocated. However, in order to

successfully implement the Seafront Management Plan, a one off contribution in is required in 2018

to fund a position to undertake the following tasks;

Drafting of relevant MOU’s between government and non-government organisations.

Undertake stakeholder consultation to enact Seafront BID levy.

Preparation of documentation to form the Seafront BID cooperative society.

Table 1 Projected Revenue 2018-2022. Low Revenue Scenario

Table 2 Projected Revenue 2018-2022. High Revenue Scenario

Revenue 2018 2019 2020 2021 2022

PVMC 4,000,000 4,800,000 3,000,000 2,250,000 2,250,000

BID levy - 8,395,000 8,395,000 8,395,000 -

Seafront BID - 1,000,000 2,000,000 3,000,000 4,000,000

Department of

Industry (DOI) 1,600,000 1,800,000 1,800,000 2,000,000 2,000,000

VSTAP 2,400,000

Total 8,000,000 15,995,000 15,195,000 15,645,000 8,250,000

Revenue 2018 2019 2020 2021 2022

PVMC 4,000,000 4,800,000 3,000,000 2,250,000 2,250,000

BID levy - 8,395,000 8,395,000 8,395,000 -

Seafront BID - 3,500,000 7,000,000 10,500,000 14,000,000

Department of

Industry (DOI) 1,600,000 1,800,000 1,800,000 2,000,000 2,000,000

VSTAP 2,400,000

Total 8,000,000 18,495,000 20,195,000 23,145,000 18,250,000

32

5.2. Seafront BID revenue Upon establishment of the BID board, additional revenue will be generated from a range of sources,

the funding targets for the Seafront BID will, over time, replace the revenue from the BID levy.

Potential sources of income for the Seafront BID include the following.

5.2.1. Cruise ship passenger vouchers A simple method of revenue generation would capture a small return from passengers using a value

proposition approach. This plan proposes a voucher system that equals or exceeds the value of the

services provided. Using a voucher system, the passenger receives a service in return for the

payment.

A safe and predictable transfer from Portside to the Seafront precinct. In partnership with the land

transport ambassador program, the Seafront BID board can sell transfer vouchers on board, or at the

tourist information centre. These vouchers can only be redeemed by water and land transport

operators (buses) registered with the ambassador program and agree to strict codes of conduct and

behaviour.

A welcome to Vanuatu guided tour of the Seafront precinct. Upon arrival at the Seafront, passengers

will be greeted by a tour guide who will provide a short tour of the precinct, talking about Kastom

and other culturally enriching information to educate the visitors about the land they have been

welcomed to visit for the day. The tour will end at the market houses for passengers to buy Made in

Vanuatu Products.

A refreshing beverage from one of a number of participating cafes or restaurants. After shopping in

the handicraft markets, the visitors are then welcome to visit any one of the participating cafes or

restaurants to redeem a voucher for a refreshing drink.

A safe and predicable transfer back to the ship. Whether the Seafront or another tourism venture is

the visitor’s final destination before returning to the ship, the return voucher will guarantee that the

tourist will return to the ship having enjoyed a predictable safe, clean and enjoyable daytrip to the

Seafront and Port Vila. Appendix D Describes a typical passenger voucher revenue model.

5.2.2. Sporting and other cultural events The Seafront Precinct is currently used for a range of activities and events for the enjoyment of

locals and visitors alike. With appropriate marketing and promotion of the Seafront Precinct as an

event space, event managers can potentially attract major regional sporting and cultural events to

Port Vila. The venue is ideal for beach volley ball, swimming, sailing, triathlon and running and

coastal rowing events. Similarly many community events, awareness days and cultural activities

should be hosted.

5.2.3. Temporary Planning Permits Where necessary and appropriate, permits should be issued to temporarily lease public space to

accommodate sporting and other cultural events. In most cases, a bond should be collected to cover

incidental costs for repair to public space where necessary. Where events are commercial in nature,

the precinct managers should collect a commercial rent for the temporary use of the space.

Appendix F describes a sample lease agreement for temporary use of space.

33

5.3. Liabilities This section identifies the necessary budgets needed to achieve the Plan. These liabilities align with

the costs identified above. All revenue and cost projections below are estimates only. There has

been no formal agreement secured from any agency as to the level of funding which they will

provide.

5.3.1. Recurrent Maintenance liabilities Maintenance of the precincts will be required on an on-going basis. PVMC will be primarily responsible for employment of staff to undertake routine maintenance including waste disposal. The liability for asset replacement should be raised through other identified revenue sources. This plan adopts the BECA estimate for maintenance and asset protection costs of the lifetime of the Seafront precinct. The parameters for this estimate include:

Maritime infrastructure maintenance usually average 0.5 to 1% of the capital cost per year.

Most maritime infrastructure is built to robust standards, there is minimal maintenance

required in the early years barring repairs to accidental damage.

When the annual cost of maintaining the structure becomes too high, it will be more

economical to rebuild the structure.

The landside facilities comprise public amenities, paved areas, buildings, park furniture,

playground equipment and planting are subject to higher wear and tear.

To maximise the design lifespan of these items in a coastal environment, regular

maintenance on a periodic basis is required.

This maintenance will generally comprise of cleaning, tightening of fixings and taking

corrective action at any early signs of deterioration.

Some rebuild and replacement may be required toward the end of the design life.

Associated with the regular maintenance and the general cleanliness of the parks and public

spaces needs to occur frequently to ensure the spaces are welcoming and attractive for both

local and tourists.

The BECA estimate for asset maintenance including salaries for maintenance staff is four million Vatu per year over thirty years and adjusted for inflation over time.

34

5.3.2. Other recurrent salaries Staff salaries are required for the following positions (these are positions in addition to the staff

employed by PVMC to provide municipal services);

Technical adviser to implement the Seafront Management Plan including establishing the

BID (Short term to the end of 2018).

A market house manager to manage the implementation of the market house management

plan.

Executive officer to manage the BID organisation and oversee and implement the Seafront

Master Plan (Long term from 2019).

Event manager and tour guide coordinator (From 2020).

Tour guides for Seafront tours (From 2020).

The number of staff employed will depend on the success of the BID in raising capital. In the ‘high-

revenue’ scenario, all of these staff members will be employed. In the ‘low-revenue’ scenario, only

the technical adviser, the market house manager, and the BID Executive Officer will be employed.

5.4. Capital liabilities Capital liabilities are one off expenditures that are required for the proper management and

development of the Seafront Precinct. As both precincts come into operation, minor works may be

required to meet operational needs for maintenance staff and vendors in the market houses, along

with commercial operators. A few examples of capital expenditure identified in consultation with

stakeholders during the preparation of this Plan include but are not limited to;

Proper vermin proof putrid waste storage facilities.

Toilet doors and fencing.

Additional jetties, mooring and other infrastructure for boats.

Wheel chair accessible ramp into the bay from Fatumaru bay park.

Storage facilities and lighting for the Petanque courts.

Additional furniture for market house vendors.

Additional lighting for security.

Additional shading ( trees or shade structures).

35

5.4.1. A Seafront Masterplan In order to avoid ad-hoc development of such additional outlets and infrastructure, a precinct

Masterplan should be commissioned by the Seafront BID board. A Masterplan, unlike a detailed

design plan, is an agreed vision for the development of the precincts over a defined period (up to 20

years is ideal). A masterplan should;

Be aspirational and provide a graphically convincing and clear program for design and

implementation of new projects and infrastructure.

Take into account likely implementation and delivery capacity of the organisation.

Be fully integrated into the land use planning system, while allowing new uses and market

opportunities to exploit the full potential of the precincts.

Be flexible, providing the basis for negotiation and new ideas.

Be a product of a participatory process, providing all the stakeholders with the means of

expressing their needs and priorities.19

5.4.2. Contingent Capital liabilities Contingent capital is a liability that converts into equity when there is a crisis or when certain

triggers are met. Revenue, held in trust is necessary to undertake recovery activity and capital works

as necessary. The amount of revenue required to be held in trust will be largely a decision of the

Seafront BID board. For the purposes of this Plan, the liability, held in trust will assume a trigger,

resulting from a natural disaster, to access the funds will occur once per year for low level events

and once per ten years for severe events.

All capital liabilities are based on the following assumptions;

2018 No additional revenue beyond recurrent maintenance has been identified. A trust

will be established at the beginning of 2019.

2019 Preparation of Masterplan and minor works are procured. A contingent liabilities

trust is established.

2020-2022 Capital works identified and prioritised in the Masterplan are procured.

19 Urban Task Force, Towards an Urban Renaissance, ODPM 1999

36

5.5. Total liabilities By adding the recurrent liabilities including salaries, on costs and capital liabilities we can arrive at a

budget for the management of the Seafront Precinct. These figures are estimates and dependent on

the capacity of partner organisations to raise the revenue.

Table 3 Total liabilities 2018-2022. Low Revenue Scenario

Table 4 Total liabilities 2018-2022. High Revenue Scenario

2018 2019 2020 2021 2022

4,000,000 4,040,000 4,080,400 4,121,204 4,162,416

Recurrent Salaries

Market House Manager 1,600,000 1,600,000 1,600,000 1,600,000 1,600,000

Environmental Planner 2,400,000 - - - -

BID Executive Officer - 2,000,000 2,050,000 2,100,000 2,150,000

BID Event Manager - - 1,500,000 1,550,000

Tour Guides (5) - -

Total recurrent liabilities 8,000,000 7,640,000 9,230,400 9,371,204 7,912,416

Capital liabilities - 8,355,000 6,164,600 6,273,796 337,584

Total liabilities 8,000,000 15,995,000 15,395,000 15,645,000 8,250,000

Recurrent maintenance (BECA 2014)

2018 2019 2020 2021 2022

4,000,000 4,040,000 4,080,400 4,121,204 4,162,416

Recurrent Salaries

Market House Manager 1,600,000 1,600,000 1,600,000 1,600,000 1,600,000

Environmental Planner 2,400,000 - - - -

BID Executive Officer - 2,000,000 2,050,000 2,100,000 2,150,000

BID Event Manager - - 1,500,000 1,550,000 1,600,000

Tour Guides (5) - - 5,000,000 5,100,000 5,200,000

Total recurrent liabilities 8,000,000 7,640,000 14,230,400 14,471,204 14,712,416

Capital liabilities - 10,855,000 5,964,600 8,673,796 3,537,584

Total liabilities 8,000,000 18,495,000 20,195,000 23,145,000 18,250,000

Recurrent maintenance (BECA 2014)

37

6. Policy implications

6.1. Regulatory implications This Seafront Management Plan requires minimal legislative actions to devolve decision making to

the Seafront BID. The major legislative instrument required affects the Physical Planning Act

(Vanuatu). The declaration of a special precinct (known as the Seafront Business Investment District)

is required. The legislative steps and determinations for the initiation and operation of the Seafront

BID are set out in Appendix G. The Minister for Internal Affairs is responsible for the Physical

Planning Act.

6.2. Institutional Arrangements Institutional arrangements take into consideration the stages of the Plans evolution.

6.2.1. Stage 1: Initiation December 2017-December 2018 PVMC provides municipal services to the Seafront. PVMC will have primary responsibility for

all maintenance of the Seafront until such time that the Seafront BID board comes into

being.

The Seafront management committee manages the drafting, consultation and endorsement

of the Plan. In addition this committee will continue to oversee the management of the

market houses under the terms of the MOU between PVMC and the DOI.

The DOI will be responsible for managing the market houses under the terms of the MOU

until November 2020 after which time the management of the market houses will be

renegotiated with PVMC.

Figure 14 The furniture and fixtures are made of durable materials that will last many years.

38

6.2.2. Stage 2: Operation January 2019-January 2022

PVMC will continue to provide Municipal services.

The Seafront management committee will divest operational management of the Seafront

to the Seafront BID board.

The Seafront BID prepares a Master Plan (2020-2050).

The Seafront BID will report to the Seafront management committee and provide copies of

annual reports to the Ministry of Internal Affairs and PVMC as well as the Seafront

management committee.

The Seafront management committee will commission an independent review of the

Seafront BID.

6.2.3. Stage 3: Evaluation and Consolidation Post January 2022

PVMC will continue to provide Municipal services.

The Seafront management committee will, after receiving advice from the independent

review of the Seafront BID, recommend future actions. These can be;

i. Recommend to the Ministry of Internal Affairs that the Seafront BID cooperative

continues in a similar manner.

ii. Recommend to the Ministry of Internal Affairs that the special provisions under the

physical planning act are amended and a new cooperative society, responsible for

managing the Seafront, is established.

iii. Recommend to the Ministry of Internal Affairs that the BID is not renewed and

management responsibility is returned to PVMC.

39

7. Recommendations The successful implementation of the Seafront Management Plan is contingent on the

implementation of the following recommendations. They have taken into account the feedback from

key stakeholders in government and submissions from individuals. See Appendix A, the consultation

report on the draft plan.

Figure 15 Local timbers were used on the central pier, designed for water sports.

40

1: Introduce appropriate regulations

The Ministry of Internal Affairs introduces appropriate regulation to form a

special precinct known as the Seafront Business Investment District.

The Seafront Management Plan requires minimal regulatory changes to the Physical Planning Act

(Vanuatu). The opportunity presented by this plan is to introduce new approaches to public space

management in Vanuatu. This recommendation will allow for the community to take more

ownership of the challenges in providing the social and environmental values to citizens, while

presenting opportunities for appropriate growth and development. This recommendation is

consistent with the Ministry’s goal of updating regulation to reflect the physical planning and

management realities in Port Vila.

Figure 16 The Seafront will be a place for future generations to enjoy and take pride in.

41

2: Oversee the implementation

The Seafront Precinct Management Committee expands their terms of

reference to oversee the implementation of the Seafront BID.

The completion of the construction phase of the Seafront precinct represents a significant milestone

for Vanuatu. Therefore the role of a reformed committee presents a significant challenge and

opportunity to lead the implementation of the Plan’s key objectives. Such a reformed committee,

with representation from a number of Ministries, can provide the necessary leadership, influence

and direction to ensure the change process is well managed. The Seafront Management Plan

presents a management and governance structure that is new to Vanuatu and for this reason, strong

leadership is critical to the successful implementation of the Plan.

Figure 17 The success of the Market houses will be key to the success of the Seafront.

42

3: Appoint a technical adviser

The Seafront Precinct Management Committee investigates the appointment

of a technical advisor to lead the implementation of the Plan.

The Plan seeks to minimise policy and institutional impacts on Government, particularly in the longer

term. However, this plan includes key actions and decisions that will need to be drafted and

presented to the Seafront Precinct Management Committee for endorsement and action.

Furthermore, engagement with the private sector is a necessary element to the Plan. The successful

implementation of the Plan relies on the majority of stakeholders assessed in the Seafront BID

comprehending value of contributing through the levy and embracing the opportunity to be part of

the decision making process. This will require a sound advocacy and communication plan followed

by skilled consultation from a technical adviser during the implementation phase. The cost of

funding a position to lead the implementation will be realised though the successful launch and

operation of the Seafront BID in 2019. The position has significant potential to build institutional

capacity for public space management.

Figure 18 The boulevard provides Seafront access for water based tourist businesses.

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4: Form a cooperative society

The Seafront Precinct Management Committee invites government and

private stakeholders within the boundaries of the Seafront BID to form a

cooperative society under Part 10 section 53 of the Cooperative Societies Act.

The formation of the Seafront cooperative society is critical to the successful implementation of this

plan. This milestone represents the point at which a new governance structure can be implemented

and ensure the long term financial viability of the Plan. Once the Seafront cooperative is formed, a

Seafront BID Board can be appointed to collect and manage the revenue from the levy. Subsequent

professional appointments can be made to secure long term revenue and manage the precincts.

The prospects of long term sustainability will be greatly improved at this point precisely because the

management and decision making responsibility will have devolved from centralised government to

a representative group of stakeholders. At this point, decisions and actions will occur where the

most effective approach and the greatest impact can be deployed.

Figure 19 A cooperative society should include representatives from all stakeholder groups.

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5: Prepare contingency plans

The Seafront Precinct Management Committee determines the terms of

reference for a Seafront BID board including the preparation of relevant

contingency plans.

The Seafront Precinct Management Committee, in facilitating the establishment of the Seafront BID,

will play an essential role in establishing the appropriate operational constraints. The risks of undue

private sector influence in managing public space is small in this model, however they need to be

managed through the establishment of the terms of reference for operation. Of equal importance is

the preparation of a disaster recovery plan and a Seafront Masterplan. These plans will be most

successful if community consultation is well managed and the outcomes are linked to funding

generated through the Seafront BID. Such plans provide investor confidence and certainty to the

wider community about the precincts’ future direction. Therefore it is essential that these plans are

commissioned as soon as the Seafront BID board is formed.

Figure 20 Mahitahi is named in recognition of the New Zealand Government’s contribution.

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8. Appendices

Appendix A- Consultation report

Consultation for the preparation of this plan involved a multi stage process. The terms of reference

for the project were established through the VTIP management committee. Feedback from the

committee determined that a range of governance options should be investigated to identify the

model that was likely to succeed in the long term. Four governance options were provided and

explored. Information was gathered through interviews with key stakeholders from government and

industry. This was undertaken in conjunction with a situation analysis of relevant plans and policies.

Attention was paid to objectives pertaining to governance and management of public space in

Vanuatu.

The following analysis was undertaken based on initial interviews. The recurring theme from these

individual consultations was the lack of resources and skills within government and the desire for a

more collaborative approach between the government and private sector to achieve effective public

space management.

1. Governance analysis (Appendix B) identified through a SWOC analysis, the model most likely

to succeed in the long term. This model was then presented to the VTIP management

committee. An issues paper was then prepared and individual presentations were made to

the Minister of Lands, the Director General of Internal Affairs, the Acting Director of

Tourism, the Acting Director of Industry, the Planning officer, the Acting Town Clerk and the

Finance officer of PVMC for feedback.

2. Stakeholder analysis (Appendix B) identified through a SWOC analysis, the level of

commitment and contribution from the private sector in financing and collaboratively

governing the management of the precincts. This model was presented to stakeholders in

the following manner. Individual consultations were undertaken with a representative

range of shop keepers and tour operators in the precinct. A workshop was held for the

handicraft sector and market house implementation. A presentation was made to the

Vanuatu tourism operator’s association.

3. Regular meetings with the VSTAP team leader and the Trade Development Policy Officer

who was secretariat on the VTIP management committee.

4. Stakeholder analysis (Appendix C) identified the likely users of the space based on tourism

data and field observations. This helped to establish the likely activities and operations that

could fund some of the operations on the Seafront.

Presentations on the structure and content of the Plan were presented to the VTIP Management

Committee in October and to the National Trade Development Committee in November. The Deputy

Prime Minister and Minister of Tourism, Commerce, Trades and Ni Vanuatu Business received a

46

briefing on the 31st of October and endorsed the Plan for stakeholder consultation on 31st October

2017.

The Draft Management Plan consultation commenced on the 31st October and finished on the 4th

December. Newspaper articles and notices were published in the Daily Post and online. Direct emails

were sent to over 100 businesses and government departments and an information brochure was

distributed to shop keepers and businesses likely to be affected by the project in the first week of

November. Five email submissions and two formal submissions were received. The following themes

emerged from the consultation;

1. Qualified support for the idea of a levy on businesses support improvements to the precinct.

Stakeholders were open to the suggestion of a levy to provide capital for managing the

Seafront as long as it was fairly levied and included all operators who benefitted

commercially from the precinct.

A private enterprise expressed their opinion in the following manner. “We are not against a levy of

some kind to assist managing the area provided that any funds raised are used in a totally

transparent manner and all incoming funds accounted for properly. Levies should be the same for all,

and not just be applied to some stakeholders in the precinct”.

2. Concern about the lack of opportunity for water based operators to participate in

commercial activity. Operators expressed concern about the lack of infrastructure for

mooring boats of all sizes. There is a feeling that there is a lack of clarity about access rights

over privately owned pontoons and the seawall for watercraft of all sizes from small water

taxis (banana boats) to larger craft requiring bollards to safely come alongside to pick up and

drop off passengers.

An operator expressed their concern on this topic. “…the provision of basic infrastructure to allow

vessels of various sizes to safely come alongside to board passengers appears to have been

overlooked”.

An submission identified the opportunities that a considered berthing plan and associated infrastructure to do to support the goals of the management plan “Port-Vila’s Seafront would then turn into a cultural, international and multipurpose meeting place. Young students would come to the boat for a course on marine biology, older fellows observing this living piece of Austronesian culture, chatting with the crew on how it reminds them of their grandfather’s outrigger canoes”.

3. There is a willingness to work with PVMC in partnership with the private sector to manage

the day to day operation of the precincts. The stakeholders recognise the important role

that PVMC plays in providing municipal services to the precinct, but wish to ensure proper

processes are in place.

A tour operator explained in this manner. “We welcome working as a team with the municipality to

promote Port Vila as the number one South Pacific tourist destination”. Another operator expressed

their concern about how approvals will be given for operators to use the precinct. ”…there are many

opportunities to improve the performance of PVMC – including the delivery of their services on the

waterfront”.

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4. Focussing on the tourist experience is an important and tangible collective goal for all

stakeholders. Formal submissions and stakeholder interviews expressed the importance on

the need to focus on the user experience. Maintaining and enhancing accessibility of the

public spaces is key to enhancing the tourist experience.

A stakeholder referred to the issue in this way “Improving the experience of tourists concerns us all,

we need to act in a manner that will attract the same people back again”.

Similarly an operator specifically mentioned the issue of local access in expressing the following

concern. “The recent total banning of local children swimming from the Seafront area was

unnecessary and heavy handed and that a more enlightened solution should be sought”.

Figure 21 The Seafront provides a range of recreation opportunities.

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Appendix B- Analysis of recommended Management Options

VTIP Seafront precinct management committee contracts a Facility Manager

The Committee is appointed or elected by the members of the organisation. Usually this happens when the members get together at the Annual General Meeting.

The Committee is accountable to the members of the organisation. Each year at the Annual General Meeting it gives an annual report to the members on the work of the organisation during the past year.

Important rules about the Committee will be found in the constitution of the organisation. This written document should explain how many Committee members there should be, how they are appointed, how long they serve on the Committee for and so on.

Table 5 SWOC Analysis governance option 1

Strengths Opportunities

Quick to establish.

Can potentially function with a small number of stakeholders

Requires no regulation or consultation to establish

Can have a defined time frame for establishment and dissolution.

Could be an interim measure to commence management while a more sustainable model is established.

Weaknesses Challenges

Voluntary in nature and time intensive to operate

Lack of formal governance structure risks a breakdown in reporting responsibilities.

Lacks a financial structure to manage funds or establish a trust.

Difficult to reflect the variety of government and business interests in management decisions

Limited capacity to raise capital from the private sector.

Reliant on recurrent funding from contributing organisations with different funding structures.

Limited powers. Common pool resources and liabilities are difficult to define.

Could potentially disenfranchise some stakeholder who are affected by decisions but do not feel as though they have been adequately consulted

Facility manager could have difficulty managing the competing priorities of organisations represented by committee membership. Long term viability of committee could affect the strategic and long term planning for the precinct.

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A Body Corporate employs the Facility Manager – Focusses on managing an area.

A body corporate is a legal entity created upon the registration of a Plan for special purpose use of property. A Body Corporate

is responsible for the management, repair and administration of the common property including insurance.

is governed by State Legislation which provides the legal framework within which owner occupiers and residents can enjoy the use of common property together, be it garden areas, driveways, hallways, pool, gym etc.

A professional Body Corporate Manager plays a vital role in an increasingly complex environment by ensuring body corporate are compliant with their legal responsibilities, while efficiently protecting and maintaining the owners’ assets.

Table 6 SWOC analysis governance option 2

Strengths Opportunities

Provides a structure for including a wider range of private organisations.

Can be set up to manage defined common areas under management.

Can manage existing funds in a trust arrangement. Can be quick to set up depending on how many stakeholders are involved.

Defining the land under management may require a legislative process.

Could engage a relatively large catchment of interested stakeholders through engaging with member organisations. Could provide a simple structure to hold funds in trust needed in the event of a disaster or other short term funding need.

Weaknesses Challenges

Voluntary in nature and time intensive to operate.

Decision making power likely to rest with private organisations with private interests overtaking public interests. Potential inefficiencies in duplicating management responsibility.

Limited capacity to raise funds.

Limited catchment of members, technically the body corporate will only include private interests physically located on the Seafront.

Could potentially disenfranchise some stakeholder who are affected by decisions but do not feel as though they have been adequately consulted

Funding agreements would need to be established Limits of liabilities would need to be established to reduce financial risks.

Provisions for winding up the body corporate need to be clearly established and legally enforceable.

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A Joint Venture Company is formed as a Management Company – Focuses on managing a venture.

A Joint Venture (JV) is a cooperative enterprises entered into by a number of entities for the

purpose of a specific project or other business activity.

Often the joint venture creates a separate business entity, to which the owners contribute

assets, have equity, and agree on how this entity may be managed. The new entity may be a

corporation, limited liability company, or partnership.

In other cases, the individual entities retain their individuality and they operate under a joint

venture agreement. In any case, the parties in the JV share in the management, profits, and

losses, according to a joint venture agreement (contract).

Joint ventures are often entered into for a single purpose - a production or research activity.

But they may also be formed for a continuing purpose.

Table 7 SWOC analysis governance option 3

Strengths Opportunities

Greater scope to define the purpose of the entity (joint venture) and its goals.

More scope and flexible than a body corporate or committee to raise capital.

More inclusive of stakeholders who are not proximally close to the sea front.

Not naturally predicated toward government or private sector interests. Greater flexibility in establishing financial sustainability targets over the long term.

Can have a defined time frame for establishment and dissolution.

The goals for the venture can be established at an early stage and drive the financial planning and governance arrangements.

As a stakeholder venture company, the company board can leverage capital to further develop the precinct consistent with the company goals.

The company can potentially use its financial resources to engage with other sectors of the economy and community through funding activities that reach a broader cross section of the community.

Weaknesses Challenges

May require a more complex legislative agenda to establish and run.

Larger joint venture partners with more capital investment can potentially dictate management agenda without adequate protections for the public.

Can potentially become a profit making entity disproportionally benefitting venture partners without adequate protections. A powerful well organised joint venture could exceed their powers without protections and transparent reporting processes.

Establishing the right balance between managing private and public interests will take time and careful stakeholder management in the establishment phase. Adequately managing the interests of public sector partners will require clear governance guidelines.

Determining financial sustainability based on a not-for-profit model will require clear rules for raising and managing capital. Limits of liabilities would need to be established to reduce financial risks.

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A combination of these to manage separate areas of the facility, particularly the market houses for retailing Made in Vanuatu handicrafts products. A cooperative society is created under the cooperative societies act. A co-operative society is an autonomous association of persons united voluntarily to meet their common economic, social and cultural needs and aspirations through a jointly-owned and democratically-controlled enterprise. Members of the society vote to appoint a board to manage the Seafront precinct. The board may choose to appoint sub-committees to manage various aspects of the Seafront. The precinct is identified and levied under the powers of the Section 15 of the Physical Planning Act. A long term goal for the precinct may involve the creation of a Property and Business Investment District Regulation. Table 8 SWOC analysis governance option 4

Strengths Opportunities

Provides a formal, representative and legally constituted body to manage a broad range of stakeholder interests. Allows for provisions to hold in trust funds to be managed on behalf of both public and private stakeholders. Does not need legislation to form the cooperative or levy businesses. (May need some regulation to vary existing legal instruments).

Provides the powers and provisions for a motivated group of stakeholder to raise capital for the purposes of managing and developing the precincts. Allows for a publicly accountable and transparent public/private partnership to function for the purposes of improving the tourist economy without undermining public access or rights to enjoy the precinct.

Weaknesses Challenges

May require regulatory instruments to form a special precinct. Long term success may require special legislation. Interim management measures need to be in place prior to establishment. Requires a majority support of stakeholders to accept a levy for special improvement. Government must be willing to devolve decision making, raising capital and program management to a broader group of stakeholders including private sector businesses.

Plan implementation requires ongoing commitment, investment for up to a year to establish structures and processes. Communication between different stakeholders needs to accept, in good faith, that such arrangements require trust between state and private sector.

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Appendix C- Stakeholder analysis:

Issue- The Seafront precinct and parks are important venues for a large and diverse range of

businesses in Port Vila. Their stake in the operation of these precincts affects their ability to conduct

businesses to a varying degree. Similarly the ongoing success of the waterfront as a destination for

customers (both local and tourists) determines how successful certain operations will be whereas,

for other businesses are less dependent but maintain an interest.

Business environment-

Micro operations – small vendors with few employers or sole traders, cash operators, low levels of

regulation, highly competitive and benefit significantly from tourists spending small amounts of cash

for goods and services, low levels of formal business training, low levels of industry organisation (

although improving) highly adaptive to conditions, highly dependent on the precincts to conduct

business. E.g. Water taxis buses, market vendors, and street vendors. Exclusively Ni-Vanuatu

operators.

Table 9 Stakeholder analysis micro-operators

Strengths Opportunities

Flexible, adaptive, first contact for many tourists (face of Vanuatu). Very high levels of knowledge about local social, cultural and micro-economic conditions.

Potential to coordinate to improve working conditions and business certainty, potential to improve patronage by coordinating between operations in different sectors, (transport, craft sales, and other vendors), potentially strong and coherent political voice.

Weaknesses Challenges

Susceptible to disruptions (weather, road works, and drop in patronage), lack of collective voice in policy decisions, low levels of coordination can be counter-productive to business activity.

Lack of coordination and consultation risks these vendors being left out of decision making and having regulations imposed on them without their input. Lack of coordinated and rapid recovery post disaster (cyclone, earthquake) unduly impacts on business. Lack of self- regulation in the operation of services undermines their success and the success of the precinct.

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Meso- operations- Small to medium enterprises with up to 30 employees; maintain long term leases

on premises adjacent to or in close proximity to the Seafront precinct. Business types are diverse

mixed with a greater variety of customers and markets for operation. Over all less dependent on

daily patronage from tourists, but form a key market for operators. E.g. Restaurants, bars, retail

fashion clothes, retail electrical, retail sporting goods, hair dressers, real estate agents (franchises),

currency exchange, ICT, Kava Bars.

Table 10 Stakeholder analysis small and medium enterprises

Strengths Opportunities

Diverse, provide a range of essential services for locals and tourists, many stable long term tenants, some collective organisation around chamber of commerce etc. Strong personal connections to key decision makers. More collaborative than competitive. Very high levels of knowledge about local conditions.

Great potential to engage some of the more motivated individuals in governance and decision making. High motivation to establish good governance structures to benefit the whole community. Strong opportunity for mentoring and supporting the growth of other businesses in the precinct.

Weaknesses Challenges

Susceptible to disruptions (weather, road works, drop in patronage), highly varied levels of interest- engagement with the precinct, feel the burden of making up funding shortfalls, suspicious of government expenditure of private finances.

Different levels of engagement and interest in the Seafront will mean that tailoring investment to match the interest and motivation of owners to engage will be an ongoing challenge. Seafront not seen as a priority concern for some meso–operations.

Macro operations- Medium to large operations with 30+ employees. Multi nationals in financial

services, telecommunications, supermarkets and government departments. Business types are

limited. High visibility in the community major presence in terms of branding, large customer base

and large number of employees. Major stakeholders in the Vanuatu economy. E.g. PVMC, Banks,

Government shop front, resorts, cruise ship companies, airlines, insurance companies, Au Bon

Marche supermarket, telecommunication companies.

Table 11 Stakeholder analysis large commercial operations

Strengths Opportunities

High level of visibility within the community, significant contributors to charities, clubs and community organisations. High capacity to promote and support economic development within the community. Less dependent on variable customer markets. Highly organised industry organisations, and non-government bodies. High levels of corporate skills.

Great opportunity to influence communities through support of initiatives, high capacity to support economic growth. High level access to capital and other financial resources. High level access to decision makers.

Weaknesses Challenges

Large corporate structures, decision makers often remote from street level business needs. Inflexible, and less responsive to change. Remote from micro –operators.

Inter-agency and business coordination. Appropriate delegation of staff to engage and work with Seafront precinct. Seafront not seen as a priority concern for some macro –operations.

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User Environment

The social environment largely refers to the types of users who enjoy the Seafront throughout the

week. While no comprehensive surveys have been undertaken, observations can accurately identify

most categories of users. Broadly speaking there are two broad categories, tourists and residents,

with different needs and expectations with regards to use and experience of the Seafront.

Tourists-

This SWOC analysis identifies the issues relating to the visitor experience for users of the Seafront.

The user experience is important to understand in order to determine management needs that

increase the likelihood of users spending time (and money) at the Seafront. Tourists can be broadly

classified by the means by which they arrive in Port Vila. These are cruise ships, air travel and private

tender (yacht or launch).

CRUISE SHIP PASSENGERS

The cruise industry is a major economic driver for Port Vila and Vanuatu generating up to 3,250

equivalent full time jobs. In Port Vila alone, passengers spend over 8000vt per day totalling 85% of

all cruise ship passenger expenditure in Vanuatu20. Despite this, evidence suggests that both

expenditure and visitation since 2014 has declined. External economic factors largely contribute to

this however, internal factors such as passenger experience also contribute directly passenger choice

of Port Vila, onshore visitation (alighting from the ship while in port) and on shore expenditure.

Figure ## shows that more than two-thirds of passengers are unlikely or very unlikely to return to

Port Vila on a trip in the next three years. It should be a goal of the management plan that the

number of returning passengers increases.

The management of the Seafront should consider the cruise ship passenger experience. Research

has shown that the marketing of tours by cruising companies to passengers focusses on the idealised

image of a tropical tour experience rather than the actual experience. However, the feedback on

their experience is strongly influenced by other passengers’ experiences more so than their own

perception of a visit to shore21. This means that passengers reporting positive experiences to other

passengers will significantly influence their own perception of a visit and the same applies for a

negative report. Therefore, the extent to which the experience for passengers, alighting from the

ship, arriving at the Seafront and transferring to other formal or informal tourist activities is essential

to improving passenger feedback. The Seafront Precinct has been designed to improve that

experience. The onus is now on the management plan to identify how positive experiences of the

transitions between the precincts (by water or road) and the opportunities for positive experiences

can be deployed.

20

Ausaid, International Finance Corporation, Carnival Cruises (2014) Assessment of the Economic Impact of Cruise Ships to Vanuatu. 21

Hosany, S., & Martin, D. (2012). Self-image congruence in consumer behavior. Journal of Business Research, 65(5), 685-691.

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Table 12 Passengers indicating that their likelihood of returning to Ports in Vanuatu (2014) 22

Cruise ship passengers arrive at the Portside passenger terminal. The ships will be in port for a day

giving passengers up to eight hours to experience Port Vila. The first impression of the cruise ship

passenger is likely to have a major impact on their overall impression of Port Vila and by inference

Vanuatu as a nation.

Table 13 User analysis Cruise Passengers

STRENGTHS OPPORTUNITIES

Entry to Port Vila is via a single egress point providing great opportunity to regulate and manage the visitor experience. The cruise ship companies are motivated to improve the user experience and likely to cooperate in coordinating messaging, advertising and providing information to passengers.

Improvement of the passenger first impression, including provision of information via cruise companies, reduces uncertainty around movement between the cruise ship, the Seafront and other tourism destinations in Port Vila and surrounds. Increased opportunities to enrich the passenger cultural experience in passive and active ways on the Seafront.

WEAKNESSES CHALLENGES

As one day visitors, passengers have limited opportunities to gain cultural enrichment and learning about Vanuatu. Weather plays a significant role in spending patterns of passengers. Passengers are less likely to research or prepare themselves for the cultural difference, thereby expecting an urban user experience closer to their home port.

Reputation- overcoming the current reputation of the user experience in Port Vila, reducing anxiety related to that experience, regulating the movement of passengers between the port side and Seafront.

22

Ausaid, International Finance Corporation, Carnival Cruises (2014) Assessment of the Economic Impact of Cruise Ships to Vanuatu. P.12

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AIR ARRIVAL TOURISTS

Between 2006 and 2012 tourism arrivals by air have grown at around 8% per year. Whilst annual fluctuations have been evident, 2012 had a strong positive trend, achieving 15% growth, with a total estimated record arrivals of over 100 000 passengers. Arrivals by air in 2016 are 9% above 2015, but 13% below the peak year of 2013. These growth levels are substantially higher than the global and regional average of around 4%. The vast majority of visitors are on holiday (82%), although a few are on business or conferences (10%) and visiting friends and relatives (7%)23. With regards to the air arrival tourists, their use patterns are likely to be different to the cruise ship passengers. The average stay for a tourist arriving by air is 8 days. Their primary desitnation is logically their accomodation and they are more likely to travel furhter afield than Port Vila. Unlike the cruise ship passenger, the air arrival tourist has greater options for travelling to the Seafront and therefore their experience is less dependant on their trip to the precinct from other places such as their accomodation. Not withstanding, once at the Seafront, the user experince for the air arrival tourist faces similar challenges and opportunities. Table 14 User analysis Air arrival tourists

STRENGTHS OPPORTUNITIES

Air travel tourists are in Vanuatu for an average of 8 days. Likely to visit the Seafront more than once during their stay in Port Vila.

Opportunities exist to encourage repeat visits to the Seafront by air travel tourists if they can perceive a greater variety of opportunities for dining, entertainment or cultural enrichment.

WEAKNESSES CHALLENGES

Air travel tourists are likely to travel further than Port Vila and spending across a greater variety of activities and services.

Encouraging air travel passengers to purchase locally made products that meet biosecurity requirements.

23

VSTAP p 26

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PRIVATE BOAT ARRIVALS

Tourist arrivals by private boats represent a small number of total visits to the Seafront precinct.

However as a group of tourists they should be considered as part of the management plan. At the

time of writing this report, no data on private vessel arrivals exists. A 2013 marine industry survey

for Fiji is instructive in estimating the value of private vessels to the Port Vila economy. The average

spend per yacht was equivalent about 14.7 million vatu.24. These numbers suggest that there is

considerable scope to explore the provision of infrastructure for visiting yachts such as a Marina;

however, given the design of the Seafront and the small size of the harbour, it would be likely that a

feasibility study into accommodating cruising yachts may recommend a different location away from

the Seafront precinct.

Table 15 User analysis Yacht arrival tourists

Strengths Opportunities

High income visitors who spend over a month on average in port. High disposable incomes of the tourists will tolerate high berthing fees and are likely to spend on high value products and services. Visiting yachts have in the past provided support, supplies and cash after disaster events.

Private sector investment in marine infrastructure could be encouraged through good planning and consultation with stakeholders and the industry.

Weaknesses Challenges

Port Vila currently does not have any infrastructure to support the number of vessels in port as estimated by the Fiji study. The vessels are very large and could potentially restrict movement and access adjacent to and around the Seafront if too many arrivals are not regulated.

Space and design constraints currently prevent large numbers of yachts from mooring at the Seafront.

24

The data is reported in the e magazine Yacht Charter Fleet https://www.yachtcharterfleet.com of a survey undertaken in 2013, however the study was not available or able to be verified.

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RESIDENTS

As a group, residents will make up a significant majority of users of the Seafront Precinct. Unlike

tourists, classifying resident user groups for the purposes of this plan is problematic because of the

lack of detailed qualitative data on different demographic groups in Port Vila. Similarly the Seafront

precinct has not been studied to understand user behaviour. Notwithstanding, it is important to

paint a picture of how the different types of residents may use and enjoy the Seafront precinct and

what implications this may have for management. To do this, the report uses a personality design

method to construct hypothetical individuals, couples and groups that are likely to want to enjoy the

Seafront precinct.

Designing personality begins by mapping possibilities and interactions between characters in part of

the precinct using a story format. The plan describes each character’s personality by generating a set

of intrinsic, mood, relationship, and other personality attributes. Once the modeling is complete,

inductive assesssments can be made using SWOC format to determine user needs and opporutnities.

It is important to note that these personalities represent users that are not already covered by the

two previous categories of stakeholders (organisations and tourists).

Ian (29) and Helen (27) are a young Ni-Vanuatu couple who like to go to the Seafront on a Friday

afternoon with their three children Roy (aged 3), Elizabeth (aged 7) and Lily (aged 10). Ian works full

time and Helen works part time. They live with Ian’s parents in Pango Village and are saving to build

their own house. They take the trip down to the Seafront by bus once a week and have dinner at the

markets as a treat. They don’t want to spend too much money during their visit as most of their

savings are going towards the new house.

Table 16 User analysis local resident scenario 1

Strengths Opportunities

The precinct provides a variety of free activities for young families with children of different ages. The open nature of the Seafront means that children can be allowed to wander around without parents losing sight of them. The precinct is generally very accessible.

There is great potential to host regular community events and educational opportunities for families. New temporary food vendor stalls may be able to provide a greater variety of low cost food and beverages. Theare good opportunities for community groups to engage with residents, for example the petanque club could host lessons.

Weaknesses Challenges

The Seafront lacks shade in large sections of Feiawa park closest to the food markets (Fatumaru park is well shaded). There are few opportunities for large formal gatherings to sit in shaded areas limiting opportunities for day time activities in the summer.

The popularity of the precinct will place increasing wear and use pressure on the surfaces, especially the grassed areas. The relative openness of the promenade increases potential for accidents and collisions between children on different sized bikes, boards and scooters.

Francios (16) and Rio (15) are friends who attend Malapoa college as boarders. They are both from

Melakula and only travel home twice per year. The boys are hard working and doing well at school.

They are both keen BMX bike riders and are members of an informal group set up on social media;

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sharing stories and pictures of themselves on their BMX bikes. Recently they organised a round

island ride to raise awareness about road safety in villages.

Table 17 User analysis resident scenario 2

Strengths Opportunities

The precinct provides an open clean surface for young adults to socialise and promenade. The promenade has proven to be a very successful space for young people to gather during the day and early evening.

There is great potential to develop good relationships between young adults and the police by engaging in positive conversations about rsponsible behaviour and the importance of leadership with their own cohort. Builiding good relationship with this group could lead to improved surveillance and reporting by youth of illegal behaviour.

Weaknesses Challenges

Due to lack of awreness and education, a few young adults ride irresponsibly along the promenade and risk causing injury to other patrons. There is a perception that this group are responsible for vandalism and littering, risking the access for all young adults to the precinct at certain times of the day and evening.

The perception of young people as trouble makers may alientate them from the precinct and, as they grow up and have their own families, form a negative view about the precinct. A few poolry behaved individuals could jeopardise the enjoyment of the space for other young people, unless continuous engagement and discussion happens.

Melita (19) is a part time shop assistant who lives with her parents in Teouma. Melita goes to the

markets to buy food twice a week for her family and likes to meet her girl friends at Fatumaru bay

park for lunch after shopping. Melita travels the the precinct by bus and spends about 2-3 hours in

the precinct before heading home.

Table 18 User analysis resident scenario 3

Strengths Opportunities

The precinct is a safe open space for single young women to enjoy during the day time. The foot path between the market and the park is very accessible and at over 1 kilometre provides for some positive exercise which is good for mental and physical health.

There are significant opportunities for the precinct to arrange positive activities for all demographic groups such as young women. Small scale community events can be encouraged to help individuals develop contact, friendships and positive relationships with people of similar backgrounds and interests.

Weaknesses Challenges

There may be a perception that the precinct is not safe for young women after dark. Despite the open inclusive design of the precinct, a number of threats related to illegal behaviour present a problem for some groups in the community.

A clear strategy for maintaining the safety of all citizens through targeted community policing and community surveillance is necessary to prevent sections of the precinct from becoming uninviting to some sectors of the community.

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Appendix D- Vouchers for Cruise ship passengers The four transactions are costed as follows- it is intended that @200vt per passenger is returned to

the precinct.

Table 19 Sample cruise ship voucher proposal

The anticipated revenue of 9 million Vatu in 2020 (45 000vouchers at 200vt profit) is based on the

following assumptions;

In 2013, approximately 237 000 passengers visited Port Vila. Over 90% of passengers went ashore

and approximately 90% of those passengers spend money. On average, 1000vt was spent per

passenger on transport and 490vt was spent on food and beverages25. This model assumes there will

be 250,000 visitors in 2020, and that 20% of passengers leaving the ship will purchase a voucher.

Whilst these numbers are optimistic, this is purposefully done so to feed into the high-revenue

scenario, which is designed to showcase the most optimistic scenario. No revenue from the cruise

ship voucher system is included in the low-revenue scenario.

25

DFAT, Carnival (2014) Assessment of the Economic Impact of Cruise Ships to Vanuatu Report.

Voucher

value at point

of sale

Description Passengers

ServicePassenger Benefit

Condition for

vendor

Additional

revenueOther benefit Cost to VTIP

1700vt

[@$20AUD/N

ZD]

Transport

The Passengers

are transported

to Seafront from

Portside

Taxis provide a

clean safe and

predictable

transport service.

Taxis are

accredited and

meet codes of

practice and

conduct

Taxis pay annual

fee for

accreditation

Reimbursement

to taxi of

@500vt per

passenger

Orientation

The Passengers

are met at the

seafront by a

tourism

ambassador who

welcomes them

and provides an

orientation

Passengers feel

safe and relaxed,

provided with

information about

how to spend time

in Port Vila during

their stay.

Ambassadors are

trained and

accredited

Passengers are

directed to

handicraft

markets

Payment of

salaries for

tourist

ambassador

@5vt per

passenger

Beverage

Passengers can

redeem the

voucher for a

drink

The passenger feel

confident that they

can enjoy safe food

and drink at a

participating

establishment.

The participating

establishments are

members of the

BID coopertive

society.

Participating

establishments pay

an annual fee for

BID membership

Participating

establishments

can sell other

goods to the

Passengers.

Payment to

establishment

for drink

@400vt

Return Transport

The Passengers

are transported

to Portside from

anywhere in Port

Vila.

Taxis provide a

clean safe and

predictable

transport service.

Taxis are

accredited and

meet codes of

practice and

conduct

Taxis pay annual

fee for

accreditation

Reimbursement

to taxi of

@500vt per

passenger

1700vt

1405vt

approx 95vt

appox 200vt

Cost per voucher to VTIP

Other costs per voucher*

Balance per voucher as revenue for

VTIP

* program management, voucher print and distribution.

Value of voucher

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Appendix E- Proposed work plan for implementation of the

Plan The following work plan outlines the milestone required to successfully implement the plan and the

role a relevant employee would need to undertake in 2018.

Table 20 Project term of reference for Plan implementation 2018

Plan implementation Milestone Interested Parties TA role Agency role

PVMC adopts interim management of

precinct for 12 months.DOI and PVMC to sign MOU

VSTAP to prepare final MOU &

lease for Market houses

Submission to the Council of Ministers

with recommendations for relevant

legislation. The creation of a BID for

2019-2021. Creation of a special levy to

fund the BID.

DOIA To prepare submission to CoM.

MOIA to draft declaration

of special precinct and

petition of relevant

ministers

Petition of BID stakeholdersSeafront Management Committee to

petition stakeholders

VSTAP to undertake stakeholder

consultation and BID petition

Preparation of agreement to create

BID.

Minister signs order to legalise

agreement

MOIA to manage the

passage of agreement

through political process

Incorporation of BID companySeafront Management Committee to

support BID to incorporate

VSTAP to prepare

documentation for BID

cooperative society.

Nomination and election of BID board

from membership (levied businesses)MOIA to conduct election.

MOIA to prepare

documents for and conduct

of BID election

MOU between PVMC, BID and Lands

Seafront Management Committee to

prepare MOU between PVMC, BID

and MOIA. VSTAP to prepare MOU

Appointment of BID board Executive

officer.BID appoints EO

MOIA to hand over

authority to BID board.

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Appendix F- Temporary Permit Application This SAMPLE lease is provided for the appropriate authority to consider. This draft includes clauses

that, after initial consultation with relevant people, are necessary for the proper management of the

temporary leases at the Seafront Precinct. The relevant authority is encouraged to seek legal advice

before signing the final document.

This sample contract for temporary activity includes the following.

The temporary activity Terms of Use

Schedule 1 Definition of temporary activity

Schedule 2 Permit fees.

Schedule 3 The Permit

The temporary activity TERMS of use

The Approving authority

1.1 The Approving authority is (government department)

1.2 The Approving authority office is (physical address)

1.3 The Approving authority contact email address is (email)

1.4 The Approving authority contact phone contact is (phone)

Applicant

2.1 The Applicant is (name of entity i.e. individual, business or company name)

2.2 The Applicant residence is (PO Box or physical address)

2.3 The Applicant contact is (phone and/or email)

Period of Activity

4.1 The period of activity is stated in the permit.

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4.2 An option to renew for a further 1 year period at end of the period for recurring activity may

be offered to applicants at the end of the approval period by the approving authority.

The Area for temporary activity

5. The area for temporary activity will be accurately described by the applicants in the

application and will be approved by the approving authority.

Permit Fees

6. The permit fee is payable two weeks in advance of the single activity or at monthly intervals

in advance recurring activities. This applies to the following activities (1, 2, 3, 7, 8, and 9). (refer to

fee schedule for permit prices).

6.2 The permit fees shall only be paid by:

a) Direct payment to the Approving authority’s bank account number xxxxx at XXXXX

Bank, Port Vila, or

b) Bank cheque paid at the Approving authority’s office

Payment of Bond

7. The Applicant will pay a security bond of 50% of the permit fee for single use, or one

month’s fee for recurring activities. This applies to the following activities (1, 2, 3, 7, 8, and

9)

7.1 The Applicant will pay a fixed a security bond for community activities. This applies to the

following activities (4, 5, 6, and 10).

7.2 The Applicant will make the security bond payment by:

a) Direct payment to the Approving authority’s bank account number xxxxx at XXXXX

Bank, Port Vila.

b) Bank cheque paid at the Approving authority’s office

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7.3 A failure to pay the security bond by the Applicant, prior to the commencement of activities

is a basis for the Approving authority to terminate the permit.

7.4 The Approving authority will place the bond payment in a bank deposit trust account

(whether or not containing other money) on which a reasonable rate of interest is payable.

The Approving authority will provide the Applicant with a receipt for this bond. The

Approving authority will repay the deposit to the Applicant with accrued interest once the

Applicant has vacated the premises at the end of the Term (however it ends), but less

deductions properly made by the Approving authority to cover any unpaid fees and the

actual or anticipated cost of remedying any breaches of the Applicant’s Obligations under

this agreement.

Permitted Activities

8. The permitted activities are as stated in schedule 1. No approval will be given for activities

that do not comply with the permitted activity approved in this permit.

8.1 The Approving authority may amend schedule 1 from time to time after consultation with the

relevant authorities and the affected Applicants. Any amendment to schedule 1 will be provided by

personal notice to the Applicants after consultation. The notice will be headed “Amendment to

Schedule 1: Definitions of permitted activities”

8.2 The Applicants will be given a minimum of 2 months to comply with an amendment to

schedule 1 or longer time as agreed by the Approving authority or Applicants.

8.3 If the Approving authority amends schedule 1 in a manner that may affect the ability of the

Applicants to conduct their activity, the Applicants may terminate the permit within one month of

receiving a notice of amendment to schedule 1 without penalty.

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Schedule 1- Definitions of permitted activities

1. Temporary commercial outlet* (single activity) is a commercial (generating income for profit

or income) business operated from a relocatable or dismountable structure of a design approved by

the approving authority. The applicant may conduct the activity for no more than four consecutive

days in a calendar month.

(E.g. a bottled drink vendor may set up a temporary stand during an annual sporting event held on

the waterfront for four days)

*Single activity Vendors who trade less than 2000vt in goods per day are exempt.

2. Temporary commercial outlet (recurring activity) is a commercial business (generating

income for profit or income) operated from a relocatable or dismountable structure of a design

approved by the approving authority. The recurring activity may not exceed 12 months and must be

removed off the precinct to a suitable location each day. (E.g. a take away food van on a trailer may

set up a food outlet in an approved location on cruise ship days)

3. Other commercial activity (single or recurring use) any other commercial activity not covered

by the terms in 1 or 2. (E.g. a fitness instructor may want to run exercise classes during week days on

the waterfront for profit or income)

4. Community activity (single activity) is a single activity not for profit or income. The applicant

may conduct the activity for no more than four consecutive days in a calendar month.

(E.g. a church group may want to host an annual Christmas carols singing celebration in the park

each year)

5. Community activity (recurring activity) is a recurring activity not for profit or income. The

recurring activity may exceed 12 months. After each activity, all materials associated with the

activity must be removed off the precinct.

(E.g. a local swimming club may wish to host a monthly swimming event at the main wharf)

6. Organized meeting (single activity) is a single meeting not restricted to the public from

attending. (E.g. A community organization such as the Vanuatu Society for Disabled people may hold

an open meeting inviting the community along to raise awareness and provide information)

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7. Temporary mooring (single activity) is the berthing of a watercraft alongside the seawall

(excluding craft mooring on registered jetties). The single activity may not exceed four consecutive

days in a calendar month. (E.g. A yacht or visiting sea craft may wish to invite school children on a

school excursion to tour the boat)

8. Temporary mooring (recurring activity) is the berthing of a watercraft alongside the seawall

(excluding craft mooring on registered jetties). The recurring activity may not exceed 12 months and

must be removed off the precinct to a suitable location each day.

(E.g. A sea craft may wish to conduct short sailing tours of the harbor on cruise ship days)

9. Signage or other graphic material (recurring activity) is a sign a relocatable or dismountable

structure of a design approved by the approving authority. The recurring activity may not exceed 12

months and must be removed off the precinct to a suitable location each day.

(E.g. a permanent commercial activity may wish to install an advertising board in front of their

business)

10. Other community activity (single or recurring activity) is any other community activity not

covered by the above categories. Approval is subject to approving authority granting special

permission and under exceptional circumstances.

(E.g. a non-government organization may want to erect a banner during a special awareness week,

world Tuna day).

Schedule 2 Fees for Permits.

Table 21 Sample fee structure for temporary works

Permitted Activity Permit Fee Bond

Temporary commercial outlet

(single activity)

1000vt/day for small

3000vt/day for large

50% of permit fee

Temporary commercial outlet

(recurring activity)

5000vt/day

or

25000vt/week

whichever is greatest

100 000vt

Other commercial activity (single

or recurring use)

1000vt/day for small

3000vt/day for large

100 000vt

Community activity (single activity) N/A 5000vt

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Community activity (recurring

activity)

N/A 5000vt

Organized meeting (single activity) N/A 5000vt

Temporary mooring (single

activity)

2000vt/day 5000vt

Temporary mooring (recurring

activity)

2000vt/day

or

10000vt/week

whichever is greatest

100 000vt

Signage or other graphic material

(recurring activity)

N/A 5000vt

Other community activity (single

or recurring activity)

N/A 5000vt

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Schedule 3 Permit Temporary work or activity for the use of the Port Vila Seafront and Feiawa and

Fatumaru bay Parks.

Table 22 Sample temporary works application

Conditions of use for each application category are set out in appendix A. Application categories

include:

1. Temporary commercial outlet (single activity)

2. Temporary commercial outlet ( recurring activity)

3. Community activity (single single)

4. Community activity (recurring activity)

5. Other commercial activity (single use only)

6. Organised meeting (single activity)

7. Temporary mooring (single activity)

8. Temporary mooring (recurring activity)

9. Signage or other graphic material (recurring activity)

10. Other activity (single or recurring activity)

Checklist and Payment

Ensure you have the following information prior to lodgment of application

A Locality Plan which identifies the site and the areas you intend to use for your activity.

Where applicable existing site photos showing the site of the proposed outlet/activity. Additional photographic material to describe the works or similar activity.

A written description of the activity/works proposed and/or plans or drawings describing the works.

Where applicable authorisation from the land owner/lessee or land custodian to lodge the application adjacent to or on their leased land (where the activity is held in land not under a current lease, consent must be sought from PVMC).

A list of names of the neighbouring businesses that you contacted to notify of your intent to undertake the activity/works.

Where applicable a schedule for the activity (a running sheet) or a description of how and what time of day you intend to set up and dismantle the temporary commercial outlet.

Applicant name

Organisation (if different to the name)

Contact phone

Contact email

Date of application submission

Application period (max 12 months)

Application category*

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Payments

Recurring* Payment required#

Exempt^

Payment for permit fee

Payment of bond ( equivalent to the permit value)

Total

*if a payment is required for a recurring activity, identify the monthly fee to be paid in advance

#if the activity is commercial in nature a, permit fee is charged. If the event is a community activity

no permit fee is charged.

^ Payment of bond is required for all activities.

Office Use:

yes No (reason)

Documents correct

Notifications completed

Fees paid

Approved by___________________________________________

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Appendix G- Guidelines determining the establishment of the

Seafront BID.

The Ministry of Internal Affairs, before adopting a resolution establishing a BID district,

1. Delegates the Management Committee to make recommendations concerning the levying of

properties.

2. Authorizes the Management Committee to propose a BID plan after holding consultations

with stakeholders on the proposed modification to the current land use Plan for Port Vila.

3. Prohibits the proposing of the BID boundaries to include any territory that will not, in its

judgment, benefit by the improvement or activity. Additions of territory to the proposed BID

boundaries unless notice has been provided to the owners of the property proposed to be

added to the district.

4. Upon the submission of a written report endorsed by the Management Committee,

endorsed by at least half the property owners in the proposed BID, the Ministry may initiate

proceedings to form a district.

5. The report to property owners shall include a summary of the BID Management plan. That

summary shall include all of the following:

(i) A map showing the boundaries of the district.

(ii) Information specifying that the complete BID management plan can be

obtained from the specified officer at the Ministry.

(iii) Information specifying that the complete BID management plan shall be

furnished upon request.

6. The BID Management plan shall contain a brief description of the proposed activities and

planned improvements, the amount of the proposed levy, and a description of the exterior

boundaries of the proposed district. The descriptions do not need to be detailed and shall be

sufficient if they enable an owner to generally identify the nature and extent of the

improvements and activities and the location and extent of the proposed district.

7. Reporting on the consultations regarding the adoption of the BID district will include the

following

i. The name, date of adoption, period of assessment, and title of the

resolution of intention.

ii. The time and place where the public hearing was held concerning the

establishment of the district.

iii. A determination regarding any protests received.

iv. A statement that the properties in the district established by the resolution

shall be subject to any amendments proposed in subsequent plans.

v. A statement that the improvements and activities to be provided in the

district will be funded by the levy of the assessments.

vi. The revenue from the levy of assessments within a district shall not be used

to provide improvements or activities outside the district or for any purpose

other than the purposes specified in the resolution of intention as described

in the BID management plan.

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vii. A finding that the property within the business and improvement area will

be benefited by the improvements and activities funded by the assessments

proposed to be levied.

8. The BID advisory board shall prepare a report for each fiscal year, except the first year, for

which assessments are to be levied and collected to pay the costs of the improvements and

activities described in the report. The advisory board’s first report shall be due after the first

year of operation of the district. The report may propose changes, including, but not limited

to, the boundaries of the property and business improvement district or any benefit zones

within the district, the basis and method of levying the assessments. The report shall be filed

with the PVMC town clerk and director general of the Ministry of Internal Affairs and shall

refer to the property and business improvement district by name, specify the fiscal year to

which the report applies, and, with respect to that fiscal year, shall contain all of the

following information:

i. Any proposed changes in the boundaries of the property and business

improvement district or in any benefit zones within the district.

ii. The improvements and activities to be provided for that fiscal year.

iii. An estimate of the cost of providing the improvements and the activities for

that fiscal year.

iv. The method and basis of levying the assessment in sufficient detail to allow

each real property owner to estimate the amount of the assessment to be

levied against his or her property for that fiscal year.

v. The amount of any surplus or deficit revenues to be carried over from a

previous fiscal year.

vi. The amount of revenue to be made from sources other than assessments

levied pursuant to this part.

9. Ministry of Internal Affairs may approve the report as filed by the BID advisory board or may

modify any particular contained in the report and approve it as modified.

10. If the Ministry of Internal Affairs finds there has been misappropriation of funds,

malfeasance, or a violation of law in connection with the management of the district, it shall

notice a hearing on disestablishment.

11. Upon the disestablishment of the BID district, any remaining revenues derived from the levy

of assessments, or any revenues derived from the sale of assets acquired with the revenues,

shall be refunded to the owners of the property then located and operating within the

district in which assessments were levied by applying the same method and basis that was

used to calculate the assessments levied in the fiscal year in which the district is

disestablished.

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Appendix H- References

Bergeron, J., Paquette, S., & Poullaouec-Gonidec, P. (2014). Uncovering landscape values and micro-geographies of meanings with the go-along method. Landscape and Urban Planning, 122, 108-121. doi:10.1016/j.landurbplan.2013.11.009

Brown, G., de Bie, K., & Weber, D. (2015). Identifying public land stakeholder perspectives for implementing place-based land management. Landscape and Urban Planning, 139, 1-15.

Butler, A. (2016). Dynamics of integrating landscape values in landscape character assessment: the hidden dominance of the objective outsider. Landscape Research, 1-14. doi:10.1080/01426397.2015.1135315

Dennis, M., & James, P. (2016). Site-specific factors in the production of local urban ecosystem services: A case study of community-managed green space. Ecosystem Services, 17, 208-216. doi:http://dx.doi.org/10.1016/j.ecoser.2016.01.003

Ives, C. D., & Kelly, A. H. (2015). The coexistence of amenity and biodiversity in urban landscapes. Landscape Research, 1-15. doi:10.1080/01426397.2015.1081161

Krasny, M., & Tidball, K. (2015). Civic Ecology: Adaptation and Transformation from the Ground Up. Cambridge: MIT Press.

MacKenzie, A. (2017) Planning for the redevelopment after a fire event. International Journal of Disaster Resilience in the Built Environment ,8 (4), pp.344-356. doi.org/10.1108/IJDRBE-03-2016-0008.

MacKenzie,A. (2018) A framework for the governance of public green spaces in cities.Landscape Research.

Roe, M. (2013). Landscape and Participation In P. Howard, I. Thompson, & E. Waterton (Eds.), The Routledge Companion to Landscape Studies. New York: Routledge.

Roe, M., & Mell, I. (2013). Negotiating value and priorities: evaluating the demands of green infrastructure development. Journal of Environmental Planning and Management 56(5), 650-667.

Sandercock, L. (2005). The democratization of planning: Elusive or illusory? . Planning Theory and Practice, 6(4), 32-56.

Tonga, C., Feagin, R., Lua, J., Zhang, X., Zhu, X., Wang, W., & He, W. (2007). Ecosystem service values and restoration in the urban Sanyang wetland of Wenzhou, China. Ecological Engineer, 29, 249-258.

Young, R., & McPherson, E. (2013). Governing metropolitan green infrastructure in the United States. Landscape and Urban Planning, 109, 199-223.

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