There are two things about this government that make it so ineffective.
One the government is illegal, which means that investors and the international community are wary of any dealings with it.
And secondly, this government is incompetent. They're wrecking the sugar industry because they just don't understand what needs to be done to fix the problems. If they did understand, they'd put acceptance of the ED aid money at the top of their priorities.
Bainimarama probably thinks civil servants are incompetent if they tell him they need the EU money to make the changes needed for sugar to survive.