Understanding Caribbean Walkable Urban Heritage PARAMARIBO, SURINAME
Final Report Submitted To: Organization of American States Department of Sustainable Development 1889 F St., NW, 7th Floor Washington, DC 20006, USA Final Report Submitted By: Caribbean Network for Urban and Land Management (CNULM/blueSpace), University of the West Indies Jeffrey Soule, FAICP (US/ICOMOS) Gregory Scruggs (Columbia University) FINAL REPORT – May 19, 2014
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
1
Contents I. Preface ......................................................................................................................................... 3 1.0 Overview of Project .................................................................................................................. 4 2.0 Overview of Historic Urban Landscapes .................................................................................. 5 3.0. Understanding Caribbean Walkable Urban Heritage in the city of Paramaribo, Suriname .... 8 3.1 Background and Overview of Paramaribo, Suriname .......................................................... 8 3.2. Paramaribo’s Built Environment Quality for Pedestrians and Cyclists ............................. 10 3.3. Paramaribo’s Management Plan ........................................................................................ 14 3.4. Existing Literature ............................................................................................................. 17 3.5 Current Preservation Policies .............................................................................................. 18 3.6 National Programs to Support Cultural Heritage ................................................................ 18 3.7 Adherence to Sustainable Development Principles ............................................................ 19 3.8 Local Economic Development Existing Practices and Potential ........................................ 20 3.9 Local Cultural Development Existing Practices and Potential ........................................... 20 3.10 Integration into Surrounding Land Uses and Settlement Patterns .................................... 21 3.11 Best Practice: Stichting Stadsherstel Paramaribo ............................................................. 22 4.0 Tools and Techniques ............................................................................................................. 24 4.1 Planning Framework and Expertise .................................................................................... 24 4.2 Capital Improvement Plan (CIP) ........................................................................................ 24 4.3 Business Improvement Districts (BIDs) ............................................................................. 24 4.4 Guidelines for Historic Preservation Organizations ........................................................... 25 4.5 University Support Programs and Projects ......................................................................... 25 4.6 Local Events and Promotion Techniques to Build Support ................................................ 26 4.7 Training Programs for Skilled Building Craftspeople ........................................................ 26 4.8 Financial Incentives and Disincentives ............................................................................... 27 4.9 Code and Planning Enforcement ........................................................................................ 27 4.10 Public Education Tools and Techniques ........................................................................... 27 4.11. Interviews and Focus Groups........................................................................................... 28 4.12. Public Meetings ............................................................................................................... 28 4.13. Surveys ............................................................................................................................. 28 4.14. Charrettes ......................................................................................................................... 28 4.15. Community Assistance Team .......................................................................................... 29 4.16. Electronic Media .............................................................................................................. 29 4.17. Design Guidelines ............................................................................................................ 29 CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
2
5.0 Recommendation for Paramaribo, Suriname .......................................................................... 30 5.1Recommendations to Improve Pedestrian and Bicycle Friendliness: .................................. 30 5.2 Recommendation for Demonstration Site: Watermelon Straat .......................................... 32 5.3 Summary Recommendations on Paramaribo for Policymakers: ........................................ 33 6.0 Bibliography ........................................................................................................................... 34 ANNEX I: VALLETTA PRINCIPLES AND HUL GUIDELINES ............................................ 35 ANNEX II. PROJECT TEAM ...................................................................................................... 40
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
3
I. Preface This report is one of the four city reports produced from the project. “Understanding and Improving Walkable Caribbean Urban Heritage: Paramaribo, Bridgetown, St. George’s and East Port-of-Spain.”(See Chapter 1: Overview of Project). It attempts to understand Caribbean Walkable Urban Heritage in the city of Paramaribo, Suriname and comprises of three major chapters: Chapter 1: Overview of the Project, Chapter 2: Overview of Historic Urban Landscapes in the Caribbean, Chapter 3: Caribbean Walkable Urban Heritage in the city of Paramaribo, Suriname, which gives a detailed analysis of Paramaribo’s built environment quality for pedestrians and cyclists as well as the existing planning policies and institutional frameworks for the city, Chapter 4: Tools and Techniques Chapter 5: Recommendations that can be utilized to improve the country’s position on walkability and heritage conservation, Chapter 6: Bibliography.
For each of the aforementioned cities, a project report following a similar format was produced. It should be noted that though there are some case specific findings and recommendations, many are of general relevance and will be applied to the other city reports.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
4
1.0 Overview of Project “Understanding and Improving Walkable Caribbean Urban Heritage: Paramaribo, Bridgetown, St. George’s and East Port-of-Spain” is a project executed under an Organization of the American States (OAS) grant by the Caribbean Network for Urban and Land Management (CNULM) in collaboration with partners from the U.S. ICOMOS and the American Planning Association. Lead organization, the Caribbean Network for Urban Land Management (CNULM), a regular research partner of CARICOM, is a uniquely qualified academic center with a regional scope housed at the University of West Indies in Trinidad and Tobago. CNULM’s partners for this project will also bring extensive experience on international urban planning and historic preservation. The four Caribbean cities selected for this project represent a spectrum of legislative and institutional approaches to preserving urban heritage sites that exemplify smart urban design to decrease car use and encourage pedestrian and cycling activity. Collectively, these cities represent a body of knowledge that can strengthen regional efforts to implement best practices for the promotion of pedestrian activity through urban design that encourages historic preservation and economic development of physical and cultural assets. A careful analysis of their existing urban heritage plans, national and local legislative and institutional frameworks, and the pedestrian quality of their built environments will yield readily applicable recommendations to improve Caribbean historic urban areas. The project aims to comparatively analyze built and cultural heritage of four Caribbean cities, for elements of smart urban design that decrease car use and encourage walking and cycling as well as potential to generate local economic development and serve as a model for new urban development. The project also seeks to better understand how existing and potential Caribbean urban UNESCO World Heritage Sites respond to the standards of the Valletta Principles and HUL guidelines in their legislative and institutional frameworks, as well as their practical implementations of such policies. Such an understanding will inform precise policy recommendations to local and national governments, as well as to relevant councils of CARICOM, which maintains a regional urban agenda for the Caribbean.
.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
5
2.0 Overview of Historic Urban Landscapes Despite geographic constraints, Caribbean land use patterns do not favor walkability or pedestrian activity. The automobile dominates, even for short distances, and a lack of safe streets and sidewalks as well as insufficient public transportation contributes to the problem. However, the historic urban cores of colonial-era Caribbean cities represent a wealth of potential for the promotion of sustainable communities with smart urban design that encourages walkability over car use. Home to some of the oldest non-indigenous urban settlements in the Americas, they represent a unique blend of European architecture, New World materials, and multicultural influence. Settled long before the advent of the automobile, their built environment foundations are based on walkability and pedestrian access and can serve as development and settlement pattern models. However, rapid urbanization in the Caribbean creates the challenge of preserving the built and cultural urban heritage of sustainable communities with walkable urban design while simultaneously catering to the constantly evolving development needs of Caribbean cities, where energy and climate concerns are increasingly paramount. Many former colonial Caribbean cities have outgrown their initial physical and economic capacity and require planning interventions that will allow for the useful retention of the historic urban fabric, while promoting new opportunities for local economic development. Cities are centers of economic growth and cultural exchange. An understanding of their built and cultural heritage is important in order to catalyze economic development. Traditionally, efforts have largely focused on preserving historic communities, sites, and buildings in order to attract international tourists. While useful, this approach is limited in that issues such as the functionality of historic urban spaces, their accessibility and seamless integration into surrounding land uses, and their role in local cultural development and identity is sometimes overlooked. A more holistic approach to urban regeneration and revitalization is needed in the Caribbean, and existing ideas can be drawn from cities whose urban cores are or aspire to be UNESCO World Heritage Sites. In recognition of this fact, the Bridgetown Heritage Declaration of the Conference of Caribbean National Trusts and Preservation Societies 2014, at the urging of the authors of this report, included the statement: “Noting an urgent need to carefully use our land resources, we commit to promote the value of historical settlement patterns and traditional building techniques in new development and redevelopment.” There are several Caribbean cities that are recognized by the international standard for historic preservation of urban landscapes through designation by the United Nations Educational, Scientific, and Cultural Organization (UNESCO), which recognizes works of humanity with outstanding universal value as World Heritage Sites. UNESCO is advised on this matter by the International Council on Monuments and Sites (ICOMOS), the professional organization for World Heritage Sites and historic preservation generally that has member chapters in individual countries.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
6
The process by which a city is recognized involves applying to UNESCO for the designation with a qualitative analysis and a conservation management plan to protect the space and its context. Since 1972, this concept has been evolving within UNESCO, from recognizing monuments to collections of monuments to entire World Heritage Sites. This most recent concept uses a comprehensive planning approach to address historic preservation by promoting “The Valletta Principles for the Safeguarding and Management of Historic Cities, Towns and Urban Areas,” which were developed by ICOMOS. In addition, as part of the evolution of thinking about cultural conservation and heritage in urban situations, UNESCO recently published recommendations for the Historic Urban Landscape (HUL), a major statement about planning, regulation, and management of cities in general. According to the World Heritage Center, “The Historic Urban Landscape approach aims at preserving the quality of the human environment and enhancing the productivity of urban spaces. It integrates the goals of urban heritage conservation with the goals of social and economic development.”1 The HUL approach broadens the framework for our global commonwealth of urban heritage, through recognition that tangible and intangible heritage is valued for differing reasons and motivations by residents, tourists, politicians, employers, municipal governments, developers, and the preservation community. UNESCO’s HUL recommendation is that stewardship of urban heritage is a shared integrative undertaking that affirms heritage as a sustainable element of the future and requires planning, regulatory tools, education, and resource commitments. Both the HUL approach and the Valletta Principles make several references to the importance of pedestrian activity. They rightly note: “Most historic towns and urban areas were designed for pedestrians and slow forms of transport. Gradually these places were invaded by the car, causing their degradation. At the same time, quality of life has reduced. Traffic infrastructure (car parks, subway stations, etc) must be planned in ways that will not damage the historic fabric or its environment. A historic town should encourage the creation of transport with a light footprint. It is important to encourage pedestrian circulation. To achieve this, traffic should be drastically limited and parking facilities reduced. At the same time, sustainable, non‐polluting public transport systems need to be introduced, and soft mobility promoted. Roadways should be studied and planned to give priority to pedestrians. Parking facilities should preferably be located outside protected zones and, if possible, outside buffer zones.” The consistent goals of the Valletta Principles thus emphasize the importance of walkability as a core component of preserving urban heritage. To address these and other concerns, the Valletta Principles promote good governance that involves all local stakeholders in the policymaking process for World Heritage Sites. With regards to the particular designation, they explain, “The traditional systems of urban governance should examine all aspects of cultural and social diversity, so as to establish new democratic “A New International Instrument: The Proposed UNESCO Recommendation on the Historic Urban Landscape (HUL), ICOMOS, 16 Aug 2011, http://www.icomos.org/Preliminary_report_and_first_draft_16_August_EN.DOC. 1
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
7
institutions to suit the new reality.” As such, “Planning in historic urban areas must be a participatory process, involving all stakeholders.”2 This planning, moreover, takes the following form: “A conservation plan must be based on urban planning for the whole town, including analysis of archaeological, historical, architectural, technical, sociological and economical values. It should define a conservation project, and be combined with a management plan and followed by permanent monitoring.”3 Given this specific requirement, when local governments struggle with these requirements and are placed on the “endangered” list, UNESCO provides a technical assistance team to address the specific challenges of the given World Heritage Site. For more details on the HUL recommendations and Valletta Principles, see Annex I.
All citations in this paragraph from “The Valletta Principles for the Safeguarding and Management of Historic Cities, Towns and Uran Areas,” ICOMOS International, Page 10. 3 “The Valletta Principles for the Safeguarding and Management of Historic Cities, Towns and Uran Areas,” ICOMOS International, Page 16. 2
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
8
3.0. Understanding Caribbean Walkable Urban Heritage in the city of Paramaribo, Suriname 3.1 Background and Overview of Paramaribo, Suriname The Historic Inner City of Paramaribo (heretofore, PWHS) was inscribed on the UNESCO World Heritage list in 2002. The heritage area comprises 30 hectares (74 acres) and the buffer zone comprises 60 hectares (148 acres). According to UNESCO, “The original and highly characteristic street plan of the historic centre remains intact. Its buildings illustrate the gradual fusion of Dutch architectural influence with traditional local techniques and materials.”4 Paramaribo is the capital of Suriname and its population is approximately 250,000, which is about half of Suriname’s overall population. The country’s 2012 GDP per capita was $8,480, placing it 7th out of 13 Caribbean countries/territories.5 The effort to list Paramaribo began in 1993 at the 27th general conference of UNESCO. In the following years, efforts were made for Suriname to ratify the World Heritage Convention so that action on the resolution to pay attention to the uniqueness of the Paramaribo historic inner city could move ahead. Suriname ratified the Convention in 1997, and a task force to nominate the site was established. At that time, the application was supported by the work of Ron van Oers of UNESCO, Peter van Dun of ICOMOS, and staff in the Surinamese Ministry of Culture. Although broad support is a requirement in the application along with a conservation strategy, from our discussions with staff and citizens, it appears that the application had enthusiastic support from only a few individuals, who felt it was necessary to get the city inscribed in hopes that this would encourage more effort on the part of the government. Unfortunately, although the government has made some barely adequate efforts, the condition of the site is deteriorating and the support from the government has lessened rather than improved. Stanley Sidoel, Permanent Secretary of the Ministry of Culture, and others in the government have worked hard to protect the site, especially its unique stock of wooden architecture, which is highly vulnerable if not cared for. A private effort to conserve particular buildings has renovated two structures and shows some promise but it is not at a scale that can sustain the city’s preservation needs. In terms of a model for walkability, Paramaribo is a very good example of compact street patterns and low-rise vernacular architecture that creates attractive streetscapes. The mix of uses – residential, commercial, and institutional – is also promising, but the larger historic area outside of the World Heritage Site boundary is both deteriorating and invaded by out of place architecture, such as casinos and hotels, because there are no design requirements outside the modest heritage district and its buffer zone. An important historic fabric lies south of the heritage area and is in relatively grim condition.
4
UNESCO World Heritage List: Historic Inner City of Paramaribo, http://whc.unesco.org/en/list/940 “World Development Report 2014,” World Bank, http://siteresources.worldbank.org/EXTNWDR2013/Resources/8258024-1352909193861/89369351356011448215/8986901-1380046989056/WDR-2014_Complete_Report.pdf 5
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
9
From July 28-August 1, 2013, ICOMOS undertook an advisory mission to Paramaribo, which concluded, to date the property maintains the attributes for which it was inscribed on the World Heritage List. However, if urgent measurements are not taken the Inner City will fall into an irreversible decay or suffer significant transformations, which will lead to the progressive erosion of the attributes that warranted inscription of the property on the World Heritage List.”6 Among the issues that were reported in the mission’s assessment of the state of conservation, the report cites concerns over heavy traffic, insufficient parking, pedestrian insecurity, car pollution, overrepresentation of government offices in historic building stock, lack of urban planning, and removal of green space from Independence Square. All of these elements are relevant to this study’s focus on historic cities as models of sustainable urban development. The ICOMOS report subsequently recommended the preparation of an Emergency Plan, which was presented to the Surinamese government alongside the ICOMOS report in November 2013. Relevant to this study’s aims, the Emergency Plan proposes to strengthen the PWHS’ management authority, Stichting Gebouwd Erfgoes Suriname (SGES – Suriname Built Heritage Foundation) and ban driving and parking on Independence Square. In January 2014, the Ministry of Education and Community Development published “State of Conservation of the Historic Inner City of Paramaribo World Heritage Site.” Regular State of Conservation reports are a requirement of UNESCO states parties that maintain WHS. The Ministry report included a list of recommendations and ongoing initiatives to improve heritage conservation in Paramaribo. Among them, it cites this OAS-funded study.7 The Ministry report’s corrective measures include a 2015 Maintenance Plan from the Ministry of Public Works; priority action for tax reform; and expansion of the buffer zone to incorporate a section of the Suriname River that borders the existing WHS and buffer zone. Such a proposal would enhance the pedestrian experience of the waterfront while guarding against potentially destructive new developments such as a cruise ship terminal or the proposed marina complex, Riverside Harbour Village.
“Report on the ICOMOS Advisory Mission to Historic Inner City of Paramaribo, Suriname,” August 2013, http://whc.unesco.org/en/documents/128661. 7 http://whc.unesco.org/document/127260 6
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
Example of deteriorating historic building that threatens Paramaribo’s UNESCO designation.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
10
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
11
3.2. Paramaribo’s Built Environment Quality for Pedestrians and Cyclists The overall functionality and attractiveness of Paramaribo’s greater historic district is quite good. The streets are of human scale and the buildings are especially excellent in their design and placement, in line with the city’s colonial vintage. However, the condition of not just isolated buildings but entire blocks of historic structures is troubling in many cases, creating unattractive, abandoned streetscapes that hinder public safety for pedestrians. Amenities such as sidewalks exist, but are not uniform, in the historic district and there is an unfortunate tendency of cars parking on sidewalks, forcing pedestrians into the street. In addition, the city has lost a lot of its street trees, which detracts tremendously from the walkability of the city as they provide shade in the equatorial sun and reduce urban heat island effect. There seems not to be any effort to replace them, even though in this climate trees grow well and quickly. Moreover, there is an effort underway by the Anton de Kom University to look at public space in Paramaribo, which does benefit from some excellent larger parks such as Independence Square and the Palmentuien. However, secondary assets like the drainage canals that parallel many streets could also serve as connectors between public spaces and are currently underutilized. As the national capital and largest city, Paramaribo is the hub for Suriname’s transportation network, which mostly consists of a fleet of vans and minibuses. There is an outdoor bus terminal within the confines of the PWHS, which generates a lot of pedestrian activity. However, the lack of a permanent structure and general disorganization of the bus arrangement makes for a chaotic scene for pedestrians and bicycles, which must dodge incoming and outgoing bus traffic. Moreover, these transportation options mostly serve metropolitan Paramaribo and beyond, and are not designed to facilitate travel within the city. Finally, the Dutch imparted a local cycling culture, which flourishes as a practical form of transportation for both locals and students visiting from Europe. The latter, particularly Dutch students on several month internships, create bicycle traffic and a bit of dynamic economic assistance for the small guesthouse, bar, and restaurant scene in the historic district. The lack of any highways or other high-speed roads in central Paramaribo, as well as the flat topography and regular street pattern, make the city quite ideal for cycling. At present, however, the Ministry of Public Works has yet to provide any on-street bike infrastructure, such as dedicated bike lanes, bike paths, or sharrows.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
Above: Outdoor bus terminal in PWHS lacks permanent structure and amenities.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
12
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
13
Top: Adequate pedestrian infrastructure even in the absence of adequate preservation of historic vernacular architecture. Bottom: Missing pedestrian amenities in the shadow of Paramaribo’s Ministry of Finance, one of the city’s finest restored buildings that fronts Independence Square.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
14
Top: Dutch students prefer to navigate Paramaribo by bicycle despite a lack of cycling infrastructure. Bottom: The Dutch cycling culture strongly influenced urban mobility for the Surinamese.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
15
3.3. Paramaribo’s Management Plan All UNESCO World Heritage Sites are required to maintain and update their management plans, the core document that guides the preservation, restoration, development, and administration of the site. PWHS has a strong document, The Management Plan for the Historic Core of Paramaribo 2011-2015 that was funded by the Netherlands Funds-in-Trust and prepared by qualified technical experts. It states: “The challenge for us today is to conserve the Historic Inner City of Paramaribo World Heritage Site for present and future generations, whilst ensuring that the city continues to function as a living city.”8 Under the economic and political climate in Suriname, this will be a challenge. Nonetheless, Paramaribo is, in many ways, the model for walkability and sustainable urban development for Suriname. It has not seen the impact of urban sprawl to the extent that Port of Spain, Trinidad and Bridgetown, Barbados in particular have seen, and therefore can help set the country’s future on a more human-centered path for urban settlements. The Management Plan outlines the following key challenges, which our site visit and work have confirmed, echoing as well the ICOMOS mission from 2013:
There is no central coordinated and strong management;
The current management organization is weak and needs to be restructured and strengthened in order to deal with the challenges regarding the conservation of the PWHS;
The institutional setting regarding the PWHS is multi-layered and highly ineffective;
There is no sufficient staff with appropriate expertise;
There is a clear gap in urban planning in the country;
Due to the lack of planning, the PWHS infrastructure can be characterized as ‘chaotic’;
The public realm of the historic Inner City has been neglected, in favor of motorized traffic;
There is a lack of parking provisions, pedestrians cannot walk safely;
There is much littering and the inner city is terribly affected by solid waste;
On paper the legal protection of the site seems basically satisfactory, but there are however serious problems concerning their application and enforcement;
There still is a general lack of awareness of the site’s UNESCO designation.
“Paramaribo World Heritage Site Management Plan 2011-2015,” May 2011, http://sges.heritagesuriname.org/index2.php?option=com_docman&task=doc_view&gid=10&Itemid=36. 8
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
16
The management plan and existing legislation support the basic documentation of historic Inner City Paramaribo and the boundaries of the PWHS.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
17
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
18
3.4. Existing Literature Most of the existing literature on this topic for Paramaribo, Suriname is in Dutch, and is not reviewed in this report. However, Philip Dikland recently published the Paramaribo Monument Walking Guide (Vaco: 2013), an encouraging development.
3.5 Current Preservation Policies Suriname has four laws that help support the conservation of historic resources, namely, the Monuments Act, Town Planning and Planning Acts, and Building Act. The Monuments Act (1963, revised 2002) provides general guidance to maintain both designated historical monuments as well as city and town views, which speak to the urban context and the public realm. In light of last year’s ICOMOS mission, the Monuments Commission and SGES are collaborating on proposed revisions to the Act, which was amended in 2002 to accommodate the nomination of the PWHS. This is an important step, as most of the Monuments Act’s power is vested in the Minister of Culture, an appointed position, and the relative vigor and enthusiasm for the Act must naturally emanate from the president. The Town Planning Act (1972) delegates spatial planning authority to the Ministry of Public Works, while the Planning Act (1973) tasks the Ministry of Planning and Development Cooperation with creating a sustainable policy for spatial, ecological, and socio-economic issues in all of Suriname. The Town Planning Act is very minimal and lacks specificity on a whole host of issues, including the requirement for a master plan and specific elements typical of town planning regulation that ought to be in the Act. This statute is in need of complete revision. The Act has been characterized aptly as not working at all. The Building Act (1958) oversees licenses for new constructions and residential areas in Suriname. If wielded properly, it could be a powerful tool for ensuring that new development in the World Heritage Site and buffer zone adhere to the design and architectural guidelines of historic Paramaribo.
3.6 National Programs to Support Cultural Heritage The government seems minimally engaged in the World Heritage designation and in the value of the city’s character as a whole. We were unable to determine the official policy or strategic plan for local economic development, heritage interpretation, local education, or tourism. The ICOMOS report likewise noted a lack of engagement by the tourism sector. The Ministry of Education and Community Development responded by pointing to the 2013 tourism marketing plan, “Suriname: A Colorful Experience.” There is a tourism promotion video of that name, published in March 2014, that includes Paramaribo and aspects of its built heritage, as well as information on the Suriname Tourism CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
19
Foundation website that refers to the UNESCO World Heritage Site and describes its architectural features.9 These are positive developments, albeit very recent ones. Public education is likewise lacking, a point noted by the ICOMOS report. In response, the Ministry of Education and Community Development pointed to Open Monuments Day in 2011 and 2012 with another planned for October 2014, the 2014 Monuments Calendar with a new edition planned for 2015, the publication of a Monuments Guide of Paramaribo (2013), and articles on heritage published in the government section of the newspapers De Ware Tijd. These are important first steps, but largely superficial ones. Public education should start in Surinamese schools, and while the Ministry mentions an “Art and Culture Heritage Education” component of the curriculum, it provides no details on the extent to which knowledge of Historic Paramaribo is conveyed, whether or not schools make regular field trips, and other ways of inculcating a culture that values its heritage assets.
3.7 Adherence to Sustainable Development Principles Planning in Paramaribo, including efforts on sustainability, is a very low priority. For example, authorities have encouraged new waterfront development in the northern part of the city, along the coast, despite the country’s low-lying terrain and mounting concern about sea-level rise. Also the many canals that were formerly part of the sugar plantations and now drain the city are not being planned for or utilized for such things as storm water management, green space, or pedestrian and bike trails. Although narrow in relation to the parallel street, they form an extensive but underutilized network in the urban fabric. The Palmentuin is the only significant urban park that features a canopy of tree cover to reduce urban heat island effect and the strong equatorial sun besides.
Although half the Surinamese population lives in Paramaribo, sustainability conversations in the country are overwhelmingly focused on rural and agricultural areas because of the country’s 9
“Suriname: A Colorful Experience,” March 26, 2014, https://www.youtube.com/watch?v=daVuzbP3ox8 and “Built Heritage,” Suriname Tourism Foundation, http://www.surinametourism.sr/#!en&discoversuriname&heritage.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
20
forest reserves and farmland. For example, in November 2011, Suriname joined the UN-REDD+ Programme, hoping to leverage its 94% forest cover, including ample Amazonian rainforest, to receive payments for ecosystem services. The country’s media campaign for forest conservation uses the slogan “We are the forest and the forest is us,” which indicates the degree to which sustainable development issues do not focus on urban areas. This trend carries through to internationally funded research in sustainability, such as Conservation International’s support for a study of a sustainable agricultural sector in Suriname conducted by the International Institute for Sustainability.10
3.8 Local Economic Development Existing Practices and Potential The commercial presence of the historic core is minimal compared to the broader context in Paramaribo. In particular, the casinos located just outside the historic area do not appear to be contributing to downtown vitality and in fact may contribute to the lack of attention in the historic area. Indeed, about 70% of the Inner City’s building stock dedicated to government or institutional uses, which precludes a more vibrant commercial presence. Other than the waterfront revitalization project and the suggestion that the government might try to pursue cruise ships, we didn’t find much information on economic development strategies from our interviews or document review.
3.9 Local Cultural Development Existing Practices and Potential Efforts to develop the broader Jewish heritage aspect in Suriname, specifically connecting the historic but still active Neveh Shalom synagogue within the boundaries of the Paramaribo World Heritage Site with the Jodensavanne, a former Jewish settlement upriver from Paramaribo, are promising. Suriname has nominated Jodensavanne as another UNESCO World Heritage Site, and in 1997 the site was placed on the tentative list. The SGES is actively working on a management plan for the site in order to secure its inclusion on the UNESCO register. Although outside Paramaribo, we mention the Jodensavanne because the potential to link this site, which is some 70 kilometers from Paramaribo, offers a broadened visitor experience that could lead to longer hotel stays in the historic Inner City and more comprehensive heritage-based tourism. The narrative associated with the circumstances of the founding of this Jewish settlement, the later settlement in Paramaribo, and other Caribbean and North American sites is an important one. As a long-term strategy, it offers Paramaribo a chance to increase its visits with a holistic approach to both sites.
“Developing Sustainable Agricultural Sector in Suriname,” International Institute of Sustainability, August 2012, http://www.iis-rio.org/media/publications/Report_Sust_Agr_Suriname_2012.pdf. 10
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
21
Ruins of the first synagogue in Jodensavanne.
Overall, the community has a lot to build on in terms of multiculturalism. Suriname has no simple ethnic majority, divided among Hindustani (South Asian), African (both Maroon and Creole), Indonesian, and Dutch. As such, the calendar is filled with religious and cultural holidays. Many entail festivals, which in a show of national unity, are held in the center of the old city and attract a lot of participants. The annual Phagwah (Holi) celebration is an example of an event that draws thousands of Surinamese to the downtown core, and this is something to build on economically. While the ICOMOS advisory report has expressed concern that such cultural events are destroying the grass on Independence Square, we counsel local authorities to harness the potential of such events and balance concerns about preservation of the historic public space with the importance of activating downtown Paramaribo in a way that engages local citizens.
3.10 Integration into Surrounding Land Uses and Settlement Patterns The scale and layout of the historic city carries fairly well into the surrounding suburbs and there are no overhead or express highways in the city, only surface roads. The main concern is the area in the surrounding rural countryside, which has a lot of spread out, single family housing and not much mixed use in terms of neighborhood commercial activities. Management systems for the surrounding area need to be considered both for water management and development. The Surinamese population, however, is not growing and thus there are few pressures to develop land on the outskirts of Paramaribo. However, the guidelines expressed here for the maintenance and preservation of the Inner City, especially in the provision of walkable neighborhoods, could serve as a model for outlying neighborhoods of Paramaribo especially once such attention in the historic core spurs economic activity. CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
22
3.11 Best Practice: Stichting Stadsherstel Paramaribo The most innovative practice occurring in Paramaribo as related to historic preservation and cultural heritage is the Stichting Stadsherstel Paramaribo, or Paramaribo Restoration Foundation. The Stadsherstel model was adopted from the Netherlands, which engaged in a bilateral technical assistance with the SGES from 2002 to 2010. Stadsherstel Amsterdam operates as a limited liability company with a fixed investment return of 5% to shareholders. Funds invested with the Stadsherstel support the purchase and renovation of historic buildings, which are then sold or leased. Proceeds from the sale or rental income repay the investors and support the purchase of further properties. With a triple bottom line approach, whereby monetary profit is not the only concern, the Stadsherstel can act strategically to revive streets by leasing to tenants that will contribute to an active street life and fill a community need. Stadsherstel Paramaribo was established in 2011 with investment from De Surinaamsche Bank, the country’s largest private bank. While Stadsherstel Paramaribo has restored only two buildings thus far, Stadsherstel Amsterdam is actively advising its Paramaribo counterpart and progress is being made slowly but steadily. Elsewhere in the Dutch Caribbean, Stichting Stadsherstel Willemstad has been active in Curaçao since 1991, highlighting the success of this model among Dutch-speaking countries. UNESCO recognized Stadsherstel Paramaribo as a best practice in 2013, adding further evidence to its innovation as a model that could and should be spread beyond the Dutch sphere of influence.11
11
“New life for historic cities,” UNESCO, 2013, http://whc.unesco.org/document/123570.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
23
The potential benefits of restored buildings through a model like Stadsherstel Paramaribo are significant, as evidenced by this vibrant streetscape along the city’s waterfront.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
24
4.0 Tools and Techniques 4.1 Planning Framework and Expertise Urban planning is the baseline for any successes in managing these historic cities, encouraging their revitalization, and promoting their compact settlement patterns in new developments. While national planning takes place in various capacities, policymakers should be attentive to their largest cities and pursue urban plans as well. In all four cities, adequate resources should be allocated for a comprehensive plan that incorporates sustainability, walkability, and development guidelines. In the case of Paramaribo, the planning framework is fragmented and there is little technical expertise. There seems to be a need for more staff with planning and design expertise to accommodate the pressures on development review and ensure the mandates of the acts and functions are adequately managed. In the long term, coordinated planning and budgeting for infrastructure and other investments will save the public money and promote a more vigorous economy.
4.2 Capital Improvement Plan (CIP) In the city of Paramaribo a capital improvement plan (CIP) would be a useful tool to link planning objectives with both timing and budgeting. A CIP would also be helpful in engagement of the various stakeholders in the planning and development process by linking public investment to expected outcomes. A return on investment approach to infrastructure is critical to make sure expenditures of public funds are seen as catalysts for the goals of physical, social, and economic sustainability. This requires that in addition to feasibility and adherence with the plan, a project must have a financial analysis to determine what the overall development impact generated will be, so that financial investments by the public are seen as expediting private investment. Without a capital improvement plan, there is no way for the public and other stakeholders to know what the government’s priorities are and what the overall strategy is. However, successful CIPs require good governance and as long as there is not an open and participatory system of setting physical and financial priorities, there will not be improvement to the overall urban situation. This is a particular challenge in Suriname where public trust in government transparency is historically low.
4.3 Business Improvement Districts (BIDs) Business improvement districts (BIDs) are mechanisms by which local businesses voluntarily tax themselves to provide a higher standard of service, for instance in trash pickup, street maintenance, landscaping, and other public services. By creating a separate entity outside the government to manage the funds, businesses are assuaged that their contributions are only financing direct improvements to their area and will not be used for other public purposes. CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
25
Though this is not in practice, the UNESCO designated district of Paramaribo can learn from the best practices implemented in Barbados by the Barbados Chamber of Commerce, which funds its urban revitalization program, The Revitalise Bridgetown Initiative / Bridgetown Alive, through business contributions. The report has designated this program a best practice and it could be strengthened by a BID that would have a physical presence on the streets of Bridgetown – cleaning the streets, orienting visitors, and providing a public safety function in clothing and equipment branded “Bridgetown Alive.”
4.4 Guidelines for Historic Preservation Organizations As a corollary to the importance of urban planning, any revitalization strategy based on heritage must partner with a strong, functioning historic preservation organization, such as a national trust, with a delegated authority to list sites on a register of historic places and ideally have the power to buy and sell properties in order to facilitate the restoration process through strategic investment and bolster their financial stability. This capacity in particular would dramatically improve such organizations’ abilities to translate their advocacy into action. Revenue streams related to the services that such organizations provide would also help strengthen their capacity. For example, setting aside a percentage of the tax on visitor accommodations and services as earmarked for the local national trust or equivalent would provide a steady source of revenue. Given that visitors enjoy heritage sites during their visits, many of which they do not have to pay fees for, especially if they are walking along a street in a historic city as opposed to actually entering a building, such a scheme would promote a virtuous cycle. Belize has recently adopted a tax on cruise ships – a major player in both Barbados and Grenada – with an earmark for the national trust, an idea that should be adopted throughout the Caribbean. The first International Conference of Caribbean National Trusts and Preservation Societies held in 2014 in Bridgetown, where the outcomes of this report were presented in a keynote address, hopefully heralds a new era for such organizations. For the case of Paramaribo, the Monuments Act of 2002 provides for such a framework, but the supporting institutional funding and integration into plans and policies requires a more robust staff at the Suriname Built Heritage Foundation (SGES in its Dutch initials), which must manage the UNESCO World Heritage Site along with other heritage responsibilities.
4.5 University Support Programs and Projects Universities are anchor institutions that can provide many benefits to urban cores. Due to their scale, their impact is much larger than individual businesses in terms of job creation and physical footprint, which allows them to invest strategically and comprehensively in real estate and thus revitalize blocks or neighborhoods. Moreover, students can liven up dead areas and universities are hubs of activity during non-business hours. Given their public service, education, and research mission, universities are great partners for the public sector. All four cities are located near major universities that could and should create a stronger link to the city. CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
26
In Paramaribo, the Anton de Kom University is one of the resources that the city has benefitted from on a capacity level. The study of canals and water management systems as part of a city open space and bike transport system is one of the activities that lend support to the human scale and walkability aspect of the city. Their use of student projects and the engagement in the planning and historic preservation work has been a very useful part of supporting the World Heritage Site. However, could be a stronger Surinamese student presence in the historic inner city of Paramaribo to complement the existing Dutch student presence. Creating a program downtown would add to the vibrancy and increase interaction with students while providing more commercial revenue for local businesses.
4.6 Local Events and Promotion Techniques to Build Support Half the battle of preservation is public awareness, from events to publications to media coverage. However, use of social media in order to reach a younger audience that may not read books and magazines should be improved. Integrating heritage, sustainability, and planning into the wide array of other organizations’ events and activities could also be expanded to get more awareness of the assets and opportunities for people to participate. Lectures, walking tours, and meetings with key stakeholders are among the items that could be enhanced. A particular strength in these cities is the incorporation of cultural events and festivals into the urban core. In Paramaribo, activities like Open Monuments Day, publications like The Monument Walking Guide Paramaribo, and educational programs in primary schools are all commendable. The latter is the most important, as engaging youth today will ensure a strong base of support in the future. However, given the current endangered status of Paramaribo’s built heritage, efforts at public awareness to Surinamese society should be ramped up. Cultural festivals like Phagwah are important ways to engage the population and should be continued rather than prohibited, but better managed.
4.7 Training Programs for Skilled Building Craftspeople The restoration of historic buildings is a huge and underexploited economic opportunity in Paramaribo. However, programs must be established to teach these crafts. Many models exist, including successful training programs in Savannah, Georgia at the Savannah Technical College and the Escuelas Talleres of Cuba. Such a program would do much to connect the issue of heritage restoration to broader economic development issues, thus attracting the government’s interest. Anecdotally, in Paramaribo there is a dearth of trained artisans who can repair the intricate woodwork of the historic inner city’s decaying buildings. Such a program could be established at Anton de Kom University but preferably at a technical college. If done soon, it would show UNESCO that Paramaribo is serious about retaining its World Heritage designation.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
27
4.8 Financial Incentives and Disincentives One of the frequent topics in this city is the lack of funding for historic projects and public works and improvements in general. For walkability and sustainability to be enhanced based on the historic patterns of development, funding should be prioritized to meet those objectives rather than 1950s-style large infrastructure projects, such as the waterfront developments proposed in Paramaribo and also in Port of Spain. Instead, using financial incentives more aggressively to channel private development to more compact and walkable locations that take advantage of the historic resources of these cities is an area that should be further developed. Many examples exist in U.S. cities using property tax incentives and tax credits from the local, state, and federal government for rehabilitation and reuse of historic buildings. Façade improvement grants and property tax overlay districts are other common tools. These new incentives could be amendments to proposed legislation, as in Suriname and Trinidad, or new legislation.
4.9 Code and Planning Enforcement As discussed, planning departments need more and experienced staff along with more eyes and ears on the street to help with code enforcement and planning. Using stronger public participation and partnerships that are suggested in Paramaribo’s and Bridegtown’s management plans could improve the enforcement process. However, the real long-term solution is to engage businesses, property owners, renters and other agencies and organizations in an educational campaign that will demonstrate the value and benefits of improving these cities and indeed, the whole country’s cultural assets. With limited infrastructure and tight finances, it is essential for the public to understand and support the use of compact settlement patterns, walkable and bikeable neighborhoods, useful densities, and mixed land use, as in the cities’ historic centers. Local government could play an important role in code and planning enforcement. However, there is no unit of local government in the city of Paramaribo.
4.10 Public Education Tools and Techniques Developing a culture of community planning and participation must be cultivated over time to show the community that the process works and produces positive results. Every city or town is a collection of communities of interests. A solid participation program understands how both the individual and the communities of interest benefit from a comprehensive vision. To explore citizen engagement, start with a discussion of issues that offer an opportunity for people to talk to each other in a nonthreatening environment. Develop a community vision as the base of understanding, shared purpose, and collective support for moving forward on specific activities. Participation problems arise when a broad discussion of values and ideas comes too late. In a community where no vision setting has occurred, a specific proposal will be viewed based on isolated wants and needs and communities of interest. A vision and plan adds knowledge of civic benefits, costs and community impact, and the basis for further plans, strategies and tools. Often, elected or appointed officials fear participation because they view it as a loss of control. On the contrary, a jointly developed vision provides the leaders with the basis of agreement to move forward CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
28
with an agenda to meet local needs. With a community vision and participation, mayors can have their short-term projects and visible achievements, but within an overall strategy—a winwin situation. Building the context and setting a discussion framework will entail a wide variety of techniques.
4.11. Interviews and Focus Groups People will privately volunteer information they may be reluctant to state in public, so meeting and interviewing key representatives in a community can give great insight into the way to approach community engagement. Individuals who can reach out to underrepresented communities, stakeholders, and decision makers are tremendous assets. These “bridge builders” are essential to help you develop your message and understand the values and priorities of all the various communities within your geographic area. Focus groups provide an opportunity to test messages and ideas with a representative sample of your community before you develop the overall outreach. Focus groups are a logical way to follow up on individual interviews and serve to refine your methods, questions and approach.
4.12. Public Meetings Most commonly, neighborhood groups or agencies will hold a public meeting to offer the public a chance to participate. Pitfalls here are lack of adequate information either before the meeting or at the meeting, poorly managed meeting dynamics, and multiple agendas all competing for time and attention. The standard monthly business meetings of neighborhood groups, councils, and commissions rarely serve true engagement—informed impact on decision making—and should be seen primarily as one of a variety of means to inform participants.
4.13. Surveys Community-based surveys can be helpful but only if they are developed and conducted according to accepted methodology. One way to make sure this is done is to get a local nonprofit or university to help.
4.14. Charrettes A short-term intensive workshop aimed at a physical issue e.g., a new development, a park design, or street improvements. During a charrette, the community works with design experts to develop scenarios for the design, each scenario is reviewed and the information is used to inform future development.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
29
4.15. Community Assistance Team A community often can find assistance through local, national, and international organizations to provide technical assistance on a particular issue. Often, universities are good sources for this kind of technical help, as well. The community describes the issue and a group of experts focused on that issue engages local residents to develop a set of recommendations.
4.16. Electronic Media Informing and fostering community discussion can be aided by websites, blogs, and so on, but in many cases this can only be used by those who have access to such information, such as representatives of organizations, government agencies, and private firms. In many international areas, it will have less benefit to the general public, but should be used where available. Civic engagement is essential to good planning and good governance. Using the outline here and some of the tools and techniques that apply to your own situation, you can improve the quality of life for everyone. A detailed guide with more case studies from the U.S. can be found at http://www.planning.org/communicationsguide.
4.17. Design Guidelines There are few specific standards for the protection of historic sites, open spaces and views, and the enforcement of the existing guidelines and the staff ability to properly review development alterations and proposals seems to be a major weak point in all four cities. There is a special need for guidelines on street corridors along the lines of a “complete streets” model, which provide for a balance of pedestrian, bike, auto and business uses. Walkability is severely constrained by lack of corridor management, maintenance and street design standards that should include ample sidewalks and bike lanes. The implementation of better street signage, reduction of advertising billboards and establishment of a street tree conservation and planting law are additional elements to improve the public area quality. Right now, these cities have a pattern that is suitable for walkability but the design of many streets and sidewalks doesn’t fully take advantage of the compact pattern and land use densities. For Paramaribo the proposed waterfront development could be a model for implementing comprehensive standards for public space design including pedestrian and bike amenities, signage, and plantings.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
30
5.0 Recommendation for Paramaribo, Suriname 5.1Recommendations to Improve Pedestrian and Bicycle Friendliness:
Implement relevant recommendations from the Emergency Plan and the ICOMOS Advisory Report in order to enlist outside support for both financial investment and technical expertise that will preserve Paramaribo’s historic buildings, thus maintaining an attractive and vibrant streetscape that supports walkability Focus on better connections between the historic center and the waterfront in order to improve the overall urban fabric of the Inner City Improve pedestrian-oriented businesses, for example cafes, restaurants, and shops, by providing awnings and street trees; recruit such businesses for buildings now owned and occupied by the government Update wayfinding signage to encourage walking as a viable option for navigating Paramaribo Build on existing biking culture using signage, promotion, access to bikes, and bike infrastructure (bike paths, bike lanes, sharrows) and connect with leading practitioners in bike planning in the Netherlands to provide technical support Review parking and traffic management in an integrated manner to discourage car and motorcycle parking on sidewalks Use the canal system as a secondary pedestrian route, which has the potential to serve as green infrastructure Review public transportation systems and suggest improvement to routes, stops, and promotion that would facilitate pedestrian usage; locate public transit vehicles in a covered, permanent building rather than in a vacant lot exposed to the sun Consider a fixed-route circulator system within the city center in order to complement walking as a means of navigating Paramaribo
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
Above: Outdoor bus terminal in PWHS lacks permanent structure and amenities.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
31
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
32
5.2 Recommendation for Demonstration Site: Watermelon Straat We have identified a location, Watermelon Straat between Henck Arronstraat and Waterkant, as a three-block stretch within the PWHS boundaries ideal for a demonstration site of cultural heritage preservation in the service of sustainable urban development. It is a secondary street with a series of intact historical buildings in need of restoration that offers a direct visual connection with the waterfront, where the premier block of restored buildings is located along the Waterkant. If the buildings on Watermelon Straat were restored and occupied by a mix of businesses along an improved streetscape that includes green infrastructure, then it could serve as a model for the overall revitalization of historic Paramaribo. Such a demonstration site should be a priority for collaboration between the public, multilateral, non-profit, and international sectors. For example, the Ministry of Public Works could execute the streetscape improvements and green infrastructure with support from the Inter-American Development Bank’s Emerging and Sustainable Cities Initiative, which promotes financially, socially, and environmentally sustainable cities. Both the U.S. Ambassador’s Fund for Cultural Preservation and the Paramaribo chapter of Rotary International have recently financed successful building restorations, and their example should inspire other embassies and local organizations, respectively, to adopt a building. Both SGES and Stadsherstel Paramaribo could coordinate this effort and recruit tenants.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
33
5.3 Summary Recommendations on Paramaribo for Policymakers:
Planning needs to be enhanced both in the city and the surrounding areas with professional planners employed in the Ministry of Public Works and legal requirements to prepare an urban master plan.
More fiscal tools, such as tax incentives, need to be used to help attract investment in the core historic area.
An economic development strategy for the city and surrounding area would help provide a framework for the revitalization of the historic core.
Go into more depth on the legal issues with property rights and regulations that act as barriers to investment and revitalization, e.g. property divisions clouding title.
A broader promotion strategy could attract both investors and visitors. Paramaribo has a lot to offer, but the consistently poor maintenance and upkeep of unique historical buildings, as well as the lack of a long-term economic strategy, are concerns.
The legal framework in Paramaribo contains basic statues dealing with cultural and natural heritage. The main issues going forward are how to ensure the planning and legal structure is improved and actually implemented so that agencies and private interests are working together to achieve long term planning and management, to make decisions that are transparent and discussed based on participatory planning frameworks and that scarce funds available are prioritized in support of the goals of the plan and the legal structure. The regulatory and administrative framework needs to be revised if the goals of both the Monuments Act and the Management Plan are to succeed. The resource in Paramaribo as everyone with an interest has noted, is quite spectacular, however, it is deteriorating. The situation for coordinated economic, spatial and social action is urgent. This synopsis is consistent and supportive of the Emergency Plan and Management Plans, which ought to be shopped to international agencies for their support.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
6.0 Bibliography Shared Cultural Heritage Policy Framework, 2013- 2016 The Government of the Republic of Suriname. 2001. UNESCO Convention concerning the protection of the World Cultural and Natural Heritage Historic Inner City of Paramaribo ICOMOS Technical Review of Paramaribo, October 2012 Report on the construction of a new Flag Square on the Historic Independence Square, February 2012 Report on the Plans for the Redevelopment of the Waterfront, February 2012 Monuments Act, 2002
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
34
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
35
ANNEX I: VALLETTA PRINCIPLES AND HUL GUIDELINES Here we have abstracted a summary of the Valletta Principles and Historic Urban Landscape (HUL) Guidelines for reference. These elements should be reviewed along with the recommendations and that discussions take place within the community to ensure further application of the principles in the planning and management system. Elements to be preserved 1. The authenticity and integrity of historic towns, whose essential character is expressed by the nature and coherence of all their tangible and intangible elements, notably: a. Urban patterns as defined by the street grid, the lots, the green spaces and the relationships between buildings and green and open spaces; b. The form and appearance, interior and exterior, of buildings as defined by their structure, volume, style, scale, materials, color and decoration; c. The relationship between the town or urban area and its surrounding setting, both natural and man‐ made; (Washington Charter) d. The various functions that the town or urban area has acquired overtime; e. Cultural traditions, traditional techniques, spirit of place and everything that contributes to the identity of a place; 2. The relationships between the site in its totality, its constituent parts, the context of the site, and the parts that make up this context; 3. Social fabric, cultural diversity; 4. Non‐ renewable resources, minimizing their consumption and encouraging their reuse and a. New functions New functions and activities should be compatible with the character of the historic towns or urban area.” (Washington Charter) The introduction of new activities must not compromise the survival of traditional activities or anything that supports the daily life of the local inhabitants. This could help to preserve the historical cultural diversity and plurality, some of the most valuable elements in this context. Before introducing a new activity, it is necessary to consider the number of users involved, the length of utilization, compatibility with other existing activities and the impact on traditional local practices. Such new functions must also satisfy the need for sustainable development, in line with the concept of the historic town as a unique and irreplaceable ecosystem. b. Contemporary architecture When it is necessary to construct new buildings or to adapt existing ones, contemporary architecture must be coherent with the existing spatial layout in historic towns as in the rest of the urban environment. Contemporary architecture should find its expression CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
36
while respecting the scale of the site, and have a clear rapport with existing architecture and the development patterns of its context. Analysis of the urban context should precede any new construction not only so as to define the general character of the group of buildings but also to analyze its dominant features, e.g. the harmony of heights, colors, materials and forms, in the way the façades and roofs are built, the relationship between the volume of buildings and the spatial volume, as well as their average proportions and their position. Particular attention should be given to the size of the lots since there is a danger that any reorganization of the lots may cause a change of mass which could be deleterious to the harmony of the whole (Nairobi Recommendation art. 28). Perspectives, views, focal points and visual corridors are integral parts of the perception of historic spaces. They must be respected in the event of new interventions. Before any intervention, the existing context should be carefully analyzed and documented. View cones, both to and from new constructions, should be identified, studied and maintained. The introduction of a new building into a historical context or landscape must be evaluated from a formal and functional point of view, especially when it is designated for new activities. c. Public space Public space in historic towns is not just an essential resource for circulation, but is also a place for contemplation, learning and enjoyment of the town. Its design and layout, including the choice of street furniture, as well as its management, must protect its character and beauty, and promote its use as a public place dedicated to social communication. The balance between public open space and the dense built environment must be carefully analyzed and controlled in the event of new interventions and new uses. e. Facilities and modifications Urban planning to safeguard historic towns must take into consideration the residents’ need for facilities. The integration of new facilities into historic buildings is a challenge that local authorities must not ignore. f. Mobility Traffic inside a historic town or urban area must be strictly controlled by regulations. (Washington Charter) When urban or regional planning provides for the construction of major motorways, they must not penetrate a historic town or urban area, but they should improve access to them. (Washington Charter) Most historic towns and urban areas were designed for pedestrians and slow forms of transport. Gradually these places were invaded by the car, causing their degradation. At the same time, quality of life has been reduced. Traffic infrastructure (car parks, bus and subway stations, etc.) must be planned in ways that will not damage the historic fabric or its environment. A historic town should encourage the creation of transport with a light footprint. It is important to encourage pedestrian circulation. To achieve this, traffic should be drastically limited and parking facilities reduced. At the same time, sustainable, non‐ polluting public transport systems CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
37
need to be introduced, and soft mobility promoted. Roadways should be studied and planned to give priority to pedestrians. Parking facilities should preferably be located outside protected zones and, if possible, outside buffer zones. Underground infrastructure, such as subways, must be planned so as not to damage historic or archaeological fabric or its environment. Major highway networks must avoid protected areas and buffer zones. g. Tourism Tourism can play a positive role in the development and revitalization of historic towns and urban areas. The development of tourism in historic towns should be based on the enhancement of monuments and open spaces; on respect and support for local community identity and its culture and traditional activities; and on the safeguarding of regional and environmental character. Tourism activity must respect and not interfere with the daily life of residents. Too great an influx of tourists is a danger for the preservation of monuments and historic areas. Conservation and management plans must take into account the expected impact of tourism, and regulate the process, for the benefit of the heritage and of local residents. h. Risks Whatever the nature of a disaster affecting a historic town or urban area, preventative and repair measures must be adapted to the specific character of the properties concerned.” (Washington Charter) Conservation plans offer an opportunity to improve risk preparedness and to promote environmental management and the principles of sustainability. i. Energy saving All interventions in historic towns and urban areas, while respecting historic heritage characteristics, should aim to improve energy efficiency and to reduce pollutants. The use of renewable energy resources should be enhanced. Any new construction in historic areas must be energy efficient. Urban green spaces, green corridors and other measures should be adopted to avoid urban heat islands. j. Participation The participation and the involvement of the residents ‐ and all local interest groups ‐ are essential for the success of the conservation program and should be encouraged. The conservation of historic towns and urban areas concerns their residents first of all.” (Washington Charter, art 3). Planning in historic urban areas must be a participatory process, involving all stakeholders. In order to encourage their participation and involvement, a general information program should be set up for all residents, beginning with children of school age. The actions of conservation associations must be encouraged and financial measures put in place to facilitate the conservation and restoration of the built environment. CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
38
Mutual understanding, based on public awareness, and the search for common objectives between local communities and professional groups, is the basis of the successful conservation, revitalization and development of historic towns. Information technology enables direct and immediate communication. This allows for active and responsible participation by local groups. Authorities must be encouraged to take an interest in the safeguarding of historic towns and urban areas, in order to establish financial measures which will enable management and improvement plans to succeed. k. Conservation Plan The conservation plan should aim at ensuring at harmonious relationship between historic urban areas. (Washington Charter art. 5) It covers both tangible and intangible elements, in order to protect a place’s identity without impeding its evolution. The principal objectives of the conservation plan “should be clearly stated as should the legal, administrative and financial measures necessary to attain them.” (Washington Charter art. 5) A conservation plan must be based on urban planning for the whole town, including analysis of archaeological, historical, architectural, technical, sociological and economical values. It should define a conservation project, and be combined with a management plan and followed by permanent monitoring. The conservation plan must determine the terms, rules, objectives and outcomes of any changes. It “should determine which buildings ‐ and spaces ‐ must be preserved, which should be preserved under certain circumstances and which, “under quite exceptional circumstances, might be expendable.” (Washington Charter) Before any intervention, existing conditions should be rigorously documented. The conservation plan must identify and protect the elements contributing to the values and character of the town, as well as the components that enrich and demonstrate the character of the historic town and urban area. The proposals in the conservation plan must be articulated in a realistic fashion, from the legislative, financial and economic point of view, as well as with regard to the required standards and restrictions. “The Conservation Plan should be supported by the residents of the historic area.” (Washington Charter art.5) When there is no conservation plan, all necessary conservation and development activities in a historic town must be carried out in accordance with the principles and objectives of conservation and enhancement. Management Plan An effective management system should be devised according to the type and characteristics of each historic town and urban area, and their cultural and natural context. It should integrate traditional practices, and be coordinated with other urban and regional planning tools in force. A management plan is based on the knowledge, conservation and enhancement of tangible and intangible resources. Therefore it must: ‐ determine the cultural values; ‐ identify stakeholders and their values; CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean ‐ ‐ ‐ ‐ ‐
39
identify potential conflicts; determine conservation targets; determine legal, financial, administrative and technical methods and tools; understand strengths, weaknesses, opportunities and threats; define suitable strategies, deadlines for the work, and specific actions.
The production of such a management plan should be a participatory process. In addition to the information provided by local authorities, officials, field survey and detailed documentation, the Plan should include, as an appendix, the conclusions from stakeholder discussions and an analysis of the conflicts arising in these inherently contradictory debates.
CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
Organization of American States Department of Sustainable Development The Historic Urban Landscape and Sustainable Urban Development in the Caribbean
40
ANNEX II. PROJECT TEAM The Caribbean Network for Urban and Land Management (CNULM) was formed in 2008 with the mandate of facilitating urban planning practices that respond to the unique issues and challenges present across the Caribbean. We have adopted the name “blueSpace” to capture the image of individuals and organizations in the Caribbean, collectively addressing its developmental needs. We undertake a diverse range of activities which are supported by international partners.
Jeff Soule, FAICP is Director of Outreach and International Programs at the American Planning Association. He currently serves as Treasurer of the US/ICOMOS Board of Trustees and as U.S. delegate to the General Assembly for ICOMOS. He is a member of the Cultural Towns Scientific Committee of ICOMOS. Mr. Soule is a Senior Fellow of the Energy and Climate Partnership of the Americas (ECPA) program, which supported his participation in this project.
Gregory Scruggs is an M.A. candidate in Regional Studies of Latin America and the Caribbean at Columbia University. He is also a research associate at the Latin Lab, an urban planning research center focused on Latin America and the Caribbean at Columbia’s Graduate School of Architecture, Planning, and Preservation. From 2010-2013, he was a consultant to the American Planning Association for Latin America and the Caribbean. CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
