Understanding Caribbean Walkable Urban Heritage PORT OF SPAIN, TRINIDAD
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
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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 Port of Spain, Trinidad ... 8 3.1. Background and Overview .................................................................................................. 8 3.2. Port of Spain’s Built Environment Quality for Pedestrians and Cyclists .......................... 10 3.3. Proposals for UNESCO Status........................................................................................... 12 3.4. Existing Literature ............................................................................................................. 13 3.5. Current Preservation and Planning Policies ....................................................................... 13 3.6. National Programs to Support Cultural Heritage ............................................................... 15 3.7. Adherence to Sustainable Development Principles ........................................................... 16 3.8 Local Economic Development Existing Practices and Potential ........................................ 16 3.9 Local Cultural Development Existing Practices and Potential ........................................... 17 3.10. Integration into Surrounding Land Uses and Settlement Patterns ................................... 17 3.11. Best Practice: Queen’s Park Savannah ............................................................................ 18 4.0 Tools and Techniques ............................................................................................................. 21 4.1 Planning Framework and Expertise .................................................................................... 21 4.2 Capital Improvement Plan (CIP) ........................................................................................ 21 4.3 Business Improvement Districts (BIDs) ............................................................................. 21 4.4 Guidelines for Historic Preservation Organizations ........................................................... 22 4.5 University Support Programs and Projects ......................................................................... 23 4.6 Local Events and Promotion Techniques to Build Support ................................................ 23 4.7 Training Programs for Skilled Building Craftspeople ........................................................ 24 4.8 Financial Incentives and Disincentives ............................................................................... 24 4.9 Code and Planning Enforcement ........................................................................................ 24 4.10 Public Education Tools and Techniques ........................................................................... 25 4.11. Interviews and Focus Groups........................................................................................... 25 4.12. Public Meetings ............................................................................................................... 25 4.13. Surveys ............................................................................................................................. 26 4.14. Charrettes ......................................................................................................................... 26 4.15. Community Assistance Team .......................................................................................... 26 4.16. Electronic Media .............................................................................................................. 26 4.17. Design Guidelines ............................................................................................................ 26 CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
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5.0 Recommendations for Port of Spain, Trinidad ....................................................................... 28 5.1. Recommendations to Improve Pedestrian and Bicycle Friendliness ................................. 28 5.2. Recommendation for Demonstration Site: The House of Music ....................................... 28 5.3. Summary Recommendations on Port of Spain for Policymakers ...................................... 30 6.0 Bibliography ........................................................................................................................... 32 ANNEX I: VALLETTA PRINCIPLES AND HUL GUIDELINES ............................................ 33 ANNEX II. PROJECT TEAM ...................................................................................................... 38
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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 Port of Spain, Trinidad 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 Port of Spain which gives a detailed analysis of Port of Spain’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 and 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.
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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.
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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.
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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
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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
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3.0. Understanding Caribbean Walkable Urban Heritage in the city of Port of Spain, Trinidad 3.1. Background and Overview For the purposes of this report, Port of Spain and East Port of Spain, although two separate jurisdictions, will be treated in tandem. Moreover, here Port of Spain refers specifically to downtown, although the Port of Spain City Corporation has jurisdiction over more residential neighborhoods outside downtown as well. This section of the report is based on a historical framework of Port of Spain and East Port of Spain that was recently submitted to the Caribbean Network for Urban and Land Management by Professor Bridget Brereton of the University of the West Indies, under an associated Research and Development Impact Fund (RDIFUND) project “Leveraging Built and Cultural Heritage for Economic Development in East Port of Spain.” The work will be referenced here as its relevance is synergistic with this report. Port of Spain began its life as a small fishing village in the early 1700s and became the capital city of Trinidad in 1784. During the 1780s and 1790s, the last decades of Spanish rule, Port of Spain grew into a small but busy port, as the island developed a flourishing plantation sector based on the labor of enslaved people and an import/export trade.4 The old city of the late 1700s and early 1800s was crowded around the waterfront, and it developed on a grid plan, as depicted in Sorzano’s Map (1845), with streets running south to north intersecting neatly with those going east to west to form rectangular blocks. It is therefore evident that at that time Port of Spain reflected an attempt to plan its development as it expanded to the north and west from the old port area.5
Sorzano’s Map (1845) 4 5
Professor Bridget Brereton on the Historical Framework of East Port of Spain (2013). Ibid.
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“This was unlike the case for East Port of Spain (EPOS). The last Spanish governor (Trinidad was taken by Britain in 1797 and remained a British colony until Independence in 1962) inadvertently created the traditional boundary between the city and its eastern suburbs: he diverted the St Ann’s river from its original course. The river had flowed in a diagonal direction to the west of the little town, running through what are today Woodford Square and Chacon Street, blocking expansion to the west and north. In 1787 Governor Chacon diverted its course to the east, from the point where it began to turn westward (where Observatory Street is), to the foothills of the Laventille hills. This created the “East Dry River” (EDR), which became the geographical divider between the city proper and EPOS—hence the phrase “Behind the Bridge”—and, an important cultural heritage site. The only “road” connecting the town to the other main Spanish settlement, St Joseph, was a bridle path running over the Laventille hills; the Eastern Main Road was built under British rule in the 1800s.”6 As time passed, East Port of Spain developed in a very haphazard manner, with sporadic settlements occurring along the major access roads, valleys and ravines. The hilly terrain of the area made accessibility difficult, ensuring that services and public utilities were generally few and inadequate. Building decent streets was not a priority, hence the maze of narrow lanes and paths still characteristic of many communities. Drains and sewage were non-existent or inadequate, and potable water was a problem.7 Despite this, the city of Port of Spain (inclusive of East Port of Spain), since the colonial days, is considered to be rich in historical and cultural heritage. The unique architectural designs and meticulous craftsmanship provide an insight into the extensive diversity and history of the country. Recently, emphasis has been placed on the importance of recognizing, conserving and preserving these built and cultural heritage assets, some of which (the “Magnificent Seven” and the “Red House”) have already been recognized regionally by the CARIMOS (The Caribbean Council of Monuments) on their list of Caribbean Heritage sites. “Additionally, the built heritage of East Port Of Spain is rich and diverse, ranging from a few historic structures dating to the late 1700s or early 1800s (e.g. Fort Chacon and Fort Picton), to fine middle-class homes of the “George Brown” era (1883-1920), attractive churches and mosques, public buildings, and more recent low-income housing. Much has been lost, as is true of the country generally, but enough survives (sometimes in poor condition) to make East Port Of Spain a potential showplace for the nation’s built heritage. It is worth pointing out here, moreover, that stone from the Laventille quarries, mined by local workers, helped to build most of the iconic structures in the city, from the Anglican Cathedral to the Port Of Spain General Hospital to its fine colonial mansions, including the Magnificent Seven.”8 As mentioned previously, Port of Spain has the unique condition of having both a walkable, human scaled traditional grid pattern that features small blocks and streets scaled for people as 6
Ibid. Ibid. 8 Ibid. 7
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well as automobiles. In addition, East Port of Spain grew organically in a combination of informal and formal settlement on hilly terrain. Both situations represent sustainable patterns compared to the sprawling development that characterizes the new growth in the city and its adjacent suburbs. The site visit and discussions with local officials and residents confirm that the problems facing Port of Spain are largely policy and social. Social in that there is a lack of understanding and appreciation for both patterns and a low level of conversation among all the residents, including those who choose to live in the newer suburbs, even though it means lengthy commutes and generally inconvenient quality of life that increasingly depends on private auto use.
3.2. Port of Spain’s Built Environment Quality for Pedestrians and Cyclists Both Port of Spain and East Port of Spain areas are walkable in scale despite their highly different urban forms, but because of systematic disinvestment they lack amenities and have earned an unfair reputation as unsafe and unwalkable. Shade trees, for example, were once a vital part of the city’s landscape. In this climate, a few minor modifications mean the difference between a pleasant walking environment and one that is unbearably hot. Shade in the form of street trees and the overhanging galleries that once were common in the downtown is lacking. Sidewalks, however, are generally present throughout downtown Port of Spain. This is less true for EPOS, although streets are wide enough to accommodate both vehicle and foot traffic. Nevertheless, a road safety risk exists and should be mitigated. In addition, the general upkeep of the built environment is poor, which creates a negative perception of the urban core. Vacant and decaying buildings, unkempt empty lots, visual blight, trash, and vagrancy contribute to the deterioration of downtown Port of Spain. A particularly glaring example is the Independence Square corridor, which is in bad condition, although quite heavily used during the day by those with government business and on Friday evenings, when it become a hub of social activity (liming, in local parlance). While weekdays evenings and weekends can be quite dead in downtown Port of Spain, the city is bustling during weekdays. City Gate, the city’s main transportation hub housed in a historic train station, is located within walking distance of the entire downtown and provides a steady stream of foot traffic. Indeed, the heavy concentration of jobs in the capital city has the potential to create a vibrant urban center, but many consider trips to the city a chore or necessary evil. Trinidadians’ decisions to live far from the capital in suburban enclaves, the lack of a reliable public transportation system, and inexpensive gasoline and car ownership combine to create a traffic challenge that degrade the pedestrian and especially cyclist experience. There is no dedicated infrastructure for cyclists in Port of Spain or EPOS. The gridded layout and flat topography of Port of Spain is conducive to cycling; the hilly terrain of EPOS would make cycling for transportation a challenge.
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Above: Wrightson Road, which connects the downtown grid to the waterfront at its only accessible location for pedestrians, cannot be crossed in one cycle of the traffic light forcing pedestrians to wait in the median. Below: Modern buildings have denigrated the Port of Spain streetscape by removing shade awnings and narrow sidewalks do not help matters.
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3.3. Proposals for UNESCO Status Unlike the other three cities in this study, neither Port of Spain nor East Port of Spain are currently UNESCO World Heritage Sites nor are they on the UNESCO tentative list. Despite its unique built heritage and implementation of a Spanish urban grid later modified by the British, Port of Spain is unlikely at present to qualify for UNESCO WHS status. The built fabric of downtown Port of Spain has already lost a significant number of historic buildings and monumental buildings, such as the Magnificent Seven and Red House, are still undergoing renovation. Until complete, they would hinder any nomination, as would the overall lack of enthusiasm and commitment for historic preservation on the part of the government and wider society. A corollary to this report, “Assessment of East Port of Spain in achieving UNESCO Heritage Status,” addresses in detail the potential of EPOS to achieve a UNESCO designation. With the largest concentration of gingerbread houses, a Trinidadian vernacular architecture style, on the island, as well as significant historical, religious, secular, and cultural sites, EPOS certainly has potential. It might qualify as a cultural landscape, which UNESCO defines as “cultural properties that represent the combined works of nature and man.” In particular, the isolated hillside topography of EPOS sitting above downtown as the source of the bedrock of Trinidadian culture – calypso, steelpan, and Carnival – could provide that conceptual link. Laventille, in particular, was immortalized in poetry by Nobel laureate Derek Walcott in 1965 and in fiction by Earl Lovelace in The Dragon Can’t Dance (1979). Rio de Janeiro was named a UNESCO World Heritage cultural landscape in 2012, with some of the justification coming from the urban landscape’s inspiration to writers, musicians, and artists. Separately from the cultural landscape designation, Trinidad’s UNESCO commission may instead consider nominating either Trinidadian Carnival on its own or the “holy trinity” of calypso, steelpan, and carnival as a Masterpiece of the Oral and Intangible Heritage of Humanity. The carnivals of both Barranquilla, Colombia and Oruro, Bolivia have this designation, which do not implicate the built environment but do link intangible cultural heritage to a specific city, which would certainly be applicable in Port of Spain’s case. Additionally, the Ministry of Arts and Multiculturalism is currently pursuing a designation of Port of Spain for the UNESCO Creative Cities Network. This designation, which is less rigorous than the World Heritage nomination, recognizes cities that are exceptionally creative in one of the following areas: literature, cinema, music, craft and folk arts, design, media arts, and gastronomy. Cities are further designated as either “creative hubs” that promote socio-economic and cultural development through creative industries and “socio-cultural clusters” connecting socio-culturally diverse communities to create a healthy urban environment. Port of Spain and EPOS as a joint candidate city could potentially qualify as a socio-cultural cluster for music. Given the Creative Cities Network’s self-reporting requirement, international profile, and access to a global community of peer creative cities, this more easily achievable designation could serve as a springboard for Port of Spain to ultimately pursue a more comprehensive UNESCO designation while in the mean time benefitting from the agency’s recognition and leveraging CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
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such recognition for investment in the downtown built environment, cultural heritage, and creative economy. Finally, it is vital that any UNESCO status designation integrate both Port of Spain and East Port of Spain. There is a large amount of distrust and fear toward EPOS, particularly concerning crime. It is unclear to what extent this stigmatizing perception is accurate or more of a mediadriven phenomenon, but EPOS neighborhoods suffers from a societal sense that crime is out of control, even though many areas seem relatively safe and occupied by caring residents of mixed income.
3.4. Existing Literature A number of books exist on the historical background of the city of Port of Spain, many of which mention its built heritage. The Story of Port of Spain – Capital of Trinidad West Indies: from the earliest times to the present day by CR Ottley, (Ottley: 1962), History of Trinidad – Vols 1 & 2 by L.M. Fraser (Frank Cass & Company Ltd: 1971), The Making of Port-of-Spain – Volume 1 – 1575 to 1939 by Michael Anthony (Key Caribbean Publications: 1983), Trinidad and other West India Islands and Colonies by Daniel Hart (The Chronicle Publishing: 1866), Trinidad Port of Spain in a World at War by Michael Anthony (Key Caribbean Publications: 1983), Voices in the Street by Olga J. Mavrogordato (Inprint Caribbean Ltd (POS): 1977) all provide literature describing the built history of Port of Spain and East Port of Spain. Academic research studies conducted by Suzanne Stephanie Goodenough – ‘Race, Status and Residence, Port-of-Spain, Trinidad: A study of social and residential differentiation and change’ – April 1976, PhD Thesis – University of Liverpool and Yvonne Dickman’s ‘An Urban history of Port-of-Spain, Trinidad & Tobago’ – Thesis – Master of Urban Planning – McGill University, 1994, have also focused their research extensively on the built history and physical development of Port of Spain. Literature regarding the intangible heritage resources are also numerous and describe the cultural aspect associated with the city and its environs. Many books such as, Behind the Bridge by Selwyn Ryan, Roy McCree and Goffrey St. Bernard, (I.S.E.R., School of Education – Multimedia Production Centre: 1997), The Steelband Movement: Forging of a National Art in Trinidad and Tobago by Stephen Stuempfle (The Press, University of the West Indies: 1995), From Tin Pan to TASPO – Steelband in Trinidad 1939-1951 by Kim Johnson (UWI Press: 2011), Carnival through the years: downtown mas 1903-2003 (Magazine: 2004), A Rada Community by Andrew Carr (Paria Publishing: 1989), Barrack Yard Dwellers – James Cummings (School of Continuing Education, the University of the West Indies: 2004), relay the socioeconomic conditions, lifestyles, music, religions and cultural activities such as Carnival, that are characteristic of the city.
3.5. Current Preservation and Planning Policies Trinidad and Tobago has a relatively weak urban planning and preservation framework: CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
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National Trust Act (1991, enacted 1999) Town and Country Planning Act (1960, revised most recently 1990) Planning and Facilitation of Development Bill (2013, ongoing) National Spatial Development Strategy (2014, ongoing)
Like most of the Anglophone Caribbean, Trinidad & Tobago has a national trust. Unlike other countries, such as Barbados, Grenada, and Jamaica, the National Trust of Trinidad and Tobago is housed in a government ministry, currently the Ministry of National Diversity and Social Integration. It currently lags far behind its counterparts in other Caribbean countries because of a bureaucratic legal issue in which permission from the attorney general to list buildings on the register of historic places had not been ascribed to the National Trust. That situation was recently rectified, and the National Trust is currently playing catch up by preparing an inventory of heritage sites and soliciting public input. However, Trinidad has an active preservation advocacy group, Citizens for Conservation, which was founded in 1985 following public outcry over the intended demolition of the George Brown House on the Queen’s Park Savannah in Port of Spain. Trinidad also has a national chapter of ICOMOS, the International Council on Monuments and Sites. In 2011, Trinidad, which is a state party to the World Heritage Convention, listed three sites on the UNESCO World Heritage Tentative List. None of them were for urban heritage, however. Trinidad has a history of weak urban planning frameworks and institutions. The Town and Country Planning Act makes mention of “preservation of buildings […] of artistic architectural, archaeological or historical interest” but is otherwise mute on the subject. It does not mention pedestrian or bicycle access, road safety, or sidewalks. For the most part, the document delineates the responsibilities and powers of the Town and Country Planning Division (TCPD), a government agency that has a largely reactionary rather than proactive approach to planning. Its main function is to approve building permits, and does not set policy that will shape the Trinidadian built environment. However, the Planning and Facilitation of Development Bill, drafted in 2013 and presented to cabinet and parliament in 2014, will hopefully be passed in the near future. Once adopted, it would greatly strengthen the country’s planning framework as well as shift the TCPD’s role from a reactive to a more proactive one. With regards to heritage, the new Planning Bill explicitly states that one of the purposes of the act is to “maintain and improve the quality of the physical environment, to improve the aesthetic quality of the built environment and to protect, conserve and promote the diverse cultural heritage of Trinidad and Tobago as it finds expression in both the natural and built environments.” Under the bill’s terms, a new National Planning Authority would include an individual to represent built heritage concerns in the country. The bill does not explicitly mention walkability, access for bicycles, or public transit. Meanwhile, the National Spatial Development Strategy (NSDS), currently in a draft stage, will supplant the 1984 National Physical Development Plan. It includes an objective of “valuing our cultural heritage” and indicates two policies to that end: “priorities for culture sport and recreation,” and “planning positively for our historic environment.” Both of these policy CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
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recommendations will place the onus on planning authorities to improve their role in supporting heritage conservation, which if the Planning Bill is passed should be easier to accomplish. The NSDS also actively supports land use patterns that encourage walkability. It makes several mentions of the need for a sustainable transport system and calls for “development patterns that allow for walking, cycling, or public transport as alternative, safe and convenient means of access to necessary services.” In more detail, the NSDS also calls on planning authorities and policymakers to “encourage compact development patterns in order to use land efficiently and support a range of transportation options” and “promote residential development within convenient walking distance (approximately 15 minutes’ walk) of public transport access points and basic community services.” Finally, with reference to Port of Spain, the NSDS declares, “Transport arrangements and infrastructure across the region should be reviewed in the context of a Sustainable Transport Strategy, with a view to promoting a shift from car dependency towards greater use of public transport and making it more attractive to walk or cycle for shorter journeys. This needs to influence improvements to the form and fabric of the region’s urban places and strengthening of public transport links between them and with centres outside the region.”
3.6. National Programs to Support Cultural Heritage At the national level, the cultural heritage portfolio is divided between two ministries: Ministry of Arts and Multiculturalism and Ministry of National Diversity and Social Integration. The former is responsible for intangible cultural heritage, such as Carnival. For example, the National Carnival Commission falls under the Ministry of Arts and Multiculturalism, as does the Cultural Division, which implements the National Cultural Policy and Framework. The latter is responsible for tangible cultural heritage, chiefly executed by the National Trust. However, this bureaucratic division has hindered cooperation between efforts to support both forms of cultural heritage, which are deeply intertwined in Port of Spain and East Port of Spain. In addition, East Port of Spain is the target of several initiatives that emanated from the national government. In 2005, the Ministry of Planning (now the Ministry of Planning and Sustainable Development) authorized the East Port of Spain Development Company (EPOSDC) to improve the economic, social, and physical conditions of EPOS. As part of that process, EPOSDC conducted a cultural heritage inventory of the area. In 2010, the Ministry of Planning established the Trinidad Growth Pole Initiative, and designated East Port of Spain as one of five national growth poles, or potential economic clusters, with a focus on construction, creative industries, music and entertainment, tourism, and small business development. In public statements, the Economic Development Board, the agency within the Ministry of Planning tasked with executing the Growth Pole Initiative, specifically referred to East Port of Spain’s potential to be a heritage city along the lines of the old cities in Havana, Cuba and San Juan, Puerto Rico. As part of the Growth Pole Initiative, the Caribbean Network for Urban and Land Management (BlueSpace Caribbean), co-author of this report, was engaged to conduct cultural mapping and a heritage plan through the University of the West Indies-Trinidad and Tobago Research Development Impact Fund.
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3.7. Adherence to Sustainable Development Principles The Trinidadian economy is based largely on the extraction, refining, and export of oil and natural gas. Hydrocarbons trump any notion of a “green economy” and environmental quality has suffered in many of the island’s fragile ecosystems. Cheap energy and subsidized gasoline has discouraged energy conservation and alternatives to private automobiles. Overall, Trinidad’s commitment to sustainable development principles is low. However, Port of Spain was selected in 2011 as one of five pilot cities for an Inter-American Development Bank (IDB) program, the Emerging and Sustainable Cities Initiative (ESCI). The program focuses on medium-sized cities in the Americas and generates an action plan, in partnership with local and national government, focused on environmental, social, and fiscal sustainability. The action plan serves as a roadmap for loans from the IDB to the host country. The Sustainable Port of Spain Action Plan outlines three interventions, one of which is cultural heritage restoration. That intervention singles out the restoration of Fort Picton, a historic site in East Port of Spain, and overall urban upgrading and beautification. The plan’s indicators give the city poor marks for urban mobility and land use planning, which could spur improvements. Finally, the IDB’s follow up to the Action Plan has included two academic studios conducted by international students. The first, an urban design studio taught by the Swiss university ETH Zurich, took place in the fall semester of 2012. The second, an urban planning studio taught by Columbia University in the U.S., happened during the spring semester of 2014. Both studios assessed a proposal to convert the East Dry River into a linear park that would support pedestrian and cycling activity, a project now funded by an IDB flood mitigation loan. The Columbia University studio also analyzed cultural heritage and made proposals, such as a heritage food walk, that would further enhance the relationship between cultural heritage and walkability in Port of Spain.
3.8 Local Economic Development Existing Practices and Potential The Downtown Owners and Merchants Association serve Port of Spain’s business community and advocates publicly for the revitalization of the central business district, though they do not have any specific programs, such as a business improvement district, to that effect. They do express concern about issues like informal vending undercutting storefronts and degrading the public realm. A more proactive approach, along the lines of The Revitalise Bridgetown Initiative and Bridgetown Alive, would serve Port of Spain well. The overall conversation framing East Port of Spain as a heritage city has significant local economic development potential. A framework combining historic preservation, jobs creation, and investment could be successful if there was more education, discussion and buy-in from the government. Job training in skilled crafts such as masonry, painting, woodwork, roofing and all the traditional building and maintenance skills could create a thriving industry in line with the Trinidad Growth Pole Initiative’s goals. However, recent investments don’t suggest any CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
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strategic thought or planning regarding return on investment. For example the National Academy for the Performing Arts (NAPA), opened in 2009, is an example of a huge investment without analysis, public participation, or comprehensive planning. By taking a loan from a foreign government and employing a foreign architecture, design, and build team, the government not only ended up with a modern building entirely out of scale and character with its historic surroundings, but also missed an opportunity to support local professionals, contractors, laborers, and suppliers. Given the macro-economic position of Trinidad and Tobago, there is really only lack of political will, weak planning framework, and low citizen involvement in decision making to blame for the lack of better economic conditions for East Port of Spain’s residents and a shrinking population and suffering central business district in Port of Spain.
3.9 Local Cultural Development Existing Practices and Potential There is a huge potential for both the intangible and tangible heritage of these areas, as mentioned previously. With the globally recognized contribution of Trinidadian music, food and other important cultural legacies, such as Carnival, there is much to build upon. In addition, the built environment represents an undervalued resource for international investment. In downtown Port of Spain, the existing network of cultural institutions could be better linked and promoted in order to draw visitors and could host events outside of regular business hours to draw visitors. These include the National Museum and Art Gallery, National Library, and Port of Spain City Museum. In East Port of Spain, the network of panyards, or physical spaces where steelpan bands rehearse and perform, could serve as community centers and neighborhood hubs. The Ministry of Arts and Multiculturalism has a program to strengthen the educational and social capacity of panyards, such as afterschool activities and music literacy lessons.
3.10. Integration into Surrounding Land Uses and Settlement Patterns While the organic pattern of East Port of Spain largely dissipates once the topography returns to sea level, the downtown Port of Spain grid is mimicked to the west in the neighborhoods of Woodbrook and St. James, upper and lower middle class neighborhoods, respectively, which are highly walkable although less dense than downtown. However, neighborhoods to the north of the Queen’s Park Savannah, such as Maraval and St. Ann’s, quickly adopt a linear strip style development that favors cars over pedestrians. Further afield from Port of Spain, high-speed, multilane highways have encouraged suburban developments to the west, such as Westmoorings, and general urban sprawl along the east-west corridor from Port of Spain east to Arima. While individual communities within the east-west corridor can be dense and walkable, the lack of jobs and the need to commute to a job center like Port of Spain or an education center like St. Augustine encourages car use because of underwhelming public transportation options. CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
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Many of the walkability goals highlighted in the National Spatial Development Strategy are already true of downtown Port of Spain, and every effort should be made to translate Port of Spain’s urban form into policy through Town and Country Planning Division regulations on new development and redevelopment. Given the shockingly long commutes – over an hour for many – into downtown Port of Spain, if the central city were made a more attractive place to live, it could compete with the outlying suburbs.
3.11. Best Practice: Queen’s Park Savannah The Queen’s Park Savannah occupies over 200 acres directly north of downtown Port of Spain. Originally sugar land, it was purchased by the town council in 1817 and became public land. It has served a succession of purposes over the years – cattle grazing pasture, reservoir, horse racing track – but has served principally as a park since the mid-19th century. In a fashion similar to New York’s Central Park, the Savannah is a large expanse of green space immediately adjacent to a dense urban fabric. It likewise serves as the “lungs” of Port of Spain in an impressively multi-use capacity. On the open expanse itself, it can hold dozens of rugby, cricket, and soccer pitches. In the more landscaped northwest corner, outdoor fitness groups run “boot camps” and other aerobics classes. The 3.5 kilometer sidewalk that follows the perimeter is popular with walker and joggers, while the roadway – the world’s largest traffic roundabout – is regularly a training ground for cyclists, who occupy the street in peloton fashion. From a sustainability standpoint, the Savannah provides important ecosystem services and its tree cover, albeit in need of improvement, helps reduce urban heat island effect. As a carte blanche landscape with so much open space, more careful landscape management could serve as a local model for biodiversity. To that extent, the Horticultural Services Division of the Ministry of Agriculture and Food Production currently has a plan to plant 500 trees, doubling the total number and increasing the tree canopy to 10-15% of the Savannah’s surface area. From a built heritage standpoint, several historic buildings front the Savannah, including the Magnificient Seven. In terms of intangible cultural heritage, coconut water and street oyster vendors are a daily fixture along the sidewalk, while the southeast corner is home to a nightly congregation of food trucks, a trend now common in North American cities. Finally, in the mind of Trinidadians, the Savannah is intrinsically linked with carnival, as the Queen’s Park Savannah Stage is the ultimate proving ground for the masquerade bands competing for the coveted Band of the Year award, the steeldrum ensembles duking it out in the annual Panorama contest, the soca songs vying for the Road March title, and the calypsonians singing their way to a Calypso Monarch crown. While the Savannah would benefit from a more integrated management model – its surface area is currently divvied up between three government agencies – it is clearly a cherished public space. Of course, the Savannah’s vast size is an outcome of historical urban development, and contemporary cities do not have such large reserves of undeveloped or agricultural land so close to their urban cores. However, the Savannah’s diversity of uses that support cultural heritage CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
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preservation, health and recreation, walkability and bicycle access, and local economic development is a model for how other cities should approach their urban public spaces.
This aerial view shows the importance of the Savannah in relation to downtown Port of Spain, as well as some of the city’s more modern skyline and out of place intrusions like NAPA.
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Vacant lot where Christopher Brothers Recording Studio once stood on Nelson Street in downtown/East Port of Spain.
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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. Trinidad is on the cusp of significant positive changes to its historically weak planning framework. As far as this relates to Port of Spain, the city has something of a comprehensive plan in the IDB’s Sustainability Port of Spain Action Plan, but a document produced locally, perhaps under the Port of Spain City Corporation, would induce more local ownership of the process and results. That said, the most comprehensive approach would be a metropolitan plan, as the urban fabric of Port of Spain crosses multiple jurisdictional boundaries. In all cases, however, implementation remains a challenge as the plethora of existing plans have not been synthesized well nor fully acted upon.
4.2 Capital Improvement Plan (CIP) In the city of Port of Spain, 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. Although there are development corporations active in the case of Port of Spain, a CIP would nevertheless help organize infrastructure investment. 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 Trinidad 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 CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
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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. The closest existing practice similar to a BID would be 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.” The city of Port of Spain should emulate this example and take the legislative steps necessary to permit BIDs, and then establish them in their urban core areas. The urban core served by the Downtown Owners and Merchants Association in Port of Spain would all be viable locations for BIDs.
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. Like with urban planning, Trinidad has lagged behind its neighbors but the last year has proven to be a turning point. The National Trust Act only dates from 1991 and for nearly two decades, while other Caribbean nations have made progress in designating and preserving all types of heritage, no properties were designated in Trinidad. However, after a recent overhaul, the Trust has designated 10 sites since 2013 and prepared an inventory of over 400 that should be adopted by parliament. There is also an active civil society group, Citizens for Conservation, which sprang up in the Trust’s absence and can now serve as a partner outside of government for the Trust, which is housed under the Ministry of Arts and Multiculturalism but has statutory authority to act independently. CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
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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. The University of the West Indies, St. Augustine, Trinidad, is one of the resources that the city has benefitted from in terms of applied research. As a partner in this project, they have demonstrated a key level of support for better planning, historic preservation, and engagement. Their use of student projects and the engagement in the planning and historic preservation work has been a very useful. However there should be a stronger student presence in the historic core of Port of Spain and East Port of Spain. Creating a program downtown, similar to UWI-Cave Hill’s efforts in Bridgetown, would add to the vibrancy and increase interaction with students while providing more commercial revenue for local businesses. Because they are located in Trinidad, UWI-St. Augustine can and should provide more authority and support to improve governance and planning along with implementation tools.
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. As evidenced by the state of the Magnificent Seven, Red House, and other buildings located in the city of Port of Spain,, and reported in the media with headlines like “Trinis Too Indifferent [to their heritage],” heritage has not been supported by the government or the general public through events and other activities. A wide array of resources exist that could be showcased to demonstrate the value of heritage in both Port of Spain and East Port of Spain. Intangible cultural heritage, such as carnival, steel pan, and calypso, could and should be better connected with the built heritage of the city, for example promoting a Pan in De City event similar to Bridgetown. A planned effort to strengthen the downtown component of Carnival is a step in the right direction.
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4.7 Training Programs for Skilled Building Craftspeople The restoration of historic buildings is a huge and underexploited economic opportunity in all four cities. 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. In the case of Port of Spain, the development community favors more modern architecture and sees the existing historical built environment as a barrier to growth, when in reality, traditional building forms are more sustainable, require fewer imports and could be a basis for more jobs. The College of Science, Technology, and Applied Arts of Trinidad and Tobago (COSTAATT) or the John S. Donaldson Technical School could host a program to teach skills that could be used on the ongoing restoration of major historic buildings in Port of Spain as well as the vast number of gingerbread houses in East Port of Spain.
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 Port of Spain and also in Paramaribo. 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 Bridgetown’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, the Mayor of Port of Spain has little power and there is no unit of local government in the other three CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
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cities. Bridgetown briefly had a mayor in the 1950s and would benefit from a return to local government, which would also strengthen the profile of Paramaribo and St. George’s.
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 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 CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
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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.
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 CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
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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. In the case of Port of Spain, the East Dry River linear park proposal could be a model for implementing comprehensive standards for public space design including pedestrian and bike amenities, signage, and plantings.
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5.0 Recommendations for Port of Spain, Trinidad 5.1. Recommendations to Improve Pedestrian and Bicycle Friendliness
Give priority to pedestrians with longer signals, more crosswalks, and speed bumps, especially on busy roadways like the Savannah roundabout and Wrightson Road Improve the quality of public spaces downtown, such as Woodford Square and Independence Square Prioritize pedestrian access and public space in any future waterfront redevelopment projects Pursue the transformation of the East Dry River into a linear park with dedicated cycling and pedestrian paths Plant street trees in downtown Port of Spain and East Port of Spain Designate pedestrian priority routes in East Port of Spain; use signage and road markings to ensure pedestrian safety Develop a bike share program to connect areas such as downtown, the Savannah, Woodbrook, St. James, St. Ann’s, and Maraval; install bike infrastructure such as bike paths and lanes More strongly enforce parking rules so that drivers do not encroach on pedestrian spaces Consider a fixed-route circulator system for easier circulation within Port of Spain along with a possible tram, light rail, or streetcar system from downtown to outlying neighborhoods Re-think the suburbanizing nature of Trinidad to use the example of historic downtown Port of Spain as a model layout for new and redevelopment projects—include such recommendations in the final draft of the Trinidad National Spatial Development Strategy and update town and country planning regulations accordingly under the Planning and Facilitation of Development Bill.
5.2. Recommendation for Demonstration Site: The House of Music Aubrey Christopher established Christopher Brothers Recording Studio in 1950 at 7 Nelson Street in the East Port of Spain side of downtown Port of Spain. In the early 1950s, there were only two recording studios in Trinidad, and Christopher Brothers played a vital role in the commercialization and dissemination of Trinidadian music by partnering with New York’s Dial Records in 1953 to record calypso and steelpan performers. The Dial recordings are recognized by international scholars as seminal in the history of Trinidadian music, and Christopher continued to record throughout the 1950s at a vital moment, a veritable golden era, when calypso and carnival music was transitioning from folklore to an element of national culture in the years before independence. The building that housed Christopher Brothers Recording Studio was recently demolished, but the Artists’ Coalition of Trinidad and Tobago has a proposal to transform the entire block into the House of Music, a complex of reconstructed heritage buildings that could house many functions: concert hall, museum, recording studio, vinyl pressing facility, and music library. CNULM/blueSpace Caribbean Jeffrey Soule and Gregory Scruggs
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Their proposal imagines the House of Music as an anchor institution for East Port of Spain, with a vital employment role as well as opportunities for social, cultural, and economic development. Such a demonstration project could significantly reorient downtown Port of Spain by providing a national attraction at the juncture of downtown with East Port of Spain, as well as kick starting the East Port of Spain Heritage City Growth Pole. The Artists’ Coalition uses Medellín’s Biblioteca España as their model, citing former Mayor Sergio Fajardo’s motto that the most beautiful buildings must go in the poorest areas of the city. If executed successfully, this project could serve a variety of goals related to local economic developent, cultural heritage preservation, urban revitalization, and walkability by drawing foot traffic to the area.
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Vacant lot where Christopher Brothers Recording Studio once stood on Nelson Street in downtown/East Port of Spain.
5.3. Summary Recommendations on Port of Spain for Policymakers
Harmonize the efforts of the East Port of Spain Development Company, the IDB’s Sustainable Port of Spain Action Plan, the East Port of Spain Heritage City Growth Pole, and the National Spatial Development Strategy in order to support both Port of Spain and East Port of Spain in an integrated fashion Support the National Trust of Trinidad and Tobago so that a full heritage inventory is prepared as soon as possible and appropriate sites are listed on the register of historic places Reintroduce legislation to establish a property tax system Establish a business improvement district or other mechanism to encourage downtown revitalization with the commitment of the business community Empower the Port of Spain City Corporation to collect revenue that can then be spent on city upkeep and maintenance Establish an enterprise zone in East Port of Spain to facilitate investment Incentivize residential development and population growth in Port of Spain through tax breaks and other fiscal mechanisms
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Two historic buildings illustrate the positive impact on urban design of traditional development: generous awnings shade the sidewalk while second floor verandas create eyes on the street to promote public safety.
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6.0 Bibliography Lesterhuis, David. 2004. Approach to the Protection, Conservation and Nomination of St. George’s Fortified System (Grenada). CNULM. St. George’s Town Past and Present Initiatives East Port of Spain Development Company Limited. 2007. East Port of Spain Strategic Development Plan.
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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
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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
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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
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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
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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.
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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
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