Historic Hotels: Introduction and guidelines for development

Abstract

Establishing historic hotels can be an important benefit for local economies. By taking 

advantage of existing buildings that offer unique architecture and experiences, visitors 

are attracted and willing to pay premium prices. Issues include authenticity of the 

experience and building, maintenance, providing modern utilities and amenities, 

management and costs. These issues may be addressed using guidelines and policies 

that have been developed and applied in successful examples of historic hotels. By 

using these recommendations, communities and properties can successfully include 

historic hotels as one element of their economic strategy.

Introduction and Background

 

This article focuses on the experience in the United States starting with a brief introduction to Historic preservation in general and then going into the topic of historic hotels within that framework.  Although there were historic landmarks, like Independence Hall in Philadelphia, and national historic sites, like George Washington’s home, Mt, Vernon in Virginia, widespread appreciation for historic preservation including the broad patterns of a place along with specific buildings really began in the 1960’s.  The destruction of the Pennsylvania Railroad Station in New York City in 1962 shocked the public and lead to a movement to identify and protect buildings as well as neighborhoods in general.  The Historic Preservation Act was passed in 1966 providing guidelines and a process for listing historic resources from buildings, to streets, to neighborhoods to landscapes. It was this historic preservation effort that lead to both saving and revitalizing many historic hotels. It is very important to recognize the value and relationship of saving the context of a place to provide a reason for people to visit a historic hotel.  If the community or city itself has no sense of place, for example, walkable historic districts, main street shops, or interesting alleys, then no one will care about one historic hotel. This is why it is critical to manage the entire context of a place if we are going to be successful in developing historic hotels.

 

In the US, most cities and even small towns have some general planning framework that identifies the historic resources and then develops rules and regulations to protect the community identity.  We mentioned “Sense of Place” above.  This is what defines one place from another.  It is a combination of tangible—buildings, streets, landscapes—and also intangible—customs, traditions music, food and so on. When you go about applying these ideas from this article, you must go through your own process, not try to copy my suggestions or the case studies here.  Only by working with local people to carefully understand the values and importance of local character, places, customs, buildings and landscapes can a context for successful historical hotel development be fruitful.

 

The last general background I want to share with you is the concept of Heritage Areas. In the early 1980’s, I worked on the concept of identifying all the historic, natural and cultural features of a region to tell the story of how it started, and how it developed over time. Today there are dozens of national heritage areas in the United States.  They are designated by the US Congress according to specific guidelines and have to develop and implement a plan for protecting these resources as well as interpreting them and sharing them with the public. Heritage areas have become multi-million dollar tourist attractions and have given many older towns a new source of revenue while providing tangible access to our history along with tourism support facilities like museums, hotels and restaurants.  

Here are key elements of both the community analysis as well as the checklist of policies and tools needed to examine and manage the sites of historic hotels:

 

Analysis

 

• How does rising or falling population change influence community leadership capacity?

 

• Can they manage their growth as they become more attractive and are therefore more desirable to developers? Can they cope with the conundrum that their very attractiveness acts as a magnet for exploitation?

 

• Is there a physical image of what the community wants to look like which could strategically guide growth or define community edges?

 

• How do they handle the paradox of attracting professionals and enjoin them as conservation advocates restraining the developers they attract?

 

• Is there a cadre of young people attracted to the community?

 

• Are there effective community organizations that could advocate for any of these policies?

 

• What are the motivating forces for making the community desirable?

 

• What percentage of the building stock is currently on the National Register?  What percentage should be? Are there resources in the community that could secure that objective?  

 

• Are there physical scars or intrusions like urban renewal or ill-advised highway construction that need to be reworked or replaced?

 

 

Policies and tools

 

• Are there specific provisions for safeguarding key landmarks, view sheds, and vistas?

 

• Is there an open space plan or discernable sequence of spaces that could support a plan to assist in defining urban design objectives such as edges and nodes?

 

• Is there an infill policy for vacant lots and parking areas?

 

• Does the community have an effective design review policy that includes both guidelines and standards?

 

• Does it have a program to fund and integrate public art in public building and spaces along with private structures above a certain square footage?

 

• Does the community tell a narrative and offer contrasting perspectives with historic markers and interpretative panels, and locally commissioned story tellers?

 

• Does it have a crafts policy to employ artisans for community signs, restroom tiles, fences, tree guards and gateways?

 

• Are there density overlays in the downtown which encourage mixed uses?

 

• Are there incentives for a range of housing types?

 

• Are their variances or allowances for downtown business so that building density can be maintained and downtown areas are not pockmarked for parking?

 

• Is there a strategy to encourage use of upper floors?

 

• Are there form-based or character enhancing codes to improve traditional zoning regulations?

 

Elements of Historic Hotel Development

 

Analysis is the beginning of the planning and development process. Look at the building itself: is it already on the national register of historic places? That will be a key to financing the project in the US. What will it cost to renovate? What will the revenues be when it’s open?

Essentially the analysis is a very detailed plan for both the building but also the business.  If the business model is not sound, then it needs to be reevaluated. Historic buildings have an advantage over building a new hotel from scratch.  New hotels are expensive and in the US, with our historic preservation tax credits, developers have both the existing building and the tax credits against the cost of a new building. China’s land development model could easily work to provide incentives for similar historic renovations, for example, a district established as historic could assess existing development to provide an incentive to develop a historic building as a hotel, serving the neighborhood, providing future revenue and benefiting the other properties. In Boston, developers were offered higher density in return for funding preservation projects in other neighborhoods.

 

Balancing Old and New

 

Marketing studies have shown that people will prefer a historic hotel as long as it has modern amenities and services. Ambiance provided by authentic architecture, finely maintained interior details and period furnishings need to be combined with up to date heating and cooling systems and comfortable mattresses. Another feature of historic hotels are the people who have stayed there in the past.  One of the examples provided below has photos of movie stars from the 1930’s who stayed there. This will add to the sense of history and help to attract visitors. Many of our university historic preservation programs include courses in marketing history.  This is essential if the historic property is to be financially successful in the long run. It involves every little detail, such as the hotel stationery, the bedding, the lighting, the art work and also the advertising brochures and online information.

Historic Hotels of America Organization

Historic Hotels of America is a program of the National Trust for Historic Preservation, and includes 240 hotel members in 44 states, Puerto Rico and the U.S. Virgin Islands.

To become a member, a hotel must be at least 50 years old and either recognized as having historic significance or listed in or eligible for the National Register of Historic Places. Members must maintain their sense of historical architectural integrity. In return they get to advertise their affiliation and get marketing benefits along with their membership. The Historic Sites Act of 1935 authorized the U.S. Secretary of the Interior to formally record and organize historic properties and to designate them as having national historical significance and gave the National Park Service authority to administer the program.

Case examples

 

The Stanley

 

The Historic Stanley Hotel was made famous as the “Overlook” Hotel in Stanley Kubrick’s “The Shining”. In an isolated mountain location in Colorado, the Stanley is one of the most recognizable Historic Hotels. Built in 10909 by Fleelan stanley, owner and inventor of the Stanley Steamer automobile company.  It was designed as a healthful retreat for Easterners, wishing to take in the mountain air of the Rocky Mountains. The main building has 142 rooms.  It has a reputation for being haunted, too, which adds to its colorful history and appeal. Up until the mid-1980’s, the hotel closed for the winter, but today it is open for guests all year around.

 

It is designed in an antebellum style and features gardens and grounds surrounding the main and auxiliary buildings. The interiors have be renovated several times, each time using design elements and materials that are in keeping with the historic building, such as the new copper/tin ceiling in the bar.

 

The Blackstone, Chicago Illinois

Part of the Marriott Renaissance brand, the Blackstone Hotel is a historic 332-room luxury hotel with conference and event space, a Starbucks coffee shop, and a full-service restaurant. Since its construction, the 23-story building has had a long and storied history as a luxury hotel, and is known for hosting 12 U.S. presidents. It fell into disrepair in the late 20th century and was closed in 1999. Sage Hospitality purchased the structure in 2005, performed an extensive renovation, and reopened it in March 2008.

 

Unlike the Stanley, this hotel required a good deal of modification in order to make it both attractive to modern customers but to meet the requirements for historic preservation tax credits that were critical for the financing to succeed. The changes to the interior focused on the public spaces as well as reconfiguring the guest rooms to allow for modern amenities and utilities to be put in place while keeping the overall historic charm of the building. The investors realized that this renovation would take more time and be more costly but they also anticipated that the overall rates that the finished historic hotel could bring would more than offset the time and costs required to meet the historic tax credit requirements.

 

In this renovation, the developer also emphasizes the importance of having good drawings. Particularly for historic buildings, a set of original drawings is useful. In some instances they may not be accurate, though, so newer drawings that highlight changes will help make the project go more smoothly.  Understanding the building thoroughly in this kind of renovation is essential for both managing costs and finishing the project as expected.

 

A Note about China

 

Although this article has focused on the experience of the United States with historic preservation and hotels in particular, I want to mention a few Chinese examples to consider as well. The first example is the well-known Fairmont Peace Hotel in the Bund area of Shanghai. Completed in 1929 by Victor Sassoon,, it was designed in the Art Deco style. After becoming offices briefly in the 1950’s, it became the Peace Hotel in 1956. Most recently it was completely renovated in 2007 and reopened in 2010.  

 

The second example is found in a small rural village in Anhui Province, near the historic villages of Xi Di and Hongcun. The Imperial Guard Boutique Hotel, PingShan, Yi County Anhui, has 7 rooms and features a sun terrace and a restaurant on-site.This hotel was developed using the front part of a 17th century community hall as the lobby, building new hotel facilities behind the original building.  This also was part of an effort to provide economic development in the small historic town of Ping Shan. The hotel aims to provide tourists interested in the ancient towns with a hotel that offers the same kind of history while still providing modern amenities.

 

 

Summary

 

Historic hotels are an important component of historic preservation as well as economic development, especially for smaller cities and towns.  In the United States over the past 70 years, numerous buidlings have been renovated and repurposed for modern lodging with a focus on history.

 

Key elements of success include

 

● Analysis of the place and its surroundings

● Proper planning and development guidelines that protect the character of the place

● Visit other properties and see what lessons can be learned from them

● Thorough review of the building including cost estimates including 20% contingency

● Use a team of experts in the planning and development process

● Understand that there may be delays as things may be uncovered unexpectedly

● Plan for enough time to market and establish the hotel with its customers—3 years

 

 Recollections of Place Making

In the 1970’s, I was at the Tug Hill Commission as a planner tasked with improving the nature and culture of the many small towns in and around the “Lesser Wilderness”. In this early stage of my work, I was piecing together a philosophy of planning based on authenticity. Seeking out the people, the environments, the social customs and habits that characterized a specific place, then trying to find ways to both preserve and encourage these traits in ways that would convey their importance into the future. My nascent philosophy of place-based planning was my response to what I viewed as the catastrophic impact of urban renewal policies and banal “modern” architecture. I developed and maintained the professional approach of understanding the place before making any attempt to “plan” for it. Much of the prevailing thought of this time was to focus on the physical—remove the existing fabric and with a “clean slate” design something contemporary. The physical place is an embodiment of the social, economic and historical elements and cannot be treated separately. 

Place making is a term that has evolved from the work of a wide variety of experts and organizations. My first recollection of its use in the planning context was at an American Planning Association conference in the early 1980s. Ronald Lee Fleming used “Place Making” as he spoke about the work his Townscape Institute was doing at the intersection of public art and sense of place.  There were many involved in similar work coming from different and independent perspectives. Place making itself is an organic idea and has equally many wellsprings that have shaped and molded its trajectory to this day. 

After my work in Tug Hill, I learned of the fledgling Main Street experiment by the National Trust for Historic Preservation. In my position in the US Department of Agriculture’s Office of Rural Development Policy, I was able to channel grants to help expand the few early Main Street towns to hundreds across the US during the early 1980s. Main Street was a systematic effort that went beyond the physical design and appearance of small towns to the underlying issues that shaped them: economics, management and promotion. One of the elements funded under the USDA effort was a training program for Main Street managers along with standardized materials and case studies that were shared and used as part of the curricula. It also included political advocacy. In many communities, state efforts regarding highways was less than sensitive to the character of small towns, so local leaders were schooled in showing transportation departments that there are sound alternatives to widening streets and providing thought for pedestrians along with cars. The first Inter-modal Surface Transportation Efficiency Act (ISTEA) was a landmark in reflecting a less car-oriented approach that respected pedestrians and bikes along with lighting, landscaping and environmental protection.

It was my good fortune to work at this concept of place making internationally, too. In 2011, I was involved with the International Council on Monuments and Sites (ICOMOS) which developed the Valletta Principles establishing details for both preserving existing places, but also ways to sensitively add new development. Later that year, I co-authored a paper for the American Planning Association describing how arts and culture enhance community character. As a Fellow for the Energy and Climate Partnership of the Americas (ECPA), I promoted sustainable place making and walkable cities under a grant from the Organization of American States (OAS) in 2014. That led to a report on the issues and solutions for each of four Caribbean cities: Bridgetown, Barbados, St. Georges, Grenada, Port of Spain, Trinidad and Tobago and Parimaribo, Surinam. The full text of the report can be viewed on my blog site: http://dolmenchamber.blogspot.com/  (apologies for the missing illustrations.  If you would like to receive the illustrated copy, please email me.) 

In 2015 a variety of organizations came together the form Planners for Climate Action (P4CA). We published a bookletGuiding Principles for City Climate Action Planning that incorporates elements of Place making that are by now, familiar refrains: historic fabric preservation, infill, walkability, mixed use, and human scale architecture to mention a few. 

The Climate Heritage Network was created in 2018 to focus attention on the linkage among climate action, cultural heritage and place making. 

In April of 2020, I retired from APA but remain involved in a variety of efforts including management of the Place Making Institute (PMI), described below, under the leadership of Ronald Lee Fleming.  

The Place Making Institute (PMI) serves as a long term advocate for community-based planning and design, with programming for education, engagement of public officials and non-profit organizations. In addition, research will be sponsored through a fellows program that houses two to four fellows in residence annually at Bellevue House, utilizing the new library and other facilities.

 

One of the key aspects of ‘Place Making’ is managing the integrity of the community in its public space, architecture, civic institutions and design standards. The PMI encourages increased respect for places and focuses on enhancing skills and techniques which support communities across America.

 

The Institute is similar to the long-running Mayor’s Institute on City Design, which brings mayors together with a design faculty to discuss specific issues relating to the character of each city. This program was conceived in 1989 and has continued to the present at the National Endowment for the Arts. I staffed the Mayor’s Institute during the first several years with guidance from the founders, former Mayor Joe Riley of Charleston, Jaqueline Robertson, then Dean of the School of Architecture and Planning at the University of Virginia and Adele Chatfield-Taylor, past Director of the NEA Design Arts Program. 

 

Six to eight mayors come together with design professionals and each brings a specific issue their city is facing.  The faculty along with the mayors engages in lively and insightful conversation illuminating ways to manage and solve city issues.  In addition, some faculty members offer short talks that illustrate their work and general practices on topics such as economic development, cultural conservation or design guidelines.

The PMI is conceived along the same contours, but aimed at planning directors and local leaders rather than mayors.

 

Planning directors face challenges from politically appointed planning boards who are often dominated by development interests. The concept behind the PMI is to encourage planning directors from communities with great assets--historic character, scenic beauty, geographic setting, and outstanding architectural ensembles to fortify their capacity for providing strategic leadership.  PMIs intention is to strengthen the hand of the planners and community leaders by sharing experiences from other locales, expanding strategies and crafting tools for implementation.  In the future, there may be regional variations hosted by faculty from the Institute.

 

 

OAS Report on Historic Cities in the Caribbean: Increasing Sense of Place and Walkability

 

Paramaribo, Suriname

 

Summary of Walkability Recommendations

 

1          Focus on better connections to the historic center from the waterfront

2          Improve pedestrian-oriented businesses and recruitment for buildings now owned by the government

3          Update way-finding signage

4          Build on the biking culture that is developing using signage and promotion

5          Review parking and traffic management in an integrated manner  

6          Use the canal system as a secondary pedestrian route

7          Review public transportation systems and suggest improvement to routes, stops and promotion; consider a fixed-route circulator system.

8          Implement the Emergency Plan and the Management Plan by enlisting outside support, both financial and technical.

 

Possible project:

A 2-3 block demonstration site to recruit businesses, provide streetscape improvements including 

green infrastructure could be a priority for IDB, the Suriname government, embassies and other

partners to connect the tourism potential with the revitalized waterfront.

 

 

Background

 

Paramaribo was inscribed in the World Heritage list in 2002 but the effort began in 1993 at the 27^th 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 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, and Peter van Dun along with staff in the 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 it 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 and others in the government have worked hard to protect the site.  We think a discussion at the president’s level would be valuable after we finish our complete report as the potential is great.

 

A private effort to conserve particular buildings has renovated two buildings 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, it is a very good example of compact street patterns and vernacular architecture. The mix of uses is also promising, but the larger historic area outside of the World Heritage Boundary is both deteriorating and invaded by out of place architecture, such as casino/hotels, because there are no design requirements outside the modest heritage district and its buffer zone.  Important historic fabric lies south of the heritage area and is in relatively grim condition. At the time of this report, a report reviewing the condition and management of the site prepared by Stephen Fokke, Site Manager, and an expert team from ICOMOS has recommended expanding the buffer zone. This report is generally parallel and in agreement with the ICOMOS Emergency Plan and the Site Management Plan. The government is renovating the waterfront area, but the plan and the progress on the project are not clear in terms of direction and timeline for implementation.  There has been talk of dredging the Suriname River to allow cruise ships, too, but this is also not clear or possible to confirm.

 

The sites’ built environment quality for pedestrians and cyclists vis-à-vis automobile traffic and overall functionality as historic urban space:

 

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, but the condition is troubling in many cases. Students visiting from Europe create bicycle traffic and a bit of dynamic economic assistance for the small b and b and bar scene in the historic district. The city has lost a lot of its street trees which add tremendously to the walkability of the city.  There seems not to be any effort to replace them, even though in this climate, trees grow well and quickly. There is an effort underway by the University to look at public space and these canals are part of that effort.

 

Existing Literature

 

In the Management Plan for the Historic Core of Paramaribo, 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.”

 

Under the economic and political climate in Suriname, this will be a challenge.  Nonetheless, the City of Paramaribo is in many ways, the model for walkability and sustainability.  It has not has the impact of sprawl to the extent that Port of Spain and Bridgetown in particular have seen, and therefore can set its future to a more humanistic path. The Management Plan outlines the following key challenges, which my site visit and work have confirmed:

 

·         There is no central coordinated and strong management;

·         The current management organization is weak and needs to be re-structured and strengthened in order to deal with the challenges regarding the conservation of the PWHS;

·         The institutional setting regarding the Paramaribo World Heritage Site 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 WHS 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.

 

Current Preservation Policies and Practices

 

Paramaribo has several legislative and administrative policies that help support the conservation of historic resources.  These include:

 

The Monuments Act

The Planning Act

 

The Monuments Act provides general guidance to maintain both designated historical monuments as well as city and town views which speak to the context and the public realm. The Planning Act (NATIONAL ORDINANCE of 21 July 1972 on rules for urban destination of land and buildings (Town-planning regulation)  is very minimal and lacks specificity on a whole host of issues, including the requirement for a master plan and specific elements that ought to be in the regulations to implement the Act. This statute is in need of complete revision and is the responsibility of the Ministry of Public Works. The Act has been characterized aptly as not working at all. For the Monuments Act, most of the power is vested in the Ministry of Culture and being an appointed position, the relative vigor and enthusiasm for the Act must naturally emanate from the President.

 

 

 

 

Pedestrian amenities are often missing and basic infrastructure in poor shape.

 

The site’s adherence to sustainable community principles and UNESCO historic preservation principles:

 

Planning in Suriname is at a very low priority, including efforts on sustainability.  The evidence is in the lack of concern for sea level rise on the new development to the north that has been encouraged. 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.

 

The site’s national policy and institutional frameworks:

 

The government policies seem minimally engaged in the World Heritage designation and in the value of the city’s character as a whole. We were unable to determine what the official policy or strategic plan for economic development, heritage interpretation or tourism was.

 

 

The site’s local economic development existing practices and potential:

 

The casinos do not appear to be contributing to the vitality and in fact may contribute to the lack of attention in the historic area. Other than the waterfront revitalization project and the suggestion that the government might try to pursue cruise ships, we didn’t find much information from our interviews or documents. 

 

The site’s local cultural development existing practices and potential:

 

Efforts to develop the broader Jewish heritage aspect with Joden Savanne are promising as that site is being proposed by some of the community as another World Heritage Site.  We mention this because the potential to link this site, which is some 70 KM from Paramaribo, offers a broadened visitor experience that could lead to longer hotel stays.  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 and offers Paramaribo a chance to increase its visits with a holistic approach the both sites.

Joden Savanne site could enhance the length of stays in Paramaribo

 

The community has a lot to build on in terms of multiculturalism: Hindi, African, Indonesian and Dutch.  The festivals are held in the center of the old city and attract a lot of participants, so this is something to build on economically.

 

The site’s seamless integration into surrounding land uses and potential for influencing development and settlement patterns elsewhere in the city or country:

 

The scale and layout of the historic city carry fairly well into the surrounding suburbs and there are no overhead highway 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 county area need to be considered both for water management and development.

 

General recommendations

 

1          Planning needs to be enhanced both in the city and the surrounding areas

 

2          More tools such as tax incentives and others mentioned in my report need to be used to help attract investment in the core historic area.

 

3          An economic development strategy for the city and surrounding area would help provide a framework for the revitalization of the historic core.

 

4          A 2-3 block demonstration site to recruit businesses, provide streetscape improvements including green infrastructure should be a priority for IDB, the Suriname government, embassies and other partners to connect the tourism potential with the revitalized waterfront.

 

5          Go into more depth on the legal issues with property rights and regulations that act as barriers to investment and revitalization e.g. their property divisions clouding title.

 

6          A broader promotion strategy could attract both investors and visitors.  The City has a lot to like about it but the maintenance and long term economic strategy are concerns.

 

Summary

 

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.

 

Tools and Techniques Available to Improve Livability and Walkability

 

·         Planning framework and expertise

Overall, as we discussed in the framework above, Paramaribo has a fragmented planning framework and 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. Adequate resources for a comprehensive plan that incorporates, sustainability, walkability and development guidelines should be allocated. In the long term, coordinated planning and budgeting for infrastructure and other investments will save the public money and promote a more vigorous economy.

 

 

·         Integrated infrastructure and development strategy

This is one of the areas that could benefit Paramaribo--a more comprehensive approach to investment in infrastructure.  A capital improvement plan would be a useful tool to link planning objectives with both timing and budgeting.  Such 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.

 

·         Business Improvement Districts

The various acts have no provision that we could find for the concept of a Business Improvement District.  Business Improvement Districts are a means to allow local businesses to voluntarily tax themselves to provide a higher standard of service for instance trash pickup, street maintenance, landscaping, and other public services. In Paramaribo, there are opportunities to try out such a system but it would require legislation and discussion to implement.

 

·         Guidelines for properly functioning Historic Preservation organizations (national and local)

The Monuments Act provides for such a framework, but the supporting institutional funding and integration into plans and policies requires a more robust staff. Ways to explore fees for services and perhaps tax policies on the visitor accommodation and services (sales, bed tax) along with operating for-profit businesses are among the ways that Paramaribo’s non-profit preservation groups could increase their capacity.

 

·         University support programs and projects

The University is one of the resources that the city has benefitted from.  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 Program.  We believe that there should be a stronger student presence in the Historic core of Paramaribo.  Creating a program downtown would add to the vibrancy and increase interaction with students while providing more commercial revenue for the local businesses.

 

·         Local events and promotion techniques to build support

The promotion of the Heritage Area has been supported by a variety of cultural activities and events.  Use of social media and integrating heritage, sustainability and planning into the wide array of other organizations’ events and activities are among the areas that could be expanded to get more awareness of the assets and opportunities for people to participate. More attention to public engagement other than the festivals would be helpful in generating more support and ideas for economic activities. Lectures, walking tours and meetings with key stakeholders are among the items that could be enhanced.

 

·         Training programs for skilled building crafts-persons

There are no systematic efforts to train artisans in the skills needed to maintain and reproduce the styles of buildings found in Paramaribo.  This is a huge economic and job creation opportunity and something Suriname could develop and export to other Caribbean sites with significant conservation issues related to wooden buildings. Savannah, Georgia has a training program based there that could be hired to start a program.

 

·         Financial incentives and disincentives e.g. tax credits, liens, façade improvement grants, and property tax overlay districts

One of the topics that were discussed frequently in Paramaribo 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. We are concerned about the waterfront project for this reason.  It might be a useful addition to the city, but it was selected without a process of determining what the other options for funding might have been and where the largest return on investment could occur with limited public funds. Using financial incentives more aggressively to channel private development to more compact and walkable locations using the historic resources of Paramaribo is an area that should be further developed. Many examples exist in US cities using property tax incentives and tax credits for rehabilitation and reuse of historic buildings.  These new incentives could be amendments to the two development area acts mentioned previously, or could be new legislation.

 

·         Code and Planning enforcement

As we discussed, the Planning program needs 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 the management plan could improve the enforcement process.  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 Paramaribo and indeed, the whole country’s cultural assets.  With limited infrastructure and tight finances, it is essential that the public understand and support the use of compact settlement patterns, walkable and bikeable neighborhoods, useful densities and mixed land use.  We see this in the core area of Paramaribo and how vibrant it is.  The management plan is a good starting point for this wider discussion.

 

·         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 win-win situation.

Building the context and setting a discussion framework will entail a wide variety of techniques:

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. In my own experience, individuals who can reach out to underrepresented communities, stakeholders, and decision makers are a tremendous asset. 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.

 

Public Meeting. 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.

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.

 

Charrette. 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.

 

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.

 

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, as in the case of Nanjing.

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 here.

 

Business recruitment and investment strategies

Exemplary statutes and policies elsewhere in the Caribbean

Paramaribo has a weak administrative base for promoting and maintaining their historic patterns and assets.  The issues are structure, implementation and public education to lead the country forward toward a preserving and building on its sustainable and walkable historic model. The area where statues can be strengthened in financial incentives such as tax credits and hotel motel fees that would help support the management. One of this report’s recommendations is more regular interaction among preservation organizations in the Caribbean to share and implement each other’s successes and lessons.

 

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.  There is a need for guidelines on street corridors along the lines of “complete streets” models, which provide for a balance of pedestrian, bike, auto and business activities.  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, the city has 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.  The Waterfront Project could be a model for implementing comprehensive standards for public space design including trails, signage and plantings.

 

Conclusion

 

How well does Paramaribo meet the Valletta Principles and HUL guidelines?

 

Here we have abstracted a summary of the Valletta Principles and HUL Guidelines for reference.  We suggest that these elements be reviewed along with the recommendations at the end 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 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.

 

d.       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.

 

e.       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 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.

 

f.       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.

 

g.       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.

 

h.       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.

 

i.         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.

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.

 

j.        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;

·          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.

 

 

 

Summary of Recommendations:

 

•         Revise and update the legal and administrative framework for planning and development regulations

•         Develop a city vision as the basis for an updated master plan, that incorporates the management plan and its concepts

•         Pay more attention to the historic resources outside the World Heritage boundary—there are significant resources that need to be protected and are part of the overall economic strategy

•         Establish community-based planning to build a better climate for implementation

•         Build neighborhood organizations

•         Engage people in plans early-on

•         Develop community leadership

•         Develop Collaborative Framework for Implementation

•         Reach out to the financial institutions

•         Development and construction community

•         Higher education partnerships for training and demonstration projects

•         Establish more University presence in the downtown

•         Link heritage and urban form to development objectives and capital budget

•         Prioritize properties according to leverage of private investment and social benefits generated by the site

•         Establish a policy of rehabilitation and adaptive reuse over new construction

•         Benchmark goals and objectives—measure and report results

•         Emphasize economic and job benefits of cultural elements

•         Artisan skill building and new jobs

•         Retail improvement from pedestrian amenities and better narrative interpretation

•         Program for civic education using all methods and venues

•         Create hundreds of “partners”

•         Show the benefits and solve the community issues

•         Tie programming to new tax incentives, public improvements and other activities to improve the quality of life

•         Implement existing design guidelines and supplement street corridor rules

•         Provide financial and regulatory incentives for residents and businesses

•         Examine the lessons from other historic cities in the Caribbean and elsewhere, but don’t try to imitate—rather, adapt the idea to the local culture

•         Develop technical exchanges within the region in partnership with organizations like American Planning Association, Inter-American Development Bank, Organization of American States and so-on.

•         Promote dialogues on heritage and culture at already existing conferences and meetings in the Caribbean

 

 

 

Bridgetown, Barbados

 

Summary of Walkability Recommendations

 

1          Focus on better connections to the historic center from the Garrison area

2          Develop a pedestrian-oriented business development strategy in the core area

3          Improve way-finding signage

4          Develop a bike program that involves safety, parking, promotion and awareness

5          Enforce parking rules

6          Use the Constitution River project to establish a larger green-infrastructure and open space network plan for both bike and pedestrian access and storm water management

7          Review public transportation systems and suggest improvement to routes, stops and promotion; consider a fixed-route circulator system along with the possible tram system.

8          Make the best use of the various development agencies to attract private funding for public improvements

9          Re-think the suburbanizing nature of Barbados to use the example of historic Bridgetown for new and redevelopment projects—update the plan and regulation accordingly

 

Possible Project: Fund a streetscape improvement effort to increase access to historic sites and commercial areas, provide better walking conditions and improve wayfinding.

 

 

Background

 

The first English settlers arrived in 1628, taking advantage of the natural harbor at the Careenage, the mouth of the Constitution River. Unlike contemporaneous Spanish colonial cities that obeyed the Law of the Indies with its rigid town planning principles, Bridgetown was not master planned. Instead, the main streets were laid out as needed, such as Broad and High, with a crisscrossing network of secondary roads and alleys spun off as needed. Several private landowners who were given land grants in what is now Bridgetown also contributed to the more organic development of the eventual city’s street pattern. This serpentine, Medieval layout later formed part of the city’s bid for UNESCO World Heritage Site status, as such an urban form is relatively unique to the Caribbean.

 

With the construction of a permanent bridge over the Careenage in 1654, the Town of St. Michael eventually became known as Bridgetown. Its boundaries were fixed by a 1660 law, and not expanded until 1822. During the intervening century and a half, the city bustled as a major seaport for the export of sugar cane, harvested in the interior of the island by African slaves as part of the island’s plantation economy. In 1824, Bridgetown became the seat of the Anglican diocese for Barbados and the Windward Islands, which subsequently elevated St. Michael’s parish church to the status of cathedral. Subsequently, Bridgetown was also elevated from “town” to “city” status. From 1871 to 1885, Bridgetown was the capital not only of Barbados but also all of the British Windward Islands. After that point, Barbados withdrew from the Windward Island colonial union.

 

In the late stage of the colonial era, a committee sought to establish local government in Bridgetown with a mayor, aldermen, and other local officials. This process, initiated in 1925, ultimately resulted in the Local Government Act of 1958, pre-independence. The Royal College of Arms in London prepared a coat of arms for the city in 1960, but the system of local government was abolished in newly independent Barbados in 1967. Although now a historical anomaly, this brief experience with local government is also instructive for some of the city’s current challenges as it does not have an advocate in the form of a mayor, but rather legislators responsible for all of St. Michael’s parish.

 

As the capital of independent Barbados, Bridgetown is home to both historic vernacular buildings – shops and residences, especially mixed-use buildings with ground-level retail and upper-floor residential – as well as monumental architecture befitting its central place in Barbadian society. At the core, along the initial settlement site of the Careenage, are the neo-Gothic Parliament Buildings of Barbados (1870-1874), built of local coral limestone, and fronting National Heroes Square and Independence Square, two of the most significant public spaces in the country. Two blocks away, the Cathedral Church of St. Michael’s and All Angels (1786) is of a similar style and also made of coral limestone. Other significant religious institutions include the Georgian-style St. Mary’s Church (1827), St. Patrick’s Roman Catholic Cathedral (1898), and the Nidhe Israel Synagogue (1831), influenced by a London Sephardic synagogue.

 

                                                                      

 

	Cathedral Church of St. Michaels and All Angels (Source: http://barbadosfreepress.files.wordpress.com/2011/03/barbados-st-michaels-cathedral.jpg)

 

 

 

	The Parliament of Barbados  (Source: http://www.caribbeanelections.com/knowledge/parliament/bb_parliament/default.asp)

 

Approximately 2.2 km (1.3 miles) south along Carlisle Bay from the Bridgetown core, the Garrison consists of colonial administration buildings that now house government ministries, the George Washington House (where the first U.S. president lived during a brief sojourn on the island), the Barbados Museum and Historical Society, and a former parade ground, now known as the Garrison Savannah, which hosts large public events such as Crop Over. Together, Historic Bridgetown and its Garrison were inscribed as a UNESCO World Heritage Site in 2011, comprising 187 hectares (462 acres) and a buffer zone of 321 hectares (793 acres).

 

Existing Literature

 

Bridgetown has been the subject of extensive review for its historical architecture, although less so for its urban planning and form. Treasures of Barbados (Papermac: 1990) by Henry Fraser, based on 13 television programs produced by the Barbados National Trust, covers a full architectural history of the country. Several of Bridgetown’s more monumental structures were featured in Edward Crain’s Historic Architecture in the Caribbean (University Press of Florida: 1994) while The Barbados Garrison and Its Buildings (Macmillan Caribbean: 1990), by Warren Alleyne and Jill Sheppard, focuses on one pole of the UNESCO World Heritage Site. The chattel house, Barbados’ main vernacular form with a few examples in Bridgetown, was given a thorough socio-historical treatment by Stephanie Bergman in Building Freedom: Nineteenth Century Domestic Architecture on Barbados Sugar Plantations (College of William and Mary: 2010). The chattel house was also at the center of polemics about contemporary socio-economic issues in Housing and Housing Policy in Barbados: The Relevance of the Chattel House (University of London: 1992) and Low-Cost Housing in Barbados: Evolution or Social Revolution? (2001: University of West Indies Press) by Mark R. Watson and Robert B. Potter.

 

The city itself was given a thorough historical assessment by Warren Alleyne in Historic Bridgetown, published by the Barbados National Trust in 1978. The work highlights the Trust’s early and extensive advocacy on behalf of the island’s historic assets. To that extent, the A-Z of Barbados Heritage (MacMillan Caribbean: 2003) includes extensive documentation of the city’s founding and development by Henry Fraser. More academic studies have been published as well, such as Pedro L. V. Welch’s Slave Society in the City: Bridgetown, Barbados 1680-1834 (Ian Randle Publishers: 2003). The book is considered to be one of the first studies of the city’s colonial past by a contemporary historian and could serve as a useful guide for further heritage planning efforts.

 

Finally, the effort to achieve UNESCO World Heritage Site status has generated a small but very relevant body of literature. Historic Bridgetown and its Garrison were added to the UNESCO Tentative List in 2005, alongside the Scotland District (a natural heritage site) and The Industrial Heritage of Barbados: The Story of Sugar (a serial cultural heritage site). Like historic cities, the latter is common to several Caribbean countries, and in their article “The Industrial Heritage of Sugar at World Heritage Sites in the Caribbean,” Tara Inniss and Lee Jolliffe situate the Barbadian site in the context of a Cuban site on the UNESCO register and a tentative site in the Dominican Republic. Stressing “the possibilities of heritage tourism” as well as “the significant potential for the economic development and engagement of local communities,” the authors, writing in Sugar Heritage and Tourism in Transition (Channel View: 2012), edited by Jollife, offer lessons relevant to historic cities that seek UNESCO designation. Specifically, they discuss the “psychosocial distancing of Barbadians from their plantation history,” which certainly extends to historic buildings that represent the colonial past. Recognizing that “memorializing only the built heritage of the colonizer does little to convince many Barbadians,” they point out that “emphasis must also be placed on researching and presenting both the tangible and intangible heritage of the descendants of enslaved Africans to ensure the sustainable development and protection of Barbadian cultural heritage.”

 

Bridgetown ultimately succeeded where The Story of Sugar has not yet, and thus has the opportunity to pioneer some of the approaches that will make other UNESCO sites accurately reflect contemporary Caribbean society and not just a European colonial past. That said, while the existing historical studies and architectural assessments of Bridgetown all buttressed the nomination, as did the preparation of a thorough and detailed management plan, some heritage experts feel that politicking may have led to slightly hasty inscription. Lynn Meskell, writing in the Journal of Field Archaeology in 2012, argues, “Previously, properties like Historic Bridgetown in Barbados or sites in the Mongolian Altai would have been deferred and potentially brought forward the following year after demonstrating compliance. […] At the Paris meeting, however, the merits for inscription were not deemed necessary in advance, but were more often seen as delayed provisions” (“The rush to inscribe: Reflections on the 35^th Session of the World Heritage Committee, UNESCO Paris, 2011”).

 

Nevertheless, the euphoria that followed the announcement in 2011 has steadily picked up steam, especially among local media. In 2012, the Barbados Hotel and Tourism Association’s in-room magazine, Ins & Outs of Barbados, published a special edition commemorating the inscription of Historic Bridgetown and Its Garrison. Featuring full-page photo spreads, meticulous historical essays by the Barbados National Trust, and salutes from leading government and private sector figures, the issue highlights the seriousness with which the tourism industry treats the UNESCO inscription as a vehicle to promote heritage tourism. The Barbados Advocate, the country’s paper of record, has also taken a supportive tack. Henry Fraser, past president of the Trust, writes a weekly column in the paper, “Things That Matter,” and regularly addresses the UNESCO World Heritage Site as well as heritage matters more broadly. Separately, the paper regularly covers events and activities in Bridgetown and the Garrison.

 

Current Preservation Policies

 

Bridgetown benefits from a long history of legislative and administrative policies that help support the conservation of historic resources.  These include:

 

• National Trust Act of 1961
• 1984 Inventory of National Trust Listed Buildings
• National Physical Development Plan (amended 2003)
• Town and Country Planning Act – Cultural Heritage Subsections
• Management Plan for UNESCO World Heritage Site: Historic Bridgetown and its Garrison
• Cultural Industries Bill
• The Revitalize Bridgetown Initiative / Bridgetown Alive (Chamber of Commerce)

 

In the well-designed and written Management Plan for Historic Bridgetown and its Garrison, these underpinnings are highlighted. The Barbados National Trust has a mandate to promote

“the preservation of places of historic and architectural interest and of ecological importance or natural beauty.”  In 1961, the addition of ecological and scenic elements to a preservation act was relatively rare. Under the Town and Country Planning Act, the Trust acts in an advisory capacity providing comments on listed buildings of significance and sits on the Planning Advisory Committee as well as the World Heritage Committee. The Trust’s Sentinel Committee also monitors potentially endangered historic buildings, but penalties for demolition even of listed buildings are currently far too low to deter real estate developers.

 

One important piece of legislation that relates to our focus on walkability and public transportation is the Road Traffic Act. As we will discuss in our observations and recommendations, the issue of maintaining adequate rights of way for vehicles, bikes and pedestrians as well as signage in the right of way are covered by this Act.

 

Three Development Acts are also important because they provide a framework for the holistic development of specific sites and properties: the Pierhead Development Act, the Special Development Area Act, and the Tourism Development Act. These laws provide for incentives and review processes aimed at improving the physical and economic conditions in Barbados and in particular, Bridgetown.

 

In addition to the many things contained within the Town and Country Planning Act, we wish to draw attention to its provisions for regulation signage as a “development” type.  In the downtown area as well as corridors leading to the downtown, signage can interfere both with rights of way by their physical placement as well as interfere with scenic views, an item referred to above under the 1961 National Trust Act.

 

The legal framework in Barbados contains a solid array of statues dealing with the means to both preserve and create places that are sustainable, walkable and integrated with cultural and natural heritage. The main issues for Barbados and Bridgetown going forward are how to ensure the planning and legal framework that is well established is implemented, decisions are transparent and discussed based on these frameworks and the scarce funds available are prioritized in support of the goals of the plan and the legal structure. Newer legislation, like the Cultural Industries Bill, which supports economic development in the culture sector, can also work in tandem with smart urban planning and design as tangible and intangible cultural heritage are mutually reinforcing.

 

Current Preservation Practices

 

Although not a public policy, The Revitalize Bridgetown Initiative (TRBI) aligns with the stated goals of the National Physical Development Plan to preserve Bridgetown as the country’s commercial hub. Its notable successes thus far deserve special mention. TRBI seeks to extend business hours out of season, on Sundays, and after dark to promote Bridgetown as an active downtown and promote sustainable, long-term businesses that respect the World Heritage Site. Other goals include physical beautification, more street trees and green space, better circulation patterns, and turning Broad Street into a pedestrian-only thoroughfare like Swan Street is currently. A pilot duty-free day was a large success and the Chamber is pushing to make Bridgetown a full-time duty-free zone.  An attempt at a VAT-free day was not approved.

85% of Bridgetown is commercial, almost entirely small businesses, although there are some larger businesses including Cave Shepherd (a department store) and some companies in the banking and insurance sectors. The Chamber has conducted surveys and inventories to arrive at the figure of 1,900 businesses in the city.

 

Starting in July 2010, the Chamber partnered with the National Cultural Foundation to organize Bridgetown Alive, which, for example, brought key musical events of the annual Crop Over festival into town (such as Pan in de City), highlighting the potential for the physical heritage site of Bridgetown to serve as a stage for Barbados’ intangible cultural heritage. Although using public space in town involves significant red tape, the Chamber has a track record. For example, in addition to Pan in de City, they have hosted a fashion show for local clothing designers as a platform for entrepreneurs to showcase their work. In another event, the Chamberlain Bridge over the Careenage became a pop-up cocktail lounge. The Chamber also organizes the Friday after work Port Lime, which happens every week for the 10 weeks leading up to Crop Over. All of these events are positive steps to making Bridgetown a viable destination outside of regular business hours, thus driving foot traffic and adding to the general perception that Bridgetown is safe, fun, and worth visiting.

 

Indeed, the Crop Over season, which runs from June to August, coincides with the anniversary of Bridgetown’s inscription as a World Heritage Site. The National Cultural Foundation, in partnership with Barbados Tourism Investment, Inc., recently completed its second season of heritage walking tours, which are regularly oversubscribed. The amount of interest bodes well for possible year-round walking tours that could be of interest to the plethora of international tourists, especially cruise ship passengers who disembark at the city’s deep-water port and more often than not are whisked to the interior without visiting Bridgetown proper.

 

 

 

 

 

 

 

Tools and Techniques Available to Improve Livability and Walkability

                          

• Planning framework and expertise

Overall, as we discussed in the legal framework above, Barbados has a sophisticated planning framework and expertise. The staff available have skills and ability but in my evaluation, there seems to be a need for more staff to accommodate the pressures on development review and ensure the mandates of all the various acts and functions are adequately managed. The Physical Development Plan is a good document although since it was amended in 2003, many aspects of planning and the issues on the island have changed.  Adequate resources for an update that incorporates many of the issues around sustainability, walkability and development guidelines should be allocated to the Town and Country Development Planning Office.

 

• Integrated infrastructure and development strategy

This is one of the areas that could benefit Barbados and Bridgetown from a more comprehensive approach to investment in infrastructure.  While there are special districts and development corporations along with the Heritage Area Plan, a capital improvement plan (CIP) would be a useful tool to link planning objectives with both timing and budgeting.  Such 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.

 

• Business Improvement Districts (BIDs)

As we have mentioned, the various development acts have some elements of the concept of a business improvement district, but not all.  BIDs are a means to allow local businesses to voluntarily tax themselves to provide a higher standard of service for instance trash pickup, street maintenance, landscaping, and other public services. In Bridgetown, there are opportunities to try out such a system but it would require legislation and discussion to implement. The Barbados Chamber of Commerce, with its already robust Bridgetown Alive

 

• Guidelines for properly functioning historic preservation organizations (national and local)

The National Trust Act provides for such a framework, but the Barbados National Trust funding and integration into so many plans and policies requires a more robust staff. The government should consider ways to explore fees for services and perhaps tax policies on visitor accommodation and services (sales, bed tax) along with operating for profit businesses are among the ways that the Trust could increase their capacity.

 

• University support programs and projects

There should be a stronger student presence in the historic core of Bridgetown, rather than just at the suburban Cave Hill campus. There has been discussion about the University of the West Indies occupying the Barbados Mutual Life Assurance Society Building on Broad Street, which would add to the vibrancy and increase interaction with students while providing more commercial revenue for the local businesses and creating demand for bars, restaurants, cafés, etc.

 

• Local events and promotion techniques to build support

The promotion of the heritage area has increased this year with a whole month of activities including lectures, walking tours and events.  Use of social media and integrating heritage, sustainability and planning into the wide array of other organizations’ events and activities are among the areas that could be expanded to get more awareness of the assets and opportunities for people to participate.

 

• Training programs for skilled building crafts-persons

There are no systematic efforts to train artisans in the skills needed to maintain and reproduce the styles of buildings found in Barbados.  This is a huge economic and job creation opportunity and given Barbados advanced planning and preservation legal and administrative framework, could be something the island could develop and export to other Caribbean nations while demonstrating how they can build their own capacity. Savannah, Georgia has a training program based there that could be hired to start a program and the Samuel Jackman Prescod Polytechnic could host the program locally.

 

• Financial incentives and disincentives e.g. tax credits, liens, façade improvement grants, and property tax overlay districts

One of the topics that were discussed frequently in Barbados 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 suburban style infrastructure projects. Using financial incentives more aggressively to channel private development to more compact and walkable locations using the historic resources of Bridgetown is an area that should be further developed. Many examples exist in U.S. cities using property tax incentives and tax credits for rehabilitation and reuse of historic buildings.  These new incentives could be amendments to the two development area acts mentioned previously, or could be new legislation.

 

• Code and planning enforcement

As we discussed, the Town and Country Development Planning Office needs more 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 already established with the Heritage management plan could improve the enforcement process.  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 Bridgetown and indeed, the whole islands’ cultural assets.  With so little land area and tight finances, it is essential that the public understand and support the use of compact settlement patterns, walkable and bikeable neighborhoods, useful densities and mixed land use.  We see this in the core area of Bridgetown and how vibrant it is.  The heritage plan is a good starting point for this wider discussion.

 

• 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, local officials can have their short-term projects and visible achievements, but within an overall strategy—a win-win situation.

Building the context and setting a discussion framework will entail a wide variety of techniques:

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. In my own experience, individuals who can reach out to underrepresented communities, stakeholders, and decision makers are a tremendous asset. 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.

 

Public Meeting. 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.

 

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.

 

Charrette. 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.

 

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.

 

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.

 

Civic engagement is essential to good planning and good governance. Using the outline here and some of the tools and techniques that apply to the Barbadian situation, it will be possible to improve the quality of life in Bridgetown for residents and visitors alike. A detailed guide with more case studies from the U.S. can be found here.

 

Business recruitment and investment strategies           

 

Exemplary statutes and policies elsewhere in the Caribbean

Barbados has a very solid legal base for promoting and maintaining its historic patterns and assets.  The issue is more of implementation and public education to lead the country forward toward a more sustainable and walkable model, based on Bridgetown, than the patterns of suburban sprawl that have gained more support recently. The area where statues can be strengthened in financial incentives such as tax credits and hotel/motel fees that would help support the National Trust and its work in support of the Town and Country Development Planning Office’s efforts to administer a variety of laws and regulations.

 

Design guidelines

There are a variety of standards for the protection of historic sites, open spaces and views, but again, the enforcement of the current guidelines and the staff ability to properly review development alterations and proposals seems to be the weak point. There is a need for guidelines on street corridors along the lines of “complete streets.” The rights of ways are infringed upon and the property owners to dates have not been challenged in most cases. Walkability is severely constrained by lack of corridor management and street design standards that 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, the city has 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. The Constitution River Project could be a model for implementing comprehensive standards for public space design including trails, signage and plantings.

 

 

Conclusion

 

How well does Bridgetown meet the Valletta Principles and HUL guidelines?

 

Here I have abstracted a summary of the Valletta Principles and HUL Guidelines for reference.  I suggest that these elements be reviewed along with the recommendations at the end 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 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.

 

 

 

d.       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.

 

e.        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 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.

 

f.       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.

 

g.       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.

 

h.       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.

 

i.         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.

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.

 

j.        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;

‐ 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.

 

Summary of Recommendations

 

•         Establish community-based planning to build a better climate for implementation

•         Build neighborhood organizations

•         Engage people in plans early-on

•         Develop community leadership

•         Develop collaborative framework for implementation

•         Reach out to financial institutions, as well as real estate development and construction community

•         Communicate with Barbadian community overseas

•         Higher education partnerships for training and demonstration projects, especially at the Samuel Jackman Prescod Polytechnic

•         Establish more university presence in the downtown, along the lines of UWI’s plans to occupy the Barbados Mutual Life Assurance Society Building on Broad Street

•         Link heritage and urban form to development objectives and capital budget

•         Prioritize properties according to leverage of private investment and social benefits generated by the site

•         Establish a policy of rehabilitation and adaptive reuse over new construction

•         Benchmark goals and objectives—measure and report results

•         Emphasize economic and job benefits of cultural elements

•         Artisan skill building and new jobs

•         Retail improvement from pedestrian amenities and better narrative interpretation of historic Bridgetown

•         Build on existing efforts to bring Crop Over activities into Bridgetown

•         Program for civic education using all methods and venues

•         Create hundreds of “partners”

•         Show the benefits and solve the community issues

•         Tie programming to new tax incentives, public improvements and other activities to improve the quality of life

•         Implement existing design guidelines and supplement street corridor rules

•         Provide financial and regulatory incentives for residents and businesses

•         Examine the lessons from other historic cities in the Caribbean and elsewhere, but don’t try to imitate—rather, adapt their idea to the local culture

•         Develop technical exchanges within the region in partnership with organizations like American Planning Association, Royal Town Planning Institute, Canadian Institute of Planners, Inter-American Development Bank, Caribbean Development Bank, CARICOM, Organization of American States, USAID, U.S. Ambassador’s Cultural Fund, Commonwealth Foundation, UK National Trust, International Council on Monuments and Sites, UN-Habitat, UN World Tourism Organization, UNESCO, and other potential partners.

•         Promote dialogues on heritage and culture at already existing conferences and meetings in the Caribbean, such as Caribbean Urban Forum, Congress of the International Association for Caribbean Archaeology, Caribbean Studies Association, and regional gatherings of international organizations.

 

St. George’s, Grenada

 

Summary of Walkability Recommendations

 

1          Focus on safer pedestrian connections to the historic Carenage from the waterfront

2          Improve pedestrian-oriented businesses and recruitment for vacant and under-used buildings

3          Update way-finding signage

4          Step up historic protection and enforcement on the built environment in the city

5          Enforce parking rules

6          Improve public open space and facilities, for instance the area around the cruise-ship port and the Carenage.

7          Review public transportation systems and suggest improvement to routes, stops and promotion; consider a fixed-route circulator system from the University and other key points.

8          Develop a stronger link to the students and faculty at the University; establish a presence in the downtown; improve awareness and outreach to the students.

9          Improve revenue for public amenities by an economic development strategy, e.g. take advantage of international development interests to help restore major buildings and sites damaged by Hurricane Ivan.

10        Pursue World Heritage designation for the Fortifications and include the center city in the buffer area.

 

Possible Development Project:

Redevelop the government house and site for a public-private venture including offices, cultural activities and conference uses.

 

Background

 

The capital city of Grenada was started by the French in the 1650’s. Their presence is visible in the red roofed houses common throughout the city and in certain architectural aspects of the military fortifications that ring the city from its hilltops. In 1762, the British captured Grenada during the Seven Years’ War, and it subsequently remained a British colony until independence in 1974. St. George’s developed as an important commercial port, especially for the island’s spice trade. The British added to the military fortification system and constructed administrative buildings. From 1885 to 1960, St. George’s served as the capital of the British Windward Islands. In 1983, a coup led to a brief military government, which executed several prominent political figures, including Prime Minister Maurice Bishop, inside Fort George.

 

 

Existing Literature

 

While the 1983 U.S. invasion of Grenada has generated a number of political books on the island, the literature on the capital, St. George’s, and its built heritage is limited.  The Grenada National Trust developed Architectural Design Guidelines for St. George’s, Grenada in 1988 with the assistance of USAID. The Grenada National Museum has published several books by Michael Jessamy, Heritage Conservation Officer with the Ministry of Tourism Forts of Grenada (1983); Architectural Heritage of Grenada (1986); Forts and Coastal Batteries of Grenada (1998); St. George's: the Prettiest Town in the Caribbean (with George Brizan, 2004). One would suspect that the military fortifications, especially Fort George, with its original 18^th century example of a Vauban-style masonry fortress, would attract more attention from scholars of military architecture.

 

Key Recommendations

 

Some of the recommendations that we make in the report below, we emphasize here to be certain that they are not missed:

• There must be a serious inventory and listing of the key buildings, streets and public areas
• Updated legislation and rules on redevelopment use, form and design are needed
• Development plan needs to be updated and enforced by creating a Development Corporation with authority to act independently once given a mandate and guidelines
• Government House site redevelopment should be a priority for outside partnership/funding
• Decision makers need to see the value of the existing city and its form and let the local advocates and design community take the lead on many of the ideas and actions.
• The citizens should be engaged in a public awareness campaign to support and advocate for the protection of St. George’s’ unique character
• Create a Planning Commission to oversee enforcement and design review to reduce the urge to react to local political pressures on specific proposals
• Engage the Trustees and leaders of St. George’s University to find more means of collaboration and support.

 

Current Preservation Policies and Practices

 

The St. George’s Fortified System was placed on UNESCO’s Tentative List in 2004. While the focus of the World Heritage Site itself would be the forts, the buffer zones would encompass the town below, thus incorporating St. George’s proper into a World Heritage Site.  The Physical Planning Unit prepared conservation guidelines for St. George’s in 2009 that address restoration, signage, open space, demolition, and new construction. This document also outlines a proposed heritage conservation area for the town of St. George’s and proposed planning controls within conservation areas.

 

In addition, St. George’s benefits from a long history of legislative and administrative policies that help support the conservation of historic resources.  These include:

 

National Trust Act of 1967

Grenada National Trust Strategic Plan

St. George’s Development Plan

 

In the well-designed and written Strategic Plan 2013-2017, these underpinnings are highlighted. The Grenada National Trust has a mandate to promote “the preservation of places of historic and architectural interest or national beauty.”  The Trust acts in an advisory capacity providing comments on listed buildings of significance and sits on the Planning Advisory Committee. It may also generate funds through ownership of properties.

 

There are also currently development plans for the Carenage and the Port. We have not reviewed the legislation for these programs but it is important that the development management authority should allow such special development bodies to buy and sell property and have the ability to act once they have been established.

 

Framework Summary

The legal framework in Grenada contains statues dealing with the means to both preserve and create places that are sustainable, walkable and integrated with cultural and natural heritage. The main issues for Grenada and St. George’s going forward are:

• how to ensure the planning and legal framework that is established is implemented,
• decisions are transparent and discussed based on these frameworks and,
• Scarce funds available are prioritized in support of the goals of the plan and the legal structure.

 

The planning framework is generally solid and staffed with professionals who are supplemented by private citizens’ experience and expertise.  The key is coordinating everyone’s general appreciation and knowledge into a cohesive strategy beyond the Trust itself into a St. George’s-wide strategic plan along with appropriate revisions to existing statues to reflect the current situation.  We have included my synopsis of the Valetta Principles and the Historic Urban Landscape Guidelines (HUL) as a good basis for reviewing and updating the legal and administrative system in Grenada and St. George’s.

 

Outline of the tools and techniques available to improve livability and walkability

 

Planning framework and expertise

Overall, as we discussed in the legal framework above, Grenada has a sound planning framework and expertise. The staff available have skills and ability but in my evaluation, there seems to be a need for more staff to accommodate the pressures on development review and ensure the mandates of all the various acts and functions are adequately managed. The St. George’s Development Plan is a good basis for integrating heritage conservation into the overall strategy. We would suggest that my comments and recommendations on design guidelines, integrating green infrastructure and improving circulation and walkability be among the areas to deepen the administrative and code support.  Adequate resources for an update that incorporates many of the issues around sustainability, walkability and development guidelines should be allocated to the Planning Office.

 

Integrated infrastructure and development strategy

This is one of the areas that could benefit Grenada and St. George’s from a more comprehensive approach to investment in infrastructure.  While there are special districts within the Development Plan, a Capital Improvement plan would be a useful tool to link planning objectives with both timing and budgeting.  Such 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 (ROI) 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.

 

Business Improvement Districts

As we have mentioned the various development acts have some elements of the concept of a Business Improvement District, but not all.  Business Improvement Districts are a means to allow local businesses to voluntarily tax themselves to provide a higher standard of service for instance trash pickup, street maintenance, landscaping, and other public services. In St. George’s, there are opportunities to try out such a system but it would require legislation and discussion to implement.  The area along the Atlantic Coast near the cruise ship dock and the public market area are two possibilities.

 

Guidelines for properly functioning Historic Preservation organizations (national and local)

The Historic Preservation act provides for such a framework, but the Grenada national Trust funding and integration into so many plans and policies requires a more robust staff. Their Strategic Plan is a good framework for improving their impact over time. The Plan includes exploring fees for services and perhaps tax policies on visitor accommodation and services (sales, bed tax) along with operating for-profit businesses are among the ways that the Trust could increase their capacity.  The David Lesterhuis report (2004) is still very applicable and should be part of a renewed effort to manage the historic resources including the fortifications.

 

 

 

The Fortifications Nomination for World Heritage should reinforce the Development Plan

 

University support programs and projects

St. George’s University is a great resource for Grenada and accounts for 25% of the national GDP.  Unfortunately, the campus is rather isolated and students have little engagement with St. George’s. We believe that there should be a stronger student presence in the Historic core of St. George’s, rather than just the suburban campus.  We would strongly encourage more discussion about the University creating a program downtown that could focus on continuing education, certificates and engagement of the local population in educational offerings, along with opportunities for structuring classes for the current students. This would add to the vibrancy and increase interaction with students while providing more commercial revenue for the local businesses.

 

Local events and promotion techniques to build support

The promotion of the Potential World Heritage Area should include a variety of activities such as lectures, walking tours and events.  Use of social media and integrating heritage, sustainability and planning into the wide array of other organizations’ events and activities are among the areas that could be expanded to get more awareness of the assets and opportunities for people to participate. Public education comes up many times throughout this report and it is a serious issue as well as a great opportunity.

 

Training programs for skilled building crafts-persons

There are no systematic efforts to train artisans in the skills needed to maintain and reproduce the styles of buildings found in Grenada.  This is a huge economic and job creation opportunity and given Grenada advanced planning and preservation legal and administrative framework, could be something the Island could develop and export to other Caribbean nations while demonstrating how they can build their own capacity. Savannah, Georgia has a training program based there that could be hired to start a program. This should be one of the highest priorities because it is both essential for the maintenance of the current physical stock and for the economic potential for homegrown jobs. Every local technique and material used reduces the countries import price tag.

 

Financial incentives and disincentives e.g. tax credits, liens, façade improvement grants, and property tax overlay districts

One of the topics that were discussed frequently in Grenada 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. St. George’s has not suburbanized as much as other Caribbean cities and so this pattern needs to be reinforced by strict attention to infrastructure improvements in the existing urban area. Using financial incentives more aggressively to channel private development to more compact and walkable locations using the historic resources of St. George’s is an area that should be further developed. Many examples exist in US cities using property tax incentives and tax credits for rehabilitation and reuse of historic buildings.  These new incentives could be amendments to the two development area acts mentioned previously, or could be new legislation.

 

Code and Planning enforcement

As we discussed, the Planning Bureau needs more staff along with more eyes and ears on the street to help with code enforcement and planning.  Educational seminars should be held for business owners and interested citizens on the current plan, the rules and regulations and the remedies for violations so that more attention can be paid to the quality of the city’s development. Using stronger public participation and partnerships that are already established could improve the enforcement process.  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 St. George’s and indeed, the whole islands’ cultural assets.  With so little land area and tight finances, it is essential that the public understand and support the use of compact settlement patterns, walkable and bikable neighborhoods, useful densities and mixed land use.  We see this in the core area of St. George’s and how vibrant it is.  The development plan is a good starting point for this wider discussion.

Attention to design is critical to avoid intrusions that are out of character

 

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 win-win situation.

Building the context and setting a discussion framework will entail a wide variety of techniques:

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. In my own experience, individuals who can reach out to underrepresented communities, stakeholders, and decision makers are a tremendous asset. 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.

 

Public Meeting

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.

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.

 

Charrette

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.

 

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.

 

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, as in the case of Nanjing.

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 here.

 

 

Business recruitment and investment strategies

Exemplary statutes and policies elsewhere in the Caribbean

Grenada has a very solid legal base for promoting and maintaining their historic patterns and assets.  The issue is more of implementation and public education to lead the country forward toward a more sustainable and walkable model, based on St. George’s, than the patterns of suburban sprawl that have gained more support recently. The area where statues can be strengthened in financial incentives such as tax credits and hotel motel fees that would help support the national trust and its work in support of the Town and Country Planning Bureau’s efforts to administer a variety of laws and regulations.

 

Design guidelines

There are a variety of standards for the protection of historic sites, open spaces and views, but again, the enforcement of the current guidelines and the staff ability to properly review development alterations and proposals seems to be the weak point.  There is a need for guidelines on street corridors along the lines of “complete streets”.  The rights of ways are infringed upon and the property owners to dates have not been challenged in most cases.  Walkability is severely constrained by lack of corridor management and street design standards that 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, the city has 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.  The Carenage Redevelopment Project could be a model for implementing comprehensive standards for public space design including trails, signage and plantings.

 

There are many under-utilized spaces in prominent locations that could be enhanced.

 

 

 

Conclusion

 

How well does St. George’s meet the Valletta Principles and HUL guidelines?

 

Here we have abstracted a summary of the Valletta Principles and HUL Guidelines for reference.  We suggest that these elements be reviewed along with the recommendations at the end 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 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.  (NairobiRecommendation 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.

 

d. 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.

 

e. 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 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.

 

 

f. 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.

 

g. 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.

 

h. 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.

 

i. 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.

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.

 

j. 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.

 

 

St. George’s needs an overall strategy for the government and private interests to work together

 

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;

‐ 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.

 

Even though St. George’s is compact and walkable, efforts are needed to focus resources on that asset

 

Summary of Recommendations:

 

•         Review and update the planning rules and regulations based on integration of participation, planning, development and management.  Follow elements in the Valetta Principles above.

•         Vigorously pursue World Heritage status for the fortification system

•         Draw the buffer zone in such a way as to protect and enhance the historic core city

•         Establish community-based planning to build a better climate for implementation

•         Build neighborhood organizations

•         Engage people in plans early-on

•         Develop community leadership

•         Develop Collaborative Framework for Implementation

•         Reach out to the financial institutions

•         Development and construction community

•         Higher education partnerships for training and demonstration projects

•         Engage the University in ways to better integrate the institution into historic St. George’s

•         Establish more University presence in the downtown

•         Link heritage and urban form to development objectives and capital budget

•         Prioritize properties according to leverage of private investment and social benefits generated by the site

•         Establish a policy of rehabilitation and adaptive reuse over new construction

•         Benchmark goals and objectives—measure and report results

•         Emphasize economic and job benefits of cultural elements

•         Artisan skill building and new jobs

•         Retail improvement from pedestrian amenities and better narrative interpretation

•         Program for civic education using all methods and venues

•         Create hundreds of “partners”

•         Show the benefits and solve the community issues

•         Tie programming to new tax incentives, public improvements and other activities to improve the quality of life

•         Implement existing design guidelines and supplement street corridor rules

•         Provide financial and regulatory incentives for residents and businesses

•         Examine the lessons from other historic cities in the Caribbean and elsewhere, but don’t try to imitate—rather, adapt the idea to the local culture

•         Develop technical exchanges within the region in partnership with organizations like American Planning Association, Inter-American Development Bank, Organization of American States and so-on.

•         Promote dialogues on heritage and culture at already existing conferences and meetings in the Caribbean

 

Promoting and engaging outside private investment would help restore and put these priceless resources to work for St. George’s and Grenada

 

Port of Spain, Trinidad

 

Summary of Walkability recommendations:

 

1          Link heritage and urban form to development objectives and capital budget

o   Prioritize properties according to leverage of private investment and social benefits generated by the site

o   Establish a policy of rehabilitation and adaptive reuse over new construction

2          Benchmark goals and objectives—measure and report results

3          Emphasize economic and job benefits of improving access to retail areas from pedestrian amenities and better way finding and interpretation

4          Implement existing design guidelines and supplement street corridor rules

5          Examine the lessons from other historic cities in the Caribbean and elsewhere, but don’t try to imitate—rather, adapt the idea to the local culture

6          Develop technical exchanges within the region in partnership with organizations like American Planning Association, Inter-American Development Bank, Organization of American States and so-on.

7          Promote dialogues on heritage and culture at already existing conferences and meetings in the Caribbean

 

Possible Project:

Finish the revitalization of Woodford Square buildings using public private partnerships.  The core city has much potential for redevelopment including housing and this is a key place to start.

 

Background

 

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 project.

 

Port of Spain became the capital city of Trinidad in 1784 and began its life as a small fishing village in the early 1700s.  However 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 labour of enslaved people and an import/export trade[1]. 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.[2]

 

 

“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.”[3]

 

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[4].

 

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”[5].

 

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 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.

 

 

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 – Vol 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. 

 

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. 

 

 

 

 

 

Current Preservation Policies and Practices

 

Like most of the Anglophone Caribbean, Trinidad & Tobago has a national trust, established by an Act of parliament in 1991 and enacted in 1999. Unlike other countries, such as Barbados, Grenada, and Jamaica, the National Trust of Trinidad is housed in a government ministry. It currently lags far behind its counterparts on other islands because of a bureaucratic legal issue in which permission from the Attorney General to list buildings on the register of historic places has not yet been ascribed to the National Trust.

 

However, Trinidad has on active preservation advocacy group, Citizens for Conservation, which was founded in 1985 following the 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 listed three sites on the UNESCO World Heritage Tentative List. None of them were for urban heritage, however.

 

The sites’ built environment quality for pedestrians and cyclists vis-à-vis automobile traffic and overall functionality as historic urban space:

 

Both areas are walkable in scale but lack amenities, especially shade trees that once were 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.  In addition, the general upkeep of the built environment is poor with a particular example of the Independence Square corridor, which is in poor condition, although quite heavily used.

 

Investment decisions like the National Academy for Performing Arts (shown above) should be made with public involvement and according to long term plans.

 

 

The site’s adherence to sustainable community principles and UNESCO historic preservation principles:

 

There is little appreciation evident for the original city center and the East Port of Spain Neighborhood suffers from a sense of fear and that crime is out of control, even though many areas of East Port of Spain seem relatively safe and occupied by caring residents of mixed income. As a result of neighborhood tensions and general lack of communication free of conditioned and strong stereotypes, few of the conversations indicated any awareness or thought of the basic principles of UNESCO or the Valletta principles.

 

The site’s national and local policy and institutional frameworks:

 

Weak regulations and negative attitudes about the existing environment in both the historic downtown and East Port of Spain combine to create disinvestment in both areas. The Historic Preservation laws have never been implemented and compared to other Caribbean countries such as Jamaica and Barbados, Trinidad in general lags far behind.

 

The site’s local economic development existing practices and potential:

 

The only current positive effort underway is the designation of Port of Spain as an Emerging and Sustainable City under the Inter-American Development Bank’s program.  This framework combining historic preservation, jobs creation and investment in the two areas 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 here. Investments that were seen on the site visit don’t suggest any strategic thought or planning regarding return on investment.  For example the Concert Hall is an example of a huge investment without analysis, public participation or comprehensive planning. 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 more of the Port of Spain and East Port of Spain populations.

 

The site’s local cultural development existing practices and potential:

 

There is a huge potential for both the intangible and tangible heritage of these areas.  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.

 

One of many underutilized neighborhood resources in East Port of Spain

 

The sites’ seamless integration into surrounding land uses and potential for influencing development and settlement patterns elsewhere in the city or country:

 

There is a lack of attention and investment in both areas due to economic disparities, crime, the perception of crime, and lack of dialogue on the unsustainable suburbanization patterns that are driven by fear and largely unmanaged and unplanned development.  People generally seek to escape the downtown and avoid East Port of Spain if they have the means and escape to the suburbs.  Development rules are lax and do not attempt to control or manage development to take advantage of the two walkable and human scale areas in Port of Spain.

 

Recent investments are not creating value or the kind of environment to attract businesses or residents

 

 

General recommendations for CARICOM’s regional urban agenda:

 

1. Convene both local neighborhood discussions and a region-wide discussion among all stakeholders on planning, policies and options for future scenarios.  Public participation needs to be bolstered and realistic analysis of the conditions presented by the local experts available.

 

2. Case studies from successful Caribbean communities need to be compiled to demonstrate the methodologies, costs and laws that are working elsewhere in the region.

 

3. A physical inventory of the built assets along with a revised set of policies and investment strategies, including international marketing, needs to be started.  This also will help engage more of the community in the planning process.

 

4. Government agencies should participate in the vision process and use the IDB framework to improve coordination, reduce overlap and set fiscal and policy priorities.

 

 

Outline of the tools and techniques that should be further examined to improve livability and walkability:

 

Pedestrians are often at a disadvantage in Port of Spain, in spite of its generally compact nature.

 

Planning framework and expertise

There really is not much of a planning framework in Trinidad and Port of Spain.  In addition to a lack of attention to the overall urbanization, the basic tools of a comprehensive plan and a capital improvement plan are absent.  The IDB did a very good strategic planning document which we find compelling and on point, but the issue is, who is going to implement it?

 

Integrated infrastructure and development strategy

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.  Good planning requires 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 in Port of Spain. Such 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.

 

Business Improvement Districts

The various legal frameworks have no provision that we could find for the concept of a Business Improvement District.  Business Improvement Districts are a means to allow local businesses to voluntarily tax themselves to provide a higher standard of service for instance trash pickup, street maintenance, landscaping, and other public services. In Port of Spain, there are opportunities to try out such a system but it would require legislation and discussion to implement. The development corporation has done a strategy and has many useful ideas, but it has no authority. It is essential to set up a true development corporation that has the ability to buy and sell property, assess fees and collect revenue through development services and projects.

 

 

Downtown needs a development strategy perhaps a Business Improvement District

 

Guidelines for properly functioning Historic Preservation organizations (national and local)

The Trinidad national Trust funding and integration into plans and policies requires a more robust support system. It has been tied up in legal limbo since 1991, while other Caribbean nations have made progress in designating and preserving all types of heritage, no property has yet been designated in Trinidad. There is a Citizens group that promotes preservation but they have struggled to gain traction and support. Ways to explore fees for services and perhaps tax policies on the visitor accommodation and services (sales, bed tax) along with operating for profit businesses are among the ways that the Trust could increase their capacity. Some neighborhood preservation activities are evident but at a very low scale and without support from a vibrant national non-governmental organization or the government.

Stronger education and outreach may result in support for heritage protection and development

 

University support programs and projects

The University of the West Indies is one of the resources that the city has benefitted from.  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.  We believe that there should be a stronger student presence in the historic core of Port of Spain and East Port of Spain.  Creating a program downtown would add to the vibrancy and increase interaction with students while providing more commercial revenue for the local businesses. Because they are located in Trinidad, the university can and should provide more authority and support to improve governance and planning along with implementation tools.

 

Local events and promotion techniques to build support

The promotion of historic resources both colonial and post-colonial has not been supported by the government or the general public through events, festivals and other activities. A wide array of resources exist that could be showcased to demonstrate the value of the heritage in both Port of Spain and East Port of Spain.  Use of social media and integrating heritage, sustainability and planning into the wide array of other organizations’ events and activities are among the areas that could be expanded to get more awareness of the assets and opportunities for people to participate. More attention to public engagement other than the festivals would be helpful in generating more support and ideas for economic activities. Lectures, walking tours and meetings with key stakeholders are among the items that could be enhanced.

 

Training programs for skilled building crafts-persons

There are no systematic efforts to train artisans in the skills needed to maintain and reproduce the styles of buildings found in Port of Spain.  This is a huge economic and job creation opportunity and something Trinidad could develop and export to other Caribbean sites with significant conservation issues related to wooden buildings. Savannah, Georgia has a training program based there that could be hired to start a program. The development industry in Barbados strongly supports historic preservation and is engaged in all levels, but it is our sense from our experience in Port of Spain that the development community favors more “modern”, aggressive architecture and sees the history as a barrier to “growth”.  In reality, traditional building forms are more sustainable, require fewer imports and could be a basis for more jobs.

 

Financial incentives and disincentives e.g. tax credits, liens, façade improvement grants, and property tax overlay districts

One of the topics that were discussed frequently in Port of Spain 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. The concert hall is an example of an ad-hoc budgeting system that allows a few people to set the priorities without debate or integration into a long-range strategy. Using financial incentives more aggressively to channel private development to more compact and walkable locations using the historic resources of Port of Spain is an area that should be further developed. Many examples exist in US cities using property tax incentives and tax credits for rehabilitation and reuse of historic buildings.  These new incentives could be amendments to existing acts or could be new legislation.

 

Code and Planning enforcement

As we discussed, the Planning program needs 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 could improve the enforcement process.  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 Port of Spain and indeed, the whole country’s cultural assets.  With limited infrastructure and tight finances, it is essential that the public understand and support the use of compact settlement patterns, walkable and bikeable neighborhoods, useful densities and mixed land use.  We see this in the close in neighborhood of Woodbrook and how vibrant it is.  Trinidad needs to decide to embrace planning and public participation before any steps toward a more rational regulatory framework can be made. In addition, the city itself should have more control over local matters including maintenance of public spaces and planning.  As it stands, the national government essentially controls most resources, so local government does not have the tools and wherewithal to be effective at planning and implementation.

 

 

 

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. East Port of Spain has a lot of good case examples for civic involvement but not a responsive government to support their efforts.

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 win-win situation.

Building the context and setting a discussion framework will entail a wide variety of techniques:

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. In our own experience, individuals who can reach out to underrepresented communities, stakeholders, and decision makers are a tremendous asset. 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.

 

Public Meeting 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.

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.

 

Charrette 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.

 

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.

 

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, as in the case of Nanjing.

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 here.

Aruba case study: http://renobacionurbano.com

 

Business recruitment and investment strategies

 

Exemplary statutes and policies elsewhere in the Caribbean

Port of Spain has a weak administrative base for promoting and maintaining their historic patterns and assets.  The issues are structure, implementation and public education to lead the country forward toward a preserving and building on its sustainable and walkable historic model. The area where statutes can be strengthened in financial incentives such as tax credits and hotel motel fees that would help support the management. One of this report’s recommendations is more regular interaction among preservation organizations in the Caribbean to share and implement each other’s successes and lessons.

 

 

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.  There is a need for guidelines on street corridors along the lines of “complete streets” models, which provide for a balance of pedestrian, bike, auto and business activities.  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, the city has 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. 

 

 

Conclusion

 

How well does Port of Spain meet the Valletta Principles and HUL guidelines?

 

Here we have abstracted a summary of the Valletta Principles and HUL Guidelines for reference.  We suggest that these elements be reviewed along with the recommendations at the end and that discussions take place within the community to ensure further application of the principles in the planning and management system. In the case of Port of Spain, this outline could easily become the basis for a more thorough set of ordinances to support a more effective planning structure.  We suggest that the city, the Cultural and Public Works Ministries and the Planning Office review them as a starting point for improving the administrative and planning structure.

 

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 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 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.

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;

‐ 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.

 

 

Summary of Recommendations:

 

•         Revise and update the legal and administrative framework for planning and development regulations

•         Develop a city vision as the basis for an updated master plan, that incorporates the management plan and its concepts

•         Pay more attention to all historic resources--there are significant resources that need to be protected and are part of the overall economic strategy

•         Establish community-based planning to build a better climate for implementation

o   Build neighborhood organizations

o   Engage people in plans early-on

o   Develop community leadership

•         Develop Collaborative Framework for Implementation

o   Reach out to the financial institutions

o   Development and construction community

o   Higher education partnerships for training and demonstration projects

o   Establish more University presence in the downtown

•         Link heritage and urban form to development objectives and capital budget

o   Prioritize properties according to leverage of private investment and social benefits generated by the site

o   Establish a policy of rehabilitation and adaptive reuse over new construction

•         Benchmark goals and objectives—measure and report results

•         Emphasize economic and job benefits of cultural elements

o   Artisan skill building and new jobs

o   Retail improvement from pedestrian amenities and better narrative interpretation

•         Program for civic education using all methods and venues

o   Create hundreds of “partners”

o   Show the benefits and solve the community issues

o   Tie programming to new tax incentives, public improvements and other activities to improve the quality of life

•         Implement existing design guidelines and supplement street corridor rules

•         Provide financial and regulatory incentives for residents and businesses

•         Examine the lessons from other historic cities in the Caribbean and elsewhere, but don’t try to imitate—rather, adapt the idea to the local culture

•         Develop technical exchanges within the region in partnership with organizations like American Planning Association, Inter-American Development Bank, Organization of American States and so-on.

•         Promote dialogues on heritage and culture at already existing conferences and meetings in the Caribbean

 

Implementation

 

The environmental fund from extractive resources which has developed along with the strategy that emerges from the vision effort and the IDB framework should be the blueprint for priorities and execution. A business development strategy focusing on selling historic buildings to investors to begin attracting attention and investments into both POS and EPOS is a top priority.  Implementing the long languishing national Trust legislation coupled with fiscal incentives for rehabbing and improving historic properties is another high priority. Legislation for the EPOS Development Corporation should be amended to give them authority like most Development corporations have to acquire and sell property and to manage and raise funds through bonds and other sources.

 

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[1] Professor Bridget Brereton on the Historical Framework of East Port of Spain (2013)

[2] Professor Bridget Brereton on the Historical Framework of East Port of Spain(2013)

[3] Professor Bridget Brereton on the Historical Framework of East Port of Spain (2013)

[4] Professor Bridget Brereton on the Historical Framework of East Port of Spain (2013)

[5] Professor Bridget Brereton on the Historical Framework of East Port of Spain (2013)