Public Policy and Climate Change: Land-use adaptation strategies in Jamaica

Ms. Kamille Dwyer

Public Policy and Climate Change: Land-use Adaptation Strategies in Jamaica

Presented at the

Climate Change: Impacts on the Caribbean Conference. Sponsored by the University of the West Indies, Mona and the Caribbean Community Climate Change Centre, June 15-17, 2007 University of the West Indies, Mona.

byKamille Dwyer

Outline of Presentation

Potential Impacts of Climate Change

Jamaica’s Vulnerability to Climate Change

The role of Physical Planning in Jamaica

The Challenges facing Jamaica’s Physical Planning System

The role of Jamaica’s Planning System in facilitating Adaptation Strategies to Climate Change

The Challenges

Recommendations

Projected Impacts of Climate ChangeExpected climatic changes in the region include:

Sea level riseSaline intrusion into freshwater aquifersCoastal flooding and erosion

Increased temperaturesHeat stressCoral bleachingBiodiversity lossIncreased emergence of vector borne diseases

Changes in rainfall patternsDroughts or floodsDecreased fresh water availability

Increased intensity of storm activityDirect damage of infrastructureLoss of lives

Jamaica’s Vulnerability

Jamaica’s Vulnerability to climate change is due to several key characteristics:

Geography

Small Physical Size and the fact that it is surrounded by large expanses of water

Proneness to natural disasters

Large Populations with high growth rates and densities

Limited financial and human resources, which have ultimately limited our adaptive capacity

Sea Level Rise Scenario for the Kingston Harbour

Physical Planning in JamaicaPlanning’s Primary Goal is to ensure public health and safetythrough the rational use of land.

In more recent times, planning has adopted a more modern approach tofacilitating land development, and has been used to guide economicdevelopment and provide economic incentives aimed at stimulating growth. Inthe last 10 years planning has become a major avenue for facilitating publicparticipation.

Planning has two Functions: Development PlanningDevelopment Control

The Planning System in Jamaica is supported by three frameworks:

Legislative FrameworkThe Institutional FrameworkThe Administrative Framework

Current Planning Framework

Legislative Framework

The planning legislation of Jamaica provides for a planningsystem with national management (development planning) andcontrol of planning (development control). Enacted into law in1957, the Town and Country Planning Act, mandates planning though a system of development orders.

Though not mandated by law, the government saw it necessary to prepare a National Physical Development Plan to inform thepreparation of development orders and local plans, but moreimportantly to guide land development in a manner consideredrational and sustainable A Manual For Development was prepared in 1973 to inform developersof existing planning standards and guidelines; a strategy aimed atexpediting the approval process. The manual was reviewed in 1982,and again in 2005.

In addition to the Town and Country Act, other acts are used to support theplanning framework:

The Local Improvements Act, 1914 – setting out provisions for subdivisions;

The Urban Development Corporation Act, 1968 – providing the Urban Development Corporation an exemption from building permitting processes in its designated areas;

The Natural Resources Conservation Authority Act, 1991 – providing for environmental permitting and environmental impact assessments; and

The Parish Councils Building Act, 1908 and 1949 – providing for parish councils to make bylaws for building erection, alteration and repair (and thus enabling councils to control building development where there are no development orders in force).

Other Acts include the Beach Control Act (1956), The Wildlife Protection Act (1945), The Public Health Act (1975), National Heritage Trust Act (1985), Watersheds Protection Act (1963, incorporated into NRCA Act of 1991, currently under review), Water Resources Act (1995), The Forest Act (1996), the Land Valuation Act and the Registration of titles Act.

National Policy on Ocean and Coastal Zone Management, and Action Plan (first five years) 2000*—provides for an integrated approach to coastal zone management

Mangrove and Coastal Wetlands Protection (Draft policy and Regulations, 1996)- addresses issues affecting wetlands in Jamaica

The Natural Resources Conservation Regulations, 2000- regulates activities in the protected Portland Bight Protected Area

Policy for Jamaica’s System of Protected Areas, 1997- management tool used in ICZM and environmental protection purposes

Towards A Beach Policy for Jamaica (Draft, 2000)- addresses issues related to beach access and oil and sewage pollution, solid waste disposal, beach erosion, coastal water quality and wild life protection.

Towards A Watershed Policy for Jamaica (1999)—provides for watershed management as an environmental management model for Jamaica.

National Strategy on Biological Diversity in Jamaica (2000) and supporting Action Plan—outlines plans and programs for the sustainable use of Jamaica’s biodiversity

National Hazard Risk Reduction Policy (2006)- provides for the integration of hazard risk-reduction into national development strategies

Policy on Strategic Environmental Assessment (2003/6)—provides an accepted tool of environmental management for assessing the environmental implications of proposed policies, programs and plans (PPPs), and is used to complement the EIA, which is more geared towards a specific project, rather than the PPPs.

Forest Policy and Plan (2001)—provides for the management of Jamaica’s terrestrial resources.

Institutional Framework

There are several institutions involved in planning in Jamaica:

The leading authority on physical development in Jamaica is the Town and Country Planning Authority

Ministry of Local Government and Environment

National Environment and Planning Agency (NEPA)

Planning Institute of Jamaica

Cabinet Office

Local Government Authorities

Administrative Framework

Administrative responsibilities are achieved through the two planning functions:

Development Planning- developments plans are comprehensiveplans used to guide development. Development Plans represent avision and statement of criteria for future development and land-use inan area - they set out the planning policies and proposals whichtogether form a spatial framework which largely determines where,how and what development takes place. The policies set out in theplan can also have a deeper influence on the precise design or layout of developments, the uses they involve, and the issues which local authorities will expect developers to tackle or address in drawing uptheir proposals for development. 

Development Control- Within the Jamaican planning

system, development control is achieved via the use of

development orders as the development regulation

mechanisms during the process of reviewing applications. The

development orders which are used to address all matters

related to land use are applicable at the local and regional

planning level. The development control process begins at the

local level, where development applications are received by

local authorities, and where necessitated, referred to NEPA for

their assessment and recommendations.

Challenges Facing the Planning SystemLegislative

Several Pieces of Legislation governing the land development process, conflicting and overlapping responsibilities for the various planning agencies at the central and local government level has contributed immensely to the confusion, neglect of duties, lack of coordination and unclear responsibilities within the planning system of Jamaica.

Outdated legislation: development plans and development ordersThere is no provision for public participation

Administrative

Lack of Financial SupportLack of Human Resource capacityLimited Skilled Staff, particularly trained plannersLimited Office Space

What should be the Role of Planners?

Guide development: influence where development ought to take place

Control development/ enforcement

Helping to build communities

Provide opportunity for people to participate in the planning process

Provide a planning system that bridges the gap between environment and economic development

Facilitating Adaptation to Climate ChangeLand use planning because of its multi-disciplinary approach and functions- environmental planning; urban design and renewal; landscapearchitecture (built and physical environment); regional and spatial planning; transport planning; and sustainable development- can effectively identify and implement climate change adaptation strategies ,given that the planning process can provide a very effective tool for taking a longer term view on where and when development should take place under a changing climate

Use of Basic Planning and environmental tools

Development Orders/Plans (Integrated coastal zone management plans)Use of setbacks (particularly coastal setbacks)Use of Building CodesUse of GIS as a planning tool (mapping)Strategic Environmental AssessmentsEnvironmental Impact Assessments

Challenges

Political interference in the planning system

Outdated planning legislation guiding development

Lack of Government Policies on climate change

Capacity issues: size of establishmentLack of trained planners and skilled staff at all levels: impedes research capacity etc.Not enough specialist training in issues to do with planningFinancial constraints

The gap between planning and environmental management has not been bridged (economic vs. environmental management)

Planning system is supported by reactive initiatives

RecommendationsDevelop coordinating mechanisms to ensure that physical planning and environmental plans are implemented at the central, local and private sector level

Introduce national building codes that account for climate variability and change

Development Comprehensive Land-use plans

Develop and implement integrated coastal management plans

Integrate regional disaster mitigation strategies with national physical planning

Employ a “retreat approach” to planning and development in high hazard areas along the coastline

Advocate the use of market-based incentives to promote sustainable economic development

Link property insurance with construction quality

Eliminate subsidies and incentives that continue to promote development in fragile and hazardous coastal areas

Improve public awareness and education concerning planning and Jamaica’s vulnerability to climate change

Promote increase use of GIS and remote sensing/ spatial planning applications

Expand Hazard mapping of coastal areas, based on climate change

Continue to build research capacity by facilitating long-term monitoring programs.

We need to start by promoting Compliance!!

Thank you!