7 Planning Strategy 120
7.1 Planning Strategy 120
7.2 Summary of Key Issues 121
7.3 Spatial Strategy 129
7.4 Policies and Proposals 137
7.5 Summary 145
8 Chaguanas Town Centre 148
8.1 Introduction 148
8.2 Problems and Issues 150
8.3 Policies and Proposals 151
8.4 Summary 181
8.5 Environmental Appraisal 183
9 The Way Forward 190
9.1 Public Consultation – Local Area Plans 190
9.2 Implementation Mechanisms 191
10 Action Areas 198
10.1 Definition 198
Part Three
Previous plans for the Caroni Region and Chaguanas area have identified the following aims and strategies:
· The region is seen as an economic growth pole providing development opportunities and attracting growth for over-heated areas in Greater Port of Spain and the east-west corridor.
· The area is seen as being attractive for large-scale industrial enterprises, related to its strategic location, a high level of Highway accessibility and proximity to the petro-chemical complex and port at Couva/ Point Lisas and Piarco International airport.
Within the Caroni Region, Couva is identified as the major growth pole. The Couva Land Use Plan prepared in 1999, deals with this area and the main proposals are summarised below:
· Provision of 16,500 new housing units, including a new centre (to the east of Couva): a large element of housing to be suitable for low-income groups.
· Just over 700 ha of land is allocated for industrial uses. This includes 630 ha for heavy industrial uses, with some 260 ha on reclaimed land. There is an allocation of 75 ha for light industry.
· Change of use of 1200 ha of agricultural/ (sugar) land, as the development proposals are realised.
· Provision both for the retraining of displaced agricultural workers and for the allocation of lands for smallholder farming.
During the preparation of the NCDP and Local Concept Plan and current studies for Chaguanas, the broad planning strategy for the remainder of the Caroni Region (other than Couva) has been refined. The strategy for Chaguanas aims:
· to allocate housing land to satisfy the balance of regional demand outside Couva, subject to environmental considerations;
· to better manage urban growth around Chaguanas;
· to provide for national and regional demand for land extensive industrial uses, particularly in trade, warehousing and distribution; and
· to sustain the agricultural sector and the integrity of better quality agricultural land.
The current Study Area population is estimated to be in the order of 91,000. The three major concentrations of population are:
· Longdenville (Centre and East) with 11,500 people (15%);
· The North East sector (Cunupia, Mon Plaisir, Bejucal) with 12,500 (16%); and
· Chaguanas town including the residential areas of Lange Park, Montrose, Edinburgh 500 with just over 19,000 people (24% of the Study Area population).
All settlements now contain a substantial proportion of residents who work in the Capital Region or are relative newcomers. Ribbon development occurs along most roads, in many cases however the development is not continuous. Concentrated, non-ribbon development occurs in few locations apart from Cunupia, Chaguanas and between Southern Main Road and Caparo Valley Road.
Growth has occurred in three main ways:
· through the development of planned housing estates, e.g. Lange Park, Edinburgh;
· through he extension and subdivision of existing buildings and lots; and
· through the construction of new buildings on existing plots and infilling, i.e. the construction of single dwellings on previously vacant plots.
Chaguanas is emerging from a rural to an urban-based economy and form of development. Nearly 75% of total land area (approximately 8230 ha according to the consultant’s estimates) is still under agricultural cultivation, with 85% of land west of the Uriah Butler/Solomon Hochoy Highway used for sugarcane.
Despite the large amount of land used for agriculture, employment in the sector has declined. Activity is predicted to continue to move towards higher value agricultural production (market gardens, vegetables and agro-processing industries). Future production may also result in increased employment generation and demand for the protection of prime agricultural land.
The proposed Planning Strategy for the Chaguanas Area, which builds on previous plans and proposals, is discussed below.
There has been an increase in trade and distribution activities and the development of manufacturing and retailing activities is expected to expand over the next 20-year period. The location of retail and distribution centres along the Highway is a more recent trend. Demand for other developments is already being experienced and is predicted to increase, given the locational benefits of such sites relative to the national/ regional road network; and the Point Lisas/Couva industrial area and port facilities.
Expansion of activities such as distribution and light manufacturing require sites which are:
· highly accessible and well located to the highway network;
· capable of being serviced by infrastructure (electricity, natural gas, water, drainage and sewerage);
· close to materials/ supply sources;
· close to appropriately skilled labour supply; and
· well linked to public transport networks.
The Chaguanas area is also experiencing strong commercial growth in the formal and informal sectors. A new market in Chaguanas town centre will open shortly to assist in catering for a thriving informal retail sector. Developments along the Highway such as Pricesmart and Food Basket indicate a healthy formal retail sector capable of benefiting from the adjoining Capital Region’s retail spending income.
The Study Area is gaining a reputation as a retail hub for Trinidad and land use demands associated with employment growth in the commercial and retail sectors are key issues to be addressed. Gaining a balance between town centre and out of centre retail development is vital to ensure sustained economic prosperity in Chaguanas.
Mining activities in the area, particularly in Longdenville, are predicted to expand and industries using sand, gravel and clay products are also expected to place demands on the allocation of land. New leases for 100 acres of land are currently being negotiated which will provide around 40 years supply of raw materials for clay-manufactured products. Forestry, also an employment generator in the Longdenville area will require the conservation and enhancement of forestry reserves.
Key trends, problems and related land use planning issues are summarised in Table 7.1 below.
Table 7.1 Summary of Key Trends, Problems and Issues
|
Key
Issue |
Related
Issues |
Focus
for Solutions |
|
Changing
role of Chaguanas Local Area from a rural to an urban-based economy |
· Need to re-evaluate a vision for Chaguanas and prioritise land uses accordingly. · Land use planning policies lagging behind demand for employment land– still protecting land for agriculture and restricting new urban forms of development. · Key locations along transport corridors under pressure for redevelopment to employment uses - need for co-ordination of policies promoting development in appropriate locations. · Fragmented plots of land used for agriculture and their limited viability to support crop production – more suited to urban development. · Gaining a balance between agricultural land and developable land. · Providing employment opportunities for those employed or formerly employed in the sugar industry. · Efficient provision of infrastructure to support urban development (water, sewerage, drainage, roads, electricity and telecommunications) |
· Ensure efficient land use allocation to facilitate urban development such that employment uses are appropriately located to take advantage of transport and infrastructure networks. |
|
Development
of light manufacturing, warehouse and distribution centres on Highway and
adjacent collector distributor roads |
· Chaguanas is well suited to support employment uses reliant on good transport networks. · Vacant land on Uriah Butler/Solomon Hochoy Highway suited to employment uses is currently allocated for agricultural or residential use. Some land allocated for industrial use along the Highway within Chaguanas Local Plan, but section north of town centre on western side of the highway is allocated for residential – it is currently vacant. · Junctions on Highway under pressure from adjacent developments – additional development likely to exacerbate traffic congestion/ delays. Link between road improvements and employment uses required. · Need for controlled/ limited access to Highway. |
· Co-ordinating employment land allocation with transport and network improvements. |
|
Pressure
for retail and commercial uses along Highway |
· Demand for and planning permission given for retail uses on Highway. Need to differentiate between retail uses associated with bulky goods retailing and those retailing activities better located in the town centre. · Some pressure for commercial uses including offices along Highway. Could be accommodated near town centre (to the north). · Need for the identification of land for retail and commercial uses around and within town centre to accommodate expansion. |
· Ensure that the vitality and viability of the town centre is maintained and that additional retail floorspace reinforces the retail hierarchy for Chaguanas. · Restrict bulky goods retailing to sites. · Provide for commercial activities close to the town centre and well located to transport networks. |
|
Ribbon
development of Mixed-Use and home industries
|
· Historic development of small industries, commercial establishments along key roads notably Southern Main Road and Caparo Valley Road/ Brasso Road is affecting traffic movements through urban areas. · Policies for control of parking and access required to reduce impact of home industries. · Need link to environmental policies to control noise, dust, and fumes from some small-scale industries close to or within residential areas. |
· Strengthening criteria for assessing applications for home industries and planning conditions attached to consents for home industries. · Clarify the role and location of sub-regional and local centres for retail and commercial development. · Control commercial development (restrict to certain locations) on designated distributor roads. |
|
Rationalisation
of land zoned for agricultural use |
· Protection of higher quality agricultural land and release of less fertile land for other uses · Protection of irrigated lands north of Felicity · Rural lands have an important role in consolidating urban areas, controlling ribbon development and protecting existing viable agricultural holdings. Any rationalisation of agricultural lands should acknowledge role of agricultural uses acting as a “green belt” around urban development. |
· Retaining better quality agricultural land in rural use |
|
Continued
decline of sugar industry and diversification of employment base |
· Need for other agricultural activities and growth of industries associated with processing of produce · Protection of fertile agricultural land and land on longer term lease (currently in agricultural production) · Encouragement of other employment activities within Local Area |
· Clear designation of land for rural uses and provision of employment land away from good quality agricultural land |
|
Enabling
mining industry to expand without degradation of the environment |
· Former clay mining leases not reforested, rehabilitated/ sterilising future use of land · Possibility of using clay pits for recreational purposes or for aquaculture uses conflicting with need to use land to support clay manufacturing activities |
Strengthen environmental management policies regarding land remediation for new mining leases Providing land near existing clay manufacturing industries to enable expansion of industry. |
|
Potential
employment uses to support population growth and emerging sub-regional role
of Chaguanas |
· Potential for growth in entertainment facilities and need to locate facilities close to transport links · Development of the Piarco International Airport and spin off industries related to freight handling and servicing but need better access to link airport and urban areas within Chaguanas Local Area. · Eco-tourism opportunities given mangroves along coastal strip and proximity to Caroni Swamp and bird sanctuary. |
Need to address wider employment opportunities over the 20-year plan timeframe. |
In responding to the key issues identified above, the main objectives of this Draft Master Plan for Chaguanas are considered to be:
· to develop Chaguanas Town Centre as a vibrant and viable location capable of satisfying the majority of the commercial, social, leisure and administrative functions of the Study Area;
· to provide for the projected future demand for housing and employment uses in the Study Area, including these satisfying national and regional demands;
· to provide for an appropriate level of supporting uses, e.g. social and community facilities;
· to consolidate development and restrict urban sprawl so as to facilitate the efficient provision of infrastructure and services, and create an efficient transport network;
· to prevent the further fragmentation of land currently in agriculture, in order to conserve and enhance the longer term sustainability of this sector; and
· to minimise significant adverse environmental impacts, particularly on wetlands (coastal, swamp) and forested areas, and further degradation of the urban environment.
In formulating a spatial strategy for the Study Area, the following considerations are pertinent:
· there is a considerable amount of land currently in agricultural use, which could be released for housing and other uses;
· The analysis of land use in the Study Area in terms of suitability for agriculture indicates relatively little variation in soil potential: a greater proportion of the land to the west of the highway is slightly superior (Class III as opposed to Class IV), whilst much of the land at Carlsen Field to the east is of lower potential (Class V).
The majority of new land requirements will be for residential use. The principles used to allocate this land will thus strongly influence the overall planning strategy for the Study Area. In this context, a key issue is whether or not land to the west of the highway should be allocated for residential development.
A secondary issue is if land to the west of the highway is to be used, how much land should be so allocated, and how should sites be used.
Other influences on the spatial strategy relate both to environmental factors and the need for integrated and comprehensive planning for key areas. These include:
· The conservation of the Caroni Swamp and maintenance/ reinforcement of the National Park designation’s policies and objectives;
· The long-term sustainability of the Longdenville Forest Reserve, in relation to future planned and committed mineral extraction activities;
· The reservation of land and regulation of development in areas subject to flood protection, drainage and irrigation schemes, in the north and south of the Study Area; and
· The requirement for comprehensive investment and infrastructure planning of strategically-important site, e.g. Carlsen Field.
As a principal determinant in the future planning strategy for the Chaguanas area, residential land requirements are a key consideration. Current policy embodied in the existing (1991) TCPD plan and re-affirmed by the Concept Plan prepared in 1999, is for all major new residential development to occur east of the highway. The main reasons identified were:
· there is more than enough land to the east to cater for foreseeable residential demand.
· there are substantial, partly-developed areas to the east which should be densified in order to achieve the associated policies of optimising infrastructure provision, whilst containing sprawl and ribbon development.
· the area to the west provides the best potential for the maintenance of a large tract of productive agricultural land, whether this land remains in sugar cane production, or to agro-based enterprises, or is transferred to small-holders.
· Caroni (1975) Limited’s objectives for re-developing their land could be satisfied through the re-use of their holdings to the east of the highway.
There are however grounds for allowing some development to the west of the highway:
· Whilst Chaguanas town centre is sited west of the highway almost all the residential hinterland lies to the east. Future development to the west would give the centre a more central and hence wider accessible location and facilitate movements between it and its hinterland
· Proposals exist for development to the west. Planning policies should seek to accommodate private sector development initiatives wherever possible, subject to current policies and regulations.
· Limited development to the west will not preclude future use of the majority of this area for agriculture, though it is considered desirable in this context to consolidate Felicity as a self-sustaining sub-regional centre.
· Restraining some future development in the east will enable remaining large tracts of agricultural land there to remain viable and reduce the potential for sprawl.
· Development to the west will reinforce the development of a more efficient and balanced transportation system facilitated by the proposed Outer Ring Road which will re-distribute traffic demand on both sides of the Highway.
These latter reasons, and particular that related to the centrality of the town centre, are considered sufficiently compelling to justify a re-orientation of the previous strategy to accommodate the development of some areas to the west and northwest of the highway. The main determining factors in the spatial location of this development will be current commitments and proposals, and proposals for the upgrading of the future highway network. In summary, whilst the majority of new residential development will continue to be located to the east, consolidation and some new growth is proposed to the west/north-west.
Land use appraisal undertaken within the Local Area Concept Plan for Chaguanas indicated that around 1520 hectares of land provided opportunities for development. Of this land around 400 hectares was identified as offering opportunities for employment uses, mainly industrial, commercial or mixed-use development.
Land potentially available for employment uses is not necessarily an issue within the Chaguanas Local Area – rather phasing, and ensuring land released for employment uses is co-ordinated with transport, housing releases and infrastructure is more important.
The consultants estimate that around 170 hectares of employment land will be required over the next 20-year period to service local employment growth. However, discussions with current operators, Chamber of Commerce representatives, property advisors and policy makers indicate that demand for employment land within the Chaguanas Area will also come from regional needs. In this context, land is expected to be required to enable the development of the warehouse/distribution, bulky goods retailing and light manufacturing uses to serve regional/ national needs.
In addressing national and regional employment growth the Chaguanas Local Area is identified as providing development opportunities that:
· take advantage of the north/south urban corridor which links San Fernando to the East-West corridor of Arima and Greater Port of Spain;
· accommodate growth from more overheated regions of St George and Greater Port of Spain/ the Capital Region;
· maintain but diversify agricultural uses protecting higher quality agricultural land;
· support heavy industries in Couva/Point Lisas by providing a complementary role as a centre for distribution and light manufacturing; and
· complement the role of the town centre in Chaguanas as providing one of the most important retail centres in Trinidad.
Of the 400 hectares of land with potential for employment use, the opportunity sites included:
· Chaguanas Town Centre – 10 ha on land adjoining the Solomon Hochoy Highway;
· Caroni Savannah Road – 10 ha for commercial and industrial use close to the existing CBD;
· Munroe Road South – 250 ha for predominantly residential development and ancillary commercial; and
· Carlsen Field – 600 ha for mainly industrial and some residential uses on the former US airfield under a comprehensive and long-term development programme.
It is considered that identifying around 300 ha of land will be necessary within this Plan to accommodate future total (local and regional) employment needs. This amount can accommodate the 172 ha identified to serve local needs and provide additional land for regional needs.
In any employment property market, land supply must accommodate for time lags in properties coming onto the market, allow for some choice in location, and to provide a range of site sizes to serve varying employment/business needs.
Since preparing the Concept Plan further information has been obtained on planning permissions and planning applications within the Study Area, which has enabled a refinement of employment sites identified in the Plan to be undertaken. Discussions have been held with key land owners and property advisors and a more detailed study has been undertaken of the Chaguanas Town Centre (later in this report). Proposals for transport improvements in the Study Area have also influenced the balance of development west and east of the Highway.
To relieve traffic congestion in and around the town centre and on the Highway and to provide for improved links between the east and west, an Outer Ring Road is proposed. It is expected that this will also assist in consolidating development around Chaguanas town particularly to the west of the Highway which, to date, has been left largely undeveloped, mainly on account of current agricultural restrictions on release of land.
Carlsen Field
Carlsen Field is a very large site (c. 9 sq. km.), much of which is under state ownership and as a consequence offers the potential for comprehensive development. Current issues influencing its development include variable soil and land quality, aquifer and flood control requirements, settlement/ rehousing schemes, existing ad hoc farming, agricultural and industrial uses; and the need for major infrastructure/ servicing and upgrading. Further considerations relate to current Caroni (1975) Limited policy to promote residential and non-residential development on their own landholdings. Given the need to resolve these issues, it is considered that the development of Carlsen Field should be a longer, rather than a shorter term objective.
Notwithstanding the above, the site at Carlsen Field offers special attraction for transportation and land-extensive-linked areas. The size and strategically excellent location of Carlsen Field adjacent to the national highway system, is such that future development should be planned in a comprehensive and integrated manner which can accommodate a wide range of industrial, employment, residential and community uses. The latter should include facilities serving a far wider catchment than the Chaguanas sub-region, and could appeal to regional and national demand.
The potential for a National Technology Park to be developed in phases should be explored. Activities could include:
· Higher tech building products, linked to the mineral extraction/ quarrying activities and existing light industries in the Longdenville area;
· Pottery and ceramics industries and crafts linked to Agostini/ Chase Village;
· Employment activities and opportunities in South east Trinidad; and
· Upstream and downstream building construction materials and petro-chemical supplies and products linked to and complimenting the Couva/ Point Lisas port and heavy industrial development.
It is therefore recommended that a Special Development Area be designated for Carlsen Field and an Action Area Plan be prepared when development pressures increase, more specific land uses have been identified, and land tenure issues have been resolved. The private sector should be encouraged to participate in this process.
For the purpose of this Interim Study, the essential aim is to identify and plan for strategic long-term transportation and infrastructure requirements. A related aim is to ensure that the site’s eventual development will not be constrained by other proposals contained in the Local Area Plan or which are currently being brought forward in an ad hoc fashion for approval.
In this connection it is recognised that improved highway linkages from the Solomon Hochoy (national) Highway and the proposed Chaguanas Outer Ring Road will be necessary. Interchange upgrading at Chase Village, and new links from the Outer Ring Road from the northwest (to Chaguanas Town Centre) and from the northeast providing for improved access (to the Caparo Brasso Road southeast) are proposed (See Draft Master Plan).
The general policies related to housing which have been adopted for the future planning of the Chaguanas area are:
· The plan should allocate around 600 hectares of land, over and above existing commitments, for residential development over the next 20 years. This allocation is considered to be sufficient to cater for the projected housing demand in the Plan Period from both the currently resident population and future incomers.
· Provision should be made so as to enable the demand for housing from all groups of the population to be satisfied.
· Housing allocations should be closely related to the proposed strategy for development consolidation and improved accessibility, which focuses on highway improvements, and in particular, the proposed Outer Ring Road.
· Housing allocations should be made for land which does not give rise to undue problems related to infrastructure provision, does not threaten the viability of agricultural use in the wider area, does not conflict with other land use proposals, and does not lead to significant adverse environmental impacts.
· Housing allocations should involve both the development of comprehensive new housing areas and the consolidation through infilling of existing partly developed areas.
· The densification of existing built-up areas should be encouraged in order to create a more compact and consolidated development pattern and reduce urban sprawl.
· Existing squatting areas should be regularised and upgraded.
Based on the above, proposals have been formulated for four generic housing development types.
The development of these sites should be on a planned comprehensive basis. They should include a mix of plot sizes and/or a mix of houses for sale and plots for development by individuals, e.g. low-income household on an increm