A new dawn for downtown Kingston
VISITING the heart of any capital city of the world gives a sense of its history, its culture, its commerce, its people, its spirit. Residents take pride in what symbolises for them, the best of what their country can be.
This used to be the case with Kingston. But as we celebrate its 200th Anniversary as a city, we recognise that this is sadly not so today.
Other cities have faced similar challenges. Like Kingston, they have had to confront the fact that urban areas of erstwhile cultural and economic pre-eminence have, in many instances, become rejected by premium urban uses, and are caught in the grip of poverty, crime, lawlessness and chaos. The choices they have faced, as Kingston now faces, have been either to transform to suit modern lifestyles and expectations or to continue on a downward path of deterioration and decay.
For any right-thinking Jamaican, there is only one option. Kingston must be re-claimed as we march to the future.
In addressing the wide-ranging problems, others have found that success has been dependent on having a radical rather than piecemeal approach, involving major social, physical and economic interventions.
This is the approach of the Kingston Redevelopment Committee, which, as prime minister, I established in December 2002 to prescribe the way forward for the regeneration of the downtown area.
The committee completed its task in January 2003 and presented its report which outlines the framework for the management and funding of the redevelopment process, as well as the guidelines for addressing the ills affecting the social and business life of the area.
The mission statement for the redevelopment of downtown Kingston is stated thus:
To redress the physical and social degradation; reducing the level of crime and violence; fostering personal and community development for residents; and stimulating employment and economic activities. A critical outcome is the increased attractiveness of the area to business and investment, particularly tourism and related investments, and more ready participation of the population at large in activities downtown, whether for business or pleasure.
What does this mean concretely? How will the changes be effected? And what of current residents?
The Proposal
First of all, it is proposed that a discrete section of the downtown area be demarcated for the focus of the redevelopment programme. This demarcated area is bounded on the west by Darling Street/Spanish Town Road and Marcus Garvey Drive, east by Hanover Street, north by North Street, and on the south by the sea.
Utilising a strategy that has been successfully employed in North American cities for managing the urban revitalisation thrust, this area will be operated as a Business Improvement District (BID). While the operations of the BID will be adapted to the local legal and institutional context, it will draw upon the lessons learned in other cities for its successful operation.
A key principle that has been identified is the need for strong and effective management to ensure that desirable standards are set and maintained relating to the safety, comfort and satisfaction of those using the area for business, pleasure or residence.
A non-profit company limited by guarantee will be formed to manage the implementation. It will be governed by a board of directors with private and public sector companies, corporations, bodies and other stakeholders comprising the membership.
I must stress that it is of paramount importance that the citizens be equipped to participate in the emerging developments. To this end, the renewal process incorporates a social model built around tackling the problems of the impoverished communities of the inner city.
Redevelopment Components
The redevelopment will be comprehensive in approach as it will seek to address the full range of issues affecting the well-being of the downtown area.
In recognition of the need to have coherence with the long-term development plans for the country and particularly that for the Kingston Metropolitan Area, the Sustainable Development Plan for Kingston and St Andrew now being formulated will incorporate the development plans for the BID area.
This plan, which is being prepared by the Kingston and St Andrew Corporation (KSAC) and the Kingston and St Andrew Parish Development Committee, will be formulated using a participatory approach whereby consultations will be held with all stakeholders, including those for the BID.
An overarching goal of the redevelopment activities is the achievement of this Government’s objective of advancing a quality society through economic transformation, wealth and job creation.
The programme, therefore, relies on a strategy of wealth creation through exploiting the competitive advantages of the city to build its economic base.
And what are these advantages? They include Kingston’s strategic location by the harbour, its position at the hub of local and international transportation networks, plus the existence of a rich, historic and cultural legacy.
As I have often stated, the city’s greatest resource is its people. And in equipping them for the new opportunities being promoted, a deliberate programme of human resource development is to be implemented. The aim is to build social capital in the communities and to institute major improvements in residential conditions.Focus
The programme will contribute to two radical changes in the BID area. These involve the elimination of the substandard physical and environmental conditions and eradication of the prevailing high levels of criminality as both are antithetical to the desired development process.
In its report entitled Downtown Kingston Business Improvement District, the Kingston Redevelopment Committee points out that the BID company will be structured to deal with the following substantive issues in order to achieve the programme objectives :
* Community and Social Development;
* Security;
* Business Development;
* Markets/Vending Management;
* Land and Property Development;
* Infrastructure and Works;
* Public Area Management;
* Culture, Entertainment and Sports; and
* Marketing and Communications.
The plans for each area are quite detailed, but here I outline the highlights of the specifics to be pursued relative to each area of focus.
Community and Social Development
Steps will be taken to adequately prepare residents of the BID for the extensive changes that will impact on their communities. These include:
1 Conducting a survey to obtain detailed socio-economic information on the residents and their housing status and needs. Housing solutions will be geared toward providing a variety of housing options across the income range.
2 Working with the residents to ensure that those who can afford the new housing provisions will utilise the options available to purchase, lease or rent. Particular sensitivity will be employed in addressing the needs of those who cannot afford the new provisions, for whom other appropriate housing will be identified.
3 Targeting communities in and around the BID to build social capital, provide education and training opportunities, promote school attendance, offer services to counsel the youth in leading healthy lifestyles, training in dispute resolution, and facilitation of expansion of legal income-earning activities.
The social development and community activities will be guided by the philosophy that for those residing in and around the BID, the development must have for them as positive an impact as it will have for those who do business in the area.
Security
Within the designated area, intensive surveillance and other security measures will be carried out thereby establishing a ‘Safe Zone’ that is free of crime and violence. Specific measures include the development and implementation of a new security-policing model based on a holistic approach that is based on partnership with all the stakeholders within the area.
The model will have four levels:
1 An Electronic Surveillance System throughout the area will ensure close scrutiny and monitoring at all times.
2 A Command and Control Centre is being established in an appropriate location downtown and will provide effective crime prevention and control by the JCF.
3 Public Order Policing will be handled by the ISCF, thus handling infringements related to traffic, vending, littering and municipal regulations, etc.
4 At the grass roots will be the “Eyes and Ears” Programme which will involve private security personnel, the Courtesy Corps, Civilian Corps, taxi drivers, messengers and others.
The model is predicated on a collaborative partnership between Government and the private sector, with private sector financing based on mutually satisfactory agreements.
Communication with communities in and around the BID will place utmost priority on developing new and genuine community leadership to displace the dominance of dons and any other practices that undermine allegiance to law and order.
Steps to promote discipline and order will include review and more strict enforcement of municipal regulations. The authorities will also be required to take the steps necessary (eg adequate signage) to ensure that the public is apprised of the requirements of the law. There will be zero tolerance for violations.
Business Development
The main pillars of business development in the BID will be commerce and tourism, the former including formal retail and wholesale activities as well as vending. Tourism-related businesses include recreational, dining, entertainment and other establishments.
The BID company will work with existing players and collaborate with relevant agencies (such as JAMPRO, the Ministry of Industry and Tourism, Tourism Product Development Company, Jamaica Tourist Board, Jamaica Vendors Association, Jamaica Chamber of Commerce, PSOJ) to promote and facilitate the formation of new businesses.
In addition, existing tax incentive schemes will be assessed and modified as necessary to encourage investors to locate in the BID. Other incentives will include the crime-free environment, general physical upgrading and land and property development services that will be provided by the managers of the BID.
Markets/Vending Management
The management of vending in the BID will recognise this activity as a major feature of the ‘life’ of the area, but will endeavour to lift it to a new level of operation. In the short-term, major repairs and upgrading that have already been identified by the KSAC will be undertaken to ensure that the vendors can be accommodated satisfactorily in, and only in, the legally designated places — markets, bays, arcades and Gazetted streets.
In the medium-term, rationalisation of the existing vending facilities will be undertaken with a view to demolition of certain markets, extensive improvements of others, and construction of new facilities on appropriate sites.
Better regulated vending will contribute to desirable behaviour, not only in relation to sites, but also as this affects the payment of licences and fees. Sites will be upgraded to reflect international norms and fee-collection regulations will be strictly enforced to ensure the revenue inflows necessary to maintain the basic sanitation, cleanliness and comfort necessary to attract vendors and shoppers alike.
Land and Property Development
An active land banking policy is considered crucial to the redevelopment process. The BID company will, therefore, be responsible for:
* Land assembly;
* Incentive management;
* Urban housing solutions; and
* Development solutions.
During the first two years of operation, working in conjunction with the relevant agencies, emphasis will be placed on:
* Creating a sterile block surrounding the Kingston Public Hospital Complex by relocating persons there;
* Hanover Street land banking;
* Redefinition of the waterfront lands into more investment-friendly development packages;
* Establishing incentive packages for marketing to investors; and
* Co-ordinating housing improvement activities within the BID.
Infrastructure and Works
Areas of responsibility of the BID company are water, sewage, power, communications and transport. The company will not take over these activities but will ensure that the relevant organisations provide services in these areas in a prescribed manner, in keeping with the goals and visions of the renewal programme.
* One of the key areas of focus will be rationalisation of the mass transit system that currently congests the heart of the BID. Consequently, the company will actively support the proposal by Metropolitan Transport Holdings Ltd to relocate all the urban transport terminals from the Parade Area to west of the BID.
* Stemming the pollution of Kingston Harbour by untreated sewage is a top priority and will be addressed with urgency.
Another important area of focus during the first two years of operation will be the formulation of development plans for improving the infrastructure of the city.
Public Area Management
The BID company will be responsible for managing public parks, verges and sidewalks, public sanitary conveniences, open spaces (including derelict buildings), solid waste management and the waterfront and harbour.
These public areas will be managed in keeping with defined performance standards. During the first two years of operation, the company will concentrate on:
* St William Grant Park;
* King Street;
* Derelict buildings; and
* Kingston Waterfront Park.
Culture, Entertainment and Sports
Here, the thrust will be to restore use of the downtown area for recreation, relaxation and entertainment. Initiatives will include establishing a proper entertainment facility on the waterfront to house large outdoor events, facilitating the redevelopment of the Ward Theatre and the establishment of a large indoor venue for live entertainment.
An annual calendar of events will be promoted, aimed at having year-round activities and attractions in downtown Kingston for both local and overseas visitors.
There will be active promotion of the rich cultural and architectural heritage, including the Institute of Jamaica, the National Gallery, Liberty Hall, historical churches and other places of worship.
The re-establishment of China Town will be a priority as well as the encouragement of other ethnic culinary establishments, expositions and festivals.
Marketing and Communications
An essential underpinning of the planned redevelopment will be an intensive communication programme with the objective of generating a shared vision amongst all stakeholders for repositioning Kingston as Jamaica’s premier business centre and the prime destination in the Caribbean region for cultural/heritage tourism.
It will thus seek to create public awareness, understanding, commitment and support for the renewal thrust. Several target audiences have been identified:
* The formal business community operating within and around the BID;
* The street vendors;
* The residents within and contiguous to the BID;
* Potential investors; and
* The media and the wider public.
Differentiated strategies are to be employed in relating to these groups, including:
* Focus group discussions among the key stakeholders;
* Community notice boards and monthly newsletters;
* Small group meetings with representatives from special interest groups such as stakeholders operating in the area, international funding agencies, the diplomatic community, business leaders and potential investors and others;
* Seminars for vendors on business-related practices and self-development; and
* Regular media briefings.
The Company
As I have earlier stated, effective management is essential to the establishment and maintenance of the BID. While the company will be responsible for the implementation of the programme, it will not assume or take over the responsibilities of the KSAC — in which the management of the City of Kingston is vested — or of any other authority or service agency.
Rather, it is proposed that by co-operating with stakeholders and making contractual arrangements with the relevant bodies, the company will co-ordinate and manage the activities necessary for the proper functioning of the BID. In relation to physical planning matters, the BID area will be designated by the Urban Development Corporation under its Act to allow for desired levels of co-ordination and control.
It will have direct responsibility and incur ongoing expenditure for security, buildings (commercial, housing, public area), public maintenance and business development and communications.
Financing
The scope of activity suggests it, and the experience of other cities that have undergone a similar process demonstrates, that in addition to proper management, there must also be an adequate stock and flow of funds to support the management functions. In the design of the Kingston BID, therefore, emphasis is placed on making satisfactory provisions in this regard.
Recurrent income will come from various ongoing revenue streams such as property taxes, rental of spaces and licences for vending. Additionally, special levies will need to be imposed. For example, the Land Improvement Tax Act and the Land Development Duty Act may be utilised for the imposition of special taxes/duties as betterment charges for the renewal programme.
Contributions for specific services or capital works will also be required from both the public and private sectors.
However, an important part of the seed money for the operations of the company will come from the equity provided by its members, and long-term bonds will be sold on the local and international markets denominated in Jamaican and US dollars, respectively.
These will be backed by the company’s assets in real estate property in downtown Kingston, but will not be guaranteed by the Government. Other sources of funds will include multilateral and bilateral agencies as well as the Jamaican Government.
Overall Development Approach
I have taken the time to present this level of detail in order to emphasise that the redevelopment activities will take place in keeping with an overall urban design that will re-establish the integrity of the heart of the city.
The formal King Street and Queen Street axis will be re-enforced focusing on the King Street corridor, including Parade Square. The square, which encompasses the buildings and properties surrounding St William Grant Park, should eventually be redeveloped to what it was originally intended to be — the heart of the city, and removal of the urban bus terminal will offer significant opportunities for re-defining its uses.
Much of the initial success of the physical transformation of the BID is contingent on the proposed relocation of the transportation hub from Parade Square to land adjacent to the old railroad and pier. This will provide an opportunity to develop a much desired inter-modal (road, rail and sea) transportation hub for Kingston.
Particular focus is to be placed on the Harbour St corridor, so as to establish a reconnection of the upper commercial areas to the waterfront zone, thus allowing for a seamless transition between the two areas and providing the waterfront with more opportunities for commercial expansion.
In the initial stages of the re-development, a management presence will be established in the Markets District, the King’s Street Corridor, the Kingston Waterfront and Harbour Street. Proper zoning of the diverse sub-functions and uses within the BID is necessary to showcase the character of the urban environment.
The strategic identification of functional zones and their respective uses will, therefore, be undertaken. This will assist in prioritising areas for development and provide manageable ways for addressing the various components of the district.
In addition, strategically-placed holding areas for taxis will alleviate traffic congestion and improve movement of vehicular traffic throughout the BID.
Though the committee has done commendable work resulting in this far-reaching plan, I must reiterate strenuously and clearly that this is still only a framework for action.
I have mandated the Planning Institute of Jamaica to conduct further consultations with interested parties for more inputs into its development. I have also instructed that they accept an invitation from Mr Seaga to tour areas of his constituency, and that they conduct similar tours of other areas which will be affected, so that they may gain first-hand knowledge of some of the issues.
Without question, the quality of life of the residents of downtown Kingston will be improved through the:
“…redressing of the physical and social degradation; reducing the level of crime and violence; fostering personal and community development for residents; and stimulating employment and economic activities’.
Indeed, in the longer term, consideration is to be given to putting in the necessary infrastructure for the return of cruise shipping to the city, as well as for an expansion in the ferry boat service. These initiatives will offer significant growth opportunities for the cultural and historic triangle comprising the City of Kingston, Port Royal and Spanish Town.
These are undoubtedly huge plans. There are those who are of the view that it is a challenge which is beyond us. But I firmly believe that the potential for the city is such that, with the holistic, integrated approach, implementation can only augur well. The overwhelming support from the business community suggests that this is a plan whose time has come. It promises a new dawn for the old city.
Kingston can once again come into its own and be a source of pride for its citizens — a jewel in Jamaica’s crown.