Cabinet Note - Residential Density Zoning in Jamaica.doc

7/27/2019 Cabinet Note - Residential Density Zoning in Jamaica.doc

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Cabinet Note

Residential Density Policy and Zoning in Jamaica

1.Background

The need for a review of residential density zoning standards in Jamaica is a major issue.

The increase in urbanization as well as population demand has placed additional stress onthe allocation and uses of land. The rapid expansion of urban centres and the finite land

resources bring to light the need to review existing residential density standards as an

integral part of Jamaicas spatial development strategy. There is a need to increase

densities especially in the urban areas to maximize the use of scarce land resources and totake advantage of economies of scale in respect of infrastructural investments such as

central sewerage systems and mass transit.

Historically, the pattern of Jamaicas human settlements has been largely influenced bythe traditional orientation of the economy around the export of primary products of

agriculture, bauxite and other products. As a result, most of the islands major urban andsub-urban centres are located along the coast, although many of them no longer function

as ports. In addition major settlements in the interior have been developed primarily to

function as trading and distribution centres for the surrounding countryside.

In 1970 a National Settlement Strategy (NSS) was prepared to establish a spatial

framework to guide socio-economic development and urbanization on a rational basis.

The NSS ranked the islands urban centres into national, regional, sub-regional anddistrict centres based predominantly on the hierarchy of amenities and services provided,

economic growth potential, accessibility, size and shopping importance of thesesettlements. In addition the availability of suitable lands for expansion and the existenceand capacity of public infrastructure such as roads and sewage facilities, were also taken

into consideration in the preparation of the NSS. The NSS is an important component of

the spatial development strategy and is used in the decision making process to guide thelocation and growth of settlements or urban development. It will also be used as a guide

for decision making on the review of densities in urban areas.

A paper entitled Concept Note Residential Density Zoning Jamaica was recentlyprepared in response to a request arising from discussions at the Land Titling Meeting of

May 27, 2009 which focused on density zoning in urban centres. The paper highlights the

need for density zoning and the factors which should be considered. The paper alsoinformed the preparation of this note.

2.Criteria and Justification for Residential Density Zoning

Density is a planning concept used to regulate the magnitude of development in a

particular area and can be calculated using habitable rooms per hectare or a combination

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of plot area ratio/lot coverage/height. The maximum allowable residential density is a

function of the following factors inter alia:

The means of sewage disposal/proximity to central sewage system.

The provision of amenity space such as green areas/open spaces, other

recreational facilities and parking to meet the requirements of the proposeddevelopment.

The size and shape of the lot.

The relationship to existing developments on adjoining lots.

The standard of access roads serving the development.

Proximity to social infrastructure, services and shopping conveniences.

Proximity to public transportation routes.

The physical and geological characteristics of the site (including the slope of the

land and susceptibility to slope movements)

Setback of structures from property boundaries.

The ecological sensitivity of the area.

The population trends/growth versus size of country.

Social issues such as squatting and the governments response to same and familyowned lands.

Need to provide hou sing for the various social groups based on demand at each

level.

Availability to water supply, electricity and other utilities.

Proximity to watersheds and sources of water.

Need to encourage the greening of buildings by using increase density as anincentive.

These general criteria along with designations provided in the NSS are intended to assistin further rationalizing the location of concentrated human settlements across the island.Additionally, the coordinated development of planned human settlements contributes

significantly to economic development of the island, as government agencies will be

better able to coordinate the provision of the required social amenities and infrastructuresuch as roads, electricity, central sewage systems and water distribution network.

The development of a density zoning strategy allows for growth and commercialdevelopment within these urban/built up areas and townships, maximizing the benefits to

be derived from the agglomeration of services and infrastructure, while allowing for the

preservation of environmentally sensitive areas and agricultural lands. It would maximize

the use of scarce and costly urban lands, make better use of existing infrastructure andlower the cost per unit of the provision of public facilities. In this manner, the cost to

central and local government to support new development is reduced and high costs for

provision of infrastructure are avoided when development is concentrated in the urbancore and implemented in a sequential manner instead of being dispersed haphazardly

throughout the hinterland.

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Data from the 2001 population census reveals a gross population density in Jamaica of

241 persons per square kilometer. This figure represents an increase from 214 persons per

square kilometer in 1991. Internationally, this gross density would be considered to below. However, in urban centres in Jamaica, the gross population density is higher than the

national figure. The intended increase in residential density for developments would be

focused on such areas.

3. Recreational/Amenity Spaces

It should be noted that in cases where density increases are contemplated, adequateallocation must be made for the provision of open space and other community amenities

to satisfy the needs of the residents and enhance the aesthetics of the communities. This

may also necessitate the need for the Government to pursue planning agreements and

allocate public funds to purchase land for the creation of recreational parks.

4. Density Restrictions

Although in many instances the planning authorities will seek to obtain more efficient useof land by increasing densities, in some case it is necessary to restrict densities.

Lower densities will be encouraged in areas impacted by the following factors, some of

which are mentioned in section 2 above:

Location on hillsides

In areas with complex geology and steep slopes such as Jacks Hills in KSA and

sections of Highgate in St. Mary, densities will continue to be restricted in an effortto minimize slope disturbance and ensure/facilitate slope stability. In areas such asStony Hill and Red Hills in the KSA the underlying bedrock is competent. However,

the terrain as well as other factors, including cost and the availability of

infrastructure (such as roads, water and sewage disposal) and the impact of highdensity development on valuable water resources( in the absence of a central sewage

system) are important factors that will be further considered in the decision to reduce

densities in these areas. Currently the allowable density in hilly areas in the KMA is

50 habitable rooms per hectare and may be reduced according to local conditions.

Ability to accommodate intense urban type development

In areas such as Irish Town and Gordon Town in the KSA several factors including

the terrain, geology, availability of social facilities and infrastructure limit thepossibility of allowing higher densities. Recurring cost to government to repair andmaintain the road network and other infrastructure after severe weather events

reinforces the need to restrict density in such areas.

Susceptibility to hazards

The coastal location of many urban centres renders them susceptible to multi

hazards. The community of Port Royal in KSA is a good example of an area which is

subject to multi hazards but which is already developed. In such situations density

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restrictions are necessary so that an increased population is not placed at risk.

Appropriate measures to address the risk to the present population are critical in light

of the possibility of increased susceptibility as a result of climate change. There aresome locations which due to a combination of factors which may put large

populations at risk, no build zones may be prescribed. A multi-agencies committee

has been established to address the issue of no build zones in relation to HopeRiver basin.

Ecological sensitivity of the area

In areas where the ecosystem functions would be severely disrupted by intense

human settlements, low intensity /impact development may be contemplated in

suitable locations. The town of Negril for example is already settled but is situated

within an ecologically sensitive area (bordered by the Caribbean Sea and the GreatMorass). This unique situation does not lend itself to significant increase in

residential and resort densities. There are other areas that, due to there ecological

sensitivity and importance are only suitable for low density residential settlements or

none at all (for example Blue and John Crow Mountain and the Cockpit Country). Proximity to water resources (Water Quality Control Zones and Aquifer

Protection Zones)

The need to control and restrict development (in as far as development presents apollution risk) around some existing drinking water sources (i.e. major and sensitive

sources) and within selected groundwater (aquifer) recharge areas, for the protection

of water quality and quantity, is well established. The Water Resources Authority isexpected to continue to provide direction in this regard, through the generation of

appropriate maps which spatially define these critical water protection zones and the

recommended land use restrictions.

Availability of services and community amenities

In some locations urban type development will be considered to be prematurebecause the area presently does not have the necessary social or infrastructural

services to satisfy demand generated from high density development. This limitationis applicable to both urban and rural areas where these services are not provided at

sufficient levels.

Method of sewage disposal

The absence of facilities to treat sewage to a tertiary level limits the possibility ofpermitting multi-family development in an area. This is a critical issue, as there are

areas where on-site sewage treatment is the only option (as there is no central sewage

plant) and tertiary level treatment is strongly recommended for the protection ofwater quality. However, for low income housing the on-site tertiary options are

costly and methods will have to be found to address this issue. Availability of land to accommodate multi-family development

The ability to undertake multi-family development is sometimes constrained by thedifficulty experienced in acquiring and consolidating lands to facilitate this type of

development. In some areas the following factors limit the possibilities for multi-

family development:Shape and size of lots

Availability of large tracts of suitable land

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Existence of contiguous parcels of suitable and available land

5. Other factors that impact on density zoning

Overlooking and overshadowing

The relationship between the planned development unit (multifamily project) andadjacent uses must take into account the type of adjacent uses, building scale, density and

height to ensure compatibility. One of the outgrowths of increase densities will be

increase in mix uses, heights and reduced setbacks. Great sensitivity will therefore haveto be exercised when a high density project is proposed adjacent to residential uses of

lower density or other more low impact users. To minimize the impact of such high

density developments adjacent to single family uses, the following strategies are

proposed:

Additional landscaping to serve as buffer area;

Increased setbacks from property lines and additional setbacks on upper floors

where the development is in a sensitive area;

Modification of the orientation of buildings, windows and balconies.

Regeneration of blighted urban areas

The regeneration of blighted areas is a planning strategy to stimulate economic and social

development in inner city areas. In order to encourage the regeneration of blighted areas,for example downtown Kingston, planning authorities will generally allow higher

residential densities in an effort to attract and retain population in areas with

infrastructure at required capacities to accommodate the intended levels of development.

In addition the authorities may see it fit to reduce onsite parking requirements in major

areas such as downtown and encourage green travel such aswalking,cycling,carpooling,mass transit and investment in parking garages.

6.Areas in Kingston and St. Andrew slated for increased densities

Based on the recognition of the need to maximize the use of urban lands, efforts are being

pursued to increase densities and housing stock and maintain the residential character ofareas. An example of these efforts can be found in the present thrust to increase

residential densities in suitable areas within Kingston and St. Andrew (KSA) based on the

criteria listed earlier. These areas include Eastwood Park Gardens, Patrick City,

Richmond Park, Vineyard Town, Cross Roads, Havendale/Meadowbrook, SeymourLands and New Kingston amongst others. These areas were selected based on the

following main factors: Central location,

Access to major bus routes and arterial roads,

Relatively flat well drained terrain,

Ability for connection to present or planned sewer mains,

Relatively larger lot sizes and potential for amalgamation.

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This development focus provides for the renewal of older neighbourhoods and housing

stock specifically and to stem urban sprawl. Reductions in time, money, energy and air

pollution associated with longer trips are also realized from the reduction of urbansprawl.

While it is recognized that some residents are not favourably disposed to higher densities(e.g. Liguanea Plains in KSA), it is imperative that densities especially on the plains be

increased in order to:

Further enhance sustainable development opportunities,

Reduce the carbon footprint,

Maximize the use of scarce urban land and protect our agricultural and more

ecologically sensitive areas.,

Reduce the cost of repair and maintenance of roads and provision ofother

infrastructure, especially in the hilly areas,

Decrease runoff from upper watershed areas and increase aquifer recharge

Allow for increase investments and innovation in the provision of housing

stock on the private and public market for rent and sale. Allow for smart gro w th of our towns and produce more liveable and

resilient urban centres.

Cabinet is therefore being asked to note that:

1. In response to the need to inter alia, increase the housing stock, provide wider

options for housing solutions, increase efficiency of use of urban lands,

reduce commuting costs and protect environmentally sensitive areas,considerations will be given to rationalizing densities island-wide.

2. Consideration will be given to the construction of multi-family developmentsin urban centres island-wide where tertiary level central sewage treatment

facilities exist or where they are to be provided by developers. This will be

dependent on whether the intended proposals satisfy all the relevant planning

and other criteria governing such developments. Some of the areas ofKingston and St. Andrew which increase densities will be immediately

encouraged are:

Eastwood Park Gardens, Patrick City, Richmond Park, Vineyard Town,

Cross Roads, Havendale/Meadowbrook, Seymour Lands and NewKingston. Other areas will be included based on the criteria/factors listed

above as agreed on by the Town and Country PlanningAuthority/National Environment and Planning Agency and other relevant

central and local government agencies.

3. The National Environment and Planning Agency will support strategies to

increase urban densities and also to introduce where necessary approaches to

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encourage new design concepts that will allow for increased densities while

maintaining the character of rural areas without compromising the

environmental integrity, where all the necessary criteria and planningstandards are satisfied.

4. The National Environment and Planning Agency, under the guidance of theTown and Country Planning Authority will be charged with ascribing the

appropriate density guidelines and standards for the targeted areas, bearing in

mind the existing physical, social, cultural and other constraints impacting ondensities in these areas.

5. The Town and Country Planning Authority and the Office of the Prime

Minister will issue policy directives/guidelines to the local planningauthorities regarding increasing densities in prescribed areas and be guided

by same when assessing planning/development applications.

6. Where necessary, amendments will be made to existing development plansand orders prepared by the National Environment and Planning

Agency/Town and Country Planning Authority, where no reference is madeto increased densities in areas identified. New plans and orders to be prepared

will specifically outline areas in which higher densities will be encouraged

and the relevant standards.

7. The Bureau of Standards, the Ministry of Health, the Scientific Research

Council and other relevant government agencies will be requested to assist in

the development of suitable and cost effective sewage treatment facilities forlow income areas to facilitate higher densities.

8. .Priority projects will be identified and implemented to immediately improveand expand the central sewage systems (especially along coastal areas where

the population concentrations tend to be largest) in order to protect the

countrys water resources and marine environment

9. Resources will be identified where possible for the improvement and

expansion of road networks, water supply and fire fighting facilities in

Kingston and other targeted urban areas islandwide to facilitate increaseddensities

Hon. Bruce Golding

Prime Minister

October 11, 2010

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Cabinet Note - Residential Density Zoning in Jamaica.doc