Tackling ‘Wicked Problems’ in Informal Settlements:

A Case Study of Institutional Response to an Environmental and Health Emergency in Trinidad.

David F. BrownMcGill Institute for Health and Social Policy

Seminar Series PresentationMarch 31st 2010

Outline

Nature of planning problems.Overview of informal settlements in Trinidad.

The Demerara Road Incident.Lessons.

Garden City Movement

Source: see Howard, “To-morrow: a Peaceful Path to Real Reform”, 1898

Nature of Planning Problems

• Tame Problems– Sewers, paved roads,

hospitals, clean drinking water…

– Natural Science• Definable• Separable• Possible to demonstrate• Solution verifiable

• Wicked Problems– Crime, housing– Social Science

• Ill defined, definition depends on solution

• Every problem unique, new combinations always possible

• Solutions not true or false but good or bad

• Questions of equity cloud tests of efficiency

• Any discrepancy can be explained in many ways: crime – police, poverty, culture, guns…

Source: based on Rittel and Webber , “Dilemmas in a General Theory of Planning”, Policy Sciences, 1973

Overview of informal settlements in Trinidad

Macro Economic Performance 1966-94Trinidad & Tobago

0

5000

10000

15000

20000

25000

19

66

19

68

19

70

19

72

19

74

19

76

19

78

19

80

19

82

19

84

19

86

19

88

19

90

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92

19

94

Year

$T

T M

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(19

85

)

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20

40

60

80

100

120

140

160

180

Co

nsu

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98

5)

GDP 1985 Prices

Consumer Prices (1985)

Employment Index

75

80

85

90

95

100

105

1973

1974

1975

1976

1977

1978

1979

1980

1981

1982

1983

1984

1985

1986

1987

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1991

Year

Em

plo

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/ P

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19

79

=1

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)

Selected Indicators 1983-92Trinidad & Tobago

0

500

1000

1500

2000

2500

3000

3500

1983 1984 1985 1986 1987 1988 1989 1990 1991 1992

Year

Bui

ldin

g A

ppr

oval

s

0

5000

10000

15000

20000

25000

30000

35000

40000

45000

Num

ber

of C

rim

es R

epo

rted

Approved New Building Plans Crimes Reported

Estimated Number of Dwellings in Informal Settlements

0

50000

100000

150000

200000

250000

300000

1964 1978 1979 1985 1988 1990 1991 1993 1993

Agency Responsibility for Planning in Trinidad

Formal < - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - -- - > Informal Bureaucratic Practice

Planning Allocative Planning Innovative Planning Radical Planning & Practice Revolutionary Practice

TCPD WASA T&TEC PEU SRU Sou Sou Squatting

Adapted from Friedmann, 1987: Planning in the Public Domain

Community Development Processes in Formal and Informal Settlements

Formal Informal Balanced

State of theEnvironment

1.homogenous2.normative standards

1.heterogeneous2.variable standards

1.topological2.performance standards

Development Process

1.formal, top-down2.centralized3.phased4.professional5.regulated6.institutional

1.informal, bottom-up2.decentralized3.iterative4.lay initiated5.responsive6.individual, family centered

1.mixed2.community based3.strategic4.partnership5.progressive6.individual, community

Citizen Involvement

1.verbal2.procedure oriented

1.verbal and action2.product oriented

1.verbal and action2.process oriented

Role of State 1.responsible2.regulatory

1.laissez-faire 1.enabling

Source: Brown, David and Peter Jacobs, “Adapting Environmental Impact Assessment to Sustainthe Community Development Process” Habitat International, vol 20, no. 3 pp 493-507, 1996

The Demerara Road Incident.

The StoryOn April 29 1993 a 9 year old child living in a squatter settlement known as Demerara Road in Trinidad, was diagnosed with lead poisoning. Over the next month, another 50 children, all from the same squatter settlement, were admitted to hospital.

The direct cause of the problem was easy to discern. The squatters, who had appropriated a low-lying, poorly drained site on the outskirts of Arima, had for some time been encouraging truck drivers removing toxic waste from a nearby industrial estate to dump ‘fill’ along their access road. Over the years, hundreds of tons of toxic waste had been dumped up to 6 feet in depth.

Soil samples indicated that the lead concentration in this waste ranged from 0.1 to 42%, far above the standard of 0.025% set by the United States. Beyond the immediate health problems were concerns that the waste would contaminate the ground water system and threaten a nearby water treatment plant that produces some 40% of Trinidad’s drinking water.

Chronology of Events• Development of the Demerara Road Settlement: 1983-

• Crisis: April-June 1993

• Emergency Planning, Preliminary Resettlement Plan, July-August, 1993

• Preparing Submission for Financial Resources and Approvals, September-December, 1993

• Awaiting Word, December 1993-March, 1994

• Negotiations for Approvals, March-October, 1994

• Political Revision, November, 1994

• General Confusion, December 1994-May, 1995

Government Agencies * 1993 1994 1995 A M J J A S O N D J F M A M J J A S O N D J F M A M

Attorney General & Legal Affairs Attorney General’s Dept Community Development National Commission for Self Help Finance Health Chemistry, Food & Drugs Division County Medical Officers of Health Hospitals Housing & Settlements National Housing Authority Squatter Regularisation Unit Squatter Containment Unit Local Government Tunapuna / Piarco Corporation National Security Fire Service Immigration National Emergency Management Police Service Parliament Cabinet Finance & General Purposes Planning & Development Town and Country Planning Division Environment Division Lands & Surveys Division Public Utilities Trinidad & Tobago Electricity Water & Sewerage Authority Trade & Industry Industrial Development Corporation Works & Transport Drainage Division Mechanical Services Division Traffic Management Branch Other University of the West Indies Chemical Engineering Chemistry PetroTrin Solid Waste Management Company

Source: Brown, David and Timothy Mooleedhar, “The response of public authorities to a local emergency:the Demerara Road incident”, Human Systems Management 17 (1998) 49-62

Institutional Issues

• Interrelationship between public health, environment and settlement issues.

• Administrative structures and operational mentalities– Central vs local governing structures (vertical

relationships)– Collaboration between sectorial agencies

(horizontal relationships)– Conflicting perspectives of professionals trained in

different disciplines.

Issue PerceptionIssue Strategies Responsible Agency Basic health of residents at risk.

Diagnose individual residents Treatment

Ministry of Health

Residents are unaware of risks posed by presence of lead

Distribute pamphlets door to door Community information meeting

Community workers attached to SRU Health Officials

Unlawful occupation of land

Forced Eviction Surveillance to ensure site is not re-occupied

Ministry of National Security SRU Demolition unit

Inappropriate dumping of toxic waste

Enact legislation governing the disposal of toxic waste. This legislation should include provision for: fines against company producing waste, fines against truck drivers depositing waste, and remedial costs

Environmental Management Agency Town and Country Planning Division Solid Waste Management Company Environmental Management Authority

Decontamination of site Removal of waste to an acceptable site In-situ remedial measures

Ministry of Works and Transport Solid Waste Management Company

Residents are exposed to an unhealthy environment and cannot afford to move

Provision of temporary relocation facility Subsidies Resettlement Re-mediation of site

SRU TCPD Min of Health Min of National Security

Source: Brown, David and Timothy Mooleedhar, “The response of public authorities to a local emergency:the Demerara Road incident”, Human Systems Management 17 (1998) 49-62

Alternative Perspectives on Settlement Policies

Name Mandate Methodologies Resources Strategies Values National Housing Authority / Squatter Regularisation Unit

To provide all T&T residents with housing accommodation through

Research Development of housing

policy Direct Action in site

selection, planning and development, construction and operation of housing units

Special attention to be given to lower income groups

Analysis of census data and other indicators of housing conditions Social surveys Engineering analysis Planning analysis Community Meetings

Engineer Legal Advisor Planning consultant Community workers Technical support staff Microcomputer facilities Regular annual budget from government Revenue from properties

Build and operate public housing Regularise existing squatter settlements - Develop sites and service projects. Promote incremental approach to development with the full participation of the community Mobilise and assist communities in accessing aid from government agencies

Lower income households need help securing accommodation. They are not served by the private market. Individuals and community groups can act to make a material difference in their residential environment if appropriately supported Housing and community development is a process. Standards improve over time.

Town and Country Planning Division

To ensure that new development meets prescribed standards pertaining to

location environment urban form servicing social acceptability

Special attention is given to the need to project T&T as a well developed country and an attractive place to live, work and play. Consistency in following all legal requirements

Analysis of development potential of land Analysis of population and household trends Projection of requirements for all land use activities

Planners Legal Advisors Analysts Technical support staff Micro and minicomputer facilities including GIS capability Regular annual budget from government

Administer development control to ensure that all new projects are in a suitable location and meet the standards set by approving agencies Prepare master plans for new development areas. Prepare re-development plans for existing areas

Public is best serviced by ensuring development standards are met A well planned image is essential to support private investment and economic growth. Lower income groups will be accommodated by public housing projects that meet development guidelines or filter down A plan is a product. It should anticipate events that may occur in the foreseeable future Development in contravention with plans should be denied. Planning is a technical exercise.

Water And Sewerage Authority

To provide potable water and sewerage treatment the residential, commercial and industrial clients. To monitor water quality and take corrective action as need be. To ensure that new projects meet prescribed standards pertaining to:

engineering principles health considerations financial feasibility compatibility with existing

infrastructure and services.

Maintenance and monitoring of overall system. Billing. Analysis of service requirement of proposed development projects. Projection of overall future requirements and consideration of the feasibility of alternative sources of water and treatment facilities.

Engineers Legal Advisors Technical support staff Microcomputer facilities with some GIS capability Revenue from direct billings. Subsidies from government.

Identify water sources. Explore new technologies Maintain existing system. Ensure all technical standards are followed. Offer different levels of service to ensure the widest possible access

Scientific analysis and the application of established engineering principles provides the only reliable base for decisions. Access to potable water should be as wide as possible. This means that different levels of service should be provided with appropriate billing. Incremental development creates uncertainty. It may prove to be incompatible with the existing system at some point in the future. It is nonetheless needed and is provided by the Water Supply Division. The only way to ensure proper service is to require all projects to meet specific standards before approval.

Source: Brown, David and Timothy Mooleedhar, “The response of public authorities to a local emergency: the Demerara Road incident”, Human Systems Management 17 (1998) 49-62

Public Opinion

• General population• Demerara Road Residents

– Concern with health issues, trust in government agencies

– Distrust due to government inaction and lack of evidence of health problems

– Protests and demonstrations– Political interventions– Open hostility

Lessons for Trinidad

• Need for Environmental Management Act• Proposals for new Planning and Development

of Land Bill– National Physical Planning Commission– Delegation of planning authority to local level

and elsewhere ...• Goverance:

– Central vs local authorities– Comprehensive vs specialized agencies– Strategic collaboration to find the right balance between top-

down and bottom-up planning and implementation.

• Examples:– New Orleans– Turcot Interchange– Highway 25 Extension– Super hospitals– Climate Change– ...

Questions, Comments, Debate?