The
Development Planning Unit
Government of the British Virgin Islands

1.1 INTRODUCTION

1.1 INTRODUCTION

1.1 Physical features and Climate: The British Virgin Islands is located at the northern end of the Lesser Antiliean chain, (approximately 18.5 degrees N latitude and 64.5 degrees W. longitude) which extends from Puerto Rico in the north to Trinidad in the south in an arc formation. The islands fall into four groups;

• To the south with a east north east orientation, extending for 20 miles is a series of cays and small islands terminating in the island of Virgin Gorda.
  
• To north Great Thatch, Tortola , Beef Island, Guana, The Camanoes and Scrub Island.
  
• The Tobago Cays and Great and Little Jost Van Dyke
  
• Anegada which is an isolated unit lies30 miles north of Virgin Gorda and to the north east of Tortola.

The total area of the territory is 59 sq miles with the largest island being Tortola, 24 sq miles, Anegada 14 sq miles, Virgin Gorda , 13 sq miles and Jost Van Dyke, 4 sq miles. In 1991 census, the population of the BVI was 16, 115 persons, Tortola , had 82% (13,232 persons) of the total population. Virgin Gorda was second with 15% (2,437 persons). 

With the exception of Anegada which is a flat coral island, the BVI are mountainous and rugged. In Tortola, which rises in an uninterrupted central ridge to a height of 1,780 feet above sea level, some 37% of the land has slops above 40%. Very few areas of flat land exist on the island, with Road Town, Sea Cows Bay, East End, Long Look and Paraquita Bay the most extensive.

In Virgin Gorda, there are two distinct topographical area, with the south western area known as The The Valley being relatively flat and the central north western area very steep,. In Virgin Gorda, 25% of the land is above 40% slope.

Anegada is a low-lying limestone island with a maximum height above sea level of 26feet. Approximately 40% of the island lies under 10 feet above sea level with large areas of land located to the west of the island which are under sea level. 

The islands receive the cooling effects of the north east trade winds giving rise to average monthly temperatures around 28degrees C. The territory receives very low rainfall, which averages around 35-40 Ins annually. The period January to April is very dry and drought conditions are common. The rainy season is from September to December. The territory is located in the main path of the hurricanes and tropical storms.

1.2    The aim of the paper: This paper addresses the planning issues concerning the various towns and settlements within which people live and work in the BVI, and which visitors come to enjoy. Planning is interpreted in its widest sense to include the economic, social, environmental and other aspects of planning, as well as the physical aspects with which it is normally associated in the BVI. Part I of this paper deals with the major planning and environmental issues affecting settlements and habitats in the BVI, including the institutional arrangements, land tenure, land reclamation, housing issues and access to land and property. Part II deals with the issues surrounding the provision of infrastructure to these settlements, including transport and communications, water, sewerage and energy.

PART I: SETTLEMENT PLANNING


2. CURRENT SITUATION

2.1 Settlement Patterns in the BVI

2.1.1 The present pattern of settlements in the BVI is the result of a number of factors. These include: the small size of the territory with attendant close proximity of settlements to one another, land tenure, parcellation, absence of large agricultural undertakings and the socio-cultural traditions of the people. Immigration of people seeking work has probably been the single most important factor affecting settlement patterns in the last decade because of the scale of the population increase and its concentration in certain settlements.

2.1.2 The normal distinctions between “town” and “country” do not apply in a small territory like the BVI with a highly dispersed settlement pattern. There are concentrations of development in the main settlement areas but pockets of development occur throughout the territory. There are approximately 60 islands in the BVI, of which 15 are inhabited. The generalised land use of the BVI is shown overleaf. Table I indicates the major land use categories for the larger islands in the territory. Of the entire territory 7,390 acres are developed. Scrub, sparse woodland and ponds account for over 25,946 acres of land. This indicates that approximately 28% of all lands in the territory are developed. 


TABLE I
Generalized Land Use Categories by Cadastral Section

Source: Town and Country Planning Department Land Use Survey 1999
NB. Figures shown are approximate and relate to the respective Cadastral Sections, not the settlements concerned

2.1.3 Built development occupies 25% of the land on Tortola. Much of the underdeveloped land in Tortola is located on very steep slopes, with a gradient of more than 50%. The largest settlements are located on Tortola with Road Town the capital, being the major centre both in terms of size and level of public facilities. There are five significant areas of flat, vacant, land in Tortola; these are Johnson’s Ghut, Nibbs Estate, Josiah’s Bay, Paraquita Bay and Cox heath. Other settlements are located on the northwestern coastline and along the Ridge road where there has been a tendency toward linear development. There are also substantial areas of flat land on Beef Island.

2.1.4 There are three major areas of industrial development in Tortola at Pockwood Pond, Fish Bay and Port Purcell. The largest concentration of commercial uses is in Road Town along Main Street and Wickham's Cay as well as in Port Purcell where industrial sites were converted into commercial uses such as supermarkets and shops.

2.1.5 Virgin Gorda’s land use pattern is a direct result of its topography with its major settlement being in the flat area known as The Valley in which 55% of the built development on Virgin Gorda is located. North Sound is the other main developed area in Virgin Gorda and occupies 1,520 acres of land. 26% of Virgin Gorda is undeveloped with the major undeveloped areas being located in the central and northern mountainous areas. In Virgin Gorda there are significant pockets of undeveloped land in The Valley. In central and eastern Virgin Gorda there are also large areas of vacant land. The total amount of vacant land in Virgin Gorda amounts to approximately 3,995 acres. The largest concentration of commercial uses is in the vicinity of Yacht Harbour Marina. There is also some concentration of hotel development in the North Sound area.

2.1.6 On Jost Van Dyke most development is concentrated in Great Harbour with residential use comprising just over 88 acres of the land area with 2,226 acres of land being undeveloped.

2.1.7 Of the other settlements, East End/Long Look/Long Swamp and The Valley in Virgin Gorda rank after Road Town in terms of population, level of services and public facilities. The remaining settlements are small villages with populations ranging from 140 to 1,000 persons. These include areas such as Carrot Bay, Sea Cow Bay, North Sound, West End, Great Harbour, and The Settlement.

2.1.8 Apart from the above, on Tortola in particular, there are scattered pockets of residential development which are a result of historical patterns of settlement and land ownership, as well as the ease with which basic infrastructure is provided in any part of the territory.

2.2 POPULATION

The population of the BVI was estimated at 19864 in 1999, and the population grew on an annual average of 0.7% from 1991 to 1999, The density of population is 118 persons per sq. km. Which is below the average density of the OECS member states. Most of the population is concentrated on Tortola, Virgin Gorda, Jost Van Dyke and Anegada islands. 

The population growth for the period 1970-80 showed a net outward migration of 613 persons. However, with significant tourism and general economic development in the territory during 1980-1990, in addition to natural increases, there was a net migration inflow of 3,154 recorded. The net migration flow is related to the relative scarcity of skilled man power which is related to deficiencies in the educational quality of the labour force. In 1993, it was estimated that near 50% of the territory’s population were foreign. 50% of the labour force was also foreign born with immigration responsible for 50% of total population growth in the 1980s. Population growth is expected to come from natural increases in the short to medium term, as well as from a large inflow of immigrants consisting largely of workers and their dependents.

Table II: POPULATION PROFILE FROM 1994 TO 1999.

2.3 Land Ownership

2.2.1 The manner in which land and water rights are held has a direct influence on its use and therefore on settlement planning. One distinct advantage in the BVI is that all land is registered in the Land Registry and the parceling of land is shown on Cadastral maps, allowing a reference number to be allocated to every piece of land. Table III below summarizes land ownership in the BVI during 1996. This pattern of ownership has shown little change since that time.

TABLE III
Land Ownership in the British Virgin Islands 1996

Source: Town and Country Planning Department and Inland Revenue Department 
NB. Figures shown are approximate. Percentages do not add because of rounding.

2.2.2 In the territory as a whole, some 46% is owned by local people; the Crown owns some 39%; and expatriates own approximately 15%.This pattern varies slightly from island to island, for example, Table II shows that on Tortola some 89% of land is in the hands of locals and only 10% expatriate owned, while the Crown owns a mere 1%. In Virgin Gorda the figures are: 20% locally owned; 19% expatriate owned and 61% Crown owned. On Jost Van Dyke 92% of land is locally owned and in Anegada, 98% of the land is Crown owned pending the outcome of a land distribution programme. Of the sister islands some 31% is locally owned; 45% expatriate owned and 24% Crown owned.

3. SITUATION ANALYSIS

3.1 Current trends in settlement patterns

3.1.1 Recent changes in settlement patterns have been determined in large part by the pattern of in-migration, with certain areas such as East End and Purcell on Tortola and the Valley, Virgin Gorda, experiencing high growth rates as they accommodate large numbers of migrant workers. The distribution of growth has also been influenced by the pattern and level of infrastructure provision throughout the territory. For example, as new roads are cut areas become opened up for development (e.g. Balsam Ghut on Tortola and White Bay on Jost Van Dyke). More generally, the spread of power and water services throughout the BVI has accelerated the spread of development throughout the islands.

3.1.2 There have also been marked changes in the intensity of land use, on Tortola and Virgin Gorda in particular. A significant number of residential applications now consist of apartment developments, and this trend has been growing in importance as the rented sector becomes more important in the overall housing market. Apartment units consist of two broad types; either units within an apartment building, or units within a single-family residence, typically at basement level. The total number of apartments permitted by the Development Control Authority during 1996 far outnumbers the number of single-family residences. The number of residential units permitted, by type, is summarized in Table IV below.

3.1.3 The type and number of development applications received has remained fairly constant for the last few years. Table V below summaries applications received for the period 1993 - 1999. There are minor variations from year to year in the number and type of applications received but the overall picture remains that residential buildings account for by far the largest category of development, followed by commercial/industrial buildings (including shops, offices and, increasingly, auto repair premises) and tourism developments. A recent phenomenon has been very strong demand for office space in Road Town. This is no doubt a reflection of current growth levels in the financial services sector of the economy. It is too early to tell whether this is a one-off market adjustment or the start of a long-term trend.

TABLE IV
Residential units permitted by type, 1996

TABLE V
Development applications by Number & Type, 1993-1999

3.2 Housing Supply

3.2.1 Housing in the BVI is a private sector undertaking since the Government is not involved in the construction of public housing. Since the 1970’s, however, the Government has made crown land available, divided it into lots, provided roads and sold these plots at a subsided price in a lottery. Land at McNamara, Horse path and Long Bush, all in Road Town, has been developed in this way. Recently government has purchased land in Sea Cows Bay and Greenland, East End, which is in the process of being assembled and released for housing development.

3.2.2 Table VI shows the age of dwellings on the different islands of the BVI. The quality of construction is generally quite high. Some traditional wooden buildings remain but most recent dwellings are built of concrete or a mixture of concrete and wood. Hurricanes and seismic activities are real dangers in the BVI and houses are generally constructed to withstand high winds and storms.


TABLE VI
No. of Dwelling Units by Year of Construction 1991

Source: British Virgin Islands, 1991 Population and Housing Census, Volume II

3.2.3 An analysis of number of households and number of dwellings reveals that there is no absolute shortage of housing in the BVI. Table VII reveals that, except for the District of Great Mountain, the number of dwellings exceeds the number of households. This is a very unusual situation in the Caribbean. This broad picture may hide small pockets of housing need and this aspect of the census data makes no reference to the quality of housing provision.

TABLE VII
Number of Households, Dwelling Units and Average Household Size by Major District - 1991 Census

Source: British Virgin Islands, 1991 Population and Housing Census, Volume II


3.3 Land Reclamation

3.3.1 A large amount of land reclamation has taken place in the BVI, especially along the southern coast of Tortola. In Road Town, several major areas were reclaimed, Port Purcell and Wickham's Cay I and II between 1969 and 1972, and the lands adjacent to the Administrative Complex in 1993. There are also a large number of other areas in Tortola where reclamation activity is ongoing, such as East End/Fat Hogs Bay, Sea Cows Bay, Fish Bay and Towers/West End. Many of these are incomplete, and are taking place incrementally and in an uncoordinated manner.

3.4 Transportation

3.4.1 The dispersed settlement pattern and steep terrain of the land encourage the use of the private vehicle. There is no public transport service although taxis are used extensively. Trip times are generally short except during peak periods in Road Town where traffic congestion is now a daily occurrence. Table VIII shows the modes of transportation used by persons traveling to work.


TABLE VIII
Percentage of population using various modes of transportation to journey to work, 1991

Source: Development Planning Unit

*There is no Public Transport in the BVI as defined in the UN/OECS Census categories; Public transport is often understood to be synonymous with hired transport in the form of Taxi-buses.

3.5 Institutional Framework

3.5.1 The BVI is a dependent territory of the United Kingdom. There is one layer of government responsible for all functions with no decentralization of responsibility. Functions are divided between four Ministries and the Deputy Governor’s Office. Matters relating to settlement and planning are covered in all four of the ministries as follows:

Chief Ministers Office 

• Development Planning Unit                                          Census
                                                                                      Economic Planning
                                                                                      Major Externally Funded Projects
                                                                                      Project Review Advisory Committee*
             
• Town and Country                                                       Land-use Planning
  Planning Department                                                   National Addressing System
                                                                                      Development Control Authority*

Ministry of Natural Resources and Labour

• Conservation and Fisheries                                          Technical Review Committee*
  
• National Parks Trust
  
• Agriculture
  
• Survey Department
  
• Land Registry

Ministry of Health and Welfare

• Community Health                                                      Environmental Health
  
• Social Services                                                            Public Administration Programme
  
• Adina Donovan Home for the Elderly
  
• Solid Waste Division

Ministry of Communications and Works

• Traffic and Roads
  
• Water and Sewerage
  
• Fire Services
  
• Building Standards
  
• Electricity
  
• Port Authority

Deputy Governor’s Office

• Attorney General’s Chambers                                     Legal Advice
                                                                                      Prosecution

* indicates an inter-departmental agency 


4. ISSUES/PROBLEMS/CONSTRAINTS

4.1 Institutional Arrangements

4.1.1 The Town and Country Planning Department operates under the Land Development (Control) Ordinance 1969, with a minor update in 1992, and the Land Development Guidelines 1972. These regulations do not provide an adequate basis for an effective planning system. The Ordinance has no clear statement of objectives and it is not comprehensive in its treatment of planning responsibilities. It focuses in a limited way on the traditional role of planning and development control and makes limited reference to development planning, to wider issues of environmental assessment and protection or to conservation of the natural and built environment. There is no requirement in the legislation for applications to be considered within a wider strategic policy context and there are no effective mechanisms for public consultation. Moreover, despite some updating in 1992, the legislation does not provide the comprehensive enforcement powers needed to make an effective impact on the management of development. To overcome these problems a draft Planning Act in line with the latest OECS guidelines has been prepared and submitted to Executive Council.

4.1.2 There is a lack of coordination amongst government departments, particularly if several Ministries are involved. This is often seen at the very initial planning stages, either during the budget preparation or when annual work programmes are being developed. If departments are not consulted in either of these phases, when the time comes for their contribution to a project being undertaken by another department, they unfortunately lack the necessary resources (time, financial resources, human resources, etc.) that will allow them to contribute meaningfully to the project. This can result in inefficiency and delay to applicants, or one department may find that a decision taken by another department, without consultation, limits its own decision making powers. Even in cases where the law requires coordination and collaboration amongst departments, in practice the process seems painfully slow. 


4.2 Settlement Planning

4.2.1 Most of the towns and settlements have emerged as a result of historical practices and the location of infrastructure. There has been a great upsurge in the building as a result of the buoyancy in the economy since 1985 and this has fueled the spread of development. Attitudes towards land and property have been very influential in determining the location of development because it is generally perceived that individuals have sole domain over their property and can therefore build wherever they happen to own land. There is a widespread lack of appreciation of the need to observe planning requirements and regulations, which has been compounded by a weak system for enforcing planning controls. This is evidenced by lack of observance of minimum requirements for development such as narrow roads and rights of way, lack of or inadequate parking, location of buildings in inappropriate sites, etc.

4.2.2 Further to this there is no system for implementation or coordination of projects in towns, villages and settlements. Development takes place in an ad hoc manner without regard to coordination of the long-term needs of settlements. In Road Town, for example, the Wickham's Cay Development Authority is responsible for management of the Cay but has no responsibility for the wider Road Town area. 

4.2.3 The development of settlements has been unplanned and as result there are many conflicting uses within the residential areas. Without land use policies or “zones” it is not possible to protect housing areas from commercial or industrial enterprises, or vice-versa. Often such uses are unsuitable neighbours by virtue of the noise and traffic they generate and their unsightly appearance. In order to provide a consistent basis for the separation of incompatible land uses a land use policy needs to be put into operation. On islands that are small with the additional limitations of steep topography and land ownership such “zoning” policies need to be sufficiently flexible to protect people’s environment whilst allowing the economy to continue to flourish.

4.2.4 Alongside new land use legislation and policies there is a need for tougher measures to control environmental health problems such as neighbourhood noise levels, sewage treatment and disposal, and new controls to prevent dangerous disposal of waste, particularly toxic waste, including used oil. Strong enforcement procedures are also essential if any improved environmental legislation is to become effective. At the same time government cannot be responsible for all problems in residential areas and the community has to accept some responsibility for its own living environment.

4.2.5 One of the most important resources of the BVI is its visual quality which is valued by both visitors and residents. Within the last ten years, however, a considerable amount of expansion has occurred both along the coastline and on the hillsides. Some of the major developments for example the quarries, the large hillside cuts and the unfinished land reclamation schemes have severely detracted from the appearance of the islands. Other development is contributing to a general degradation of the quality of the BVI’s appearance on a smaller scale. Development along roadsides and at the shoreline frequently detracts from rather than enhances the physical environment and new buildings are often purely utilitarian in appearance.

4.2.6 One factor contributing to the poor quality of the built environment is the lack of control over those who are allowed to practice as “architects and engineers” in the BVI. This situation is compounded by the fact that the designer of the building frequently exercises no control over its construction on site, which is left to the discretion of the building contractor. The establishment of a professional association for building professionals (architects, engineers and contractors) is one vehicle through which to address this concern.

4.2.7 Planning/building inspectors are under-resourced to deal with the current scale of construction and lack effective powers to deal with enforcement problems. A persistent problem is lack of co-ordination whereby power and electricity are provided to illegal developments. Although a certificate of completion is now in place in the Building Authority, it must also be enforced to prevent the provision of services to buildings that do not meet the necessary planning and building requirements. This will require more coordination between government departments and the utility companies and statutory agencies. 

4.2.8 With improved design standards, some landscaping and much more attention to the use of open spaces within the settlements, the whole ambiance of the BVI could be enhanced. There are very few ornamental trees or shady communal gathering spaces in BVI settlements and throughout the islands there is a need to replace trees lost during recent hurricanes. In Road Town, especially, there are large open areas but all are in need of environmental enhancement. One of the prohibiting factors is the parcelation of land but there are several important areas where a corporate approach should be possible. The importance of open space should be underscored with greater attention being paid to the management and maintenance of these spaces. 


4.3 Land Tenure

4.3.1 There are a number of problems relating to land tenure. In many instances, several siblings due to inheritance own a single parcel of land and there is the expectation by the owners that these lands can be subdivided regardless of size or topography. This can lead to a proliferation of very small building sites, which cannot adequately accommodate development. Traditional attitudes to inheritance and land parcelisation will have to change as the population continues to grow. Whilst the strong sense of ownership of land contributes greatly to the sense of identity and independence of BVIslanders it can also lead to frustrations and protracted disputes over development rights and potentials. In larger countries people are more likely to view land as a resource or a commodity to be traded like any other. This can help to create greater flexibility in the land market. The location of traditional land holdings may become less of a determining factor in settlement patterns as the market in land increases. For the moment, there is no effective means of resolving land disputes. The Court process is very slow and expensive to those involved. One option to consider would be some form of Land Tribunal to help resolve intractable land disputes.


4.4 Foreign Land Ownership

4.4.1 In the nineteen sixties, before the rapid expansion in the tourism industry large parcels of land in areas such as Belmont, Hodges Creek, and Green Bank on Tortola; Little Mountain on Beef Island; Nail Bay, Spring Bay and Leverick Bay on Virgin Gorda and Great Camanoe, were developed for resort/residential use. With the exception of Hodges Creek, many of these developments have remained enclaves and still include a large number of undeveloped plots. Moreover, there is sometimes a problem to ensure continued rights of public access to beaches and other public areas when land is developed. This can be a particular issue in the smaller outer islands, especially if these are in a single ownership.

4.4.2 In a territory as small as the British Virgin Islands, this type of development can introduce distortions into the land market and create social problems in the long term, as land ownership for future generations of British Virgin Islanders will be affected. There is a need to examine existing policies and develop specific policies with reference to land holding by expatriate owners. One option worth exploring is a policy to restrict foreign land holding to long-term leases. The government is able to exercise complete control over the sale of land to foreigners through the use of alien-land holding licenses.


4.5 Land Reclamation and Rights to Seabed

4.5.1 Existing practice with respect to the leasing of the seabed for reclamation is that leases are generally granted to the individual with adjacent property ownership. One of the major problems associated with reclaimed areas, is the fact that individual areas are reclaimed without adequate protection of the marine environment (either by the use of bulkheads or by silt screens) and without adequate drainage. This is primarily the result of the ad hoc nature of the activity. In any substantial reclamation, there is the need to coordinate all adjoining developments and reclaim areas in a comprehensive manner, and to determine the overall requirements for areas to be reclaimed. In many instances reclamation is carried out without consideration of the long-term implications for the development of the site. This has serious implications for an economy, which is dependent upon tourism as in many instances scenic views of the coastal area are being cut off from the landward side. The lack of controls over land reclamation have led to the following problems:

• Restrictions on public access to the shoreline
  
• An uncoordinated approach to the design and utilization of adjacent and reclaimed lands
  
• Loss of valuable habitats and coastal vegetation, such as mangroves, salt ponds and sea grass beds
  
• Interference with natural drainage patterns
  
• Displacement of traditional activities, such as fishing, hauling boats, drying nets etc
  
• Reclamation of the seabed beyond the approved limits

4.5.2 Given that the coastal waters and lands are essential resources which play an important role in the economic development of the British Virgin Islands their management is of crucial importance to the future development of the territory. While a certain amount of technical assessment has informed some of these activities there has been no development of an overall policy or legislative framework to inform these decisions. Detailed physical and biological studies need to be undertaken which will determine the carrying capacities of the marine environment to support proposed development.

4.5.3 Exacerbating these problems is the fact that extensive dredging operations accompany some of the reclamation activities and it appears that in some instances the dredged sand is utilized for purposes other than reclamation. Although permission is required for all dredging works (development) from both the Ministry of Natural Resources & Labour and the Town Planning Department, the system is in need of review especially with respect to monitoring and penalties. In addition, there is the need for specialist staff to monitor these types of developments.


4.6 Access to Land and Property

4.6.1 The haphazard development of roads in the BVI is resulting in several problems. The nature of land development and the road networks in the islands is such that a new road must be constructed to provide access to most land parcels when they are first developed. Often this involves cutting into the hillside at a steep gradient, which can result in erosion, land slippage and hence increased runoff and sedimentation of the marine environment. A more coordinated and co-operative approach is needed to minimize environmental damage when these sites are developed. Frequently roads are cut before an application is received in the Town and Country Planning Department even though road construction does itself constitute development. Further work must be done to improve public awareness on this issue.

4.6.2 The second problem stems from the lack of proper road design standards, which govern aspects of the road design such as gradient, surfacing, lane width, turning radii, drainage and sight lines. Dangerous junctions and hazardous carriageways result from this lack of prescribed standards. Furthermore too little attention is paid to the pedestrian. Except in parts of central Road Town there are no sidewalks and few pedestrian crossings. Traffic Wardens are however, provided at some schools in Road Town during peak time. Vehicle drivers are generally courteous to pedestrians but as the number of road users increases then much more consideration needs to be given to safety through improved development standards.

4.6.3 The legal status of some roads in the BVI is also unclear. When land is subdivided many people prefer to keep the estate roads private. This exacerbates design and maintenance problems and can lead to disputes with neighbours over rights of way. The procedure for public adoption of roads as set out in the Road Ordinance (CAP 207) is unclear and/or unused. One option would be to establish a highway authority, with clear responsibilities for adoption and maintenance of public roads.

4.6.4 Parking is another issue of concern. The Land Development Control Guidelines, 1972 stipulate that one parking space should be provided for every 1000 square foot of commercial floor space, 500 square foot of retail floor space and one parking space for every dwelling unit. However, these standards need to be updated in view of increasing levels of car ownership. There also needs to be more widespread public acceptance of the fact that it is not always possible to park directly outside ones destination, a short walk is sometimes necessary.


4.7 Housing

4.7.1 Low-Income Households

4.7.1.1 There are a couple of reasons development occurs as it does:

• Land prices continue to escalate. In 1994, the average price per acre was $60,000.00. In 2001, the average price per quarter acre is $75,000.00. Given the high price of land in the territory there will be a continuing need for government to continue to make lands available in order to respond to future housing demand in the territory. This suggests that tenure must form part of a comprehensive policy to deal with development and provision of housing. There is no current definition of a low-income household in the BVI nor is there any specific operating policy. 
  
• Some B.V. Islanders are land rich but cash poor. After acquiring land the difficulty, from an investment point of view, is accruing enough equity to obtain a construction loan. A purchaser must wait some years for the land to be used as collateral for a loan. 

4.7.1.2 In 1995, a Public Assistance programme had a $310,000 projected expenditure for 1995 and an estimated 200 claimants. In 2000, the budget was over $400,00 with 339 claimants, an increase of almost 70%. Government departments agree that there are many households on very low incomes. More detailed information is needed about households with low incomes and a subjective but informed decision needs to be made of the income threshold at which poverty begins in the BVI. Only then can any form of social housing policy be formulated for discussion.

4.7.2 Housing Quality and Services

4.7.2.1 Until 2000, construction standards were based on general practices. A specific document was not accepted by the industry. With the passing and implementation of the Virgin Islands Building Regulations, 1999, and progress inspections during the construction phase, a higher level of quality will be reflected in future construction. Presently, housing quality varies depending on the age and use of the structure. Some developers are lax in maintaining their properties and in providing adequate services such as potable water and sanitation. Septic systems, in some cases, overflow because they are undersized, not cleared or treated. Open space may contain openly stored material, dilapidated vehicles that may interfere with recreational space for children or proper on-site parking. Standardized multiple dwelling regulations could raise the quality of life for apartment renters, improve maintenance of structures and grounds by defining the developers’ responsibilities to their customers.

4.7.3 Housing for Special Needs

4.7.3.1 There are two government-run homes for the elderly: The Adina Donovan Home, adjacent to the hospital in Road Town, and since 1988 the Virgin Gorda Home for the Elderly. 

4.7.3.2 The Adina Donovan facility is currently adequate but in the future, as more people live longer and family networks change; it is possible that more accommodations may be needed. It has been discussed to create another facility in a more rural setting, with greater open space and less urban noise. 

4.7.3.3 The Virgin Gorda Home for the Elderly is a smaller facility compared to the Adina Donovan Home. Its neighbor, the Public Works Department, compromises its property limiting open space use. In both cases, a thorough understanding of the needs of the elderly and provision for those needs requires study.

4.7.3.4 Very few facilities exist to provide temporary shelter for any group of society. The Family Support Network (FSN) attempted to fill a need for battered women and children. The facility removed the sleeping quarters because the site was too accessible. Another site will be set up to resume 48 hour sleeping provisions. Children at risk and other vulnerable groups in society are without alternatives at this time. Government should promote and encourage such facilities in partnership with the private and charitable sectors.

4.7.4 Housing Financing

4.7.4.1 The present supply of housing appears to meet present requirements in the BVI, but there is growing concern about the increasing disparity between incomes and housing costs. The cost of housing finance is such that to own a small house or condominium the amount that will be required to be paid can vary from a minimum of $125,000 to $170,000. Given that banks will only finance 75% of the costs this will mean a monthly payment of $1,042 to $1,727, (payments calculated based on a twenty year schedule). Potential applicants must either own the land or find the remaining 25% through savings or borrow the down payment. Given existing income distribution where 60% of all employed persons earned under $1,000 per month it appears that 60% of the labour force cannot afford to own their own homes. While it may be argued that a substantial part of this labour force is migrant and will eventually leave the BVI, the migrant population does not represent the entire lower income group. Further to this, given that 48% female heads of households earned less than $750 per month this means that this group is even more disadvantaged in terms of obtaining shelter.

4.7.4.2 Banks have encouraged homebuilders to support their development by including a rental unit as part of the package. With every $100,000.00 of a construction loan becoming $1,000.00 in payment and construction costs averaging $150.00 per square foot, a homeowner must find a person capable of paying the rent to, at most, realize a profit and, at the least, cover the mortgage. Some homeowners with apartment dwellers have experienced subsidizing the bank note because the rent they need is not affordable. Banks have benefited the most when it comes to development: loan applicants are putting up more land that in excess of the value of the loan rather than using an amount equal to the loan because borrowers are unaware of what they need to do. When properly advised, borrowers survey a portion of land equal to the amount of the loan and the lenders are usually satisfied.

4.7.4.3 At present, in an effort to ensure that housing is made accessible to lower income groups, crown lands are made available by the state. There are however no fixed programmes or stated policies for making these lands available. Neither are there any fiscal incentives to encourage home ownership. Support has been voiced for tax relief and also for the relaxation of customs duties on building materials. Any proposed mechanisms should be targeted specifically for the first time homeowner, those on low incomes, or for projects to include in part or in total low-income dwellers. The programme should be structured to exclude speculative development.



5. POLICIES, STRATEGIES AND MEASURES FOR IMPROVEMENT

5.1 Settlement Planning

5.1.1 The following have been identified to address the issues documented earlier. 

• Enact the draft Physical Planning Act 
  
• Revise the draft National Development Plan and progress Local Plans
  
• Enact environmental legislation as a priority, with an emphasis on pollution standards/controls and land management
  
• Consider the option of a unified Inspectorate (Planning, Building, Environmental Health)
  
• Identify suitable enhancement schemes through Plan process
  
• Control the spread of development, by

• Providing a clear planning policy framework to guide development 
• Reviewing procedures with utility providers
• Restricting large apartment developments to urban areas

• Control non-conforming uses in residential areas, by establishing:

• A government land bank to provide alternative locations for starter businesses
• Clear zoning/designation of industrial sites
• Better enforcement of trade license requirements

• Encourage more landscaping and shade areas, by

• Developing the required skills and expertise
• Expanding the government nursery at Paraquita Bay

• Encourage greater protection of the historic environment, by

• Providing the legislative basis for protecting buildings
• Exploring funding mechanisms to compensate owners

5.2 Institutional Arrangements

5.2.1 The following have been identified to address the issues documented earlier. 

• Improve co-ordination amongst government departments, by

• Developing a culture of sharing information
• Introducing more delegated decision making
• Introducing clear policies and criteria for decision making

• Stop provision of power and water to illegal developments by requiring completion certificates for specified developments
  
• Provide a mechanism for resolving land disputes, perhaps in the form of a Lands Tribunal

5.3 Land Tenure

5.3.1 The following have been identified to address the issues documented earlier. 

• Discourage subdivisions which create very small lots, by

• Exploring alternatives such as shared ownership and division of capital receipts
• Involving the legal community & surveyors in discussions

• Review costs and benefits of continued land releases to foreigners, including

• Considering land release on a leasehold only basis
• Reviewing property tax to ensure economic benefits to the BVI are maximized

5.4 Land Reclamation

5.4.1 The following have been identified to address the issues documented earlier. 

• Improve the quality of land reclamation, and ensure environmental impacts are minimized, by

• Greater use of EIA in evaluating proposals
• Greater use of performance bonds
• Proactive role for government in providing bulkheads/revetments
• Imposing penalties if timetables are not met
• Setting leasehold terms at realistic levels
• Imposing lease charges from the outset of the reclamation process

5.5 Access to Land and Property

5.5.1 The following have been identified to address the issues documented earlier. 

• Ensure that new development does not involve restrictions on public access to beaches
  
• Increase public and political awareness of problems and need for unrestricted public access to beaches
  
• Improve the quality of private roads, by

• Developing and enforcing standards of road design
• Improving the monitoring of all new road cutting
• Increasing public and political awareness of problems and potential solutions
• Providing an improved legislative basis for new initiatives
• Providing clearer policies and consultation on government road cutting
• Establishing a Highway Agency with clear powers to adopt roads and maintain them to prescribed standards
• Clarifying procedures for compensation when land is acquired through compulsory acquisition for road building

• Provide increased parking in developed areas, by

• Safeguarding sites for parking in Road Town
• Considering parking charges and multi-level parking options
• Reviewing parking standards for new development

• Improve facilities for pedestrians, by

• Establishing a separate budget head for footpath construction within the road programme
• Identifying priorities for improvement through the Plan process

5.6 Housing

5.6.1 The following have been identified to address the issues documented earlier. 

• Increase the range and choice of affordable housing in the BVI, by

• Establishing a Housing Agency with clear responsibilities and enforcement powers for housing matters
• Creating multiple dwelling regulations for implementation by developers during tenant occupancy 
• Considering innovative funding mechanisms such as tax incentives, housing trust, and multi tiered customs duty charges, etc. for construction material for first time home builders and affordable housing developments 
• Providing dedicated housing for persons with special needs
• Improving current housing programs for senior citizens
• Creating land banks in planned areas for future local land ownership

PART II: SETTLEMENT PLANNING - INFRASTRUCTURE

6. TRANSPORTATION 

6.1 Current Situation

The transportation sector comprises air, sea and road transportation. According to the 1992 National Accounts, the transportation sector contributed 2.1% of total GDP and accounted for 2.93% of the work force. These figures underestimate the importance of transportation to the overall economy because the performance of other sectors depends very much on the transportation sector for the movement of goods and services. Transportation links facilitate a significant portion of trade with the United States, which comes from Puerto Rico and the USVI via a number of small barges and vessels. Normally vessels make weekly trips bringing perishable, durable and other goods to the territory.

6.1.1 Transportation Links

6.1.1.1 The BVI has an indirect sea link with mainland USA via Puerto Rico and the USVI. Marine passage is a major means of transport for the territory especially as most consumer goods are transported from different parts of the world by sea. Moreover, the tourist sector is highly dependent on imported goods, thus port facilities and shipping services are vital to the development of the territory. 

6.1.1.2 The major port facility in the BVI is Port Purcell with an 800 ft. dock. There are approximately six acres of paved area for the storage of containerized goods. There is a 600-foot pier in Road Town, which provides berthing for ferries, cruise ship tenders and mini cruise ships. The main ferry terminal is located in West End and accommodates both passenger traffic and light cargo moving between the BVI and the USVI. The terminal has 300 feet of berthing space as well as passenger arrival and departure halls, customs and immigration facilities and ferry ticketing offices. Virgin Gorda is serviced by a 600-foot jetty located at Spanish Town, which accommodates ferry vessels, mini-cruise ships, container ships and barges. There are two piers in Great Harbour, Jost Van Dyke; one is used mainly for passenger traffic and the other for cargo. Table IX shows BVI visitor arrivals by mode of transport.


Table IX: BVI Visitor Arrivals by Mode of Transportation.

Source: BVI Tourist Statistics, 1995

6.1.1.3 Direct air links with the continents of Europe and America are not possible because of the absence of a runway capable of handling the necessary long-range aircraft. The Beef Island Airport, the main port of entry to the BVI with a runway of 3600 ft. is presently undergoing a major upgrade that includes an extension of the runway to 4600 ft. and the construction of a new terminal building among other improvements. There are airstrips on Virgin Gorda and Anegada, which are both 3000 ft. long. Indirect air links are possible through regional carriers such as LIAT, American Eagle, Caribbean Star and other smaller carriers. Connections are made through the USVI, Puerto Rico, St. Maarten, Antigua and St Kitts. The BVI lacks a national airline. Table X below shows capital investment in communication and transport sector.

Table X: Transportation & Communication Affairs & Services Capital Investment 1990-1994

Source: Ministry of Finance

6.1.2 Road Network

6.1.2.1 The majority of public roads throughout the territory are paved except in Anegada and Jost Van Dyke. Tortola has a more developed network than other islands in the BVI. The major system of roads in Tortola consists of the southern coastal road extending from Beef Island to West End (16 miles), the Ridge Road which extends across the central ridge from East End to Meyers, and on to Windy Hill; the Northern Coastal road which extends from Belmont to Cane Garden Bay where it links back to Ridge Road. The network of roads is fairly efficient as most of the major settlement centres are linked. In Virgin Gorda, the road network is adequate, with most of the roads being paved. The North Sound Road connects the Valley and North Sound (a distance of approximately 7.5 miles from the Baths to Gun Creek). The main problem with the road network in the BVI is the lack of adherence to appropriate design standards and the constraints to proper road design due to land ownership issues and topography.

Table XI: ROAD TRANSPORT DATA