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Howard Prendergast (HP): My name is Howard Prendergast, and I am one of the senior civil engineers at the National Works Agency (NWA). I am a trained Hydrologist/hydraulic engineer, but I operate mainly as the senior hydraulic engineer at the NWA. Our main tasks cover highway design, bridge design, hydraulic design, and flood control and drainage systems. I've been at the NWA since 2008, but before that, I started at the former Public Works Department in 1996 and worked there until it became an executive agency and was renamed the National Works Agency in 2001. I left for some years, and in 2008, I returned to NWA, and that's my brief history.
HP: The division I work in is called The Directorate of Technical Services. We are the engineering arm of the National Works Agency (NWA) and the engineering consultant for the government. We have engineering oversight for a number of infrastructure projects, including highways, toll road construction, coastal works, social protection works, flood control schemes, and bridge construction, and we are responsible for main roads in urban areas (main roads account for about 20% of all roads in Jamaica).
We also provide engineering estimates for projects outside of the NWA, specifically for other government agencies or departments. We review and comment on development applications and some aspects of the environmental impact assessments. Usually, when applications are submitted to the parish council or NEPA for building approval, they are circulated through various agencies, including the NWA. We review some aspects of the physical planning; specifically, my department (the directorate of technical services) looks at the road and the drainage infrastructure and, to some degree, the structural aspects, if required.
HP: So, we do two types of maintenance:
Periodic Maintenance - a couple of times per year, we check to ensure that our drains are clear of debris. It may require minor repairs, and in some cases, it may require rehabilitation altogether. We usually perform this during set periods, maybe once or twice a year.
Targeted Emergency Maintenance - scheduled during our hurricane season. If funds allow, we try to ensure that we clear the drains before a storm event comes on, especially in urban areas.
Sidewalks are also within our scope of work; however, we tend to give the roadway priority. Sidewalks usually get more attention when a major rehabilitation or capital project is happening
HP: The NWA is responsible for main roads, which is our priority, meaning that we undertake major capital projects and rehabilitation work of our main road corridors. We also perform routine maintenance, such as patching asphaltic concrete roads, where you will find a lot of potholes. Sidewalks are also within our scope of work; however, we tend to give the roadway priority. Sidewalks usually get more attention when a major rehabilitation or capital project is happening; a recent example is Hagley Park Road. Routine maintenance on our streets is also typically reserved for the roadways, usually to address potholes, although sidewalks are within that scope.
HP: We follow specific engineering guidelines when we are designing. The agency is structured with a Directorate of Planning, whose role is to plan by doing the data collection, analysis, and research. They collect data like traffic counts or test the load-bearing capacity for a particular corridor. Based on their recommendations, my division (directorate of technical services) would prepare engineering drawings for roads, drainage, retaining walls, etc. Our design follows standards; for roadways and drainage, we follow the American Association standards AASHTO; for a major bridge project, we would use a combination of British, American, and European standards.
If we could carry out some level of routine maintenance, the risk level would be much lower, so if we cannot access adequate funds, the system will continue to be inadequate.
HP: It is unfortunate to say, but we can almost anticipate or expect these events to occur. History has shown us that they don't necessarily happen in the same locations; today is Montego Bay, but it might happen in Ocho Rios next year or next month. I don't want to say that we can't do anything about it, but the reality is that our infrastructure is outdated, even in Kingston. Most of our urban areas are along the coast, which makes us even more vulnerable to coastal action. Places like Port Maria are pretty much located at or below sea level. The reality is that climate change has caused the events to become more intense. Flooding is more severe and frequent, and that's what we're experiencing right now.
The first problem is that there are not enough funds or resources to maintain the drainage system and the flood control system, even to an optimal level, so that it can minimize the event of flooding. If we could carry out some level of routine maintenance, the risk level would be much lower, so if we cannot access adequate funds, the system will continue to be inadequate. The sad reality is that, over the years, the funds for maintenance have dwindled, and it's probably our biggest challenge.
The second challenge would be getting funding for capital projects to update what is antiquated; also securing funds to keep the drains clear and as efficient as possible.
The third major challenge is the lack of awareness across public agencies. For example, the Municipal Corporation (KSAMC) is responsible for cleaning the roads however, there are times when their street cleaners will sweep debris into our catch basins, and it gets into our drainage systems which doesn't help the significant issues we already have with maintenance. It's unfortunate that it has become a cultural practice to throw garbage on the road. In fact, it's pretty normal to see a fridge washing down and blocking our drains in some areas.
HP: Yes, well ultimately, some of our funds do go down the drain (pun intended). We see that happening too often. There are times when we have done rehabilitation or maintenance work, and the next day we are showered by heavy rain. It's pretty usual in some areas that a fridge will wash down and block a drain, and you wonder if it makes sense to clear them, it's a sad reality. You know, we do cooperate with other agencies but only to the extent that our resources allow. The problem is that the way we coordinate is not very efficient. We do get requests or funding resources to do maintenance or rehabilitation work on municipal Corporation roads, but the collaboration there is not to the extent that makes our work as efficient as possible; we still operate in different worlds.
In Montego Bay, for example, we have what we call a “backwater effect”, where the drains are pretty much at sea level, so with a storm surge, seawater backs up into the drains causing flooding in the city.
HP: Climate change is the reality, we are getting more frequent and intense storm events and more severe flooding events. Additionally, because of the low-lying nature of our urban areas and the location of our outfalls (where a river/drain/sewer empties into the sea), we are seeing rising seas entering the drainage system, which is seriously impacting its functionality. In Montego Bay, for example, we have what we call a “backwater effect”, where the drains are pretty much at sea level, so with a storm surge, seawater backs up into the drains causing flooding in the city.
In Port Maria, there is a similar situation; we expect it to flood every two-three years, and I mean major flooding. The outfall of the main watercourse, the Outram River, is also pretty much at or below sea level; in some areas, we are seeing that the flood plain has been occupied or built out (with impermeable surfaces) and requires either flood protection or relocation.
HP: Yes, I think it's a good strategy; it's an important component of an overall strategy that we were trying to implement. We understand that the drainage infrastructure that we have in place is very outdated and inadequate, and therefore, we must explore all measures that can reduce the run-off impacts as much as possible. So making the urban areas greener is a big plus, and we fully support any measures or interventions that can reduce these impacts. In my view, the fundamental principle is that our infrastructure is inadequate, and we need interventions, in the short and medium term, that we can implement to reduce these run-off impacts, especially for new developments to ease the burden on what is already existing.
There has been a push recently to develop more parks/ green spaces, apart from their significant social benefits there's an opportunity to think about them as important “green infrastructure” projects. What role can NWA play in advocating for these co-benefits?
... In our design, we recommended transforming parts of the King’s House grounds into retention areas. These could be green areas that would be modified into ponds and could be used to help cool down the environment, water the lawns, and be used for other domestic use.
HP: In 2013 and 2015, NWA conducted a master drainage study and a revised edition for key locations across Jamaica. We held a series of seminars and workshops, bringing together different stakeholders, including municipal corporations and other agencies. We explored interventions that could effectively manage the outdated and inadequate drainage infrastructure that we have in place while trying to improve our development runoff scenario.
In Kingston, we looked at King's House, which is the Governor General's residence and has probably the largest area of beautiful green open space in Kingston. In our design, we recommended transforming parts of the King’s House grounds into retention areas. These could be green areas that would be modified into ponds and could be used to help cool down the environment, water the lawns, and be used for other domestic use. We could use the same water for irrigation, and it would significantly reduce the impacts of stormwater running into Half Way Tree. Unfortunately, when funds were allocated to implement the project, this was not included.
We even engaged the Office of the Prime Minister (OPM) about putting in this kind of ‘green’ infrastructure, they had no objection, but when it came to the implementation phase, all was forgotten. The truth is, we have a culture of building and paving roads; these projects get off the ground, money gets spent, and decisions are made at the top without thinking that there is a greener way that we can do things. I don't think we as a society have reached that level of awareness for implementing greener projects. Perhaps, that is where think tanks like Island City Lab can make a difference.
HP: Well, in my view, we have to move from just policies to legislation, meaning there are specific requirements that you are mandated to provide. We can make very clear stormwater drainage guidelines, but if they are only guidelines, a developer can choose to follow them or not. From what I understand, there are two acts in Jamaica that we could target to achieve this:
For some years now, the government has been trying to amalgamate these two acts to make them more 'effective' so to speak. The proposal is to amend these acts so that the WRA has regulatory control over floodwater management and can advise on the areas to be declared as floodwater schemes and what policies should be put in place to mitigate against the effects of floodwaters. That process is underway as we speak; the next step is to take it to the legislators to make these amendments so that regulation becomes more practical.
HP: For example, the WRA could declare parts of Montego Bay as a flood control zone and limit development in flood plains and flood-prone zones. The WRA has a better capacity to plan and make these decisions through their research on our water resources and their investments in flood mapping. Once they make these declarations, the NWA, who historically has the capacity to implement projects, would then take on the necessary infrastructure work, whether river training or coastal protection works that control stormwater. Right now, the NWA is legislating and implementing, but we can't do both it's more practical to separate the responsibilities.
I think if you don't have buy-in at the very top, then it just won't go very far, and that's my honest feeling. Without that, it's like talking to somebody when they're not listening, so eventually, you stop talking.
HP: The NWA is more into hard engineering, what you call grey infrastructure, simply because that's where the money is spent. Also, that's what we are used to and what we have done historically, so it's going to be very difficult to break into this concept of green engineering. Nevertheless, I believe it can be done. I think it begins with our Planning and Research Department; they are the ones who actually do the research and planning and make the recommendations on what we implement.
But personally, I think if you don't have buy-in at the very top, then it just won't go very far, and that's my honest feeling. Without that, it's like talking to somebody when they're not listening, so eventually, you stop talking. As an example, when we were launching the drainage guidelines, I decided that I wouldn't do it unless the minister was a part of it, I actually had to push myself on the minister to ensure that I got a date that he could be at the launch of the report. Our entire strategy was surrounded by that because we understood that it wouldn't get any attention otherwise.
HP: I've done a lot of Community development work, and I haven't given up, but I've come to terms with the fact that if the community does not want what you are offering, it just won't happen. Even though you can clearly envision how beneficial a project could be, it may be difficult for a community that has more urgent needs to be as invested.
We did a landslide project in August Town where we implemented a Management of Slope Stability in Communities (MoSSaiC) method. This is an integrated method for engaging policymakers, project managers, practitioners, and vulnerable communities in reducing urban landslide risk in developing countries. Part of it was about reducing the moisture content on the slopes; the more moisture you have, the more frequent landslides will happen. One approach to do this is to collect the water from their rooftops or paved areas and hold it in a storage tank, and the community could reuse the water. However, the community was far more interested in getting water tanks than in an integrated solution to mitigate landslides. They couldn't see what we were attempting beyond handing out water tanks because water availability was a more immediate concern.
I think the most we can do with limited resources is to demonstrate as best as possible to those who can get involved so that they can understand and buy in as much as possible. Small community case studies could be a way to do this; studying one residential area and using it as a model could show what is achievable. Small projects like this can inspire and influence other people around, but the reality is that it can be very hard to inspire others if they have more immediate needs.
HP: It was my pleasure. Thanks for having me.
