ARTICLE FOR CARIBBEAN CONSTRUCTION DIGEST

THE NEED FOR A NATIONAL BUILDING CODE FOR TRINIDAD AND TOBAGO

By

Myron W. Chin, PhD, CEng, FICE, FIStructE, FAPETT

Formerly Senior Research Fellow and GEM Operational Manager for the Caribbean

Seismic Research Centre, The University of the West Indies, St. Augustine, TRINIDAD &
TOBAGO

INTRODUCTION

The need for a National Building Code for Trinidad & Tobago has long been recognized and
various attempts have been made to develop one over the past four decades but so far it remains
an elusive dream. Recent earthquakes such as the 12th January 2010 one in Haiti, the 27th
February 2010 one in Chile and the 22nd February 2011 one in Christchurch, New Zealand have
demonstrated in no uncertain terms that the threat of earthquakes should be taken very seriously
by all nations that are exposed to the risk.

FIGURE 1 -DEATHS FROM MAJOR EARTHQUAKES (after Lloyd Lynch)

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It can be seen from Figure 1 that the 230,000 deaths of the Haiti Mw7 earthquake resulted from
the release of elastic energy equivalent to a 2-megaton nuclear bomb, whereas the 802 deaths
from the Chile Mw8.8 earthquake were caused by energy release equivalent to a 500-megaton
bomb. The factor of 287 in the number of Haitian deaths compared to Chile was entirely due to
Port au Prince’s virtual absence of earthquake resistance and a lack of a proper building code.

The development and enforcement of a National Building Code is indispensable to the orderly
and safe development of a country’s built environment and, therefore, its sustainable
development. The main objectives of such a Code is the establishment of minimum
requirements for design, construction and occupancy of building structures with the aim of
protecting public health, safety and general welfare.

While it has been common knowledge that the Caribbean Islands are located near a seismically
active zone, the long return interval between devastating regional events and other prevailing
factors have combined to make it difficult for most countries of the region to establish and
sustain effective earthquake risk reduction programs. In the case of Trinidad and Tobago Figure
2 shows damaging earthquakes in terms of size, intensity chronology and locations.

Trinidad and Tobago Damaging Earthquakes

Size, Intensity, Chronology and Locations

7.8 (IX)
1766
Seismic Energy

7.4 (VI)
2007

7.3 (VIII)
1918
6.7 (VIII)
1997
7 (VII) 6.3 (VIII)
1888 1954 6.7
6.6 (VIII) 6.2
1825 6.5 6.3
5.9 6.1 5.3

1700 1750 1800 1850 1900 1950 2000

FIGURE 2 -TRINIDAD AND TOBAGO'S DAMAGING EARTHQUAKES(after Lloyd Lynch)

In the absence of earthquake risk reduction programmes, population increase and economic
development over the last 50 years have taken place in such a way that earthquake risk is
currently at levels that are unacceptable. The cost, in terms of human and property losses, that a

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large to great earthquake could inflict on any Caribbean island can be extremely high and is
expected to continue to rise in the future unless concerted effort is taken to intervene by
addressing the multi-dimensional cause of earthquake risk by means of new effective initiatives.

PAST AND RECENT INITIATIVES FOR EARTHQUAKE RISK REDUCTION

Past initiatives included, inter-alia, the development of the Caribbean Uniform Building Code
(CUBiC) in 1986, a proposal for the development of a Regional Building Standard (RBS) since
2004 and recently, a proposal for developing a National Building Code for Trinidad and Tobago.
CUBiC was intended to improve and harmonize the quality of building design and construction
throughout the Caribbean. The plan was for the Governments of the individual member states of
CARICOM to adopt and enforce it but this was never realized locally, despite several attempts
by the Government of the Republic of Trinidad and Tobago (GORTT) so to do. Some of the
reasons cited were a lack of political will as well as insufficient public awareness of its benefits.
In 2004, the Caribbean Development Bank (CDB) convened a meeting of key regional
stakeholders to assess the region’s readiness to withstand natural disasters such as from
earthquakes and hurricanes. As a result of its findings, the Bank agreed to fund the development
of a new Regional Building Standard (RBS) based on the International Building Code (IBC) with
Caribbean Application Documents (CADs) for the various Caribbean islands. This was to be
executed by the CARICOM Regional Organization for Standards and Quality (CROSQ).
However, CROSQ has to date been unable to complete the RBS, the deadline for which was
April 2010.
The deadline of the RBS project has been extended by 18 months but there is skepticism and
wariness amongst local stakeholders with regards to the ability of CROSQ to complete the task
in the extended time frame. As a consequence of this, the Trinidad and Tobago Bureau of
Standards (TTBS) submitted to the Ministry of Works and Transport (MOWT) - now the
Ministry of Works and Infrastructure (MOWI), a proposal for developing a NBC for Trinidad
and Tobago along similar lines as this present proposal. This was done in early 2011 but to date
it has not had any positive response from that Ministry.

Since the declaration of the Hyogo Framework of Action 2005-2015 and the decision by
Caribbean Disaster Emergency Management Agency (CDEMA) to implement its regional brand
of Comprehensive Disaster Management (CDM), there has been a steady shift in the approach in
which disaster management is practised in the Caribbean, with gravitation towards mitigation
and preparedness, away from the traditional response. Recent initiatives such as the Global
Facility for Disaster Reduction and Recovery (GFDRR) and the Global Earthquake Model
(GEM) have served as catalysts for regional disaster management efforts. The University of the
West Indies (UWI), through the Seismic Research Centre (SRC) is currently undertaking tasks to

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develop the earthquake risk component of a GFDRR Risk Atlas project as well as spearheading
the Caribbean Regional Programme of GEM which was launched in the Caribbean with a highly
successful three-day workshop from May 2-4, 2011 in Port of Spain, Trinidad with over 70
participants from nine Caribbean countries. Full details of the Workshop can be found at the
website of the Seismic Research Centre (SRC) –www.uwiseismic.com. Arising out of this
workshop seven Working Groups (WGs) were formed to review and investigate a number of
topics within the GEM’s Hazard and Risk Modules with particular reference to the Caribbean.

One of the Working Groups was charged with looking at Building Codes and the SRC under the
GEM Caribbean Regional Programme took the initiative along with Mr. Shyankaran Lalla to
revive the call for the urgent development of a National Building Code for Trinidad and Tobago
and enlisted most of the relevant stakeholders into a steering committee which prepared a
proposal for the drafting of such a Code. It was recognized that implementing mitigation
measures and reducing vulnerability were the most effective mechanisms to reduce the
potentially devastating impact of future strong and major earthquakes. Measures such as the
legislation of building codes and appropriate land use policies are most effective when
applied at the planning and design stages of projects. In order to effectively implement such
mitigation measures however, there must be a national building code in place.

The need for a National Building Code has long been recognized by national stakeholders in the
construction industry and key agencies of Government. The development of aspects of such a
Code began as early as the 1970s and some progress made over the years; however, due the
enormity of the task, the final result of a truly national Code was never realized in its entirety. In
2006, the Small Building Guide (TTS 599:2006) was published and found ready acceptance with
a number of stakeholders; however, this document was limited to small (mainly residential)
buildings comprising not more than two storeys and with a gross floor area of three hundred
square metres (300m2) or less.
Based on representation made by Mr Shyankaran Lalla, Quality Control Consultant and
Registered Engineers, Dr Myron Chin and Mark Francios in 2011 to The Honourable Dr Roodal
Moonilal then Minister of Housing ,Land and Marine Affairs. The Ministry of Housing, Land
and Marine Affairs gave its support to a new initiative to develop a National Building Code for
Trinidad and Tobago; Key stakeholders were subsequently invited to come together to work
towards the development of a National Building Code and this led to a Cabinet decision in 2012
to establish for the first time in the history of Trinidad and Tobago a National Building Code
Committee.

The Ministry of Planning and Sustainable Development indicated its intent to adopt the Small
Building Guide when The Planning and Development Bill is presented to Parliament and lent its
support to this effort .The Small Building Guide is to be revised and made into a Code which
will be enforced. Support for a National Building Code as a mitigation measure has also been
supported by the ODPM. This level of support has imbued key stakeholders with new confidence
in undertaking this long overdue project.

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BRIEF DETAILS OF PROPOSAL SUBMITTED TO GORTT FOR DEVELOPMENT OF
A NATIONAL BUILDING CODE (NBC) FOR TRINIDAD AND TOBAGO

The proposal aims to provide for the development of a national building code and a suitable
compliance mechanism for Trinidad and Tobago and was submitted to the Minister of Housing
and Environment on 2011-08-08. It is intended for the use of engineers, architects, contractors,
builders, planners and other allied professionals to establish effective disaster risk reduction
measures for earthquakes and other types of hazards in Trinidad and Tobago. It is based on the
adoption of the International Building Code (IBC) with a Caribbean Application Document
(CAD) for Trinidad and Tobago which will include appropriate seismic hazard maps for
Trinidad and Tobago. It supports the then Government of the Republic of Trinidad and Tobago’s
(GORTT’s) Development Pillar of “Good Governance” by strengthening existing agencies
responsible for building approval institutions and making these approval requirements
transparent.

The proposed NBC project complements the current regional effort by CDB-CROSQ project in
that it is based on the same IBC with CADs which could be incorporated into the regional
document if and when it is produced. It is understood that the Caribbean Development Bank
(CDB) has recently withdrawn its support for the CROSQ project.
This proposal is intended to replace the one submitted by TTBS to MOWI in the first quarter of
2011 since it has the same aims and objectives and is achievable within a shorter time frame.

PROJECT IMPLEMENTATION, ORGANIZATIONAL STRUCTURE AND PROJECT

TEAMS PROPOSED
The project will be implemented by the Multidisciplinary Committee established by GORTT,
the members of which received their letters of appointment on 2012-04-04 from the then
Minister of Housing and the Environment, Dr. Roodal Moonilal. The project proposal has been
prepared by the Seismic Research Centre (SRC) of the University of the West Indies, St.
Augustine, Trinidad under its Global Earthquake Model (GEM) Caribbean Regional Programme
in collaboration with a wide cross-section of stakeholders such as APETT, BOETT, TTCA, JCC,
TTBS, ATTIC, ODPM, UWI, and other professional bodies interested in the development of
building codes and standards.
The Membership of the Multidisciplinary Committee appointed by GORTT and its Terms of
Reference are given in Appendix I and it held their inaugural meeting on 2012-04-18 .It has
developed the Business Plan with the organizational structure for the project together with the
Project Teams and budget which have been be submitted to and ratified by the GORTT.

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In looking at the development process for the NBC, the approach is to
identify an appropriate Main Base Document (MBD);
analyse the technical content of the Main Base Document, identify the
modifications required, and compile the deviations in a National Application
Document (NAD) - as a companion to the MBD;
analyse the technical content of other referenced Codes or Supplemental Base
Documents (SBDs), identify the modifications required, and compile the
deviations in a series of NADs (as companions to the referenced SBDs); and
The Main Base Document together with the NADs will then be declared as a
National Code of Practice in accordance with Sections 15 and 16 of Act No. 18 of
1997 (the Standards Act).
All related Codes undertaken by Committees previously established under the TTBS’ Code
development activities will be incorporated (by reference) in the final output documents.
Selection of Base Documents - The Committee has selected the International Building
Code (IBC) - published by the International Code Council - as the Main Base Document for
the National Building Code; this decision was based on feedback received from the major
industry stakeholders. Furthermore, major Codes and Standards referenced in the IBC will
also need to be reviewed for applicability to Trinidad and Tobago; these referenced
documents or Supplemental Base Documents include,inter alia,
the International Mechanical Code (IMC);
the International Plumbing Code (IPC);
the International Fire Code (IFC);
the International Energy Conservation Code (IECC);
the International Green Construction Code (IGCC); and
several other Codes/Standards referenced in the various Base Documents
It is of interest to note that a Licensing Agreement was signed between the ICC and the then
Minister of Housing and the Environment, Dr. Roodal Moonilal on 2015-08-10. (See
Appendix II)

Small Building Code - Priority will be given to the revision of the Small Building Guide
and its transition into a Code with targeted completion within a 6 month timeframe. This
exercise will be undertaken in close collaboration with the National Planning Task Force
(NPTF), which operates under the oversight of the Ministry of Planning and Sustainable
Development (MPSD). Based on the recommendations of the NPTF, the following specific
technical areas will be investigated with a view to incorporating additional relevant
requirements in the formulation of the Small Building Code:
o informal infrastructure
o construction on clay soils
o seismic retrofitting
o hillside development

Development of Work Packages – The required technical work was divided up into

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Work Packages as follows:
The Small Building Code - seen as a priority item and defined as Work Package #1;
The contents of the IBC was analysed and divided up into three (3) Work Packages
based on the chapters devoted to certain major areas of work, viz.

Occupancy, Fire & Safety provisions,

Structural provisions, and
Mechanical provisions; and
Three (3) other aspects of the NBC were identified for to be addressed, viz.
Green Building provisions,
Plumbing, and
Electrical provisions

Establishment of Technical Working Groups (TWGs) – The Project will address the
work identified in the Work Packages through the establishment of Technical Working
Groups (TWGs); the Terms of Reference (TOR) for which have already been drafted. The
TWGs will comprise of persons with the requisite expertise in the relevant areas together
with representatives from relevant organizations, where appropriate.

Key Elements of Project Management- In order to ensure that the proposed NBC is
developed within the indicative schedule and budget, and that the technical requirements
are adequately addressed, sound project management practices will be employed; this will
include the use of
an appropriate project organizational structure;
an appropriate implementation methodology; and
a realistic project schedule.

Project Organizational Structure - The execution of the NBC Project will be

supported by the Secretariat (already established) and Project Unit (to be established); the
relevant Terms of Reference (TORs) have been developed.

PROJECT BUDGET
The funding required from the Ministry of Housing, Land and Marine Affairs (MHLMA) is
TT$9,767,940.00 .
TTBS will support the Project with funding from its recurrent budget ($1,296,000.00 TT)
supplemented by funds from an existing PSIP project ($935,400.00 TT) for a total of
$2,231,400.00
The indicative budget for the Project is therefore $11,999, 340.00 TT.

CONCLUDING REMARKS

1.The development of a National Building Code for Trinidad and Tobago has long been
overdue and it is encouraging to note that this elusive dream might finally come to fruition
when on Thursday 24th November 2011 Cabinet approved the appointment of a Steering

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Committee with Quality Control consultant Shyankaran Lalla as Chairman to look at the
establishment of a building code for Trinidad and Tobago. This was announced by the then
Housing and Environment Minister Dr. Roodal Moonilal during the post-Cabinet news
conference.

2. Members of the Multidisciplinary Committee received their letters of appointment on

2012-04-04 and include, interalia, representatives from the Seismic Research Centre of the
University of the West Indies, the T&T Contractors Association, Association of
Professional Engineers, the Board of Engineering of Trinidad and Tobago, Joint
Consultative Council, Bureau of Standards, Office of Disaster Preparedness and
Management, the Tobago House of Assembly and various government ministries.

3. The then Minister said Government recognized the need to protect citizens and
safeguard infrastructure and the introduction of the building code would preserve the
country’s economic gains and safeguard lives.

4. It is therefore hoped that this Multidisciplinary Committee will report back to Cabinet
in one month’s time from its inaugural meeting as mandated by Cabinet and that a
National Building Code for Trinidad and Tobago will be produced within a twelve to
fifteen months time frame from the date of disbursement of funds to the
Committee.However to date no funds have yet been disbursed to the Committee.

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 APPENDIX I

MEMBERSHIP OF THE MULTIDISCIPLINARY COMMITTEE TO SPEARHEAD

AND OVERSEE THE DEVELOPMENT OF A NATIONAL BUILDING CODE FOR
TRINIDAD AND TOBAGO AND TERMS OF REFERENCE

Mr. Shyankaran Lalla - Chairman

Quality Control Consultant

Mr. Deryck Omar - Deputy Chairman

Executive Director,
Trinidad and Tobago Bureau of Standards

Mr. Rodney Ramlogan - Member

Manager, Local Area and Regional Planning Division
Ministry of Local Government

Dr. David Persaud - Member

Environmental Manager
Environmental Policy and Planning Division

Mr. Ancil Kirk - Member

Senior Land Use Planner (T&CPD)
Ministry of Planning and the Economy

Mr. Wayne Punnette - Member

Director of Investment
Ministry of Trade and Industry

Mr. Zanim Ali - Member

Director, Construction Unit
Ministry of Works and Infrastructure

Mr. Clint Guy - Member

Building Inspector
(Division of Infrastructure and Public Utilities)
Tobago House of Assembly

Mr. Mookesh Ramsingh - Member

Senior Project Coordinator (Engineering), Project Unit
Ministry of National Security

Ms. Shelly Bradshaw - Member

Geographical Information Systems Specialist
Office of Disaster Preparedness and Management

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Mr. Lloyd Lynch - Member
Seismic Research Centre Representative
University of the West Indies

Mr. Mark Francois - Member

Board Member
Board of Engineering of Trinidad and Tobago

Mr. Kevin Granger - Member

Engineer
Association of Professional Engineers of T&T

Mr. Craig La Croix - Member

Director
Trinidad and Tobago Contractors Association

Mr. Afra Raymond - Member

President
Joint Consultative Council for the Construction Industry

Mr. Kerone Yearwood - Member

Association of Trinidad and Tobago Insurance Companies

Mr. Junior Thompson - Member

Architect
The Trinidad and Tobago Institute of Architects

Officer Cecil Davis - Member

Divisional Fire Officer
Chaguanas Fire Services Department

Officer Curtis Mundroy - Member

Acting Fire Sub Station Officer
Chaguanas Fire Services Department

TERMS OF REFERENCE
MULTIDISCIPLINARY COMMITTEE

 To formulate a project proposal for the development of a National Building Code

for Trinidad and Tobago to include an action plan and budget.
 To oversee activities relating to the development of the Code; promotions and
awareness building; and the development of an appropriate legislative and
regulatory framework.
 To ensure that the Code development activities comply with the code of Good
Practice for Standardization, that proper financial accountability and stewardship
is adhered to, and that all legal and institutional requirements are satisfied.

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 To establish sub-committees focused on various aspects of the Committee’s mandate
and appoint the chairpersons.
 To oversee the establishment and functioning of sub-committees.
 To monitor the sub-committee work plans and deliverables.
 To oversee the recruitment of consultants and payment of fees.
 To monitor consultants and review their technical submissions.
 To approve the development process and confirm the necessary components and
stages of development.
 To approve the preliminary and final draft documents for each state of the process.

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 APPENDIX II

SIGNED LICENSE AGREEMENT BETWEEN ICC AND THEN MINISTER OF

HOUSING AND THE ENVIRONMENT

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