Architectural Heritage in Saudi Arabia

Architectural Heritage in Saudi Arabia
Between Laws, Organizational Structures and
Implementation
Thesis submitted in accordance with the requirements of the University of Liverpool
for the degree of Doctor in Philosophy by
Ghazy Abdullah S. Al-Baqawy
November, 2018
In the name of Allah,
The Compassionate, the Merciful,
Praise be to Allah, Lord of the Universe,
and Peace and Prayers be upon
His Final Prophet and Messenger
II
Table of Contents
Abstract ...................................................................................................................... X
Acknowledgment .................................................................................................. XIII
List of Tables .........................................................................................................XIV
List of Figures ......................................................................................................... XV
Glossary of Abbreviations .................................................................................... XXI
Chapter 1: Introduction ............................................................................................ 1
1.1 Introduction ........................................................................................................ 2
1.2 The Topic under Investigation .......................................................................... 2
1.3 Research Aims and Objectives .......................................................................... 6
1.4 The Importance of Studying Laws, Organizational Structures and
Implementations in the Urban Heritage Sites: ........................................................ 8
1.4.1 Rationale of studying laws on cultural heritage ..................................... 8
1.4.2 Rationale of studying organizational structures in cultural heritage .... 13
1.4.3 Rationale of studying the implementations in cultural heritage........... 19
1.5 Research Method .............................................................................................. 23
1.6 Research Challenges and Limitations ............................................................ 30
1.7 Contribution to knowledge .............................................................................. 31
1.8 Research Organization and Layout................................................................ 31
1.9 Background....................................................................................................... 35
1.9.1 Area, location and population of the Kingdom of Saudi Arabia ......... 35
1.9.2 Economy and revenue .......................................................................... 37
1.9.3 Agriculture ........................................................................................... 37
III
1.9.4 Tourism ................................................................................................ 38
1.10 Evolution of Saudi Settlement ......................................................................... 40
1.11 The Theme of Cultural Heritage Studies at the National and Local
Levels ......................................................................................................................... 41
Chapter 2: Tangible, Intangible and Perception of the Past ‘Memory’ ............. 45
2.1 Introduction ...................................................................................................... 47
2.2 Cultural Heritage within Historical Dimensions ........................................... 50
2.2.1 Islamic Architecture and Societies ....................................................... 54
2.3 Heritage Definitions ......................................................................................... 59
2.3.1 Heritage Concept .................................................................................. 64
2.3.2 Transporting Heritage .......................................................................... 65
2.4 Intangible Cultural Heritage Definition......................................................... 67
2.4.1 UNESCO’s Action towards Intangible Heritage ................................. 67
2.5 The Relationship between Tangible and Intangible ..................................... 72
2.6 Perception of the Past ‘Memory’ .................................................................... 75
2.6.1 Place of The Past .................................................................................. 78
2.6.2 Old and New Look ............................................................................... 79
2.6.3 The Conflict of Views and Values ....................................................... 80
2.6.4 Knowledge of the Past ......................................................................... 81
2.6.5 The Consciousness ............................................................................... 82
2.6.6 Memory and Identity ............................................................................ 83
2.6.7 Customs and Traditions ....................................................................... 86
2.6.8 Narrative Power ................................................................................... 87
IV
2.6.9 Memory Transformation ...................................................................... 89
2.7 Summary ........................................................................................................... 92
Chapter 3: Laws, Policies and Regulations ........................................................... 94
3.1 Introduction ...................................................................................................... 96
3.2 The Evolution of Saudi Definition of Heritage .............................................. 97
3.2.1 Historical Background of the Saudi Law, Origin and Theme .............. 98
3.2.2 The Impacts of Generalization and Specification on Terminology and
Definitions ........................................................................................................ 100
3.3 The Development of the Definition of Heritage in Jordan ......................... 108
3.3.1 The Ancient Antiquity Law of 1966 .................................................. 109
3.3.4 The Urban and Architectural Heritage Preservation Law of 2005 .... 113
3.4 The International Definition of Heritage ..................................................... 115
3.4.1 The Athens Charter (Monuments) of 1931 ........................................ 117
3.4.2 The UNESCO Convention (The Hague) of 1954 .............................. 118
3.4.3 The UNESCO, Recommendation Concerning the Safeguarding of the
Beauty and Charter of Landscapes and Sites (Landscapes), of 1962 .............. 120
3.4.4 The Venice Charter of 1964 ............................................................... 120
3.4.5 The UNESCO Recommendation (National Level) of 1972 .............. 121
3.5 Development of the Definition of Heritage at a National Level ................. 126
3.6 Other Issues in Saudi Heritage ..................................................................... 129
3.6.1 Development Plans............................................................................. 129
V
3.6.2 The Oil Revolution............................................................................. 132
3.6.3 The Antiquities, Museums and Architectural Heritage Law of 2014 134
3.7 Summary and Immediate Inferences ........................................................... 136
Chapter 4: Organizational Structures ................................................................. 140
4.1 Introduction ...................................................................................................... 142
4.2 Organizational Structure in Saudi Arabia between 1972 and 2015 ............ 144
4.3 The Placement of Heritage .............................................................................. 145
4.3.1 Area of heritage under the MOE and SCTA ........................................... 145
4.3.2 Heritage within tourism framework ........................................................ 148
4.3.3 Heritage within Saudi development ........................................................ 150
4.4 Main players ..................................................................................................... 152
4.4.1 The Ministry of Education (MOE) .......................................................... 153
4.4.2 Ministry of Municipal and Rural Affaires (MOMRA) ........................... 158
4.4.3 Ministry of Culture and Information (MOCI)......................................... 164
4.4.4 Saudi Commission for Tourism and National Heritage (SCTNH) ......... 168
4.5 Lessons Learned from Relevant Experiences ................................................ 173
4.5.1 Historic Cairo .......................................................................................... 174
4.5.2 Petra ........................................................................................................ 178
4.5.3 Learned lessons from Petra and Historic Cairo.................................. 181
4.6 Organizations’ Capacity .................................................................................. 183
4.6.1 Knowledge capacity ................................................................................ 184
4.6.2 Knowledge resources .............................................................................. 191
4.7 Summary and Immediate Inferences ............................................................. 193
VI
Chapter 5: The Implementations.......................................................................... 195
5.1 Introduction .................................................................................................... 197
5.2 Listing - Between Protection and Action ..................................................... 201
5.2.1 The Criteria for Classification and Selection of Heritage Sites in Saudi
Arabia 202
Criterion 1: The Age ........................................................................................ 203
Criterion 2: The Historical Importance (Historical Event) ............................. 205
Criterion 3: The Rarity .................................................................................... 207
Criterion 4: The Status (Demolition Percentage) ............................................ 209
Criterion 5: The Urban Heritage Style ............................................................ 211
Criterion 6: The Architectural Design and Details ......................................... 212
Criterion 7: The Possibility of Investment ....................................................... 214
The Additional Criteria .................................................................................... 216
5.3 The Limitation and the Impacts of the Criteria .......................................... 219
5.3.1 The Integration Between Criteria ....................................................... 220
5.3.2 Distribution of Weights ...................................................................... 221
The distribution across the criteria .................................................................. 222
The Distribution within the Criterion Itself ..................................................... 223
5.3.3 The Terminology Used ...................................................................... 224
5.3.4 Additional Limitation ......................................................................... 225
The Overlooked Role of Intangible Cultural Heritage .................................... 225
The Values Ensuing from the Criteria ............................................................. 227
VII
5.4 Case Study: Barzan District Area in Ha’il City Centre ............................. 229
5.4.1 Introduction ........................................................................................ 229
5.4.2 Ha’il’s Diverse Architectural Heritage .............................................. 231
5.4.3 Barzan District Area ........................................................................... 235
5.5 Criteria Underlying the Classification and Selection of Barzan Heritage
Area For the purpose of Conservation and Development .................................. 240
5.6 Examples of Exclusion of Some Cultural Heritage Values in Barzan District
.......................................................................................................................... 242
Chapter 6: Epilogue ............................................................................................... 247
6.1 Introduction .................................................................................................... 249
6.2 Lessons Learned from Laws, Policies and Regulations .............................. 251
6.2.1 The Experiences at National Level .................................................... 251
6.2.2 The Experiences at Regional Level.................................................... 256
6.2.3 International Level ............................................................................ 258
6.2.4 Summary ............................................................................................ 259
6.3 Lessons Learned from Organizational Structures ...................................... 260
6.3.1 The autonomy..................................................................................... 260
6.3.2 The relationship between the main players ........................................ 262
Integration and competition approaches ......................................................... 263
Power imbalance.............................................................................................. 267
Duplicate process ............................................................................................. 267
Collaboration ................................................................................................... 268
VIII
6.3.3 Summary ............................................................................................ 269
6.4 Lessons learned from Implementations ....................................................... 270
6.4.1 The implementations toward cultural heritage values ....................... 271
Sharing the cultural heritage site resource ...................................................... 272
Heritage sites management .............................................................................. 276
User management............................................................................................. 277
6.4.2 Tourism management in the urban cultural heritage sites ................. 280
Information and interpretation ........................................................................ 280
Managing urban use ........................................................................................ 292
Enhancing the cultural experience .................................................................. 297
Traffic and transportation management .......................................................... 298
Pedestrians and leisure .................................................................................... 301
6.4.3 The place enhancement ...................................................................... 302
6.4.4 Summary ............................................................................................ 306
6.5 Areas of further study.................................................................................... 308
References ............................................................................................................... 310
Appendix ................................................................................................................. 341
IX
Cultural Heritage in Saudi Arabia
Laws, Organizational Structures and Implementations
By Ghazy Abdullah Al-Baqawy
Abstract
Saudi Arabia has significant cultural heritage that faces challenges, at both local and
national levels, to be acceptable as a valuable cultural resource. The country, in
general, and the Ha’il region specifically, has important architectural, archaeological
and urban heritage assets that has not been adequately researched, particularly with
regard to how national heritage laws and organizational structures and local
approaches to heritage management implementation impact on these resources.
The government has begun encouraging cultural tourism through many initiatives, and
much effort is being directed towards its development. The framework of this doctoral
research has been shaped by the aim to identify the nature of the gap in Saudi Arabia
in understanding the value of cultural heritage as the prime tourism resource, both
tangible and intangible, at national and local levels. The research makes an important
contribution to Saudi studies by addressing this gap through the investigation of, a)
the laws, policies and regulations that direct and guide heritage development, b) the
organizational structures that enforce these regulations, and c) the implementation
processes that translate the laws into actions towards heritage sites development and
user engagement. This is accomplished through an interdisciplinary approach to the
survey, documentation, analysis and interpretation of the available laws, structures and
resources nationally and locally, keeping the wider regional and international contexts
of operation in mind.
The gap in understanding the value of cultural heritage between national and local
levels via laws, policies and regulations is confirmed by a disparate level of awareness
of the different values of cultural heritage within its context. Analysis of the Saudi
X
heritage laws within a broader and more dynamic regional and international context
has identified flaws of the present law and its inadequate evolution over the past four
decades. It has also highlighted how cultural heritage at national and local levels
should be practiced by both communities and the administration towards identifying
the best ways to decrease this gap.
Heritage management and tourism organizational structures at national and local
levels have affected the appropriate development of cultural heritage resources. The
current structure highlights significant organizational gaps in effective cultural
heritage management, as illustrated by the remits of the Ministry of Municipal and
Rural Affairs (MOMRA), which own heritage properties at a local level, and the Saudi
Commission for Tourism and National Heritage (SCTNH), which expects to provide
the technical expertise. The High Commission for Development of a province (HCD)
plays a significant role towards establishing ways of enhancing the organisational
structure for the architectural/urban heritage and tourism sectors, particularly in
combining power and knowledge as a main tool for the resolution of the conflicts that
shape and affect the relationship between main players such as education,
municipalities and tourism. Addressing the laws and organizational structures has led
to the identification of ways for encouraging effective administrative stakeholder
involvement by taking a holistic view of the heritage values and aiming towards public
awareness.
Extending from the laws and organizational structural issues, and taking Barzan
District of the Ha’il region as a case study, the research finally explores how heritage
management and tourism policies are actually implemented within a local context, and
where the impediments lie. This is done keeping the wider developmental imperative
XI
in mind, i.e., how the significance of Ha’il’s architectural heritage could contribute
towards its economic and cultural development.
XII
Acknowledgment
First and foremost, praise be to Almighty Allah, who with all his blessings and the
prayers of my family the completion of this work would not have been achieved.
Great deep prays go to whom was my role model and source of wisdom in life, my
father, who left before seeing his harvest, I ask Almighty Allah to bless his soul.
Throughout my PhD journey, many great colleagues, institutions, friends, relatives
and others too numerous to mention provided their valuable help and advice. Without
their invaluable assistance, support and encouragement this work would never come
to reality. Here, I wish to extend my deep appreciation and acknowledgment to all of
them.
Firstly, I owe a great debt of gratitude to my Director of Studies and supervisor,
Professor Soumyen Bandyopadhyay who believed in my ability and enthusiasm to do
the research, and for his meticulous and thorough supervision of the research and
writing. Special thanks go to my second supervisor Dr.Giamila Quattrone and
Dr.Martin Goffriller who contributed in developing my research skills and for their
support and encouragement.
Support from Saudi Arabia came from many Saudi officials from various ministries
and government organisations. Directors and staff of Saudi Commission for Tourism
and National Heritage (SCTNH) who kindly provided all the necessary information
and data.
Finally, I dedicate this work to my beloved family especially my wife and my children:
Norah, Abdullah and Maryah.
XIII
List of Tables
Table 1. 1: Tourism GDP in Saudi Arabia between 2002 and 2010 (Saudi Commission
for Tourism & Antiquities [SCTA], Tourism information and research Centre [MAS],
2011) ............................................................................................................................ 3
Table 1. 2: The oil revenues in Saudi Arabia (Ministry of Finance, Saudi Arabian
Monetary Agency, Annual Report No. 48, 2013) ...................................................... 37
Table 3. 1: The values included in the 2014 law...................................................... 135
Table 4. 1 The advantages, disadvantages and challenges of the options................ 187
Table 5. 1 Distribution of the weights in the historical importance criterion .......... 224
Table 5. 2 Cultural heritage values extracted from the criteria ................................ 228
XIV
List of Figures
 Any figure without source is mainly by the author.
Figure 1. 1: Examples of architectural styles and materials in some regions in Saudi
Arabia (SCTA, 2013) ................................................................................................... 4
Figure 1. 2: Examples of architectural styles in the Ha'il region (SCTA, 2013) ......... 5
Figure 1. 3: Research methodology structure. ........................................................... 24
Figure 1. 4: Research themes and data collection method ......................................... 26
Figure 1. 5: Levels and directions of the data collection in the research ................... 30
Figure 1. 6: General location of Saudi Arabia and regions of the kingdom
(Population and Housing Atlas, Ministry of Economy and Planning, Central
Department of Statistics and Information, 2010) ....................................................... 36
Figure 1. 7: The result of heritage management if viewed solely as a question of
custodianship and guardianship (UNESCO, 2013: 14).............................................. 40
Figure 1. 8: Examples of old and new issues in heritage management (UNESCO,
2013: 15) .................................................................................................................... 40
Figure 2. 1 The evolution in the definition of Cultural Heritage in the UNESCO 68
Figure 3. 1: Examples from Ha’il city centre show whether keeping the buildings to
grow in value or investing them immediately by constructing a new building. ...... 105
Figure 3. 2: Examples from Ha’il city center illustrate the conservation practices
from the owners........................................................................................................ 106
Figure 3. 3 The development of the meaning and understanding of heritage at
international, regional and national levels ............................................................... 125
Figure 4. 1 The five main stages of heritage in Saudi Arabia. ................................. 146
Figure 4. 2: The participation from organizations in heritage development in Saudi
Arabia. ...................................................................................................................... 146
XV
Figure 4. 3 Typical structure for the GDE at the local level in each province
(moe.gov.sa, 2018) ................................................................................................... 157
Figure 4. 4 MOMRA structure illustrates the main players (MOMRA, 2018)........ 160
Figure 4. 5 The Ha’il municipality structure (first, second and third levels), as a
typical example of the local municipalities, illustrates the main departments at the
local level (MOMRA, 2018) .................................................................................... 162
Figure 4. 6: Some examples of the current state of neglect in which some heritage
sites lie because of the misconceptions which surround them across MOMRA staff
as well as the public (Barzan District area in Ha’il, 2016). ..................................... 163
Figure 4. 7 SCTNH structure highlighting the main players (SCTNH, 2018). ....... 172
Figure 4. 8 Petra Development and Tourism Region Authority (1st, 2nd and 3rd levels)
.................................................................................................................................. 180
Figure 4. 9 Position of a government body to fill the gap between ‘power’
(MOMRA) and knowledge (SCTNH) toward cultural heritage management and
development at the local level. ................................................................................. 188
Figure 4. 10 The link between main players in the SCTNH, MOMRA and HCD
structures. ................................................................................................................. 190
Figure 5. 1: Conventional approach to planning (UNESCO, 2013) ........................ 200
Figure 5. 2: The values-led approach to planning (UNESCO, 2013) ...................... 200
Figure 5. 3 Madaen Saleh in Al-Ula (left) and a house in Barzan (right) are as
examples of the age criterion. .................................................................................. 204
Figure 5. 4 An example of architectural heritage buildings in Barzan district area as a
case to illustrate the status (2016). ........................................................................... 210
Figure 5. 5 Examples of the architectural design and details from Barzan area in
Ha’il (2016). ............................................................................................................. 213
XVI
Figure 5. 6 The weights and percentages of the whole criteria ................................ 222
Figure 5. 7 The criteria weights and percentages compared with each criterion ..... 223
Figure 5. 8 Eid breakfast with neighbours at the beginning of festivities in Ha’il is a
chance to re-call cultural heritage activities and within context (2016). ................. 226
Figure 5. 9 Ha’il province location with cities within province boundary (SCT,
2003). ....................................................................................................................... 230
Figure 5. 10 The diversity in architectural heritage within Ha’il province boundary
(a. Ha’il City, b. Jubbah, c. Baqaa, d. Moqeq, e. Faid, f. Samira and g. Alslimi)
shows the differences in architectural style and building materials, which helps in
shaping the identity of the community as a result of cultural heritage values. Also,
this adds to its significance and uniqueness at local level (Al-Hawaas, 2002: 117,
133, 137, 139, 140, 148 and 153)............................................................................. 234
Figure 5. 11 Satellite image of Ha’il City, (KACST, 2016) .................................... 235
Figure 5. 12 Satellite image of Ha’il city centre, showing some cultural heritage sites
(KACST, 2016) ........................................................................................................ 235
Figure 5. 13 Urban tissue in Ha’il city centre showing the coherence and uniformity
in the urban structure which reflects the cultural activities (Ha’il Municipality, 1978)
.................................................................................................................................. 237
Figure 5. 14 The change in urban tissue in Ha’il city centre, which affects not just the
built environment but also the cultural activities (KACST, 2016) .......................... 237
Figure 5. 15 The changes in Barzan area as a result of modernization, which
impacted the development on an urban and building scale. On the right, one of
Barzan’s towers being isolated................................................................................. 238
Figure 5. 16 Cultural heritage sites in Ha’il city centre showing the status of some
architectural heritage buildings compared with preserved buildings (2016). .......... 239
XVII
Figure 5. 17: Architectural design and details from Barzan District showing
resources of different values (2016) ......................................................................... 244
Figure 6. 1 The development of heritage laws in Saudi Arabia ............................... 252
Figure 6. 2 Satellite image of the Barzan Tower in the Ha’il Province (KACST, 2016)
.................................................................................................................................. 254
Figure 6. 3 Zoomed-in image from the satellite image of the Barzan Tower in the Ha’il
Province (King Abdulaziz City for Science and Technology, 2016)....................... 255
Figure 6. 4: The Barzan Tower in the Ha’il Province, 2016. ................................... 255
Figure 6. 5 The development of heritage laws in Jordan between 1934 and 2005. . 256
Figure 6. 6 SCTNH structure illustrates the new unit that can play important roles in
managing cultural heritage both internally and externally. ...................................... 265
Figure 6. 7 Hypothetical evolution of a tourist area (Butler, 1980, adapted by Butler,
2006: 5, Vol.1) ......................................................................................................... 273
Figure 6. 8 The visitors in Al-Qeshlah palace during seasonal events such as ‘National
Day in 2016’ (left). For normal days most of the year, the palace seems to be almost
empty (right); rectification of this situation is possible by planning and management,
(2016). ...................................................................................................................... 274
Figure 6. 9: The Ha’il city centre with distances between the Barzan market,
Alqeshlah, Airf and other sites. (Modified, KACST, 2016) .................................... 278
Figure 6. 10 The information and interpretation methods used in Al-Qeshlah Palace
through only signboards surrounding the palace and brochures at the main entrance.
(2016) ....................................................................................................................... 281
Figure 6. 11 The information and interpretation methods used in A’Airf castle are
signboards surrounding the fort and brochures at the main entrance. (2016) .......... 282
XVIII
Figure 6. 12 The signboard location and materials as information and interpretation
tools, which over time became illegible because of the metal corrosion, causing a
negative impression for visitors and the site, Al-Qeshlah palace (2016) ................. 283
Figure 6. 13 Different sizes, materials and colours of the signboards in the Kerak
Castle in Jordan. (2010) ........................................................................................... 284
Figure 6. 14 The visitors centre in A’Airf castle in Ha’il city, it is a new construction
with the style and manner of local vernacular architecture and is located inside the
castle site to serve visitors. (2016) ........................................................................... 285
Figure 6. 15 The Al-Salt heritage trail plan in Jordan shows the development plan for
the heritage components rather than a single heritage building by implementing the
concept of heritage trails. (Ministry of Tourism and Antiquities, 2010) ................. 288
Figure 6. 16 Tourist heritage trail signage at the Al-Salt heritage site in Jordan, shows
the theme of these signs and the direction of the sites as a tool to manage information
and users within the urban heritage site (2010). ...................................................... 289
Figure 6. 17 Some impacts on the signage boards in Al-Salt heritage trail due to using
unsuatable materials such as metal. These signs are not legible and are also not
maintained, which might cause nigative impressions and loss of objectives (2010).
.................................................................................................................................. 290
Figure 6. 18 Information and interpretation tools used in the Liverpool city centre
(2017) ....................................................................................................................... 290
Figure 6. 19 Examples from the Al-Salt project in Jordan shows the expanding works
toward local shops by designing shops plates (2010). ............................................. 291
Figure 6. 20 Different techniques, materials, sizes, coulours and messages for using
signboards in the same country (Jordan) but in a different sites such as Dana Village
(2010). ...................................................................................................................... 292
XIX
Figure 6. 21: Ha’il city centre existing land use (modified, SCT, 2005) ................. 294
Figure 6. 22 A private museum close to A’Airf castle in the Ha’il city centre shows
richness in collectibles that deserved to participate in enhancing the cultural
experience (2016). .................................................................................................... 297
Figure 6. 23 Some examples from cultural heritage sites in the Ha’il city centre and
the implementations of pavements for visitors (2016). ............................................ 299
Figure 6. 24 Some examples from Albert Dock in Liverpool illustrates different
methods and techniques to manage traffic by using different materials, shapes and
colours (2017). ......................................................................................................... 301
Figure 6. 25 Different colours, materials, shapes and elements in the urban area will
participate in creating an enjoyable environment, as seen in Liverpool (2017). ..... 302
Figure 6. 26 The main materials in the cultural heritage sites in the Ha’il city centre
such as palms, wood, stones, gypsum and mud (2016). .......................................... 304
Figure 6. 27 The heritage place should be the main resources for the architectural
heritage materials whether in structure, facade or internal design. Architectural
heritage is also the main resources for urban products such as street furnuture. Urban
products are the market for economic products for the built enveronment as well as
residents and users (2017). ....................................................................................... 305
XX
Glossary of Abbreviations
ACOR American Centre for Oriental Research

ARAMCO Arabian American Oil Company
CBRL Council for British Research in the Levant
DAI German Archaeological Institute in Jordan
GCC Gulf Cooperation Council
HCA High Council for Antiquities
HCFDHR High Commission for Development in Ha'il Region
ICOMOS International Council on Monuments and Sites
IFAPO French Institute of Archaeology of the Near East
KACST King Abdulaziz City for Science and Technology
KSA Kingdom of Saudi Arabia
MAS Tourism Information and Research centre
MOA Ministry of Agricultural
MOCI Ministry of Culture and Information
MOE Ministry of Education
MOEP Ministry of Economy and planning
MOF Ministry of Finance
MOHE Ministry of High Education
MOMRA Ministry of Municipal and Rural Affairs
MOT Ministry of Transportation
NHC National Heritage Centre in SCTNH
PDTRA Petra Development and Tourism Region Authority
REDF Real Estate Development Fund
SCA Supreme Council of Antiquities in Egypt
SCT Saudi Commission for Tourism
SCTA Saudi Commission for Tourism and Antiquities
SCTNH Saudi Commission for Tourism and National Heritage
TDS Tourism Development Strategy
TVTC Technical and Vocational Training Corporation
UNESCO United Nations Educational, Scientific and Cultural Organization
XXI
Chapter 1: Introduction
1.1 Introduction ..................................................................................................... 2
1.2 The Topic under Investigation ....................................................................... 2
1.3 Research Aims and Objectives ....................................................................... 6
Implementations in the Urban Heritage Sites: ........................................................ 8
1.4.1 Rationale of studying laws on cultural heritage......................................... 8
1.4.2 Rationale of studying organizational structures in cultural heritage ....... 13
1.4.3 Rationale of studying the implementations in cultural heritage .............. 19
1.5 Research Method ........................................................................................... 23
1.6 Research Challenges and Limitations ......................................................... 30
1.7 Contribution to knowledge ........................................................................... 31
1.8 Research Organization and Layout............................................................. 31
1.9 Background.................................................................................................... 35
1.9.1 Area, location and population of the Kingdom of Saudi Arabia ............. 35
1.9.2 Economy and revenue .............................................................................. 37
1.9.3 Agriculture ............................................................................................... 37
1.9.4 Tourism .................................................................................................... 38
1.10 Evolution of Saudi Settlement ...................................................................... 40
1.11 The Theme of Cultural Heritage Studies at the National and Local Levels
......................................................................................................................... 41
1.1 Introduction
Saudi Arabia, as well as most of Gulf Cooperation Council (GCC) countries, has
significant cultural heritage, both tangible and intangible, which faces challenges to
make it acceptable as a valuable cultural resource. Some of these challenges are local
problems; others are national. Saudi Arabia in general, and region of Ha’il specifically,
has significant architectural, archaeological and urban heritage that have not been
adequately researched.
The government has started to encourage cultural tourism in many ways, and
significant efforts are being made towards its development. The development of
cultural heritage is a result of heritage management and the tools it deploys. In this
management, three factors play important roles. The first being the laws, regulations
and policies, another is the institutional bodies that apply and direct the first. These
two factors affect the third: the implementation and application on the cultural heritage
sites at local level. These three factors comprise the framework of heritage
management in Saudi Arabia, from national to local levels. However, before
addressing these factors, highlighting some information about Saudi Arabia and the
Ha’il region is necessary to this research.
1.2 The Topic under Investigation
Many countries around the world are trying to diversify sources of national income,
and one of the best ways to encourage this income is through tourism. The Gross
Domestic Product (GDP) for tourism in Saudi Arabia has increased from 2.7% in 2006
to 3.7% in 2010 (SCTA, 2011), an increase in excess of 61 billion SR1 (Table 1.1).
1
The US dollar ($) is equal to 3,75 Saudi Riyals (SR) at present.
2
World Travel and Tourism Council (WTTC) in 2018 stated that the direct contribution
of travel and tourism to GDP in Saudi Arabia was SAR88.2bn (USD23.5bn), 3.4%
total GDP in 2017 and is forecast to rise by 3.9% in 2018, and to rise by 3.7%pa, from
2018-2028, to SAR131.3bn (USD35.0bn), 3.6% of total GDP in 2028 (WTTC, 2018:
1).
Table 1. 1: Tourism GDP in Saudi Arabia between 2002 and 2010 (Saudi Commission for Tourism &
Antiquities [SCTA], Tourism information and research Centre [MAS], 2011)
The percentage of tourism GDP and general GDP

Year Tourism GDP (Billion S.R) Tourism contribution to GDP (%)
2002 32,2 4,6
2003 30,9 3,9
2004 36,4 3,9
2005 36,5 3,1
2006 35,5 2,7
2007 45,4 3,2
2008 51,6 2,9
2009 52,1 3,7
2010 61,6 3,7
Cultural heritage is one of the most important resources supporting income from
tourism. However, cultural heritage products have a complex relationship with many
sectors such as the environment, education and communities. For example, if local
communities do not accept tourism in general, the level of success will not be as great
as what it could be. The geographical diversity of Saudi Arabia has generated rich
architectural and urban products that represent many values of cultural heritage (Figure
1.1), this diversity is presented clearly through the diversity in building materials,
3
structures and elements. This architectural and urban diversity has an important role
in, and a direct impact on, the tourism industry.
Jazan province Eastern province Riyadh province
Al-jof province Makkah province Albaha province
local building materials Asir province Najran province
Figure 1. 1: Examples of architectural styles and materials in some regions in Saudi Arabia (SCTA,
2013)
At local level, the Ha’il region in Saudi Arabia has significant urban cultural heritage
(Figure 1.2), which could be valuable for developing tourism income and supporting
local communities by creating jobs and sustaining culture. However, in order to build
Ha’il’s image as an attractive tourism destination, focusing on the current perception
4
of the cultural heritage values, especially the urban heritage values within cultural
tourism, is important.
Understanding the best possible way to address the impediments facing cultural
tourism at the local level is also important. The dominant patterns of tourism in Saudi
Arabia, such as adventure tourism and agricultural tourism are important keys to
understanding the forms of tourism that are successful in that culture. Additionally,
the potential for other forms of tourism such as cultural tourism or ecotourism as well
as recreational tourism could be considered when determining the best approach
toward enhancing cultural heritage tourism in Saudi Arabia.
Figure 1. 2: Examples of architectural styles in the Ha'il region (SCTA, 2013)
In summary, the Ha’il region is experiencing growth in the tourism industry at
different levels and directions, as is the case for many similar cities in Saudi Arabia.
5
Cultural heritage sites, as a main source of cultural tourism, must be considered as a
key contribution to any tourism development plan, especially in the laws,
organisational structures and implementation established for the heritage sites. Thus,
studying the extent to which the government’s efforts to support such cultural tourism
through the mechanisms that are in place and being proposed is crucial.
1.3 Research Aims and Objectives
The government in Saudi Arabia has started to encourage cultural tourism in many
ways, and a lot of significant efforts are being made towards its development. The
relationship between national and local levels is crucial in heritage management in
Saudi Arabia. This management leads and directs by written laws and policies within
specific definitions that mainly established at national level, then the enforcement of
these laws and policies are applied by specific bodies at both national and local levels
towards heritage sites at local level. These process and steps have created a gap
between national and local levels. This research investigates this gap especially in
understanding the values of cultural heritage, both tangible and intangible, and covered
three key aims and objectives as follows:
A. It investigates the laws, policies and regulations that direct and manage
heritage development. This issue is investigated to identify the current situation of the
contents of the laws and policies in terms of cultural heritage values, to address how
cultural heritage at the national and local levels should be practiced by both
communities and administration within the urban heritage context, and to explore the
best way to decrease this gap especially in the contents of these laws, policies and
regulations.
6
B. This study investigates the impact of organizational structures for heritage and
tourism management, which enforce these laws and policies at national and local
levels, in order to understand the structures currently in place and to establish ways of
enhancing the organisational structure for the architectural/urban heritage and tourism
sectors. Also, the study aims to identify the types of relationships that must be
established with other organisations such as education, local authorities and tourism
to develop cultural heritage. Addressing the laws and organizational structures will
lead to encouraging effective involvement of administrative stakeholder by taking a
holistic view of the cultural heritage values and aiming toward public awareness.
C. Extending from the first and second objectives above, and using the Ha’il
region as a case study, the third aim explores how heritage management and tourism
policies are implemented locally. The study especially investigates how
implementation processes translate laws and regulations into action through specific
bodies concerning heritage site development and the users’ engagement. This
investigation establishes first the significance of Ha’il’s architectural heritage and its
economic and cultural potential and understands the impediments. Furthermore, the
study identifies ways not just to protect and safeguard Ha’il’s architectural heritage
but also to make it relevant to its values within its real cultural heritage context.
Thus, three key questions have been established in terms of managing heritage in Saudi
Arabia and based on the three main aims of this study. The first question considers
how laws, policies and regulations impacts cultural heritage. The second considered
how organizational structures affected cultural heritage. Finally, the third question
how the implementations were applied to heritage sites.
7

Implementations in the Urban Heritage Sites:
1.4.1 Rationale of studying laws on cultural heritage
Communities are now managed by laws, policies and regulations that govern the
relationship between people within a specific geographical boundary. However, the
specific definition and identification for cultural heritage plays a major role in the
application of these laws. Thus, the meaning of cultural heritage and its definition as
stated within these laws and regulations impact both heritage and people, particularly
in terms of cultural heritage values within its context.
It is a misguided conception of the public that heritage and archaeological sites belong
only to the government, and the government should manage and conserve cultural
heritage sites. However, step one should begin from there especially at the laws,
definitions, policies and regulations. Understanding the values of cultural heritage
comes through both communities and administrators, because the administrations have
the power to inform the community of the value of cultural heritage, especially
historical value2, through these laws, policies and regulations.
When discussing the values of cultural heritage, the definition and meaning of ‘value’
(heritage value, community value, economic value, and cultural value) needs to be
2
In general, the majority of people, especially in GCC countries, are not interested in the past because
they do not understand it. To them the past is gone and has no real connection to their daily lives (Al
Busaidi, 2010:290). Additionally, in Eastern societies, a lack of understanding of a situation, like the
past, is likely to generate fear of that unknown situation. Urry (2002) mentioned that archaeological
sites, which are one of the most important elements linked with the past, do not take hold of the tourists’
attention. For example, ‘in the Arabian Peninsula people are not attracted to archaeology and heritage
sites because they show the usual scenery’ (Al Busaidi, 2010: 291). Usual scenery is a result of the type
of link between archaeology and people, as well as a reflection of the level of integration between them.
However, this may be because the people have had no chance to know and understand the past properly.
Addressing this understanding is one of the core issues and the first step toward community involvement
in heritage. Considering how to make the past, and heritage, attractive and how to gain people’s interest
in this issue is crucial especially within the contents of the laws and policies.
8
addressed carefully and properly. In order to define this term, understanding all the
aspects that are involved in shaping cultural heritage, both tangible and intangible, is
crucial. This definition is important, because there are many ways in which heritage is
misunderstood. For example, automatically linking heritage with traditional or
handcrafts products in developing countries, especially during tourism festivals, might
suggest to the current generation a particular image of heritage, depicting it as an old-
fashioned idea that is not relevant to daily, modern life3. This image fails to help this
generation understand the values of cultural heritage4.
While heritage sites were fenced off and indeed unattractive, new housing
developments were established in areas with good infrastructure. This development
encouraged communities to move to these new areas and leave the old houses, which
were located in or around the traditional form centres. However, this movement
created another problem. The areas where people used to live became rural areas with
3
Additionally, in some Arab communities, the influence of the twenty-first century reaction against
traditional cultural, and focus on technology, might cause negative reactions from people regarding
heritage. These people believe that identifying with their heritage makes them part of a backward
society. Howard suggested that ‘globalization may have made the international and local dichotomy
unsafe’ (Howard, 2003: 242), this dichotomy causes a concept of ‘you’ and ‘I’ rather than ‘we’, which
results in classifications such as ‘important’ and ‘not important’. Thus, it is important to remove this
inaccurate image and minimize the gap between communities and heritage caused by globalization and
its effects.
4
Al-Busaidi observed that ‘Archaeotourism as a culture is not a popular mainstream or social and
recreational activity amongst the general public in Oman.’ (Al Busaidi, 2010:251) For instance, it is
unusual to see Omani families visiting heritage or archaeological sites (ibid). Additionally, the survey
of ‘Khareef Salalah’ or Salalah’s autumn visitors in 2013 (Ministry of Tourism, 2012) classified 97%
of Omani visitors were in the leisure travel category. This is not the case only in Oman but also in most
GCC communities, and these behaviours seem to be the same in Saudi Arabia. Saudi people also prefer
to visit and enjoy natural sites and festival activities rather than engaging in tourism linked with heritage
or archaeology sites. SCTA found that 35.6% of domestic tourists came under the visiting relatives and
friends (VRF) category, followed by 24.7% who came for religious purposes, and 14.5% for holidays
and entertainment (SCTA, 2013). Similarly, much like Saudi Arabia is Oman appears to be more
enthusiastic about leisure travel than any other kind of tourism (Ministry of Tourism, 2012), VRF comes
next in order. VRF category of tourism is underpinned by Islamic values, strengthening the bonds of
Islamic society (Ministry of National Economy, 2003). However, by defining heritage as part of leisure
travel, a link might be re-established between people and heritage sites. In another words, examining
how heritage sites can be included on the tourism map, and how communities can be encouraged to
believe in heritage as a valuable experience within and during leisure travel.
9
a lack of infrastructure, with houses for foreign workers or the lower class.
Unfortunately, these areas were generally at the core of heritage, and many negative
effects, such as the lack of infrastructure, create a distorted image of the whole area,
including heritage. This has shaped misconceptions about city centres which are
individually linked with heritage. A number of laws, policies and regulations have
been established for new development areas more than those established for the urban
heritage sites especially within cities centres.
One of the most important issue behind discussing the laws derives from its impact on
heritage sites at local level and is linked with the enforcement of a specific state of
knowledge that enforces by government bodies. Clear definition and comprehensive
law helps to distribute the power and knowledge without causing conflicts between
enforcers, particularly in the heritage sites at local level in Saudi Arabia.
Power and knowledge has continued to shape each other, as James notes, ‘The
production and dissemination of knowledge is an expression of power, and the
expression of power always involves the production and dissemination of knowledge’
(James, 2018:38). This relationship is extremely crucial in heritage sites particularly
between the main players who manage cultural heritage at local level.
Power deploys various instruments and strategies, one of which is the establishment
and implementation of laws. Moreover, ‘Law is both the outcome of conflicts of power
and a tool used by some to exercise power over others’ (James, 2018:39). In spite of
the importance of the laws, ‘law is only one of the many strategies of power’ (ibid).
Other practices such as tourism and education could participate to deliver successful
implementation in the heritage sites in Saudi Arabia.
10
Another extremely important point that should be investigated here, in light of the
importance of laws in heritage, is the identity, in another words, Saudi architectural
identity through heritage. Protecting heritage sites is the first step, but not the final one
especially within the suggestions and contents of the laws and policies. In light of
missing the policies and regulations that consider identity, communities tried to
borrow external architectural elements5. Linking heritage sites with the real lives of
the community6 is one of the most important. Because of the period when architectural
heritage sites were locked and fenced without real connection and function7, a loss of
identity occurred.
Identity and loyalty are related to each other because the community’s loyalty toward
heritage can be enhanced through identity. For example, legacy of forefathers and
previous generations is one of the main tools that could build this loyalty and re-link
communities and heritage. Moreover, increasing community loyalty would be a great
approach toward appreciating the values of cultural heritage. When loyalty drives
5
Abu-Ghazzeh (1997: 229-253) mentioned that communities tried to define themselves through some
of the building elements from the West. This approach removed the communities from their traditional
architectural styles, which mainly came from architectural heritage. Al-Naim (1996: 12-17) confirmed
that in Saudi Arabia built environment is a result of the community’s lost identity. AlSulaiti (2013:25-
30) added that full understanding of the community’s contexts in the past and present is one of the most
important requirements of the identity.
6
Al Busaidi (2010) stated that in Oman, both society and administrators have their own daily living
issues and interests to deal with, while the heritage is not one of these concerns. This is a similar case
in all GCC countries and could be one of the main reason behind the gap between heritage and the
community. Using administrative roles and influence to link some of the people’s daily activities with
the heritage sites could be an important step towards closing this gap. This could include using some of
the heritage buildings for various daily needs, rather than just for seasonal activities or festivals that
only create a temporary link.
7
In Saudi Arabia for instance, the length of time in which heritage sites have stagnated and lacked
integration with the community, such as being locked behind fences with warning instructions, has
shaped the community’s perception of heritage. These warnings and locks contributed to the creation
and shaping of the gap between the community and heritage sites. In Saudi Arabia, for example, before
the establishment of SCTA in 2000, architectural heritage, archaeological sites and antiquities were
under the responsibility of the Ministry of Education (MOE). No tourism sector provided tourism
resources to the community, except for some committees for tourism promotion within the governor’s
office in some provinces such as Aseer (Abha city) and Makkah (Al-Taif city). Failing in enhancing
and including the communities involvement within laws and policies have participated in shaping a gap
between community and heritage.
11
community’s responsibilities at different stages and levels, from planning to the
increasing the benefits from tourism incomes, the community becomes the marketers
for their cultural heritage. In other words, loyalty through temporary activities, for
example, towards heritage could be a reason for an increase in the gap between
community and heritage, and vice versa. However, acts of vandalism toward heritage
sites, specifically in developing countries, have confirmed that loyalty of the
community is lacking. The loyalty towards heritage is a crucial concept especially
within the contents of the laws, policies and regulations to manage heritage
comprehensively.
UNESCO (2005) also highlighted the vitality of memory to creativity, which holds
true for individuals and for communities who find their heritage – natural and cultural,
tangible and intangible – as the key to their identity and the source of their inspiration.
Al-Gabbani (1984) confirmed that ‘recent buildings have lost their traditional
identities and have become hybrids of exotic character in their architectural form, main
concepts, arrangement of spaces, organization of elements, and building techniques
employed.’ (Al-Gabbani, 1984: 275). Fadan (1983) argued that the Western life-style
takes Saudi people far away from their traditional living environment (Fadan, 1983:
15). The culture is never static, but Saudi Arabian identity is one of the most important
keys that can help community to appreciate its values of cultural heritage within the
big context.
12
Laws, policies and regulations are impacted also by different facts such as media8 and
education9, which play major role whether in establishing or developing them.
In summary, the importance of laws, policies and regulations lies in their impact on
cultural heritage and societies within built environments. Laws, policies and
regulations are a reflection of a society’s understanding and value of something it aims
to protect. The lack of understanding any part of cultural heritage values and its
relationship with the context creates a gap between communities and heritage, thus
causing misunderstanding of the values of cultural heritage. This impact cultural
heritage as well as tourism, identity, loyalty, history, knowledge…etc. Because this
impact is so important, laws and policies that affect cultural heritage must be studied,
especially in developing countries that have limited experiences developing and
managing heritage. Additionally, addressing the laws leads to the implementation in
the heritage site through organizational structures that enforce these laws, policies and
regulations at national and local levels.
1.4.2 Rationale of studying organizational structures in cultural heritage
Organizational structures are the main tools for enforcing laws, policies and
regulations. In this sense, it is crucial to understand the current structure at national
and local levels, find ways of enhancing these structures for the architectural/urban
8
The influence of mass media cannot be underestimated; it can shape the ways in which history and
heritage are seen by the public (Binks, 1986; Schouten, 1995; Pettigrew, 2007). For example, most
architectural heritage and archaeological sites in Saudi Arabia were unknown for many generations.
However, different types of media, such as documentary programmes, could show the value of
architectural heritage and archaeological sites in order to encourage the community to value this
heritage.
9
Educational efforts promoting the values of cultural heritage are still insufficient or, most of the time,
non-existent. Educational materials should be part of the approach for young generations, though,
because history and Islamic culture subjects can be used to develop the contexts of heritage or creating
new subjects, such as ‘national heritage’ or ‘our heritage’. In order to achieve these objectives, a well-
designed content for these curriculum is needed, which can build knowledge 9 and increase levels of
awareness of the values of cultural heritage.
13
10
heritage and tourism sectors and identify the types of synergy with other
organisations such as education, municipality and tourism that should be established.
Cultural heritage is about people, communities and values they give to heritage, this
concept should be kept in mind particularly those who work in government heritage
authorities, also it should be clear for them that cultural heritage is a field of
social/cultural action. These actions should include the administrative power and roles
concerning heritage and community. Orbasli noted, ‘In developing countries historic
buildings become a name on a protection list rather than a cause of action.’ (Orbasli,
2000: 102) One of the best ways to change this concept and transfer the list from being
a name to be a causing of action, especially in developing countries, is by focusing on
the cultural heritage values and its context through reducing the gap in understanding
the values of cultural heritage. Particularly for those who work in the national and local
governments and the community.
Community involvement is one of the key issues in different societies 11 . Cultural
policy must be a leading priority for the government, and cities must include the
individual at the centre of public policy (Orbasli, 2000: 103). For example, ‘A closer
examination shows that there is a key role for heritage in many parts of the strategy.’
10
The importance of organizational structures can be highlighted in the official names of organizations
that are involved in the tourism industry in relevant experiences to the Saudi context, such as in Oman,
Jordan and Turkey. For example, in Oman they have the Ministry of Tourism (MT), in Jordan the
Ministry of Tourism and Antiquities (MOTA), and in Turkey the Ministry of Culture and Tourism
(MCT). In Saudi Arabia, there is the Saudi Commission for Tourism and National Heritage (SCTNH).
The differences in these organizations come from the countries’ unique experiences and culture and
from the relationship between government, community and resources such as heritage, culture,
antiquities, etc. However, the common term used in all four countries is ‘tourism’.
11
In some sites in Oman, for example, the tourism development of heritage sites is not adequate (Al
Busaidi, 2010:307). For instance, in some sites in Oman the local community still believes that their
involvement in tourism in general and participation in interpreting their oasis to tourism and visitors is
very limited (Al Busaidi, 2010:405). At regional level, for instance, the Petra project in Jordan, as well
as the Antalya project in Turkey, gives an indication of the value of community efforts and their
participation in terms of tourism products, specifically in heritage, and involving them as important
stakeholders.
14
(Clark, 2008: 84), these roles could be played by local communities, thus, they will
become a main player at the strategic level. Furthermore, in most developing countries,
individual planning efforts are without real and strong co-operation with other
organisations, which may sometimes be the main player or even the owner of the
heritage site. This can cause negative results and reactions and miss connecting, then,
because the plans cannot be implemented.
In spite of the importance of investment and income in any development plan,
especially in cultural tourism, the relationship between laws, government authorities
and local communities is crucial. Mershen (2007) mentioned that quickened large-
scale investments through foreign investors might cause negative impacts. Baporikar
(2010) agreed that investments in tourism should be from local sources. These negative
impacts are on the influence of domestic investors, who play the role of investor and
citizen at the same time. Further impacts may extend to include heritage context that
may be destroyed by the investment rapacity. Additionally, the community might
refuse to cooperate and participate in new development from a foreign investment,
causing resistance toward both cultural tourism development and its products. On the
other hand, in some communities, people prefer to work with national or international
investors and companies instead of local investors. For instance, in some small
communities where people know each other well, people who are looking for jobs or
opportunities prefer those with a big company or international investors rather than
those with local business. This is due to social shyness, particularly in rural areas and
small villages where people know each other very well. Seasonal jobs also affect
people, specifically in the tourism sector. Very clear tasks for employees and attractive
salaries and incentives could be one of the most effective approaches to encourage
15
people to be involved in these jobs. However, the level of job stability and security is
not adequate to attract people, especially in developing countries where the tourism
activities still depends on seasonal festivals rather than daily life requirements.
Tourism institutions play important role in design tourism programmes. Wood noted
that the best tourism programme is one which consolidates many elements, such as
sustaining the well-being of local people, serving small groups through small-scale
businesses and focusing on local participation, ownership and business opportunities
particularly for rural populations (Wood, 2002: 10). In this way, the community
becomes the main player in directing the tourism industry and cultural heritage at
different stages and levels. In addition, the negative impact of tourism upon the village
community might be amended to some extent (Robinson, 1999: 17) if the residents are
given the opportunity to participate in decision-making, to operate tourism projects
and to generate income from their village as a tourist destination (Daher, 1999: 56).
This would have a positive impact on the community’s acceptance of tourism: ‘No
longer imposed, tourism will then be accepted as an opportunity to show off one’s
culture and at the same time to earn income’ (Barree, 1996: 8) For example, in Jordan,
‘The regional volatility combined with Jordan’s history of centralised decision-making
makes it not only imperative that development strategies involve local communities
but also originate at higher levels.’ (Shunnaq, 2007: 11). Shunnaq added, ‘this
approach, integral to the success of tourism development in this region, reassures local
residents by sheltering them from social and financial risks’ (ibid).
Shunnaq et al. (2008) mentioned that strategy planners face administrative difficulties
linking policy decisions with agencies, sectors and levels of government. Before
implementing any new regulations and programmes, decision-makers must address
16
and carefully consider their impact on heritage and community. Therefore, the
structure of decision-making, the outline of decision makers’ tasks and to what extent
they are related are key factor in managing cultural heritage.
Shunnaq suggested that ‘central governments in many nations actively discourage
community participation because it threatens the existing economic and power
arrangements.’ (Shunnaq, 2008: 4) However, in developing countries most of the
regulations and policies have been in place for a long period, perhaps centuries. These
regulations are linked with major roles in other organizations, which makes any
changes extremely difficult because of the overlapping framework with these other
organizations. By analysing this overlap and the types of relationships between the
regulations and other organizations, the gap between organizations and communities
might be closed as efforts consider the community a priority.
Furthermore, Southgate and Sharpley noted that ‘sustainability is most likely to be
achieved where local as well as national interests are respected by tourism developers,
where communities engage in decision making, and where market institutions engage
with local and national governance structures’ (Southgate and Sharpley, 2002: 255)12.
12
For example, in Petra, Jordan, there are more than eight stakeholders who are involved in the region,
and their responsibilities often overlap (Akrawi, 2006). Petra archaeological park is managed by the
department of antiquities, which was part of Jordan’s Ministry of Culture in 1968, and later the Ministry
of Tourism and Antiquities. However, the department of antiquities was unprepared to manage Petra or
other sites in Jordan. The Ministry of Tourism and Antiquities managed Petra from the headquarters in
Amman; their responsibility was issuing development licenses. Managing the scientific research and
archaeological resources was the Department of Antiquities’ responsibility. Limitation of staff, lack of
coordination and overlapping framework created most of the problems in this situation (Akrawi, 2006).
In 1995, the Petra Regional Planning Council (PRPC) was established; it was later replaced by the Petra
Regional Authority (PRA) in 2001, which reported directly to the Prime Minister’s office rather than
the Ministry of Tourism. These changes were critical for building and organizing a new body within the
government through local members. Being in the top of government structure gives the PRA power
which impact its performance in developing and managing cultural heritage. In addition, local members
are playing major role in linking national organizations with local especially in terms of
implementations in the heritage sites
17
Orbasli (2000) stated that ‘government structure, both national and local, is different
for each country, particularly in respect of the location of power, control and decision
making’ (Orbasli, 2000: 99). Overlapping frameworks are one of the most critical
issues that affect the success of implementation efforts on the land and community.
Indeed, overlap between many sectors and players creates a gap between them,
because those players are following different roles and agendas. Orbasli (2000)
mentioned that there are three overlapping. One of the overlapping areas is in
regulations and top-down relationships between the national and local governments.
Another is in the relationships between creators and recipients. Overlapping has many
impacts, one of them is the duplication of roles, tasks, responsibilities, laws and imply
lack of coordination, waste of resources and ineffectiveness. The system of public
decision-making is one of the best practical solutions, Ashworth and Voogd (1990)
concluded that the objective of urban planning is no longer the production of a well-
organised urban space rather than a well-organised public decision-making system.
Al-Busaidi observed that the integration of locals in interpretive plans, and their
recruitment, might take a long time before these locals can play a major role and be
self-dependent in heritage development (Al busaidi, 2010: 406)13. However, short-
term objectives within long-term plans could be one approach to reduce this time.
Moreover, phasing a plan of tangible objectives with visible results might help the
13
This is one critical issue facing the current stakeholders and stewardship context; compelling the
locals to be part of public interpretation might be difficult, specifically where there is no awareness or
proficiency. Therefore, key members from the local community must be included on the leadership
board (Al busaidi, 2010: 407). The length of time needed to create local involvement seems like a
complex issue, because it has links with generations, communities, organizations and stakeholders at
different levels and in different ways.
18
community trust the planning authorities, laying a foundation for rebuilding integrated
relationship between them.
The relationship between integration and competition is key approach to different
organizations at both the national and local governments, and this relationship shapes
and affects their relationship as well as their performance. However, communities
always play an important role in participating in sorting out this conflict. Thomas
(2008) concluded, ‘If we concentrate on trying to enrich the experience of others, we
are likely to find that we have enriched ourselves in the process’ (Thomas, 2008: 145).
This is the case whether between organization and organization, at both national and
local levels, or between organization and community. Common objectives should be
settled to involve community and organizations together to manage cultural heritage.
In summary, the importance of addressing organizational structures that enforce
implementations of the laws, policies and regulations at local level is clear. A gap in
understanding the values of cultural heritage exists between communities and
administrations, and within administrations at the national and local levels. This gap
in understanding is apparent in current situations at deferent levels (national and local)
and directions (community, administration and heritage). To reduce this gap, the
organizational structures in Saudi Arabia that are involved in managing cultural
heritage must be investigated as a main step within process of heritage management
from laws to implementation in the heritage site at local level.
1.4.3 Rationale of studying the implementations in cultural heritage
In order to see cultural heritage attractive and acceptable at both the national and local
levels in Saudi Arabia, the awareness and understanding of the values of cultural
19
heritage in both laws and organizations is crucial. The development of urban heritage
and its implementations is a reflection and result of both these laws and organizations.
In this sense, implementations at the local level can be highlighted to show how the
laws and organizations have impacted the development of urban heritage in Saudi
Arabia. This research examined a real case study from the Saudi context at the local
level, the Barzan area in Ha’il city, and other relevant experiences at the regional and
international levels.
Al-Masroori (2006) highlighted, ‘Tourism in Oman requires careful planning from the
planning authorities to avoid any negative consequences that may surface in different
tourism development stages’ (Al-Masroori 2006: 329). This is the case not just in
Oman, but in most of the GCC countries as well. For this reason, linking tourism and
heritage to other development plans at both the national and local levels is important.
In developing countries, most of the planning authorities focus on the strategic or
national level and are not able to bring implementation steps at the local level to
fruition (Al-Zahrani, 2010 and Al-Naim, 2011) because of a gap between
implementations at the national and local levels and between departments and
organisations at the local level.
Al Busaidi noted that most of archaeological sites in Oman are located in rural areas,
and because of the lack of financial resources and trained people, it has become critical
to manage them (Al Busaidi, 2010: 402). However, availability of trained people and
financial support is not adequate to sustain a live heritage. If, instead, the community
had clear regulations, improved knowledge and real participation, the rural areas could
become a crucial part of tourism patterns.
20
For example, in Saudi Arabia, some sites are located outside of inhabited areas and
have a lack of infrastructure and accessibility, even though they were a lively place for
people to live in the past. In contrast, today’s urban heritage sites are located within
the city centre, like the Barzan district in Ha’il city, for example. However, these urban
heritage sites still have the same issues as the rural areas. Rural areas, which contain
urban heritage sites, are a result of the negligence of many components, particularly
the regulations and organizations, thus causing a lack of implementation steps.
Heritage resources, whether in rural areas or in city centres, represent one of the most
important competitive elements in the tourism industry in Oman (Al Busaidi, 2010).
One of the most important aspects of tourism is cultural tourism, especially around
architectural heritage, which increases the community’s benefits and income for
tourism dramatically.
Nowadays, most developing countries, specifically oil-exporting countries, focus on
diversifying their income, particularly through the establishment of and support for
small and medium sized business. Tourism, one of the fastest growing industries in
the world, has become the centre of attention for most countries in GCC. Erikson and
Erikson (2001) noted that these countries can strengthen the tourism industry, making
it the largest after oil, by using their natural, cultural and traditional heritage (Erikson
and Erikson, 2001: 18).
For example, Islamic religious sites in Jordan are one of the most important elements
in the Northern Jordan tourism plan, and the MOTA has enhanced, developed and
protected them in order to make them more easily accessible to tourists (Southgate and
Sharpley, 2002: 255). The value of these sites is not just for local community but also
21
for the national and international levels, as driven by the tourism vision in Jordan
which includes both national and international tourists. Moreover, understanding the
values that make planning authorities include these sites within not just the tourism
plan but also in the development plans at the local level is important.
AlSulaiti (2013) confirmed that ‘planners and community members can come together
to reveal and burnish the narrative through an articulation of the historic, cultural,
economic and cultural context of community’ (AlSulaiti, 2013: 30). However,
‘cultural and archaeological sites are not yet sufficiently managed and interpreted’
(Mershen, 2007: 193). Unfortunately, as Mershen (2007) concluded, in terms of
heritage interpretation and management and tourist infrastructure, cultural destinations
require more development, and more attention should be paid toward architectural
heritage. In addition, ‘to be effective and sustainable, a visitor management strategy
must be generated at local level’ (Orbasli, 2000). This need for additional development
confirms the importance of implementations at the local level.
In conclusion, the implementations at the urban cultural heritage sites are the actual
process of translation laws and regulations into steps and actions by the organizational
structure responsible. These implementations are a mirror, not just of the contents of
the laws and regulations but also of the level of integration between regulations,
organizations and the cultural heritage context. Comprehensive laws and integrated
bodies are the beginning of the right implementation in the heritage sites, in order to
avoid separating heritage from being part of people’s live as a valuable cultural
resource.
22
1.5 Research Method
In order to reduce the gap in understanding the values of cultural heritage in Saudi
Arabia, it is crucial to answer the three main questions: first how laws, policies and
regulations impacts cultural heritage, second how organizational structures affected
cultural heritage, finally how the implementations were applied to heritage sites. This
investigation focused on the laws, organizational structures and implementation to
understand their formation at both local and national levels.
Laws, policies, regulations and definitions were collected from different places and
resources internationally, regionally, nationally and locally. Other documents and
archives were collected during the field work in Saudi Arabia including published and
unpublished documents, reports, letters and maps. Observation for heritage sites was
used in this research especially in the case study. Interviews with stakeholders and
decision-makers at national and local levels were applied in this study (Appendix 1.O).
The methodology of this study (Figure 1.3) was based on four phases. Phase one
focused on identifying scope of the research through studying literature review,
especially the link between tangible and intangible heritage with collective memory in
light of heritage values and its context. Second phase was collecting different materials
whether secondary sources such as published reports, law and policies, strategic plans
and action plans from various places (international, regional, national and local), or
primary sources such as conducting face-to-face interviews with a focus groups,
unpublished reports, observation, archives and site visit.
23
Phase 1
Scope of the research
Literature review
Phase 2 Data Collection
Quantitative Approach Qualitative Approach
UNESCO and ICOMOS Documents Semi-structured interviews
Site visits, Barzan District area Chronological analysis Site visits, Ha’il city centre
Secondary sources Primary sources
Semi-structured interviews with focus group

(decision makers) from government bodies at
Documents, published reports, books, journals
national and local levels (25 interviews),
articles and other materials from the public
archives, observation, photographic
demand. documentation, unpublished reports, maps and
plans.
Phase 3 Data Analysis and Interpretation
Laws, policies and regulations Organizational structures Implementations
Qualitative analysis through the actual situation and comparative examples
Phase 4 Findings and Conclusions
Figure 1. 3: Research methodology structure.
24
Each level included data from different appropriate source. At international level, the
data included laws, policies, regulations and definitions, with more focus given to the
conventions, charters and recommendations from UNESCO and ICOMOS (Figure
1.4), along with other resources from UK libraries and international academic
publications. At the regional level, the data included laws, organizational structures
and implementations as examined through case studies from relevant experiences in
specific contexts, such as Jordan (Petra) and Egypt (Historic Cairo). At the national
level, the study focused on laws, policies, regulations, implementations, archives and
published and unpublished reports. Focus was particularly given to the main players
involved in heritage development, such as the Ministry of Education (MOE), Ministry
of Municipal and Rural Affairs (MOMRA), Ministry of Culture and Information
(MOCI) and Saudi Commission for Tourism and National Heritage (SCTNH). This
data included semi-structured interview for focus group of twenty-five people, mainly
with people decision-makers from organizations that were involved in managing
cultural heritage at the national and local levels. At the local level, the data included
local reports, documents, site visits and interviews from two main periods (Appendix
1.B).
The third phase was data analysis and interpretation, this phase included several steps
according to the four levels and three directions. Additionally, The three main issues;
laws, organizational structures and implementations, were the focus of this analysis.
Interpretation was applied on the laws, organizational structures and implementations
stages through comparative experiences at the international and regional levels.
Applying qualitative analysis; examine the actual situation of laws, organizational
structures and implementation, and addressing comparative examples were the
25
technique of this phase. Phase four was the findings and conclusions. The conclusions
found recommendations for laws and organizational structures specifically concerning
the implementations in heritage sites at the local level.
Documents: reports, journals, press, maps and archives
Laws, Policies,
Observation and taking photographs
Regulations and
Definitions
Informal interviews
Organizational
Structures
Implementations
Semi-structured interviews with focus group from

government bodies at national and local levels
Figure 1. 4: Research themes and data collection method
26
Research Strategy
During fieldwork (Appendix 1.B) the data collection focused on four levels
(international, regional, national and local) and three directions (laws, organizational
structures and implementation) (Figure 1.5).
The first direction was toward laws, policies and regulations that covered cultural
heritage and its meaning and definition. These contents were studied and compared
with those from other levels, especially regional (Jordan and Egypt) and international
levels (UNESCO and ICOMOS). In order to understand how laws, policies and
regulations impacts cultural heritage in Saudi Arabia, it was crucial to collect all
existing laws, policies and regulations in Saudi context. The laws were available in
public demand (the 1972’s and 2014’s laws) in Arabic language. In terms of policies
and regulations, these materials were not in public demand which needs to be collected
from different organizations such as the MOE, MOMRA, MOCI and SCTNH. Other
primary resources such as unpublished reports, documents and plans were collected
also from different organizations to analyse them in light of heritage values that exist
at regional and international levels to identify the gap between them and national and
local levels. Analysis of the heritage values helped to identify the gap in the contents
of the Saudi laws. Face-to-face interviews with decision-makers in the main
organizations, who play main roles in heritage development, were taken at both
national and local levels. Semi-structured interviews were applied by using voice
record. These interviews were analysed in terms of the perception of those who define
cultural heritage according to the theme of heritage values. Archives materials were
collected from Al-Darat (King Abdulaziz Foundation for Research and Archives) in
order to understand how the first law was established in 1972, and how the background
27
of those who prepare it had impacted and directed the content of the law, particularly
towards heritage values and context. Analyzing these materials together led to
understand the impacts in terms of the limitations in including different heritage values
within context of urban heritage as well as understanding the relationship between
tangible, intangible and memory.
The second direction was toward the bodies that apply and manage laws, policies and
regulations, in order to understand how organizational structures affected cultural
heritage. Especially the organisational structures that are involved directly in
developing and managing cultural heritage such as the MOE, MOMRA, MOCI and
SCTNH. For this, a comparative approach was used to analyse the situation in Saudi
Arabia as contrasted with regional experiences in Jordan and Egypt. The official
structures for these organizations beside their main tasks at both national and local
levels were identified. Interviews were conducted from the decision-makers to analyse
them in suitable themes, especially in terms of relationship between the main players.
This relationship between main players, particularly at local level, helped to identify
the best way to reduce the gap between national and local levels as well as laws and
implementation stages whether in level of awareness or level of participation.
Knowledge, power and conflicts between the main players were examined through the
interviews with decision-makers and structures of the organizations.
The third direction was toward the implementations at the local level that are in place
as a result of the first and second directions, particularly towards understanding how
the implementations were applied to heritage sites as a result of enforcing the laws by
the organizations. The Barzan district area in the Ha’il province was used as a case
study for this direction to illustrate the impacts of the current laws and organisational
28
structures not just on one of the most of heritage sites that included valuable urban
heritage products, but also on one of the most endangered architectural heritage
buildings. Interviews with decision-makers at local level were conducted to analyse
the relationship with other stakeholders, particularly in the urban heritage sites at local
level. Analysing these interviews illustrated the type of relationship between main
players at the heritage site, particularly in terms of the responsibilities towards site
development. Other development plans from MOMRA and SCTNH for Barzan were
collected to study the actual practices in the site. Urban products were observed in the
Barzan to analyse the reflection of the laws and organizational structures at
implementation process in light of power, knowledge and conflicts. As a result of the
2014’s law, the concept of ‘list’ and ‘criteria’ were introduced and employed in
evaluating the effectiveness of the laws. this led to the identification of weakness in
both content and measures in the laws, impacting on the implementation process.
In spite of the importance of examining the laws, organizational structures and
implementation procedures through a case study, without a doubt, each site has its own
context. This context also impacts on the way of managing these sites. However, the
link between the three components especially between national and local levels, is
crucial for any site.
29
Laws, Policies
and
Regulations
International Level
Regional Level
Implementations National Organizational

Level Structures
Local
Level
Figure 1. 5: Levels and directions of the data collection in the research
1.6 Research Challenges and Limitations
Any study about heritage in developing countries, especially urban cultural heritage,
involves challenges and limitations. First, few studies cover cultural heritage values
within its context from an architectural perspective in Saudi Arabia. In other words,
limited resources exist, especially studies that gather tangible and intangible cultural
heritage within cultural tourism in Saudi Arabia from the perspective of heritage laws,
organizational structures and implementations.
30
Second, most of the studies at national level focused on particular issues. For example,
in terms of architectural heritage, most of the studies were guided by geographical
boundaries. Since this type of research focuses on particular values, the concepts of
intangible and urban cultural heritage are out of the scope of the research. Finally,
another limitation was the newness of the tourism in general and cultural tourism
particularly in Saudi Arabia, especially in terms of statistics, documentations and data
about the cultural heritage sites.
1.7 Contribution to knowledge
The research aimed to contribute to the development of knowledge of the Saudi
cultural heritage and the study of the urban cultural heritage values in the light of
cultural tourism through (a) the appropriate approach to studying cultural heritage
values within laws and policies in general and its context. This will provide lessons
for the management of the urban cultural heritage and its implication for future
researches and projects. (b) A comprehensive investigation on the organizational
structures at the national and local levels. This will contribute to the development of
appropriate strategies for the management of urban cultural heritage sites within their
context for cultural tourism. (c) An understanding of the implementations at the local
level within the built environment. This will contribute to increase the level of
awareness as well as make cultural heritage, both tangible and intangible, a valuable
cultural resource.
1.8 Research Organization and Layout
This research is explained in six main chapters, through an introduction; a discussion
of tangible and intangible heritage and perception of the past ‘memory’; an
31
examination of the laws, policies and regulations; an investigation of the
organizational structures; an examination of the implementations; and, finally, an
epilogue. These sections are summarized below:
Chapter One: Introduction
The research begins with a general introduction, followed by a brief background about
area, location and population in Saudi Arabia, with more focus on economy and
revenue, especially agriculture and tourism. This is followed by a summary of the topic
under investigation. Research aims and objectives are provided next. Rational of
studying laws, organizational structures and implementations in cultural heritage are
highlighted in this chapter. The research method and research challenges and
limitations are included in this introduction chapter. At the end of this chapter, a brief
description of previous studies about cultural heritage in Saudi Arabia is provided.
Chapter Two: Tangible and Intangible Heritage and Perception of the Past
‘Memory’
This chapter discusses tangible and intangible heritage and memory as main
components in forming a cultural heritage. The chapter starts by defining both tangible
and intangible. The relationship between tangible and intangible is addressed.
Perception of the past ‘memory’ is a topic within this chapter which includes: place of
the past, old and new look, the conflict of views and values, knowledge of the past, the
consciousness, memory and identity, customs and traditions, narrative power and,
finally, memory transformation.
32
Chapter Three: Laws, Policies and Regulations
This chapter focuses on laws, policies and regulations and consists of five main
sections. After a general introduction, the first section discusses the evolution of the
Saudi definition of heritage. This includes a historical background of the law in Saudi
Arabia and its origin and theme. The second section is about the improvement of the
definition of heritage in Jordan as a relevant example at the regional level. This section
highlights how heritage laws in Jordan have been developed. The third section focuses
on the international level, especially using the definitions of heritage provided by
UNESCO and ICOMOS as comparative examples for both the regional and national
levels through charters, conventions and recommendations. The fourth section is about
other issues that impact Saudi heritage, such as development plans and oil revolution.
The fifth section is about a summary and immediate inferences that chapter included.
Chapter Four: Organizational Structures
This chapter discusses the organizational structures in Saudi Arabia that are directly
involved in heritage development. The first section examines organizational structure
between 1972 and 2015. The second section examines the placement of heritage,
especially under the Ministry of Education (MOE) and Saudi Commission for Tourism
and National Heritage (SCTNH). Within this section, the chapter highlights heritage
within the tourism framework and Saudi development. The third section discusses the
main players who are involved in heritage development, such as Ministry of Municipal
and Rural Affaires (MOMRA), MOE, Ministry of Culture and Information (MOCI)
and SCTNH. The fourth section provided lessons learned from relevant experiences,
33
such as historic Cairo in Egypt and Petra in Jordan. Finally, a summary and immediate
inferences are provided.
Chapter Five: Implementations
This chapter addresses the implementation steps at the local level as a result of the
laws and organizations. The first section compares protection and action, especially
through discussing the seven main criteria that are implemented in heritage sites. The
second highlights the limitations and the impacts of these criteria through investigation
of the integration between criteria, distribution of weights, terminologies used and
other additional limitations. The third section discusses the implementations in the
Barzan district as a case study and how these criteria affect the urban heritage,
especially by excluding some cultural heritage values. A summary and immediate
inferences conclude this chapter.
Chapter Six: Epilogue
The final chapter highlights the results and conclusions that are discussed in the
research chapters, and consists of three main parts. Part one examines the contribution
of laws, policies and regulations to the development of cultural heritage, especially
through lessons learned internationally (UNESCO, ICOMOS), or regionally (Jordan,
Egypt) or nationally (Saudi Arabia). Part two focuses on lessons learned from
organizational structures that are involved directly in heritage development. These
lessons are discussed through autonomy, the relationship between the main players,
integration and competition approaches, power imbalance, duplicated process and
correlation. Finally, part three considers the implementation steps toward heritage
values at the local level, especially within the tourism context, such as sharing cultural
34
heritage site resources, heritage site management and user management. Tourism
management in the urban cultural heritage sites includes information and
interpretation, managing urban use, traffic and transportation management,
pedestrians and leisure and, finally, the place enhancement.
1.9 Background
A very brief introduction about area, location and population of Saudi Arabia will be
provided to illustrate the importance of Ha’il province as a case study of this research
at local level. Economy, agriculture and tourism are key players to manage heritage at
both local and national levels in Saudi Arabia as will be explained more in chapter 3,
4 and 5.
1.9.1 Area, location and population of the Kingdom of Saudi Arabia
The Kingdom of Saudi Arabia lies at the furthest part of south-western Asia. It is
bordered to the west by the Red Sea, to the east by the Arabian Gulf, United Arab
Emirates and Qatar, to the north by Kuwait, Iraq and Jordan, and to the south by
Yemen and Oman. Saudi Arabia occupies about four-fifths of the Arabian Peninsula,
with a total area of around two million square kilometres (Figure 1.6).
35
Figure 1. 6: General location of Saudi Arabia and regions of the kingdom (Population and Housing
Atlas, Ministry of Economy and Planning, Central Department of Statistics and Information, 2010)
Today, Saudi Arabia contains thirteen provinces, and each province has its own unique
culture, architecture and geography that shape the national culture. This diversity
provides enormous cultural resources for the national heritage, which is mainly based
on the identity of the different provinces, towns and villages which was shaped by
factors such as building materials, agriculture and people’s lifestyle. From north to
south and from east to west, there are significant cultural resources, which are clear in
the architectural heritage (see Figure 1.1).
The largest region in Saudi Arabia is the Eastern Region (covering about 32% of the
territory), followed by Riyadh (18%). Other regions make up less than 8% of the
territory (Population and Housing Atlas, 2008). The population is concentrated in the
Makkah region, followed by Riyadh and then the Eastern Region (26%, 25%, 15%,
respectively). Other regions comprise less than 7% of the population (Appendix 1.C,
1.D and 1.E).
36
1.9.2 Economy and revenue
The current economic situation of Saudi Arabia is dependent on the oil revenue as its
main income (Table 1.2). Today, the priority for the government is diversification of
income sources.
Table 1. 2: The oil revenues in Saudi Arabia (Ministry of Finance, Saudi Arabian Monetary Agency,
Annual Report No. 48, 2013)
Oil revenues (Million S.R)

2011 1,034,360
2012 1,140,340,
The proportion of oil revenues from total revenues (%)
2011 92,5
2012 92
The proportion of other revenues from total revenues (%)
2011 7,5
2012 8
The amount of revenue from oil has clearly decreased in recent years. Between 2011
and 2012, the decrease was by 0.5%, which in financial terms is about fourteen billion
SR (Ministry of Finance, 2013). Other revenues have increased; one of them is tourism
(Appendix 1.F and 1.G).
1.9.3 Agriculture
Agriculture is another source of income, which is produced mainly in four regions14
Riyadh, Qaseem, Ha’il and Al-Jouf (Ministry of Agriculture, 2010). The main product
14
The regions of Riyadh, Al- Qassem, Ha’il and Al-Jouf are located in central Saudi Arabia (Appendix
1.A)
37
is wheat (Appendix 1.H). Wheat production decreased dramatically between 2006 and
2008 (Appendix 1.I). One of the main reasons for this decrease is that the government
stopped supporting wheat farmers to save water. This will have further effect on wheat
farms, lands and economy, and the four above-mentioned regions will face problems
after government support is stopped.
Riyadh, the capital region, has diverse income sources, such as business and a wide
range of trading activities. The Qaseem region has started to create other sources of
income, such as industry, to support the capital especially in logistics fields and
services. It also produces dates and has other business resulting from its geographical
location especially in supporting the capita. Al-jouf has a unique agricultural product:
olives. This region borders with Jordan, which supports exportation of the olive
products. The region of Ha’il will be affected most by the change of agricultural policy
because of its reliance on wheat production. Ha’il, however, has a great opportunity to
increase other sources of revenue, especially from cultural tourism, due to its history
and richness in urban cultural heritage products.
1.9.4 Tourism
By focusing on the three regions, Ha’il, Qaseem and Al-jouf, and looking at the
number of visitors and the total amount of tourist spending (Appendix 1.J), it is
apparent that Ha’il has the largest number of visitors (Appendix 1.K) and the highest
amount of tourist spending (SCTA, 2011). Ha’il’s opportunity as the leading tourism
destination could benefit further from active encouragement and support in developing
tourism products, such as cultural and urban heritage.
38
People’s acceptance of tourism has grown; there are seventy six private museums out
of ninty-four in total (Appendix 1.L). In Ha’il, there are eight private museums (SCTA,
2011). This data shows that many people believe in and enjoy antiquities, heritage,
history and culture, which means that the likelihood of community support and
acceptance of tourism is high (Appendix 1.M). This gives a great indication of the
current situation; the regions must be supported in becoming a source of cultural
tourism.
This research does not argue the importance of cultural tourism over the importance
of managing cultural heritage through correct implementations. Indeed, UNESCO
(2013) highlighted that ‘understanding the past can be of great help for managing the
problems of the present and future’ (UNESCO, 2013: 12). One of the most important
tangible resources, with significant intangible dimensions, is the architectural and
urban heritage. However, each case must be considered individually to understand the
main factors and sub-factors that affect urban heritage within cultural tourism.
Through comparing some types of heritage with others, many issues related to the
significance of the old context, and its relationship with the new context, such as the
fast changing cultural context and the increasingly globalized community, become
clear (Figure 1.7 and 1.8).
39
Figure 1. 7: The result of heritage management Figure 1. 8: Examples of old and new issues in
if viewed solely as a question of custodianship heritage management (UNESCO, 2013: 15)
and guardianship (UNESCO, 2013: 14)
The relationships between architectural heritage, tourist attractions and the visual and
physical connection between heritage sites play a major role in increasing the
significance of architectural heritage buildings, as well as exploration of the values of
cultural heritage sites, especially through cultural tourism.
1.10 Evolution of Saudi Settlement
Saudi settlement has been shaped through different periods. Most researchers (such as
Al-Hathloul, 1993, and others) categorized Saudi development into four periods15 .
However, there is a new important period affecting management of recent heritage in
Saudi Arabia, which started in 2000 when the Saudi government established the Saudi
Commission for Tourism (SCT). The last two periods, the Arabian American Oil
Company (ARAMCO) in the 1930s and the SCT in 2000 (Appendix 1.N), are the main
15
a) The pre-national unification, before 1900, b) The unification period, between 1900 and 1940, c)
The oil discovery and establishment of ARAMCO, between 1940 and 1970, d) The oil boom and
development, after 1970.
40
periods in terms of the management of more recent heritage due to their impacts on
heritage; both tangible and intangible, societies and policies.
1.11 The Theme of Cultural Heritage Studies at the National and Local Levels
The cultural heritage studies at national and local levels in Saudi Arabia were varied
based on the nature of the research and the researcher’s background. Al-Hathloul
(1981), for example, was one of the earliest researchers who focused on the physical
environment and how the written and unwritten rules could change the city, especially
in Muslim countries. He highlighted continuity as a result of the process; in other
words, continuities through following other people is a process of continuity or change
the society. However, in terms of cultural heritage, the rules need to be transformed
into applicable laws and regulations by organizations who can implement them at both
the national and local levels, which this study did not address it.
Rifai’s study (1990), on the other hand, was an effort from a historical perspective,
documenting an overview of Saudi historical, geographical, archaeological,
architectural and natural sites. This study focused on the physical without including
intangible heritage as a main component of heritage context.
Alzulfah (1994) presented a short glimpse of the vernacular architecture of the Aseer
region. Through highlighting some pictures and documents about the region, which is
kind of documentation effort for physical environment especially architecture. Alnoisr
(1998) examined the environment and architectural elements from an architectural
perspective, focusing on the impact of climate, customs, traditions and social factors
on the buildings’ shapes and styles. The study gave a detailed explanation of the
traditional architecture and building materials only in the Najed region. However, the
41
study focused on architectural heritage in Najed without focusing on architectural
heritage values, especially in regards to intangible heritage. Al Rasheed, M (2002)
identified some issues through focusing on specific periods16 from a historical/political
perspective.
Haron’s study (2002), as an example of heritage studies in Saudi Arabia, focused on
architectural heritage in Saudi Arabia, the styles of traditional architecture and the
types of buildings. Haron’s study focused on architectural heritage from an
architectural perspective, containing architectural images and structural elements from
the Two Holy Mosques in Makkah and Al-Madinah and some pictures of traditional
houses and decorations.
The most relevant study concerning Ha’il’s architecture, the case study for this
research, is that of the Architecture House in Ha’il province ‘Amarat Al Manzil bi
Mantiqat Ha’il’ by Al-Hawas (2002). This study focused on Ha’il architecture and its
architectural elements through analysis only of some of Ha’il’s houses and building
materials. Al-Hawas suggested that raising public awareness of the importance of the
remaining buildings as an important episode of the Islamic architecture. His suggestion
made it clear that public awareness is important to understanding the value of Ha’il’s
architecture. In other words, this study could be an evidence to confirm the lack of
understanding the values of architectural heritage, especially from the public. Al-
Hawas suggested studying and preserving what is left of this endangered architectural
treasure. He also suggested the public be involved by enabling people to build and
develop architectural heritage buildings. However, intangible heritage as another part
16
For example, in the society and politics chapter, the focus was on the periods between 1744-1818 and
1824-1891, the emerging state 1902-1932, control and loyalty 1932-1953, the politics of dissent 1953-
1973, until the gulf war and its aftermath 1990-2000.
42
of heritage is missing here; both tangible and intangible heritage are important
resources of heritage values. Policies and organizational structures as main tools to
manage cultural heritage at both national and local levels were outside the scope of
this research.
Al-Naim (2006) focused on the house’s environment. He suggested that the cultural
essence still exists in people’s minds, even if they do not show it or practice it
regularly. This study confirms two facts; first is the value and power of collective
memory, second is the importance of managing heritage values. In spite of being in
people’s minds; without practicing, indeed, it will impact heritage to disappear.
However, this study did not consider the regulations and government bodies who
manage cultural heritage values. Additionally, the collective memory in cultural
heritage is a key player and could be confirmation of hidden values when involvement
and discovery are encouraged. The collective memory could play an important role,
not only in gathering tangible and intangible heritage but also interpreting the cultural
heritage values. In that sense, the present research tries to cover and gather these issues.
Alomair (2007) highlighted the civil, religions and defence architecture styles, as well
as the knowledge of building styles, process and stages. This knowledge focused on
architectural elements, names, building materials and the ways of preparation and use.
Architecture and facilities, building elements and decoration, builders’ tasks and jobs
and architecture tools and accessories are considered in the Najed region from an
archaeological viewpoint. However, this study focused on Najed without considering
of cultural heritage values within its context locally and nationally, in addition, without
including laws and organizational structures who manage the urban cultural heritage
development.
43
Determann (2010) travelled around Saudi Arabia, specifically to Riyadh, Al-Qaseem,
Jeddah, Asir and the Eastern Region in 2009 and 2010, taking pictures and
interviewing people. He noted that ‘many buildings were not deliberately destroyed
but abandoned and subsequently deteriorated and collapsed. Many of their ruins
remained, while little effort was undertaken to preserve them’ (Determann, 2010: 18).
His journey confirmed two important tissues. First, the situation confirmed a lack of
understanding of the values of cultural heritage at both national and local levels, by
both communities and government bodies. Second, Determann also confirmed that
little efforts were being made to preserve what remained of heritage sites. Recently,
Baqader (2016) focused on historic Jeddah as a case study in terms of conservation
policies, especially those which focus on architectural heritage buildings without
focusing on other cultural heritage values within its context.
Some studies discussed heritage as part of the research such as Al-Rashid (1980), Al-
Muaikel (1994), King (1998), Asfour (2009), and other studies done through
organizations such as SCTNH, MOMRA and the MOE. However, more studies
concerning cultural heritage, both tangible and intangible, and tourism are needed,
especially in terms of the impacts of laws, organizational structures and
implementation stages. The studies must also consider the challenges to making
cultural heritage acceptable as a valuable cultural resource in Saudi Arabia at both the
national and local levels, hence the importance of this research.
44
Chapter 2: Tangible, Intangible and Perception of the Past ‘Memory’
Chapter 2: Tangible, Intangible and

Perception of the Past ‘Memory’
2.1 Introduction ................................................................................................... 47
2.2 Cultural Heritage within Historical Dimensions ........................................ 50
2.2.1 Islamic Architecture and Societies .......................................................... 54
2.3 Heritage Definitions ...................................................................................... 59
2.3.1 Heritage Concept ..................................................................................... 64
2.3.2 Transporting Heritage .............................................................................. 65
2.4 Intangible Cultural Heritage Definition...................................................... 67
2.4.1 UNESCO’s Action towards Intangible Heritage ..................................... 67
2.5 The Relationship between Tangible and Intangible .................................. 72
2.6 Perception of the Past ‘Memory’ ................................................................. 75
2.6.1 Place of The Past...................................................................................... 78
2.6.2 Old and New Look ................................................................................... 79
2.6.3 The Conflict of Views and Values ........................................................... 80
2.6.4 Knowledge of the Past ............................................................................. 81
2.6.5 The Consciousness ................................................................................... 82
2.6.6 Memory and Identity ............................................................................... 83
2.6.7 Customs and Traditions ........................................................................... 86
2.6.8 Narrative Power ....................................................................................... 87

2.6.9 Memory Transformation .......................................................................... 89
2.7 Summary ........................................................................................................ 92
46
2.1 Introduction
Understanding the values of cultural heritage, both tangible and intangible, is a crucial
issue that needs to be addressed at national and local levels in Saudi Arabia. Tangible
and intangible are two sides of one coin. The relationship between tangible and
intangible needs to be gathered, especially by the time when create a memory in order
to understand the full picture of heritage within its context. In other words, the memory
is the metal structure that frames the shape of the coin. The three main components
that shape heritage – the tangible, the intangible and memory – are crucial in reducing
the gap between achieving an understanding of the values of cultural heritage, and
their management as driven by laws and organizational structures. In addition, each
side needs to be allocated to its proper position; this location is mainly a result of
heritage management. Such a case study, where it can be applied anywhere at local
levels, to examine the understanding of the values of cultural heritage, is an essential
step to confirm how the relationships and tools can be effective.
The reason behind discussing tangible and intangible along with memory is to
understand the link between these better, and how these shape cultural heritage values
in the Saudi context as an example of the situation facing the GCC countries, as well
as many other Arab and Muslim societies. Lack of understanding of this relationship
impacts them all. The definition of cultural heritage and the specific measures present
within the law to safeguard heritage reflects the level of awareness and understanding
extant within a community. The law leads and shapes development and preservation
actions toward heritage sites. Focusing on physical materials in Saudi experience
dominated the intangible and the collective memory, which impacted other values and
contexts. Any limitation in heritage definition and drawback in the law will impact not
47
just the enforcers of this law at national and local levels but also the implementation
processes at the heritage sites.
By reducing the limitation of the contents of the law, especially by understanding the
relationship between tangible, intangible and memory towards heritage values, will
lead reducing conflicts between the enforcers - particularly at local level.
The main gap arises from not appropriately enshrining tangible and intangible values
and understanding of collective memory within heritage definitions and in the laws,
policies and regulations, which are enforced via organizational structures and through
implementation process at heritage sites.
Looking for the values is a key approach towards understanding the past and the
present. Carr (1961) highlighted the importance of these values by stating that:
‘When we seek to know the facts, the questions which we ask, and therefore
the answers which we obtain, are prompted by our system of values. Our
picture, of the facts of our environment, is moulded by our values… Values
enter into the facts and are an essential part of them. Our values are an essential
part of our equipment as human beings’ (Carr, 1961: 132).
Following extensive research on traditionally built environments, especially in Oman
– a Muslim country and a GCC member state, which is relevant to the Saudi Arabian
context of this research, Bandyopadhyay acknowledged the problematic aspects of
synthesis and interpretation in cultural heritage, underlining that:
‘… The key reason for the study of the built environment is to pursue and
develop historical knowledge … and to theorise on the relationship between
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people, their society, and their material culture and that analysis and
speculative interpretation is a key to unlocking that knowledge … for a
contextual interpretation as an important means of historical investigation into
meaning and knowledge production. Context can indeed be of temporal,
spatial, environmental, physical, social, cultural, political, behavioural,
disciplinary or textual nature – with their differing, often overlapping, scales
of operation ...’ (Bandyopadhyay, 2011: 16).
Within these complexities and problems, Bandyopadhyay highlighted an approach to
addressing cultural heritage when he concluded that:
‘… [n]ow a holistic picture can only be painted when the colours are drawn
from a palette of all possible related disciplines. There often seems to be a
distinct reluctant to do this, especially when the drawing of experiences from
such “unscientific” disciplines as mythology and folklore become necessary.
This also calls for radically different and much more complex methodology
than the “scientific” approach would normally warrant’ (Bandyopadhyay,
1998: 387).
Cultural heritage as a holistic picture is a result of painting the values of both the
tangible and intangible, using the real context of cultural heritage as the palette. The
main role of values in the construction of history seems linked with the idea that
different individuals might write history in different ways (Collingwood, 1961). This
leads to the idea that each reader would also take different meanings from the history
they read; moreover, their values would also shape both questions and answers. There
might be one past, yet there could well be many histories (Jenkins, 1991); therefore, a
49
critical individual should be encouraged to ask questions in much the same way as
Geyl invites his readers to evaluate his perspective of history. Heritage should be
deeply questioned and evaluated by those encountering it, rather than being simply
accepted as a valid account (Geyl, 1955).
Moreover, cultural heritage, both tangible and intangible, is affected by memory.
However, it is important to understand to what extent laws, organizational structures
and implementations, as management tools, have impacted memory in terms of
understanding the values of cultural heritage within the urban cultural heritage sites.
2.2 Cultural Heritage within Historical Dimensions
The Holy Qura’an said in chapter (49), Verse (13), sūrat al-ḥujurāt (The Dwellings)
‘O mankind! We have created you from a male and a female; and made you into
nations and tribes that you may know each other’. Knowing and recognizing each
other comes from the diversity of nations and tribes, especially with regard to Islamic
societies. The nations and tribes are recognized through the diversity of knowledge in
both their and others cultures. Presenting oneself to oneself cannot create a cultural
communication, it might cause increase in the gap between communities. Although,
understanding one’s own culture is the starting point to understand other cultures as
well as the beginning of communication. ‘No man can know where he is going unless
he knows exactly where he has been and exactly how he arrived at his present place’
(Maya Angelou17). Communication between people can be a tool for knowing each
other, especially through cultural values. The diversity in cultures is one of the most
17
Maya Angelou (b. 1928), U.S. author. Quoted in New York Times (April 16, 1972)
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significant scales to understand your own culture with its value. In order to know
others you have to have your understanding of your culture, otherwise you will not be
able to understand the culture of the others correctly. Building bridges and
communications between people within their own culture, not just to know their
culture properly but also to understand its values, is essential step towards
understanding the values of cultural heritage within its wider context.
By returning to Angelou’s quotation mentioned above, one key word that should be
taken into account and analysed is the word ‘exactly’. This word seems to refer to
history, but it is crucial to understand which history.
It has been suggested that ‘in its eternal essence, history is the story of the human mind
and its ideals, in so far as they express themselves in theories and in works of art, in
practical and moral actions’ (Croce 1933: 230). ‘Contemporary thoughts of the past’
is the key idea of all history, as Croce believed (ibid). This thought could be a result
and cause of the past at the same time, not just for the writers, but also for the readers
and audiences. Beard (1934) suggested that:
‘…it is history as thought, not as actuality, record, or specific knowledge, that
is really meant when the term history is used… it is thought about past
actuality, instructed and delimited by history as record and knowledge…
authenticated by criticism and ordered with the help of the scientific method.
This is the final, positive, inescapable definition. It contains all the exactness
that is possible and all the bewildering problems inherent in the nature of
thought and the relation of the thinker to the thing being thought about’ (Beard,
1934:219).
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If one wrote about history, it wouldn’t necessarily reflect what happened exactly as a
matter of fact, but may be a vision of the past shaped by varying circumstances. It is
important to examine what is displayed as history while perceiving that distinctive
individuals would likely respond to inquiries in numerous ways, in order to answer
fundamental questions such as ‘what history is, what it is about, how it proceeds, and
what it is for’ (Collingwood, 1961: 7). History is a biased and framed version of the
past which the historian chooses to write about, and is not necessarily what actually
happened.
Another approach used by the readers of history is to assess and scrutinize the
presented material. Geyl (1955), at the beginning of ‘Use and Abuse of History’,
presents his opinion and leaves the challenge to the audience when he writes that ‘In
what follows I write not as a philosopher but as a historian... I shall not feel compelled
to analyse all my assumptions... I shall argue from my own experience and look at
problems as they have presented themselves to me...’ (Geyl, 1955: 1). As a result, it
seems that interpretation is where the understanding of history truly comes from.
However, this interpretation could itself be written differently. Writing from the
perspective of history and philosophy, Collingwood suggested that in order to answer
fundamental questions, such as ‘what history is, what it is about, how it proceeds, and
what it is for’, it is necessary to scrutinise what is presented as history. Recognising
that different people would likely answer the same questions in different ways
(Collingwood, 1961: 7). Carr suggested that ‘… our values are an essential part of our
equipment as human beings…’ (Carr 1961: 132), the main role of values in the
construction of history seems to be linked with the idea that different individuals might
each write different versions of the same events (Collingwood, 1961). This leads to
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the idea that each person would take separate meanings from the history they read.
There might be one past, yet many histories (Jenkins 1991), and therefore critical
individuals should be encouraged to ask questions in much the same way as Geyl
(1955) invites his readers to evaluate his perspective of history. History should be
deeply questioned and evaluated by those encountering it, rather than simply being
accepted as a valid account (Geyl, 1955). Understanding how this interpretive notion
of the reading of history works in KSA, nationally and locally, through the education
system could be one approach towards addressing the gap in understanding the value
of architectural heritage. In order to do that, it is necessary to look at Saudi cultural
heritage in relation to the history of Islam.
However, not all historical archives, texts or records are clear, and the popular
understanding of history as representing the facts of the past remains largely
unquestioned, especially by local communities. This is particularly critical considering
that numerous individuals are first acquainted with history through school. The nations
incorporate history inside their educational modules at different stages, with normal
exercises, for example: learning about key dates, individuals and occasions using
selected history books. Thus, teaching history in the school curriculum may not instil
a questioning or evaluative approach to the material. Carr (1961) address the paradox
that ‘the belief in a hard core of historical facts existing objectively and independently
of the interpretation of the historian is a preposterous fallacy, but one that is very hard
to eradicate’ (Carr, 1961: 16). Rather than the relentless focus on ‘historical facts’, we
should instead view all history as contemporary, as a ‘view of the past through the
eyes of the present’, grasping rather than ignoring the evaluative judgments that
necessarily shape history (Carr, 1961: 21).
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2.2.1 Islamic Architecture and Societies
Islamic architecture, as an important part of Muslim history, is one of the most relevant
topics that should be addressed in order to understand the links between kinds of
cultural heritages within Muslim communities. As a part of history, the function of
Islamic architecture could be a main tool in the interpretation of the heritage within
Muslims communities. There is a huge debate around the meaning of Islamic
architecture from different perspectives and levels; some look at it from the
geographical and historical boundaries of Islamic countries. Other scholars look at
Islamic architecture from functional perspectives such as Hillenbrand in ‘Islamic
Architecture: Form, Function and Meaning’, where he builds his discussion based on
the type of building, such as mosque, minaret, madrasa and palace.
Said (1977) suggested that ‘there is no doubt that imaginative geography and history
help the mind to intensify its own sense of itself by dramatizing the distance and
difference between what is close to it and what is far away’ (Said, 1977:55-6). The
limitation of understanding the values seems to be a kind of distance creation shaped
by people’s knowledge and experience. This could be a cause of the gap in
understanding the values of cultural heritage, not just between societies at the national
level, but also locally. By decreasing this distance through interpretation cultural
heritage and particularly architectural heritage, as national and local identity, could be
instruments through which to express cultural values correctly. In addition, re-link and
shape the relationship between architectural heritage and societies, especially where
this link is still missing to certain point.
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As highlighted above, the Qur’an mentioned nations and tribes as a source of diversity
and unity. ‘Diversity in unity’ or ‘unity in diversity’; in other words, presence of the
‘national in local’ or ‘local in the national’, especially in Islamic art: this idiom was
employed mainly for books discussing social issues. Shalem said that ‘To the best of
my knowledge, this idiom first appeared in the context of Islamic studies in 1955, in
Grunebaum’s Unity and Variety in Muslim Civilization.’
The reference point as a valuable place is one of the physical sources of unity which
linked and shaped Muslim societies around the world. A significant moment in Islamic
society occurred when Muslims changed the prayer direction towards Makkah. ‘This
change of direction during prayer has a deeper significance than might at first sight
appear. It was really the beginning of the National Life of Islam: it established the
Ka'bah at Makkah as a religious centre for all the Muslim people, just as from time
immemorial it had been a place of pilgrimage for all the tribes of Arabia. Of similar
importance was the incorporation of the ancient Arab custom of pilgrimage to Mecca
into the circle of the religious ordinances of Islam, a duty that was to be performed by
every Muslim at least once in his lifetime.’ (Arnold, 1913: 22).
In Islamic societies the planning and design is not completely an individual’s decision
rather a social norm and requirement. Islamic law contains terms of social goods or
‘Masalih’ and social evils or ‘Mafasid’. ‘Design for privacy, whether in the courtyards
of houses or in picnic grounds and campgrounds, protects the family structure, for
example, while indirectly protecting property and religion’ (Kuban, 1983: 35). The
Islamic law, directly and indirectly, impacts not just the planning and design, but also
the behaviour of people towards both their buildings and their activities, whether
55
practiced indoors or outdoors. As the prophet Mohammad (peace be upon him)
recommend when he advised the neighbour in more than one place18. The concept of
the right and participation within societies’ life whether individuals or groups is highly
included in Muslim community, especially in the built environment, that lead to
understand the Islamic architecture.
Nasser Rabbat suggested that ‘Islamic architecture is of course the architecture of
those cultures, regions, or societies that have directly or via some intermediary
processes accepted Islam as an integral component of their epistemological and socio-
cultural makeup’ (Rabbat, 2012: 15). This definition seems to be linked with culture
and community and takes into consideration the diversity of not just the culture, but
also the regions and societies. This could give communities their identity while
respecting their diversity. In light of the practicing of the culture within diverse
communities, and the junction between the right to practice and the requirements of
identity and preservation, the spatial meaning within built environments plays an
important role in understanding the values of architectural heritage.
The meaning of the space is the key feature that could lead to deeper understanding of
the values of cultural heritage after interpreting it correctly (more discussion about
space will be provided in the next paragraph). Why do we need to interpret heritage?
One reason is that through the interpretation we will be able to understand: a) the
18
The Prophet, (Peace and blessings be upon him) said: "By Allah, he is not a believer! By Allah, he is
not a believer! By Allah, he is not a believer.’’ It was asked, "Who is that, O Messenger of Allah?’’ He
said, "One whose neighbour does not feel safe from his evil" (Sahih Bukhari). The Messenger of Allah,
(Peace and blessings be upon him), said: ‘Jibril kept recommending me to treat my neighbour well until
I thought that he would tell me to make him one of my heirs’ (Bukhari: 6014). The messenger of Allah,
(Peace and blessings be upon him), said: "No-one should prevent his neighbour from fixing a wooden
peg in his wall." Abu Huraira said (to his companions), "Why do I find you averse to it? By Allah, I
certainly will narrate it to you" (Sahih Bukhari). Just to mention a few.
56
values of cultural heritage, b) where these values come from, c) the values of the
spaces, not just architectural heritage buildings themselves, but rather the urban
heritage, including both tangible and intangible forms. Interpretation could be a tool
for presenting that heritage publicly and grasping people’s attention in order to start
the communications between heritage sites and communities, and even restore the
link, especially in the areas where heritage sites are unlinked and misunderstood.
Grabe (1995) highlighted that ‘Interior space could identify the cultural meaning
through Islamic architecture’ (Grabe, 1995: 12). It is clear now that one way to
understand the values of architectural heritage could be to explore the meaning of
interior spaces. As a result of the individual culture, which is part of the whole
community culture, the meaning of the interior space is unique and one source of the
value. The values of architectural heritage come from its spaces. Similarly,
understanding the purpose of the space can be a tool to appraise the value of it, or how
it could be interpreted correctly and deeply. There is no doubt, when talking about
spaces, about how memory is important. ‘Today if we look for specific forms to
identify our culture, we have to remember that all the traditional forms created in the
Muslim countries became Muslim because they were reinterpretations of past
experience’ (Kuban, 1983: 23). On the other hand, ‘The social values of places are not
always clearly recognised by those who share them, and may only be articulated when
the future of a place is threatened. They may relate to an activity that is associated with
the place, rather than with its physical fabric. The social value of a place may indeed
have no direct relationship to any formal historical or aesthetic values that may have
been ascribed to it’ (Drury and McPherson, 2008: 32).
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This short argument serves as a brief review of and an introduction to the nature of
history and its implications for heritage. It is clear to see that history is shaped through
interpretation by writers who are driven by specific circumstances such as knowledge,
values and situation, and as a result they might write different histories based on their
own knowledge and experiences. The community/individual is one of the most
important players in the evaluation of history, through interpretation and
understanding which is shaped by knowledge, values and experiences in terms of
selecting and shaping the past. In the end, history is an interpretation of the past in the
present that is constantly linked with contemporary perspectives towards confirming
the facts of the past.
By understanding that all history is a contemporary interpretation of the past, shaped
by the values of each writer or reader that engages with it, history can also be
understood as an evolving social construction that serves a purpose for those who seek
to understand more about the past. This lays a foundation from which to explore the
complex nature of heritage and its contested relationship with history.
To summarize, the purpose here is not to define Islamic architecture, but rather to
understand the value behind this type of culture expression, and also to investigate
where these values come from, in order to interpret and present them correctly. Hidden
architecture and interior spaces are key to understand the values of architectural
heritage (as will be explained later). There need to be interpretive programs and a good
interpretive plan under comprehensive heritage management in order, not just to
preserve heritage, but also to deliver messages (of value and meaning) simply and
easily to the public, especially in areas where the heritage is not adequately researched.
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Also, it is critical to investigate the hidden knowledge behind spaces that belongs to
the users and re-implement it for present and future functions.
2.3 Heritage Definitions
The term ‘heritage’ seems to be clearly understood, but when put into wider context,
can be more difficult to define. ‘Heritage is a word more widely used than understood
… It is often simplistically and singularly applied, and pluralised more commonly in
rhetoric than reality’ (Ashworth, Graham and Tunbridge, 2007: 236). The Oxford
English Dictionary defines heritage as ‘property that is or may be inherited’, ‘valued
things that have been passed down from previous generations’ and ‘a special or
individual possession’ (OED.com, 2017). The three adjectives in this definition are
‘inherited’, ‘valued’ and ‘passed’, which illustrate how widely variable heritage is. In
terms of ‘valued’ as one of the key words, it is crucial to understand the meaning of
the ‘value’ for both present and future generations in light of the past, in addition to
measuring and managing it properly for all users.
In 1983, the National Heritage Conference defined heritage as ‘That which a past
generation has preserved and handed on to the present and which a significant group
of population wishes to hand on to the future’ (Hewison, 1989: 6). To hand it on to the
future, indeed, requires not just preservation but also full understanding of its values.
For that to happen, the interpretation must not only reflect the significant group of
population who wish to hand it on, but also put it into context and link it with the
whole community as a part of their identity, as well as the national identity.
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Heritage has been seen as an urban product, an assemblage of selected resources bound
together by interpretation (Ashworth and Voodg, 1990). Tunbridge and Ashworth,
(1996: 1-2) shaped five aspects of the expanded meaning of heritage:
1. A synonym for any relict or physical survival of the past.
2. The idea of individual and collective memories in terms of non-physical
aspects of the past when viewed from the present.
3. All accumulated cultural and artistic productivity.
4. The natural environment.
5. A major commercial activity such as the heritage industry.
As can be seen, there are two views on heritage: one that regards it as primarily
comprised of physical attractions (museums, landmarks, historic structures, culture),
and the other that sees heritage tourism as a valuable experience as well as an activity
with educational purposes. But one view cannot work without the other. For example,
cultural heritage, both tangible and intangible, contains values; these values, without
experience and practice through real activities and based on correct and deep
interpretation, will not keep it alive and available. In other words, it is crucial to
consider all heritage values during any development or tourism plans.
Heritage can be considered as anything that someone wishes to conserve or to collect,
and to pass on to future generations (Hewison, 1987). However, it is crucial to
understand the value of it for the individual and public through their memory, and also
to understand how to present it as true heritage: not as a limited inheritance that
belongs to some individual, but rather to link it with the larger context. Preservation
and continuity are the main steps towards shaping heritage concepts.
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Herbert (1995) suggested that ‘Heritage is not about the past. Rather, it is a reflection
of what exists at present’ (Herbert, 1995: 87). Heritage, indeed, is part of the past,
which exists in the present and should be passed on to the future. But, the issue here
is related to the way and the reason of this reflection. The reflection of what exists
today has a link with what happened in the past through the collective memory, this
memory passed on from generation to generation. This move has transferred the
original value by adding new values which are based on the present generation’s
requirements. This makes heritage a concept that keeps evolving and changing in
addition to reflection of the community. For example, protecting surviving heritage
sites from terrorists could give these sites extra values for both present and future
generations due to the issues of the present.
On one hand, ‘Heritage is taken to include everything that people want to save, from
clear air to Morris dancing, including material culture and nature’ (Howard, 2003: 1).
On the other, ‘Not everything is heritage, but anything could become heritage’ (ibid,
7). Moreover, ‘Heritage is a process rather than a product’ (ibid, 12); What makes
anything heritage is what establishes its value, ‘To understand the heritage value of
any particular item we need to grasp where all the stakeholders are ‘coming from’ and
what values they bring to it’ (Howard, 2003: 12). Adding or discovering the values
through stakeholders might add richness to the heritage itself, especially in terms of
their background. In other words, stakeholders are part of the heritage process that
affects not just the cultural memory where the intangible is paramount, but also for the
purposes of the interpretation which shows and highlights these values. The
stakeholders could also be a reason behind the importance of the regular development
of the interpretation.
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‘Interpretation covers the various means of communicating heritage to people. This
includes both live interpretations using guides and other human intermediaries, and
interpretation using design. Nevertheless, some heritage can speak for itself and one
option is always to use no interpretation at all’ (Howard, 2003: 245). However, not all
heritage is wanted or can be interpreted from stakeholders.
Today, stakeholders might be presented and participated differently in heritage
development through the laws, policies, regulations or organizations. As a result of
this transposition in the types of stakeholders, such as organization body or state
governor, could be one of the interpretation tools. Not just towards the values of
cultural heritage at the present but also the possible new values that might be added
for the future.
Howard concluded that ‘There is no doubt that heritage, poorly handled, can lead to a
lack of identity, resentment, dispute, rebellion and war’ (Howard, 2003: 296). As
evidence of that, interpretation is one of the effective tools used to clarify identity from
heritage values. In order to handle it properly, there is a need for comprehensive
policies and regulations, not just to preserve heritage, but also to relive heritage within
its wider context. ‘Poorly handled’ is a reflection of weak interpretation, as well as the
lack in laws, policies and regulations that manage heritage within certain
organizational structures toward the implementation stage. In addition, Uzzell
concluded that ‘Interpretation should be a force for change. It has got to be as powerful
as those forces which it has been designed to counter. It will only be a force for change
when practice is built upon firm theoretical and research-based foundations’. (Uzzell,
2006: 9).
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‘If one believes there is a world culture, it is of a form marked by the management of
diversity rather than the replication of uniformity’ (Alsayyad, 2013: 143), ‘Heritage
managers are responsible largely for controlling this movement’ (Howard, 2003: 186).
The way of managing heritage affects heritage itself and people in both present and
future generations. In that sense ‘Heritage, I want to suggest, is a cultural process that
engages with acts of remembering that work to create ways to understand and engage
with the present, and the sites themselves are cultural tools that can facilitate, but are
not necessarily vital for, this process’ (Smith, 2006: 44).
Harvey defines heritage as a verb related to human action and agency and suggests
that it is a process concerned with the legitimization of the power of national and other
cultural/social identities (Harvey, 2001: 327), though it is not clear whether it is in
action or reaction. Bella Dicks (2000) suggested that heritage may be understood as a
culturally-defined communicative practice. Smith admits that ‘What exactly people
‘do’ – subjectively and culturally- at heritage sites or with the concept of heritage
itself, is as yet an under-theorized issue in the literature.’ (Smith, 2006: 45).
In terms of the tangible, historic buildings are not considered heritage unless they are
well understood by people, in a way that makes their meanings a part of their societies’
existence in a way that helps form their future. Otherwise, historic buildings are just
antiquities that are maintained and preserved as pieces of arts, which might make the
place more beautiful, but not consequently meaningful (Kamel, 2011: 11). In fact,
most of the physical remains that exist today are “antiquities”, which are categorized
and valued according to their archaeological values; these antiquities have been,
usually, preserved and protected from people either partially by keeping them in
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museums, whether opened or closed, or completely by concealing them away from
people. In both ways, no interaction is allowed between people and historic remains,
which, through time, creates a gap between societies and their history, and thus their
heritage practices (ibid). The situation in Saudi Arabia is not that different, since they
have for a long time become disconnected from, and inaccessible to, the people.
Moreover, opening some heritage sites for short times in selected festivals, especially
within some tourism activities, only to lock them again afterward, creates merely a
temporary heritage link with people, and shapes certain images about the heritage itself
and tourism. This type of management causes a gap between heritage and people due
to this ‘temporary connection’. Also, this lack of real connection between people and
space in heritage sites breeds lack of knowledge about deep values based on intangible
heritage which is out of context.
2.3.1 Heritage Concept
Vecco (2010) suggested that the heritage concept has been defined through a threefold
lens: typological-thematic, chronological and geographical, and physical. Whatever
the extension is, the tangible and the intangible cultural heritage are assumed, and
indeed the core of its identity, thus meaning the adoption of multiple ways of looking
at the concept of heritage towards cultural heritage values.
The criteria of cultural heritage values have been developed not just for the values
themselves but also toward the context; for example, cultural values towards the
identity and the interaction with memory in light of understanding the value, become
more effective approach and new tools towards interpretation heritage. This
development gives essential consideration to recognising intangible cultural heritage,
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which was neglected for a long time despite the significance of its hidden values. This
acknowledgment of the importance of immateriality and orality could open the doors
towards the right interpretation and full understanding of the value of cultural heritage
and its application in the correct direction and meaning.
The gap in understanding the values of cultural heritage should be reduced by, for
example, educational efforts and employment through private and public sectors.
Educational and training implications are key tools toward reducing this gap. Norman
(2014) confirmed that ‘There is little incentive for dynamic young people to develop
a career in the fields of heritage and museums.’ (Norman, 2014: 132). In fact, this is
evidence to confirm that there is a gap in understanding the values of cultural heritage,
as a result of the lack of interest in the heritage of the past.
Bouchenaki (2014) argued that the tangible cultural heritage was prepared to protect
producers or commissioners, the destiny of the intangible heritage is more closely
linked to the former and usually based on oral transmission. Thus, the legal and
administrative measures traditionally taken to safeguard material elements of cultural
heritage are in most cases inappropriate for protecting a heritage where the most
important elements connect with special systems of knowledge and value in a specific
social and cultural context.
2.3.2 Transporting Heritage
‘Intangible heritage can be ‘transported’ to other countries without losing authenticity’
(González, 2008), the tourism industry as a field where people practice and share their
experiences can cause positive or negative impacts, especially tourist behaviours
towards intangible cultural heritage. For instance, González (2008) mentioned that the
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source of identity through intangible heritage tourism could be provided independently
from local places. González (2008) mentioned this when addressed Japanese flamenco
tourism and how it can be practiced in Japan with the same significance as in Spain.
In other words, ‘High perception of authenticity can be achieved when the event is
staged in a place far away from the original source of cultural tradition.’ (Chhabra,
2003: 702). However, transporting this intangible cultural heritage from original
places to others could be a reason behind destroying its authenticity, specifically the
intangible culture heritage located in developing countries which need, as a priority,
to discover, define, protect and safeguard it before exporting it to other countries
through tourism. Indeed, tourists are one of the most important ways to present
intangible heritage through activities and experiences, but that might be a risky
approach without fully documenting the intangible cultural heritage within its genuine
culture by original performance. Accordingly, for some intangible cultural heritage
which has been discovered, defined and safeguarded, it is possible to present it widely
and post it for the community, while thinking of different ways to market it without
risky perceptions. However, the first step towards developing and understanding the
intangible cultural heritage should be focused on discovering, defining, and protecting
it; otherwise, during this time the intangible cultural heritage will disappear due to
wrong performances or lack of understanding its value.
The traditional trade was an approach to communicate, deal and practise with other
societies; through this type of relationship there is a kind of society transformation by
cultural exportation and importation.
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‘The caravan trade was practised into the twentieth century, for example: John Lorimer
noted in 1904 that about twenty-two caravans came through Kuwait from Nejd and
Jabal Shammar19, with 500-1000 camels per caravan.’ (Norman, 2014: 134). This took
place mainly through the trading itself and various products, specifically when we
know that said products possessed intangible value. For instance, when we take the
date as a product, there are many kinds of date and each type is stored in different
ways. The way that you store it depends on your knowledge; this knowledge is a kind
of intangible culture. The suggestion that was taken from the traders, which creates a
different methodology to store products that sometimes need to be in a specific place
‘Makhzan’ and then presented in a different way. This knowledge has been
transformed from other communities and practiced by their own way, which is kind
of transporting intangible in light of societies requirements.
2.4 Intangible Cultural Heritage Definition
2.4.1 UNESCO’s Action towards Intangible Heritage
One of the earliest and most comprehensive efforts at the international level towards
safeguarding cultural heritage came through UNESCO. UNESCO’s activities focused
on the protection of tangible heritage: The Convention for the Protection of Cultural
Heritage was created in1954; Import and Transfer of Ownership of Cultural Property
was established in 1970; the Convention Regarding to the Protection of the World
Cultural and Natural Heritage began in 1972; the Convention on the Protection of the
Underwater Cultural Heritage took place in 2001. The first draft of the Convention for
19
Jabal Shammar is what known today by Ha’il in north of Saudi Arabia
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the Safeguarding of Intangible Cultural Heritage was written in 2001 and approved in
October 2003 (Figure 2.1).
•The Convention for the Protection of Cultural Heritage

1954
•started in 1970
1972 •The Convention for the Protection of the World Cultural and Natural Heritage
•Recommendation on the Safeguarding of Traditional Cultural and Folklore

1989
•The Convention for the Protection of the Underwater Cultural Heritage

2001
•started in 2001
2003 •The Convention for the Safeguarding of the Intangible Cultural Heritage
Figure 2. 1 The evolution in the definition of Cultural Heritage in the UNESCO
However, the beginning of the direct efforts towards protecting intangible heritage
only came in 1982, when UNESCO set up a ‘Committee of Experts on the
Safeguarding of Folklore’, then established a special section for ‘Non-Tangible
Heritage’, resulting in the Recommendation on the Protection of Traditional Culture
and Folklore, adopted in 1989 (UNESCO, 2007). This Recommendation set an
important precedent for recognizing ‘traditional culture and folklore’. It also
encouraged international collaboration and considered measures to be taken for its
efforts such as identification, preservation, dissemination and protection (Bouchenaki,
2014).
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The Living Human Treasures system (1993) and the Proclamation of Masterpieces of
Oral and Intangible Heritage of Humanity (1998) were two main programmes that
highlighted the increasing significant of intangible heritage within UNESCO20.
In 2000, similar to the 1972 Convention Concerning the Protection of World Cultural
and Natural Heritage, UNESCO began preparing a new international convention for
the safeguarding of intangible heritage21. Bouchenaki (2014) highlighted that this
initiative confirms the need to protect intangible heritage, not only by operational
activities but also through normative instruments, a move increasingly recognized by
member states.
The Istanbul Declaration22 highlights that ‘an all-encompassing approach to cultural
heritage should prevail, taking into account the dynamic link between the tangible and
intangible heritage and their close interaction’ (UNESCO, 2003) This Declaration is
an important statement towards confirming the significance of intangible values
through their relationship with the tangible.
According to UNESCO (2014), intangible cultural heritage means ‘the practices,
representations, expressions, knowledge, skills – as well as the instruments, objects,
artefacts and cultural spaces associated therewith – that communities, groups and, in
some cases, individuals recognise as part of their cultural heritage.’ (UNESCO, 2014:
20
Nineteen forms of cultural spaces or expression were proclaimed as ‘Masterpieces of Oral and
Intangible Heritage’ by UNESCO's Director- General in May 2001. This proclamation provides a useful
indication of the type of intangible heritage that different member states wish to safeguard. (UNESCO,
2003)
21
The draft of this new Convention was submitted to the 32nd session of the General Conference then
adopted by the majority in October 2003 (UNESCO, 2003).
22
The Istanbul Declaration was organized by UNESCO in Istanbul in September 2002.
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5). The domains of intangible cultural heritage, also according to UNESCO (2014),
are the following:
 Oral traditions and expressions, including language as a vehicle of the
intangible cultural heritage
 Performing arts
 Social practices, rituals and festive events
 Traditional craftsmanship
These classifications of the intangible; such as practices, representations, expressions,
knowledge, skills and instruments, and these domains; such as oral traditions,
preforming arts, social practices and traditional craftsmanship in the intangible
meaning, illustrate more attention towards the importance of the contexts of cultural
heritage that integrate with other components in multiple forms to create different
values. Failure to understand certain heritage components indeed affects the whole
cultural heritage value.
From the above, it is clear that UNESCO has made significant efforts since 1954
towards cultural heritage development. However, the protection of intangible cultural
heritage remained for a long time without consideration; only in 1973 was it proposed
that ‘a protocol be added to universal copyright convention in order to protect
folklore.’ (UNESCO, 2007: 107), even if it was not successful. But, as Bouchenaki
described, ‘It helped to raise awareness of the need to recognise and include intangible
aspects within the area of cultural heritage.’ Bouchenaki (2014: 1).
The Convention of the Safeguarding Intangible Cultural Heritage is an international
framework which gives comprehensive outlines about the protection of intangible
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cultural heritage. However, dealing with communities requires specific tools and
approaches, as circumstances differ from one community to another. These specific
requirements come from indigenous peoples themselves, and their cultural
who/when/where/how values can practice naturally and properly. The efforts towards
safeguarding cultural heritage should take on board the indigenous peoples, the main
players, in order to achieve these safeguarding objectives successfully and to reduce
the gap in understanding the value of cultural heritage properly.
The complexity of intangible cultural heritage derives from its ephemeral nature.
‘Intangible cultural heritage exists without physical references, and this makes it even
more difficult to identify.’ (Alzahrani, 2013: 10).
The issue here is related to understanding the intangible cultural heritage, especially
in light of its components, elements and other facts that affect the intangible thus the
cultural heritage context. Understanding intangible cultural heritage requires taking
into account its context; this context is linked with the tangible, as well as the
community’s lifestyle and their requirements in specific periods under specific
conditions. It is noteworthy, in terms of architectural heritage, that most community
cultures were presented through built environments, which means that architectural
heritage is a result of this culture, as mentioned in more than one place (Mahgoub,
2007: 165). In this sense, it is possible to track architecture elements to discover their
link with the intangible cultural heritage. In other words, the values are integrated with
each other, which might create further values in different forms, whether tangible or
intangible.
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Understanding the intangible also requires identifying the relationship with the
tangible within its context. The relationship between indigenous peoples, their culture
and their built environment should be considered in the whole safeguarding
framework. Those people should be involved at all levels and approaches, starting
from identification and ending at implementation at national and local levels. The gap
in understanding the value of cultural heritage is a result of the lack in understanding
the relationship between the tangible and intangible within the cultural heritage
context.
2.5 The Relationship between Tangible and Intangible
It has been argued by Ulrich et al. (2015) that there is a link between the present and
the past through most material things, specifically when it is examined closely. This
link between materials in the present and the past could be presented clearly through
tangible and intangible cultural heritage. However, when it comes to examining the
link between materials in the past and present, there are significant facts that should
be considered: for example, understanding the intangible within its context needs to
be analysed based on understanding its value and its careful definition. One of the
most successful approaches, from an architectural perspective, towards the
relationship between the tangible and intangible, is through formulating them within
one of the types of spaces which is ‘in place, unplaced or out of place’, and how the
intangible shapes and affects the tangible space. Bouchenaki (2004) mentioned that
‘Intangible heritage provided the larger framework within which tangible heritage
could take its shape and significance.’ (Bouchenaki, 2004: 4). However, this large
framework has no boundary to draw, collect, figure out or reflect the tangible shape
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and its significance. In other words, the objective is not to decide which one is
dominant over the other for shaping this framework, but rather in the understanding
that both are involved. In that sense, the importance of addressing the relationship
between tangible and intangible comes from the importance of understanding the
values towards cultural heritage context that shape the main framework.
In that framework, as Appadurai (1996) stated, cultural heritage is an important partner
of tangible heritage because intangible heritage is very natural. ‘The three pillars
(societies, norms and values) are in an equilateral triangle relationship to form a smart
partnership that sustains cultural heritage. However, they work within a larger
equilateral triangle of natural heritage, cultural heritage and spiritual heritage.’
(Munjeri, 2003: 18). Bouchenaki (2014) suggested that there are three approaches
regarding the conservation of monuments and the safeguarding of cultural practices
that lead to understanding intangible values:
1. Putting tangible heritage in its wider context23
2. Translating intangible heritage into “materiality”24
3. Supporting practitioners and the transmission of skills and knowledge25
23
Especially in the case of religious monuments and sites, and linking them strongly to the communities
involved in order to afford greater weight to spiritual, political and social values. Moreover, its wider
context could open the door to understand the links and conjunctions with other fields, which could be
the main/sub drivers and players Bouchenaki (2014: 4)
24
Translation of intangible from the oral form to any form of materiality such as archives, film records
or museums. Although this might be cause ‘freezing’ intangible heritage when it is formed in
documents, but bearing in mind this could be only one part or the first step of safeguarding and more
attention should be given to selecting the suitable materials and methods. (ibid)
25
Through communities’ right and official recognition and support, and enabling tradition holders to
pass their knowledge on to future generations within clear framework and methods. One good guideline,
which is helpful in this concept, could be the ‘Living Human Treasures;’ one of UNESCO’s tools that
was established in 1993, which was designed to give local practitioners the chance to pass their
knowledge to other generations. (ibid)
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These three approaches are a reflection of the domains of the intangible heritage that
was highlighted by UNESCO in 2014. However, these approaches, especially in
developing countries, are controlled by two main tools. The laws and regulations are
the first tool; the second is the organizations that apply these laws towards
implementation stages at different levels. For instance, putting tangible heritage in its
wider context requires that the contents of the law should clarify the intangible as equal
as tangible, taking it into consideration in order to cover the context. Furthermore, the
second tool cannot play the correct role towards developing the cultural heritage
within its context if the law does not allow it. This example can be applied on the other
two approaches.
It has been suggested that tangible and intangible heritage are two sides of one coin,
even if they are very different. Both depend on each other, specifically in
understanding the meaning and significance. Interpretation of the tangible and
intangible separately or without consideration of both equally will not lead to full deep
and holistic understanding of heritage values. ‘For many peoples, separating the
tangible and intangible seems quite artificial and makes little sense.’ (Kurin, 2004)
Tangible and intangible should be considered not just together, but also within their
context. ‘Tangible heritage can be interpreted in the manner of a cultural practice,
rather than simply a site or place.’ (Smith and Akagawa, 2009: 6).
‘Cultural workers will have to figure out the degree to which a tradition may be
sustained much more as a matter of professional judgment than legal structure.’
(Kurin, 2004). Indeed, professional judgment is an essential step, and these efforts
should focus on how the value of tangible and intangible cultural heritage could be
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understood and interpreted by all players, including the community, which is a key
stakeholder. ‘Bringing community participation into play has been a great challenge
for many cultural projects in the past and will continue to be so in the future.’ (ibid).
This is evidence to confirm that there is a gap in understanding the value of cultural
heritage in both tangible and intangible forms, especially in terms of the importance
of the local community. In addition, this confirms also the importance of laws and
organizations towards the implementations stages as a main tool to manage and
develop cultural heritage.
One of the most significant tools towards reducing the gap in understanding the value
of cultural heritage, in light of linking the tangible and intangible, is by understanding
the past and its holders. One of the main challenges is to protect the people who are
the repository of intangible heritage, but there is a chance to pass the intangible from
generation to generation by protecting the memory. This memory is the main vehicle
of the intangible, and it has a link with place and identity; this relationship affects the
main relationship between tangible and intangible. In that sense, it is crucial to
highlight the perception of the past in light of places of the past, knowledge of the past,
present lineaments and history, memory and identity, customs and traditions, narrative
power, communicative memory and memory transformation, as the next paragraph
explores.
2.6 Perception of the Past ‘Memory’
It has been confirmed that identification, documentation and preservation are
essentially steps towards cultural heritage preservation in general and safeguarding the
intangible particularly. It is crucial to bear always in mind both tangible and intangible
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together in order to protect the context of cultural heritage. One of the most important
tools to preserve intangible heritage is to protect and support its bearers, as
Bouchenaki (2014: 6) stated, ‘safeguarding the intangible heritage involves the
collection, documentation and archiving of cultural property and the protection and
support of its bearers’26 However, in order to protect and support the ‘bearers’, it is
crucial to understand why they are important, who the ‘bearers’ are, and how they can
be protected and supported. To answer these questions and to understand the context
of heritage in light of perception of the past, it is crucial to discuss the facts that impact
these bearers. One of these main facts, for example, is the meaning and value of the
place of the past which impacted by the concept of old and new look. The conflict of
views and values, as a result of level of understanding cultural heritage, impacts the
knowledge of the past and the way of understanding this knowledge, especially
towards level of the consciousness. Memory and identity are another facts that impact
the meaning and values of cultural heritage. Customs and traditions, narrative power
and memory transformation participate in shaping the understanding the values of
cultural heritage within context. Considering these topics together allows to
understand the way of dealing with the past as a valuable source of different cultural
heritage values as will be explain later.
26
Bouchenaki reached his conclusion when experts took part in the Washington International
Conference in June 1999 organized jointly by UNESCO and the Smithsonian Institution. This
conference concluded that a new or revised legal instrument would be required to address questions of
terminology and the breadth of the subject matter more adequately. The Conference highlighted the
need to place emphasis on tradition-bearers rather than scholars, also the need to be more inclusive,
encompassing not only artistic products such as tales, songs and so forth, but also knowledge and values
enabling their production, the creative processes that bring the products into existence and the modes
of interaction by which these products are received and acknowledged.” (Bouchenaki, 2014)
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Without any doubt, the most important carriers and holders are people, besides other
material factors. The carrying of intangible heritage, especially in memory, both
individual and collective memory, places the concept of memory protection as one of
the fundamental pillars of the protection of intangible heritage, which in turn is linked
to the tangible to form cultural heritage within its original context. As well as
preserving memory, not only values, this also promotes the preservation of the
authenticity of these values, which safeguards the rest of the values of cultural heritage
in general. Intangible cultural heritage is a performance by setting, and the relationship
between setting and performance creates a memory. In that sense, it is important to
discuss memory and places of the past in order to understand the intangible, as well as
the link between tangible and intangible cultural heritage in order to reduce the gap in
understanding the value of cultural heritage.
What has been done for preservation in Saudi Arabia, as will be discussed later,
confirms the level of awareness, especially in legislation, organizational structures and
implementations towards the values of cultural heritage within its context. For
example, in the last four decades preservation efforts were focused on buildings
without immediate actions towards developing cultural heritage, because preservation
is only one step within integrated processes towards preserving the values of cultural
heritage. Lack of recognizing the importance of the skills in tradition building has
resulted not only in the failure of the preservation endeavour itself but also in the loss
of the intangible as well as values.
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2.6.1 Place of The Past
Lowenthal (1975) suggested that ‘The place of the past in any landscape is as much
the product of present interest as of past history.’ (Lowenthal, 1975: 24). Places
catalyse the memory, such as tangible tools which included significant elements of
intangible that shape the whole image of cultural heritage. When the brain starts to
recall the past from the memory, it begins to collect all elements that have links with
the past through systematic recollection approach based on many facts such as
behaviour, experience, sense and knowledge. After these operations, the mind starts
to link the memory contents with the surrounding environment, leading the person to
shape his behaviour towards the present. This mechanism is a way to identify links
between memory and place that direct one to explore the values and meanings.
Place in itself does not have too much value unless funding the hidden links with
values. For example, in a Muslim society where the mosque is the most important
location, it is a place linked with worship; this gives the space its value through the
worship relationship and all its requirements, beside other social values. Another
example is when a Muslim society, particularly in a non-Muslim country, converts a
building g into a place of worship. This is not just completely changes every things
about this place, but also start to build a new memory towards this place and imagine
the space contents and people start relating to it. As a result of this changing of its
function, the place as a mosque and the space as a prayer space have changed itself
and people’s memory, not just for the present users but also the previous users, old
owners, the people around them and their families and children, and then generation
after generation. The memory of the place is a result of the memory of people that
shape the values of the places, no matter whether it is old or new.
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2.6.2 Old and New Look
The concept of ‘old and new look’ is one of the main facts that impact meaning and
value of cultural heritage especially place of the past in people’s memory. ‘Because
we feel that old things should look old, we may forget that they originally looked new’
(Lowenthal, 1975: 26). Imagining the past and shape it within ‘looks old’ perspective
is still existing in some communities especially in developing countries, that because
of the lack of understanding the value of history. Unfortunately, this concept has been
passed from generation to generation and from memory to memory until it became an
issue as a result of the lack of knowledge and understanding that participates in
increasing the gap. From another angle, this is evidence to confirm that the memory
can play an important role towards shaping the past image for the present, also it
confirms that memory can be impacted.
We always compare the things with other by using the lifetime. And because of the
globalization, which has been linked strongly with technology and always looks new
at the present, this concept has built a hidden memory for the present generation
towards own the new. The opposite of that own or belonging to any old things will be
against the right thing in the present. Some people appreciate past values, while others
favour with present values. However, it should be clarified that history is always a
main provider of the authenticity. This authenticity is one form of the cultural heritage
values beside many forms which, if not carefully addressed, might cause conflict of
views and values.
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2.6.3 The Conflict of Views and Values
Lowenthal (1975) highlighted that ‘We should expect to see conflicting views of the
past, based on the conflicting values of the present.’ (Lowenthal, 1975: 26). The key
issue here is the values of the present through many sources; one of the most important
sources is the memory, specifically in regard to heritage. The relationship between
memory and heritage, and the link between what remind you from tangible and
intangible, is an integrated process. Something happened in the past and we received
it in the present; this legacy has impacted the receiving of whole meanings; also, these
messages are changeable and movable in which the understanding and interpreting
have participated in these legacies. In other words, we read and understand things
inherited from the past according to our present lenses.
‘The tangible past is altered mainly to make history conform with memory. Memory
not only conserves the past but adjusts recall to current needs. Instead of remembering
exactly what was, we make the past intelligible in the light of present circumstances.’
(Lowenthal, 1975: 26). This approach ‘make the past intelligible in the light of present
circumstances’ for example, might change the message of the past or interpret it
incorrectly. Because we cannot interpret all the intangible past and some knowledge
is missing, we will not be able to figure out all the past in the present circumstances.
We might be able to understand some heritage values and link them with the present,
but when it comes to the implementation stage it is crucial to consider the context of
the past. The context is the framework which included both tangible and intangible;
taking one or both of them without the context might cause a gap and lack of
knowledge and understanding of the past.
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2.6.4 Knowledge of the Past
‘Memory transforms the past we have known into what we think it should have been.’
(Lowenthal, 1975: 28), this thought is shaped through personal convictions, and
because the past is always interpreted from different perspectives that makes the
person behave variable and difficult to understand. Moreover, this is evidence to
confirm that the interpretation might change the meaning. In other words, the
knowledge of the past has an impact on interpretation results, more knowledge of the
past provides great source for thinking. Thus, more accuracy in interpretation not just
to draw the real but also to avoid the mistakes that come from misinterpretation of the
past, as well as creating the gaps in understanding the values. Comparing the present
memory with the knowledge of the past could be a successful approach towards
interpretation and understanding the past correctly and re-call the memory with its
sense and context.
Graham and Howard (2008) propose describing heritage as knowledge, as a cultural
product and a political resource. Graham and Howard also added that: ‘… if heritage
knowledge is situated in particular social and intellectual conditions, they are time-
specific and thus their meanings can be transformed as texts and are re- readable in
changing times, circumstances and constructs of place and scale; therefore, it is
unavoidable that such knowledge is also a field of contestation that is neither fixed nor
stable’ (Graham and Howard, 2000: 5).
‘We use our knowledge to place our memories.’ (Lowenthal, 1975: 28), however, this
knowledge is changing, and it depends on many facts such as education, experiences
and communications, but when the knowledge placed the memory, is the mind and
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person’s behaviours, as a result of this knowledge, going to take this memory as a solid
fact? Or is it going to take other place such as analysing, experiences, judgments and
testing. It seems that both knowledge and memory are changeable based on each other;
they are in integrated links and relationships similar to the links and relationships
between the tangible and intangible. In other words, because it is mediated by one’s
personal baggage of experience and judgement, memory can only provide a partial
truth, a subjective reading of things past. Plus, by definition, memory is volatile,
vulnerable as it is at risk of loss. Since intangible heritage is centred on transmission
of traditional knowledge through memory (e.g. by means of oral history) it can be
difficult to manage and preserve (because memory is at risk of loss).
Our present’s features are mainly a result of our past, as Lowenthal admitted that ‘All
the lineaments of the present are historical, yet they are continuously reborn in the
minds of every culture and of every generation.’ (Lowenthal, 1975: 36). However, this
birth comes after a long period of pregnancy, which makes that memory faces different
variables and effects. Indeed, yesterday is a fuel of the mind, but how can we use this
fuel and in which level and direction should be moved? One of the golden objectives
from knowledge of the past is to increase level of the awareness as well as decreasing
the gap in understanding the value of cultural heritage.
2.6.5 The Consciousness
Langer confirmed that the memory is the great organizer of consciousness (Langer,
1953), this consciousness is mainly a result of experiences, education and knowledge
not just for the individuals but even the experiences of others. This consciousness has
been built through different resources and channels, such hearing a story and
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imagining the events are some elements that could build and shape part of the memory.
The memory is cumulative result of whole senses.
‘The consciousness that constitutes self-identity must be supposed to reach into the
future as well as the past.’ (Poole, 2008: 266). The 21st century has created its own
identity due to globalization, while individuals have the most valuable identity that
grabs people’s and other communities’ attention. In order to link the past with the
future through the present we are always struggle with the ‘How’ question whether in
development or practice. The answering here should be focused on the link between
tangible and intangible cultural heritage in terms of their values that participates in
shaping the context of the urban cultural heritage.
‘The role of consciousness is to collect all our experiences – past, present, and possible
future- as experiences of the one self.’ (Poole, 2008: 266). Moreover, the role of
consciousness is to understand and respect the past through encouraging people to
have enough knowledge and experiences and other memory sources, especially the
resources that have a strong relation with memory such as tangible and intangible
heritage. In other words, our experiences are affected by our level of awareness, and
vice versa, not to present the individual rather than the identity that integrated with
significant facts such as memory.
2.6.6 Memory and Identity
‘Memory creates personal identity.’ (Poole, 2008: 267) beside other facts.
Community’s loyalty or feeling of belonging to group could be a type of shaping the
identity, because this community or group of people have common things to share and
practice which is result in building the memory.
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Behiri (2011) asserts that heritage is a symbolic resource, strongly linked to the
question of collective memory and identity. ‘Collective memory may be conceived as
a mode of individual memory. But it is a memory that individuals have as members of
a group, and indeed that they have this memory is often a condition of membership’
(Poole, 2008: 274). Collective memory is based on the memory of the community
members, which shapes, directs and affects the whole community memory specifically
when the memory related to the inherited as a kind of community relationship with all
members and as a community identity.
The sources of memory whether family, community, tribe, state, national or
international memory are based on and integrated with each other. As a nation and at
national level, the identity is affected by different facts, one of them is the education
system. ‘Every country gives priority to its own history in its school and educational
system. This is part of the reason the national memory becomes a presence in the life
of the individual. But only in part. It is also because our country’s history is taught as
ours.’ (Poole, 2008: 275). The education is one of the most effective approaches
towards build and shape the memory in general, specifically when we know that the
knowledge is one of the tools that can nourish the memory. This knowledge is subject
to change, and it is possible to impact the individuals’ memory through education
system. Focusing on developing the education system, which could be one approach
to developing individual memory (communities and national memories), could
develop and impact memory and make it an intangible driver to enhance people’s
behaviour and understand the past properly. As a result, the gap in understanding the
value of cultural heritage will decrease.
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‘National memories, like individual memories, are often self-serving.’ (Poole, 2008:
275) Sometimes, this self-serving is cross or common with others; we cannot separate
individual memories when we address the memory because its effectiveness occurs
both horizontally and vertically.
‘Cultural memory has its own outer horizon of knowledge beyond which the concept
of ‘memory’ no longer applies. By this I mean knowledge that has lost every link to a
collective identity, however broadly conceived, and therefore possesses neither
horizon nor force’ (Assmann, 2006: 29). ‘Cultural memory is memory in the broadest
possible sense: it consists of all the meaningful artefacts that not merely survive from
the past, but that refer to the past, and are available in a society at a given time’ (Poole,
2008: 279), mainly that could be cleared through intangible culture. Traditional foods,
for example, have the power to remind us of the significance of intangible culture
through the senses, and re-call the memory of the past. Most of these memories have
a golden image and value, though indeed not everyone can see it; some might view it
as a solid image. However, customs and traditions are frameworks for preserving,
presenting and practicing these memories and values.
‘Stored memory includes almost everything: nearly all the meaningful traces of the
past might count. Functional memory comprises those traces of the past that play some
social role in the present, if only perhaps in the lives of marginal groups or special
interests.’ (Jan, 1997: 279). In this sense, there is a link between stored memory and
functional memory through traces of the past. Additionally, comparing and linking
traces of the past with the present is a brain process to decide how to deal with present
lives as a result of both stored and functional memory. Thus, enhancing stored memory
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will impact functional memory especially in terms of social role as well as other
cultural heritage values. The brain process like any other process that impacted by
many facts, however, ‘there is an intimate connection between the formation of a sense
of identity and the laying down of memories.’ (Poole, 2008: 284). It is crucial to
enhance the stored memory in order to enhance the identity as one of the cultural
heritage values that integrate with each other to shape the context of the urban cultural
heritage.
Most of the time, a community’s memory is the main framework wherein the
individual’s memory takes place. When we shape the memory or try to change or
affect it, we are shaping and affecting the identity indirectly; in other words, in order
to deal with identity, we should address the memory.
2.6.7 Customs and Traditions
Another source upon which Islamic law draws for its judgment of actions is the Urf;
that is, ‘action or belief in which persons persist with the concurrence of the reasoning
powers and which their natural dispositions agree to accept as right.’ (Al-Hathloul,
1975: 137). These kinds of intangible and unwritten laws have a power to direct
communities and their memory, not just in dealing with the present but also
understanding the past. However, it may create a gap when this kind of laws have not
interpreted and implemented carefully and correctly. Urf is an important principal in
shaping and managing communities’ behaviours, which impacts the social activities
that supply individual and collective memory. In the built environment, for instance,
Urf is a reason behind choosing the location of the building entrance and its direction
under privacy’s principle. In some communities, the Urfs, marriage customs and
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traditions for example, became as powerful as Islamic law, even if it has nothing to do
with Islamic law. Urf is a base line that the current laws and policies should consider,
in other words, the preservation of intangible heritage in Islamic context should take
the Urf into consideration. However, it is crucial to understand the original Urf based
on its context and values as well as the real reasons behind it.
2.6.8 Narrative Power
The communities are driven by many different facts and powers towards
understanding the values of cultural heritage, yet the narrative plays a significant role.
Brockmeier stated that ‘Much of the new literature on cultural forms of memory and
remembering seems to confirm that narrative is a particularly powerful local discourse
form that plays a pivotal role in the cultural organization of remembering’
(Brockmeier, 2002: 11). Such a story of someone’s forefathers can be a source of
nutrition for the memory, and it could also be a reason behind shaping the behaviour
towards not just the past but also the present and future. Believing in these stories
could be one source that enhances sense of belonging by loyalty and identity, and from
that sense the narrative took its importance. ‘The study of cultural memory and of
narrative mutually refer to, and depend on, each other’ (ibid). The narrative is a
significant tool for conveying the values of cultural heritage through its impact on the
memory, particularly the intangible. For example, the achievements and challenges
that faced previous generations, communities, families and groups are always a kind
of legacy that current people need to appreciate, especially when those people are part
of the present.
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‘To study narrative we thus have to examine these discursive practices, their cultural
texts and contexts.’ (Harre, 2001: 53). Furthermore, Pearce (1994) admitted that ‘It is
important to remember that we ourselves—I who write this paper and you who find
yourself reading it—are actors in the story’ (Pearce, 1994: 28). She also added that:
It is our better understanding, as we live our lives, of the processes of making
meaning which enables us to analyse the nature of our relation to the objects
which come from the past, and to perceive how they affect us, both individually
in the dialectical creation of meaning and self, and socially in the ideological
creation of unequal relationships (Pearce, 1994: 28).
Narratives, whether from historical writing or from literary fiction, have a relationship
with other facts especially social values. However, ‘[n]arratives of these various kinds
all require a degree of explication to help in the creation of most of their meaning’
(Pearce, 1994: 28). Understanding the meanings and the relationships between
different kinds of narratives within cultural material will help to reduce the tension, as
Pearce (1994) stated ‘It is precisely for these reasons that authors write narratives,
museums collect objects and display them, people visit galleries, and we all construct
our explaining stories from what we see, read and remember; and all these meanings,
as we have seen, are the continuous re-creation of significance through the perpetual
play of metaphor and metonymy, of signification and signifier’ (Pearce, 1994: 28)
Hatem Al-Taye, for example, is a known person in the history of the Arabs; his
generosity and hospitality are well known without meeting him. The power of
narrative in delivering his hospitality has encouraged many individuals and societies
to be proud of his efforts through following what he did at that time. This power leads
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individuals and groups to implement some hospitality principals, referring to Hatem
even when there were many people who did what Hatem did if not more. Moreover,
the narrative power has encouraged the current generation to shape their behaviour,
which carries values for them at the present. Hatem’s generosity became a proverb
that expanded in different behaviours and attitudes. For example, the way of providing
food or Arabic coffee, the way of preparing them, the way of cooking, etc., are
performances of culture that include different values and links, whether tangible or
intangible.
Narrative plays an important role in communication between individuals and
individuals, groups and groups, and individuals and groups through its messages and
facts. This role has expanded to reach impacting and shaping the memory, thus as a
result of that the communicative memory indeed will be affected by these messages
and facts. The communication between memories has created a strong network that
link with cultural products and processes ‘Every individual memory constitutes itself
in communication with others. These ‘others’ however, are not just any set of people,
rather they are groups who conceive their unity and peculiarity through a common
image of their past. Every individual belongs to numerous such groups and therefore
entertains numerous collective self-images and memories.’ (Assmann and Czaplicka,
1995: 127).
2.6.9 Memory Transformation
As a result of any communication, transformation is always an inevitable result,
whether in message, sender or receiver. In this sense, memory, culture and society are
the main resources in shaping the relationship between the network’s links and
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communication’s practices; however, the society is a key player in the transformation
process. ‘Our theory of cultural memory attempts to relate all three poles – memory
(the contemporized past), culture, and the group (society) – to each other.’ (Assmann
and Czaplicka, 1995: 129) Indeed, this strong relationship could affect the perception
of the past as well, as interpretation and understanding of the present. ‘The binding
character of the knowledge preserved in cultural memory has two aspects: the
‘formative’ one in its educative, civilizing, and humanizing functions and the
‘normative’ one in its function of providing rules of conduct.’ (Assmann and
Czaplicka, 1995: 132)
‘One group remembers the past in fear of deviating from its model, the next for fear
of repeating the past. The basic openness of these variables lends the question of the
relation between cultural and memory a cultural-topological interest. Through its
cultural heritage a society becomes visible to itself and to others. Which past becomes
evident in that heritage and which values emerge in its identificatory appropriation
tells us much about the constitution and tendencies of a society.’ (Assmann and
Czaplicka, 1995: 133). The tendencies of society are driven by the sense of community
that shapes people’s behaviours towards the past, and to a certain point that could be
a tool to accept or reject some changes in memory or identity.
‘It can be argued that heritage is not only a fundamental attribute of national culture
but an essential form of symbolic embodiment through which people can construct,
reconstruct and communicate their sense of national belonging.’ (Park, 2010: 520).
Heritage is one of the most important approaches towards building community
memory and loyalty based on values and context. ‘A nation’s shared memory, a clear
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manifestation of intangible heritage grounded in national (tangible) heritage sites and
places, plays a crucial role in reconstructing and sustaining the identity of a nation.’
(ibid, 522).
Margalit (2002) describes a distinction between ‘common’ and ‘shared’ memory as
two various components of collective memory. ‘It (shared memory) requires
communication. A shared memory integrates and calibrates the different perspectives
of those who remember the episode…into one version’ (Margalit, 2002: 51-52); he
added that ‘…shared memory in a modern society travels from person to person
through institutions, such as archives, and through communal mnemonic devices, such
as monuments and the names of streets…whether good or bad as mnemonic devices,
these complicated communal institutions are responsible, to a large extent, for our
shared memories’ (ibid, 54). ‘If ‘our’ nation is to be imagined in all its particularity, it
must be imagined as a nation amongst other nations.’ (Billing, 1995: 83). This concept
makes a borderline between two communities or countries; in fact this is not possible,
because the borderline between countries does not exist between communities. Indeed,
each country has its own image and memory, but the community is able to have two
images or two memories especially where they live on the border.
In a political way, Park suggested that ‘Shared national memory as intangible
heritage… is of crucial significance in commemorating the symbiotic relations and
cultural affiliations existing between two politically defined nation states’ (Park, 2010:
537). Importantly, in this context heritage can be a part of the solution of mediating
political contentions and conflicts. ‘Intangible values of national heritage can help to
unfold the nuances and complexities associated with national identification,
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particularly in contexts where ethnic and cultural elements of nation and national
identity are restrained by territorial and political demarcations’ (ibid). He concluded
that ‘It is thus important to carefully consider the significance of intangible heritage
for enhancing national identification and cultural appreciation, as well as the deep-
rooted interdependence between intangible and tangible heritage.’ (ibid).
2.7 Summary
To summarize, one of the main aims of this literature review is to become ‘familiar
with the background literature without becoming tied to or directed by particular
theories or models’ (Haverkamp and Young 2007: 285). However, understanding the
values of cultural heritage within its context is the main concern which requires
discussion multiple topics that linked deeply with sources of these values within its
wider context.
The three main cornerstones for this understanding mainly lie on understanding the
tangible, intangible and memory. In addition, it is important to understand the relation
and integration between these cornerstones. Tangible, intangible and memory are the
three components that should be addressed and covered together during any
development in the heritage sites, because of their role in shaping the context of the
urban cultural heritage. Addressing these components helps; to identify the current
situation in Saudi context, to address how cultural heritage at the national and local
levels should be practiced by both communities and administration, and to explore the
best way to decrease this gap especially in the contents of the laws, policies and
regulations. Presenting the holistic view of the cultural heritage values in light of
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public awareness will encourage effective stakeholder involvement at the national and
local levels.
The level of awareness of these three components should be reflected in the heritage
management tools whether in laws, organizational structures or implementations
stages. Furthermore, any limitation in including the urban cultural heritage values on
laws, organizational structures and implementations will impact not only the heritage
itself, but also the memory both individual and collective; which is a resource of the
past and a sense of calling and link heritage values. Thus, the limitation will impact
knowledge, interpretation and understanding the values of cultural heritage, tangible
and intangible, at both the national and local levels.
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Chapter 3: Laws, Policies and Regulations
Chapter 3: Laws, Policies and

Regulations
3.1 Introduction ...................................................................................................... 96
3.2 The Evolution of Saudi Definition of Heritage .............................................. 97
3.2.1 Historical Background of the Saudi Law, Origin and Theme .................... 98
3.2.2 The Impacts of Generalization and Specification on Terminology and
Definitions ............................................................................................................ 100
3.3 The Development of the Definition of Heritage in Jordan ......................... 108
3.3.1 The Ancient Antiquity Law of 1966 ........................................................ 109
3.3.4 The Urban and Architectural Heritage Preservation Law of 2005 .......... 113
3.4 The International Definition of Heritage ..................................................... 115
3.4.1 The Athens Charter (Monuments) of 1931 .............................................. 117
3.4.2 The UNESCO Convention (The Hague) of 1954 .................................... 118
3.4.3 The UNESCO, Recommendation Concerning the Safeguarding of the
Beauty and Charter of Landscapes and Sites (Landscapes), of 1962 .................. 120
3.4.4 The Venice Charter of 1964 ..................................................................... 120
3.4.5 The UNESCO Recommendation (National Level) of 1972 .................... 121
3.5 Development of the Definition of Heritage at a National Level ................. 126
3.6 Other Issues in Saudi Heritage ..................................................................... 129

3.6.1 Development Plans................................................................................... 129
3.6.2 The Oil Revolution................................................................................... 132
3.6.3 The Antiquities, Museums and Architectural Heritage Law of 2014 ...... 134
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3.1 Introduction
This chapter focuses on the evolution of the definition of heritage in Saudi Arabia
since the first law was promulgated in 1972. This evolution will be discussed through
four ideas: a) analysis of the definition of heritage in Saudi law and how this affected
heritage, b) analysis of the development of the definition through Jordanian laws as a
comparable example and experience; c) discussion of efforts at an international level,
especially from UNESCO and ICOMOS, to regulate and manage the heritage
definition in comparison to Saudi efforts; and d) analysis of other heritage definition
efforts from government bodies in Saudi Arabia following the promulgation of the
first law, in order to understand their development in the country and their relationship
with the power of context that led to changes. Furthermore, the chapter will investigate
additional issues playing a key role in cultural heritage management in Saudi Arabia,
such as development plans and the oil revolution. Finally, the importance and impact
of the 1972 law on the present situation will be described.
The Jordanian case is comparable to Saudi Arabia in terms of their cultural
relationships and affinities, since both are Arab Islamic societies. Jordan joined
UNESCO in 1950 and its ratification of the convention took place in 1975, while Saudi
Arabia joined UNESCO in 1946 ratified the convention in 1978 (UNESCO, 2017).
Based on that, the benefits received by Jordan and Saudi Arabia in joining UNESCO
impacted their heritage in terms of definition, regulations, implementations thus
understanding the values of cultural heritage.
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3.2 The Evolution of Saudi Definition of Heritage
In order to identify not just the development of heritage definition but also the
understanding of its values and its link with international terminologies, it is crucial to
look at how heritage definition developed and shaped in Saudi Arabia and at the same
time in other international Islamic contexts and organizations. Such definition could
be a tool to understand the value framework behind these terminologies and other
elements and aspects that should be taken into account.
Orbasli stated that ‘legislation in each country is organised differently with regards to
how the cultural heritage is categorised, which is also linked to the level of protection
and the statutory responsibilities of the various decision makers’ (Orbasli, 2008: 74).
It is crucial to understand how cultural heritage was categorised in Saudi Arabia and
why. As Orbasli mentioned, legislation that categorised heritage should be based on a
correct definition of heritage that gives its specific name and function.
The question investigated by this chapter is how Saudi definition was shaped, what its
impact on heritage management was and what other factors contributed to this
understanding. Another consideration of the chapter is the categorisation of cultural
heritage in Saudi Arabia. These categories should be written in the law according to
the real meaning and definition of heritage which include the values and context. The
inclusion or exclusion of any aspect in the Saudi definition seems to be a result of the
knowledge and understanding of the heritage values at the time it was produced.
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3.2.1 Historical Background of the Saudi Law, Origin and Theme
The first heritage law in Saudi Arabia, the Antiquities Law, was published in 1972,
but it took more than thirty years to be enforced. Official efforts to develop such a law
began in 1939 when the Saudi government received an invitation from ICOMOS to
participate in the 1939 conference27, which they declined (Dutch Foreign Minister,
1939). However, in 1934, communications started between Wallace Murray, the head
of the Department of Near Eastern Affairs in the US State Department; some
organizations in the US such as the National Geographic Society, the American School
of Oriental Research and others; and scholars, especially those with geological and
archaeological backgrounds (see Appendix 3.A for some examples of communications
before establishing the 1972 law in Saudi Arabia).
These communications were for the purpose of conducting excavations in Saudi
Arabia. In them, however, several suggestions and comments were provided about
regulations and law. John A. Wilson (Director of Near Eastern Affairs in the US
Information Coordination Office in 1942) sent a letter to Karl S. Twitchell (Head of
the US Agricultural Mission in Saudi Arabia in 1942) on 16 February 1942 which
included advice on conservation and suggested that antiquities should be subject to
legal protection (Wilson, 1942). Twitchell later suggested establishing a department
within the Saudi Ministry of Education to manage and supervise the excavation and
protection of archaeological sites (Twitchell, 1944). He identified the need for a
legislated definition of heritage similar to what had been provided in Palestine and
27 This invitation was an opportunity for cooperation at an international level, especially because this
invitation carried an opportunity to present any cultural project from Saudi Arabia. This letter was sent
from the Department of Legal Affairs and United Nations Affairs at the Dutch Ministry of Foreign
Affairs to the Dutch Mission in Jeddah to deliver it to the Saudi Minister of Foreign Affairs, according
to the recommendation from the twentieth session of ICOMOS in Paris in August 1938.
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Iraq and suggested some recommendations for the law, such as government ownership
of antiquities, the excavation process and responsibilities and documentations.
A secret letter was sent on 26 January 1949 from J. Rives Childs (Minister of the US
Commissioner in Jeddah ) to the US Secretary of State, following a meeting with Harry
St. John Philby, the British Orientalist28. Philby had mentioned, based on his talks with
members of the Saudi government, that the government was not only thinking of
creating policies but also considering establishing a special department for antiquities
(Childs, 1949). Childs indicated that Saudi government members suggested that he
lead the department, but Philby suggested that it be led by a Saudi citizen in a
consulting capacity. Philby said that the government asked him to draft the statutes of
this department, for which he requested to have a copy of the Egyptian law for
guidance (Childs, 1949).
On 2 March 1949, a letter was sent from Jerreson Patterson29 to Childs including
comments from Gordon Lowd30 and Robert Martindal on the Saudi draft law
(Patterson, 1949). The comments stated that all of the draft was appropriate except for
a few points, such as the provision of clear tasks for a director. They agreed not to
move any antiquities before full documentation, and there was no need for a member
of the department to attend all excavation works. At the end of this letter, Patterson
stated that, according to Lowd’s best knowledge, the Palestinian law was one of the
best laws and he recommended it.
28
Harry St. John Philby is a British Orientalist who was the close guest of King Abdulaziz Alsaud.
29
Legal Counsel at the US Embassy in Cairo.
30
Gordon Lowd was a British archaeologist.
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The second world war (1939-1945) as well as the political instability in Saudi Arabia
(1953-1975), especially after King Abdulaziz's death in 1953 and King Saud’s in
196931 caused delay in establishing the 1942 law. However, the people who created
the 1972 law were from archaeological and political backgrounds, which impacted the
law’s contents and legal framework. The law outlined departmental responsibilities
rather than delving into the contents of the law itself to serve antiquities.
3.2.2 The Impacts of Generalization and Specification on Terminology

and Definitions
When the law was eventually established in 197232 the Antiquities and Museums
Department was under the Ministry of Education (MOE)33. It was the early law and
legislations that focused on antiquities. Regulations for Antiquities was a twenty page
document containing seventy-nine articles divided into seven parts: General
Definition, Fixed Antiquities, Movable Antiquities, Dealing in Antiquities, Export of
Antiquities, Archaeological Excavations and Penal Provisions.
The law began with creation of a high council for antiquities, identifying its members,
objects, framework and purpose, as well as an definition for the term ‘antiquities’.
31
King Abdulaziz died in 1953, King Saud in 1969, King Faisal in 1975, King Khalid in 1982, King
Fahad in 2005 and King Abdullah in 2015.
32
Regulations for Antiquities in August 1972.
33
The Department of Antiquities and Museums was within the MOE before it became a sector in the
Saudi Commission for Tourism and Antiquities, and due to this merger, the Saudi Commission for
Tourism (SCT) became the Saudi Commission for Tourism and Antiquities (SCTA). Later, after adding
heritage to SCTA responsibility, the department became the Saudi Commission for Tourism and
National Heritage (SCTNH) in June 2015. This development in policy and organizations will be
explained further in the organizations structure chapter.
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This law was managed by the High Council for Antiquities (HCA)34 which was led by
the MOE and delegates from different organizations35.
Article 5 defined antiquities as ‘property, movable and immovable, built, made,
produced, adapted, or designed by man over two hundred years ago, as well as
property having acquired archaeological characteristics through ancient natural
factors.’ (Antiquities Law, 1972: Article 5).
One of the key issues of the law was the clear chronological demarcation before and
after 1772, even though the law made it clear that ‘the Department of Antiquities may
classify as antiquities movable or immovable property attributed to a more recent date,
if, in its opinion, such property has archaeological or artistic characteristics. A decision
to this effect shall be issued by the Minister of Education on the recommendation of
the said Department’ (Antiquities Law, 1972: Article 5). This raised questions about
the rationale behind the choice of the two hundred year limit, as well as the nature of
the expertise required to assess the heritage value of any property.
Article 6 mentioned the importance of collaboration between the Department of
Antiquities and other government agencies to safeguard antiquities and archaeological
sites. It also stated that ‘Registration of a certain antiquity shall imply that the state
recognizes the historic or artistic value of the said object and has undertaken to
preserve, protect and study it, and to give it a proper appearance in accordance with
the terms of these regulation’ (Antiquities Law, 1972: Article 6). Recognizing historic
34
More details will be explained in the chapter on organizational structures.
35
Delegates members were from the Ministry of Finance and National Economic, Ministry of Interior,
Ministry of Education, Ministry of Hajj, Ministry of Information, Ministry of Municipality, Rural
Affairs and three individual members.
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and artistic values was critical, but the definition excluded other values by only
considering these two in its assessment.
In Article 7, the law classified antiquities into two types, ‘fixed antiquities’ and
‘movable antiquities’ as follows:
The phrase ‘Fixed Antiquities’ shall apply to those antiquities which are
attached to the ground such as caves – natural and man-made – which ancient
man used for his purposes; rocks on which man painted or carved figures,
inscriptions, and writings; ruins of cities and buildings buried under hill-
mounds; and historic buildings built for various purposes including mosques,
other places of worship, palaces, homes, health centres, schools, castles, forts,
walls, arenas, baths, graveyards, aqueducts, dams, and the ruins and parts
thereof such as doors, windows, columns, battlement, stairs, ceilings, friezes,
capitals, etc.
The phrase ‘Movable Antiquities’ shall apply to those antiquities which were
originally made to be separate from the ground or from historic buildings, and
can be moved from one place to another, such as sculptures, coins, inscriptions,
manuscripts, fabrics, and other manufactured articles regardless of the
substance of which they are made, their purpose, or uses. (Antiquities Law,
1972: Article 7)
However, the definition provided in this law showed a limited concept of monuments.
The meanings and concepts of heritage and cultural property were not covered or even
mentioned (see section 4 below) even though cultural property was mentioned in the
UNESCO recommendation of 1964. Cultural heritage, which encompasses
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monuments, groups of buildings and sites, was mentioned by UNESCO in 1954 in the
Hague Charter and in the Recommendation (National Level) at the same time the
Saudi definition was established (1972), but it was not mentioned in this law.
Furthermore, this law was the only one in place in Saudi Arabia at the time, and,
because of its definition, antiquities were considered the only heritage worth
preserving. By limiting the definition to antiquities, this framework failed to
encompass heritage holistically and engage both tangible and intangible heritage. This
approach did not just affect heritage but also contributed towards shaping a certain
perception of heritage and causing a lack of understanding of the values of heritage
within the society.
The definition of ‘Fixed antiquities’ tried to assemble as many elements and
components as possible. For example, in listing ‘…ruins of cities and buildings…,
…historic buildings built for various purposes …, and the ruins and parts thereof such
as doors, windows…’ the definition addressed city planning, then abruptly moved to
the individual buildings and interiors by mentioning architectural elements such as
doors and windows. This definition therefore failed to recognize the need for greater
granularity of intermediate levels between cities and buildings, and between buildings
and architectural features. The urban and settlement level spaces, such as plazas, open
spaces, public spaces and streets, were not included; this gap had its impact on both
planning and architecture, wherein most of architectural heritage lies.
The main values and categories that the law included were as follows: archaeological,
historic, physical, political and spiritual values. Archaeology, groups of buildings,
monuments and single buildings were the main categories provided by the law.
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The context of this definition was an antiquities framework which included heritage
by using and applying same regulation. This definition did not pay enough attention
to people; in other words. Cultural heritage was not addressed properly, which again
underscored another limitation of this law, in addition to the top-down approach that
lacked community involvement in policy-making and implementation.
Heritage needs to be categorized based on the correct definition and its real function
that show the differences and relationship between them. This categorization is not
just for defining heritage, but also for implementing preservation plans. All the efforts
that were made towards heritage were affected by the limitations of this law’s contents.
The law was implemented for decades without full understanding and coverage of the
values and categories of heritage in its wider context, which impacted not only heritage
itself, causing the loss of several heritage buildings and marginalizing their values, but
also the society, which should constitute the first line of defense.
Private property, for example, was not covered by this law regarding preservation,
protection or investment. The protection of private buildings, which are part, if not the
heart, of heritage, was left entirely to the owners’ judgement (in the absence of any
statutory guidance). This gap led owners to select one of two options.
First, based on the real estate value of the heritage buildings, the owners decided
whether keeping the buildings to grow in value or investing them immediately by
constructing a new building was of great value (Figure 3.1). In most cases the houses
were rented to foreign workers, especially those buildings located in the city centre, a
practice which impacted not only individual properties but the whole of urban heritage.
For example, the Director of the World Heritage Centre in SCTNH, when questioned
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about Historic Jeddah, said, ‘Because of the landlord's lack of interest, for him this
land is in the middle of Jeddah and has a value; the owner is interested in value of the
land rather than the building’ (Director of the World Heritage Centre in SCTNH,
interview, August 2016)
Figure 3. 1: Examples from Ha’il city centre show whether keeping the buildings to
grow in value or investing them immediately by constructing a new building.
The second option was to develop the property regardless of any conservation
philosophy and best practices (Figure 3.2), which cause concept of ‘self-owner’, ‘my
and you’ rather than ‘we’. For example, when the owner decided to restore an
architectural heritage building as a single building without considering the heritage
context and the link with urban heritage. These concepts are completely against the
concept of collective memory that participates in shaping both tangible and intangible
cultural heritage.
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Figure 3. 2: Examples from Ha’il city center illustrate the conservation practices from
the owners.
Furthermore, the incorrect adoption of protection and preservation measures led to the
loss of key intrinsic values. However, owners pursued one of the two options because
there were no other options available for developing these buildings. This approach,
along with the lack of preservation guidelines, development and management plans
and the prevailing notion of ‘economic power’ played a role in changing both the
heritage image and values. As a result, many heritage buildings were lost, and
incorrect images, perceptions and social understanding of these areas and buildings
were shaped.
Keeping heritage buildings disconnected from people’s daily lives generates
misrepresentations of values that have nothing to do with heritage. Instead, society is
the pure environment with which heritage interacts and takes its form. As seen, any
limitation in the law to include this context will impact the implementation of the law
and cause the loss of heritage buildings, giving no chance to society to protect the
buildings that came from its culture.
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Before addressing issues such as the oil revolution, consideration of international
efforts to develop the definitions and laws is important to the discussion of issues in
the 1972 law. The development of the definition around the world was a result of a
deep understanding of the meaning of heritage and its wider context. The development
of the definition also benefited from the implementation of the laws and experiences
of society’s participation. The development of the definition and the development of
implementation stages worked closely together at the international level.
However, in Saudi Arabia, the definition did not change from 1972 until 2014, and the
implementation remained the same as well. Without a developed law that contains
appropriate definitions and covers all relative regulations which allow owners, both
private and public, to deal, protect, develop and invest in heritage buildings under a
comprehensive development plan, the law will not be applicable or will be hard to
implement, creating the risk of further loss of heritage assets. Implementation will
remain unmanaged or unsuitably directed. Although full government control over
implementation is not necessary, minimum requirements and guidelines should be
followed.
The situation is similar across most GCC countries: the states’ centralized nature and,
as a result, centralized decision-making, implementation and management of heritage
(more details in Chapter 4) fall under a rigidly hierarchical administrative
organization, much like other sectors of the state (Al-Zahrani, 2010). However, from
the early stages, countries such as Jordan have developed their heritage and followed
international standards and practice.
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3.3 The Development of the Definition of Heritage in Jordan
In Jordan, the first Department of Antiquities was established in 1923 under the British
Mandate, as part of the Department of Palestinian Antiquities before Jordan became
independent in 1928 (Costello and Palumbo 1995: 547). The first antiquities law in
Jordan was the Antiquities Law No.24, issued in 1934. This law was amended on
several occasions: 1953, 1966, 1968, 1976, 1988, and finally in 2004. Between 1934
and 2004, there was a development not just of the definition, but also of the
implementation of these laws.
This development impacted the understanding of the values of heritage at different
levels. The understanding of the values of heritage in Jordan was shaped and
developed through several experiences especially with the international level. By
comparing this with the Saudi situation which produced only two definitions from
1972 to 2014, it is plausible that Saudi heritage has limited experience in terms of
regulations and laws, which has impacted not only the heritage context but also the
society.
Since the early twentieth century, many foreign academic agencies, such as the
American Centre for Oriental Research (ACOR), the French Institute of Archaeology
of the Near East (IFABO), the Council for British Research in the Levant (CBRL) and
the German Archaeological Institute in Jordan (DAI), have carried out conservation
and excavation projects at archaeological sites in Jordan (Abu-Khafajah, 2007:225).
These agencies have brought with them international knowledge, policies and
guidelines and have implemented those in Jordan, adjusting them to the local context.
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The Jordanian Department of Antiquities in 1923 was established ‘to protect the
antiquities of the country and collect antiquities that were scattered all over the country
and those in the hands of civilians’ (Department of Antiquities web page, 2017). This
confirms the developed specialism of this department; antiquities were at the core of
its work, yet heritage was also addressed. This approach more practical than
categorising all heritage antiquities, without any finer classification.
The development of the heritage definition in Jordan highlights the improvement in
understanding the values of heritage and also the wider context of heritage through the
development of laws and the understanding of their expansion and application. The
next section focuses on the evolution of the Ancient Antiquities Law through 1966,
1976 and 1988 until it was eventually merged into the Urban and Architectural
Heritage Preservation Law of 2005.
3.3.1 The Ancient Antiquity Law of 1966
The Jordanian Ancient Antiquity Law of 1966, instated six years before the Saudi law
was established, defined ancient antiquity as:
‘a) Any movable and immovable object constructed, made, inscribed, built,
discovered or modified by human being prior to 1700 AD including any part
that added or rebuilt after that date. b) Human remains and the remains of
animals dating to before the year 600 AD. c) Any movable and immovable
ancient dating to before 1700 AD announced by the minister as an antique’
(The Ancient Antiquity Law 1966: Article 2).
This law indicated a different understanding, not only by categorizing movable and
immovable heritage, but also by introducing the term ‘historical site’. Historical site
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was defined as ‘any area the minister sees within a reasonable limit that contains
ancient antiquities or has a link with important historical events; it does not matter if
it is mentioned in the list or not’ (Ancient Antiquity Law 1966: Article 2). This
definition was not changed by the Ancient Antiquity Law No.26 of 1968. This
definition allowed for future developments; the mention of historical sites within the
Ancient Antiquities Law allowed for the inclusion of future discoveries and addition
of new antiquities as a result of the development stages. In addition, historical sites
were described by the law as areas that had a link with important historical events.
This definition linked historical sites with people and communities. Historical events
could be significant nationally, locally or individually to certain groups; ‘important’
events were included within the law. Additionally, the ‘list’ mentioned meant that
there would be a tool for categorizing antiquities and a reason to look for new
components not already included. This eventually led to the creation of a new category
within heritage that included broader concepts such as architectural heritage, which
appeared for the first time in the 2005 law.
This definition limitations, as did many definitions at the time. For instance, using
1700 AD as a reference point or specific date would separate items by that date could
become a political or religious reason to include or exclude objectives. This separation
would disrupt continuity, one of the golden principles of heritage preservation that
should be passed from previous to future generations.
This law mentioned eight values, directly and indirectly: historic, physical, character,
human, political, aesthetic, spiritual and archaeological. The law also included four
categories of heritage: archaeology, monument, intangible heritage and cultural
property.
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Article 2 of the Jordanian Ancient Antiquities Law No.12 of 1976 defined ancient
antiquities as the following:
1. ‘Antiquity: a) Any movable and immovable object constructed, made,
inscribed, handwritten, built, discovered or modified by human beings prior to
1700 AD including sculptures, coins, pottery and manuscripts, and other types
of products that indicate the origins and evolution of science and arts and trades
and religions and traditions of previous civilizations, or any part added to that
thing or re-built after that date. b) Any movable and immovable object
mentioned in the previous point (a) and dating to before 1700 AD and
announced by the minister as an antique through a decision published in the
official gazette. c) The human remains and the remains of animals dating to
before the year 600 AD.
2. Archaeological site: a) Any area considered an historical site according to
previous laws. b) Any area that the minister decides that it contains antiquity
or has a link with important historical events and is to be announced in the
official gazette.
3. Immovable Antiquities: It is the immovable antiquities that link with land,
whether constructed above it or under it and include under internal and
territorial waters.’ (Ancient Antiquities Law, 1976: Article 2)
In this definition, antiquities were distinguished as either immovable antiquities,
archaeological sites or antiquities. These categories were a further development of the
previous law, which only included antiquities. In this development, a broadening of
the meaning was noted, and more defined and specific terminologies were used.
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Correct definition and specific terminologies are key to understanding the value of
heritage. Applying these prerequisites in Jordan gave antiquities their rightful position
in addition to other components of the cultural heritage, both tangible and intangible,
to draw a complete picture of heritage.
In 1988, a new law stated:
‘Any object, whether movable or immovable, which has been constructed,
shaped, inscribed, erected, excavated, or otherwise produced or modified by
humankind, earlier than the year 1700 AD, including caves, sculpture, coins,
pottery, manuscripts and all sorts of artefact that indicate the rise and
development of sciences, arts, manufacturing, religions and traditions relating
to previous cultures, or any object, movable or immovable, as defined in the
previous subsection referring to a date subsequent to the year 1700 AD, which
the minister may declare to be antique by order of the official gazette; Human,
plant and animal remains going back to a date earlier than 600 AD’ (Ancient
Antiquities Law, 1988: Article 5)
Several reasons were behind the change in the chronological boundary and other
developments, including the pressure exerted by scholars who started to question the
exclusion of the recent past (after 1700 AD). For instance, Al-Mahadin (2007)
explained as a political engagement with the Jordanian context and observed that
‘celebrating the Ottomans in the form of heritage conservation would by default cast
doubts not only on the history of Jordan as a nation that pre-dates the creation of the
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political entity of the nation-state but also, most importantly, on the rule of the
Hashemites and the legitimacy of their sovereignty’ (Al-Mahadin, 2007: 318).
Archaeologists accepted the law to identify and approach the material of the past in
Jordan, while other scholars, mainly architects, reacted in a different way (Abu-
Khafajah, 2007: 227). These scholars focused on the material that the law failed to
identify and protect, especially the material dated after 1700 AD, including the
domestic buildings and villages dating to the early twentieth century (e.g. Mahadin &
Fathi, 1992; Faqih, 1991; Refa’I & Kan’an, 1987). This approach had consequences
on the development of the Heritage Law established in 2005.
3.3.4 The Urban and Architectural Heritage Preservation Law of 2005
Antiquities were used as the main framework for the creation of laws and legislations
in most GCC countries. However, the development of the definition of antiquities,
particularly as a result of ‘definition, name and function’ gave other heritage its space
and position in order to complete the heritage framework. In Jordan, for instance, the
Urban and Architectural Heritage Preservation Law (some scholars call it the Heritage
Law) was established in 2005 and focused on architectural heritage more than previous
laws as a result of the development of the previous definitions and the scholars’
involvement in the development.
In this Heritage Law, heritage site was defined as ‘the building or site that has valued
heritage in terms of building style or its relation with historical figures or national and
religious events and built before 1750. The 1700 AD was changed to 1750 AD in
response to this new law.
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Heritage buildings were defined as architectural constructions and elements which
have architectural, historical or cultural characters that tell specific events. Urban sites
were defined as urban buildings, public places, residential neighbourhoods and
landscapes that represent fixed values upon the culture of the residents’ (Urban and
Architectural Heritage Preservation Law, 2005: Article 3).
Again, this law was the result of the development of previous laws and experiences
and showed the level of understanding of the values and meanings of heritage. It also
resulted as an implementation of the tools which focused mainly on definition, name
and function to shape its image within the heritage framework.
This development of the definition impacted different levels in various ways. For
instance, the definition impacted heritage itself by defining different types of heritage
and their functions. By defining different types, overlap or difficulty in distinguishing
between the types of heritage were avoided, and the relationship between the different
types was understood. The definition also impacted the development of laws,
regulations and policies which guided implementation. Finally, it impacted
communities, since showing the specificities of different types of heritage enhanced
people’s understanding and appreciation of their diverse values.
Based on the 1988 and 2005 laws, material of the past in Jordan was classified in two
sections: the archaeology or antiquity section, and the heritage section. This separation
allowed architectural and urban heritage to have their own space within the larger
heritage framework, not just in terms of their definitions, but also in terms of
implementation and management steps.
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At an international level around the 1970s, when the Saudi definition was launched,
several efforts define heritage had been made. Efforts following the 1926 international
museums office included, UNESCO (1945), ICCROM (1956), ICOMOS (1965) and
2004 ICOMOS UK (Cultural landscapes)36. This discussion aims not to present all the
development of the heritage definition, but to focus on the main global developments
that could be beneficially included in the Saudi law in 1972. An additional aim is to
understand how the heritage definition developed and expanded.
3.4 The International Definition of Heritage
Since the Sixth International Congress of Architects in Madrid in 1904 (UIA), many
efforts have been made to define heritage in the form of charters, recommendations
and resolutions which have been introduced and adopted by international
organizations such as UNESCO and ICOMOS. One of the early efforts to define
heritage was made by UIA; this development of the definition of monuments was a
step toward greater awareness for the meaning and values of heritage.
Monuments were divided into two classes, dead monuments and living monuments:
‘Dead monuments should be preserved only by such strengthening as is indispensable
in order to prevent their falling into ruin; for the importance of such a monument
consists in its historical and technical value, which disappears with the monument
itself. Living monuments ought to be restored so that they may continue to be of use,
36
Definition of cultural heritage, references to documents in history, selected by Jokilehto, originally
for ICCROM, 1990 and revised for CIF 2005. This paper developed the cultural heritage definition by
focusing on selected events and efforts, including the following: 6 AD Antiquity (Theoderic the Great),
1462 Italian Renaissance (Bull of Pius II), 1666 Sweden (Antiquities Ordinance), 1789-99 French
Revolution (Instructions), 1802 Papal State (Edict), 1815 France (Quatremere), 1819 France (Ministry),
1830 France (Guizot), 1877 England (SPAB Manifesto) until 2004 ICOMOS UK (Cultural
Landscapes).
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for in architecture utility is one of the bases of beauty…’ (Jokilehto, 1990: 13). The
focus of this definition was preservation, because the value of architectural heritage
lies in historical and technical values. Preservation is a tool to keep heritage alive in
order to discover the values behind it. Living monuments are only a part of heritage;
the link between living and dead monuments must be found, preserved and presented
to shape the whole heritage framework.
Discussing heritage in general and definition specifically is crucial. Heritage must be
viewed from the wider context, especially before the Saudi definition period in 1972,
to clarify and confirm the relationship between the development of the definition and
its impact on the development of heritage at different levels.
The focus will be on the main conventions and charters that UNESCO and ICOMOS
have published that have international resonance. These documents include: the
Athens Charter (Monuments) in 1931, UNESCO (Convention for Protection of
Cultural Property in the Event of Armed Conflict: Hague Convention) in 1954,
UNESCO Recommendation Concerning the Safeguarding of the Beauty and Charter
of Landscapes and Sites (Landscapes) in 1962, ICOMOS (The Venice Charter: The
Conservation and Restoration of Monuments and Sites) in 1964 and UNESCO
(Convention Concerning the Protection of the World Cultural and Natural Heritage)
in 1972.
These conventions and charters are tools to study the development of the definition of
heritage and its wider context at the international level and compare this context with
the national level in order to identify gaps and analyse the impacts of any limitations
within the Saudi definition of heritage. The main objective in analysing these
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documents consists of extracting the values and categories that are mentioned directly
or indirectly in these documents (Appendix 3. K and 3.L developments in heritage
concepts and terminologies in UNESCO and ICOMOS). For example, the Athens
Charter of 1931 stated that ‘proposed restoration projects are to be subjected to
knowledgeable criticism to prevent mistakes which will cause loss of character and
historical values to the structures’ (ICOMOS, 1931). As seen here, character and
historical values were directly mentioned. The charter also states that ‘the character
and external aspects of the cities in which they are to be erected should be respected,
especially in the neighborhood of ancient monuments, where the surroundings should
be given special consideration’ (ICOMOS, 1931). The terms ‘neighborhood’ and
‘surroundings’ referred indirectly to urban areas.
3.4.1 The Athens Charter (Monuments) of 1931
In the 1931 Athens Charter (Monuments), a new terminology arose: ‘Administrative
and Legislative Measures Regarding Historical Monuments’, and ‘Aesthetic
Enhancement of Ancient Monuments’. The conclusion of the Athens Charter
recommended that ‘the public authorities in each country be empowered to take
conservatory measures in cases of emergency. It earnestly hopes that the International
Museums Office will publish a repertory and a comparative table of the legislative
measures in force in the different countries and that this information will be kept up
to date’ (ICOMOS, 1931: Article II). The charter also recommended that, in the
construction of buildings, ‘the character and external aspects of the cities in which
they are to be erected should be respected, especially in the neighborhood of ancient
monuments, where the surroundings should be given special consideration’
(ICOMOS, 1931: Article III). Although the Athens Charter had no direct definition
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for heritage, such expansion of the protection zone pointed toward the importance of
heritage resources, not just single buildings or objects, but also the contexts and areas
in which they grow and are integrated. Protection of context was not included in the
1972 law in Saudi Arabia, which caused loss of valuable heritage and caused buildings
to be deprived of their roots, resulting in difficult interpretation and presentations of
the correct picture of heritage in context.
This charter, within its contents37, mentioned ten values: social, historic, character,
identity, setting, sustainable, aesthetic, authenticity, scientific and ecological. It
classified heritage into three different types: monuments, heritage cities and urban
areas.
3.4.2 The UNESCO Convention (The Hague) of 1954
In the 1954 UNESCO Convention (The Hague), the term ‘cultural property’ emerges,
which covers the following:
‘a) Movable or immovable property of great importance to the cultural heritage
of every people, such as monuments of architecture, art or history, whether
religious or secular; archaeological sites; groups of buildings which, as a
whole, are of historical or artistic interest; works of art; manuscripts, books
and other objects of artistic, historical or archaeological interest; as well as
scientific collections and important collections of books or archives or of
reproductions of the property defined above. b) Buildings whose main and
37
Athens Charter (Monuments) contains the following topics: I. Doctrines, General Principals. II.
Administrative and Legislative Measures Regarding Historical Monuments. III. Aesthetic
Enhancement of Ancient Monuments. IV. Restoration of Monuments. V. The Deterioration of Ancient
Monuments. VI. The Technique of Conservation. VII. The Conservation of Monuments and
International Collaboration.
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effective purpose is to preserve or exhibit the movable cultural property
defined in sub-paragraph (a) such as museums, large libraries and depositories
of archives, and refuges intended to shelter, in the event of armed conflict, the
movable cultural property defined in sub-paragraph (a). c) Centres containing
a large amount of cultural property as defined in sub-paragraphs (a) and (b), to
be known as 'centres containing monuments'’ (UNESCO, 1954: Article 1)
The classification of cultural property into three types – movable/immovable,
buildings and centres - was an additional step toward the development of a holistic
and contextualised definition of heritage. Even within movable and immovable
property, more detailed and specific components existed, such as monuments of
architecture, art or history; archaeological sites; group of buildings; works of art and
books.
In addition, the definition left the doors open to future additions of heritage assets in
the form of ‘other objects of artistic, historical or archaeological interest’.
Emphasizing the relevance of cultural heritage for the people suggested that
communities’ rights, and relationships to heritage resided both locally and globally.
This convention addressed twelve values: cultural, social, historic, physical, character,
sustainable, aesthetic, intangible, human, scientific, spiritual and archaeological. It
categorised heritage into six different categories: single buildings, groups of buildings,
archaeology, urban areas, intangible heritage and cultural property protection.
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3.4.3 The UNESCO, Recommendation Concerning the Safeguarding of

the Beauty and Charter of Landscapes and Sites (Landscapes), of 1962
The 1962 UNESCO Recommendation (Landscapes) was about safeguarding the
beauty and character of landscapes and sites, referring to ‘the preservation and, where
possible, the restoration of the aspect of natural, rural and urban landscapes and sites,
whether natural or man-made, which have a cultural or aesthetic interest or from
typical natural surroundings’ (UNESCO, 1962: 21). Due to the flexibility of this
definition, possibility of expanding the definition and covering new elements existed.
Adding the concept of landscapes to previous concepts, such as museums, cultural
property, and dead and live monuments, led to better understanding.
This approach was crucial for international organizations in shaping the image of
heritage within its real and wider context. UNESCO (Landscapes) listed eleven values:
cultural, social, physical, character, setting, aesthetic, economic, scientific, spiritual,
intrinsic and ecological. It categorised heritage in two different categories: landscape
and cultural property protection.
3.4.4 The Venice Charter of 1964
The Venice Charter (1964) considered a wider range of heritage and was more specific
in its recommendations. According to the charter ‘The concept of a historic monument
embraces not only the single architectural work but also the urban or rural setting in
which is found the evidence of a particular civilization, a significant development or
an historic event’(ICOMOS, 1964: Article 1). Building the understanding of the values
of heritage was necessary for putting heritage within its context and giving each
element its definition and function.
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The Venice Charter addressed the following values: cultural, social, historic, physical,
character, identity, aesthetic, human, authenticity, integrity and archaeological. This
charter also focused on categorising heritage into different categories: single
buildings, groups of buildings, intervention, archaeology and urban areas.
These global recommendations and efforts from ICOMOS and UNESCO were the
result of cumulative experiences and were considered in heritage policy-making and
implementation. These concepts all existed before 1972 when Saudi’s definition was
created. However, as mentioned at the beginning, the definition of heritage in Saudi’s
law did not exist and seems to have been shaped under an antiquity perspective, even
if it included wordings that might allude to architectural heritage. For example, the
law’s definition missed the concepts of monuments instead of antiquities, cultural
property, museums, landscapes (natural, rural, urban) and an historic monument, not
just an architectural work. These concepts did not rise at the same time but were a
development process beginning with the development of the definition.
After looking at the development of the definition of heritage and the understanding
of values through a heritage context before 1972, it is useful to examine understanding
of the value of heritage and the concepts that drove heritage within its context in 1972.
3.4.5 The UNESCO Recommendation (National Level) of 1972
In 1972, the UNESCO Recommendation (National Level) and UNESCO Convention
(World Heritage), supposed to be a result of previous recommendations, presented
definitions of ‘cultural heritage’ and ‘natural heritage’. Cultural heritage included
three categories: monuments, groups of buildings and sites. Monuments were defined
as ‘architectural works; works of monumental sculpture and painting, including cave
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dwellings and inscriptions; and elements, groups of elements or structures of special
value from the point of view of archaeology, history, art or science’. Groups of
buildings were defined as ‘groups of separate or connected buildings which, because
of their architecture, their homogeneity or their places in the landscape, are of special
value from the point of view of history, art or science’. Sites were defined as
‘topographical areas, the combined works of man and of nature, which are of special
value by reason of their beauty or their interest from the archaeological, historical,
ethnological or anthropological point of view’ (UNESCO, 1972: 147).
The UNESCO recommendation (National Level) addressed the following values:
cultural, social, historic, setting, aesthetic, economic, scientific, educational and
political. This recommendation categorised heritage into six different categories:
single buildings, groups of buildings, towns, archaeology, landscape, urban areas and
cultural property protection.
At the time, the world was discussing monuments, defining them in detail and giving
the opportunity to different disciplines, such as archaeology, history, art and science,
to have a voice. Archaeology is one of the disciplines that assesses the value of
heritage; this means that antiquities should feature in the heritage framework. The
1972 law in Saudi looked at heritage from the opposite perspective, however,
including heritage under a broader category of antiquities. This misunderstanding
affected both heritage and antiquities, not just in laws and regulations but also in
societies and their relationship to heritage. While international laws and
recommendations came from communities’ experiences who participate in both
decision maker and implementation stages. Because of this misunderstanding, Saudi
Arabia lost a lot of heritage, and what remains are parts of buildings and values which
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hardly complete the whole picture. In other words, community understanding was
affected; conveying heritage values correctly and clearly is difficult.
In summary, the development of the definition at an international level (Figure 3.3)
has resulted in more than twenty-one values and eleven categories before 1972
(appendix 3.L), whereas Saudi law included only five values and four categories. The
heritage in Saudi Arabia today is a result of many factors, and limitations of the 1972
law were one of those factors, in terms of definition, legislation and implementation.
The limitations impacted both heritage and societies due to misunderstanding the
values of cultural heritage and its wider context. All heritage was put into one
antiquities framework; this method shaped a certain image about heritage in general
by focusing only on antiquities.
Since this definition was centred on antiquities, the law targeted preservation.
Preservation, supposed to be one of many steps in the development of heritage, was
instead the main focus of the law and its implementation, which caused a gap between
different levels. For instance, the General Director of the National Heritage Centre in
SCTNH said:
I will give you a real example; I’m from Awdat Sdeer [a city in Riyadh
Province]. Since my childhood, I have passed Ghylan [a heritage site] which
contains wells and castles. It was fenced and locked with terrifying watchman
shouting and threatening, “Do not come close.” I finished high school without
being not just inside but even close to this site. Just recently I visited the site
because I work in SCTNH. (General Director of the National Heritage Centre
in SCTNH, interview, 14/08/2016).
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Keeping heritage buildings gated and locked with no access for the public to visit was
typical for decades. Indeed, that caused a marked gap between communities and their
heritage which also increase the conviction in this approach for who implement the
law and for who dealing with heritage. In the end, a particular image about heritage
was shaped, implementation efforts were made and certain links between communities
and heritage were established. In order to correct this, necessary changes must be
pursued in definition, law, regulations and links.
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Figure 3. 3 The development of the meaning and understanding of heritage at international, regional and national levels
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However, definitions or laws are not the only mechanism to control, develop or
manage heritage. Other important requirements should be taken in account. For
example, power of the societies and the level of individual and public awareness are
other mechanisms that can affect heritage positively or negatively.
3.5 Development of the Definition of Heritage at a National Level
Efforts began from some government organizations; one of them was the Ministry of
Municipal and Rural Affairs (MOMRA). Based on its roles and tasks in developing
cities and towns, MOMRA dealt with some areas and buildings that had no
regulations, approved definitions or specific functions. MOMRA tried to draw its own
definition in 1988, launching a program ‘to study, document, classify, care for and
benefit from the architectural heritage’ (Architectural Heritage of the Kingdom of
Saudi Arabia, between Authenticity and Contemporarity, 2010: 5)38. Therefore, the
term ‘architectural heritage’ was introduced into Saudi legislation by a program not a
serous action like law. This program included specific terminology such as:
The Traditional Village: ‘Any ancient village that still retains major traditional
elements and characteristics in an integrated manner and does not interfere
with the modern architecture…’
Old Districts: ‘The old quarters that from part of contemporary cities, in which
modern architecture has spread…’
38
Architectural Heritage of the Kingdom of Saudi Arabia, between Authenticity and Contemporarity,
first edition 2003. And Architectural Heritage Preservation Guide, 2005. And Architectural Heritage of
the Kingdom of Saudi Arabia, between Authenticity and Contemporarity, second edition 2010.
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Ancient Structure: ‘Any ancient structure in the study area, within or outside
the built-up area: honing special cultural significance that reflects particular
religious, cultural, historical or architectural present-day ruin such as towers,
places and ancient walls.’ (MOMRA, 2010: 7).
Such a Ministry program is not enough to provide guidance for heritage management
if is not adequately supported by legislation. In other words, heritage management
requires specific law and communities’ participation.
At their definition, these subtitles show how the meaning of heritage has developed
since the 1972 law. MOMRA defined heritage in general, and architectural heritage in
particular, as something merely physically and geographically specific. The
consequence of this approach to heritage was the same as that underlying the 1972
law: abstraction from the context and disconnection from the society.
The SCT was created in 2000 as a new government body and started its operations in
the tourism industry, achieving increased awareness of heritage over time. SCT found
heritage to be undefined and uncategorized, even as a key tourism component. The
inevitable ad-hoc heritage management pushed SCT to create its own definition of
architectural heritage.
SCT defined architectural heritage as ‘everything erected by humans, such as cities,
villages, residential quarters and buildings including spaces and structures which have
architectural, historical, scientific, cultural or national value, even if its history extends
to early stage’ (SCT, 2010: 14). The comprehensive classification of heritage (from
planning to urban to architectural scale) which underpinned this definition is
noteworthy.
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However, the meaning of the word ‘value’ and how it can be measured is vague, as
well as what is considered valuable and what is not, and who assesses heritage value,
based on what. The chronological reference point condensed in the term ‘early stage’
suggested an additional critique of the definition since it could lead to the exclusion
of heritage that dates to more recent epochs. Furthermore, it was not clear if this term
referred to pre-Islamic times and, if so, to what extent.
The development of the definition of heritage was not the only, yet certainly one of
the most important, mechanisms to produce a comprehensive plan for appropriate
heritage management. This plan must cover three main parts based on heritage values:
heritage, law and society, which are the key points to address before dealing with any
type of heritage.
Orbasli (2008) mentioned twenty types of values39 and by implementing these types
of values on the Saudi cultural heritage, it seems that the political value seems to be a
priority in both cultural heritage conservation and development in Saudi cultural
heritage: ‘For most of the twentieth century, preservation of architectural heritage in
Saudi Arabia focused on the monuments of the ruling dynasty, the House of Saud...’
(Determann, 2010: 1). Determann (2010) described this as ‘preserving monuments of
royal power’, such as fortresses and palaces, especially in the Riyadh region. For
example, the Masmak Fort in Riyadh is one of the most important monuments,
preserved since King Abdul Aziz Al Saud entered Riyadh in 1902.
39
Orbasli, in the Architectural Conservation, mentioned these values in alphabetical order: Age and
rarity value, Architectural value, Artistic value, Associative value, Cultural value, Economic value,
Educational value, Emotional value, Historic value, Landscape value, Local distinctiveness, Political
value, Public value, Religious and spiritual values, Scientific, research and knowledge value, Social
value, Symbolic value, Technical value and Townscape value.
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Most of the conservation efforts in Saudi Arabia focused on particular values while
overlooking the rest, even within buildings that embodied or expressed political
values. For instance, in most conserved heritage buildings, the political value does not
come across as clearly as the technical and scientific values do. This method is clear
in Al-Qeshlah palace in Ha’il province, the largest mud brick building in the Arabian
Peninsula. The values celebrated in the Al-Qeshlah palace are of political and
historical nature; however, technical, architectural, educational and cultural values
could be enhanced and expressed at different levels in multiple ways towards the
context of cultural heritage.
3.6 Other Issues in Saudi Heritage
Some issues pushed heritage in a deferent direction by increasing the gap in the
understanding of the values of cultural heritage, such as development plans (five-year
plans) and the oil revolution, which impacted heritage directly and indirectly. Such
development plans seemed a valuable tool to develop the country and a great
opportunity to include heritage within the development of Saudi Arabia. However,
these plans had limited considerations of cultural heritage in Saudi Arabia.
3.6.1 Development Plans
Development plans, or five-year plans, were one of the most important tools to guide,
set and achieve short and long-term objectives. However, any limitation in including
cultural heritage within these plans, especially after implementation, had a huge
impact in both the short and long-term. This was the case especially in developing
countries, making plans for implementation and follow-up either a rescue tool or a
drowning tool. The plans became a rescue tool if they were based on appropriate and
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applicable criteria, standards and guidelines. However, they became a tool of
drowning when they were applied with mistakes and limitations without immediate
corrections. When a correction was done over a long period of time instead, it cost not
just a lot of money but also time and generations. In some cases, there was no chance
to correct. Development plans help to understand the role of cultural heritage in Saudi
planning strategies both in the present and future. In this sense, identifying cultural
heritage in these development plans and how they affected the cultural heritage
position and image in Saudi Arabia is important, especially through the first two plans.
Saudi Arabia, as a developing country, prepared development plans from 1970. The
First Development Plan (1970-1975 A.D./1390-1395 A.H.) was focused on basic
aspects of development, particularly in the areas of health, education, agriculture,
industry, trade and infrastructure. Article 5 of this plan was great opportunity to serve
cultural heritage through activate and implement vocational training. However,
institutes were created to provide vocational training in industrial and commercial
fields rather than in local building materials and techniques, thereby contributing to
the preservation and revival of traditional building materials, crafts and industries in
general. This also impacted job opportunities creation in cultural heritage.
Education and vocational training were great opportunities to preserve cultural
heritage, but the waves took this opportunity to modernisation and industries with fully
support such as: mechanics, electricity and electronics specialties. In fact, the lack of
knowledge of local building materials and techniques was one of the reasons behind
the deterioration of cultural heritage. Orbasli (2009) concluded that ‘training
programmes for local craftsmen must be instigated to enable them to regain skills in
traditional building and repair techniques.’ (Orbasli, 2009: 62). Though this
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development plan presented opportunities to promote and preserve cultural heritage
through educational and vocational training, did not address tangible or intangible
cultural heritage directly.
The Second Development Plan (1975-1980 A.D./1395-1400 A.H.), which covered the
Saudi Antiquities law’s period, focused on four main development objectives40.
Encourage ‘migration from rural areas to cities with opportunities for industrial work’
was one of the key objectives. Though encouraging this migration brought benefits to
the society, it impacted cultural heritage by gradually dissolving ties between people
and their traditional environment. This development plan tried to encourage
communities toward modernisation rather than protecting cultural heritage.
Tourism was mentioned indirectly in the Fourth Development Plan (1985-1990) under
hotel services. In the Fifth Development Plan (1990-1995), the tourism title was
included under the services section. In the Sixth Development Plan (1995-2000),
tourism services did not include heritage. The Seventh Development Plan (2000-2004)
included tourism under the services sector, and cultural services under social
development. The SCT was established in 2000, as a result of the plan’s strategy. Even
if these development plans included references to cultural services, cultural heritage
was not fully addressed or covered. In fact, cultural heritage was not featured by any
40
The four main objectives of the Second Development Plan are as follows: 1) Continue substantial
investments in infrastructure. 2) Encourage the establishment of energy-intensive industries and the
export of high-value added products such as hydrocarbon resources. 3) Seek to expand the
establishment of government institutions and the development of manpower working in them. 4)
Support and encourage the private sector by following four main features: a) Adopt the recruitment of
foreign manpower to the Kingdom to assist in the implementation of development programs. b)
Encourage migration from rural areas to cities with opportunities for industrial work. c) Allow private
institutions to play a significant role in the development of the productive sectors and provide the State
with all possible assistance and financial incentives. d) Utilize international conventions to obtain
administrative expertise.
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development plan in Saudi Arabia, whether linked to tourism or not, prior to its first
mention in the Eighth Development Plan (2005-2009). Heritage and cultural sites and
development of traditional crafts and industries were not mentioned in this plan as a
separate theme, but rather were featured under tourism. In the Ninth Development
Plan, heritage and cultural sites were no longer included.
3.6.2 The Oil Revolution
The absence of heritage law, policies and regulations resulted in an organizational gap,
which filled quickly and easily by borrowed alternatives, such as a western lifestyle
as fertile environment and huge foundations for modernisation. Before the Saudi law
in 1972, and around the early 1960s, Saudi Arabia witnessed a massive economic
boom from oil revenues that caused rapid modernisation and urban development.
Bianca (2000) interpreted this urbanisation and sprawl as the main agents of the
demolition of traditional urban and architectural heritage and their replacement with
modern buildings.
During the early 1970s, according to Grill (1984), these newly expanding urban
centres faced overwhelming waves of rural-urban and international migration due to
rapid development. This was partly the result of the Second Development Plan in
Saudi Arabia which encouraged migration from rural areas to cities, as mentioned
above. The demand for quick expansion disregarded heritage conservation. Cities and
towns became huge workshops for bulldozer expansion in almost all directions and
levels, stifling the possibility for any heritage conservation discourse to emerge.
At the beginning of the 1970s, after launching Saudi law, the concept of built heritage
conservation had been introduced but not fully understood in Saudi Arabia (Al-Naim,
132
2010). During the oil boom of the 1960s, the vernacular Saudi built environment had
been affected as mentioned by some experts (Al-Zahrani, 2010). Al-Naim (2011)
described a sense of ‘not belonging’ because of the rapid changes to urban
environment that Saudi Arabia witnessed in the 1970s, thus the society faced concepts
of ‘you’ and ‘me’ rather than ‘we’ and ‘our’ as mentioned above in the private property
as a lack of considering heritage values (see point 3.2.2).
Al-Naim added ‘… people suddenly found themselves in a completely different
physical environment from the local built environment to which they were
accustomed.’ (Al-Naim, 2010: 29). In terms of the ‘traditional identity’ in the built
environment in Saudi Arabia, Eben Saleh (1998) argued that ‘recent buildings have
lost their traditional identities and have become hybrids of exotic character in their
architectural form, main concepts, arrangement of spaces, organization of elements
and building techniques employed’ (Eben Saleh, 1998: 275). This judgment was
shared by Konash (1980), who added that a lack of knowledge of the Saudi cultural
heritage by western firms and organizations practising in the 1970s was one of the
reasons behind the loss of traditional Saudi identity. Full understanding of local
cultural heritage was more likely available locally than amongst foreign consultants.
Al-Hathloul in 1981 recommended that future building regulations should respect the
traditional architecture on the basis of Saudi people’s needs and cultural, social and
religious requirements (Al-Hathloul and Muhal, 1991).
The absence of the laws and regulations that addressed cultural heritage caused a gap
that was filled by other alternatives. For example, Fadaan (1983) suggested that
‘attraction(s) to Western lifestyle have drawn Saudi attention away from developing a
clear and concise understanding of the evolution of a traditional living environment’
133
However, the exchange of experiences was crucial, as noted by Knoash (1980), who
discussed the collaboration between Saudi and foreign architects. Western urban
concepts and regulations impacted Saudi cities and towns.
Thus, western lifestyle was adopted in absence of understanding the values of Saudi
cultural heritage, especially in laws, regulations and strategic plans at both the national
and local levels. The negative impacts from the oil revolution on the built environment
in Saudi Arabia were agreed upon by all these authors, including the loss of cultural
identity. They focused on identity value to preserve vernacular architecture in Saudi
Arabia, but according to the international policy, there are more than twenty-one
values of cultural heritage, which together contribute to shape its whole image.
3.6.3 The Antiquities, Museums and Architectural Heritage Law of 2014
After 1972, another law wasn’t established until 2014. The Antiquities, Museums and
Architectural Heritage Law of 2014 contained ten chapters and ninety-four articles.
The law was more developed than previous law, especially through its attention to
definitions. For example, this law gave a specific definition for antiquities (whether
fixed or movable), architectural heritage, historical sites, heritage sites, heritage
pieces, museum and excavation. More attention was also paid to various antiquities
such as sunken antiquities.
In Article 25, historical sites were classified in three categories: A, B and C (sites of
high, medium and low importance, respectively). This classification was also applied
to urban heritage sites in Article 45. The focus will be on the discussion of urban
heritage, rather than other topics such as sunken antiquities, museums, penalties,
investigation and trial.
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This law also recommended a list of urban heritage sites (Article 25), recorded
according to twenty-one specific criteria41 that were mentioned in the Executive
Regulations in Article 15.
This law included more values than previous law, including: aesthetic, archaeological,
authenticity, character, cultural, economic, educational, historic, identity, intrinsic,
physical, political, scientific, social and spiritual. However, six values were not
included: ecological, human, intangible, integrity, setting and sustainable values
(Table 3.1). This law also included nine categories, namely: archaeology, cultural
property, groups of buildings, heritage cities, intangible heritage, monuments, single
buildings, towns and urban areas. It missed two categories: intervention and landscape.
Table 3. 1: The values included in the 2014 law
International Values Values in 2014 International Values Values in 2014

1. Aesthetic √ 12. Intangible ×
2. Archaeological √ 13. Integrity ×
3. Authenticity √ 14. Intrinsic √
4. Character √ 15. Physical √
5. Cultural √ 16. Political √
6. Ecological × 17. Scientific √
7. Economic √ 18. Setting ×
8. Educational √ 19. Social √
9. Historic √ 20. Spiritual √
10. Human × 21. Sustainable ×
11. Identity √ The total 15/21
41
The criteria are: age, rarity, urban importance, religious importance, historical importance, scientific
importance, cultural importance, national importance, social importance, functional importance, artistic
importance, aesthetic importance, investment possibility, geographical location and accessibility,
architectural design and details and style, demolition percentage, accessibility inside the site, expected
future status and any other criteria that approved by SCTNH.
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Despite the comprehensive provision of this law, intangible cultural heritage was still
not adequately considered, as stated by the Head of NBHC in an interview on 14
August 2016. The implementation steps and process were also unclear. The first step
toward implementation was applying two criteria for the classification and selection
of heritage sites (see chapter 5). This mechanism in movement from law, through
bodies that implement the law, toward actual sites at a local level, confirmed the
importance of heritage management as a process rather than separated steps. Looking
at heritage management as a process avoided many problems, such as levels of
participation from both organizations and communities at local level. Otherwise, the
implementations at a local level will be suffer from conflicts between the main players.
For example, the Director of Planning and Development in the Ha’il Municipality
stated in interview: ‘We did not receive any copy or information about this new law,
and we had no idea about it in Ha’il Municipality’ (Director of Planning and
Development in Ha’il Municipality, interview, 26/08/2016). As seen here,
miscommunication is one of the serious issues that impact cultural heritage sites. The
definition provided in the law could not develop cultural heritage alone, in spite of its
importance measuring the level of understanding concerning values of cultural
heritage. It will be confirmed in the next two chapters (4 and 5), showing the link
between law, organizational structures and implementations at a local level in
managing cultural heritage within its process.
3.7 Summary and Immediate Inferences
The official definition for heritage in Saudi Arabia was provided by the first law in
1972. However, analysis of the historical background of this law illustrated critical
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issues. For example, law mainly outlined departmental responsibilities rather than
delving into the wider context and meaning of heritage. Moreover, the people who
created the 1972 law were from archaeological and political backgrounds
(predominantly from international bodies); this had an impact on the contents of the
law and its legal framework.
Furthermore, because of the law’s definition and only one in place in Saudi Arabia at
that time, antiquities were the only heritage considered worthy preservation. This
framework shaped the concept of heritage by limiting it to antiquities without
consideration of both tangible and intangible cultural heritage within its context. This
approach affected heritage and its comprehension within communities, thus causing a
lack of understanding of cultural heritage values within societies.
Heritage was defined within the context of an antiquities frame-work. It needed instead
to be classified according to correct definition and function, not just for defining the
concept, but also for following implementation processes.
Furthermore, this law did not pay enough attention to people; in other words, cultural
heritage was not addressed properly. For example, the preservation, protection or
investment of private property was not covered by the law or any other regulations.
Instead, keeping heritage buildings disconnected from people’s daily lives generated
misrepresentations of heritage values.
The development of cultural heritage definitions and laws at the international level
began at an early stage. At the regional level, both the definition and the
implementation of these laws were developed in Jordan between 1934 and 2004. This
development impacted the understanding of the values of cultural heritage in different
137
ways. For instance, based on the 1988 and 2005 laws, Jordan classified two sections
of material: the archaeology or antiquity section and the heritage section. This allowed
architectural and urban heritage to have space within the bigger framework, whether
in definition, implementation or management steps. However, in Saudi Arabia, only
two definitions were produced from 1972 to 2014. Saudi heritage has limited
experience in terms of regulations and laws, which has impacted the heritage context
and communities.
The development of the definition and laws at an international level resulted in twenty-
one values and eleven categories before 1972. However, Saudi law included only five
values and four categories. The limitation of the 1972 law, whether in definition,
legislation or implementation, resulted in the present heritage situation in Saudi
Arabia. This limitation had its impacts both on heritage and societies due to a
misunderstanding of the value of heritage and its wider context.
By reducing heritage to one framework, focusing only on antiquities, certain image
was shaped about heritage in general, and the law focused on the preservation as a
target. In addition, keeping all heritage sites gated and locked for decades had caused
a marked gap between communities and heritage as well as increase the conviction in
this approach for who implement the law and for who dealing with heritage.
Additionally, some issues increased the gap in understanding the values of cultural
heritage. For instance, five-year development plans and the oil revolution impacted
heritage both directly and indirectly. In the end, a particular image about heritage was
shaped, and implementation efforts were made that established these gaps between
communities and heritage. To correct this, necessary changes in definition, law,
regulations and links must be pursued.
138
However, managing heritage must make other considerations besides the definitions
and laws. Societies’ power and individual and public awareness are other mechanisms
that can affect heritage. Those who officially manage heritage at national and local
levels, especially the government bodies, will be discussed in the next chapter.
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Chapter 4: Organizational Structures
4.1 Introduction ...................................................................................................... 142
4.2 Organizational Structure in Saudi Arabia between 1972 and 2015 ............ 144
4.3 The Placement of Heritage .............................................................................. 145
4.3.1 Area of heritage under the MOE and SCTA ........................................... 145
4.3.2 Heritage within tourism framework ........................................................ 148
4.3.3 Heritage within Saudi development ........................................................ 150
4.4 Main players ..................................................................................................... 152
4.4.1 The Ministry of Education (MOE) .......................................................... 153
4.4.2 Ministry of Municipal and Rural Affaires (MOMRA) ........................... 158
4.4.3 Ministry of Culture and Information (MOCI)......................................... 164
4.4.4 Saudi Commission for Tourism and National Heritage (SCTNH) ......... 168
4.5 Lessons Learned from Relevant Experiences ................................................ 173
4.5.1 Historic Cairo .......................................................................................... 174
4.5.2 Petra ........................................................................................................ 178
4.5.3 Learned lessons from Petra and
Historic Cairo ................................................................................................... 181
4.6 Organizations’ Capacity .................................................................................. 183
4.6.1 Knowledge capacity ................................................................................ 184
4.6.2 Knowledge resources .............................................................................. 191
4.7 Summary and Immediate Inferences ............................................................. 193

141
4.1 Introduction
The discussion of organizations is of no less importance than the discussion of laws
and regulations. The laws and regulations need to be transferred into action within a
practical administrative framework. These actions are managed and implemented by
different bodies that examine the accuracy and ability of the laws. However, when it
comes to heritage development; both tangible and intangible, more key players are
likely to be added; thus, more roles need to be interconnected.
This chapter focuses on understanding the current structure in Saudi Arabia that
manages cultural heritage, at national and local levels. This crucial discussion
considers the types of relationships between key players such as education,
municipalities and tourism. Addressing the organizational issue will lead to
identification of ways to encourage effective administrative stakeholder involvement
by taking a holistic view of the heritage values and aiming towards increasing public
awareness. Also, this discussion will establish ways of enhancing the organisational
structure for cultural heritage in general, and architectural/urban heritage and tourism
sectors in particular.
As Orbasli states, ‘Government structure, both national and local, is different for each
country, particularly in respect of the location of power, control and decision making’
(Orbasli, 2000: 99). In Saudi Arabia, the Council of Ministries, led by the custodian
of the Tow Holy Mosques, is the apex of the organizational hierarchy. This council
includes all the ministries; under it are twenty-six ministries and thirty-three ministers,
142
as well as some bodies below the ministerial level, such as commissions and
institutions42, that have no representatives on the council.
The goal here is not to argue against different governmental models, but to understand
the power of decision-making and the type of relationships between main players in
Saudi Arabia. Cultural heritage management generally, and urban and architectural
heritage management specifically, includes a large number of players with different
roles, backgrounds and conflicting interests.
The type of relationship between decision makers can create conflict and tension. As
stated by Flyvbjerg and Richardson (2002) and Royal Town Planning Institute (RTPI)
(2001), the identification and understanding of the conflicts at stake is a crucial
planning task43. Conflicts and tensions result not only from the different objectives
that each organization tries to achieve and follow but also from the priority of these
objectives within the organizations at national and local levels.
Larkham (1990) mentioned that the decision-making process includes both outsiders
and insiders, as well as the agents of change with an understanding of the local
environment. A balance between insiders and outsiders, horizontally and vertically, at
national and local levels, is required to achieve appropriate management and
42
Examples of organizations at less than the ministerial level: Saudi Commission for Tourism and
National Heritage (SCTNH), Royal Commission for Jubail and Yanbu (RCJY), Communications and
Information Technology Commission (CITC), General Commission for Survey (GCS) and some
commissions that related to development at the province level such as High Commission for the
Development of Riyadh (ADA), the Development Commission of Makkah Al Mukarramah and
Mashaaer (DCOMM) and the High Commission for the Development of Ha’il (HCDH).
43
RTPI - Royal Town Planning Institute (2001). A new vision for planning. [Online] [Accessed on
January 29, 2018] https://www.rtpi.org.uk. Flyvbjerg, B and Richardson, T (2002) Planning and
Foucault: In search of the dark side of planning theory. In P. Allmendinger, and M. Tewdwr-Jones
(Eds.), Planning futures: New directions for planning theory (pp. 44–62). London: Routledge.
143
sustainable cooperation. Additionally, the laws mentioned in the previous chapter
impacted organizational structures, whether in the Ministry of Education (MOE) or
later at the Saudi Commission for Tourism and National Heritage (SCTNH).
4.2 Organizational Structure in Saudi Arabia between 1972 and 2015
Before the present twenty-six ministries, there were less than eight ministries in Saudi
Arabia in 197244, and one of them was the MOE, which managed antiquities and
museums were managed. The reason behind the increase in the number of ministries
was the development and growth of different fields in Saudi Arabia. This development
required new bodies within the government structure, such as the Ministry of Housing
and other organizations.
However, cultural heritage was not one of these developments until 2000, when the
SCT45 was established. After this establishment, heritage management began,
specifically in 2008 when antiquities and museums merged with the SCT to become
SCTA46. Indeed, cultural heritage remained without official management for a long
time, which affected the heritage and impacted public awareness and organizational
understanding. It must be clarified that MOE was responsible for antiquities, and there
were some efforts made toward intangible heritage from the Ministry of Culture and
Information (MOCI), especially encouraging folklore. Reduction of intangible
heritage in the folklore or any superficial practices leads to the need for investigating
44
AlKhawli, O. (1998) Ministries and ministers in the Kingdom of Saudi Arabia, a legal and historical
study, Jeddah: The Author.
45
Saudi Commission for Tourism (SCT).
46
Saudi Commission for Tourism and Antiquities (SCTA)
144
the placement of tangible and intangible heritage within Saudi government
organizational structure.
4.3 The Placement of Heritage
The government has a clear role to play especially in terms of the maintenance of
heritage and environmental assets on which sustainable tourism is largely based
(Paszucha, 1995: 40). However, it is true that ‘only fairly recently has the international
community begun to appreciate the importance of conserving cultural heritage as
places where social and cultural factors have been and continue to be important in
shaping them, rather than as a series of monuments offering physical evidence of the
past’ (ICOMOS, 2013: 13). The institutional organizations that dealt with antiquities
and heritage conservation in some countries like Jordan and Syria grew out of this
position of heritage chauvinism and lack of awareness to the significance of the
cultural heritage (Barakat & Daher, 2000: 40).
The need for maintenance is applicable in Saudi Arabia because of the rich cultural
heritage there, as well as the need for understanding the values of cultural heritage
within its context. Lack of awareness to the significance of the cultural heritage values
is exist in the Saudi context, making the position of heritage undefined especially in
terms of organizational structures for the main players.
4.3.1 Area of heritage under the MOE and SCTA
Before 1972, there were no organizations or management bodies for cultural heritage
in Saudi Arabia. Since then, the management of heritage passed through five notable
stages (Figure 4.1), with participation from some organizations (Figure 4.2)
145
(1972) (1982) (2000) (2008) (2014)

Ministry of Ministry of Supreme Saudi Saudi
Education, Municipal and Commission Commission Commission
Rural Affairs for Tourism for Tourism for Tourism
Agency of and Antiquities and National
Antiquities Heritage
(MOE) (MOMRA) (SCT) (SCTA) (SCTNH)
Figure 4. 1 The five main stages of heritage in Saudi Arabia.
Figure 4. 2: The participation from organizations in heritage development in Saudi

Arabia.
These stages are mainly a reflection of the establishment and development of laws and
policies that caused an evolution of the organizational structure for implementation.
In 1972, heritage organization and management began, fully focused on antiquities.
Until 2014, heritage management was limited to antiquities under the responsibility of
146
the MOE, except for some initiatives and regulations in the 1980s, particularly from
MOMRA47.
This stagnation was not only limited to the laws and regulations but also included
heritage and the communities. There were two approaches towards heritage; one of
them looked at heritage from an archaeological perspective. This perspective was
taken especially by those from the department of antiquities and from archaeological
backgrounds who looked at heritage as part of antiquities, needing protection in the
same way as antiquities48.
The other approach considered heritage, especially architectural heritage, merely to be
old buildings situated on valuable land, a view subscribed to mainly by those who had
power within the municipalities. This created a conflict that impacted the development
of the understanding of cultural heritage in general and in architectural heritage
specifically. After 2014, SCTNH played an important role in dealing with these
conflicts, especially in terms of laws and regulations. However, 6the implementation
conflicts were a separate issue altogether, as will be discussed in the next chapter.
Under the MOE, cultural heritage was shaped mainly by the antiquities department,
particularly by people with a background in antiquities who believed in just antiquities
value without any involvement of other cultural heritage values. One of the reasons
for this was the limitations in the law itself (see the previous chapter), even from the
perspective of the archaeologists. This antiquities framework drove efforts for
47
In 1982, a royal decree was established to highlight that MOMRA should conserve the traditional
districts of each city or town. This royal decree was a step toward understanding the importance of
national heritage in each region of Saudi Arabia.
48
This approach was clearly noted through fencing and locking most of heritage sites across of Saudi
Arabia for long time.
147
excavations and interpretation stages for a long time, without consideration of other
values and context. After a while, archaeology became the only heritage, and no other
links existed with other tangible and intangible heritage.
SCTNH saw a big change in the concept of heritage; however, the issue concerning
the link between cultural heritage and tourism remained. Especially in Saudi Arabia,
the image of cultural heritage embodied in the tourism framework. These
implementations shaped the image of cultural heritage, particularly architectural
heritage, and linked it with tourism activities and festivals. This link impacted cultural
heritage due to the seasonality of tourism in Saudi Arabia. It also impacted
implementation stages through application of criteria for the classification of heritage
sites (see the next chapter) that focus on tourism.
4.3.2 Heritage within tourism framework
Most the heritage assets in Saudi Arabia are located in historic town centres. Cultural
heritage provides a diverse range of social and economic values which people engaged
in and benefits tourism, leisure and entertainment. In general, tourists are attracted to
cities for many reasons, one of which is the specialized experiences and values they
offer.
Indeed tourism is not the only activity that occurs in heritage sites; rather it is one
element amongst many. However, it is certain that cultural tourism in historic cities is
a major strength in generating economic activity and achieving revitalisation, as well
as providing a way to preserve cultural heritage values. Cultural tourism could be both
a tool and an objective towards developing and managing cultural heritage.
148
Ashworth and Tunbridge (2000) illustrated that three elements need to be gathered,
namely an activity, tourism; a set of resources, heritage; and a setting, the city
(Ashworth and Tunbridge, 2000:54). However, the balance between these three
elements is crucial; although it varies from one site to another, the link between the
sites illustrates a justification for tourism to heritage sites.
The concept of domestic tourism in Saudi Arabia was not common or even acceptable
before 2000, except in some activities in the summer, particularly in the Aser province
(due to its weather). When the SCT was established in 2000, the emphasis was on
community acceptance of tourism as a valuable economic resource. Diving into the
communities’ complexity and changing the image of tourism was complicated in
terms of methods, organizations and implementations. In fact, the tourism sector in
Saudi Arabia, and in most GCC countries, is a relatively new economic sector when
compared with some international and even regional contexts, such as Egypt and
Jordan.
In 2000, the SCT began to establish the General Strategy for Tourism, which attempted
to guide this new government body in developing the tourism industry. The vision of
this strategy stated, ‘As the cradle of Islam, the Kingdom of Saudi Arabia aims to
develop sustainable tourism for the socio-cultural environmental and economic benefit
of all, reflecting its cherished Islamic values, heritage and traditional hospitality’
(SCT, 2003:8). The mission stated, ‘The Kingdom of Saudi Arabia will harness its
unique endowments to develop tourism, in a sustainable manner, providing a quality
experience, while contributing to economic diversification, employment creation,
environmental and heritage preservation, cultural awareness and community
enrichment’ (SCT, 2003: 9).
149
This vision and mission, clearly showed that the main target was tourism and placed
heritage within this framework. Placing heritage within the tourism framework and
enhancing communities to accept tourism as an economic value in the early stages of
participation in the tourism industry caused some conflicts, not only toward heritage
but also toward the wider context of heritage. Reducing heritage to the tourism
framework was similar to reducing heritage to antiquities, as had happened previously
in Saudi Arabia.
4.3.3 Heritage within Saudi development
The physical location of any heritage site shapes the relationship between the heritage
site and community. Most heritage buildings are located in/around city centres where
the real interaction between people, their environment and their lifestyle is practiced.
Because of the development and increase in income - nationally, locally and
individually - and the growth of population, a need arose to expand the built
environment. Communities were driven to build new settlements, which required
layered development, including the development of infrastructure. New buildings and
districts were built and expanded, and this ongoing development occurred at the
expense of the traditional urban centre. Therefore, not only has there been a loss of
heritage buildings, but a loss of the traditional lifestyle and associated values as well.
Development is one of society’s heavy requirements; however, understanding how it
takes place is also crucial. In Saudi case, one of the key players in development,
especially in housing, was the Real Estate Development Fund (REDF). REDF is a
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government organization that lends money to build houses without interest49. This
helped people to build new houses in new areas. However, the extent to which
development occurred was unexpected, and its growth was unmanaged at different
levels.
The new areas, new design and new buildings drew community away from older areas,
which were later occupied by other groups of people, such as foreign workers or low-
income people. At that time, the new image of city centres was being shaped, and
certain perspectives were being applied, not only toward these areas, which contained
most heritage sites, but also toward the heritage context there, such as the traditional
lifestyle and associated values. In addition, the Head of the Department of the Studies
and Research in MOMRA, stated, ‘There was no one governmental entity looking
after architectural heritage, it was an individual effort whether at organizations level
or departments and individuals level’ (Head of the Department of the Studies and
Research in MOMRA, interview, 20/8/2016). This phenomenon impacted heritage in
general and architectural heritage particularly. It also impacted, stakeholders, who
look at these areas as a risk rather than an opportunity.
It is crucial to identify who the main players are and who manages cultural heritage in
Saudi Arabia, in order to highlight and understand the sources of the conflict and
tension as one of this chapter’s objectives.
49
The REDF was established by Royal Decree No. (M / 23) in 1974. The purpose was to contribute to
the establishment of modern housing and residential complexes in Saudi Arabia. The headquarters are
located in Riyadh, and about 40 branches and offices are spread across the Kingdom, covering more
than 4279 cities, towns and centers. The REDF started with a capital of SR 250 million ($ 66 million)
and then doubled several times to become the capital of the Fund until the end of the financial year
1432 / 1433H (2011/2012) to about S.R 183 billion ($ 48.8 billion) and to become one of the largest
mortgage institutions in the world. (REDF, 2014, Annual report)
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4.4 Main players
Other main players besides REDF impacted heritage, though, and identifying these
main players and who manages cultural heritage in Saudi Arabia is crucial to
understanding the sources of conflict and tension. All the government and non-
government organizations at the national and local levels are important players in
heritage sites. Furthermore, when it comes to cultural heritage, both tangible and
intangible, a greater number of different departments and sections are likely to
participate. Indeed, all organisations, specifically those involved in socio-cultural
matters, have a stake in cultural heritage management. However, this chapter discusses
the organisations that are directly involved in cultural heritage (see Figure 4.2). The
impact of these organisations on cultural heritage in general and architectural heritage
in particular is significant and notable
Road construction, import and export of goods and other government tasks have an
impact on cultural heritage, directly or indirectly, although the level of participation
and involvement varies. The level of participation from the MOMRA, which is
involved directly in management of the built environment within cities, towns and
villages, is different from that of the Ministry of Transportation (MOT), which is
responsible for building transportation infrastructure and linking sites, cities,
provinces and even countries, in spite of its impact on heritage sites. The MOT is an
important player in cultural heritage through its remarkable efforts, such as providing
accessibility to heritage sites. Equally instrumental is the role of the MOE, which is
involved directly in social development and plays a key role in encouraging public
awareness, especially in Saudi Arabia when the first antiquities department was under
MOE management (1972 – 2008).
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Another criterion in the present discussion is that organizations responsible for cultural
heritage management are also physically present at the local level, in order to link laws
with implementations at the local level through organizational structures. The main
players in Saudi Arabia who fit these criteria are the MOE, MOMRA, MOCI and
SCTNH. The efforts of these players reach both national and local levels. The
integration and conflict at the national level will be expanded at the local level with
direct and indirect impacts on and between main players, including heritage sites.
4.4.1 The Ministry of Education (MOE)
The official education system in Saudi Arabia started when the Knowledge Directorate
was created in 1924 (1343 AH); and since then, the education system has developed
and changed dramatically50. In 2015 (1436 AH), an important decision was made that
merged the MOE with the Ministry of High Education (MOHE)51. This allowed the
education system and its programs at different levels to fall under the responsibility of
one ministry. In other words, it created an opportunity to manage cultural heritage
education in the MOE more effectively by increasing cultural heritage awareness at
all levels of the educational curriculum. This was done with the aim of ensuring that
all future generations be made aware of the country’s heritage.
50
In 1927 (1346 AH), for example, a decision was made to form the first Board of Knowledge; the
purpose was to form an education system to supervise education in Al-Hejaz region. Then, in 1953
(1373 AH), the Ministry of Knowledge was established. In 1960 (1380 AH), the establishment of the
General Presidency for Girls' Education was an important step toward covering society’s different
components. In 2002 (1423 AH) the Ministry of Knowledge and the General Presidency for Girls’
Education were combined. Changing the ministry name was evidence of the development of the
education system, especially in 2003 (1424 AH), when the Ministry of Knowledge became the Ministry
of Education. Resources: Hakim, A (2012) Education System and Policy, Egypt: Etrak Publish [in
Arabic]. Abdullah, A (1982) History of Education in Makkah, Jeddah: Dar Alshrouq [in Arabic].
51
The combination was by a royal decree No. A/67 on 9/4/1436 AH.
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There is no doubt that the education system affects public awareness of cultural
heritage. Before 2000, no official body held responsibility for heritage, tangible or
intangible. A general department within the MOE did focus on antiquities52. However,
cultural heritage values in this department were limited, both for cultural heritage and
for antiquities. For example, within school curriculums, no such subject or main
course focused on cultural heritage values. Some subjects about Islamic history taught
from a religious perspective; other subjects taught Saudi history from a political point
of view, but neither took any consideration for cultural heritage values or context
(Abdul Rahman, 1982: 32 and Abdulhamid, 2012: 186).
The education system, especially primary and secondary schools, illustrates the lack
of including these values within school materials and subjects. For example, a large
number of scholars in education agreed on the limited coverage of cultural heritage in
school, particularly in citizenship curriculums53. Alrais (2000) concluded that the
cultural values among other values that included in the citizenship curricula in Y4, Y5
and Y6 in Saudi schools are 0.4%, 0% and 4.5% respectively, with an average of 1.7%,
compared with other average values, such as religion values at 23.4%54.
52
Department of Antiquities and Museums within the MOE structure, which merged with tourism in
2000 to be the SCTA.
53
For example, Alrais, A. (2000) Values included in the citizenship curriculums in the last three classes
in primary school in Saudi Arabia, Riyadh: King Saud University, Faculty of Education, Department
of Curriculum and Teaching Methods [in Arabic]. AlAjaji, A. (2001) Educational difficulties associated
with the Saudi experience in the application of the curriculum of Citizenship as realized by the
secondary school teachers in Riyadh, Riyadh: King Saud University [in Arabic]. Almuaiql, A. (2004)
Analysis of learning activities in the curriculum of citizenship in Saudi Arabia and the view of teachers
toward it, Journal of Educational and Social Studies, 10 (3:79-137) [in Arabic]. Alsaghir, A (2003) An
analytical reading of the content of the Citizenship Document for Y3 and 4 in the primary school in the
UK. Riyadh: King Saud University [in Arabic]
54
Alrais (2000) came out with conclusion of the percentage of the values in y4, 5 and 6 in the primary
school in Saudi Arabia, particularly in citizenship curriculum. These percentages are: religion values:
y4 25%, y5 32%, y612.6%, with total 23.4%. Cultural values: y4 0.4%, y5 0%, y6 4.5%, with total
1.7%. Social values: y4 14%, y5 21%, y6 19.8%, with average 18.6%. National, Economic, Aesthetic,
154
A large number of deputies and departments (Appendix 4.A) exist at the national
level55 to address this lack. The Ministry Deputy of Curricula and Educational
Programs is one of the key players due to its roles in applying the concept of cultural
heritage values, context and awareness in the education system. In terms of
architectural design, vernacular architecture and local identity the Ministry Deputy of
Buildings plays an important role, due to its responsibility to design schools in the
built environment. Thus, these two local representatives link and integrate surrounding
areas and sites, including materials, colours and architectural elements56. For example,
the Director of the Buildings and Projects Department in the MOE highlighted that
‘We have a problem in applying the local vernacular architecture in the school’s
design, because the identity for each province is not clear or approved officially’. He
added, ‘SCTNH and MOMRA should work together to give the MOE the identity of
each province to implement it on the schools’ designs.’ (Director of the Buildings and
Projects Department in MOE, interview, 16/8/2016) This statement highlighted the
importance of MOMRA and SCTNH in terms of shaping the identity whether locally
or nationally. MOMRA and SCTNH gained their importance through their power and
Recreation, Environmental and Health values are 20%, 12.1%, 9.5%, 0.4%, 1.1% and 13.2%
respectively.
55
There are Nine Ministry Deputies, and they are: The Ministry Deputy of Education Affairs, The
Ministry Deputy of Education (Boys – Girls), The Ministry Deputy of Planning and Development, The
Ministry Deputy of Buildings, The Ministry Deputy of Curricula and Educational Programs, The
Ministry Deputy of Scholarship Affairs, The Ministry Deputy of Planning and Information, The
Ministry Deputy of Schools Affairs, and The Ministry Deputy of Private Education. Also another nine
General Departments, namely are: Directorate General of Administrative and Financial Affairs,
Directorate General of Internal Auditing, Directorate General of International Cooperation, Directorate
General of Legal Affairs, Directorate General of Information Technology, Directorate General of Public
Relations and Media, Directorate General of School Security and Safety, Directorate General for
Women's Affairs, and Directorate General for Follow-up.
56
The centralization in schools design has caused samples and Uniform models, which has no link with
identity and even the location. There are different types of the schools design based only on the number
of the students with no consideration for the urban and local requirements and needs (Appendix 4.H).
155
knowledge that impacted the management and development of heritage as will be
expanded later.
At the local level, two categories represent the MOE in the provinces. One is the
General Department of Education (GDE) which sits at a higher level than the
Department of Education (DE) in the province57. These departments (Figure 4.3) are
the link between the end users (schools) and the ministry (decision makers); this
structure is similar to that of the municipalities. Players at the local level of the GDE,
such as GDE in Ha’il, for example, represent the main player at the national level.
However, action is taken at the national level while the local level focuses on
implementing and following up on this action. For example, the Planning and
Development Department at the local level represents the Ministry Deputy of
Curricula and Education at the national level. Also, the Department of Student Activity
participates in designing and developing class- and non-class-based activities, which
is one of the most effective approaches in the education system concerning awareness
of cultural heritage.
57
There are seventeen general departments of education and twenty eight departments of education that
are distributed throughout Saudi Arabia. (moe.gov.sa)
156
Deputy Minister of Education
Deputy Minister for Boys Education Deputy Minister for Girls Education
Secretariat of Education Departments General Director of Education General Director Office

in the Province
I.T. Department Planning and Development Department
(moe.gov.sa, 2018)
Educational Information Department Department of Legal Affairs
Public Relationship Department Follow-Up Department
Department of Quality
Assistant General Director of Assistant General Director of Assistant General Director of Assistant General Director of
Education for Boys Education Education for Support Services Education for School Affairs Education for Girls Education
157
Assistant's Assistant's
Office Assistant's
Office
Office
Manager of Administration and Buildings

Financial Affairs Manager
administration shift the focus of professional and teaching staff away from cultural
Like what is found in the municipalities’ approaches, daily tasks such as teaching and
Figure 4. 3 Typical structure for the GDE at the local level in each province
heritage. The main players at the national level have not included cultural heritage in
planning, leaving the local players to focus on the curriculum with no autonomy for
addressing cultural heritage topics. In this sense, the relationship between the GDE at
the local level and national level needs to be clarified.
4.4.2 Ministry of Municipal and Rural Affaires (MOMRA)
The municipality services and management were developed during the early stages of
the Saudi state creation. The first regulation of municipality was established in 1926,
when the focus was on the Makkah Al-Mukaramah region, and in 1975, the MOMRA
became a clearly independent body58. MOMRA has the power over physical locations
and sites, especially sites that are located within the boundaries of cities, towns and
58
The first organization of the municipalities in Saudi Arabia became one of the basic instructions of
Saudi Arabia issued by the Royal Decree on 21/08/1926 (21/2/1345 AH); the eighth section of these
instructions was issued by the Municipal Councils, and the ninth section was appointed by the
Municipal Management Committees. This was followed by the promulgation of the Municipal
Department Law in 1927 (1346 AH) in sixty-two articles for the administration of the Municipality of
Makkah Al Mukarma, Mina and Al-Shuhadaa, which was considered an integral system of sections
VIII and IX of the basic kingdom instructions. In 1938 (1357 AH), the capital municipal and municipal
secretariat system was issued in eighty-three articles, which was the first independent system for
municipalities. This system abolished the provisions of the Municipal Councils, which were included
in the Basic Regulations and abolished the previous municipal council system. Article six of the
Secretariat of the Capital provided that the Secretariat of the Capital municipal shall be referenced to
the Public Prosecution, and the reference to the rest of the municipalities in Saudi Arabia was the
administrative governors. When the Ministry of the Interior was established, it became a reference for
all municipalities, and the Ministry established a department for municipal affairs called ‘Municipal
Management’. In 1963 (1382 AH), as a result of the growth of municipal services provided to citizens;
The Council of Ministers Decision No.517 dated 20/02/1963 (25/9/1382) approved the development
and upgrading of the municipal administration by establishing a municipal affairs agency which was
affiliated with the Ministry of Interior. It was responsible for supervising all municipal affairs and water
interests, developing their resources and carrying out the responsibilities of study and planning for the
development of municipal services in Saudi Arabia. A Royal decree was issued in 1964 (1384 AH);
order No.17 on 17/12/1964 (13/8/1384 AH) appointing the first agent of this agency, and then Royal
Order No. 141/1 issued on 14/07/1975 (4/7/1395 AH) made the supervisory level of the agency at the
level of Deputy Minister of the Interior for Municipal Affairs at the excellent grade. In 1975 (1395 AH),
MOMRA was established under Royal Decree No. A/266, issued on 14/10/1975 (8/10/1395 AH). It
was entrusted with the responsibility of urban planning of Saudi cities and the consequent provision of
roads and basic equipment, as well as the management of services necessary to maintain the cleanliness
and health of the environment in Saudi Arabia. In 1977 (1397 AH) the decision of the Supreme
Committee for Administrative Reform No.78 on 30/05/1977 (12/6/1397 AH) adopted and organized
the new ministry and the establishment of regional directorates (momra.gov.sa). From the above, it is
clear to see how MOMRA is a powerful government body.
158
villages. As a result, nearly all public heritage sites are under MOMRA’s management
and responsibility59.
MOMRA plays a key role in cultural heritage development due to its power and
responsibility to manage properties. However, within MOMRA, the level of
involvement and participation in heritage varies across departments. The two
departments in MOMRA’s structure at the national level (Figure 4.4) most involved
in managing heritage sites are the Deputy Ministry for Cities Planning60 and the
Deputy Ministry for Planning and Programmes61. These deputies are linked directly
with the minister. Also, the departments under the deputies are directly involved in the
development of both tangible and intangible heritage through planning and
programmes. These departments are involved in legislating, applying and controlling
the management of heritage sites; they are also the link between the national and local
levels regarding regulations and implementations. Moreover, the decisions are mainly
made in these departments.
59
Except these sites that have been transferred from the Department of Antiquities and Museums in the
MOE to SCTNH because of the merger in 2008.
60
The Deputy Ministry for Cities Planning includes many departments such as the urban design
department, the urban design studies department and the local planning department.
61
The Deputy Ministry for Planning and Programmes includes several departments such as the budget
department, planning department, development of the investments department and expropriation
department.
159
The Minister
Provinces Municipalities The Municipal Councils
The Ministry General

General The Ministry The Ministry Deputy The Ministry
Deputy Deputy Ministry Deputy of Rural Department of
Department of Deputy of Deputy of Ministry for Deputy of
Ministry for for Lands and Affairs Administrative
Human Technical Municipal Planning and Classification of
Cities Planning Survey and Financial
Resources Affairs Affairs Programmes contractors
160
Affairs
General Urban Design General Department of General General General General General General
Engineering Affairs
Department of Department Department of Department of Department of Department of Department of Department of
Internal Cleanliness Budget Land Issues Rural Affairs Studies Finance
General Department of
Communication General Department Building Code
of Urban Studies General General General General General
General Department of Department of Department of Department of
Department of
Department of General Department of Planning Grants Technical Affairs Purchasing and
General Department Operation and Municipal Affairs
Development of of Local Planning Maintenance
Tenders
HR General General Department of
General
General Department of Department of Department of Quality General
General Department Department of
General the Discharge of rain Investment Surveying and Management Department of
of Transport water and the prevention
Professional
Department of Planning and Development Maps General Services
of flood hazards
Operation of HR Traffic Engineering General Department of
General Department of Department of Expropriation Unit General Records Administrative
Disasters Food and Water Department of Communications
General Department
Department of
Figure 4. 4 MOMRA structure illustrates the main players (MOMRA, 2018)

of Project Laboratories Properties Centre
Statistics Legal
General Department of
Coordination Building Laboratories Department
At the local level, one main municipality exists for each province and is linked to
several sub-municipalities for each city, town and village. In the provincial capital, the
sub-municipalities are arranged to cover and serve different areas and districts (Figure
4.5). The main municipality is the key link between the sub-municipalities, where
most of the heritage sites are located, and MOMRA, where the decisions are made. In
this sense, the main municipality in each province plays a major role, not only at the
site level but also at the national level within MOMRA. For example, when awareness
and knowledge at the main municipality increases, the resulting benefits are enjoyed
by the lower level at the sub-municipalities and the higher level at MOMRA. This is
applicable not just only to awareness but also to regulations and policies that are
implemented on the site. In other words, feedback, resources and steps emanate from
the main municipality such as obstacles, problems and financial issues are given a
chance to improve the development of the heritage site at both the local and national
levels.
161
Figure 4. 5 The Ha’il municipality structure (first, second and third levels), as a typical
example of the local municipalities, illustrates the main departments at the local level
(MOMRA, 2018)
162
Sub-municipalities are responsible for many tasks, such as licensing, cleaning and
monitoring, and these daily tasks are the focus of staff work. Unfortunately, most of
the heritage sites are located within or around areas that present poor levels of
cleanliness, inadequate sanitation, environmental pollution and slum conditions
(Figure 4.6). This impacts the staff’s image of these sites, causing heritage to be
viewed as a problem to solve rather than an opportunity for finding solutions to these
issues. This is the case not only for the sub-municipality staff but also for people who
are affected by the current problems and situations of the heritage sites.
Figure 4. 6: Some examples of the current state of neglect in which some heritage sites
lie because of the misconceptions which surround them across MOMRA staff as well
as the public (Barzan District area in Ha’il, 2016).
163
In addition, the Head of the Department of the Studies and Research in MOMRA
noted, ‘Architectural heritage buildings have been linked with slums in most of our
studies, research and projects for example, in Makkah city most of the architectural
heritage buildings were classified within the slums areas in the slum treatment project’
(Head of the Department of the Studies and Research in MOMRA, interview,
20/8/2016). These perspectives, whether at national or local levels, have contributed
to the neglect of heritage sites. Clearly, there is a need for increasing knowledge and
participation at the province municipality (top-down and bottom-up) and sub-
municipalities in districts and towns.
4.4.3 Ministry of Culture and Information (MOCI)
The establishment of the Saudi media structures and their institutions began in 1941
(1361 AH), when the Second World War impacted Saudi decision-making. The radio
was initially under the management and authority of the Ministry of Finance, while
the press and publishing were under the authority and administration of the Ministry
of Foreign Affairs62 in 1948. Since that time, the development of the media structure
has not stopped63.
The Um Al-Qura newspaper, first published in 1924 (1343 AH), was the earliest
newspaper established by the Saudi government in Makkah. It was the official
62
Al-Madinah Al-Munawwarah Newspaper, A Journey in the Thoughts of Abdullah Belkhair, No.
6226, 12 Rajab 1404 AH (17 December 1983). And Hafez, O. The Evolution of Journalism, Jeddah: Al
Madina for Printing and Publishing, no date [in Arabic].
63
1953 (1374 AH) was the real establishment of the independent media regulatory apparatus, when
King Saud bin Abdul Aziz issued a decree to establish the Directorate General of Radio, Press and
Publishing [Hafez, O. The evolution of Journalism, Jeddah: Al Madina for Printing and Publishing, no
date]. in 1962 (1381 AH), the Directorate General of Radio, Press and Publishing became the Ministry
of Information.
164
newspaper of the government. After its publishing, several other newspapers were
established64.
In the 1970s, there were two phenomena in the history of the Saudi press65. The first
was the trend toward printing the Saudi newspapers in English66. The second
phenomenon was the printing of some Saudi international newspapers and magazines
that were owned by Saudis from Egypt, Lebanon and Europe. Based on these
phenomena67, there was not as much focus from Saudi media on local matters as there
was on/and toward international level, not just politically but also in cultural heritage
values. This is one of the reasons behind the missing impacts of the media at the
national and local levels, especially in terms of cultural heritage values and the level
of awareness.
Nowadays, media operations are affected by their respective organizations rather than
a separate individual ministry. Due to the revolution of social media and technology,
each organization and institution has its own media department. However, the
importance of the MOCI lies in its responsibility, involvement and management of
some aspects of intangible cultural heritage such as folklore, literary clubs and other
cultural activities. Moreover, the MOCI is one of the main players because of its
64
Sawt al-Hijaz newspaper, which was issued from Makkah in 1932 (1350 AH), and changed its name
to the Albelad, and Al-Madina Al-Monawarah newspaper issued from Riyadh in 1953 (1372 AH), an
Al-Riyadh magazine which was issued in Jeddah in 1953 (1373 AH)
65
Mohammed Nasser bin Abbas, (1971) Brief History of the Press in the Kingdom of Saudi Arabia,
Riyadh, 1391 AH. And Al-Orabi Al-Harthy, (1985) Communication Policies in Saudi Arabia, Riyadh:
General Secretariat of the Supreme Council for Media.
66
Such as the Saudi Gazette, issued by the Okaz Foundation in Jeddah in 1976 (1396 AH) and Riyad
Daily by the Yamamah Foundation in Riyadh in 1986 (1406 AH). Prior to this, Arab News was issued
from London in 1975 (1395 AH) with a Saudi identity by the Saudi Company for Research and
Marketing.
67
Some scholars suggested that there is another phenomena beside these two, which is the rise of sports
journalists, or heads of sports departments to leading positions in the leading daily newspapers (Al
Saati, A. [1990]. Sports media in the Kingdom of Saudi Arabia, Jeddah: Dar Al Madani [in Arabic])
and (Junaid, Y. [1987]. Publishing in Saudi Arabia, Riyadh: King Fahad Library [in Arabic]).
165
impact on society in terms of enhancing and shaping public opinion through the media,
such as TV and radio programmes, movies and documentaries.
However, the main player within the MOCI’s structure68 is the cultural affairs sector,
which includes some departments such as the General Department of Cultural
Activities, the General Department of Libraries, the General Department of Heritage
and Folklore, and the General Department of Literary Clubs.
These main departments at the national level have representatives at the local level;
therefore, the departments have a vertically link with the national level. However, no
horizontal link exists between them at the local level, as the Direct General for the
MOCI branch in Ha’il said in an interview (26/8/2016).
At the local level, the MOCI focuses mainly on providing local news and events as
material for national departments with limited autonomy. The MOCI structure at local
the level is not clear, and most of the daily tasks consist of supplying national
departments with the latest news, events and reports. For example, the Director
General for the MOCI branch in Ha’il said, ‘Live broadcast is mainly a request from
the departments at national level as well as most of the reports’ (Direct General for
MOCI branch in Ha’il, interview, 26/8/2016).
The number of private media channels, such as province’s TV channels, other social
media channels and accounts for cities and societies and group channels69, especially
68
The MOCI includes different agencies and departments such as the Internal Information Agency
including the General Department of Publications, and the Department of Local newspapers. The
External Information Agency, the Ministry's Agency for Cultural Affairs (one of the most important
players in the cultural heritage), the Agency for International Cultural Relations, the Agency for
Planning and Studies and other administrative departments.
69
In Ha’il province, for example, there are a lot of private channels, such as Nailat TV, the Ha’il channel
for puzzles and poetry and Ain Ha’il channel, to mention a few.
166
those dealing with cultural heritage, has recently increased. This phenomenon
confirms the lack of coverage of cultural heritage within the government channels70.
Additionally, it confirms the broad demand for such channels71.
Ha’il Public Library, under MOCI responsibility, is one of the most effective tools for
providing knowledge about cultural heritage in Ha’il. However, its impact is
extremely limited and has no link with other players, whether internal MOCI
departments or external players, such as MOE, MOMRA and SCTNH. This gap in
integration between the departments within MOCI has participated in shaping the
main gap in understanding the values of cultural heritage.
A question was asked during the interview with the Director of the Department of
Folklore: ‘In your opinion, if there was an independent Ministry of Culture, would
your performance be better?’ The director responded, ‘Intangible heritage is dispersed
among a large number of departments and sections, it would be better to have one
ministry for culture, also the work will be organized more’ (Director of the Department
of Folklore, interview, 12/9/2016). This confirms that management of intangible
heritage is not organized considering its current position within MOCI structure. Lack
of connection between tangible and intangible heritage leads to a resulting gap not just
between tangible and intangible heritage but also to an increased gap in understanding
the values of cultural heritage within its real context.
70
BBC, for example, is following an approach that is based on specific news for a specific audience.
After broadcasting the national news, the channel turns automatically to local news based on the
location of the viewership. This approach allows the TV to send specific messages to specific people,
which is an opportunity to provide more specific information for specific targets, especially in terms of
public awareness.
71
However, according to the annual report for the Arab Satellite Broadcasting Union in 2014, there are
only 9 cultural channels registered out of 1294 channels (5/165 public sector channels and 4/1129
private sector channels), while the demand is still high.
167
However, in June 2018, a royal decree was issued which stated the following: First, a
ministry shall be established under the name ‘Ministry of Culture’ (MOC) and shall
transfer to it the tasks and responsibilities related to cultural activity. Second, the name
of the Ministry of Culture and Information shall be amended to the Ministry of
Information (MOI)72. This is a positive step toward specializing and giving space for
culture in the future, especially on the council of ministers where the power is.
Although it is early to judge this new ministry73, this ministry is involved in intangible
heritage, which should be integrated with tangible heritage. In other words, the MOC
should work closely with other main players such as the MOI, MOE, MOMRA and
SCTNH.
4.4.4 Saudi Commission for Tourism and National Heritage (SCTNH)
SCTNH is the most important player in development of cultural heritage due to its
present responsibility toward both tourism and heritage sectors. The development of
both the name and structure of this organization74 since its establishment in 2000 is
evidence of the importance that heritage has acquired in Saudi Arabia. These changes
72
Royal decree No. A/217 in 17/9/1439 AH (1/6/2018)
73
The royal decree said that: the Experts Committee in the Council of Ministers - in coordination with
the Ministry of Culture (MOC), and whoever sees it from the relevant authorities - within a period not
exceeding three months must do the following:
1. Complete the necessary procedures for the enforcement of this matter in relation to the transfer and
delineation of terms of reference, organs, employees, functions, property, items, appropriations and
others.
2. Review the regulations, orders and decisions affected by this order and propose amendments to
complete the necessary regulatory procedures.
74
In 17/4/2000, Council of Ministers Decision No. 9 was issued to create the SCT to adopt tourism as
a key productive sector. Then, in 30/4/2003, a royal decree No. A/2 was issued to combine the Agency
of Antiquities from the MOE with the SCT, which meant the SCT became responsible for the antiquities
sector, along with the tourism sector. In 24/3/2008, the Council of Ministers changed the name of the
SCT to the SCTA, which confirmed that tourism in Saudi Arabia had become a national reality and
required the formation of a government agency responsible for planning and developing tourism and
antiquities. In 28/6/2015, the cabinet approved the amendment of the name SCTA to SCTNH, which
meant that antiquities became a part of the national heritage, which included architectural heritage and
other sectors such as handicrafts (www.sctnh.gov.sa and others).
168
impacted the policies, power and responsibilities that were moved from other
organizations to become core tasks for this new organization.
SCTNH is one of the most dynamic government bodies in Saudi Arabia, not just
through the development of its name (SCT, SCTA then SCTNH) but also through its
initiatives and programs75. Because of the dynamics within this newly formed body,
some difficulties have arisen in dealing with other government partners, as well as
establishing policies, regulations and laws in the area of cultural heritage.
SCTNH is classified as a general authority within Saudi government structure, which
is lower than a ministry, as mentioned early. In that sense, SCTNH has no
representative in the Council of Ministries, which means less power whether
financially and administratively. For example, being in this council gives you short
line to approve any requirement or change, especially in terms of laws and regulations,
which SCTNH suffers from it76. This position has impacted its performance in dealing
with other organizations, particularly in terms of power and budget. This causes
SCTNH to spend more time enhancing other organizations instead of focusing on its
tasks, such as pay more attention towards developing cultural heritage.
75
According to the “Initiatives and Programmes of Saudi Commission for Tourism and National
Heritage” report in 2016, SCTNH classified its initiatives and programmes into twenty-two categories.
Antiquities and Museums and Handicrafts and National urban heritage are on the list (SCTNH, 2016:
12).
76
According to a speech from SCTNH President; HRH Prince Sultan Bin Salman, in more than one
place (see SCTNH’s channel on YouTube, for example, at Saudi Commission for Tourism and
National Heritage's Official Channel @YouTube).
169
In the beginning, SCTNH established cooperation agreements77 and tourism
development councils in the provinces78 to begin the development journey. In SCTNH
(Figure 4.7), the main departments involved in cultural heritage development are as
follows: The National Urban Heritage Centre79, the Planning and Monitoring
Department80, the Antiquities and Museums sector81, the Region sector82 and
Handicraft Program (Bari)83.
At the local level, SCTNH created a branch in each province, with each branch
reporting back to the region sectors at the national level. However, the number of staff,
whether in the local branches or in SCTNH as a whole, is limited when compared to
other organizations such as MOMRA and the MOE. The type and size of workload
from the tourism and heritage sectors is over capacity of the organization. These local
branches of SCTNH deal mainly with tourism, according to the purpose behind
creating of the SCT. By the time the SCT became SCTNH, more tasks were added;
thus, more qualified staff and bigger budgets were required to develop cultural
heritage, particularly architectural heritage.
77
SCTNH is the only government body that signed more than eighty-four agreements with other
government bodies; this approach allowed the SCT to build bridges with stakeholders, even though
these agreements were general (www.sctnh.gov.sa).
78
The tourism development councils in the provinces were the administrative framework through which
the SCT tried to pass its initiatives and projects. More than thirteen tourism development councils are
distributed over regions in Saudi Arabia.
79
The National Heritage Centre includes two departments, the documentation and preservation
department and the rehabilitation and development department
80
The planning and monitoring department is under the assistant to the president unit that is included
in this department, besides the international cooperation department.
81
This sector is mainly the antiquities department that merged into the SCT from the MOE. This sector
included the following departments: antiquities registration and protection, research and studies,
museums, national museums and world heritage sites.
82
The regions sector supervises the branches in the provinces; this means all branches refer to the
regions sector.
83
Bari is an individual program or unit that refers to the president. It involves the development of
handicrafts programmes and projects, often with outsider SCTNH.
170
At first, the concept of tourism was not fully accepted by the majority of communities
in Saudi Arabia, due to some misunderstanding. With time and huge efforts from the
SCT, tourism has been accepted, to some extent84. However, the image of cultural
heritage provided by SCTNH remained within the tourism framework, even after
adding antiquities and national heritage. This caused a strong link between tourism
and heritage, to the point where they were even considered one and the same. This
perception impacted not only the communities but also the stakeholders, key players
and heritage.
84
The tourism in Saudi Arabia was not an easy task to deal with before and even after the establishment
of the SCT in 2000 (HRH Prince Sultan bin Salman, president of SCTNH).
171
Board of Directors
Board Secretariat Internal Audit
SCTNH President Handicraft Program
(Bari)
National Urban Heritage Centre Assistant to President President’s Office
Documentation & Preservation Planning & Monitoring Legal Affairs
Rehabilitation & Development International Cooperation Media and Public Relations
Support Services Regions Antiquities & Museums Tourism Investment & Development Marketing and Programs
172
Finance Riyadh Makkah Antiquities Registration and Tourism Investment Marketing Communication
Protection
Human Resources Development of Tourist Sites Information and Tourism
Al Eastern Research Centre (MAS)
Madinah Province Research & Studies
IT Licensing
Aseer Qaseem Museums Programs and Products
Contracts & Procurement
National Project for Tourism Human
Jazan Hail National Museum Resources Development (Takamul)
Administrative
Development World Heritage Sites
Najran Tabuk
Engineering and Technical
Services Al Baha Al Jouf
Figure 4. 7 SCTNH structure highlighting the main players (SCTNH, 2018).

Northern Border
4.5 Lessons Learned from Relevant Experiences
Examining other relevant experiences, such as those in Jordan and Egypt, is just as
crucial as identifying the main players in the development of cultural heritage in Saudi
Arabia. By examining how organisations work together, as in Historic Cairo, or cases
in which new organisations are established, such as in Petra, a better understanding of
the development of culture heritage is formed.
In spite of the different organizational structures that have been formed to develop
cultural heritage, the roles of non-governmental organizations (NGOs) like English
Heritage Trust85 and the management within government structures as seen in
Malaysia86, developing countries in the Arab world are struggling with these structures
and approaches. In spite of the understood importance of NGOs, not just in Saudi
Arabia but also in most other GCC countries NGOs have had no clear function
especially within government bodies which sought to contain their potential
contribution and participations. Indeed, heritage through a bottom-top approach would
85
English Heritage Trust (known as English Heritage) is a registered charity that manages the National
Heritage Collection, shaped originally in 1983 ("New Era for English Heritage," English Heritage.
English Heritage Trust: 2015). English Heritage was the operating name of an executive non-
departmental public body of the British Government, officially named the Historic Buildings and
Monuments Commission for England, which ran the national system of heritage protection and
managed historic properties (english-heritage.org.uk). Its purpose was to join the roles of existing
bodies that had emerged from a long period of state involvement in heritage protection (english-
heritage.org.uk). In 1999, as a step forwards, the organisation merged with the Royal Commission on
the Historical Monuments of England and the National Monuments Record. Recently in 2015, English
Heritage was divided into two parts: Historic England, which inherited the statutory and protection
functions of the old organisation, and the new English Heritage Trust, a charity that would operate the
historic properties (Lean, G. [2015]. Does our history have a future in the hands of the English Heritage
Trust? The Telegraph. [Online] 28th February. [Accessed on 10th February 2018]
http://www.telegraph.co.uk/news/earth/environment/conservation/11441254/Does-our-history-have-
a-future-in-the-hands-of-the-English-Heritage-Trust.html).
86
The Ministry of Tourism and Culture (MOTC) in Malaysia has three main deputies, namely tourism,
culture and management (Appendix 4.G). The Ministry Deputy of Management plays the main role,
especially that of dealing with conflicts. It also links internal and external stakeholders to minimise the
conflicts. It needs further evaluation for a conclusion to be made about its impact; however, the
management task within the organisational structure is appreciated and leads to tourism and culture.
173
be more successful, particularly when a programme of events or cultural performances
are connected to urban heritage assets. However, given the institutional framework
within which local participation and NGO involvement currently operates, the level
of local participation has remained low. This objective should, and indeed could be
achieved by increasing the involvement of local community participation, particularly
within HCD model as illustrated below (see 4.6.1). In Saudi Arabia, there is an urgent
need to organize the management of its rich cultural heritage to avoid any heritage
loss.
4.5.1 Historic Cairo
Historic Cairo is an example of how an organization’s structure plays an important
role in heritage management both in the creation and implementation of policies.
Sedky (2009: 32) divided the main players in Historic Cairo into three types: the ‘U’
group which contained the occupants and users, the ‘N’ group comprised of
government institutions and the ‘W’ group, or worldwide interest group, comprised of
concerned individuals and international organizations. In the ‘N’ group are ten
bodies87 involved in the development of Historic Cairo. There are two and three bodies
for the ‘U’ and ‘W’ groups, respectively88. This classification does not help identify
87
Localities (coordinated by the Ministry of Localities), Cairo governorate with its different
departments, Ministry of Housing: GOPP, Fatimid Cairo Organisation, Arab Contrplayers, Arab
Bureau, and the Institute of Housing Research, Ministry of Culture: Historic Cairo Organisation, Project
Department (Idarat al-Mashru‘at), SCA, Ministry of Awqaf (religious endowments), Ministry of
Tourism, Ministry of IT and Communication/Bibliotheca Alexandrina, Cairo University: ECAE, the
Architectural Design Support Centre (ADSC) and individual university staff as consultants drawing the
detailed planning for GOPP and the Cairo governorate, commissioned consultancies for area
conservation projects: Mashrabeya, FEDA (associated with some research centres in Ain Shams
University), AKCS-E, ARCE, and the American University in Cairo (AUC), Ministry of Social Affairs,
Ministry of Environment and Legislation (Sedky, 2009: 127)
88
“U” group contains community members and representatives and community-based organisations
and NGOs such as al-Darb al-Ahmar Development Limited, Near East Foundation (NEF), Fatimid
Cairo Development Agency (FCDA), and Administrative Control Authority (ACA). “W” group
174
the conflicts between the national and local levels, especially in terms of the
relationship, regulations and implementations. However, it shows the number of
players in heritage development projects. Irrespective of its size, the same concept
applies on Saudi case, and it is centred on two factors: the site and players within an
organizational structure.
The Cairo governorate is a government municipal body that controls, manages and
monitors any urban upgrading project within Cairo’s boundary. It is the main player
in the Historic Cairo project89. Merging the governorate with the municipality in one
body, as seen in Cairo, is a noteworthy approach. In Saudi Arabia, they are two
separate bodies, but merging the two might reduce the conflicts between the
governorate and municipality in terms of the decision makers. Although it would not
remove this conflict completely, the co-existence of the governorate and municipality
in one body seems more practical than their existence as separate entities. As Sedky
stated, ‘Most of the problems and decision-making are handled in the governorate and
not in the local municipal body’ (Sedky, 2009: 133). In other words, there is a gap
between the national and local levels that affects heritage management, one of these
causes of the gap is the location of knowledge and power between players.
In terms of knowledge and power as one of the main causes of these conflicts, Sedky
confirmed that the governorate planning staff does not have enough awareness of the
architectural and urban values in Historic Cairo (Sedky, 2009: 135). This is not
includes UNESCO, ICOMOS and Foreign Aid Agencies such as JICA (Japan), the Italian ministry of
foreign affairs and GTZ (Germany) (Sedky, 2009: 128).
89
The deputy governor is known as the head of the hayy (a small administrative branch of the
governorate located in the district). The localities are composed of executive councils, controlled by the
hayy, which reports directly to the governorate (Attia, 1999:116)
175
exclusively in architectural and urban values but also it is extended to other values
such as authenticity, integrity and sustainability; thus, the impact will reach the urban
cultural heritage context. In other words, this situation shows the importance of
combining knowledge and power at both national and local levels.
Beside knowledge and power, the situation is slightly different than the Saudi case in
terms of the Ministry of Tourism (MOT), as with other key players in the heritage
sector. For example, the main tasks for the MOT in Egypt focus on tourism promotion,
such as tourist programs and adding locations to the tourism map, including Historic
Cairo. In other words, the MOT answers the questions of where to go and what to do.
In Saudi Arabia, however, SCTNH plays a role that goes beyond facilitating tourism,
due to its responsibility to national heritage, with more intersections with
municipalities and other players, whether in regulations, planning or implementations
at different levels and ways. In addition, the expanded tasks could be a cause of
conflicts within the organization itself. For example, within SCTNH the relationship
between departments is not always helpful ‘there is still conflicts between the
departments, especially towards levels of participation from local communities, in
spite of clear instructions from higher management’ (Director of the World Heritage
Centre in SCTNH, interview, 14/6/2016)
Another player in Historic Cairo is the Ministry of Culture (MOC) 90. Four divisions
within the MOC are involved in the project91. One of them is the Supreme Council of
90
It was established after the 1952 revolution; before that, only the Ministry of Education and Culture
managed pre-Islamic monuments, while Islamic monuments were under the Ministry of Awqaf
(religious endowments) (Ministry of Awqaf, 1999).
91
The Ministry of Culture in Egypt includes the SCA, the Project Department, the Historic Cairo
Organisation, and the Office of the Minister of Culture (who heads the SCA) (Sedky, 2009).
176
Antiquities (SCA), which is concerned with safeguarding heritage and focusing on
archaeological and historical values. The staff of the SCA specialise in ancient
monuments and antiquities. This is the same of the antiquities department in Saudi
Arabia, reflecting what Sedky referred to when he argued that the staff of the SCA are
qualified to address only the archaeological sites but not to manage heritage sites, a
completely different task (Sedky, 2009: 160). Issues arise, especially in cultural
heritage values and contexts, when these specialists lead heritage management and
development, as has been seen in Saudi Arabia since the 1970s. Even with the creation
of other bodies, such as the Historic Cairo Organization, the SCA staff’s lack of
expertise in heritage sites management still exist. Despite the potential for tourism and
other fields (Historic Cairo, 2002), Historic Cairo is identified mainly as a collection
of monumental sites.
All the organizations that mentioned above were at the national and local level. In
terms of the international level, however, Historic Cairo was connected with
international organizations in the early stages. For example, Egypt requested
international assistance more than seven times since 197992. This connection with
international organizations helped to consider community as the most important player
in heritage development. For instance, the Cairo governorate established an informal
cooperative relationship with the governorate’s representative, the head of the hayy,
to ease the resolution of municipal issues, such as development censuses and
coordination with the governorate’s agenda for infrastructure. Multi-level
participations; whether from international organizations or from local level
92
Consideration of technical co-operation request in 1979, Technical co-operation request in 1981,
request for international assistance in 1992, request for international assistance in 1995 and 1998.
(UNESCO, 2018)
177
particularly, such as head of the neighbour, is an approach to reduce conflicts as well
as increase the level of awareness. Such what happened in Historic Cairo is an
approach to confirm the importance of communication between different players at
different levels (international, national and local) to avoid conflicts and process
duplication.
4.5.2 Petra
The Jordanian experience, especially in terms of empowerment and participation of
local communities, includes models from multiple project, such as Petra, Alsalt, Um
Qais and Ajlon. For example, the local community in Petra is part of the decision-
makers of the Petra Development and Tourism Region Authority (PDTRA) and is also
involved in implementations and investment within the site.
In the Petra, the development of laws and regulations93 led to the establishment of the
PDTRA, and these laws were reflected in the organization’s structure. The Petra
Region Authority Law (PRAL) contained important regulations and guidelines94 that
helped to manage the site comprehensively. For example, the beginning the law
identified clearly the development area95 and set the objectives. In terms of
participation from the local community, in article 6, the six numbers from the local
community were included on the council, three of whom were required to have higher
education qualifications. The local community members constituted half of the
93
One of the notable efforts in Jordanian experience is the development in the laws and regulations, in
addition to what mentioned in the previous chapter, the Petra Law was modified many times in 2001,
2005, 2009, 2014 and 2016. Modification in the law means there is a feedback from real
implementations.
94
The law was established in 2005 to replace the previous temporary law No.36 in 2001.
95
The total preserved area is 261 km2 (Appendix 4.D). And the Article 3 identified the whole area which
includes 40 sites.
178
council, which has regular meetings at least once a month (Article 7). The council also
had the right to call any expertise and specialist to attend its meetings to seek their
views on the issues (Article 8).
As seen here, creating a specific organization to a specific area or mega project is
another approach toward cultural heritage management and development, especially
at the organization structure level thus laws, regulations and implementations. This
concept was applied when the Jordanian government established the PDTRA (Figure
4.8) to manage the heritage site officially in 200996. Establishing one organization for
the site, as seen in Petra, reduces conflicts between organizations, especially in terms
of decision-making and implementation. However, this approach is not applicable
everywhere and could affect other potentials of small sites, specifically the sites that
still have connections with local communities. For instance, cultural heritage, both
tangible and intangible, will be affected, such as what happened in other heritage sites
like Al-Salt and Um Qais97. It is impossible to establish an authority for every single
heritage site, but some mega projects need to follow this approach. On the other hand,
it is beneficial to implement the concept of mega project on a province level through
considering whole province as one mega project.
96
In the early stages, the site was managed by different authorities with conflicts. Due to some support
from international organisations such as UNESCO, ICOMOS and others, Jordanian government
thought the current approach was not practical, especially based on recommendations provided by
international organisations such as UNESCO and ICOMOS.
97
Ababneh (2016) concluded that “Those involved in the site’s management face challenges of
protection, management, and interpretation, while addressing concerns and values associated with
historic and archaeological resources and significances attributed by those living adjacent to the site
and dealing with increased numbers of tourists.” Ababneh, A. (2016). Heritage Management and
Interpretation: Challenges to Heritage Site-Based Values, Reflections from the Heritage Site of Umm
Qais, Jordan. Archaeologies, 12(1): 38-72
179
Figure 4. 8 Petra Development and Tourism Region Authority (1st, 2nd and 3rd levels)
180
4.5.3 Learned lessons from Petra and Historic Cairo
Both cases, in Egypt and Jordan, provide inspiring examples regarding the importance
of the local communities, not only their participation but also their empowerment at
different levels, whether in law, policies, planning, development or implementations.
Besides other benefits, it is helpful to highlight some from both experiences.
Merging the governorate with municipality in one body is an approach to managing
cultural heritage sites. In addition, the problems and decision-making are handled in
the governorate, not in the local municipal body, which raises the question of the
competency of the staff. Power and knowledge conflicts are the main issue to
managing cultural heritage, especially when governorate planning staff does not have
enough awareness of architectural and urban values. The SCA staff are qualified in
addressing only the archaeological sites, but not in managing heritage sites. The
problem is when these staff lead heritage management for a long time, as happened in
the Saudi case. Even with creating another body, such as the Historic Cairo
organization, the impacts of the SCA staff were still there. The communications
between players, such as scheduled meetings, is significant and should be clear and
compulsory during any development.
Establishing a specific organization for a mega project is another approach, as seen in
Petra. However, it is not applicable to and could affect other individual sites. Level of
participation and empowerment in the governmental structure should be considered in
any project. The concept of mega project could be implemented at the province level
when considering the whole province as a one mega project.
181
The importance of Community participation in different levels and stages is clearly
seen in Petra. This participation impacted effective management of cultural heritage,
whether in merging power and knowledge in one body or empowering the decision-
makers at the local level. In other words, the development in the laws and regulations,
frequently based on feedback from implementations, decreased the gap in
understanding the values of cultural heritage.
In summary, management of the Historic Cairo is followed the approach of multi
players with multi functions. This approach can be beneficial when the management
considers the whole players and their involvement within a well comprehensive plan.
By applying this approach, the benefits will also impact the players, especially local
communities. This approach allows the players to be effective in development plans
particularly in the implementation stages at the local level. The challenges of this
approach, however, were in the conflicts between different players, mainly from the
background of the specialists such as SCA’s staff towards antiquities. Due to this
challenges, some cultural heritage values were dominated the others, on the other
hand, there were another players who treat this challenge through their involvement in
the development plans.
In Petra, the approach was different, because the concept of mega project was the
approach that applied. This approach was implemented through establishing an
independent authority to manage the site. Full control was in the hand of this authority,
which reduces the conflicts between the players, also enhances the plans to be
implemented faster. The level of participation from local community within this
authority allows them to be involved effectively in the development project. The
challenges of this approach, however, were in the difficulties in applying it on every
182
urban cultural heritage site. In addition, this approach made the site semi isolated from
other urban cultural heritage sites and communities in Jordan due to this unique theme
in the laws, organizational structures and implementations. This theme impacted the
Petra to be a well preserved and managed site, on the other hand, the smaller heritage
sites are not connected with this site, especially in terms of heritage values which
might be made mega project is valuable than the smaller sites.
Historic Cairo and Petra are different approaches of managing the urban cultural
heritage sites. However, in Saudi case it is beneficial to merge these approaches to
create a new relevant approach that suitable for Saudi context. For instance, this new
approach should invest different players’ involvement through merging the power and
knowledge at local level especially under governor of the province, with high level of
participation from local community as well as other players such as MOMRA,
SCTNH, MOCI and the MOE.
These lessons need to be understood and reflected on by the main players in any
cultural heritage development. These practices in Jordan and Egypt have cast light on
crucial concepts, such as organizations’ capacity and capacity of knowledge, which
will be discussed later.
4.6 Organizations’ Capacity
Each organization has its own tasks, which are categorised in terms of priorities. For
example, MOMRA has a different perspective than SCTNH in developing a city
centre. MOMRA approached this project based on its function and administrative
183
structure, which include licensing, municipality services and investment98. SCTNH,
on the other hand, sees this development as an opportunity for cultural heritage, or
managing cultural heritage values within their context.
Both organizations need each other. MOMRA needs experts and knowledge to deal
with heritage sites, and SCTNH needs the administrative framework and power. For
example, in terms of investing an architectural heritage building as a private museum,
MOMRA has no regulation to manage this type of investment, while SCTNH can issu
licenses. The Director of Planning and Development in Ha’il Municipality clarified:
‘The private museums are mainly a house or part of house [private owner], in order to
licensing this investment activity, we face problems in categorising this kind of
investment. For example, it needs to be consider according to the area whether
commercial or residential because each type has different regulations such as the depth
of the street and number of parking, etc.’ (Director of Planning and Development in
Ha’il Municipality, interview, 26/8/2016). The power and knowledge of the two
organizations must be merged to serve cultural heritage sites, because the gap in
capabilities is not just between MOMRA and SCTNH but is also amongst other key
players.
4.6.1 Knowledge capacity
MOMRA owns most of the heritage sites within cities; however, it has no department
involved in the development and management of heritage sites at the national and local
levels. SCTNH has a general department comprised of a small number of qualified
98
Licensing from the department of licenses, municipality services from different departments such as
monitoring department and cleanness department, investment through the income department and
investment department.
184
staff involved in developing and managing the heritage sites, but it has no power or
control of these sites. According to Orbasli, ‘The availability of sufficient knowledge
and understanding of the building and its context will assist in informed decision
making’ (Orbasli, 2008: 87). Both the understanding and the knowledge are crucial to
interpret correctly both building and its context, this relationship plays main part in
managing urban cultural heritage. In this sense, heritage sites are impacted by the
existence of all required expertise. To avoid this misunderstanding, the gap in
knowledge base and power between the key players must be filled. Integrating the
power and knowledge of MOMRA and SCTNH is an initial solution aimed at
establishing basic foundations, which allow the other players to be smoothly integrated
and participate in comprehensive plans and management, with clear tasks and targets.
Heritage sites should be managed and developed consciously with power. In this
sense, SCTNH provides the knowledge, and MOMRA has the power99. These two
elements must be integrated. In theory, there are three options to achieve this;
however, in practice each of these options has its advantages, disadvantages and
challenges (Table 4.1).
Option one consists of creating an agency in MOMRA at the national level, with
general departments at the local levels, that develops heritage sites. Some staff would
be transferred into these departments from SCTNH.
99
Powers in a different way. For example, in the work forces, MOMRA had more than 40 thousand
employees according to the statistics in 2014, while SCTNH had no more than 1,5 thousand in 2016.
Another power is the annual budget; MOMRA had about 39 billion SR ($10.4 billion) and 40 billion
SR ($10.6 billion) in 2014 and 2015, respectively, while SCTNH had 814 million SR ($217 million) in
the same years. In 2017, the MOMRA budget was 55 billion SR ($14.6 billion).
185
Option two entails the transfer of powers to SCTNH. This option has some advantages,
disadvantages and challenges (Table 4.1), probably more than option one. Both
options one and two lead to centralised decision-making, which causes delay in
progress and solutions based on the administrative system rather than creative
solutions and approaches based on the peculiarities of the sites.
Option three (Table 4.1) involves the application of the concept of ‘sharing’, especially
the benefits of sharing to the public. Concept of sharing includes sharing benefits as
well as responsibilities from both organizations and community. In this option, the
requirements of heritage sites in terms of preservation, planning, development and
monitoring must be considered, based on the heritage values within its context. One
of the best ways to apply the concept of sharing is by taking advantage of the elements
and opportunities of the current status, especially in organizational structure. All the
above options can be applied, in theory. One of the most practical solutions is
identifying a player that integrates power and knowledge and can manage conflicts in
a way that is acceptable to all stakeholders (Figure 4.9).
186
Table 4. 1 The advantages, disadvantages and challenges of the options
Options Advantages Disadvantages Challenges
 Needs time  Administrative

 Ready to apply  Needs more efforts structure and
 Less administrative  Needs more qualified management
conflicts staff in different fields  Level of the
 Broader coverage for
Option 1
 Cost money awareness

provinces  Conflicts with the  Limited
 Benefits of other 2014 law experiences
municipality services  The difference in
employees
regulations
 Difficulty in
 More qualified staff  Needs more time than covering all
 More experiences in option 1 provinces
managing heritage sites  Cost more money than  Transferring the
Option 2
option 1 powers
 Less administrative  The difference in
experiences employees
 Heavy load with regulations
limited staff
 New
 Ready to apply  Difficulty in applying administration
 Fast track new administration culture
 Less budget culture  Conflicts
Option 3
 Lack of clarity of between

rights and duties members
especially in the
middle administrative
level
187
MOMRA SCTNH Government

(Power) (Knowledge) Body
Figure 4. 9 Position of a government body to fill the gap between ‘power’ (MOMRA)
and knowledge (SCTNH) toward cultural heritage management and development at
the local level.
This could be done by further developing the structure of some authorities, especially
the High Commissions for Development (HCD) of provinces such Riyadh, Makkah
and Ha’il100. These commissions are independent bodies under the governor of the
province, and they are powerful at local level. Each of these commissions has its own
objectives101; however, development management is a core task for all of them,
especially in urban, social and cultural fields.
100
The High Commission for the Development of Arriyadh, known as the Arriyadh Development
Authority (ADA) was established in 1983. The Makkah Region Development Authority (MRDA) was
established in 2000. The HCDH was established in 2002. Almadinah Almunawarah Development
Authority (MDA) was established in 2010. The High Commission for Development of Eastern Region
(HCDE) was established in 2015, and the High Commission for Development of Aser was established
in 2018.
101
The main objectives for the commissions are as follows: The ADA aims at the comprehensive
development of the city of Riyadh in the fields of urban, economic, social, cultural and environmental
management and protection and providing the city's needs for public facilities and services.
(ada.gov.sa). The MRDA will develop and update the structural plans of the city and the holy sites in
general, detailing the central area and the mechanisms of its implementation as well as coordination
between the authorities responsible for the planning and implementation of Makkah and holy places
(mrda.gov.sa). The HCDH aims to achieve comprehensive development in the Ha’il region in terms of
social and economic development, while preserving the environment, to achieve well-being and a
188
As seen in the HCDs structures (Appendix 4.E), each commission has its own
structure, with common departments such as the commission council, planning and
development department, studies and design department and projects management
department. These common departments reflect the objectives of these commissions
especially in terms of the development of provinces. Unfortunately, a department for
cultural heritage management and development does not exist; cultural heritage has
no input in the development plans in the provinces. The participation of cultural
heritage development within these commissions should take place through the
inclusion of heritage within the common departments, in addition to the adviser’ unit
and the commission council. For example, the commission council should include
experts on heritage management as well as members from the local communities. This
is one of the lessons learned from other experiences such as in Petra and Historic
Cairo. Therefore, as a result of the organizational structure in Saudi Arabia, authorities
can serve as a link between power and knowledge. This could reduce the gap between
MOMRA and SCTNH which are the most effective players in heritage development
(Figure 4.10)
decent life for the individual and society (hail.org.sa). The MDA develops comprehensive plans for the
development of Almadinah Almunawarah for at least twenty years (mda.gov.sa). The HCDE aims to
achieve the comprehensive development of the region in the areas of urban, economic, social, cultural
and environmental management and protection and provide the region's needs for public facilities and
services in accordance with the highest international standards and the optimal investment of technical
and financial resources, and in partnership with the relevant parties (hcd-east.sa).
189
HCD in the provinces
structures.
Board of Directors
The Minister
(MOMRA)
SCTNH President Handicraft Program
(Bari)
Deputy National Urban Heritage Centre Assistant to President

Deputy
Ministry for
Ministry for Documentation & Preservation Planning & Monitoring
Planning and
190
Cities Planning
Programmes Rehabilitation & Development International Cooperation
Urban Design General Regions Antiquities & Museums

Department Department of
Budget
General Department Riyadh Makkah Antiquities Registration and
of Urban Studies General Protection
Department of
Al Eastern
General Department Planning Research & Studies
Madinah Province
of Local Planning
General Museums
Aseer Qaseem
General Department Department of
of Transport Investment National Museum
Jazan Hail
Planning and Development
Traffic Engineering World Heritage Sites
Najran Tabuk
Expropriation Unit
General Department
Al Baha Al Jouf
of Project Statistics
Coordination Department
Northern Border
Figure 4. 10 The link between main players in the SCTNH, MOMRA and HCD
The objective of this link between MOMRA, SCTNH and HCD is to invest the
knowledge and powers of organizations to serve both tangible and intangible cultural
heritage. However, the providers of knowledge and resources must participate in
implementing the knowledge in the right position within this structure.
4.6.2 Knowledge resources
The resources of knowledge allow organizations to increase their knowledge, and it is
crucial to highlight these resources and the type of cultural heritage with which they
are concerned. Universities and schools, as well as other regional and international
experts and consultants, are the main providers of knowledge for the future. Schools,
unfortunately, do not adequately cover heritage topics, especially within the
curriculum and non-school activities. This was especially the case during the period
when antiquities management was under MOE supervision. Another knowledge
resource is the qualified staff from universities who are experts in the heritage fields,
but this is extremely rare.
Again, regarding education, tourism and antiquities, colleges have been established in
Saudi Arabia102 in the last fifteen years through support from SCTNH. However, all
these colleges programs fall under the categories of antiquities or tourism, while
102
In 26/9/2005, King Saud University established the Tourism and Antiquities College, with three
departments as follows: The Antiquities Department, Tourism Management and Hotels Department and
heritage resources management and Tourist Guide.
In 6/2/2007, King Abdulaziz University established the Tourism College, with two levels of degrees:
diploma degrees in Tourism and Travel and Hotel and Hospitality, and three bachelor degrees, which
are the Hospitality Management Department, Tourism and Travel Department and Events Management
Department.
In 2009, the University of Ha’il and University of Jazan established tourism colleges. The University
of Jazan focused on the antiquities department and tourism management department under its human
science college. Ha’il University focused on three tracks, within the arts college and under the
antiquities and tourism department: antiquities and heritage sources management section, tourism
management and events section, hotel management section and tourist guide section.
191
architecture schools are still non-existent. Linking heritage strongly with tourism,
without being aware of the differences in heritage values and its context, is an issue,
particularly in terms of understanding the relationships. In other words, architecture
schools103 need to play a role in providing specialists of architectural heritage that
understand the different contexts of urban cultural heritage. Otherwise, the situation
of the antiquities department, as seen under the MOE, could be repeated.
Besides schools and institutes of higher education, institutions that are involved in the
heritage field must be established, especially through the Technical and Vocational
Training Corporation (TVTC)104. These institutions could teach the technique of using
local building materials, preservation techniques and other skills, all at a diploma level
where the shortage is. These institutions and centres could provide qualified staff in
different ways and levels, thus, contributing to the heritage sector by providing the
required skills and competencies. As Orbasli concluded: ‘The historic buildings of
Saudi Arabia's northern Red Sea coast are faced not only with redundancy but also a
shortage of skills needed to realize their repair.’ Furthermore, ‘Training programmes
for local craftsmen must be instigated to enable them to regain skills in traditional
building and repair techniques’ (Orbasli, 2009: 62). By protecting and developing the
skills of traditional buildings techniques through the TVTC and other bodies, the
shortage of capabilities could be decreased, and several programs could be launched
in to serve cultural heritage in this way. The gap in understanding the values of cultural
103
There are more than ten architecture departments in the Saudi universities, such as the school of
architecture in Umm Alqura University (1988), King Saud University (1983), King Abdulaziz
University (1975) and King Fahad University (1981).
104
This opportunity came when the Ministry of Planning tried to plan the development in Saudi Arabia,
especially in the Five Year Development Plans as mentioned in the previous chapter (6.1).
192
heritage could be a result of the shortages in qualified local labours especially in the
skills of traditional buildings materials and techniques.
Balance between different educational levels, from a diploma to higher education must
also be achieved in order to address the issues mentioned previously, especially
concerning the issue of traditional building materials and techniques in Saudi Arabia.
After receiving knowledge from qualified staff at different levels and subject
expertise, the implementation of these outputs needs to be considered. In other words,
taking action in the right direction would be easier and more acceptable from different
stakeholders due to level of understanding the values of cultural heritage provided.
Because of the development in laws, cultural heritage must be an objective for all
organizations that are involved in managing cultural heritage. The development in
laws, policies and regulations must be reflected in organizational structures.
Moreover, this development should be reviewed regularly. For example, the
development in cultural heritage within the tourism industry is one of the main targets
for SCTNH. However, other players such as MOMRA, the MOE and MOCI must
participate so that development is constant rather than occasional. The responsibility,
therefore, within one organization must be known for both the organization itself and
others, otherwise it could be a reason to create a conflict. For example, SCTNH’s
responsibility toward heritage and tourism is a serious risk that can cause a lack of
connection between organizations due to the lack of clarity in managing these sectors.
Cultural heritage should be on the national and local development plans like economic,
health and services sectors.
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The main players in the development of cultural heritage in Saudi Arabia (MOMRA,
the MOE, MOCI and SCTNH) should be linked nationally and locally through sharing
the development of cultural heritage as a target within their plans and projects.
MOMRA and SCTNH are the cornerstone of this shared development. They hold the
power and knowledge necessary for the development of cultural heritage.
By establishing another player at the local level, the power and knowledge could be
managed appropriately, since local requirements are more appreciated by local
governors than national organisations, whether for heritage sites, staff, development
plans, projects or budgets. The HCD in the provinces could be this player, focusing on
the local level with respect from the national level. The HCD is supposed to be the
leader of local development due to its power and responsibility, and it could also be a
leader for the connection between stakeholders, such as government and non-
government organizations and the local community. The HCD could also reduce the
power imbalance between MOMRA and SCTNH. One table for all local projects
provided from HCD at province level can be an approach to avoid duplicated processes
before any development; it can also be used as an opportunity to share plans with
different stakeholders.
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Chapter 5: The Implementations
5.1 Introduction .................................................................................................... 197
5.2 Listing - Between Protection and Action ..................................................... 201
5.2.1 The Criteria for Classification and Selection of Heritage Sites in Saudi
Arabia .................................................................................................................. 202
Criterion 1: The Age ........................................................................................ 203
Criterion 2: The Historical Importance (Historical Event) ............................. 205
Criterion 3: The Rarity .................................................................................... 207
Criterion 4: The Status (Demolition Percentage) ............................................ 209
Criterion 5: The Urban Heritage Style ............................................................ 211
Criterion 6: The Architectural Design and Details ......................................... 212
Criterion 7: The Possibility of Investment ....................................................... 214
The Additional Criteria .................................................................................... 216
5.3 The Limitation and the Impacts of the Criteria .......................................... 219
5.3.1 The Integration Between Criteria ............................................................. 220
5.3.2 Distribution of Weights ............................................................................ 221
The distribution across the criteria .................................................................. 222
The Distribution within the Criterion Itself ..................................................... 223
5.3.3 The Terminology Used ............................................................................ 224
5.3.4 Additional Limitation ............................................................................... 225
The Overlooked Role of Intangible Cultural Heritage .................................... 225

The Values Ensuing from the Criteria ............................................................. 227
5.4 Case Study: Barzan District Area in Ha’il City Centre ............................. 229
5.4.1 Introduction .............................................................................................. 229
5.4.2 Ha’il’s Diverse Architectural Heritage .................................................... 231
5.4.3 Barzan District Area ................................................................................. 235
5.5 Criteria Underlying the Classification and Selection of Barzan Heritage
Area For the purpose of Conservation and Development .................................. 240
5.6 Examples of Exclusion of Some Cultural Heritage Values in Barzan District
.......................................................................................................................... 242
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5.1 Introduction
Extending from the laws and organizations chapters, and taking the Ha’il region in
Saudi Arabia as a case study, this chapter explains how heritage management and
tourism have been implemented in Saudi Arabia in general and in Ha’il, in particular.
This establishes the importance of the values of cultural heritage in Ha’il and its
economic and cultural potential, as well as aid understanding of the obstacles which
stand in the way of its development. Furthermore, the chapter identifies ways not just
to protect and conserve Ha’il’s cultural heritage site, but also to make it attractive and
relevant to its values. This chapter begins by highlighting the immediate actions for
the process of implementation that has been applied in Saudi Arabia by SCTNH.
The list of heritage sites and criteria for their classification are the mechanisms for the
translation of laws into action. The list and criteria are discussed in detail to understand
limitations. Then, the cultural heritage sites in Ha’il city centre are examined as a case
study, in order to identify obstacles and impacts. Heritage and tourism management
principles are discussed and applied in this case study and other relevant examples are
presented to emphasise the importance of implementation mechanism terms of context
rather than monuments.
The gap in understanding the values of cultural heritage in Saudi Arabia could be
identified in different ways. Particularly, legislation and the management of heritage
and tourism are means of determining how cultural heritage is safeguarded the
country. The 1972 law has its limitations (see Chapter 3), a problem that was addressed
in legislation introduced in 2014. However, the implementation tools confirm whether
the existing law is adequate or there are steps that should be taken immediately to
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ensure that the right actions are taken. The historic city centres of Saudi Arabia,
including that of Ha’il, are examples of the level of neglect that heritage sites faced
and are still facing. The old satellite image of Ha’il City (Figure 3, compared with
recent images105; Figure 1 and 2) shows the harmony in the urban tissue that
characterised cultural heritage sites until the mid-1970s. No doubt, every heritage
building that remains should be preserved and developed, not just because of its value
but also for its contextual values. If these sites are, for whatever reason, to be included
in or excluded from any development and preservation plans, then it is necessary to
question the criteria for inclusion or exclusion. This points towards the mechanism of
both laws and implementations, which needs to be investigated. The Saudi experience
shows how important it is to link together the different steps in the process, from
creating the law to implementation, in order to build up a comprehensive system of
heritage development, with the full cooperation of communities and stakeholders.
Such criteria, for the classification and selection of heritage sites, would be an
important tool to examine the level of understanding of cultural heritage values and
the various methods of implementation.
Cultural heritage values should be considered as part of any evaluation tool to avoid
exclusion and to develop this within the real context. Thus, it is crucial to extract these
values from the criteria, and analyse the contents in detail, in order to identify the link
with any other criteria, forms or implementation tools. This is done not just to highlight
the limitation, but also to identify obstacles and impacts.
105
Appendix (5.H) illustrates the changes in urban tissue in Ha’il city centre between 1978 till 2016.
198
In 2015, SCTNH applied Criteria of the Classification and Selection of
Villages/Districts of Urban Heritage (Appendix 5.A), and Criteria for the
Classification and Selection of Urban Heritage Buildings (Appendix 5.B), which is
discussed below in detail. Also, there is an Urban Heritage Site Data Form (Appendix
5.D), a form of documentation that contains useful information base. This form covers
most of the information such as general information about the site, type of the site,
time period, status, ownership, use, etc. as a descriptive sheet for the heritage
site/building. Being an effort towards documentation, the information usually presents
the reality of the site/building, without restrictions from the evaluation tool that might
cause excluding or ignoring some of the heritage values. Such a list for heritage sites
is a useful tool when designed carefully and followed by right actions within
comprehensive plans.
The process that has been followed in developing cultural heritage in Saudi Arabia
takes two forms: data and criteria. The data form should be reflected in the criteria
form, which is a sequence of the processes of development and planning. According
to UNESCO (2013), there are two main approaches to planning cultural heritage: first,
the conventional approach, and second, the values-led approach.
The conventional approach (Figure 5.1) focuses mainly on the conservation of the
materials or the fabric of the past, known as monuments (UNESCO, 2013: 25). The
process in this approach consists of identifying, documenting, assessing conditions
and, finally, planning for conservation interventions
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Define (identify)
(significance implied)
Documentation
Assessing Conditions
Planning for Conservation / Management
Figure 5. 1: Conventional approach to planning (UNESCO, 2013)
The values-led approach (Figure 5.2) is assessment of the significance of a place based
on the values attributed by all stakeholders, and use of a statement of significance as
a basis for developing conservation and management strategies (UNESCO, 2013: 25).
Collect Data
Assessing Significance
(Values and Attributes)
Assessing Conditions
Planning for Conservation / Management
Figure 5. 2: The values-led approach to planning (UNESCO, 2013)
The values-led approach follows the steps: collect data, assess significance (values
and attributes), assess conditions and, finally, plan for conservation and management.
It is notable here that the assessing significance step focuses on the values which were
missing in the previous approach.
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5.2 Listing - Between Protection and Action
According to Historic England, one of the main objectives of listing is to make sure
that the values of cultural heritage are protected (historicengland.org.uk, 2018).
Listing is one of the most important steps, in Saudi Arabia as in other countries, to
build up a database, in order to take the appropriate decision and action with a clear
vision. Orbasli highlighted that ‘in developing countries, for many overworked and
underfunded heritage departments, historic buildings become a name on a protection
list rather than a cause for action’ (Orbasli, 2000: 102). The present status of an historic
building in any country is always the best evidence of whether it is a name on a
protection list or a cause of action. Furthermore, an action without a good protection
list that takes into account and fully considers heritage values would not develop
cultural heritage sites sustainably. In order to ascertain this, it is crucial to analyse
three facts: first, the contents of the criteria of the list in terms of information type and
purpose; second, the link between the criteria contents; third, the relationship between
the list and other development plans, and its exact position according to all
stakeholders, decision makers and organisations.
In Saudi Arabia, SCTNH launched in 2015 a project to create an urban heritage list106.
This project was one of the 2014 law outputs (Antiquities, Museums and Urban
Heritage Law, 2014: Article 45), allowing SCTNH to prepare an urban heritage list.
Executive Regulations of the Antiquities, Museums and Urban Heritage Law
(specifically, under the urban heritage chapter in section 4, article 15, p. 59) states that
SCTNH determines the classification of a site, building or area of urban heritage
106
SCTNH began this project by contracting the consultancy office to prepare the criteria. As a result
of this contract, SCTNH has applied the criteria since 2015.
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before it is listed based on one or more specific criteria107. The law defines the
‘classification’ as the ‘determination of the level of importance of an urban heritage
site according to historical, cultural, scientific, artistic or national values’ (Antiquities,
Museums and Urban Heritage Law, 2014: 56). Registration means ‘including an urban
heritage site in the records according to its importance criteria and level of
classification’ (Antiquities, Museums and Urban Heritage Law, 2014: 56).
These criteria are the outcome of a project, whether internal (in SCTNH) or from an
engineering consultancy office through a commercial tender process. Phase one was
to prepare these criteria and phase two was a technical support for GIS for the urban
heritage data model (Head of Heritage Centre in SCTNH, interview, 2016). The tender
process, or internal effort, is a way of taking risk, especially in cultural heritage
development. The risk lies, first, in the Terms of Reference (TOR), or the tasks and
requirements in the contract, which needs experts in heritage management, and
second, the expertise of those in the field who do the work, especially in heritage
management.
5.2.1 The Criteria for Classification and Selection of Heritage Sites in

Saudi Arabia
SCTNH applies two criteria for the selection of national heritage sites: 1)
Classification and Selection of Villages/Districts of Urban Heritage; and 2)
Classification and Selection of Urban Heritage. In addition to the Urban Heritage Site
Data Form. The objective of these criteria is to preserve and develop national urban
107
These criteria are age, rarity and the importance of urban factors, religion, history, science, culture,
national significance, art and aesthetics, society and function, investment possibility, location and
accessibility, architectural design and style, details, inscriptions and decorations, demolition
percentage, accessibility in the site, expected future status and any other criteria approved by SCTNH.
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heritage sites. Both criteria are based on evaluation sheets, which aim to evaluate,
classify and select the sites and buildings based on some specific metric and weights.
At the end of this sheet it is the enumeration points that determine the level of the
classification: First class (more than 250 points); Second class (150-250 points) and
Third class (50-150 points). Thus, based on the criteria results, it is decided whether
the site/building will be preserved and developed. However, it is not clear what
happens following the classification of sites, and who will do what. This missing loop
within the management and implementation process would lead to an improper list
rather than a cause for action.
The villages/districts criteria present seven standards as following: age, historical
importance, rarity, status (demolition), style, architectural design and details, and the
possibility of investment (Appendix 5.A). The buildings criteria show ten standards,
which include the previous standards and an extra three; building function,
architectural design and the architectural details and inscriptions (Appendix 5.B). It is
crucial to discuss each criterion separately, in order to understand the whole criteria
and standards, and to identify the limitations and weakness points, as well as to ensure
criteria reflect the real values of cultural heritage. Moreover, it is necessary to evaluate
the new law outcomes, identify the implementation steps, and the impacts on heritage,
and propose the best implementations methods. The criteria for classification and
selection of heritage sites in Saudi Arabia are as follows:
Criterion 1: The Age
The standard gives each ten years three points (SCTNH, 2015a); the accuracy of this
standard weightage with respect to age, could be viewed as a kind of historic value.
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But there is no clear reason for the estimated weights and durations. There should be
a link between time and site/building, in order to avoid the conflicts between ancient
and more recent heritage sites/buildings without diminishing their importance.
Being 'old' is not the only reason for listing and, indeed, some more recent sites might
also be of local importance or interest. The age is significant criterion when it is
selected and adjusted to take into account the distinctive local characteristics.
Distinctive local characteristics represent noteworthy examples of the type and style
of cultural heritage, which are important in the development of that era. Three points
for each ten years gives the ancient site of Madaen Saleh in Al-Ula (Figure 5.3), for
example, more than one thousand points, while more recent heritage sites, such as
Barzan area in Ha’il city (Figure 5.3), belong to the third class in the system of
classification.
Figure 5. 3 Madaen Saleh in Al-Ula (left) and a house in Barzan (right) are as examples of
the age criterion.
Counting in numbers is a quantitative rather than a qualitative approach, which leads
to exclude most of the heritage values due to the limitation of the results.
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‘The city is and has always been throughout the ages at the root of our culture, history,
arts and traditions. It has been the birth-place of a society in constant evolution’
(Cravatte 1977: 13). The Historic Cairo project, for instance, included in its
development plan different historical buildings not based on age, but through
identification of its period (UNESCO & Historic Cairo, 2013), 108 and without giving
any period greater value than others. Moreover, belonging to an early period does not
harm or affect another period’s values, because it shapes the whole historic context of
Cairo without any action leadings to any exclusion. The identification of a period is
clearly aimed at understanding and highlighting other factors such as use, materials
and additional values rather than a separate criterion. In that sense, notably, the age
criterion in the Cairo project helps to support other criteria in integrated efforts such
as historical importance.
Criterion 2: The Historical Importance (Historical Event)
The historical importance of a village/district or building (historical event) standard
consists of four types109. This importance is linked to historical events and historical
values. However, there are more than events that could define historical values. In
tribal societies, for example, there is always shared memory, which shapes different
types of social value. This value contributes to shaping the historical value.
108
The Historic Cairo project has identified the following building periods: Pre-Modern before
Nineteenth Century, Modern Nineteenth Century, British Mandate until 1950’s, Contemporary First
Period 1950’s-1960’s and Contemporary Second Period 1970’s- 2013.
109
1- Linked to ancient historical events, which equals to thirty points. 2- Linked to the history of the
Kingdom of Saudi Arabia, which is also equal thirty points. 3- Linked to local historical events, and
valued at fifteen points. 4- Ordinary type (no difference to other villages/districts or buildings), which
weighs zero points (SCTNH, 2015).
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The importance standard here is exclusive to history, and should be based on and
reflect all heritage values. In other words, most heritage values are outside of this
criterion such as scientific value, social value and further twenty-one values mentioned
earlier (see Chapter 3). Ignoring most of the heritage values in this criterion would
amount to using the same approach introduced after the first law in 1972. Surely the
impact will be the same in terms of awareness and implementation, especially through
emphasizing particular values and shaping a heritage image based upon these selected
values.
The first and second factors of importance in the criterion are equal; both weigh thirty
points, while this should be in descending order, because more time means more
actions, activities and stories, thus more values. Also, this standard contradicts the age
criterion, it is important to apply the same method for each criterion. The standard
gives zero points to an ordinary village/district or building, which is not different to
another, but this is not true. In other words, the criterion judges that the similarity
between villages or districts or buildings is a weakness factor.
There is no historic village/district or building, whatever its history, equal to nothing,
especially when those who lived there and their families are considered as part of
cultural and social values, integrated with other values. This opportunity to share the
collective memory with others, to link what is intangible and tangible and increase
public awareness, seems missing in this assessment due to the lack of intangible
heritage separated from its environment. Furthermore, there is insufficient
understanding of historical meaning and value, and the link between different values,
which becomes a means to exclude some heritage sites and buildings. This would also
206
be a reason for increasing the gap in understanding the values of cultural heritage as
well as separating it from its context.
Historical importance in the Historic Cairo project, for example, was linked to the
period criterion, which means there is an integrated relationship between the criteria,
in general, and between the age and the history, specifically. Additionally, this
importance is a result of identifying the period; presenting its era rather than judging
its importance.
Criterion 3: The Rarity
The whole criteria are in Arabic, and ‘nudrah’ in English means ‘rarity’, while
‘asalah’ means ‘authenticity’ which was not included in these criteria. Rarity often
links with uniqueness, however, according to the UNESCO (2012) ‘a rare item may
or may not be unique or irreplaceable: it is one of a small number of surviving
exemplars’ (UNESCO, 2012: 11). The rarity criterion is categorized into three types
based on a vertical geography scale: the first is rarity at national level, which gives
thirty points weight; the second is rarity at province level, which gives fifteen points;
and the third is ordinary with no difference to others, which gives zero point weight
(SCTNH, 2015a).
Rarity at national level equals thirty points. However, there is concern when
attempting to define the meaning of rarity and its characteristics in this criterion,
namely, what makes any building rare at this level. There are no details as to how the
rarity should be identified and clarified in this criterion. The lack of clarity in defining
rarity could lead to excluding some heritage sites.
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Howard (2003) argued that ‘Not all items become heritage merely by being old, of
course. Something else is usually required, and rarity is often a critical element’ He
added that ‘In the case of the cultural heritage, rarity is likely to relate directly to price,
so that a market begins to operate’ (Howard, 2003: 190). In this sense, the investment
is crucial in the development of cultural heritage. Accordingly, ordinary buildings are
equal to zero points, which means there is no visibility to invest in this category. Thus,
there are no values in this category. But the issue here is that rarity is linked to other
facts not just the price, such as values of cultural heritage, which shape the heritage
context.
Another impact of this criterion results from convincing people that there are some
heritage villages/districts or buildings that are not rare, which would lead to
minimising heritage values and classifying heritage in a negative way. The rarity is an
immeasurable criterion unless it has specific classifications and definitions. Most of
the heritage villages/districts and buildings, especially in the developing countries
where the level of awareness caused loss many sites, are rare whether for the person
or group of people who share their collective memory. The rarity is a result of
discovering and understanding the values and its integration process. Rarity criterion
in architectural heritage has a link to what remains from buildings; in other words,
being rare is one of the conservation results. Criterion 4, confirms whether there is
understanding of the link between these criteria.
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Criterion 4: The Status (Demolition Percentage)
The fourth standard, the village/district’s or building’s statues (demolition
percentage), has six levels110. At the end of this standard there is a note which states
‘there is no preservation for the village/district or building if the assessment of the
statues amounts to less than fifteen points, unless the village/district or building has
more than sixty points in the three previous standards, and as long as it is documented’
(SCTNH, 2015a)
The number of points should be the opposite, because the greater the demolition
percentage, Barzan district area (figure 5.4) for example, the more urgent the action
needed as the objective of such criteria is to protect and develop. This approach will
increase the number of endangered sites/buildings, which means losing all the
site/building or cost more for restoration later on. According to the note at the end of
this standard, any village/district or building that has more than 50% demolition will
not be preserved. This decision would destroy any heritage assessed 50% or less.
Based on this decision, any heritage building that has only half its structure remaining,
is in adequate to represent any heritage values. It is necessary to consider encouraging
people to participate in discovering and interpreting what remains of its values in a
real environment, and as an open museum or any other concept.
110
Level one is zero percent of demolition and weights forty points. The second level is ten percent of
demolition and weight thirty-five points. The third is twenty percent and weights thirty points. The
fourth is thirty percent and is equal to twenty-five points. The fifth is forty percent and is equal to twenty
points. Finally, fifty percent of demolition is assessed at fifteen points (SCTNH, 2015).
209
Figure 5. 4 An example of architectural heritage buildings in Barzan district area as a

case to illustrate the status (2016).
This criterion is to focus on the current status rather than actual values. Furthermore,
this represent support for endangered sites and not a tool for excluding them. These
limitations will increase the number of endangered sites as a result of the end of urban
heritage, which suffered from laws and implementations, and then losing what remains
from urban heritage sites. Moreover, such an approach will minimise the heritage
values and reflect this on societies.
As regards rarity, and status, there is no link between these two criteria. For example,
a heritage building that has less than half of its structure remaining will not be
preserved and developed based on the status criteria. However, the values of this
building will increase and become rare due to the limitation in numbers. In addition,
due to this criterion more heritage sites are lost; for example, 50% does not help
preserve some heritage sites. Over time, there will be no rare heritage sites because of
the criterion evaluation.
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Criterion 5: The Urban Heritage Style
This standard suggests that if urban heritage is distinctive at national level, it is equal
to twenty points, and at provincial level, it is equal to ten points. If it is ordinary and
similar to any village/district, then its weight is zero (SCTNH, 2015a).
The issue here concerns scaling the distinction, and this standard needs a criterion to
identify what is distinctive. A further issue is that there is only national and provincial
levels, while the local level, which represents the community, is missing from the
criteria. This standard follows geographical scale, and should reach the community
and groups of people, in order to protect the individual and represent unity.
The national heritage image captures on a small scale of heritage diversity. More
diversity provides more details, which shape the heritage image clearly through high
resolution. In other words, at local level the urban heritage distinctiveness is a result
of the communities’ practices, which should be considered within this criterion.
Urban heritage style is one of the most important criteria for awareness of the context
of cultural heritage, as well as understanding different values and integration. In the
Historic Cairo project, for instance, there is a separate form for the urban heritage style
(UNESCO & Historic Cairo, 2013). 111 This approach to urban heritage, has resulted
in an urban scale to identify cultural heritage within its context, which is an important
step towards linking single building and context to shape the whole context.
111It contains four main criteria; criterion one is the information about open space/street, which includes
location, typology, general layout and open space/street elements; criterion two is the use and users,
which includes appropriation of the open space/street, dominant traffic use and mobile users; criterion
three is the material surface of the open space/street; and criterion four is the open space/street general
quality.
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Criterion 6: The Architectural Design and Details
The architectural design and details standard is assessed at twenty points for very
distinctive architectural design, ten points for being distinctive and zero points for
normal architectural design (SCTNH, 2015a).
The terminology used is not clear and not measurable; for example, the difference
between very distinctive and distinctive architectural heritage. There is also no
architectural heritage that weighs zero; the problem here is lack of understanding of
architectural heritage values, as well as the method of identifying not just different
values, but also the value itself and the relationship with other values that shape the
whole cultural heritage values. For example, architectural value (Figure 00) is one of
the heritage values that needs to be understood based on not just the building itself but
also its spaces, elements and people, who lived there and their activities. This leads to
awareness and inclusion of social, urban, landscape, cultural and technique values. In
terms of the relationship with other values, there are always values that integrate with
other values. For example, the integration between architecture and its elements, such
as doors and windows, links with technical, social, economic and urban values, to
mention a few.
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Figure 5. 5 Examples of the architectural design and details from Barzan area in Ha’il
(2016).
Historic Cairo has a different approach to dealing with architectural value. The
standard name, for instance, is architectural value and integrity, which includes
presence of disturbance elements on each facade112, presence of remarkable
architectural elements for each facade113, overall integrity and relation with urban
context (UNESCO & Historic Cairo, 2013). One notable aspect of this standard is that
it covers all facades rather than a single building or the main facade. This approach an
opportunity to discover more architectural values that could be presented not only in
the main facade. Also, it could be a tool for discovering a relationship with a
neighbourhood and lead to linking other social values. Another remarkable standard
is that it includes the link to urban context. This level of awareness of urban context
leads to understanding the values especially when it takes into account the context;
thus a reason to include rather than exclude.
112
Aerial dishes, antennas, pipes, fowl and animals shelters, AC compressors, lighting, advertising,
wires.
113
Arches, portals, peculiar cladding, corners, porticos , external staircases, gates, wooden doors, sitting
or covered, entrances, iron doors, covered passages, buttresses, balconies, loggia, masharabia,
ironwork, wooden beams, cantilevers, molding, mashrafeya/bowwindows, boghdadly, columns, visible
masonry patterns, stonework, corbels, glazed tiles, balusters, gypsum glass windows, minarets, domes,
wind catcher, vaults, shakhsheka, cornices, wooden shades, embattlement.
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Criterion 7: The Possibility of Investment
The final standard is the possibility of investment. 114 In terms, particularly, of tourism
and from an economic perceptive, this is one of the most important step towards
implementation and development stages, because it shows the awareness of future
development plans and whether it is towards name or action.
The possibility of investment should focus on the site potentials, rather than the present
situation, or at least there should be another list which evaluates the priority of
investment in any site before immediate evaluation and judgement. It should also be
included as a criterion within classification criteria. For example, if there is no existing
cultural and tourism activities, this does not mean that a site is not worthwhile
investing in. There is no cultural heritage site without culture activities; thus, the
problem does not come from the site, but rather the way in which it is managed and
whatever the purpose, whether to invest or develop. Also, if there is no tourism and
cultural activities, that does not mean the site has no culture; the shortage due to
employing values to create and re-call activities. The cultural and tourism activities
114 This criterion includes seven points. The first concerns the site and accessibility: twenty points for
a site that is accessible and close to the urban areas, ten points for distant sites and zero weight for
isolated and difficult to access sites. Second, available services and facilities in the site are assessed as
equal to twenty points and for less services and facilities the weight is equal to ten points, while
unavailable services and facilities will weigh zero. The third point is the feasibility of expected
investment: high feasibility deserves twenty points, medium is ten points and unfeasible sites are equal
to zero. Fourth, as regards integration of the village/district with other tourism and urban sites criteria,
twenty points is awarded to sites within the group of integrated tourism and urban sites, and ten points
for the sites that are close to integrated tourism and urban sites. If the site is far from tourism and urban
sites then it is assessed at zero points. Fifth, existing tourism and permanent cultural activities are
weighted twenty points. If seasonal, it is then deserving of ten points, but if there is no tourism and
cultural activities, the weight is zero. The capacity of the village/district for tourism, cultural and
heritage activities is the sixth point; it deserves thirty points if the capacity is high, and twenty points if
it is medium and no points if it is lower than this. Finally, in terms of the owners’ desire to preserve the
village/district and make use of it for tourism, if they are enthusiastic and working to invest, then it
deserves twenty points, if there is just a desire, it is equal to ten points, but if the owners are ordinary,
the weight is zero (SCTNH, 2015).
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are a result of heritage development. By this standard the heritage is undeveloped for
any reason, including the laws and policies, or has not developed or been included in
any development plan or list, would be outside the investment map and could be a tool
to exclude it from the list. Thus, this action will increas the gap between not just
heritage and tourism, but also between heritage and sites and communities.
There is no defined formula for the calculation of carrying capacity in a living urban
environment, and maintaining set targets is even more difficult (Page, 1995). This is
especially true as carrying capacity is not denoted simply as a number, but is a variable
of season, space and cultural and natural elements (Medlik, 1995). In terms of
investment, the capacity of tourism, cultural and heritage activities could be measured
based on the percentage of open spaces, plazas, streets and other facts. Such open
spaces would be a target for investment with no values for interior spaces or building
functions that contribute to shaping urban forms. Thus, a distance is established
between the components of urban spaces values. In order to estimate the capacity, it
is crucial to identify the size and requirements of these activities. If the owners are
ordinary, it is one of the most important responsibilities of stakeholders and decision
makers to encourage them and decrease rather than increase the gap. The decision can
be of help building investment bridges.
However, the possibility of investment is not a criterion for the classification of
development and preservation of any heritage site. The investment is a tool to develop
heritage sites, and not a criterion to judge whether it deserves to be developed.
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The Additional Criteria
The additional criteria applied in the Criteria of the Classification and Selection of
Urban Heritage Buildings are: a) Building function, c) The importance of the urban
location of the building and c) The architectural details and inscriptions (SCTNH,
2015b).
a) Building function criterion includes three methods to calculate its weight: first, the
unique use (princedom, library), which equals to thirty points; second, the unique
residence (governor’s house, judge, etc.), which equals fifteen points; and third,
normal houses (such as any other house), which evaluated zero points (SCTNH,
2015b).
This standard gives the princedom and library thirteen points, which is the highest.
But why are these the most important functions? And what makes them different? This
criterion does not explain why. It seems that certain values, such as political, are still
dominant, because the second function, which weights fifteen points, is also the
governor’s house, while the rest of the community houses are equal to zero. Usually,
princedom or library buildings are, in terms of numbers, less than the rest of the built
environment, and in terms of function, these are scarce. However, this does not mean
that the rest of the community houses deserve zero evaluation. Delivering a message
that the similarity between houses diminishes the value of heritage (according to this
criteria) would lead to lack of trust in the heritage system, especially among the
majority of homeowners who represent the community. Moreover, it is unclear
whether the criterion is for function, user or owner. This is because it seems to
emphasise the owner, particularly the specific owner, who represents the power of
216
government, while the rest of the functions, users and owners are excluded or not
valued. Another impact of this criterion is that the gap in understanding the value of
building functionsm especially houses, is increased, and the wrong image about
heritage houses is presented. Hence, heritage houses with collective memory, and
linked to other intangible cultural heritage, are lost.
In the Historic Cairo project, for instance, building function is identified by the
following: Function present on ground floor,115 Function present on the upper floors
and Overall function116 and Usage117 (UNESCO & Historic Cairo, 2013). The function
criterion indefinites the real function, rather than the type of owner. Also, there is the
possibility of having more than one function for the building. Moreover, there is a link
between this criterion and ground floor function and the activities on the street. The
building function in the Historic Cairo project shows the importance of having a link
between identifying the real functions for each floor and the street activities. This
contributes to shaping and linking the context of the cultural heritage, rather than the
isolated functions.
b) The second criterion is the importance of the urban location of the building. This
standard has three categories. The first is the importance of the location, region or city.
The category weights thirty points. Medium importance at district level is the second
115 Animal Sheds, Educational, Cultural, Religious, Sport, Administrative & Services, Health Care,
Private Practice, No Functions, Residential, Cafe, Restaurant and Take Away, Commercial
Neighbourhood, Commercial City Scale, Workshop, Industrial Production, Warehouses and Storages,
Parking, Garage and Waste Dump.
116 Mono-functional, Multi-functional and Undetectable
117 Totally used, Partially used and Un-used.
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category, which equals fifteen points. The last category is the ordinary location (such
as any other location), which is equal to zero point (SCTNH, 2015b).
The same terms have been used here (important, medium important and ordinary
without clarification), which is again unscaled and unmeasurable. It is not clear
whether the importance stems from national and local levels or from the site and
community, and who shaped the other. Based on this standard, the site and local
community are equal to nothing, because there is no single building equal to zero in
terms of urban importance, as evaluated by this criterion.
The importance of the urban location should be integrated with other criteria such as
architectural design and details. Also, the urban value is linked with other values,
especially from local communities. In that sense, the bottom-up approach is required
to understand the urban values as well as evaluate the importance of the urban location.
This criterion is clearly an evidence to confirm the importance of the participation
from local communities, not just to evaluate the site but also to explore the values of
the urban location. Thus, allowing them to be part of heritage management process.
c) The third extra criterion is that of the architecture details and inscriptions.
According to the list of this classification and selection, good design, which contains
good concept or unique details, at the region or city level, is weighted at twenty points.
It is ten points for ordinary details similar to other buildings, and zero points for normal
details (SCTNH, 2015).
Unmeasurable terms have been applied again (such as good, ordinary and normal
details). These cannot be a measurable tool to judge whether the details are valuable,
in spite of the value of every detail whether shown or hidden. Thus, personal opinion
218
plays a significant role in the evaluation and decision. This could be understood if we
consider the flexibility in the criterion as an opportunity for experts to participate and
evaluate with enough space for their knowledge. However, the problem in the real
implementation stages is that there is no guarantee of giving such an opportunity to
the right and qualified person, because whoever carries out this evaluation is neither
in a high position in administration structure, nor a specialist. Usually, this kind of
work is done by SCTNH employees, especially those who work in the provinces and
sites and are more likely from the antiquities section, and the Ministry of Education.
In other words, qualified staff are needed. Another issue concerns whether the
similarity is positive or negative, and based on the criterion, the similarity between
buildings deprives them of the right of excellence. Appendix 5.E shows the limitations
and impacts of these criteria.
By applying these criteria in a real case, it will show the limitations and impacts, as
well as confirm whether it is a name on a list or a cause for action. But before that, it
is crucial to highlight the limitations and impacts of these criteria through analysing
the integration between criteria, distribution of weights, terms used and other
limitations.
5.3 The Limitation and the Impacts of the Criteria
In order to understand the impacts of the current criteria in Saudi Arabia, it is crucial
to highlight other criteria used in different experiences. In the English Heritage
criteria, for example, there are three grades for buildings: Grade I buildings are of
exceptional interest, Grade II* buildings are particularly important buildings of more
than special interest, and Grade II buildings are of special interest, warranting every
219
effort to preserve them118 (historicengland.org.uk, 2018). It is notable that none of
these grades are ‘not important’; rather, they focus on classification, which means that
importance is already recognised. For instance, the criteria classify the level of
importance such as ‘exceptional interest’, ‘more than special interest’ and ‘special
interest’.
The listing criteria, which have been suggested by English Heritage (EH), are age,
rarity, aesthetic or design merit, group value, archaeological interest, historical
association, landmark status, social value, documentation.119 (Department for Culture
Media and Sport, 2010)
5.3.1 The Integration Between Criteria
These criteria include information, evaluation and decision approaches. At the same
time, there is need for separate sheets for each step. For example, there is a sheet for
the data collection step, which should include all the information for the site/building
in the description method. Then, there is another sheet for analysis, and the
confirmation of the database should be for the output of the data collection,
118
Grade I buildings are of exceptional interest ; only 2.5% of listed buildings are Grade I.
Grade II* buildings are particularly important buildings of more than special intere st; 5.8% of
listed buildings are Grade II*. Grade II buildings are of special interest; 91.7% of all listed
buildings are in this class and it is the most likely grade of listing for a home -owner
(historicengland.org.uk, 2018).
119
In the Age and rarity criterion, for example, the older a building is, and the fewer the surviving
examples of its kind, the more likely it is to have special interest. The following chronology is meant
as a guide to assessment; the dates are indications of likely periods of interest and are not absolute. The
relevance of age and rarity will vary according to the particular type of building because for some types,
dates other than those outlined below are of significance. However, the general principles used are that
before 1700, all buildings that contain a significant proportion of their original fabric are listed;
from 1700 to 1840, most buildings are listed; after 1840, because of the greatly increased number of
buildings erected and the much larger numbers that have survived, progressively greater selection is
necessary; particularly careful selection is required for buildings from the period after 1945; buildings
of less than 30 years old are normally listed only if they are of outstanding quality and under threat
(Department for Culture Media and Sport, 2010). For more information, see appendix 5.J – The Criteria
for Selection of Buildings for Local List in English Heritage (EH).
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concurrently with the evaluation step, which should be the result of the data collection
sheet and analysis sheet and then the evaluation form. One of the most notable
limitations in the current approach is that the form of the site information includes the
result of the evaluation criteria and tourism importance, which creates a mixed
approach.
The purpose of the criteria is protection and development at the same time. However,
there is need to divide the process into integrated steps to achieve these different
objectives. This is because all heritage buildings and villages/districts need to be
protected and some also require development. Moreover, the majority are endangered.
The existing criteria do not help endangered sites; on the contrary, these will be
affected negatively through the ignorance and exclusion standards, such as demolition
percentage and the zeros evaluations points. The legacy concept of protection, which
applied in the past as a result of the 1972 law and MOE, as fenced and locked
monuments, should be changed.
Another factor is the link between criteria; for example, historical importance should
be linked to the age criterion. Also, urban style cannot be separated from architectural
style and details criteria. The integration between these criteria seems to be lacking
due to the separate weights. This approach will impact not only architectural heritage
but also the values of the urban cultural heritage and its context.
5.3.2 Distribution of Weights
In terms of weights, the numbers should be analysed quantitatively to present the
equality, reality and fairness in the criteria. The distribution of weights of these criteria
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is on two levels. Level one is the distribution between the whole criteria, and the
second is within the criterion itself.
The distribution across the criteria
Comparing between the weights of the criteria, Figure (5.3) below illustrates the total
weights and percentage for the whole criteria. Almost 40% of the total weight is for
the investment criterion, while architectural design and the urban style criteria are
weighted just 5%. The status is in the second heavy weight (30%), while historical
importance and rarity are 14% and 8%, respectively. Almost 70% of the weight is for
investment and the status criteria, even though the investment criterion has no relation
to cultural heritage values in its contents. Moreover, it is only one of twenty-one
criteria that shape the cultural heritage values. Unequal distribution of weight across
the whole spectrum of criteria impacts the value of each criterion, thus, it will impact
not just the target whether building or site but also the context of the urban cultural
heritage.
Total weights of the criteria
The possibility of investment
The architectural design and details
The urban heritage style
The status (demolition percentage)
Rarity
The historical importance (historical event)
0 50 100 150 200 250
Figure 5. 6 The weights and percentages of the whole criteria
222
220
210
200 The possibility of investment
190
180 The status
170
160
150
140
130
120
110
100 Historical
90 Importance
80
70
60 Rarity
50 Urban Architectural
40 style design
30
20
10
0
2.1 2.2 2.3 2.4 3.1 3.2 3.3 4.1 4.2 4.3 4.4 4.5 4.6 5.1 5.2 5.3 6.1 6.2 6.3 7.1.17.1.27.1.37.2.17.2.27.2.37.3.17.3.27.3.37.4.17.4.27.4.37.5.17.5.27.5.37.6.17.6.27.6.37.7.17.7.27.7.3
Weight Total Zero value
Figure 5. 7 The criteria weights and percentages compared with each criterion
The Distribution within the Criterion Itself
In terms of the criterion itself, the historical importance (historical event) criterion, for
instance, shows the distribution of weights as regards its standards (Table 00). It gives
75 points, which are divided into four standards. The first and second standards are in
total 60 points; 30 points each. This distribution gives 80% of the weigh to the first
and second standards, and 20% for the third standard and 0% for the fourth. First and
second standards are equal, which means the ancient historical event is equal to the
history of the Kingdom of Saudi Arabia. The first standard should not be equal to the
second standard, because it has a link to the age criterion. Also, more time results more
activities and events, which result more values. in addition, the fourth standard should
not be equal to zero, because there is no heritage site without activities and events.
More recent events are also still in the collective memory of communities, which
means historical importance. Therefore, this importance is a resource of cultural
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heritage values, which needs to be preserved and passed on to the next generation as
a principle and objective of any heritage preservation and development.
Criterion 2: Historical Importance (Historical Event)
No Standard Points Weight %

Important (it has a link to ancient
1 30 40%
historical events)
80%
Important (it has a link to the history of
2 30 40% 100%
the Kingdom of Saudi Arabia)
100%
Important (it has a link to local
3 15 20% 20%
historical events)
Ordinary (no difference to other
4 0 0% 0% 0%
buildings)
Table 5. 1 Distribution of the weights in the historical importance criterion
5.3.3 The Terminology Used
Terms such as important, moderate, unique, very unique, close, far, high, etc. are
unmeasurable and impracticable, especially when it use in quantitative approach not
qualitative. In other words, there is no specific definition for these terms, whether in
the criteria itself, or even any other support references and guidelines. It depends on
the evaluator’s emotion, knowledge, perspective and awareness, which cannot be
accurate and a fair tool of evaluation, classification and selection of any village/district
or building that needs to be protected and developed.
Due to unclear definition and immeasurable terms such as ‘ordinary, unique and
distinctive’, the rarity criterion, for example, becomes a reason to exclude some sites
from being in the first or second list of protection and development. These problems
224
are frequent in more than one criterion such as urban style, architectural style and
architectural details.
5.3.4 Additional Limitation
One of the main limitations of these criteria is that they do not cover the urban areas.
In other words, the components of the village/district, such as public spaces, streets
and plazas, which shape any urban settlement, seem to be uncovered and
misunderstood, and the focus is mainly on objects and materials. This method will
affect the whole cultural heritage including intangible due to the focus on buildings
and materials without consideration of the transformation of life and activities. In the
contrast, in the Historic Cairo, for instance, the criteria expanded to include streets,
plazas and even function of surrounding buildings and areas.
The Overlooked Role of Intangible Cultural Heritage
On the other side of the coin, insufficient consideration of intangible cultural heritage
values and links, which shape the cultural heritage form, has impacted the criteria. For
example, evaluating a heritage site without consideration of urban areas or social value
confirms the approach that focuses on heritage materials. Focusing on materials, such
as buildings, villages, architectural design and other object targets, leads to ignorance
of intangible and separation from its context. This directs efforts towards shaping an
incomplete image about heritage, which affects not just heritage itself, but also the
perception of community. Thus, indirectly, conflict is cause not just between
community and heritage, but also between heritage and stakeholders, making
decisions more complex.
225
The method of sharing stories about heritage sites/buildings, by enhancing collective
memory, would be a means of bringing tangible and intangible heritage together, to
practise at the same time in a real context. This would not happen if the criteria did
not cover all heritage values, and take into account communities’ participation.
Eid celebration, for instance (Figure 5.5), not just in Ha’il, but also in many
communities in Saudi Arabia and most Arab and Muslim countries, as a social,
religious and cultural value, is an opportunity to link and practise intangible and
tangible at the same time within a real heritage context.
Figure 5. 8 Eid breakfast with neighbours at the beginning of festivities in Ha’il is a chance
to re-call cultural heritage activities and within context (2016).
Customs, traditions, hospitality, sharing stories and other activities are the main parts
of Eid, during which time the community sit together and participate in social
activities. Indeed, linking heritage values with a specific period or temporary activity
is not the target. However, it could be a tool to employ activities sustainably. This
social value does not exist in the criteria, and, unfortunately, is not considered as a
value that could have major impact on heritage, community and stakeholders.
226
The criteria would be realistic when built based on the site/building information.
Furthermore, the evaluation should be consider this information rather than single
object or site/building materials. It is more practical to have a data form which includes
weights, in order to determine the priority of preservation and development, and not
to include or exclude any urban heritage site. Based on the building or village
information, the judgement will be more accurate because it presents the reality of the
building, rather than emotions or perspectives and terminologies. Separating the site
information form from the criteria of classification and selection form will lead to
ignoring many sites. The sites might be endangered because just the criterion of
demolition has high percentage, while the opposite action should be taken. Also, the
reality of the building and the data form should include all heritage values without any
exception. The current approach leads to the creation of a protection list, rather than a
cause for action, and a tool for exclusion with no consideration of heritage values.
The Values Ensuing from the Criteria
Another limitation can be identified through highlighting heritage values within these
criteria. To extract the values from these criteria, it is necessary to follow the same
method used to extract the values from the 1972’s law. In the latter case, the main
objective was to extract values from the text and the meaning of the criteria directly
and indirectly. Table 2 shows the values included in the criteria. It is clear that 6 out
of 21 values120 are included in the criteria, and more than 70% of the globally well-
known values are not covered. It would be understood if the site Data Form includes
these values and the criteria were a result of it. Unfortunately, the criteria are separated
120
These values are mentioned and clarified in the Law chapter based on International Organizations
definitions (UNESCO and ICOMOS) (see Chapter 3)
227
and became part of the data form. The failure in covering these values has had an
impact on both criteria and heritage.
Table 5. 2 Cultural heritage values extracted from the criteria
International Values Criteria Values International Values Criteria Values

1. Aesthetic 12. Intangible
2. Archaeological 13. Integrity
3. Authenticity 14. Intrinsic 
4. Character  15. Physical 
5. Cultural 16. Political 
6. Ecological 17. Scientific
7. Economic  18. Setting
8. Educational 19. Social
9. Historic  20. Spiritual
10. Human 21. Sustainable
11. Identity Total 6/21
The evaluators’ lack of understanding of the differences and links between the cultural
heritage values might cause problems and conflicts. In addition, there is need for
training those who prepare, design, apply and review the criteria. For example,
evaluation of the architectural value requires architects who understand vernacular
architecture and are able to identify the value of architectural elements and details.
Architects have received training at universities that are playing a major part in the
preservation and development of cultural heritage through their curriculums. Also,
other organizations such as SCTNH and MOMRA play an important part in terms of
employing qualified persons in the right positions and implementing training
programmes on different ways and levels. Integrated approach between organizations
228
and universities is one of the best strategies for the preservation and development of
cultural heritage, not just for architects, but also for the education system and
communities. This also helps increase the level of awareness.
5.4 Case Study: Barzan District Area in Ha’il City Centre
5.4.1 Introduction
Ha’il Province occupies about 6% of the total land area of the Kingdom of Saudi
Arabia. The northern third of the province is covered by the Nafud Desert. Jabal
Shammar extends through the central area and comprises Jabal Aja and Jabal Salma.
Ha’il City is situated at the eastern base of Jabal Aja and lies at about 1,000 metres
elevation. The southern area is a relatively high plain with some mountains and hills.
Aquifers lie near the west central border, northeast of Ha’il and a large area southeast
of the city. The aquifers support extensive areas of irrigated agriculture. The southern
half of the province lies on the Arabian Shield, which has limited water resources
(SCT, 2003: 3 and MOEP, 2004: 15).
229
Figure 5. 9 Ha’il province location with cities within province boundary (SCT, 2003).
Ha’il has a long history extending from prehistoric and pre-Islamic periods to the
Islamic and present periods of unification and independence commencing in 1932.
Many ruins and other remains of these historic periods constitute important type of
historic heritage sites. The legendary figure of Hatim Al Tai, known for his acts of
generosity and hospitality,121 is associated with Ha’il. Major historic trade and
pilgrimage routes extended through Ha’il city. Ha’il also nurtured historically
important poets and intellectuals (SCT, 2003: 5). The Hai’l city centre, and the Barzan
district area, has significant urban heritage assets that has remained poorly researched.
It contains significant architectural heritage buildings that are endangered, which
121
Hatim Al-Tai lived in Ha’il and died in 578; see al-Isfahani, Abu al-Faraj (2004) Kitab al-Aghani,
25 volumes, Beirut: Dar Sader Publishers. According to various stories, Hatim was a famous personality
in the Ta'i region (Ha'il province today). He was known as a person whose fire would not burn out, and
who slaughtered his horse for guests when food was scarce. He is also a well-known figure in the rest
of the Middle East as well as the Indian Subcontinent, featuring in many books, films and TV series in
different languages. The film Hatim Tai was directed by Homi Wadia in 1956. Another depiction of his
life, Hatim Tai, was directed by Babubhai Mistri in 1990. There have been a number of Indian TV
series: Dastaan-e-Hatimtai (which aired on DD National); Hatim (Star Plus, 2003-04); and The
Adventures of Hatim (Life OK, 2013).
230
made the study this area both crucial and fundamental, not just to preserve the physical
material but also to protect remaining aspects of intangible heritage and collective
memory, and make them valuable cultural heritage resources contributing to
development. Also, study of this area could be considered a case study that could be
applied to other heritage sites in Saudi Arabia.
5.4.2 Ha’il’s Diverse Architectural Heritage
The government structure has shaped provinces boundaries to manage and control the
responsibilities of these provinces administratively. However, there is no link between
the diversity within one province and these administrative boundaries. In other words,
building materials, which are mainly from local resources, could be relevant to more
than one province and city. The diversity in building materials or architectural styles,
for instance, makes every heritage site in each city significant at both province and
local levels.
There are eight main territories within the province boundary of Ha’il: Ha’il City,
Jubbah, Baqaa, Moqeq, Faid, Samira and Alslimi (Figure 5.6). Each territory has its
character, architectural style, building materials and urban style. This diversity in
architectural heritage, for example, makes every building relevant and unique when
compared with these territories at province level (Figure 5.7). It is not just regarding
architectural heritage, but also all cultural heritage values. For instance, building
materials in Baqaa were mainly stones, while in Jubbah mainly mud bricks were used.
These materials are from the local environment, and help contribute to the urban and
architectural style. The stone material at province level is scarce, but at local level,
when applying the criteria, it is a reason to exclude the site from being preserved and
developed, due to the similarity between building materials. This concept is applied to
231
all criteria; thus, the impact is on all cultural heritage values including intangible
cultural heritage.
232
a) Ha’il city b) Jubbah
c) Baqaa d) Moqeq
233
e) Faid f) Samira
g) Alslimi
Figure 5. 10 The diversity in architectural heritage

within Ha’il province boundary (a. Ha’il City, b.
Jubbah, c. Baqaa, d. Moqeq, e. Faid, f. Samira and g.
Alslimi) shows the differences in architectural style
and building materials, which helps in shaping the
identity of the community as a result of cultural
heritage values. Also, this adds to its significance and
uniqueness at local level (Al-Hawaas, 2002: 117, 133,
137, 139, 140, 148 and 153)
234
5.4.3 Barzan District Area
Barzan area is located in the centre of Ha’il City (Figure 5.8). It has many historical
buildings and is surrounded by several cultural heritage sites such as Barzan Palace,
Barzan Souk, Airif castle, Al-Qeshlah palace and Barzan heritage district (Figure 5.9).
Barzan area is an example of a Saudi city representative of cultural heritage sites. Al-
Hawwas (2002) illustrated the vernacular architecture in Ha’il province and how these
areas are rich in terms of architectural heritage. However, if we apply such criteria,
will the results reflect the reality? It is crucial to highlight the limitation, by applying
and examining the criteria in one real case, in order to understand its types and impacts,
to identify misunderstanding of the values of cultural heritage in Saudi Arabia.
Figure 5. 11 Satellite image of

Ha’il City, (KACST, 2016)
Figure 5. 12 Satellite image of Ha’il

city centre, showing some cultural
heritage sites (KACST, 2016)
235
In order to understand the importance of the heritage sites in Ha’il and the challenges
it faces today, it is crucial to show how the city; and the city centre, particularly, have
changed. By comparing satellite images for different periods, it would be possible to
show the level of change and the condition of heritage sites. For example, an old map
for Ha’il (Figure 5.10) illustrates the urban tissue and development of the city, which
includes many heritage sites and heritage urban areas and landscapes. In contrast, a
recent satellite image for Ha’il (Figure 5.11) shows how these heritage sites and urban
areas and landscapes have changed and, in most cases, disappeared. As a consequence,
the number of heritage sites has greatly diminished. For example, Barzan palace was
one of the significant heritage buildings in Ha’il. However, today a few buildings
remain often isolated from their context such as Barzan Towers (Figure 5.12). In this
respect; the responsibility is extremely high, from both administrations and
communities towards heritage sites, and actions are crucial not just to preserve, but
also develop what remains at the wider context of the urban cultural heritage. Also,
what remains today will become more valuable for future generations. Otherwise,
Ha’il will lose these heritage values, both tangible and intangible, and the loss will be
multiplied.122
122
Appendix 5.H shows some satellite images for Ha’il City during different periods (1978, 2004, 2007,
2009, 2010, 2012, 2013, 2014, 2015 and 2016). These reveal the change in urban growth and the levels
of damage at heritage sites. It is further evident the decreasing number of heritage sites with values and
context.
236
’Airf
Figure 5. 13 Urban tissue in Ha’il city centre showing the coherence and uniformity in the
urban structure which reflects the cultural activities (Ha’il Municipality, 1978)
Figure 5. 14 The change in urban tissue in Ha’il city centre, which affects not just the built
environment but also the cultural activities (KACST, 2016)
237
Figure 5. 15 The changes in Barzan area as a result of modernization, which impacted the
development on an urban and building scale. On the right, one of Barzan’s towers being
isolated.
What remains today, from the cultural heritage sites in Ha’il city centre (Figure 5.13),
are example of two issues. The first concern the preservation efforts towards, for
example, political values (Al-Qeshlah palace and A’Airf castle), as a result of the 1972
law, besides the awareness level from planning and development organizations such
as MOMRA, when they are dealing with development plans. The second issue
concerns the impact of the current criteria in terms of losing more values such as
architectural and social values.
238
Al-Qishlah
Airf
Figure 5. 16 Cultural heritage sites in Ha’il city centre showing the status of some architectural heritage buildings compared with preserved buildings
(2016).
239
Barzan is important because of its location and rich diversity of cultural heritage sites
(Figure 5.13), and the problems it is facing today due to its endangered sites (Figures
5.10, 5.11, 5.12 and 5.13). Furthermore, as steps towards implementation, the criteria
seek to classify for the purpose of preservation and development. The initial step will
be to apply these criteria in Barzan to identify its class. It is then necessary to discuss
the impact of the limitation of these criteria not just on the site itself, but also on the
community. Subsequently, some examples can be highlighted that show how some
heritage values are affected by the criteria evaluation.
5.5 Criteria Underlying the Classification and Selection of Barzan

Heritage Area For the purpose of Conservation and Development
As a step towards transforming the law into actions, the criteria are significant. By
applying these criteria in a real case, 123 live results can be produced (Appendix 5.C).
After applying these criteria in Barzan, it is shown that the site is third class (116
points), which means that it will not be preserved and developed.
According to the results of the criteria, Barzan district, like many other districts across
Saudi Arabia, will not be in the first or second list of preservation and development.
It is also not known when it will be preserved and developed. In this context, it is clear
that these criteria are important because they do not constitute a list to classify the
priority of preservation and development.
It is important to know the reasons behind excluding this site, and more likely other
similar sites, from being preserved and developed. The integration between criteria,
123
The criteria have been applied in the Barzan case study by SCTNH branch in Ha’il province.
240
distribution of weights and the terms that have been used in the criteria are crucial to
highlight.
One approach is to highlight the zero weights, in order to identify the risk of the
judgement and its impact on the heritage site. Similarity, in terms of the vernacular
architecture, which has borrowed materials from the local environment, this is
evidence of the integration and link between people and the environment, rather than
a reason for excluding heritage sites. Because the site is ordinary, and similar to other
sites, and there is no historical event, which has at least been documented, and there
is no ancient events or link to Saudi history or local events, it is weighted zero. There
is no heritage site without an historic event, at least for the different generations of
local inhabitants, which presents social value. Such a judgment can be made to exclude
some heritage sites even if these may demonstrate other unique values (scientific,
architectural, education, etc.). This could present more values or a different side of the
whole heritage image. Moreover, it is important to have documentation, which could
be part of the Site Data Form output. This evaluation excluded the site and made
underlined that the similarity has a negative impact; thus, it does not present the
heritage image. Indeed, a century for the district is worth more than this evaluation,
but the problem is to discover and interpret correctly the historical value and that there
are links to other values within its context. There should be criteria for each of heritage
value, and not just a historical value. In addition, these values should be clear in terms
of definition and weight.
241
5.6 Examples of Exclusion of Some Cultural Heritage Values in

Barzan District
As a result of applying these criteria, in Barzan area, but more likely in other sites, the
values of cultural heritage are impacted. Urban style, architectural style and details
criteria are reasons for excluding a site from being preserved and developed, because
the weighting is zero. In terms of architectural details and materials, for example, the
gypsum works (Figure 5.14 a, c, e and f), which were being used in other
sites/buildings, constitute a negative factor of heritage value, because the criteria
suggest that ordinary architectural details and the similarity in products are equal to
zero.
Gypsum as a building material has been used internally and externally. The internal
uses (Figure 5.14 a and c) are present mainly in the living room ‘Majles’, where the
guests are honoured and the sharing of stories takes place. The external uses (Figure
5.14 i and j) are in the columns and wall edges. This has two functions: first, for
protecting the mud-block, and, second, for decoration. For internal functions, it has
decorative and storage purposes.
The stories concerning building materials, such as bringing gypsum from the
surrounding urban areas, participating in its preparation, the collective efforts to
design and build it, and its application, seem to be missing in the criteria contents. In
other words, social values are not included in the criteria which impacts social values
then reaches other cultural heritage values. Additionally, level of the involvement and
participation in the built environment from local communities is impacted by these
criteria. These activities and practices aim to create and shape the cultural heritage
values; it is not just the final product, rather the integrated process. One example of
242
these activities is when the owner of a house starts building. The whole community
participate, and they become members of the workforce. Immediately, their efforts
contribute to defining the values, which means establishing and sharing the collective
memory. Thus, the same process is applied for other owners and the rest of
community.
Architectural details and building techniques (Figure 5.14 a, c, d, e, f and h) cannot
equal zero, especially when the values and the context are taken in account.
Construction style shows the power of building multi-storeys using mudbricks about
a century ago, and they are still durable. The history of these walls and doors, and of
the connection between places and people (Figure 5.14 g, h and i) is judged of value.
It is valuable not just because of the place, but also the building, town, society and
nation.
An ordinary building in the rarity criterion equals zero, while in terms of the heritage,
this ordinariness is a result of cooperation between communities to build houses. Also,
using building materials from local resources results in the architectural style and
building technique in a particular area as identified for the community. To clarify this
concept, comparing architectural heritage in each city within Ha’il province confirms
the importance of understanding the concept of unity and diversity in terms of cultural
heritage values.
This mechanism of the implementation process, and criteria, attempts to manage the
loads and responsibilities of stakeholders as regards cultural heritage. However, by
applying these criteria to any heritage site/building, it will affect both tangible and
intangible cultural heritage at local, national and international levels.
243
(a) (b) (c) (d)
(e) (f) (g) (h)
(i) (j) (k)
Figure 5. 17: Architectural design and

details from Barzan District showing
resources of different values (2016)
244
The implementation steps in the development and management of cultural heritage in
Saudi Arabia are due to laws, regulations and organisational structures. The recent law
has resulted in a list. However, the mechanism of implementing this list has affected
both tangible and intangible cultural heritage in different ways and at different levels.
The immediate actions, as regards the implementation stages of heritage management
in Saudi Arabia, were to apply the quantitative approach. It has been argued within the
criteria that such a scale is a tool to exclude rather than include heritage sites, which
goes against any objective of the criteria in any culture, for instance, English Heritage.
This is especially true if the criteria determine whether a site will be preserved and
developed.
The criteria should include all cultural heritage values within a context, rather than a
single building or object. Also, the criteria should be based on real information and
documentation, rather than opinions and estimations. Thus, one of the main objectives
of the criteria is to recognise and highlight the importance of the site through its values,
and not to judge whether it deserves to be protected and developed.
As heritage values within the criteria have not been considered, and there has been a
lack of real information and documentation about the sites, this has resulted in
insufficient integration between criteria in relation to distribution of weights, whether
across or within the criteria, and terms used. The intangible cultural heritage has also
been overlooked.
245
The case study of Barzan district area, as most heritage sites in Saudi Arabia, illustrates
the impact of laws and organisational structures on implementations at local level. The
diversity in architectural heritage in Ha’il province, whether in Ha’il City, Jubbah,
Baqa’a or Faid, or any city within the province, confirms the rarity. This rarity should
be considered as valuable resource, rather than as similarity between materials when
comparing buildings at the same location, as the criteria suggest.
The discussion of Barzan district in Ha’il City confirms that the preservation efforts
were not all considered heritage values, rather than focusing on some values as a result
of the 1972 law. Furthermore, the case study of Barzan illustrates the degree of
awareness of the planning and development organisations such as MOMRA in terms
of protecting urban heritage. Thus, the current criteria have contributed to the loss of
more values such as architectural and social values. For example, urban and
architectural style and details criteria are reasons for the third class, which means being
left out of the preservation and development list. On the one hand, Barzan is an
example of how such criteria can affect both tangible and intangible cultural heritage.
On the other hand, there is more implementation approaches that can be effectively
applied as explained in the next chapter.
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Chapter 6: Epilogue
6.1 Introduction ................................................................................................. 249
6.2 Lessons Learned from Laws, Policies and Regulations ........................... 251
6.2.1 The Experiences at National Level ........................................................ 251
6.2.2 The Experiences at Regional Level ....................................................... 256
6.2.3 International Level ................................................................................ 258
6.2.4 Summary ................................................................................................ 259
6.3 Lessons Learned from Organizational Structures ................................... 260
6.3.1 The autonomy ........................................................................................ 260
6.3.2 The relationship between the main players............................................ 262
Integration and competition approaches ......................................................... 263
Power imbalance.............................................................................................. 267
Duplicate process ............................................................................................. 267
Collaboration ................................................................................................... 268
6.3.3 Summary ................................................................................................ 269
6.4 Lessons learned from Implementations .................................................... 270
6.4.1 The implementations toward cultural heritage values ........................... 271
Sharing the cultural heritage site resource ...................................................... 272
Heritage sites management .............................................................................. 276
User management............................................................................................. 277
6.4.2 Tourism management in the urban cultural heritage sites ..................... 280
Information and interpretation ........................................................................ 280
Managing urban use ........................................................................................ 292

Chapter 6: Epilogue
Enhancing the cultural experience .................................................................. 297
Traffic and transportation management .......................................................... 298
Pedestrians and leisure .................................................................................... 301
6.4.3 The place enhancement .......................................................................... 302
6.4.4 Summary ................................................................................................ 306
6.5 Areas of further study................................................................................. 308
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6.1 Introduction
The majority of people, particularly in GCC countries, are not interested in the past
(Al Busaidi, 2010: 290), especially in cultural heritage, because they do not understand
it and/or have had no chance to understand it properly. Instead, the tourism industry
has created seasonal activities or festivals that create a temporary link with urban
cultural heritage sites. In addition, the local community still believes that their
involvement in tourism and in interpreting their cultural heritage to tourists is very
limited. Moreover, linking heritage continuously with handicrafts or traditional
products without understanding its other values within the context, especially during
tourist festivals in developing countries, has suggested to the current generation a
particular image, that depicts heritage as an old-fashioned idea that is not related to
their daily, modern lives.
Additionally in Saudi Arabia, the length of the period of stagnation and lack of
integration with the community shaped the community’s perception toward cultural
heritage, especially during the period when heritage sites were locked inside fences
and surrounded by warning instructions. Furthermore, the migration toward new
development areas, especially when new housing developments were established with
good infrastructure, encouraged communities to leave old housing, which was located
in or around the urban cultural heritage sites.
Local identity is one of the most important keys to help the community understand the
values of cultural heritage, both tangible and intangible, when it is managed and
considered comprehensively. Indeed, the history and background of heritage and true
knowledge and understanding are the main tools for providing this correct
interpretation of heritage. However, most of the architectural heritage and
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archaeological sites in Saudi Arabia were not known for many generations. In
addition, there were not enough documentary programmes about cultural heritage for
the public, which contributed to the lack of awareness. These educational efforts to
promote the values of cultural heritage, both tangible and intangible, are still
insufficient or non-existent. For that reason, historic buildings have simply become a
name on a protection list rather than a cause of action.
Linking the daily activities of the people with heritage could be an important step in
re-establishing their relationship to their heritage through administrative roles and
their power. The concept of ‘heritage friends’ members’ as an initiative is a technique
to re-link the community with the concept of the past generally and heritage especially.
Accurate knowledge and information about cultural heritage, from individuals or
organizations, could avoid confusion, especially in interpretation of the cultural
heritage values, and reduce the gap in understanding by correcting misconceptions.
Inheritance of forefathers and previous generations is another tool that could re-build
a community loyalty and re-link the proper relationship between the community and
its heritage. In this case, educational materials, subjects and curriculums must be
provided, especially for the younger generation in early stages of education. The
contents of existing subjects and materials like history and Islamic culture can be
developed, or new materials can be created, like materials addressing ‘national
heritage’ or ‘my heritage’.
In order to reduce the gap in the national and local understanding of the values of
cultural heritage in Saudi Arabia, it must be noted that this gap is the result of the three
main facts: laws, organizational structures and implementations and the impacts of
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these three facts on cultural heritage development. This chapter illustrates the findings
of this research based on these three main issues. First, the importance of laws, policies
and regulations in managing urban cultural heritage is discussed. Second, the impact
of the organizational structures that enforce laws at the local level with other players
is examined. Finally, the implementations toward cultural heritage values at the local
level are investigated.
6.2 Lessons Learned from Laws, Policies and Regulations
Addressing heritage laws and definitions clarified the current situation in Saudi
Arabia, especially through identifying how communities and administration should be
involved in the development of cultural heritage at the national and local levels. In
addition, the research explored the best way to decrease this gap in understanding,
especially in the context of these laws, policies and regulations, by comparing the
efforts in Saudi Arabia with experiences in Jordan, as a case study at the regional level.
UNESCO and ICOMOS were examined as international case studies.
6.2.1 The Experiences at National Level
The correct definition of heritage helps to give a specific identity and function for
heritage within its context. However, reducing heritage to antiquities, as happened in
Saudi law, impacts both heritage and societies. Analysis of the 1972 law in Saudi
Arabia clearly shows the limitation of this law. The inclusion of all heritage types
under the antiquities framework shaped a certain image about heritage based only on
antiquity value. Additionally, the top-down approach to heritage, as mentioned earlier
the high council of antiquities being a centralized administration made heritage
management difficult.
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The consistent application of this law from 1972 to 2014 (Figure 6.1) resulted in the
fencing and locking of urban cultural heritage and heritage buildings, thus severing
people from their traditional built environment. ‘Conservation has to be seen as more
than simply protecting historical places and buildings, but as a process that enables
them to be maintained and changed if necessary but always recognising the values that
these heritage assets stand for’ (Orbasli, 2008:36). The emphasis on certain values,
namely, political values, while overlooking others, led to a reductive and biased vision
of heritage, mostly focused on public properties, leaving private assets slowly fall into
neglect.
Antiquities,
Antiquities since 1972 - until 2014 for more than 40 years
Museums and
Law Architectural
Heritage Law
1972 2014
Figure 6. 1 The development of heritage laws in Saudi Arabia
As discussed, the urban level was impacted through the focus on antiquities as the
main approach toward heritage development. For instance, when the definition
focused on single materials, such as doors or windows, or any architectural elements
in the architectural heritage building, it was not just the integration between
architectural features or the overemphasis on details and features rather than a holistic
look at the whole urban realm. These practices caused exclusion of the urban level as
a component of the built environment, which impacted the relationship with planning
at the urban and architectural levels. This approach produced a de-linking of heritage
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buildings or single architectural elements from their immediate urban context. The
Barzan Tower in the Ha’il province (Figures 6.2, 6.3 and 6.4) is a paradigmatic
example.
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Figure 6. 2 Satellite image of the Barzan Tower in the Ha’il Province (KACST, 2016)
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Figure 6. 3 Zoomed-in image from the satellite image of the Barzan Tower in the Ha’il
Province (King Abdulaziz City for Science and Technology, 2016)
Figure 6. 4: The Barzan Tower in the Ha’il Province, 2016.
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6.2.2 The Experiences at Regional Level
Saudi Arabia joined UNESCO in 1946, while Jordan joined in 1950. However, the
number of developments and iterations of heritage definitions in Jordan (1953, 1966,
1968, 1976, 1988, and 2005) represents one of the key steps towards achieving an in-
depth understanding of the values of cultural heritage and its wider context (Figure
6.5).
The Urban and Architectural

The Ancient Antiquity Law

Heritage Law
1934 1953 1966 1968 1976 1988 2005
Figure 6. 5 The development of heritage laws in Jordan between 1934 and 2005.
Feedback from end-user communities is key to successful development of definitions
in the field of heritage. This feedback approach confirms the benefits from
participation of the communities and from international experiences of both
individuals and organizations. Parallel efforts to consider both the international and
local levels leads to develop not just the laws and definitions but also understanding
different values of cultural heritage, which impacts level of awareness.
A specialist body for specific tasks to manage heritage were notable in Jordan even
after any development in the laws and definitions. For example, it kept the antiquities
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management under the Department of Antiquities with full responsibility for
antiquities not heritage management. This approach helped to reduce conflicts
between main players as well as implement the development plans at heritage site
easily and faster.
The possibility for development of the definition in Jordan was available at any stage,
as seen in development of the laws and the definition since the antiquities law in 1966
until the urban and architectural heritage preservation law in 2005. For example, the
passage ‘…Has a link with important historical events…’ (Ancient Antiquity Law
1966: Article 2) could equally refer to public and private properties, at a national or
local level, and lead to future inclusion of assets properties.
One of the early concepts applied in Jordan, such as in the 1966 law, was the ‘list’.
The list created a ‘build-up system’, which was feed by its contents and what the law
identified and categorised. Thus, the feedback of any future development of the
definitions of heritage could be reflected on the list, with more development resulting
in more categories added to the list. This reflects the context of heritage and a deep
understanding of the values of cultural heritage.
Excluding or including any type of heritage or period is a result of political decisions
and a lack of understanding the values of cultural heritage. Despite the reasons behind
the inclusion or exclusion of heritage assets, expert involvement in heritage-related
policy and decision-making is key to altering the above mentioned trend and filling
any knowledge gap in the field, as seen in Jordan through participation from
international organizations and individuals. Furthermore, local community is one of
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the most valuable providers for knowledge, especially in the cultural heritage context,
where communities are often the custodians of intangible heritage.
6.2.3 International Level
Since the early nineteenth century there has been a tremendous amount of
developments in the heritage definition, meaning and context. In 1972, a number of
new notions were introduced and implemented (through the development in the
definition by UNESCO and ICOMOS, as shown previously in chapter three), such as
museums, collections and works of art, buildings of historical and archaeological
interest, ancient monuments, cultural property, movable and immovable property,
cultural heritage, manuscripts, centres, landscape etc. (Appendix 3.K).
Some of these notions were applied to the Saudi definition, such as fixed and movable
antiquities, natural and man-made caves, historic buildings, forts, castles, doors,
windows, columns etc. However, some of the internationally accepted notions of
cultural heritage, such as the differences between antiquities and heritage, heritage
context and urban heritage and landscapes, were not accepted by Saudi legislation.
This caused a gap between the international and national levels in Saudi Arabia not
only in terms of the definition but also the management of heritage within its wider
context.
Any gap occurs between two bodies, whether between international and regional, or
regional and national or national and local. This gap is increased or decreased by the
level of integration between these bodies, as well as the approach applied. Differences
between government bodies devoted to cultural heritage protection are inevitable;
however, they should share similar levels of awareness and understanding of cultural
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heritage values. The concern comes from the difference between objectives and tools.
For instance, the 1972 law focused on the principles of protection as an objective rather
than a tool which should be followed by further steps. However, the law was not the
only factor that led to this gap; other issues such as the oil boom in 1950s, 60s and 70s
and the tourism industry in the 2000s discussed earlier, as well as other development
plans, shaped the gap in understanding the values of cultural heritage, both tangible
and intangible.
Indeed, a correct definition is one of the most important tools for understanding and
developing heritage within its context, but it is not the only one. Community
participation is another important tool to manage heritage sustainably. Also, the
position of heritage management within the state’s government organisational
structure plays a major role. Continuing development of the definition led to the
exploration of more terminologies.
6.2.4 Summary
This section of the research investigated the gap in understanding the values of cultural
heritage, both tangible and intangible, between the national and local levels through
laws, policies and regulations that direct heritage development. This research
identified the lack of current situation in Saudi Arabia in terms of meaning of cultural
heritage within the 1972 and 2014 laws. It is clear to note that lack in defining cultural
heritage leads to misunderstanding in both; the values of cultural heritage within their
context, and the relationship between them especially in regards of tangible and
intangible heritage.
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The best way to decrease this gap especially in the contents of these laws, policies and
regulations is by including the values of cultural heritage through; developing the laws
and policies constantly, investing the participation from national organizations with
international and regional organizations toward being aware of any development and
update, and improving level of the participation from both communities and
administration at the local level. The development of cultural heritage at the national
and local levels should be practiced by both communities and administration, this
practice should be included clearly in the contents of the laws, policies and regulations.
6.3 Lessons Learned from Organizational Structures
The organizational structures concerning architectural heritage and tourism, which
enforce the laws and policies at national and local levels, were identified in MOE,
MOMRA, MOCI and SCTNH. This was to understand the current structure at both
national and local levels, as well as to establish ways of enhancing organisational
structures for the architectural/urban heritage and tourism sectors.
The type of relationship between organisations such as education, municipalities and
tourism plays a major role in implementations at the local level. Effective
administrative stakeholder involvement can be encouraged by taking a holistic view
of the cultural heritage values and aiming toward public awareness. This confirms the
importance of identifying the administrative conflicts at national and local levels such
as autonomy, power imbalance, duplicate process and collaboration.
6.3.1 The autonomy
The ability to take actions regarding cultural heritage development is important for
implementing heritage development plans, especially at the local level. The decision
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of estimating the level of any development in heritage sites is various for all the key
players, including SCTNH as a leader of this field. However, the values of cultural
heritage should be at the core of any assessment from any main player whether
MOMRA, MOCI, the MOE or SCTNH especially at the local level.
Knowledge and power are crucial elements for taking implementation steps. The
autonomy has a link with the capacity of knowledge, especially in the heritage field.
In order to be able to take the right action in developing the cultural heritage sites,
organisations need to have both knowledge and power. The knowledge needs qualified
members in various specialities such as conservation, heritage management and
heritage economics, just to mention a few. SCTNH provides the knowledge, whether
from local staff or consultants. However, owning this knowledge is not enough,
especially at implementation stages. The knowledge should be available, visible and
clear for all members who are involved in cultural heritage management. Sharing
knowledge could be a tool for sharing autonomy and participating effectively in
developing the cultural heritage. Additionally, the power needs to be employed
correctly; however, without a comprehensive plan and management, efforts cannot be
led in the right direction.
For instance, none of the key players is able to take the right action toward
development heritage sites individually, but they can only when they work
collectively. MOMRA and SCTNH are clear examples of how the lack of either
knowledge or power leads to problems in heritage management and development. The
knowledge that SCTNH has does not allow it to develop heritage because it has no
power for implementation. In the same context and vice versa, the powers that
MOMRA has do not help it to develop heritage. This explains why some SCTNH
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initiatives124 have not been completed, and why most MOMRA efforts125 are not
practical. These different tasks and players have raised the importance of the
relationship between the players.
6.3.2 The relationship between the main players
Various approaches by multiple organizations, with different goals, will cause more
conflicts between them. However, comprehensive planning and management, along
with participation, sharing and involvement, can be effective tools for reducing these
conflicts. From the structure of the main players, as explained in chapter four, the
individual approach is clearly followed, especially from the national toward local level
through the organization structure. No horizontal link exists between organizations,
and they are without enough participation from local communities126 most of the time.
Organization branches at the local level usually follow requests and plans from the
national level; in other words, there is no clear link or communication between
different organizational branches at the local level. This is not to say there is no link
at all; in some cases, there are links127. However, these links are not mandatory and
124
For some examples of initiatives from SCTA see Appendix 4.F. However, rapid intervention or
emergency action toward heritage preservation has shaped a certain image about heritage. Communities
look at heritage sites as a ground field for SCTNH; for example, when SCTNH is doing any preservation
project, it’s a preservation project from the SCTNH perspective. However, from the society’s point of
view it is a development project, and they are waiting to enjoy it. When people look at any heritage
project at any site, they look at it as a development project and try to understand the project, while it is
in fact a preservation step that might or might not be under a development plan. This causes the public
to see the site as an incomplete development project. This approach impacts not just the societies
themselves but also the stakeholders in both the government and private sectors. Moreover, it impacts
the heritage sites in terms of their values and context. Another initiative that participates in this situation
is micro-development, whether in walls within town or a part of a building or a building within a district.
125
MOMRA efforts, especially in architectural heritage sites, are superficial, as seen in what happened
at the Barzan Tower in Ha’il city (see chapter five) and in many cases in Saudi Arabia.
126
When there are conflicts between local residents and professional planners, it is not necessarily the
locals who are in the wrong. Planners can be vandals too, if their planning is insensitive or their policies
inequitable (Shehayeb and Sedky, 2002). To change this paradigm, planners must start heeding the
appeals of the local communities (Pahl, 1982:47, 8).
127
The links such as committees or groups of work which cannot make decisions for a long time with
full power and autonomy and not enough to act individually, also their decisions are not mandatory.
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lack any administrative framework. A horizontal link between branches at the local
level through shared objectives, plans and projects could be an approach to develop
the relationship between main players to reduce the gaps and conflicts. This switches
efforts from ‘individual competition’ to the ‘integration’ stage which will eventually
return to ‘new competition’, but only after having established common objectives and
plans especially in terms of cultural heritage values within their context. The
integration and competition approaches, power imbalance, duplicate process and
collaboration are crucial facts in the relationship between main players as will be
explained next.
Integration and competition approaches
Establishing competition between national and local organizations is one of the best
approaches to develop cultural heritage, but only when both tangible and intangible
heritage are fully understood within the context. For this to happen, stakeholders must
come through the integration stage first, to sort out conflicts and plan the development
of cultural heritage. Without the understanding of cultural heritage values, competition
between stakeholders, would increase the gap between them as well as the conflicts,
thus affecting cultural heritage especially in the implementation at local level. The
development of cultural heritage, both tangible and intangible, should be one of the
main tasks and objectives for all key players. When this happens, the common
language is understood and the reasons behind connection and communication are
appreciated.
Rewards and incentives are some of the most effective tools for the integration and
competition process in heritage development at both levels, such as awards of best
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development project, best preservation project and best restoration project at the local
level, as awarded by the province governor. At the national level, a competition for
national awards awarded by the king could include different categories such as
antiquities and museums, architectural heritage and intangible cultural heritage.
Competitiveness at the local level as well as the national level will impact cultural
heritage and increase public awareness, especially concerning the private sites. This
approach would enhance and encourage the key players; it could also solve and reduce
conflicts between organizations at national and local levels and establish trust and
common interests.
The integration approach is impacted by the link between main players at the national
and local levels, especially between the most effective players (SCTNH and
MOMRA) and HCDs who are supposed to play the main role in managing the sources
of power and knowledge. For integration to work, communication and strong links
between the departments within the organization are required, whether in SCTNH,
MOMRA or HCDs. For example, in SCTNH, where the knowledge is, the National
Heritage Centre is the leader of national heritage development, and is supposed to
provide and share its plans with the regions sector and the antiquities and museums
sector, as well as the planning and monitoring department that is supposed to be the
link with outsider players. The international coordinating department in SCTNH
should play the advisor role especially with regional and international organizations,
to make sure updated cultural heritage knowledge and practices are being used.
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Despite the weekly, quarterly and yearly meetings that SCTNH follows128, the current
structure does not help manage cultural heritage development, especially because
there is no unit that coordinates all the development projects and makes the data
accessible in one platform. In this sense, there is need for a unit that coordinates these
tasks within SCTNH and is responsible for external relationships and communication
(Figure 6.6).
Board of Directors
Planning & Monitoring Heritage

Management SCTNH President Handicraft Program
International Cooperation unit
(Bari)
National Urban Heritage Centre Assistant to President
Documentation & Preservation
Rehabilitation & Development
Regions Antiquities & Museums
Riyadh Makkah Antiquities Registration and

Protection
Al Eastern
Madinah Province Research & Studies
Aseer Qaseem Museums
Jazan Hail National Museum
World Heritage Sites

Najran Tabuk
Al Baha Al Jouf
Northern Border
Figure 6. 6 SCTNH structure illustrates the new unit that can play important roles in
managing cultural heritage both internally and externally.
128
SCTNH is one of the most developed bodies in the Saudi government due to its dynamics and IT
infrastructure, including an electronic government environment. For instance: Achievement award for
e-government transactions – E-Entrepreneurship branch 2017, Achievement award for e-government
transactions – E-Entrepreneurship branch 2016, Best M-Government Service Awards under the
category, ‘Tourism Sector’ 2015, Achievement award for e-government transactions – E-
Entrepreneurship branch 2014, and more (https://scth.gov.sa/en/AboutSCTA/Pages/OurAwards.aspx).
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This unit should be at a high level within SCTNH structure in order to do its tasks,
especially under the imbalance in power with other organizations. This unit would
manage the project process and avoid duplicated processes within SCTNH, as well as
within MOMRA and other players. In terms of duplicated processes in MOMRA, this
unit would provide and share a database of management plans for all projects in each
province to prevent duplicated processes from occurring. Also, communication with
MOMRA and other players would be based on the database platform.
At the national level, it is essential to have more participation from both local
administrations and communities. For example, information about any new regulation
should be circulated across local level bodies prior to its implementation. The main
provider of these regulations is the National Heritage Centre in SCTNH, it is important
to develop these regulations internally with other departments such as the planning
and monitoring department, which coordinates tasks.
The planning and monitoring department is the key link between other organizations
and the SCTNH. For example, sharing the plans, initiatives and projects by
establishing a database platform would keep the players updated and involved. When
this platform is fully established and operational, the link with outsiders will be easier
and more practical to access. For instance, sharing the database with MOMRA, as well
as other players such as the MOE and MOCI, would make the vision clearer. The
shared database would also allow them to participate at the right time and prepare their
projects to integrate with the database platform.
The database should be classified into different levels; for example, projects should be
established from a high-level perspective, without going into details. At this level,
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suggestions for any project would be available to all players within one shared
platform. The next level would add the details of the projects, including associated
tasks and players. This approach solves conflicts, especially those relating to budgets,
responsibilities and resources. Indeed, the relationship between MOMRA and SCTNH
faces some difficulties which lead to conflict. Building up an integrated administrative
system could be an effective method for developing cultural heritage as well as
reducing conflict between SCTNH and MOMRA.
Power imbalance
As mentioned earlier, each player has different interests and objectives, which mean
more interests leading to more responsibilities. Furthermore, these responsibilities
lead to more power. Adding cultural heritage as one of these player’s objectives will
establish a collaboration approach, especially between the departments in SCTNH and
MOMRA at the local level. For example, in Petra, the heritage was established as a
core target for all players. Thus, all power was exercised with this target in mind.
However, the development of cultural heritage is not considered by some players,
particularly MOMRA, as a key tool for preserving local social economic values. The
requirements of cultural heritage development projects are different from other project
requirements within MOMRA. The power of MOMRA should be exercised to serve
and consider the heritage projects. This could happen only when the database platform
suggested it.
Duplicate process
When a government body, SCTNH for instance, plans to develop a heritage project,
such as the Ha’il city centre, its efforts are concentrated mainly within the project.
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However, when the plan is done, it is hard for this government body, like SCTNH, if
not impossible, to implement the plan129. Despite these efforts130 from this body,
SCTNH for example, other government body, such as MOMRA, has different
priorities and projects to develop in this area. For example, in 2018, it was announced
that the Ha’il municipality is preparing a development project for this area without
considering for what SCTNH did, which is duplicated process to develop same site.
This is just one example of duplicated processes between two government bodies,
MOMRA and SCTNH, which could happen in any heritage site and between any
players.
Database platform is a solution to avoid duplicate processes through share information
and plans between government bodies especially in developing heritage sites. It is
clear that lack of collaboration between players, especially in terms of the database,
will led to duplicate processes. Thus, this duplication will consume the time and
money as well as loss some cultural heritage values if not all.
Collaboration
Lack of collaboration between main players, especially between MOMRA and
SCTNH is due more to SCTNH than MOMRA, because of its roles towards cultural
heritage. To correct this, SCTNH needs to activate its project management unit in
different ways. One of the best ways to activate heritage management within SCTNH
129
The Ha’il city centre project was planned by SCTNH in 2005; however, it was not implemented
because there was not enough coordination between the knowledge suppliers (SCTNH) and the power
(MOMRA). See the next chapter for more information about this project and the implementations in
general.
130
Even when SCTNH tried to participate with MOMRA at the local level during planning, the
coordination was not mandatory, which confirms the gap between the departments at the local level as
well as the national level.
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is through sharing the database with MOMRA and other players. The database
platform is an effective technique to encourage more involvement, participation and
management from stakeholders. This database of plans, projects, action plans and
collaboration channels would be an important tool to build up a collaboration system
between organizations. With respect to the organization structure, cultural heritage
projects should be managed based on real information that includes the database
platform which reflects the responsibility of each player. This platform should also
provide a clear paths for the communications, whether through regular meetings,
emails or other tools with a specific time frame.
Technology and software can provide these services with the implementation of some
management concepts such as Project Management Office (PMO) and Key
Performance Indicator (KPI). Transforming efforts into numbers and measurable tools
will help to manage heritage projects more effectively, especially among multiple
players. Also, investing and implementing technology in developing the cultural
heritage projects is beneficial because it can identify who, when and how the players
are connected, especially in terms of different levels, from supervisory level to
implementation and techniques levels.
6.3.3 Summary
This part of the study investigated the impacts of architectural heritage and tourism
organizational structures, which enforce the laws and policies at national and local
levels. This investigation illustrated the lack of current structure at both national and
local levels due to the schism, especially in the knowledge and power toward
development of the urban cultural heritage sites. In order to enhance the organizational
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structures for architectural/urban heritage and tourism sectors power and knowledge
should be managed at local level among the main players including local community.
Also, this part of the study identified the types of relationships that must be established
with other organisations such as education, municipalities and tourism to develop
cultural heritage. Concept of the share and concept of the integration are results of
applying the unit of heritage management at both national and local level which leads
by SCTNH.
Addressing the laws and organizational structures, in this section of the research, led
to the way to encourage effective administrative stakeholder involvement by taking a
holistic view of the cultural heritage values and aiming toward public awareness
through; implementing the unit of heritage management as well as solving the conflicts
between the main players, sharing the benefits and responsibilities, merging
knowledge and power in one body to manage cultural heritage sites at local level.
6.4 Lessons learned from Implementations
Extending from the laws and organizational structures and taking the Barzan district
area in the Ha’il region in Saudi Arabia as a case study, the implementations process
illustrated how the urban cultural heritage and tourism policies are applied. This was
especially seen in the implementation processes that translated the laws and
regulations into actions by specific bodies such as MOMRA and SCTNH for heritage
site development and user engagement. The Barzan district area case study established
the significance of Ha’il’s architectural heritage and its economic and cultural
potential and aided the understanding of the impediments to development, identifying
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ways not only to protect and safeguard Ha’il’s architectural heritage but also to make
it relevant to the cultural heritage values and their context.
6.4.1 The implementations toward cultural heritage values
Tourism is one of the main tools for making cultural heritage sites more attractive, not
just for tourists but for all users. In Saudi Arabia, tourism, antiquities and architectural
heritage are managed by SCTNH which, in theory, makes managing heritage sites
easier because it is limited to one organization. However, in practical terms, a lot of
efforts are required to do this task probably, especially in terms of qualified staff in
different fields and the relationship with other stakeholders at various levels. In terms
of architectural heritage and tourism, Saudi Arabia began by developing tourism in
2000, and then added the development of architectural heritage in 2014. This approach
has resulted in limiting heritage development to the tourism framework.
‘To some, tourism represents an opportunity – a means of capitalising on the legacy
of history – to others, perhaps it may be something of a threat unless it can be managed
safely’ (Stuart, 1989: 1). The risk comes from the loss or dominance of some values
on others, thus affecting the cultural context of the site, which may cause disappearing
or disrupting of these values due to misconduct by administrations or users, whether
tourists or local community. Managing cultural heritage sites safely requires sharing
the responsibilities and developments at different levels, with full understanding of the
values of cultural heritage sites and their links with each other. For example, economic
value is a focus for some organizations (MOMRA, for instance) while other values,
such as intangible heritage value, are targets for other organizations (SCTNH, for
instance). Understanding different values is an approach for serving the context of
cultural heritage through implementing the concept of sharing.
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Sharing the cultural heritage site resource
In the isolated evaluation of cultural heritage sites as a tourism destination, the
mainstay of the cultural heritage site product can be identified by architectural heritage
buildings and collective memory values of the cultural heritage sites and urban spaces
alongside urban life and human activity. All these assets that create meaning and
significance face the danger of being permanently lost or ruined if cultural heritage
product and tourism are not managed sensitively.
The main global concern with cultural tourism ensues from the damage and negative
impacts from visitors to architectural heritage buildings and urban spaces. This is not
the case, at least currently, in Saudi Arabia and in the Ha’il region particularly because
the Saudi experience is still new, especially with tourism, due to its official
establishment in 2000.
To help understand this progression, Butler (1980) drew a model of the evolution of
tourism areas in developing countries. He argued that managing the changes over time
is an important part of sustainable development (Butler, 1980). Butler (2006) also
suggested that tourism destinations and resources will indeed become over-used,
unattractive and eventually experience decline if specific steps are not taken in
advance. Butler’s model classifies tourism destinations into seven stages, namely,
exploration, involvement, development, consolidation, stagnation, decline and
perhaps rejuvenation (Figure 6.7). However, Butler did not designate the extent of
action (or inaction) that would lead to the rejuvenation, stabilization or prompt decline.
According to the explanation of the various stages in Butler’s model (Appendix 5.F),
the exploration and involvement stages are the current position for most tourism
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destinations in Saudi Arabia, except some specific sites in the large, populated cities
such as Al-derayah in Riyadh and Historical Jeddah, which are probably in the
development stage. In other words, visitors must be encouraged to spend more time in
the tourism destination, whether it be cultural or natural. However, tourism’s
seasonality plays a major role in the number of tourists, especially in cultural heritage
sites in Saudi Arabia.
Figure 6. 7 Hypothetical evolution of a tourist area (Butler, 1980, adapted by Butler, 2006:
5, Vol.1)
The need for pushing tourism development from the exploration stage to further stages
is crucial, one that remains an urgent task for tourism management. This is not a call
to ignore the impacts of tourism or minimize its importance, but to highlight the matter
as a major issue that should be managed sensitively and taken into account after
enhancing awareness within a priority list, since the local communities are the main
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focus and recipient of any type of development. The issue is how cultural heritage sites
can be made attractive locations throughout the year, and not remain just seasonally
attractive to tourists in a nominal way, or during certain tourism events and shows
(Figure 6.8). The development must be upgraded from the exploration stage to further
stages by increasing the number of visitors and their involvement within the urban
cultural heritage contexts and values.
Figure 6. 8 The visitors in Al-Qeshlah palace during seasonal events such as ‘National Day
in 2016’ (left). For normal days most of the year, the palace seems to be almost empty
(right); rectification of this situation is possible by planning and management, (2016).
To encourage this increase in number and involvement, welcoming messages should
begin before the entrance doors are reached; they should begin in the urban design
through directions, signs, pavements and plazas that lead to the sites. More welcoming
messages should greet the visitors at the entrance. When visitors enter the building,
this should be a result of the urban messages that encourage users to visit and enjoy
their time within these urban cultural heritage sites with an appreciation of the heritage
context and values.
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In this sense, the objective is to keep Al-Qeshlah palace, for example, and other
cultural heritage places alive throughout the year with a protected and sustainable
approach. This could be done in many ways, such as linking Al-Qeshlah palace with
activities of daily life, which would create a link between these places and people and
take into consideration a comprehensive management plan with clear and regular tasks
for all stakeholders. Also, linking these sites together materially and morally would
shape an attractive tourism destination and share resources and benefits along with
responsibility.
Al-Qeshlah palace was tendered for investment many times, but no investor wanted to
take this risk, a risk for both the building and the investor. The reason was simple; the
owner (SCTNH as a legacy from the MOE due to the 1972 law) wanted to move the
responsibility of conservation to the investor through a lot of requirements. For
instance: ‘the investor has to employ people just to report SCTNH’ (Head of SCTNH
branch in Ha’il, interview, 3/8/2016), in addition, one of the requirement from SCTNH
was that ‘all restoration works are carried out by the investor’ and ‘employment of the
palace as a hotel and a traditional restaurant’ (SCTNH, Al-Qeshlah TOR). Sharing the
responsibility as well as the benefits could be an approach to sort out this problem,
especially with stakeholders who provide services like MOMRA. This approach
would create a model for investment in heritage buildings that protects the site (by
SCTNH), encourages providing good services and has more power in the city centre
to link with other sites (by MOMRA) and create a good quality market (by the
investor).
This integrated approach between the owner (SCTNH, in terms of conservation),
stakeholders (MOMRA, in terms of providing services) and the investor (individuals
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or groups of people in terms of commercial marketing) will directly benefit Al-
Qeshlah palace by reusing the building for both tourist functions and daily life
activities. Thus, the impacts of this approach will: sort out the conflict between
stakeholders and enable them to be involved effectively in development of the cultural
heritage sites; create a successful business model for investment in cultural heritage
sites; encourage communities to be part of the development and investment; ensure
that architectural heritage buildings are restored properly; create real functions for
architectural heritage buildings and make them attractive; participate in linking
cultural heritage sites together and shaping an attractive tourism destination; avoid
tourism’s seasonality and link communities with cultural heritage sites; and increase
the public awareness and avoid the negative impacts of empty properties like crime
and various environmental pollutants.
Heritage sites management
Cultural heritage sites in the Ha’il city centre are in the core of the city, where services
are available, and communities’ activities are attractive, especially in the Barzan
market. In contrast with a single purpose site, such as museum, for instance, Al-
Qeshlah palace, A’Airf castle and Barzan district area are more difficult to manage as
urban heritage sites. However, their income, benefits and impact go beyond entry
ticket fees. In the same context, visitor management in urban heritage sites requires
more than what a museum requires.
However, as mentioned, the benefits of tourism at cultural heritage sites are significant
when the sites are managed by comprehensive plans with full understanding of cultural
heritage values. The conflict (especially in power and knowledge) between
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organizations (SCTNH and MOMRA as main players) and users (tourists and
communities as main users) in cultural heritage sites can be a tension caused by the
relationship between stakeholders, the right of users and the requirements of
conservation (see the previous chapter).
Indeed, management is ‘a process business undertaken to achieve organizational
performance’ (Ivanceich et al., 1991; quoted in Murphy 1997: 3). Better management
is characterized by efficiency and effectiveness, but as Orbasli warns, ‘Efficiency of
management in the urban environment is further hampered by the complex and
contradictory relationship among key players in the decision-making process’
(Orbasli, 2000: 161). Real investment upgrades the business process better than
anything else, and sharing benefits and responsibilities among organizations enhances
and develops the performance, whatever the style of management. In this way, ‘we
cannot afford not to manage tourism better’ (Boniface, 1995: 114) at cultural heritage
sites.
The heritage industry has many components, of which heritage management is on top:
‘Good heritage management with a major focus on heritage interpretation and
presentation ensure that one complements the other’ (Millar, 1995: 115).
User management
Managing users, both tourists and locals, requires creative solutions to enhance the
experience of all users with an understanding of how they complement each other
within the built environment. ‘The dispersion and management of visitors can be
achieved to a great extent through careful planning and sensitive urban design, with
the support of the tourism promoter or manager’ (Orbasli, 2000: 163).
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Sensitive urban design and careful planning in the tourism framework would be one
of the best solutions for developing cultural heritage sites in the Ha’il city centre,
through an integrated approach between SCTNH and MOMRA. For instance, the most
attractive place in the Ha’il city centre throughout the year is the Barzan market which
includes two zones, one for clothes and personal supplies, and one for vegetables and
fruits. In this market, activities of daily life are surrounded by cultural heritage sites,
but there are almost no connections between them. To improve this, the pedestrian
flow must be managed to serve the heritage sites and enhance the experience of
visitors. The map of Ha’il city centre illustrates the location of the markets and their
surrounding heritage sites, which create a need for urban design to manage visitors
(Figure 6.9).
Figure 6. 9: The Ha’il city centre with distances between the Barzan market, Alqeshlah, Airf
and other sites. (Modified, KACST, 2016)
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Meanwhile, overcrowding and the capacity of an area must be considered. National
and local authorities should collaborate in understanding and managing capacity when
planning and designing urban heritage sites. Williams (1998) mentioned that the
concept of carrying capacity is a well-established approach toward understanding the
ability of tourist places, an approach that is also inherent to the concept of
sustainability. However, in urban cultural heritage sites, the matter is more complex.
Calculating the carrying capacity in a living built environment is as yet undefined, and
it adds more difficulty to the collective objectives within this built environment (Page,
1995). In these instance, the carrying capacity is not a simple number, but a lot of
players such as spaces and cultural and natural elements (Medlik, 1995).
In terms of tourism, the main focus is often on a specific area in a specific time; for
example, the concentration on Al-Qeshlah palace is often on ‘National Day’ or another
specific event, while the rest of cultural heritage sites, such as A’Airf castle and the
Barzan area, which are supposed to participate in including the visitors and sharing
the carrying capacity, are almost empty and outside of visitors’ plans. This situation
has resulted in overcrowding for particular sites/times which may cause loss of the
site’s values with its context and loss of the link between these sites due to the impacts
of a crowded place. Instead, the site should be enhancing the visitors’ experiences.
Managing the demand, distributing the attractions, and turning the activities and
involvement in the urban spaces are tools to make cultural heritage sites alive and
attractive.
Other pressures affect users, especially from urban design, such as accessibility,
commercial demands, and modern lifestyle requirements, including pedestrian paths
which are examples that confirm the need of a visitor management plan.
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6.4.2 Tourism management in the urban cultural heritage sites
The users, either new to the site or accustomed to it, are a target for visitor
management, especially in terms of direction and orientation. Directing visitors from
the arrival point is a process that enhances their experience through highlighting the
attractions, presenting values and encouraging involvement. Also, access at any point,
not just from the parking or entrance but also within pedestrian pavements, must be
considered. In this technology era, there are a lot of methods for information and
interpretation in cultural heritage sites; nevertheless, ‘most importantly they must not
be obstructive to the place and its daily life, and to be successful they must make the
visitor feel part of the place and not just a spectator’ (Orbasli, 2000: 165).
Information and interpretation
Information and interpretation for Al-Qeshlah palace or A’Airf castle as a single place
are different than other cultural heritage sites in the Ha’il city centre. The urban sites
are integrated to provide information and interpretation for the area as a tourist
destination within a cultural heritage context. However, the approach of dealing with
heritage sites as an isolated places ‘single object’ must be changed, not just in
interpretation methods but also at the management level. This is one of the main issues
of implementation steps for developing cultural heritage sites in the Ha’il province
when dealing with a single place rather than urban sites within their context.
At the urban heritage sites, such as the Ha’il city centre, the information should be
shown clearly from different accessibility points like the airport, highways, ring roads,
main and subsidiary streets and the surrounding areas of cultural heritage sites. Each
piece of information should have specific requirements in terms of type and objective
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of the messages, tools and contents, which should be in various forms but serving one
destination.
In Al-Qeshlah palace, for example, there are two types of information (Figure 6.10):
one is a signboard outside the building and the other is the brochures at the main
entrance. The signboard contains simple, general information, which is appropriate:
‘Any information provided must not be overwhelming’ (Orbasli, 2000: 165).
However, no invitations or directions for visitors exist at the planning level at the
airport, highways or main street signs. They also are non-existent at the urban level,
such as in subsidiary streets, pedestrian pavements and surrounding places.
Figure 6. 10 The information and interpretation methods used in Al-Qeshlah Palace

through only signboards surrounding the palace and brochures at the main entrance. (2016)
The information location confirms the single object approach toward cultural heritage
sites in the Ha’il city centre, which does not encourage visitors to spend more time or
provide a chance to practice and experience the cultural heritage sites within context.
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This is the same at the A’Airf castle site (Figure 6.11); the signboards are inside the
site, and the brochures are inside the location, with no direction signs leading to the
site or linking it with other surrounding sites.
Figure 6. 11 The information and interpretation methods used in A’Airf castle are
signboards surrounding the fort and brochures at the main entrance. (2016)
The signboards are a project that have been done at the national level through one
TOR (Terms of Reference) by different contractors in each province. A spherical
foundation, joined by a steel column carrying out a steel board, is the requirement for
the information signboards at every tourism site. It is clear from the image (Figure
6.12) that this signboard is positioned without any efforts to study the position,
location or direction in terms of the size and location of the entrance and high of the
building. Also, the materials are not practical or sustainable; the fonts have
disappeared and the steel frame and structure have begun to rust. This lack of
information and interpretation management impacts the site and its users. Each site
has its own requirements and users; these types of requirements and users should be
some of the main inputs of managing the information and interpretation. Successfully
identifying these inputs will help in having a successful management plan.
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Figure 6. 12 The signboard location and materials as information and interpretation tools,
which over time became illegible because of the metal corrosion, causing a negative
impression for visitors and the site, Al-Qeshlah palace (2016)
Signboards and signage should have a theme in terms of the design, message, size and
direction, as a way to manage information and interpretation at cultural heritage sites.
In Jordan, for example, Kerak Castle used a huge black square signboard in front of
the stairs with maps, images and texts, while on the Castle Plaza signboard the shape,
message and information were different whether in size, colour or text (Figure 6.13).
Unifying the requirements of these signs from the national level would lead to
similarity between sites at the local level, while each place should present itself within
the theme of the destination according to the site's character not according to TOR. In
other words, coherence in communication style is one of most effective tools for
managing the information and interpretation in cultural heritage sites.
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Figure 6. 13 Different sizes, materials and colours of the signboards in the Kerak Castle in
Jordan. (2010)
Another opportunity to provide information and guidelines is the visitor centre. A’Airf
castle has this facility, and it provides information about the castle. A new building
was constructed in the style and manner of local vernacular architecture for this
purpose (Figure 6.14), and this centre is located inside the A’Airf castle site to provide
information and services for the visitors.
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Figure 6. 14 The visitors centre in A’Airf castle in Ha’il city, it is a new construction
with the style and manner of local vernacular architecture and is located inside the castle
site to serve visitors. (2016)
However, due to its location, the services are extremely limited to those who arrive
there. In other words, the opportunities to encourage and serve the users as one of this
centre’s functions and objectives was missed. Thus, because the main function for this
centre was lost, it became an office for the SCTNH branch employees, open only
during working hours.
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The concept of the visitors centre in A’Airf castle is proposed individually toward only
one site, due to its location, functions and lack of links with other heritage sites. In
other words, the context of the cultural heritage is outside of the considerations. It is
impossible to create a visitor centre for every single heritage site, but it is beneficial
to manage the requirements of this centre within the context of cultural heritage sites
as one destination in the Ha’il city centre. This approach will reduce the costs of
employees, buildings, maintenance, bills, etc., increase the benefits and services for
both users and sites 24/7, provide quality services, play a role in linking sites, drive
the flow and share the carrying capacity between cultural heritage sites.
Another approach toward managing information and interpretation in cultural heritage
sites is tourist trails131. Tourism routes assure to bring together a diversity of activities
and attractions in a unified theme and thus encourage entrepreneurial opportunity
through the development of ancillary products and services (Greffe1994, Gunn 1979,
Fagence 1991, Lew 1991, Miossec 1977, Long et al 1990, Getz and Page 1997).
Tourism destinations contain different sites that should be linked physically and
visually, and such tourist signage and appropriate pedestrian pavement are tools to
link these sites and direct users through specific locations and positions. This shapes
the destination and encourages participation and involvement for both sites and users.
131
‘In the United States heritage trails have long shown to provide the impetus for the development of
a range of attractions and facilities along their routes (Hill and Gibbons 1994). Western Heritage trails
in particular have served as a catalyst for the stimulation of theatrical productions, wagon trains and
horseback trails. Hill and Gibbons (1994) argue that since tourists are dispersed along the length of the
trail, carrying capacity management is facilitated, negative environmental impacts are reduced, and
economic benefits more evenly distributed’ (Meyer, D. (2004) Tourism Routes and Gateways: key
issues for the development of tourism routes and gateways and their potential for pro-poor tourism,
Overseas Development Institute).
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The Al-Salt heritage trail in Jordan (RSS, 1991) is an example of managing
information and interpretation as well as users. This project develops heritage sites
through tourism management, by focusing on urban resources rather than a single
building (Figure 6.15), unlike what exists in Al-Qeshlah palace in the Ha’il city centre
where the focus is on a single object rather than a context. The Al-Salt project created
heritage trails that are presented with different tools, such as signboards (Figure 6.16).
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Al-Gadah District (5000 m2) Al-Ain Square (4500 m2) Al-Hammam Street (6900 m2)
Uqbah Bin Nafea’a Square (13400 m2)
Der Allatin (1400 m2)
Municipality Square (3100 m2)
Figure 6. 15 The Al-Salt heritage trail plan in Jordan shows the development plan for the heritage components rather than a single heritage
building by implementing the concept of heritage trails. (Ministry of Tourism and Antiquities, 2010)
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Figure 6. 16 Tourist heritage trail

signage at the Al-Salt heritage site in
Jordan, shows the theme of these signs
and the direction of the sites as a tool
to manage information and users
within the urban heritage site (2010).
However, these signs must be designed sensitively in terms of location, direction, size,
materials, colours and information. Selecting sustainable materials and visually
appealing signage is important to avoid detracting visitors (Figure 6.17). Using
different methods and materials to direct and inform users is crucial (Figure 6.18).
They should be of good quality and design, whether modern or traditional, to
encourage people and participate in their experience in the cultural heritage sites.
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Figure 6. 17 Some impacts on the signage boards in Al-Salt heritage trail due to using
unsuatable materials such as metal. These signs are not legible and are also not maintained,
which might cause nigative impressions and loss of objectives (2010).
Figure 6. 18 Information and interpretation tools used in the Liverpool city centre (2017)
Extending the tasks to include the design of shop signboards (Figure 6.19) is another
technique toward comprehensive management and also a tool to involve the
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community and make them participate in development plans effectively. In addition,
standard shop signs are used to avoid visual chaos on the heritage built fabric.
Figure 6. 19 Examples from the Al-Salt project in Jordan shows the expanding
works toward local shops by designing shops plates (2010).
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Another approach that encourages community participation is loyalty whether from
community or local organizations toward the heritage site. Placing the owners' names
on signs and signs around the area is one way to encourage involvement and impact
loyalty to the sites as awareness of the destination. As a result, this increases awareness
of the values of the cultural heritage sites. Each site must be unique; this uniqueness
comes from its characters. For example, Dana Village in Jordan (Figure 6.20), as part
of Dana Biosphere Reserve, uses different methods, materials, sizes and techniques
for signboards for different types and characters of destinations.
Figure 6. 20 Different techniques, materials, sizes, coulours and messages for using
signboards in the same country (Jordan) but in a different sites such as Dana Village (2010).
Managing urban use
The Barzan market area is the most crowded place throughout the year in the Ha’il
city centre, if not in the whole Ha’il province. The challenge of managing this over-
crowding lies in two contradictory aspects. One is to increase the numbers of tourists
in the Ha’il city centre with enriching experiences and benefits in a sustainable
manner. The second is to reduce the pressure of crowds without losing attractions and
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users. These users are either shoppers, visitors or employees, with shoppers and
employees determined by the shops’ locations and the provided products.
Commercially, the pressure points are focused in some specific zones (Figure 6.21),
namely the Barzan market which provides personal supplies and clothes for women,
vegetables, fruits, the meat market, electrical appliances shops, Oud’s oil and
perfumes shops, the date’s market, a contemporary shopping mall and the Barzan
mosque. Some sub-zones also contribute to the pressure points, such as men’s personal
supply shops, tents and traditional furniture shops.
Culturally, the opportunity sites are Al-Qeshlah palace, A’Airf castle, Barzan heritage
sites and other cultural buildings such as the Ha’il library and a private museum. These
components and resources are a golden opportunity for creating a real cultural heritage
destination within the context. However, these places are not linked, which reduce the
benefits for both users and cultural heritage sites, losing the context of cultural heritage
and creating an unattractive experience. ‘The importance of heritage value over
commercial and economic gain must be recognised and commercial activity remain
appropriate and sensitive to the qualities of an historic area’ (Orbasli, 2000: 171).
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Figure 6. 21: Ha’il city centre existing land use (modified, SCT, 2005)
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There is need for linking cultural heritage sites and managing urban use. For example,
the Barzan market and men’s market should be linked and integrated together via
urban design and land uses by heritage trails. Creating these trails also encourages
family activities and experiences and draws users to spend more time in different
places to erase pressure points. This technique links sites and makes the places
between them attractive and directs the flow of visitors toward less pressured places,
providing balance. Furthermore, upgrading the site to be in the development stage and
further as Butler suggested in his model.
Encouraging the family to walk and exercise in a safe and attractive place also
addresses current health challenges such diabetes and blood pressure and encourages
other stakeholders such as the Ministry of Health (MOH) to participate in developing
cultural heritage sites132. For example, obesity and weight gain have become one of
the most serious health problems in the world, affecting almost one third (2.1 billion
people) of the global population and resulting in 5% of all deaths133 (MOH, 2016). In
Saudi Arabia, obesity and weight gain are the most common public health problems
affecting people134 (MOH, 2016). Saudi guidelines on the prevention and management
of obesity (2016) recommend the importance of physical activities, such as walking
and cycling, to encourage children to lead active lives and encourage a family
approach to physical exercise through walking, cycling, shopping and going to the
park. These guidelines also inform individuals about the benefits of physical activity.
132
The health benefit is one of the multi values that urban area are offered such as economic, social and
environmental values (CABE and DETR, (2001) the value of urban design. London: Thomas Telford).
133
If the current trend continues, over half of the world’s adult population may be overweight or obese
by 2030 (MOH, 2016).
134
It affects 28.7% and 30.7% of individuals fifteen years and older respectively, at a total of 59.4% of
the population (MOE, 2016).
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Outdoor gyms and open galleries are other solutions to this problem through heritage
sites, when managed carefully.
In other words, creating multi-functional uses of heritage sites is crucial to
implementing the development plans effectively, especially in urban design, not only
for buildings but also for squares and open spaces where the heritage trails lead.
Moreover, creating dynamic places for the destinations that are more attractive
throughout the year directs the flow and controls the pressure points through the
location of services and facilities.
In that sense, well-linked cultural heritage sites such as Al-Qeshlah palace, A’Airf
castle and other places can play main roles in implementing MOH objectives and
recommendations135 for physical activities through providing attractive heritage trails.
These trails encourage walking, design safe cycling paths and provide information
within the sites about reducing the risk of cardiovascular disease and diabetes.
Understanding other stakeholders’ requirements, like MOH, is one of the main tools
for managing cultural heritage sites effectively and comprehensively, as well as
enlisting their involvement and participation in, and awareness of, cultural heritage
sites. This can be done only when these stakeholders become a part of the cultural
heritage development and management.
‘Saudi Guidelines on the Prevention and Management of Obesity’ recommended the Stages of
135
Change Model to Assess Readiness to Lose Weight. These stages are: Pre-contemplation,
Contemplation, Preparation, Action and Maintenance (Appendix 5.G). These stages are one of the main
keys for urban design to understand what should be provided, for whom and where in the urban heritage.
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Enhancing the cultural experience
Al-Qeshlah palace, A’Airf castle and the Barzan heritage district area are typical
examples of areas with cultural activities. Providing day and night cultural attractions,
including multi-media, inspires users to spend more time enjoying themselves while
keeping them close to the values of cultural heritage and increasing the potential for
different benefits for the destination.
Users’ experiences shape both the individual and collective memory, not only for a
single element or building but also for destination components including arrival points,
parking, traffic and transportation networks. Experience of both public and private
architectural heritage buildings also enhances the experience. For example, a private
museum (Figure 6.22) located next to A’Airf castle enhances the cultural experience
through its link with other cultural heritage sites and its role in the development plan.
Figure 6. 22 A private museum close to A’Airf castle in the Ha’il city centre shows richness
in collectibles that deserved to participate in enhancing the cultural experience (2016).
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Traffic and transportation management
Traffic and transportation systems, especially in the city centre, play a major role in
the development, planning and management of the cultural heritage sites in Saudi
Arabia, particularly in the Ha’il city centre. People rely on using the cars at these sites,
and no enough public or private transportation means exist to assist tourist tours inside
and outside the Ha’il city centre. Of the tourists in the region, 92% rely on private cars
(SCTA, 2005).
Accessibility for cultural heritage sites in the Ha’il city centre is an important issue,
but not as urgent an issue as increasing public transportation within and around cultural
heritage sites. Providing suitable and comfortable public transportation from main
parking zones, for instance, to well-prepared stations will reduce the number of cars
inside the centre and encourage people to walk and enjoy it more. This would also lead
to the creation of more public spaces and squares. However, this issue should be
managed and designed sensitively based on the local culture. Otherwise, it could be a
reason to separate the local community from tourists, creating a gap between them as
well as negative impact that would affect not just the city centre but all tourism
destination components, including the values of cultural heritage.
Humanizing the scales and materials of street furniture and pedestrian pavements
welcomes and encourages visitors to participate and enjoy their time and experience.
For example, Historic England, through ‘Street for All’ guidance, provides practical
advices for those who involved in planning and implementing highways and other
public realm works in sensitive historic locations, including highways engineers,
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planners and urban and landscape designers (Historic England, 2018)136. These
advices help to develop historic street surfaces and furniture which have been
implemented in many places in the UK such as Five Lamps Market Place, Boston,
Lincolnshire. However, this strategy is not implemented in Al-Qeshlah palace. For
example (Figure 6.23 a), the pavement does not encourage visitors to walk on it, and
it is narrow in some places and high in others. In A’Airf, for instance, such a pavement
is twenty centimetres wide and leads to nothing (Figure 6.23 c). This design leads
visitors to use the street instead of the pavement (Figure 6.23 b) and walk in incorrect,
dangerous and uncomfortable places, causing negative impact and experience which
reflects on the site and its values.
(a) (b)
(c) (d)
Figure 6. 23 Some examples from cultural heritage sites in the Ha’il city centre and the
implementations of pavements for visitors (2016).
136
The guidance builds on the past work of Historic England and others on issues such as accessibility,
local distinctiveness, visual quality and community regeneration. It complements the technical advice
on the planning, construction and maintenance of residential streets provided in the Manual for Streets
(2007) and its companion guide Manual for Streets 2 (2010). (Historic England, 2018).
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Along with reducing cars through public transportation, traffic could be managed
effectively by other elements such as parking, open spaces, street furniture and
pedestrians. The main issue in the cultural heritage sites in the Ha’il city centre is the
pedestrian design; due to the single object approach, the link between sites is missed.
For example, there are no good pedestrian pavements that link Al-Qeshlah palace,
A’Airf castle and other heritage sites. To move from the Barzan market to another site,
one must cross the road, but there is no pedestrian path to highlight the trail and direct
visitors to cross safely with an enjoyable experience. It has been confirmed in more
than one place (Historic England, 2018 and Tibbalds, 1992137) that pedestrian
pavement would lead people to link places, manage the traffic, control the pressure
points and encourage a positive experience in a safe place where pedestrians are the
priority, especially at the junction points138 (Figure 6.24). Street furniture, materials
and signs, when designed carefully, will lead to the creation of attractive places.
137
Tibbalsd, F. (1992) Making People-Friendly Towns, Improving the public environment in towns and
cities. Longman Group UK, Ltd.
138
In practical terms, Historic England confirms the benefits from developing the pavements through
applying general principles, especially in heritage sites (Historic England, 2018). These principals, for
example, in historic street surfaces are maintain and restore historic paving where it survives, respect
local designs and details, and invest in locally sourced materials and high-quality workmanship.
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Figure 6. 24 Some examples from Albert Dock in Liverpool illustrates different methods
and techniques to manage traffic by using different materials, shapes and colours (2017).
Pedestrians and leisure
Reducing the traffic in the Ha’il city centre aims at improving the environmental
quality for all users. The layer of pedestrian networks should be carefully designed
with sustainability in mind (Figure 6.25). For example, use of surface materials such
as concrete paving blocks were used in most of the Ha’il city centre pavements, instead
of local stones with local shapes and colours. However, local materials, shapes and
colours are important not just for sustainability but also for linking different parts of
heritage sites that shape heritage image, and considering the context with sense in the
cultural heritage sites in the Ha’il city centre. Additionally, taking different users,
especially the elderly and disabled users, into consideration must be included in the
planning, design, implementation and maintenance processes. Enhancing the
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experience in the cultural heritage sites in the Ha’il city centre for all segments of
society is a noble goal not only for the places and users but also for tangible and
intangible cultural heritage.
Figure 6. 25 Different colours, materials, shapes and elements in the urban area will
participate in creating an enjoyable environment, as seen in Liverpool (2017).
6.4.3 The place enhancement
The development of cultural heritage sites in the Ha’il city centre is a main goal, but
it leads to other, more comprehensive objectives by bringing life to less developed
sites, especially around the Barzan area where most of the cultural heritage districts
are both located and deserted. The value of the place is determined by the value of
residents and users, not only for a short-life during festivals or events but for a real-
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life that creates authentic social and cultural activities for people and places. ‘If it is a
good place for residents, then it will also be a good place for the visitor to enjoy’
(Orbasli, 2000: 183) in other words, the residential life, in all forms, types and
activities, is the real attraction for tourists, as well as residents.
For example, by depending on local materials for developing urban areas and street
furniture, communities around the city centre, especially the owners of the farms, will
be encouraged to return to the sites and farms to produce these materials (Figure 6.26),
keeping the place alive. This approach will enhance community’s involvement
especially in terms of economic and social values that impact the urban cultural
heritage context. The main resources that should be developed in the cultural heritage
sites in the Ha’il city centre are those that are based on the characters and potentials
of local heritage, which emanates the spirit of heritage space such as palms and its
fronds, wood from local trees, local stones and mud (Figure 6.27). These main
resources and materials come from the urban environment.
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Figure 6. 26 The main materials in the cultural heritage sites in the Ha’il city centre such as
palms, wood, stones, gypsum and mud (2016).
However, for conservation and development of heritage sites, especially in the city
centre where the urban area has changed and lost its resources, the heritage spaces are
the reference point for local materials. The heritage space should be the inspiration for
the designer, developer and project, not just in terms of materials but also as a result
of the integration and relationship between the materials and users. For instance, the
local physical components such as gypsum and palm fronds can be implemented in
development plans in a well thought-out area, such as seats located in front of a
traditional cafe amidst a courtyard surrounded by traditional facades, as implemented
and suggested by Historic England (2018) in more than city and town in the UK. This
design evokes a sense of the connection of local materials as interior decorations with
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the emotions and intangible heritage. The materials begin interacting with the
intangible heritage to build a spatial story that links to an intimate memory and
generates the beginning of contact between tangible and intangible heritage.
Thus, the impacts are measured, beginning with the heritage space, to the architectural
heritage, and then to the urban level, such as pavement, street furniture and squares.
This creates a marketing method that stimulates the commercial production of such
materials and their uses in various forms and types, which is sustainable for such
industries, producers and users.
Products
Products
Economic Products
Urban Products
Architectural Heritage
Walls and Structures

landscape
Heritage Space
Seats
Materials of Cultural
heritage spaces
Products Lighting
(For example, wood,
columns
mud bricks, gypsum,
stones, carpets,
furniture…etc.)
Products Building Internal
design and design and
details Facades
Products
Products
Figure 6. 27 The heritage place should be the main resources for the architectural heritage
materials whether in structure, facade or internal design. Architectural heritage is also the
main resources for urban products such as street furnuture. Urban products are the market
for economic products for the built enveronment as well as residents and users (2017).
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The people’s value of cultural heritage sites is like the spirit for these sites, which not
only keeps the sites alive but also encourages its tools to be creative and sustainable,
‘The place of the past in any landscape is as much the product of present interest as of
past history’ (Lowenthal, 1975: 24). Returning to the heritage sites around the Barzan
district from local community, will increase environmental interaction through
expanding agricultural areas to supply local materials and produce products for the
markets, such as fruits and dates. As a result, a lot of different facts, such as economic
facts, will lead to the discovery of added values.
For instance, handicrafts and traditional products express the place and way in which
people live. The most important thing is to allow local communities to generate
festivals and events based on their need. These festivals and events should not be a
tradition just because they exist in a heritage site, but because they are part of present-
day life for users. Local dates festivals, for example, will create new meaning not only
for the place but also for the activities and attractions. In this way, users and places
will benefit from each other through discovering and adding values. Additionally,
quality products will be generated because the local community plays a major part,
not only because they generated the festivals but also because they are the users,
producers and investors that help preserve the cultural heritage values.
6.4.4 Summary
Extending from the laws and organizational structures issues, and using the Ha’il
region in Saudi Arabia as a case study, this section explored how heritage management
and tourism policies are implemented especially at the local level. The immediate
action, through outcomes of the law by SCTNH as a government body, was to create
a list according to quantitative criteria. This approach impacted not just cultural
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heritage buildings but also their values and context as a result of excluding some sites
from being developed and conserved.
The top-down approach caused difficulties in developing cultural heritage sites at the
local level, because the people who know well the local context are not within the
management team or stakeholders. In addition, the development of cultural heritage is
not clear target for the main players especially at the local level. Furthermore, the
target is always to develop the architectural heritage buildings without considering the
importance of the relationship between tangible and intangible and the urban contents,
also without consideration of the users adequately.
This investigation established the significance of Ha’il’s urban cultural heritage
especially in the city centre and Barzan district area. This area contains opportunities
to be a unique cultural tourism destination not only at the local and national levels but
also at the international level due to its cultural heritage values. One of these values is
the endangered architectural heritage value. Due to the prime location of these heritage
sites; within city centre, which not every city has today, as well as an example of an
Islamic city centre, the economic impacts are significantly appreciated because the
main markets are located there with real social life and interaction with the urban
cultural heritage site. Architectural heritage elements, details and materials in the Ha’il
city centre testify to the cultural and identity of Ha’il’s community.
Despite the importance of protection and safeguarding Ha’il’s architectural heritage,
making them relevant to their context is the urgent following step within processes of
the heritage management. Linking Ha’il’s architectural heritage buildings, such as Al-
Qeshlah palace and A’Airf castle, should be driven by the cultural heritage values
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through sharing cultural heritage resource within tourism framework. Tourism
management in the Ha’il urban cultural heritage site should consider the site as one
destination especially through information and interpretation tools and techniques.
Enhancing the cultural tourism experience through managing traffic and transportation
within the area as well as considering the pedestrians within the development plans is
a target that all main players should achieved. The architectural heritage places in Ha’il
city centre are still employ the traditional building materials such as palms and its
fronds, wood, local stones and mud. These materials and its sources should be
considered during heritage management processes as valuable resource not only for
heritage values but also for local community toward local economic, which
participates to form heritage context in Ha’il city.
6.5 Areas of further study
This research is an early attempt to address the gap in understanding the values of
cultural heritage, both tangible and intangible, at the national and local levels in Saudi
Arabia as one of the area most needed to search. Without doubt, the assertions made
in this research have to be analysed and refined further in the future by taking an even
wider set of evidence into consideration especially after any development in laws or
organizational structures.
This research discussed the laws, organizational structures and implementation in
developing the urban cultural heritage. The implementation at the local level confirms
the importance of further studies towards local communities, especially in the tribe
Muslim societies, in terms of their empowerment and structure. The implementation
process through a comparative cases from GCC countries, beside another case at
regional level would be a great chance to draw a comprehensive picture toward
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developing and managing heritage, in other hand, it is good resource toward heritage
management and policies for international experiences especially the UNESCO.
309
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340
Appendix
Appendix
Appendix 1. A: The location of regions in the KSA shows the central regions ..... 345
Appendix 1. B: Field work plan ............................................................................... 346
Appendix 1. C: Area and population of the regions in Saudi Arabia (Population and
Housing Atlas, Ministry of Economy and Planning, Central Department of Statistics
and Information, 2008)............................................................................................. 347
Appendix 1. D: The area percentages of the regions of Saudi Arabia, (Population and
and Information, 2008)............................................................................................. 347
Appendix 1. E: The population of the regions in Saudi Arabia (Population and Housing
Atlas, Ministry of Economy and Planning, Central Department of Statistics and
Information, 2008) ................................................................................................... 348
Appendix 1. F: The percentage of tourism contribution to GDP from 2006 to 2010,
(SCTA, MAS, 2011) ................................................................................................ 348
Appendix 1. G: GDP for tourism (billion S.R) between 2002 and 2010, (SCTA, MAS,
2011) ........................................................................................................................ 349
Appendix 1. H: Estimated area and production of wheat, by administrative regions in
Saudi Arabia from 2006 to 2008 (Ministry of Agriculture, the Kingdom of Saudi
Arabia, Annual Report, 2010) .................................................................................. 350
Appendix 1. I: Estimated production of wheat in Saudi Arabia from 2006 to 2008
(Ministry of Agriculture, the Kingdom of Saudi Arabia, Annual Report, 2010)..... 351
Appendix 1. J: Statistics of festivals and tourism events in Saudi Arabia in 2011
(SCTA, MAS, 2011) ................................................................................................ 351
Appendix 1. K: Total visitors in 2011 (SCTA, MAS, 2011) ................................... 352
341
Appendix
Appendix 1. L: Museums distribution by type in Saudi Arabia (SCTA, MAS, 2011)
.................................................................................................................................. 352
Appendix 1. M: Number of private museums in Saudi Arabia in 2011 (SCTA, MAS,
2011) ........................................................................................................................ 353
Appendix 1. N: The Arabian American Oil Company (ARAMCO) and Saudi
Commission for Tourism and National Heritage (SCTNH) .................................... 354
Appendix 1. O: List of the interviews with stakeholders and decision-makers ....... 358
Appendix 3. C The Antiquities Law in Saudi Arabia (03/08/1972) ........................ 361
Appendix 3. D The Ancient Antiquity Law in Jordan in1966 ................................. 362
Appendix 3. E The Ancient Antiquity Law in Jordan in 1976 ................................ 363
Appendix 3. F The Ancient Antiquity Law in 1988 ................................................ 364
Appendix 3. G The Urban and Architectural Heritage Preservation Law in 2005 .. 365
Appendix 3. H Why interest in urban heritage? Initiatives of SCTA on Urban Heritage
in 2010...................................................................................................................... 366
Appendix 3. I Architectural Heritage of the Kingdom of Saudi Arabia, between
authenticity and contemporality ............................................................................... 367
Appendix 3. J MOMRA definition in the Directory of Architectural Heritage
Conservation in 2005 ............................................................................................... 368
Appendix 3. K The developments in heritage concepts and terminologies in UNESCO
and ICOMOS ........................................................................................................... 369
Appendix 3. L Values and Categories extracted at International level until 1972 ... 376
Appendix 3. M Some examples of communications before establishing 1972’s law in
Saudi Arabia that participated in shaping the administrative framework ................ 380
342
Appendix
Appendix 4. A MOE Structure ................................................................................ 381
Appendix 4. B SCTNH Structure ............................................................................ 382
Appendix 4. C MOMRA structure ........................................................................... 383
Appendix 4. D Petra preserved area ......................................................................... 384
Appendix 4. E Different structures of High Commissions for Development (HCD) in
different provinces ................................................................................................... 385
Appendix 4. F Examples of some efforts and initiatives by SCTNH ...................... 387
Appendix 4. G Structure of the Ministry of Tourism and Culture (MOTC) in Malaysia
.................................................................................................................................. 390
Appendix 4. H Samples of the design of school models ......................................... 391
Appendix 5. A Criteria underlying the Classification and Selection of
Villages/Districts of Urban Heritage For the purpose of conservation and development
.................................................................................................................................. 392
Appendix 5. B Criteria underlying the Classification and Selection of Buildings of
Urban Heritage For the purpose of conservation and development ......................... 394
Appendix 5. C Applying the criteria on Barzan District in Ha’il City .................... 396
Appendix 5. D Sample of The Urban Heritage Site Data Form .............................. 398
Appendix 5. E Highlighting the limitation and the impacts of criteria .................... 401
Appendix 5. F The explanation of the stages in Butler’s model of the evolution of
tourist areas .............................................................................................................. 405
Appendix 5. G Stages of Change Model to Assess Readiness to Lose Weight, and
Applying the Stages of Change Model to Assess Readiness to Lose Weight ......... 406
Appendix 5. H Satellite images for Hail city during different periods .................... 407
Appendix 5. I The Criteria for Selection in The World heritage sites ..................... 419
343
Appendix
Appendix 5. J The Criteria for Selection of Buildings for Local List in English
Heritage (EH) ........................................................................................................... 420
344
Appendix
Appendix 1. A: The location of regions in the KSA shows the central regions
Ha'il
Qaseem
Riyadh
Source: Researcher, 2014
345
Appendix
Appendix 1. B: Field work plan

Targets / Organizations / Main Players
Fieldwork Plan National Level Both Levels Local Level
MOE MOEP MOMRA MOCI SCTH KFNL KAF SV P MOE/H MOMRA/H MOCI/H SCTH/H HPL
25-Jul DC + V
26-Jul DC + V
Jul
27-Jul DC + V
28-Jul DC + V
29-Jul DC + V
01-Aug DC + V + SV + P
08-Aug DC + V
09-Aug DC + V
10-Aug DC + V
11-Aug DC + V
12-Aug DC + V
15-Aug DC + V
16-Aug DC + V
Aug
17-Aug DC + V
18-Aug DC + V
19-Aug DC + V
22-Aug DC + V
23-Aug DC + V
24-Aug DC + V
25-Aug DC + V
26-Aug DC + V
29-Aug DC + V
30-Aug DC + V
31-Aug DC + V
01-Sep DC + V
02-Sep DC + V
05-Sep DC + V
Period 1
06-Sep DC + V
07-Sep DC + V
08-Sep DC + V
09-Sep DC + V
12-Sep DC
13-Sep DC
14-Sep DC
15-Sep DC
16-Sep DC
Sep
19-Sep DC + V
20-Sep DC + V
21-Sep DC + V
22-Sep DC + V
23-Sep DC + V
26-Sep DC + V
27-Sep DC + V
28-Sep DC + V
29-Sep DC + V
30-Sep DC + V
03-Oct DC DC
04-Oct DC DC
05-Oct DC DC
06-Oct DC DC
07-Oct DC DC
10-Oct DC + V
11-Oct DC + V
Oct
12-Oct DC + V
13-Oct DC + V
14-Oct DC + V
17-Oct DC + V + SV + P
19-Dec DC DC DC DC DC DC DC * * DC DC DC DC DC
Saudi Commission for Tourism and National Heritage Branch in Ha’il
Dec
General Administration for Education in the Ha’il Region
Saudi Commission for Tourism and National Heritage
Ministry of Muncipal and Rural Affairs
02-Jan DC DC DC DC DC DC DC * * DC DC DC DC DC
Ministry of Culture and Information
Ministry of Economy and Planning
Period 2
King Fahad National Library
King Abdulaziz Fundation
Ministry of Education
H- Ha’il Municipality
Ha’il Public Library
Data Collecting
Jan
Sites visit
Interview
Hail's TV
Pictures
MOMRA/H
MOMRA
MOCI/H
SCTH/H
MOE/H
MOEP
MOCI
SCTH
KFNL
MOE
KAF
HPL
DC
SV
V
P
346
Appendix
Appendix 1. C: Area and population of the regions in Saudi Arabia (Population and
and Information, 2008)
The area and population of the regions in Saudi Arabia
Regions Area (km²) Population (2010)
Riyadh 412,000 7,310,000
Qaseem 65,000 1,303,800
Makkah 164,000 7,472,000
Madinah 173,000 1,911,000
Ha'il 103,887 638,600
Al-jouf 100,212 471,000
Tabouk 108,000 845,800
Northern Region 187,000 342,500
Aseer 81,100 2,045,100
Jazan 11,671 1,460,500
Najran 119,000 541,300
Al-Baha 9,921 439,900
Eastern Region 710,000 4,414,300
Appendix 1. D: The area percentages of the regions of Saudi Arabia, (Population and
and Information, 2008)
Riyadh
Qaseem
Makkah
18%
Madinah
32% Hail
3%
Al-jouf
7% Tabouk
Northern Region
0% 8% Aseer
5% Jazan
1% 8% Najran
5% 5%
4% Al-Baha
4%
Eastern Region
347
Appendix
Appendix 1. E: The population of the regions in Saudi Arabia (Population and Housing
Atlas, Ministry of Economy and Planning, Central Department of Statistics and
Information, 2008)
Percintages of the regions population (2010) Riyadh

Qaseem
Makkah
1% 15%
Madinah
2% 25%
Hail
5% Al-jouf
Tabouk
7% 4% Northern Region
1% Aseer
Jazan
3%
2% 7% 26% Najran
2% Al-Baha
Eastern Region
Appendix 1. F: The percentage of tourism contribution to GDP from 2006 to 2010,

(SCTA, MAS, 2011)
The percentage of Tourism contribution to GDP (%)

5
4.5
4
3.5
3
2.5
2
1.5
1
0.5
0
2006 2007 2008 2009 2010
348
Appendix
Appendix 1. G: GDP for tourism (billion S.R) between 2002 and 2010, (SCTA, MAS,
2011)
GDP for Tourism (Billion S.R)

100
90
80
70
60
50
40
30
20
10
0
2002 2003 2004 2005 2006 2007 2008 2009 2010
349
Appendix
Appendix 1. H: Estimated area and production of wheat, by administrative regions in

Saudi Arabia from 2006 to 2008 (Ministry of Agriculture, the Kingdom of Saudi
Arabia, Annual Report, 2010)
Estimated Area and Production of Wheat, by Administrative Regions

2008 2007 2006
Area Productio Area Productio Area
Regions Production
(Hectare n (Hectare n (Hectare
(Tons)
) (Tons) ) (Tons) )
Riyadh 321243 61897 523845 108908 532461 110699
Makkah 1069 312 795 263 803 266
Madina
2287 520 2792 728 2957 774
h
Qaseem 233452 45654 410413 84621 483602 99712
Eastern
184080 42027 190034 42230 211369 46971
Region
Aseer 10334 3342 12916 3808 10098 2977
Tabouk 185000 28374 199857 31527 198735 30416
Ha'il 315926 44559 374593 58222 362542 56349
Norther
n 0 0 0 0 0 0
Region
Jazan 0 0 159 44 177 49
Najran 3363 866 3319 868 2324 608
Al-Baha 892 244 803 225 966 271
Al-jouf 727910 98366 838976 118886 824360 119179
Total 1985556 326161 2558502 450330 2630394 468271
350
Appendix
Appendix 1. I: Estimated production of wheat in Saudi Arabia from 2006 to 2008

(Ministry of Agriculture, the Kingdom of Saudi Arabia, Annual Report, 2010)
3000000
2500000
2000000
1500000
1000000
500000
0
Production (Tons)
2006 2007 2008
Appendix 1. J: Statistics of festivals and tourism events in Saudi Arabia in 2011

(SCTA, MAS, 2011)
Total Tourist Spending
Region Number of Festival/Event Total Visitors
(S.R)
Riyadh 3 1.877.108 1.209.951.970
Makkah 3 2.152.720 1.185.835.657
Madinah 2 290.020 246.700.150
Qaseem 5 620.300 198.321.368
Eastern Region 4 332.184 195.934.669
Aseer 1 2.024.800 1.062.615.040
Tabouk 3 664.678 137.960.608
Ha'il 3 712.920 302.831.584
Northern Region - - -
Jazan 3 313.484 84.833.532
Najran 3 422.708 264.420.000
Al-Baha 1 621.496 361.089.176
Al-jouf 2 302.397 233.329.918
351
Appendix
Appendix 1. K: Total visitors in 2011 (SCTA, MAS, 2011)
Total Visitors
2500000
2000000
1500000
1000000
500000
Eastern Region
Northern Region
Riyadh
Al-Baha
Hail
Madinah
Qaseem
Jazan
Makkah
Najran
Aseer
Tabouk
Al-jouf
Appendix 1. L: Museums distribution by type in Saudi Arabia (SCTA, MAS, 2011)
Museum Distribution by Type in Saudi Arabia
Regions Antiquities Private Scientific Educational Military Specialist Total

Riyadh 2 15 - - 1 1 19
Makkah 3 8 - - - - 11
Madinah 2 7 - - - - 9
Qaseem - 4 - - - - 4
Eastern
2 2 - - - - 4
Region
Aseer 1 26 - - - - 27
Tabouk 1 - - - - - 1
Ha'il - 8 - - - - 8
Northern
2 - - - - - 2
Region
Jazan 1 - - - - - 1
Najran 1 - - - - - 1
Al-Baha 1 - - - - - 1
Al-jouf - 6 - - - - 6
Total 16 76 - - 1 1 94
352
Appendix
Appendix 1. M: Number of private museums in Saudi Arabia in 2011 (SCTA, MAS,

2011)
30
25
20
15
10
0
Eastern Region
Northern Region
Al-Baha
Hail
Madinah
Jazan
Qaseem
Riyadh
Najran
Makkah
Aseer
Al-jouf
Tabouk
353
Appendix
Appendix 1. N: The Arabian American Oil Company (ARAMCO) and Saudi

Commission for Tourism and National Heritage (SCTNH)
ARAMCO
ARAMCO created a new culture in the middle of extremely traditional communities.
As compounds were built in premium locations, non-Saudi culture and identity were
imported. This new culture encouraged community involvement and expanded not
only geographically but also through lifestyle. There is no doubt this imported body
had huge impacts on both the land and communities.
ARAMCO developed an imported culture within the roots of the community,
becoming part of the community’s culture and encouraging people to be proud of this
new culture. This was especially true of the Eastern Region where ARAMCO is
located; however, its impact also expanded across Saudi Arabia due to communication
and employees who carried ARAMCO’s system and culture everywhere. That is not
to say that all impacts of ARAMCO were negative; rather, that some of the impacts
changed culture. In other words, enhancing employee loyalty toward the organization
caused another kind of culture and identity.
The 1930s were an extremely important time; the Saudi government started to search
for petroleum, eventually leading to discovery of the world’s largest oil reserves. This
discovery transformed Saudi Arabia into a power in world economics and one of the
key political players in the Middle East. This transformation had two impacts: one
related to diversity of income and one related to the impact on society.
The oil industry led to more imported materials than exported. In other words, the
globalization has begun. Linking the benefits of oil with society welfare had led people
to be proud of the Western lifestyle, indeed, it is kind of globalization invasion.

354
Appendix
Conflicts occurred between and within communities under the pressure of this global
lifestyle. This created a gap between and within these communities, especially when
it became criteria to classify people among each other. This gap became wider and
deeper, not only between the people but between the communities and the area in
which they lived. As this gap was created and the community was divided, the heritage
became something belonging only to backward-looking people.
In the beginning, there was another cultural conflict within ARAMCO, because
diverse groups of people were unfamiliar with each other’s culture. An example of
this conflict was between Saudi and non-Saudi employees. However, these differences
in culture impacted not just the employee relationships but also generational
relationships. For example, the older generation viewed the younger generation as
more emotional rather than rational, lacking experiences. The younger believed that
the older should be replaced and give way to the new generation.
Additionally, the investment between Saudi Arabia and the United States had
expanded in different levels and ways, especially after ARAMCO was established,
developing the relationship and integration level. For instance, when Saudi
government began to establish the new law about antiquities, these has already been
influenced by American authorities and individuals, whether in the law itself or in the
steps taken afterwards (see chapter 3).
SCTNH
Since the Third Saudi State (1932-present), the first heritage site was listed in 2008 by
UNESCO on the World Heritage Sites (WHS) list when Madain Saleh was nominated.
The Diriyah became the second listed site in 2010; then Historic Jeddah became the
third in 2014. The forth was Ha’il, which was registered on 4 July 2015. The rock art
355
Appendix
site in Ha’il includes two components in a desert landscape: Jabal Umm Sinman in
Jubbah and Jabal Al-Manjor and Raat in Shuwaymis. In 2018, Al-Ahsa Oases became
the fifth (Table 1). Today, more than ten sites are waiting to be listed1.
Table 1: Saudi heritage sites listed in WHS in UNESCO
Period 1945-2008 2009-2010 2011-2014 2015 2016-2018 Today
9 sites are on
Number of
1 1 1 1 1 the waiting
sites
list
From this timeline, an understanding can be developed of heritage conservation in
Saudi Arabia over the past 10 years. Indeed, SCTNH is the leader of this heritage
conservation as well as responsible for heritage management and development.
Additionally, the Director of the World Heritage Centre in SCTNH, when questioned
about the plans to list any site on the WHS list, stated that the focus is to register as
many sites as possible (Director of the World Heritage Center in SCTNH, interview,
18/8/2016).
Understanding the development of the SCT as a government body that leads heritage
development in Saudi Arabia is crucial to understanding the perspective of
government and the official efforts toward cultural heritage. In July 2015, at the
national level, SCTA (Saudi Commission for Tourism and Antiquities) became
SCTNH (Saudi Commission for Tourism and National Heritage) while it was Saudi
1
The list of the new sites approved by the council of ministers are the rock arts in Be’er Hima'a, Al
Faw Village in Riyadh, the Egyptian pilgrimage route, The Shami pilgrimage route, Zubaida trail, Hijaz
Railway, the Al-Dera’a neighbourhood in Dawmat Al-Jandal, the DeAin heritage village in Al-Baha
region, and Rjal Alma'a heritage village in the Aseer region (SCTNH, 2015:32).
356
Appendix
Commission for Tourism (SCT) at the beginning in 2000. The development of the
organization was not just through the name but also the tasks and responsibilities.
This indicates the significance of understanding heritage and its values at the national
level. For instance, before SCTNH was established, most of the tourism industry
elements and components were scattered under different organizations and ministries.
Antiquities and museums were under the MOE; hospitality, hotels and
accommodations’ licenses under the Ministry of Commercial (MOC), etc.
When SCTNH started in 2000, one of the biggest challenges was enhancing
community awareness of the tourism industry and acceptance of tourism as an income
source. Even though the statistics showed that the biggest target of tourism
destinations (Gulf countries, Egypt, Jordan, Turkey, Malaysia, etc.) was Saudi tourists,
however, domestic tourism was considered unacceptable. Exceptions to this were
some types of tourism that related to ‘religion’ after worship periods, or natural sites
without comprehensive management.
357
Appendix
Appendix 1. O: List of the interviews with stakeholders and decision-makers
The Level The Organization No. The Administrator Date Time Place The Duration
Director of the World 14/08/2016 10:30 am His office in SCTNH 0h, 13m, 12s
1.
Heritage Centre
2. General Director of the 14/08/2016 11:30 am 0h, 38m, 07s
His office in SCTNH
3. National Heritage Centre 10/09/2016 11:30 am 0h, 32m, 28s
4. Director of MAS Centre 14/08/2016 01:00 pm His office in SCTNH 0h, 26m, 49s
SCTNH
General Supervisor of 10/10/2016 11:00 am His office in SCTNH 0h, 18m, 49s
5.
National Heritage
National
Advisor to the General 10/10/2016 11:30 am 0h, 45m, 28s

6. Supervisor of the National His office in SCTNH
Heritage
General Director of the 04/10/2016 01:30 pm His office in MOMRA 0h, 27m, 35s
7.
Planning
MOMRA 8. Director of Urban Design 04/10/2016 02:10 pm His office in MOMRA 0h, 18m, 16s
Manager of archive and 04/10/2016 10:15 am His office in MOMRA 0h, 26m, 03s
9.
library
358
Appendix
Director of the Buildings 16/08/2016 09:30 am His office in MOE 0h, 23m, 09s
10.
MOE and Projects Department
11. Director of the Curriculums 16/08/2016 11:00 am His office in MOE 0h, 20m, 27s
12. Director of the Culture 05/10/2016 10:30 am His office in MOCI 0h, 16m, 48s
MOCI 13. Director of Publication 05/10/2016 11:30 am His office in MOCI 0h, 23m, 11s
14. Director of the Folklore 05/10/2016 01:30 pm His office in MOCI 0h, 37m, 08s
General Director of the 28/08/2016 11:30 am His office in the 0h, 39m, 33s
15.
Branch branch
Vice- General Director of 20/09/2016 01:00 pm His office in the 0h, 28m, 55s
SCTNH 16.
the Branch branch
Former General Director of 06/09/2016 07:00 pm His House 1h, 03m, 09s
Local in Ha’il
17.
the Branch
General Director for 19/09/2016 10:30 am His office 0h, 39m, 25s
18.
Planning
MOE
Director of the student 19/09/2016 01:00 pm His office 0h, 28m, 33s
19.
activity
General Director of the 21/09/2016 11:00 am His office 0h, 18m, 38s
MOCI 20.
Branch
359
Appendix
Director of the TV and 21/09/2016 11:00 am His office 0h, 32m, 49s
21.
Radio
MOMRA Director of Planning and 27/09/2016 11:15 am His office 0h, 29m, 56s
22.
Design
The Total 8 22 8,9,10/2016 10h, 16m, 04s
360
Appendix
Appendix 3. A The Antiquities Law in Saudi Arabia (03/08/1972)
It is antiquities law implemented to all
heritage since 1972 till 2014 for more
than four decades. Gathering all kind of
heritage at antiquities framework,
indeed, will affect all heritage, also its
impacts will reach the societies. The
heritage position today is a result of
many facts and approaches that applied
in the past, this law is one of them if not
the core of it.
361
Appendix
Appendix 3. B The Ancient Antiquity Law in Jordan in1966
It was clearly a ‘temporary’ law which
gives an indication about that the law
will be developed in the future, and that
what happened actually in 1976 and in
1988 until 2005.
362
Appendix
Appendix 3. C The Ancient Antiquity Law in Jordan in 1976
The word ‘temporary’ is still exist in this
law title, which means that this law is
one step forward from previous law and
indeed it is not enough, also it is a result
of some development that has done on
the previous laws. This law was shaped
and developed in terms of the definitions
and management of the heritage.
363
Appendix
Appendix 3. D The Ancient Antiquity Law in 1988
The ‘temporary’ word was removed
from this law which means that it is a
completed law. Like other laws, this law
had shaped and developed based on
previous laws experiences. Also this law
had its impact on expanding heritage law
and more awareness about heritage
context rather than antiquities
framework. That led to establish
architectural heritage law in 2005.
364
Appendix
Appendix 3. E The Urban and Architectural Heritage Preservation Law in 2005
This law is a major sign towards
confirming the deep understanding of
the value and meaning of heritage. Also
identifying architectural heritage and
understanding its wider context as a
component in itself rather than under
antiquities framework.
365
Appendix
Appendix 3. F Why interest in urban heritage? Initiatives of SCTA on Urban Heritage

in 2010
This is one of the unofficial efforts
towards defining the heritage by
SCTA. This effort focused on
architectural heritage as a component
in itself that different than what 1972
law said, Which is imposed by the
content of urban heritage, in other
words, it is the power of context
towards better understanding.
366
Appendix
Appendix 3. G Architectural Heritage of the Kingdom of Saudi Arabia, between

authenticity and contemporality
MOMRA has its own heritage definition due
to the limitation of 1972 definition, and also
due to power of the heritage context.
367
Appendix
Appendix 3. H MOMRA definition in the Directory of Architectural Heritage

Conservation in 2005
This guideline is one of the unofficial
efforts to define heritage and understand
it correctly. Also due to limitation of the
1972 law, this guideline tried to cover
heritage management in terms of the
general principals.
368
Appendix
Appendix 3. I The developments in heritage concepts and terminologies in UNESCO and ICOMOS
Occasion Concepts and Terminologies
International Museums Office,  Museums
1926  Collections and works of art

 Buildings of historical and archaeological interest
 Popular art
International Museums Office,  Ancient monuments
1931, ‘Athens Charter’  Administrative and legislative measures regarding historical monuments
 Aesthetic enhancement of ancient monuments
(Monuments)
 …Children and Young People…, …Peoples themselves…, …certain right of the community in
regard to private ownership…, …interests the community of the States, which are wardens of
civilization. …character and historical values to the structures, areas surrounding historic sites.
…protect monuments of artistic, historic or scientific interest and belonging to the different
countries. …Modern techniques and materials may be used in restoration work.
UNESCO, 1954, convention  Cultural property
(The Hague)  Movable and immovable property

 Cultural heritage
 Archaeological sites
 Groups of buildings
369
Appendix
 Works of art
 Manuscripts
 Books
 Buildings
 Centres
 Centres containing monuments
UNESCO, 1956, (Excavations)  Archaeological excavations

 Property protected
UNESCO, 1960, (Museums) Expanding the ‘museums’ term meaning
UNESCO, 1962, (Landscapes) Safeguarding the landscapes mean the preservation and, where possible, the restoration of the
aspect of natural, rural and urban landscapes and sites, whether natural or man-made, which have
a cultural or aesthetic interest or form typical natural surroundings.
UNESCO, 1964, (Illicit For the purpose of this recommendation, the term 'cultural property' means movable and immovable
property of great importance to the cultural heritage of a country, such as works of art and
Transfer)
architecture, manuscripts, books and other property of artistic, historical or archaeological interest,
ethnological documents, type specimens of flora and fauna, scientific collections and important
collections of books and archives, including musical archives.
1964, Venice Charter - The concept of an historic monument embraces not only the single architectural work by also the
urban or rural setting in which is found the evidence of a particular civilization, a significant
370
Appendix
development or an historic event. This applies not only to great works of art but also to more modest
works of the past which have acquired cultural significance with the passing of time. ...
- The conservation of a monument implies preserving a setting which is not out of scale. Wherever
the traditional setting exists, it must be kept. No new construction, demolition or modification
which would alter the relations of mass and colour must be allowed.
- Items of sculpture, painting or decoration which form an integral part of a monument may only
be removed from it if this is the sole means of ensuring their preservation.
- The valid contributions of all periods to the building of a monument must be respected since unity
of style is not the aim of a restoration. When a building includes the superimposed work of different
periods, the revealing of the underlying state can only be justified in exceptional circumstances and
when what is removed is of little interest and the material which is brought to light is of great
historical, archaeological or aesthetic value, and its state of preservation good enough to justify the
action. Evaluation of the importance of elements involved and the decision as to what may be
destroyed cannot rest solely on the individual in charge of the work.
UNESCO, 1968, (Public The term 'cultural property' applies to:
Works) - Immovable, such as archaeological and historic or scientific sites, structures or other features of
historic, scientific, artistic or architectural value, whether religious or secular, including groups of
traditional structures, historic quarters in urban or rural built-up areas and the ethnological
structures of previous cultures still extant in valid form. It applies to such immovable constituting
371
Appendix
ruins existing above the earth as well as to archaeological or historic remains found within the earth.
The term cultural property also includes the setting of such property;
- Movable property of cultural importance including that existing in or recovered from immovable
property and that concealed in the earth, which may be found in archaeological or historical sites
or elsewhere.
The term 'cultural property' includes not only the established and scheduled architectural,
archaeological and historic sites and structure, but also the unscheduled or unclassified vestiges of
the past as well as artistically or historically important recent sites and structures.
UNESCO, 1970, Convention the term 'cultural property ' means property which, on religious or secular grounds, is specifically
designated by each State as being of importance for archaeology, prehistory, history, literature, art
(Illicit Transfer)
or science and which belongs to the following categories:
- Rare collections and specimens of fauna, flora, minerals and anatomy, and objects of
palaeontological interest;
- property relating to history, including the history of science and technology and military and social
history, to the life of national leaders, thinkers, scientists and artists and to events of national
importance;
- products of archaeological excavations (including regular and clandestine) or of archaeological

discoveries;
372
Appendix
- elements of artistic or historical monuments or archaeological sites which have been

dismembered;
- antiquities more than one hundred years old, such as inscriptions, coins and engraved seals;
- objects of ethnological interest;
- property of artistic interest, such as:
i) pictures, paintings and drawings produced entirely by hand on any support and in any material
(excluding industrial designs and manufactured articles decorated by hand);
ii) original works of statuary art and sculpture in any material;
iii) original engravings, prints and lithographs;
iv) original artistic assemblages and montages in any material;
- rare manuscripts and incunabula, old books, documents and publications of special interest
(historical, artistic, scientific, literary, etc.) singly or in collections;
- postage, revenue and similar stamps, singly or in collections;
- archives, including sound, photographic and cinematographic archives;
- articles of furniture more than one hundred years old and old musical instruments.
373
Appendix
UNESCO, 1972, (World The following shall be considered as 'cultural heritage':
Heritage) Monuments: architectural works, works of monumental sculpture and painting, elements or
structures of an archaeological nature,, inscriptions, cave dwellings and combinations of features,
which are of outstanding universal value from the point of view of history, art or science;
groups of buildings; groups of separate or connected buildings which, because of their architecture,
their homogeneity or their place in the landscape, are of outstanding universal value from the point
of view of history, art or science;
sites: works of man or the combined works of nature and of man, and areas including archaeological
sites which are of outstanding universal value from the historical, aesthetic, ethnological or
anthropological points of view.
1. Each State Party to this Convention recognizes that the duty of ensuring the identification,
protection, conservation, presentation and transmission to future generations of the cultural
and natural heritage referred to in Articles 1 and 2 and situated on its territory, belongs
primarily to that State. It will do all it can to this end, to the utmost of its own resources
and, where appropriate, with any international assistance and co-operation, in particular,
financial, artistic, scientific and technical, which it may be able to obtain.
2. To ensure that effective and active measures are taken for the protection, conservation and
presentation of the cultural and natural heritage situated on its territory, each State Party to
this Convention shall endeavour, in so far as possible, and as appropriate for each country:
374
Appendix
- to adopt a general policy which aims to give the cultural and natural heritage a function in
the life of the community and to integrate the protection of that heritage into comprehensive
planning programmes;
- to set up within its territories, where such services do not exist, one or more services for
the protection, conservation and presentation of the cultural and natural heritage with an
appropriate staff and possessing the means to discharge their functions;
- to develop scientific and technical studies and research and to work out such operating
methods as will make the State capable of counteracting the dangers that threaten its cultural
or natural heritage;
- to take the appropriate legal, scientific, technical, administrative and financial measures
necessary for the identification, protection, conservation, presentation and rehabilitation of
this heritage; and
- to foster the establishment or development of national or regional centres for training in
the protection, conservation and presentation of the cultural and natural heritage and to
encourage scientific research in this field.
375
Appendix
Appendix 3. J Values and Categories extracted at International level until 1972
Values
12
10
8
6
4
2
0
Athens Charter UNESCO UNESCO, Venice Charter in UNESCO
(Monuments) in Convention (The (Landscapes), in 1964 Recommendation
1931 Hague) in 1954 1962 (National Level)
in 1972
Aesthetic Archaeological Authenticity Character

Cultural Ecological Economic Educational
Historic Human Identity Intangible
Integrity Intrinsic Physical Political
Scientific Setting Social Spiritual
Sustainable
Values
5
4
3
2
1
0
Character
Intrinsic
Integrity
Aesthetic
Cultural
Social
Ecological
Economic
Identity
Intangible
Scientific
Human
Political
Setting
Physical
Archaeological
Authenticity
Educational
Historic
Spiritual
Sustainable
UNESCO Recommendation (National Level) in 1972

Venice Charter in 1964
UNESCO, (Landscapes), in 1962
UNESCO Convention (The Hague) in 1954
Athens Charter (Monuments) in 1931
376
Appendix
Categories
8
7
6
5
4
3
2
1
0
Athens Charter UNESCO UNESCO, Venice Charter in UNESCO
(Monuments) in Convention (The (Landscapes), in 1964 Recommendation
1931 Hague) in 1954 1962 (National Level) in
1972
Archaeology Cultural property Group of buildings

Heritage cities Intangible heritage Intervention
Landscape Monument Single building
Town Urban area
Categories
5
0
Town
Urban area
Group of buildings
Archaeology
Heritage cities
Intervention
Intangible heritage
Monument
Single building
Landscape
Cultural property
UNESCO Recommendation (National Level) in 1972

Venice Charter in 1964
UNESCO, (Landscapes), in 1962
UNESCO Convention (The Hague) in 1954
Athens Charter (Monuments) in 1931
377
Appendix
Total Values available at International level before Saudi Law

21
20
19
18
17
16
15
14
13
12
11
10
9
8
7
6
5
4
3
2
1
0
Aesthetic Archaeological Authenticity Character

Cultural Ecological Economic Educational
Historic Human Identity Intangible
Integrity Intrinsic Physical Political
Scientific Setting Social Spiritual
Sustainable
Total Categories available at International level before Saudi

Law
11
10
9
8
7
6
5
4
3
2
1
0
Archaeology Cultural property Group of buildings

Heritage cities Intangible heritage Intervention
Landscape Monument Single building
Town Urban area
378
Appendix
The Values addressed in the occasions
Archaeological
Authenticity
Educational
Sustainable
Occasion
Ecological
Economic
Intangible
Character
Scientific
Aesthetic
Integrity
Spiritual
Physical
Intrinsic
Political
Cultural
Historic
Identity
Human
Setting
Social
Athens Charter (Monuments) in 1931 √ √ √ √ √ √ √ √ √ √
UNESCO Convention (The Hague) in
√ √ √ √ √ √ √ √ √ √ √ √
1954
UNESCO, (Landscapes), in 1962 √ √ √ √ √ √ √ √ √ √ √
Venice Charter in 1964 √ √ √ √ √ √ √ √ √ √ √
UNESCO Recommendation (National
√ √ √ √ √ √ √ √ √
Level) in 1972
The Categories mentioned in the occasions
Group of buildings
Intangible heritage
Cultural property
Single building
Heritage cities
Archaeology
Intervention
Urban areas
Monument
Occasion
Landscape
Town
Athens Charter (Monuments) in 1931 √ √ √
UNESCO Convention (The Hague) in 1954 √ √ √ √ √ √
UNESCO, (Landscapes), in 1962 √ √
Venice Charter in 1964 √ √ √ √ √
UNESCO Recommendation (National Level) in 1972 √ √ √ √ √ √ √
379
Appendix
Appendix 3. K Some examples of communications before establishing 1972’s law in

Saudi Arabia that participated in shaping the administrative framework
Source, DARAH archive, 2017.
380
Appendix
Appendix 4. A MOE Structure

Ministry Deputies:
The Ministry Deputy of The Ministry Deputy of The Ministry Deputy of

Education Affairs Education (Boys – Girls) Planning, and Development

Buildings Curricula and Educational Programs Scholarship Affairs

Planning and Information Schools Affairs Private Education
General Departments:
Directorate General of Directorate General of Directorate General of

Administrative and Financial Affairs Internal Auditing International Cooperation
Directorate General of Legal Directorate General of Directorate General of Public

Affairs Information Technology Relations and Media
Directorate General of School Directorate General for Directorate General for

Security and Safety Women's Affairs Follow-up
Source, MOE, 2018 (moe.gov.sa)
381
Appendix
Appendix 4. B SCTNH Structure
Source, SCTNH 2018 (scth.gov.sa)
382
Appendix
Appendix 4. C MOMRA structure
Source, MOMRA 2018 (momra.gov.sa)
383
Appendix
Appendix 4. D Petra preserved area
Ministry of Tourism & Antiquities, Department of Antiquities, Jordan (2010)
384
President
The governor
Council of the
Commission
different provinces
Secretary General
Regional development
committee
Executive manager
Public Relations and

Counsellors
Media
385
Continuous
Legal administration development and
improvement unit
High Commission for the Development of the Eastern Region
Research and Regional Planning

Projects Managements
Environmental IT and Development
Centre
Measurements Centre Centre
Administrative and Studies and designs

Financial Affairs Centre
Appendix 4. E Different structures of High Commissions for Development (HCD) in
Appendix
PR & Media Centre Follow-up and Internal
Audit Unit
Council of the President The

governor Maintenance and
Commission Vision Achievement
operation of the train of
holy Sites Unit
Secretary General
Strategic Management Documentation and
and Projects Archives Centre
Secretary General Assistant
386
Secretary General Assistant
for Planning and Programs
for Projects
General Department General Department

General Department Administrative and General Department
of Planning and for Operation and
of IT Financial Affairs of Implementation
Studies Maintenance
High Commission for the Development of Makkah Al-Mukaramah Province
Appendix
Appendix
Appendix 4. F Examples of some efforts and initiatives by SCTNH
SCTA programs and projects:
1. National Initiatives
 Tourism Gate
 Tourism Enriches
 IBTASIM (Arabic expression for Smile)
 STTIM – The Saudi Travel & Tourism Investment Market
 Tourism Marketing Partnership Program
 My vacation is Saudi
 EJAZATI SAUDIA Award
 Leave No Trace
 SCAT's Research Program
 THAMEEN (Arabic expression for Precious)
 Don't Let it Fall
 Historic City Centers Program
 Historic & Archeological Sites interpretation
 The Protection of Urban Heritage
 The 1st International Conference for Urban Heritage in the Islamic Countries
 World Heritage Sites
 The Treaty for preserving Urban Heritage in Arab and Islamic countries
 Heritage Villages Development Project
 International and Local Exhibitions
 The International Conference for Tourism and Handicrafts in the Islamic world
 Souk Okaz Prize for Handicrafts
 BA’RIAA
 A GIFT FROM SAUDI
 Sports Festivals
 The photo Atlas for Tourism & Antiquities education
 GOLDEN OPTIC Award
 International representation
 Reclaiming Antiquities taken outside the Kingdom
 Cultural dimension initiative
 Tareeq AlTawheed
2. Tourism Industry Initiatives
 Responsible Development
 TAMKEEN (Arabic expression for Enablement)
 TAKAMUL
 TOURISM EXCELLENCE Awards
 MAS - Tourism Information & Research Center
 General Tourism Strategy
 Regional Tourism Development Strategies
 Tourism Destinations Development: The Red Sea Tourism Strategy
 Tourism Destinations Development: Al-Ugair Tourism Destination
 Tourism Sites Preparation Program
 Cooperation Agreements
 Events Calendar
 Tourism Media Convoy
 Tourism Call Center
 Tourism Information Centers
387
Appendix
 TSA (Tourism Satellite Account recognized by UNWTO)

 TGIS (Tourism Geographic Information System)
 Tourism Navigator App for iPhone & iPad
 Photopedia
 The Saudi Tourism Professional Associations
 Tourism Development Corporations (TDCs)
 Tourism Development Fund
 Tourism Investment Services centers
 Stimulating Small to Medium Enterprises
 Licensing Tourism Trip Operators
 The National Museum development
 Development of New and Existing Regional Museums
 Private Museum Owners Forum
 State Owned Palaces during the Reign of King Abdul Aziz Museums
 Local County Museums
 Specialized Museums
 Rural Tourism Hotels
 Colleges for Hotel and Tourism Hospitality
 College of Tourism and Antiquities at King Saud University
 Programs of Tourist Diplomas
 TERHAL, VOYAGER, TOURISM & ANTIQUITIES, and TAWASUL periodic.
 Antiquities & Culture Media Promotion
 Tourism Virtual Tours
 The Tourism Statute
 The Tourism Codes of Conduct
 The Tourism Law
 The New Antiquities & Museums Law and Antiquities & Museums Regulations
 The Time Share Law and its Executive Charter
 Tourism Regulations
 Event support program
 Tour Operators
 MICE Tourism
 Health and Wellness Tourism (H&WT)
 Agri-Tourism
3. Organizational Initiatives
 SCTA's New Statute
 Tourism Development Councils and Provincial Tourism Offices (PTOs)
 Government Projects Management (GPM)
 SCTA Website
 SCTA Electronic Library
 Tourism Statistical Database
 Tourism Statistics Bulletin
 Saudi Tourism Outlook
 Organizational Development and Culture
 E-Government Applications
 Quality Assurance ISO9000
 Conflict of Interests Policy
 SCTA DELIVERS
4. Programs And Activities
a. SCTA Events and Forums:
o 2nd Private Museum Owners’ Forum
o STTIM (Saudi Travel and Tourism Investment Market)
388
Appendix
o NBHF (National Built Heritage Forum)

o Colors of Saudi Arabia Forum
o Tourism & Antiquities Security Forum
o Conferences:
o Green Arabia Conference
o Saudi Competitiveness Forum
o Saudi Conventions & Exhibitions Forum
o 6th Read Sea Antiquities Conference
o Conference of Archaeology & Tourism
o Souk Okaz
o SCTA Participates In ATM 2013 (Arabian Travel Market)
o Kuwait Travel World Expo
o Responsible Development
b. Product Development Program:
o Tourism Events Development
o Business Tourism Program
o Youth Tourism
o Health Tourism
o Tamkeen Program
o “Experience Saudi Arabia”
o “Leave No Trace” Program
o “Tourism Enriches” Programs
o “Smile” Program
o Outreach Project on Tourism Concepts
o Tourism Codes of Conduct
o Takamul
o World Tourism Day
Source: (SCTNH, 2017)
389
Appendix
Appendix 4. G Structure of the Ministry of Tourism and Culture (MOTC) in Malaysia
Source: (motac.gov.my, 2018)
390
Appendix
Appendix 4. H Samples of the design of school models
Some examples from schools design illustrate the impact of lack in a

consideration of identity as well as the impact of centralization
approach. For example, models ‘a’ and ‘b’ are the common design
over provinces in Saudi Arabia, which has nothing to do with local or
national identity. Model ‘c’ seems to be a better design in terms of
representing the local elements, however, this model cannot be a good
example out of Najed area.
391
Appendix
Appendix 5. A Criteria underlying the Classification and Selection of

Villages/Districts of Urban Heritage For the purpose of conservation and development
No Criteria Calculation Method Evaluation

point
Every ten years 3 points ( )
1 The Age
points
Important (it has a link with ancient historical events) 30 points
The historical
importance
(historical
Important (it has a link with the history of the 30 points

event)
( )
2 Kingdom of Saudi Arabia)
points
Important (it has a link with local historical events) 15 points
Ordinary (no difference with other villages/districts) 0 point
Unique at national level 30 points
Rarity
( )
3 Unique at province level 15 points
points
Good, demolition percentage 0% 40 points
Demolition Percentage 10% 35 points

( )
4 Note: There is no preservation for the village/district if the statues
points
points is less than 15 points unless the village/district has more than 60
points in the four previous standards as long as the building of the
village/district is documented
Distinctive at region and city level 20 points

Urban
( )
style
5 Distinctive at district level 10 points

points
Ordinary similar to any other village/district 0 point
Very good architectural design and details 20 points
archite
design
ctural
( )
The
6 Moderate architectural design and details 10 points

points
Ordinary architectural design and details 0 point
10.1 Site .. Accessibility
Accessible and close to the urban areas 20 points ( )
Far from the urban areas 10 points points
Isolated sites and difficulty to access 0 point

10.2 Availability of services and facilities
Available 20 points ( )
7 Less availability 10 points points
Unavailable 0 point
10.3 Feasibility of expected investment
High feasibility (financially, culturally) 20 points ( )
Medium feasibility (financially, culturally) 10 points points
Infeasible 0 point
10.4 Integration with other tourism and urban sites
392
Appendix
The site within group of integrated tourism and urban 20 points ( )

sites points
The site close to integrated tourism and urban sites 10 points
The site is fare from tourism and urban sites 0 point
10.5 Existing tourism and cultural activities
Permanently 20 points ( )
Seasonally 10 points points
No tourism and cultural activities 0 point
10.6 The capacity for tourism, cultural and heritage activities
High 20 points ( )
Medium 10 points points
Not appropriate 0 point
10.7 Owners’ desire towards preserving and making use of it as tourism
The owner is enthusiastic and currently working to 20 points
( )
invest the building
points
The owner is desired 10 points
The owner is ordinary 0 point
( )
Total
points
Levels of the Classification
First class More than 250 points
Second class 150-250 points
Third class 50-150 points
393
Appendix
Appendix 5. B Criteria underlying the Classification and Selection of Buildings of

Urban Heritage For the purpose of conservation and development
Evaluation
No Criteria Calculation Method
point
Every ten years 3 points ( )
1 The Age
points
(historical event)
The historical

importance
Kingdom of Saudi Arabia) ( )

2
points
Ordinary (no difference with other buildings) 0 point
Unique use (princedom, library) 30 points
Function
Building
( )
3 Unique residence (Governor House, Judge etc.) 15 points
points
Ordinary houses (such any other house) 0 point
Importance Important site at region or city level 30 points
of the
building Moderate site (at district level) 15 points ( )
4 location in
Ordinary site (such any other site) 0 point points
terms of
urban
Rarity
Unique at province level 15 points ( )

5
points
Ordinary building 0 point

Demolition Percentage 50% 15 points ( )
6
Note: There is no preservation for the building if the statues points is points
less than 15 points unless the building has more than 60 points in the
four previous standards as long as the building is documented

Architect
ural style
Distinctive at district level 10 points ( )

7
points
Ordinary similar to any other building 0 point
Very good design contains a distinctive concept or 20 points
architectural
elements at region or city level

design
( )
The
8 Moderate design contains a distinctive concept or 10 points

elements at district level points
Ordinary design similar to other buildings 0 point
9 Unique details at region or city level 20 points
394
Appendix
The Ordinary details similar to other buildings 10 points ( )

architectural
details and Noun 0 point points
inscriptions
10.1 Site .. Accessibility
Accessible and close to the urban areas 20 points ( )
Available 20 points ( )
Less availability 10 points points
Unavailable 0 point
High feasibility (financially, culturally) 20 points ( )
Infeasible (financially, culturally) 0 point

The site within group of integrated tourism and urban 20 points
sites ( )
10 points
Permanently 20 points ( )
Seasonally 10 points points
High 20 points ( )
10.7 Owners’ desire towards preserving and making use of it as
tourism
The owner is enthusiastic and currently working to 20 points ( )
invest the building points
Total ( )
points
First class More than 250 points
Second class 150-250 points
Third class 50-150 points
395
Appendix
Appendix 5. C Applying the criteria on Barzan District in Ha’il City
Evaluation
No Criteria Calculation Method
point
The Age Every ten years 3 points
(21)
1
points

The historical
importance
(historical

event)
2 Kingdom of Saudi Arabia) (0) points

Rarity
3 Unique at province level 15 points (0) points


Demolition Percentage 50% 15 points (15)
4
Note: There is no preservation for the village/district if the statues points
points is less than 15 points unless the village/district has more than 60
points in the four previous standards as long as the building of the
village/district is documented

Urban style
Distinctive at district level 10 points

5 (0) points
Ordinary similar to any other village/district 0 point
The Very good architectural design and details 20 points
architectural
6 Moderate architectural design and details 10 points (0) points
design and
details Ordinary architectural design and details 0 point
10.1 Site.. Accessibility
Accessible and close to the urban areas 20 points (20)

7
Available 20 points (10)
Less availability 10 points points
Unavailable 0 point
396
Appendix

High feasibility (financially, culturally) 20 points (10)
Infeasible 0 point
The site within group of integrated tourism and urban 20 points
sites (20)
points
Permanently 20 points
(0) points
Seasonally 10 points
High 20 points (20)
10.7 Owners’ desire towards preserving and making use of it as tourism
The owner is enthusiastic and currently working to 20 points
invest the building (0) points
(116)
Total
points
Third class 50-150 points (116 points)
397
Appendix
Appendix 5. D Sample of The Urban Heritage Site Data Form
General information ab
Site Number Previous Number Site Name (Arabic/English)Other Names Guide to the site
Administrative Area Governorate / City The closest urban area Distance Antiquities Office
N-Y coordinate E-X coordinate Hight

Buildings
Palace Heritage residenti Mosque Castle Tower Pond

Fence Well Bath
Type of the Site
City Centre Town Village Historic District Historic Market Public Market
Cluste
Urban
Unknown
Early Amoy Abbasi Fatmi Ayubi Mamluki

Islami
Ottoman Unknown
c era
States
Qaramitah Aionions Jabrion Sulaimaniyans Ashraf Makkah Ashraf Unknown
Time period
and
Emirat
es
First Second Third Unknown
Saudi
State
Status
Excellent Good Medium Bad

Ownership
Governmen Government com Private secto Individuals Waqf Unknown
Additional details about t

Original use
Government Ho Religious Commercial Residential Security and Pro Educational

Crafts activities Public services Unknown
SCTNH MOP Government Fenced

Site Administration
The site supervisor
MOMRA MOE Private Security Number:

Protection
MOIA No No management Monitor antiquities

Number:
MOA Unknown Unknown Protection zone Number:
MOD Worning sign
MOI Unknown
‫قيعان‬ valleys Highlands Coast

Topographic
Marsh Plains Mountains Island
Hills Coastal Plains Beaches
Natural Rainfall Stacking of sand Exposure to moi Rocky falls Volcanoes

Damage to the site
hazards Torrents Wind erosion Earthquakes Sliding soil

Pollutio environmental p Visitors Wastes
n Visual pollution T raffic
Bad use Agricultural exp
Misuse
Urban expansio Site abandonme
398
Appendix
World Heritage List

Airport Water Discharge of tor Registered in the World Heritage List
Services available
Registration in the
Roads Telecommunica Electricity
Nominee to register in the World Heritage Lis
Non-paved road Sewage
Rescue restorati Security Warning sign Preparation
Ability for investment

Ready to receive visitors
Site needs
Normal restorati Monitoring Information sign General services
Yes Yes
Cleanliness Fencing Road improvement Surveying
Maintenance ‫تبتير‬ Development Documentation
Field survey Architectural dr Documentation Study Restoration ‫رفع مساحي‬

field work
Previous
Draft Photography Aerial photogra
Sketch ‫رفع مساحي‬ ‫رفع معماري‬ Plan Sections Elevations

drawings
Available
Ground floor plan First floor plan Second floor plan ‫مسقط لألدوار اإلضافية‬ Shop drawings Maps
Protection plans
M atching with tourism plans (10) poin Feasibility (15) points

Tourism importance
Able for tourism development (70 points and

Tourism potentials (20) points Infrastructure (15) points
Ownership (15) points Political considerations (10) points

unable for tourism development currently
The possibility of marketing (15) point Total
if it is a building, please complete section number 1 and 3
Government Ho Religious Commercial Residential Hotel Museum

Current use
Educational Cultural Entertaining Craft activity Restaurant M ixed use
Unused
1 Mud Red Sea Basin Style Building

Building materials
Architectural style
Floors numbers
2 Stone Nagdi style Area

3 Wood Arabian Gulf Style
4 Gypsum AlSarah Style Construc
More 5 Cement tion area
Architect / Builder construction date
Age (3) points for each ten yea Architectural style (30) points First class More than 250 points
Building classification
Historical importance (75) points Architectural design (30) points Second class More than 150-250 poin
Function (45) points Architectural details (30) points Third class More than 50-150 point
Urban importance (45) points The possibility of investment (250) pointUnclassified Less than 50 points
Uniqueness (45) points Total = #REF!
Status (165) points
2 If the site Village/district or center or town (group of buildings) please complete section number 2 and 3
399
Appendix
Approximate number o
Main building mate

Average number of
99-3 1 Mud
Total area
200-100 2 Stone
300-201 3 Wood
400-301 4 Gypsum
More than 400 M KM More than 5 Cement
Curren
functio
Residential Commersial Mixed Ecological Local marke Noun

t
Age (3) points for each ten years Urban style (30) points First class M ore than 250 points
Village/district
classification
Historical importance (75) points Architectural design and details (30) po Second class M ore than 150-250 points
Uniqueness (45) points The possibility of investment (240) po Third class M ore than 50-150 points
Status (165) points Unclassified Less than 50 points
Total =
400
Appendix
Appendix 5. E Highlighting the limitation and the impacts of criteria

Criterion Judgement Limitations Impacts
The age Each 10 years = 3 points  There is no reason why 10 years  Conflicts between ancient and most recent heritage.
and 3 points
The historical Ordinary (no difference with  The importance should be based  Ignoring most of the heritage values, that would be the
importance other buildings) = o point on heritage values. same approach that had been used in the first law.
 There is more than historic  Emphasising particular values and shape the heritage
value. image upon these values.
 Judgement that the similarity  Missing the intangible heritage and separate it from its
between villages/districts or environment.
buildings is a weakness factor.  Excluding some heritage villages/districts and buildings.
 There is no historical  Ignoring the majority of the built environment because
village/district or building is of its similarity.
weight nothing.  Increasing the gap in understanding the value of cultural
 Two different periods are equal heritage.
Building Unique use (princedom,  Emphasise particular functions  Ambiguity in understanding the valuable functions.
Function library), and unique residence as the only valuable functions.  Excluding most of the buildings functions.
(Governor House, Judge etc.)  Not clear if it is function or  Maximize what present the political power and ignore
owner. the public.
Ordinary houses (such any  Communities’ houses do not  Increasing the gap in understanding the value behind
other house) = 0 point equal zero. buildings functions.
 Ignoring the majority who shape  Losing the majority of the heritage houses.
the societies images.  Shaping wrong image about heritage houses.
 Recognizing that similarity is a  Losing collective memory.
deficiency.  Delivering a message that the similarity is against
heritage which cause disloyalty from majority of society
towards heritage.
401
Appendix
Importance Ordinary site (such any other  The level of the importance is  Excluding any village/district or building has similarity
of the site) = 0 point linked with geographic scale with others.
building rather than community relation,  Shaping negative image about any heritage that similar
location in also the similarity is negative to other thus creating wrong image and
terms of fact according to this criterion. misunderstanding.
urban
Rarity Ordinary building = 0 point  Rarity is immeasurable criterion  Lack of clarity in defining rarity would be a tool to
unless it has specific exclude or include some heritage.
classifications and definitions.  Participate in convincing people that there is heritage
 All heritage villages/districts villages/districts or buildings are not rare at all. That
and buildings are rare at less for might lead to minimise the heritage values and cause a
person, group of people or way to classify heritage in negative ways.
community who share collective
memory.
The status Demolition Percentage 50% =  Any heritage village/district or Increase the number of endangered villages/districts and
(demolition 15 points building has more than 50% of buildings.
percentage) demolition is out of the criterion  Drawing the end of the urban heritage that suffered from
The status There is no preservation for which cause exclusion. laws and implementations.
(demolition the building if the statues  Focusing on the current status  Losing what remain from urban heritage sites.
percentage) points is less than 15 points rather than actual values.
unless the building has more  The criterion is supposed to
than 60 points in the four support endangered sites not a
previous standards as long as tool for exclusion
the village/district or building
is documented
Architectural Ordinary similar to any other  Immeasurable terminology.  The evaluation should be based on facts not opinions or
style building = 0 point  Credence that the similarity estimations.
The Ordinary design similar to between any village/district or  Excluding all urban heritage sites which has similarity.
architectural other buildings = 0 point building is negative fact and it  Disconnection between tangible and intangible cultural
design does not present the heritage. heritage.
402
Appendix
 Excluding tool rather than a  Losing intangible cultural heritage.

cause of action.
 Missing and losing intangible
cultural heritage behind
excluded sites.
The Noun or there is no details and  There is no building without  Ignorance of building techniques and its details.
architectural inscriptions = 0 point architectural details.  Losing of the sense of architectural details.
details and  Ignorance and  Participating in decreasing the public awareness.
inscriptions misunderstanding of
discovering architectural
details.
 Minimise of the concept of
architectural details.
The Site and Accessibility,  This criterion has nothing to do  Ignoring previous settlements because of its location.
possibility of Isolated sites and difficulty to with classification of heritage
investment access = 0 point sites. It should not be a criterion
Availability of services and for classification and selection  Build up today’s decision based on the past mistakes
facilities, Unavailable = 0 heritage site for preservation. when the law and implementation does not cover
point  This criterion should be in heritage values.
different form for investment  Contribution inadvertently in the neglect of the site and
list. increase the gap between it and community.
Feasibility of expected  Investment facts should not be a
investment, Infeasible criterion to protect heritage.
(financially, culturally) = 0  What seems to be infeasible
point today would be feasible
tomorrow, if we do not lose it.
Integration with other tourism  What is the guilt of the site in

and urban sites, The site is being far from districts that
403
Appendix
fare from tourism and urban serviced by the laws and

sites = 0 point development plans.
Existing tourism and cultural  If there is no tourism and  The judgement on the current situation rather than the
activities, No tourism and cultural activities currently, that potential, which would cause of ignorance for
cultural activities = 0 point does not mean the site has no undeveloped sites.
value.
 Existing activities is a result of
the development not a criterion
for development.
 There is no heritage site without
culture.
The capacity for tourism,  How it can be measured, what  This criterion would be a tool to exclude some heritage
cultural and heritage size of the activities, all the sites and buildings due to immeasurable criteria.
activities, Not appropriate = 0 heritage sites and buildings are
point capable for tourism and cultural
activities and there is no
heritage site equals nothing.
 If there was a life in this site then
indeed it is capable
Owners’ desire towards  The tourism is not the only way  Excluding rather than encouraging owners to preserve
preserving and making use of to invest heritage sites, such their sites.
it as tourism, The owner is daily commercial activities
ordinary = 0 point would be beneficial.
404
Appendix
Appendix 5. F The explanation of the stages in Butler’s model of the evolution of

tourist areas
Stages Explanation
Exploration  A small number of tourists independently explore a new location.
 The choice of a destination might come from a desire for personal
adventure to explore new natural and cultural location.
 There are minimal economic, social and environmental impacts of
tourism.
 If early tourists are accepted by the local community then the
Involvement
destination becomes increasingly popular.

 As more people want to explore the area, arrangements for travel,
transport and accommodation are improved.
 This marks the beginning of local people’s involvement in the
promotion of tourism.
 As local people help to encourage and promote tourism, more outsiders
Development
are attracted to the area which leads to a well-defined tourist market.

 Tourist firms take control of the management and organization of
tourism to the area.
 Package holidays now become commonplace and with them, the loss of
local involvement.
 Tourism now becomes an important social and economic activity in the
country.
 The extensive development of tourism, through marketing and
Consolidation
advertising, affects local communities.

 Large areas of agricultural land are cleared for hotels and other tourist
facilities.
 Local people may be forbidden to use beaches reserved for tourists.
 This causes resentment from local people who do not see how tourism
directly benefits them.
 During this period, the total number of tourists may increase, but the
rate of increase in the numbers of tourists begins to decline.
 The growing opposition to tourism from the local people and the
Stagnation
increasing awareness of the economic, social and environmental

problems associated with tourism may prevent the tourism industry
from growing further.
 Fewer new tourists visit, suggesting that the original cultural and
physical attractiveness of the destination has gone.
 As the destination loses its appeal, tourism will decline.
 As a result, other destinations become more attractive.

Decline
Hence, international tourist firms and operators move out.

 Local involvement may increase for a while.
 However, as local investors are unable to provide the same services as
the foreign tourist companies, the area will eventually lose its tourist
industry.
405
Appendix
Appendix 5. G Stages of Change Model to Assess Readiness to Lose Weight, and

Applying the Stages of Change Model to Assess Readiness to Lose Weight
406
Appendix
Appendix 5. H Satellite images for Hail city during different periods
Since 1978, 2004, 2007, 2009, 2010, 2012,
2013, 2014, 2015 and 2016, the satellite
images illustrate the changing in urban
growth and the suffering levels that heritage
sites facing, also the decreasing in the
number of heritage sites with its values and
context. It is an approach for further studies
to analysis the development in the physical
context of the urban cultural heritage sites.
407
Appendix
408
Appendix
409
Appendix
410
Appendix
411
Appendix
412
Appendix
413
Appendix
414
Appendix
415
Appendix
416
Appendix
417
Appendix
418
Appendix
Appendix 5. I The Criteria for Selection in The World heritage sites
To be included on the World Heritage List, sites must be of outstanding universal

value and meet at least one out of ten selection criteria.
Selection criteria
(i) to represent a masterpiece of human creative genius;

(ii) to exhibit an important interchange of human values, over a span of time or within
a cultural area of the world, on developments in architecture or technology,
monumental arts, town-planning or landscape design;
(iii) to bear a unique or at least exceptional testimony to a cultural tradition or to a

civilization which is living or which has disappeared;
(iv) to be an outstanding example of a type of building, architectural or technological

ensemble or landscape which illustrates (a) significant stage(s) in human history;
(v) to be an outstanding example of a traditional human settlement, land-use, or sea-
use which is representative of a culture (or cultures), or human interaction with the
environment especially when it has become vulnerable under the impact of irreversible
change;
(vi) to be directly or tangibly associated with events or living traditions, with ideas, or
with beliefs, with artistic and literary works of outstanding universal significance.
(The Committee considers that this criterion should preferably be used in conjunction
with other criteria);
(vii) to contain superlative natural phenomena or areas of exceptional natural beauty
and aesthetic importance;
(viii) to be outstanding examples representing major stages of earth's history, including

the record of life, significant on-going geological processes in the development of
landforms, or significant geomorphic or physiographic features;
(ix) to be outstanding examples representing significant on-going ecological and
biological processes in the evolution and development of terrestrial, fresh water,
coastal and marine ecosystems and communities of plants and animals;
(x) to contain the most important and significant natural habitats for in-situ
conservation of biological diversity, including those containing threatened species of
outstanding universal value from the point of view of science or conservation.
419
Appendix
Appendix 5. J The Criteria for Selection of Buildings for Local List in English
Heritage (EH)
Criteria for statutory designation are that a building should have ‘special’ architectural
or historic interest, and the grade (I, II* or II) is dependent on the level of that special
interest. There are also general principles which underpin this special interest related
to age, visual quality, technological or design innovation, and exemplars of a building
type. State of repair is not a consideration. Local listing criteria which have been
suggested by EH.
Age
(a) Buildings surviving from the earliest phases of development and early 20th
suburban development, and surviving in anything like their original form. Superficial
alterations which may be reversed in the future, e.g. reinstatement of timber windows,
will not preclude inclusion on the list.
Rarity
(a) Rare surviving examples of a particular type or form of building, material or style.
Aesthetic or design merit
(a) Examples of a particular architectural style.
(b) Use of quality materials and workmanship.
(c) The work of a notable local architect
Group value
(a) Groups which as a whole have a unified architectural or historic value to the local
area.
(b) Terraces, enclosing buildings (surrounding squares etc.), uniform rows etc.
Archaeological interest
(a) Although archaeological finds across the borough to date have been scattered and
few, they nevertheless indicate ancient settlements, and the possibility of future
accidental finds should not be discounted. In addition, there is the possibility that some
existing buildings have older foundations, perhaps as yet undiscovered. Where the
presence of such archaeology is known, or suspected, to exist, the building will be
included on the list. In all other cases, where planning applications for development in
any part of the borough involve work below ground level, it is suggested that a
420
Appendix
condition be attached that archaeological finds should be notified to the Council for
recording in situ, so the location can be added to the Heritage Environment Record.
Historical interest
(a) Historical association with a notable local person, event or key period of
development.
(b) Figures or events of national interest with a direct association
(c) Where buildings have later alterations, if the change demonstrates key stages in the
town’s historical development and are clearly legible, the building will be included
Landmark status
(a) Buildings which contribute significantly to townscape appearance e.g. pubs,
churches, factories, cinemas, banks, etc.
(b) Buildings that are a focal point of social or visual interest e.g. prominent corner
sites.
(c) Form a landmark, from within or from outside an area.
Social value
(a) The development of an area is often influenced by an individual building, which
may play an integral part in the shape of the area, or in the local social scene. Such
buildings may include churches, schools, village and town halls, chapels, public
houses, memorials, places of employment and workhouses, which formed a focal point
or key social role in the historical development of the area.
Documentation
(a) The significance of a local historic asset of any kind may be enhanced by a
significant contemporary or historic record, although this criterion alone will probably
not be sufficient to justify local listing.
Resource: Department for Culture, Media and Sport. (2007) Revision to Principles of Selection
for Listing Buildings. UK: TSO
421

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Architectural Heritage in Saudi Arabia

Between Laws, Organizational Structures and

Thesis submitted in accordance with the requirements of the University of Liverpool

for the degree of Doctor in Philosophy by

Ghazy Abdullah S. Al-Baqawy

The Compassionate, the Merciful,

Praise be to Allah, Lord of the Universe,

and Peace and Prayers be upon

His Final Prophet and Messenger

Acknowledgment .................................................................................................. XIII

List of Tables .........................................................................................................XIV

List of Figures ......................................................................................................... XV

Glossary of Abbreviations .................................................................................... XXI

Chapter 1: Introduction ............................................................................................ 1

1.1 Introduction ........................................................................................................ 2

1.2 The Topic under Investigation .......................................................................... 2

1.3 Research Aims and Objectives .......................................................................... 6

1.4 The Importance of Studying Laws, Organizational Structures and

Implementations in the Urban Heritage Sites: ........................................................ 8

1.4.1 Rationale of studying laws on cultural heritage ..................................... 8

1.4.2 Rationale of studying organizational structures in cultural heritage .... 13

1.4.3 Rationale of studying the implementations in cultural heritage........... 19

1.5 Research Method .............................................................................................. 23

1.6 Research Challenges and Limitations ............................................................ 30

1.7 Contribution to knowledge .............................................................................. 31

1.8 Research Organization and Layout................................................................ 31

1.9.2 Economy and revenue .......................................................................... 37

1.9.3 Agriculture ........................................................................................... 37

1.10 Evolution of Saudi Settlement ......................................................................... 40

Chapter 2: Tangible, Intangible and Perception of the Past ‘Memory’ ............. 45

2.1 Introduction ...................................................................................................... 47

2.2 Cultural Heritage within Historical Dimensions ........................................... 50

2.2.1 Islamic Architecture and Societies ....................................................... 54

2.3 Heritage Definitions ......................................................................................... 59

2.3.1 Heritage Concept .................................................................................. 64

2.3.2 Transporting Heritage .......................................................................... 65

2.4 Intangible Cultural Heritage Definition......................................................... 67

2.4.1 UNESCO’s Action towards Intangible Heritage ................................. 67

2.5 The Relationship between Tangible and Intangible ..................................... 72

2.6 Perception of the Past ‘Memory’ .................................................................... 75

2.6.1 Place of The Past .................................................................................. 78

2.6.2 Old and New Look ............................................................................... 79

2.6.3 The Conflict of Views and Values ....................................................... 80

2.6.4 Knowledge of the Past ......................................................................... 81

2.6.5 The Consciousness ............................................................................... 82

2.6.6 Memory and Identity ............................................................................ 83

2.6.7 Customs and Traditions ....................................................................... 86

2.6.8 Narrative Power ................................................................................... 87

2.7 Summary ........................................................................................................... 92

Chapter 3: Laws, Policies and Regulations ........................................................... 94

3.1 Introduction ...................................................................................................... 96

3.2 The Evolution of Saudi Definition of Heritage .............................................. 97

3.2.2 The Impacts of Generalization and Specification on Terminology and

Definitions ........................................................................................................ 100

3.3 The Development of the Definition of Heritage in Jordan ......................... 108

3.3.1 The Ancient Antiquity Law of 1966 .................................................. 109

3.3.2 The Ancient Antiquity Law of 1976 .................................................. 111

3.3.3 The Ancient Antiquity Law of 1988 .................................................. 112

3.4 The International Definition of Heritage ..................................................... 115

3.4.1 The Athens Charter (Monuments) of 1931 ........................................ 117